Unpacking the central concepts and guiding principles of the Paris Agreement

TWO NEW BOOK CHAPTERS BY LAVANYA RAJAMANI.
PARIS AGREEMENT CLIMATE RESEARCH

Recently published by the Oxford University Press, The Paris Agreement on Climate Change features two book chapters written by Lavanya Rajamani, including i) Central Concepts in the Paris Agreement and How They Evolved and, ii) Guiding Principles and General Obligation (Article 2.2 and Article 3).

An edited volume of essays, the book provides an analysis of the legal requirements of the Paris Agreement, and clarifies the content of the provisions, placing them in context and elaborating on key issues surrounding the Agreement.

In the first of the two chapters, Rajamani charts the evolution of the central concepts in the Paris Agreement. She and her co-author argue that the Paris Agreement relies on a few key concepts to ensure its acceptability, namely those of ambition of a global effort to reduce the emission of greenhouse gases, differentiation between developed and developing countries, and, the provision of support towards climate change efforts.

These concepts underpinned the four years of negotiations that led up to the Paris Agreement. An examination of these concepts, and how they play out in the text of Agreement, reveals the delicate balance the Agreement manages between a sincere commitment to climate change efforts while remaining sensitive to political, scientific and technical advances, and national circumstances and capabilities.

In the second chapter, Rajamani focuses more specifically on guiding principles of the Agreement articulated in Article 2.2 and Article 3 of the Paris Agreement. These include equity and common but differentiated responsibilities and respective capabilities in light of different national circumstances.

The chapter traces the difficult history of these principles at previous negotiations, and provides insight into the carefully chosen language that has critical significance. It also analyses how these principles have been operationalised across mitigation, adaptation, transparency, and, support.

For more details on the book, please visit the publisher page.

Additionally, Lavanya Rajamani has written extensively on the Paris Agreement for Annuaire Français De Droit International, the Journal of International Environmental Law, and, International and Comparative Law Quarterly, to name a select few. Her co-authored book, International Climate Change Law, published in May this year, discusses the Paris Agreement in depth.

Watch out for her article with Jutta Brunnée on ‘The Legality of Downgrading Nationally Determined Contributions under the Paris Agreement: Lessons from the US Disengagement’, which will be out in the next issue of the Journal of Environmental Law.

More information on her work can be accessed here.

Unpacking the Citizenship Amendment Act

READ THE CURATED MEDIA COMMENTARY BY SCHOLARS AT CPR

 

The Upper and Lower Houses of the Indian Parliament recently passed the The Citizenship Amendment Bill (CAB). The Bill seeks to fast track citizenship for persons belonging to specified minority communities, namely Hindus, Sikhs, Jains, Parsis and Christians from a specified list of neighbours – Afghanistan, Bangladesh and Pakistan. The passing of the Bill led to protests across the country, particularly in the northeast. In this curated media commentary below, scholars at CPR unpack the Citizenship Amendment Act (CAA), examine reasons behind why it is being met by such opposition and shed light on what the Act means for notions of citizenship and who is an ‘Indian’.

Sanjib Baruah writes in Frontline about how the CAB marks a historic departure from India’s long-standing disavowal of the Two Nation Theory – the narrative behind the creation of Pakistan. Baruah highlights that the CAB radically changes the meaning of Indian citizenship and introduces a distinction between Hindu and Muslim immigrants crossing Partition borders.

Sanjoy Hazarika writes in The Quint about how the CAB’s ad hoc approach ignores complexities, calling for introspection, immense patience and dialogue. Hazarika underscores that the Bill ‘scraps’ the 1985 Assam Accord, an agreement that brought an end to a six-year agitation, which had taken thousands of lives, disrupted the economy, and toppled several state governments.

Sanjoy Hazarika writes in Outlook India about why Assam and adjoining states in the northeast have erupted in protest against the CAB. Hazarika points that much anger was simmering after the National Register of Citizens (NRC) in Assam turned up an ‘excluded list’ of 1.9 million (majority of whom were Hindu and remain unsure of their future). The CAB appeared to be dismissive of Assam’s concerns with several fearing that granting citizenship to people who have come illegally over the decades from Bangladesh, Afghanistan and Pakistan could change the state’s demography. Hazarika questions the possibility of the CAB triggering violence against minority groups in other countries whom India seeks to protect, highlighting that ‘asserting the trinity of liberty, equality and inclusivity could help even at this very late hour’.

Sanjoy Hazarika writes in CNBCTV18 analysing the situation in Assam. He points that while the CAB and NRC are different exercises and will be rolled out that way in other parts of the country – the same isn’t true for Assam or other northeastern states. Hazarika writes that ‘the doors to dialogue must be kept open and those opposing the government and its plans must do so peacefully, constitutionally and democratically’.

Neelanjan Sircar writes in Hindustan Times about the similarities between today’s Bharatiya Janata Party (BJP) and the Congress under Indira Gandhi in the 60s and 70s. Sircar highlights that while the BJP looks like it will be in control for the foreseeable future, politics can change in a moment’s time, with one rarely seeing the downfall coming. He writes, ‘when people are angry and frustrated enough, no amount of social control can hem them in’.

Yamini Aiyar writes in Hindustan Times about how India is weakened when secularism is threatened, threatening the country’s multiple identities. She writes, ‘the real challenge that protests and resistance to the CAA and NRC face today is that they are bereft of a vocabulary to defend secularism’s cause even though it is the threat to secularism that sparked these protests’. Aiyar stresses on the urgent need for India to wrest and reclaim secularism, anchoring it in a new vocabulary that redeems its credibility.

In October 2019, Yamini Aiyar wrote in Hindustan Times about how given the import of the CAB, real resistance to the Bill necessitates a robust defence of secularism. She highlights that the failure of the Opposition to mobilise political resistance to the CAB is worrying, and has pushed secularism to the margins of our polity.

Sanjib Baruah writes in Indian Express about the experiences of other countries that had, in the past, adopted an ideology-driven refugee policy. Baruah however laments that ‘our country’s current snap, uninformed, and policy-illiterate style of law-making does not allow for learning from the experience of others’. He states that those protesting against the law have just fears founded on history and past accumulated experience.

Shylashri Shankar writes in Open, The Magazine how the CAA-NRC combine inflicts a deep wound on the Constitution’s fabric. She illustrates how the threat of these moves could play out by creating a fear psychosis among document-less Muslim citizens of India about their citizenship rights and about their ability to remain in their religion.

G Parthasarathy writes in The Hindu Business Line about how Pakistan can use the CAA to run down India in neighbouring Islamic countries and across its Indian Ocean neighbourhood. He highlights the need to acknowledge the adverse criticism from the media, think tanks and civil society organisations from across the world on developments in India, cautioning that ‘we should not take all criticism abroad as being deliberately, or maliciously, hostile’. He further stresses on the importance of ensuring that the population along the north-eastern borders are at peace with themselves and the rest of the country.

Citizenship (Amendment) Act: Some facts vs Mythbusters by Sanjoy Hazarika

Sanjoy Hazarika writes in The Economic Times about how answers given in government statements regarding the CAA have only muddled waters. While the government’s effort at reaching out those opposing the legislation is important, Hazarika writes, ‘this should have been done much earlier, when the build-up of support and opposition to the Act was clear’.

In an episode of The Big Picture by Hindustan Times, Sanjoy Hazarika highlights reasons behind why the CAA has been met with sharp resentment in the northeast.

In an episode of The Big Fight by NDTV, Yamini Aiyar analyses the goverment’s reaction to the protests against the CAA and NRC. She highlights that the state as an entity has always had a monopoly over violence but India holds on to its democracy very closely and dearly, and hence whenever the state pushes the envelope and uses violence, people come out on the street to protect their rights. Aiyar says that this is a testament to both democracy and to the insecurity of the state. She further cautions that playing with the secular core of the country will result in deep division.

In an interview with Rediff.com, Sanjoy Hazarika sheds light on the fears of the northeast with respect to the CAA. Hazarika says, ‘the reaction to CAA is the resentment of people that they really have not been consulted on this, that their concerns have not been taken into consideration’. He further says that the government must never close the door on dialogue.

Yamini Aiyar writes in Hindustan Times several states are opposing the CAA, thus taking a stand against the BJP’s majoritarian push. She calls the protests against the CAA-NRC combine ‘a reclamation of India’s pluralism’ and highlights that ‘it is through this reclamation that India’s federal aspiration is witnessing a resurgence.’ Aiyar however cautions that these early signs of resurgence must be viewed with cautious optimism. She analyses that the BJP is likely to harden its ideological stance and deepen its centralising instincts in the fiscal and administrative arena, leaving states with little room for manoeuvre, given the resistance it is facing. Further, ‘states will have to take a principled stance against the BJP’s attempts to consolidate majoritarian identity, and articulate a convincing ideological alternative anchored in federalism and secularism even as it risks vote banks.’

Rajshree Chandra writes in The Wire about Jaggi Vasudev Sadhguru’s defence of the CAA-NRC combine. She highlights that his speech contained several untruths and writes ‘he missed facts, history and law, and he missed their connections. But above all he missed what he beseeches us all to have – compassion.’ Chandra goes on to explain why the CAA and the NRC are discriminatory and highlights, ‘for someone who understands the law so insufficiently, Sadhguru really treads where angels fear to tread.’

Asaf Ali Lone writes in The Wire, examining the CAA-NRC combine through the lens of urbanisation, highlighting the intersection between identity, spaces, religion and politics. He writes, ‘the processes of ‘partition’ are witnessed in the everyday life of the ordinary Muslim resident of the city when a building, street, language, ritual or attire becomes associated exclusively with Muslim identity’. Lone highlights how the CAA and the NRC represent the lethal move to make India a Hindu rashtra, by weeding out Muslims. He further writes, that much depends on the ‘Hindu’ majority – whether it will say yes to a majoritarian consensus or not as the state cannot rule without it.

Shyam Saran writes in The Tribune about how the constitutional benchmarks India had set for itself are being questioned, derided and violated. He highlights that the CAA ‘announces an imagining of India starkly different from what the Constitution envisioned.’ Saran writes that ‘the alternative imagining of India is a country that privileges the adherents of the Hindu faith. It is based on the as yet untested assumption that an overarching Hindu identity, ranging across sectarian, caste, regional and linguistic differences can be constructed on a Hindu-Muslim binary.’ He highlights that government action must imbibe the spirit of the Indian Constitution, in the same spirit as the government’s slogan of ‘Sabka Saath, Sabka Vikas, Sabka Vishwas’.

Neelanjan Sircar writes in Hindustan Times how the protests against the CAA-NRC combine have crossed a threshold and acquired a mass character, which will lead to an  economic impact, raising problems for the BJP. He highlights how Internet shutdowns and curfews cripple basic economic activities. Additionally, the costs of stationing police, paramilitary and military forces are very high. Sircar also points to the indirect costs that are more severe, which include a decrease in investments due to an unfavourable sentiment. He writes, ‘the ruling dispensation will need to start negotiating with its citizens, rather than ramming through big bang reforms, backed by repression.’

Shyam Saran writes in The Tribune about the incident in the Regional Passport Office, Chandigarh, where an official demanded ‘citizenship certificates’ of two young applicants as he thought they ‘looked Nepali’ and hence may not be Indian citizens. He observes that the citizenship prerequisite is being taken to an absurd level. Saran highlights that the State, in a democracy, has no right to make its citizens abject supplicants for what is their inherent right and thus cannot, in effect, put in place a system which in its practice puts the burden of proving citizenship on the citizen himself. He calls this an abdication of responsibility by the State. Saran calls for a genuine dialogue between the government and political parties, civil society, students and other segments of society to understand the widespread concerns that the recent legislation.

Sanjib Baruah writes in Indian Express about how ‘India’s new official narrative is, at complete variance with the understanding that has informed Indian foreign policy so far.’ He questions why India even bothered to intervene in the war of liberation if Hindus were equally persecuted in East Pakistan/Bangladesh both before and after it broke away from Pakistan. Baruah highlights that is not surprising that people in all three CAA-covered countries — including leaders of minority organisations — reject the new Indian narrative.

Yamini Aiyar writes in Hindustan Times about how through the protests against the CAA, secularism has found its way back into the public discourse as a constitutional value worth fighting for. She illustrates how ordinary individuals are finding ways to articulate what secularism means to them, on Delhi’s streets, giving the word a more robust meaning, one that has deep roots in everyday Indian life. Aiyar questions whether this spontaneous, protest-led reclamation of secularism holds the possibility of translating into a new politics, in the long term, especially given the failure of the Opposition to generate a new discourse around secularism and democracy. She writes, ‘what we are witnessing today is democracy in its truest sense. It may not disrupt the status quo immediately, but it holds the promise of a better future.’

Sharonee Dasgupta and Fathima M write in The Daily Star, an account of their visit to Shaheen Bagh, a place that has become synonymous with resistance against the CAA-NRC combine.They write, ‘the most striking feature is perhaps the peaceful nature of the protests. Women there are well-informed about what they want and they stick to it. Their fight is with the ideology of fascism, not with individuals.’ Dasgupta and Fathima highlight how Shaheen Bagh will be remembered for its strength, tolerance and the subversion of stereotypes associated with minorities. Calling their trip educational and an eye-opening experience, they point out that it was a fierce reminder of the tenets of our constitution and the strength of our womenfolk.

Unpacking the Consequences of Donald Trump’s Multiple Trade Wars

CPR FACULTY ANALYSE THE US TRADE POLICY
INTERNATIONAL POLITICS

In what was seen as the beginning of a trade war, US President, Donald Trump recently imposed tariffs on goods from countries including Canada, Mexico, China and the European Union. The move saw immediate retaliation from US allies, with countries imposing heavy duties on a number of imports from the US. This policy of protectionism reflected Trump’s ‘America First’ agenda, however it derailed trade relations with several allies. CPR faculty analyse this move of the US President in the curated media commentary below.

Brahma Chellaney writes in the ‘Asian Review’ about the risk of alienation India faces as the US imposes punitive sanctions on Iran and Russia, both of which have been ‘long-standing economic and political partners for India’. The challenge for New Delhi is going to be ‘how to balance those interests with its growing strategic partnership with the US, a top trading and defence partner of India’. Chellaney reiterates this in the ‘Times of India’, detailing how India should safeguard its interests by partnering with other key democracies in order to push back with full diplomatic strength. In an interview with ‘Radio Sputnik’ he details the effects of the sanctions imposed on Iran.

Shyam Saran writes in the ‘Hindustan Times’ analysing the trade war between the US and China, detailing how by alienating allies, Trump’s China policy has failed as China gets an opportunity ‘to make common cause with American allies both in Asia and Europe’. He writes in ‘India Today‘ about the tumultuous relationship of the US with China, Korea, Canada and Russia and the implications this has for India, highlighting that ‘spaces have opened up for India to enhance its external position’.

G Parthasarathy writes in ‘The Indian Panorama’ highlighting the destabalising impacts of Trump’s ‘America First’ approach. He further elaborates on this in ‘The New Indian Express’ detailing how the US President has completely turned the foreign policy upside down, from his UK visit where he was critical of Theresa May, to his behaviour at the G7 Summit and his trade policies that have warranted retaliation from allies.

Unpacking the Implications of the National Register of Citizens (NRC) Exercise in Assam

READ THE CURATED ANALYSIS BY CPR SCHOLARS

 

The final list of the National Register of Citizens (NRC) in Assam was published in August this year. The objective of the list was to identify illegal immigrants in the state. On publication, it was discovered that nearly 2 million people have been excluded from the list, thus making them vulnerable to the threat of statelessness.

Scholars at CPR have closely followed the NRC exercise and analysed its implications. In July 2018, Honorary Research Professor, Sanjoy Hazarika, wrote in Economic & Political Weekly, about defining citizenship in Assam. He points that the publication of the NRC is unlikely to resolve the controversy over illegal immigration from Bangladesh, which spans over four decades. His article can be read here.

In the curated analysis below, CPR scholars unpack the implications of this exercise, raising critical questions about citizenship, rights and the role of bureaucracy:

Yamini Aiyar writes in Hindustan Times about how the NRC has brought to light the challenges to the ‘construction of citizenship in contemporary India.’ Aiyar highlights that the NRC ‘is illustrative of the ways in which the politics of religion has increasingly begun to intersect with institutional processes to shape understandings of who is a ‘legal’ citizen.’ She states that the flawed NRC process has provided the political fuel to push the demand for The Citizenship Amendment Bill, a bill that can have dangerous consequences as it fundamentally remakes citizenship in India.

In August 2018, Yamini Aiyar wrote in Hindustan Times about how the State’s excessive reliance on papers and documents for proving citizenship has become an instrument of state coercion and politically driven exclusion. Aiyar highlights how a combination of bureaucratic failure and vulnerability to corruption, made the NRC exercise arbitrary and disempowering.

Yamini Aiyar also appeared on an episode of Hindustan Times’ The Big Picture to discuss the various facets of the NRC exercise, including questions about the idea of Indian citizenship, politics of religion, judicial intervention and bureaucratic capacity.

Sanjib Baruah writes in The Indian Express about how ‘defining hundreds and thousands of people living in the country as non-citizens will create a new form of precarious citizenship — people with fewer rights and entitlements.’ Baruah highlights that while India is unlikely to deport those who fail the NRC test, creation of such a citizenship is ‘uncharted and potentially dangerous territory for a democracy.’

Sanjoy Hazarika writes in The Hindu about concerns over how the State government plans to solve the issue of stateless citizens after the NRC exercise. He questions if there is a detailed process in place while such individuals apply to tribunals and courts for relief, and how the government will deal with those who are declared non-citizens, especially if Bangladesh refuses to take them. Hazarika highlights that the basic dignity of the weak, voiceless and vulnerable is at stake, pointing out that ‘many of those who are off the list are poor, cannot afford lawyers and may not even know of their right to legal aid.’

In July 2018, Sanjoy Hazarika wrote in The Tribune about the implications of the NRC exercise post the publication of the second draft list. Hazarika highlights that ‘the Centre and the state have become unnerved by the specter of looming statelessness that they have neither the skills, understanding or will to deal with.’

Sanjoy Hazarika writes in Al Jazeera about how the campaign to update the NRC has upset everyone, including its proponents. He sheds light on the challenges that those who will have to seek legal recourse due to exclusion from the list will face, highlighting, ‘this is a thankless and frightening prospect of prolonged litigation for even the well-to-do, which a large number of those off the NRC are not. How will they sustain their lives and families, not just the litigation?’

Unpacking the IT Rules, 2021

READ THE BLOG BY ARCHANA SIVASUBRAMANIAN AND MANISH
TECHNOLOGY

The recently notified Information Technology (Intermediary Guidelines and Digital Media Ethics Code) Rules, 2021 (“IT Rules”) are the result of multiple calls over the last few years for the regulation of digital content platforms, particularly social media intermediaries, OTT platforms and digital news services. Three particular strands of concern have coalesced into these calls: the growing menace of fake news, that has on occasion even resulted in deaths; the proliferation of online streaming platforms carrying un-moderated content that on other media (cinemas, television) has been subject to reasonably stringent regulation; and the increasing anxieties expressed over the power of “big tech” firms such as Twitter and Facebook, raising the need for regulations to curb their influence.

The IT Rules have come under criticism since their launch, with complaints of regulatory over-breadth and overreach. As many as five petitions have been filed in court challenging the Rules. Common objections include traceability, automated content removal, and takedown requirements for intermediaries; and the role of the government in grievance redressal for digital media and online curated content providers. Most of these objections have been articulated procedurally: that in seeking to impose these regulations, the rules are ultra vires the parent Act because they exceed the scope of what it permits, especially in terms of content blocking and takedown, and regulation of digital media platforms. These procedural objections are important, because delegated legislation is legally enforceable only when it is within the ambit of what is permitted under the parent law. However, while adherence to process is essential, there is a need for a strong substantive argument as well.

Recent experiences have shown us that a government that has Parliamentary majority can easily overcome procedural hurdles. And Parliamentary approval is not a guarantee for better regulations: take the Cable Television Networks (Regulation) Act, 1995, enacted in response to judicial observations regarding the regulation of cable TV, which as a medium was as new to the country then as digital media and online curated content are today. It resulted in a Programme Code that is applicable to all TV content, which does not seem to have been subject to any serious scrutiny despite several provisions being extremely vague and problematic. It is this Programme Code that the IT Rules extend to online content as well.

The key to good regulation is taking a principled approach to the issue at large, rather than knee-jerk reactions to an immediate problem. In the past, courts have asked for stringent internet regulation only in response to PILs that have highlighted an immediate crisis: ads for pre-natal sex determination, rape videos circulating online, online content accused of hurting religious sentiments, etc. Even with the IT Rules, the apex court mentioned that the rules have “no teeth” and has called for a legislation as instead. The argument that the IT Act does not permit regulation of digital media and the same should be done through Parliament is necessary but not sufficient, because while it may stymie the present Rules, it does not consider the consequences of their provisions being translated into a law. Hence, it is fundamental to scrutinise these Rules on first principles.

What would this look like? Substantively, it would involve a nuanced exploration of Fundamental Rights, especially Article 19(1)(a) on freedom of speech and expression and look at whether restrictions being placed on them through the regulations are necessary, reasonable, and proportionate. Procedurally, they would engage with tenets of participatory democracy: wide-ranging consultations, with all stakeholders being given the opportunity to comment and all concerns being taken on board. Neither process seems to have been followed while drafting the present IT Rules.

If we look at the regulatory aspects of the IT Rules, they require firms to submit and comply, rather than appropriately incentivise conduct. This has also revealed new fears about how this regulatory approach can deter the exercise of individual rights, for the current course seems to indicate that the government is attempting – similar to its attempts with the Personal Data Protection Bill (“PDP Bill”) –to eliminate the power of digital firms through its regulatory muscle, instead of creating a stable Indian internet ecosystem that incorporates independent checks and balances. It is also important to note here that the new rules have been enforced without a strong data governance framework. Moreover, the I&B Ministry’s claim to regulate content under the IT Rules is contrary to modern practice, including the Indian experience, of having regulatory bodies independent from the Government.

The IT Rules are symptomatic of a new kind of regulatory ecosystem emerging in India, also reflected in the PDP Bill’s call for data localisation. Besides being devoid of a principle-based approach, they make it clear that political economy is at the heart of India’s internet regulation. Are they preliminary markers to a digital nationalism – an “aatmanirbhar bharat” that runs the risk of eliding the difference between the nation and the government in power? Should power over the internet be concentrated in the hands of the state, rather than individual users? Answers to these larger questions will come only from a deeper understanding of the political economy of the state. To get them, we must argue on first principles, and not just on procedure.

Unpacking the Processes Involved in Declaring Udaipur Open Defecation Free

NEW STUDY BY ACCOUNTABILITY INTIATIVE AT CPR

 

On the request of the Udaipur district administration, the Accountability Initiative at the Centre for Policy Research undertook a sample survey of recently declared and verified Open Defecation Free (ODF) Gram Panchayats (GPs) in the district, in 2017. The study found significant gaps in the processes involved in achieving ODF, and resultantly found less than 100% toilet coverage and even lower usage, bringing into question the veracity of the ODF status.

While there have been a number of recent studies seeking to understand the status of sanitation in India, relatively fewer studies attempt to examine the processes involved in declaring villages or GPs as ODF. This study aimed at filling this lacuna by undertaking a detailed process evaluation of the recent sanitation efforts in Udaipur.

The study was conducted in a limited setting, and was designed to be representative only of the ODF GPs in Udaipur. However, the structural and systemic infirmities in the bureaucratic apparatus are not unique only to Udaipur administration. With Rs 30,973 crores allocated to rural sanitation by Government of India and over 4 lakh villages having been declared ODF, these findings therefore assume a national significance, especially as the Swachh Bharat Mission Period draws to a close. At the very least, it evidences the need to conduct similar assessments in other parts of the country, which have seen rapid ODF declarations since 2014.

The full case study can be accessed here.

Understanding Out of School Children (OOSC) in India: the Numbers and Causes

NEW WORKING PAPER CO-AUTHORED BY KIRAN BHATTY

 

The number for out-of-school children [OOSC] put out by various official sources in India, show wide variations. The Ministry of Human Resource Development (MHRD) survey (IMRB-SRI, 2014) estimate of this figure is 6 million, while for the same year, the National Sample Survey (NSS) figure is 20 million.

Each figure is based on an estimate of ‘never enrolled’ and ‘dropped out’ children. A closer look reveals that problems exist not just in the definitions, especially of drop out used by each source, but also in the methods of estimating ‘never enrolled’ as well as ‘dropped out’ children. In addition, discrepancies and inefficiencies in the overall system of collecting and collating data compound the problems.

This study by Senior Fellow Kiran Bhatty attempts to address these issues through developing a more direct approach to calculating ‘never enrolled’ children based on a child census, as well as identifying OOSC using a broader understanding of absenteeism or ‘dropped out’ children based on irregular attendance.

It also analyses the links between attendance and socioeconomic and school factors. In doing so, it fills an important gap in the literature by questioning the definition/understanding of an ‘out-of-school’ child, as well as by using methodologies not employed before to estimate children not enrolled in school and to track attendance of those enrolled over an academic year.

The findings of the paper are divided into two sections – the first section describes the survey findings and estimates of OOSC and attendance patterns of students and teachers; while the second section provides an analysis of the links between child attendance and various household and school level factors.

The full working paper can be accessed here.

Understanding Subaltern Urbanisation in India and its Impact

A SERIES OF INTERPRETATIONS DRAWING ON A NEW BOOK ON SMALL TOWNS

 

Context

This first piece introduces a series on Subaltern Urbanisation in India that aims at understanding the dynamics of small towns, their place and role in the Indian urban transition process. It summarises the origins, the rationale and the methodology of a collective research project that involved a team of around 25 researchers, including the urbanisation team at CPR. The series will detail some of the results produced in a recently published edited volume, point towards future directions for research, and open up debates on public policy.

The background of this project is located both in empirical and theoretical concerns. One out of 10 urban dwellers in the world lives in India and small towns (less than 100,000 population) account for 90% of Indian cities and over 40% of the urban Indian population. Therefore understanding India is necessary to understanding global urbanisation, and understanding Indian urbanisation requires an all-round view beyond the overwhelming attention given to metropolitan and large cities. There is therefore a need to return to a more complete idea of the urban and this includes the study of the dynamics of small towns.

Defining subaltern urbanisation

Coining the term Subaltern Urbanisation can be seen as polemical but it seeks to embody two important strands that shape a common thinking around the potential role of small towns.

  • First, it attempts to make small places intelligible in contrast to their current level of invisibility in India and at the international level;
  • Second, it tries to think of small towns as sites endowed with some level of autonomy and agency while the dominant paradigm, in particular in the New Economic Geography school of thought, sees small urban spaces as dependent on large metropolitan economies.

Methodology

From a methodological point of view, the project was launched by a collective formed around 2009 assembling researchers from different disciplines, in order to engage in a multidisciplinary dialogue combining both GIS (Geographic Information Systems), quantitative data and qualitative methodologies. Nevertheless, this mixed method approach has not only been used to capture diversity and multiscale analysis but also in order to understand small towns as abstracts entities. It goes deep into capturing the varied types of interactions that produce the diversity of these urban environments.

Redefining urban, its scope, and the urban transition process

The point of departure of this research and its content was to interrogate anew the definition of the urban, the scope of the urban world and the urban transition process itself.

Our research questions were shaped both from theoretical debates and from a prior research project that aimed to refine the UN’s (United Nations) efforts to build comparative data sets to measure urbanisation worldwide. It is grounded in a questioning of the existing restricted representations, measures and explanatory models of urban expansion.

For India, this data base enabled us to build data at the lower urban settlement level. It demonstrated the importance of small settlements, which was confirmed by the 2011 census. It aimed at bringing to the fore issues involved in defining the frontier of the urban and its political dimensions as well as raising the important (and to some extent increasing) role small towns play in the urban transition process. From a more theoretical point of view, our aim was to add to a growing body of work that reclaims the diversity of the urban phenomenon beyond the global metropolitan cities and highlights the range of national and regional trajectories.

Small towns and economic growth

An important aspect of the research was also concerned with the relationship between small towns, the larger employment story and growth. Indeed, small towns have remained an important feature of the Indian urban system. They might or might not account for a large share of the GDP but they represent a large and growing market and they also act as important service centres to the rural population. In a context of limited rural to urban migration, job destruction in the agricultural sector and very limited job creation, our results show how small towns are, inter alia, places of adjustment where people cope with poverty, uncertainty through the mobilisation of their kinship networks and family resources. This result, in particular, is confirmed by additional work carried out in Bihar and funded by the World Bank, which will be elaborated upon in a forthcoming podcast.

We have also been interested in the nature of economic activities that range from traditional activities (such as the collection of Tendu leaves in Abu Road in Rajasthan), to natural resource extraction (such as coal mining in Barjora, in West Bengal), manufacturing, services and trade; as well as real estate and the private and education institutions (in Tamil Nadu and Haryana in particular). Ethnographies of a variety of sites located in different States confirm the role of favourable land prices and regulation and cheap labour for the development of small towns. However, they also document how innovations and entrepreneurship are based on an ability to tap local resources and adapt to a very rapidly changing market condition, that include exploring international markets (such as the furniture industry in Kartarpur or drilling rig assembly industry in Tiruchengode).

The social dimensions of small towns’ economies

To answer this question, the project has also been concerned with understanding the kind of capital (human, land, social networks, etc.) that actors mobilise. It has observed small towns as sites of social changes and not looked at these spaces as frozen in time or as places of entrenchment of parochial societies. On the contrary, many case studies underscore the dynamism and the innovation taking place in some of these small towns, an innovation based on the harnessing of transnational networks (as in the case of the fishing industry in Udipi, in Karnataka), or the embeddedness of symbolic and religious dimensions in handling land and financial capital (as seen in the temple towns of Tamil Nadu). These interrelated dimensions are inscribed in a field of social relations, or historically trade relations. In other words, by paying attention to the multiplicity of interactions and the multiscale shape of networks, this project attempts to reclaim an embedded view of economic and social changes.

Small towns, governance and the politics of classification

Another research theme has dealt with the questions of governance and the politics of urban classification, as to whether it is important or not to have an urban status. This question is particularly acute for Census Towns that are classified as urban by the Census of India but remain rural settlements in terms of governance. Beyond analysing the linked benefits and costs of an urban status, the focus on the governance issue is critical to engage with public policies regarding cities and urban development.

The questions that the Subaltern Urbanisation book has raised and some of the answers it has provided is not only relevant for India but for other global contexts as well. By giving flesh and emphasising the diversity of urban processes, it can open up or contribute to a dialogue with other countries and continents for instance China, Asia and Latin America where the process of in-situ urbanisation is discussed, or even with Europe where interest in the place and the role of small towns has been renewed.

The next piece will discuss the nature and the extent of urbanisation in India and its evolution based on Census data analysis.

This piece has been authored by Marie-Hélène Zérah.

The other piece in the series can be accessed below:

 

Understanding the Curse of Air Pollution

THE FIRST ARTICLE IN A FOUR-PART SERIES ON INDIA’S AIR POLLUTION IN THE HINDUSTAN TIMES
AIR POLLUTION ENVIRONMENTAL JUSTICE

The quality of India’s air needs to be addressed as a pan-India public health emergency. Air pollution was responsible for 12.5% of the total deaths in 2017, as per the most recent iteration of India State Level Burden Assessment. The World Health Organization reports nearly 100,000 deaths in infants to be attributable annually to air pollution in India. But deaths form only a part of the story — there is growing evidence of how it causes illnesses in nearly every organ of our body. It affects the elderly and babies still in their mothers’ wombs – newborns show traces of particulates in their blood stream. It affects all of us.

This article is the first of a four-part series by researchers at the Centre for Policy Research written in collaboration with leading air pollution researchers. We take stock of what we know about air pollution, and what we could do to improve the air quality in India. In this series, we focus on fine particulate matter (or PM2.5), a useful proxy indicator for air pollution. These particles — a complex mixture of solid and liquid particles, originating from different sources and comprising multiple chemical substances — are the most damaging, as they can penetrate the lung barrier and enter the systemic circulation. In this article, we will lay out four foundational facts about when, how much, and where we should worry about air pollution. In short, the answers are: most of the time, a lot, and all over India.

First, air pollution is a near year-round problem, even though we notice pollution much more during periodic spikes especially in winter (see figure). Many parts of India, especially in the Indo-Gangetic belt record poor air quality levels across the year. In 2018 (so far), PM2.5 levels were ‘poor,’ ‘very poor’ or ‘severe’ 56% of the time in Delhi (RK Puram), 49% in Patna and 32% in Kanpur. Conversely, it was ‘good’ for six days in Delhi, one day in Patna and 37 days in Kanpur. While it is understandable that we focus on the visible peaks, adverse health outcomes result primarily to high long-term exposure, not just pollution spikes. To understand the severity of the problem, we have to look at annual average levels of emissions.

 

Second, annual average emission levels in much of India are multiple times safe levels (see figure). Three quarters of India’s population lives in areas where levels of PM 2.5 exceed the Indian national standard of an annual mean of 40 microgram/m3. These norms themselves are four times the far lower levels recommended by the WHO (see figure). Big western cities such as London, New York City and Paris have air quality nearly at these levels, and make the news when some of their neighbourhoods exceed the WHO norms by a few microgram/m3. Our levels are not just somewhat higher but many multiples higher: 72 of 640 districts in India, primarily in Delhi, UP, Bihar, and Punjab, have annual averages 10 times the WHO levels. Even Beijing, infamous for its air pollution, had PM2.5 levels about half of Delhi’s in 2016. We often hear that India suffers from inadequate data and knowledge of air pollution. While India does indeed need much better data and more sensors – much of the data reported here is from satellite data – this uncertainty should not be a reason for inaction, since new monitors will only tell us what multiple above safe standards we are.

Third, air pollution is not just a city or industrial area problem but a regional problem. Satellite data shows that air pollution levels are especially poor across the entire Indo-Gangetic Belt stretching from Punjab and parts of Rajasthan in the west to Bihar in the east. To an extent, this is a curse of geography. Sandwiched between the Himalayas in the north, and the Vindhyas in the south, this belt becomes a virtual valley where outward dispersion is difficult. Thus, while cities contribute to their own air pollution through traffic, industry, and waste burning, they are also affected by emissions from the broader regional ‘airshed’. As a result, rural areas are frequently also polluted. In addition, emissions from cookstoves using solid fuels not only lead to high levels of indoor air pollution, but also account for an estimated quarter to a third of outdoor pollution. India is dealing with both modern sources of pollution such as industries and vehicles, as well as pollution from traditional practices such as cooking with firewood, and we need to tackle both.

Finally, PM2.5 levels have been growing. Across Punjab, pollution levels nearly doubled between 1998 and 2016. It is sobering that India’s air quality is worse than China’s even while its GDP (PPP) per capita is less than half that of China. Clearly, the environmental quality of India’s growth is not sustainable.

Any serious plan to mitigate air pollution has to be long-term in nature, target multiple sources, operate year-round, and focus on regions rather than cities. In subsequent articles, we describe the impact of air pollution on health, explore the different sources of air pollution and conclude with a reflection on an approach to air pollution across India.

Santosh Harish is a Fellow at the Centre for Policy Research. Navroz K Dubash is a Professor at the Centre for Policy Research. 

This article is the first in a four-part series on India’s air pollution. The original article, which was published in the Hindustan Times on December 19, 2018, can be found here. For more information on CPR’s work on air pollution, visit the Clearing the Air? project page

In this Series:

Understanding the curse of air pollution (1/4)

Public Health in India a Casualty of Air Pollution (2/4)

Delhi Has a Complex Air Pollution Problem (3/4)

Air pollution: India’s waking up, but there’s a long way to go (4/4)

Understanding the Emergence of India’s Census Town: A Policy Research Working Paper

CO-AUTHORED BY PARTHA MUKHOPADHYAY AND MARIE-HÉLÈNE ZÉRAH
URBAN GOVERNANCE

This policy research working paper presents the results of an investigation of selected census towns in northern India. Census towns are settlements that India’s census classifies as urban although they continue to be governed as rural settlements. The 2011 census featured a remarkable increase in the number of census towns, which nearly tripled between 2001 and 2011, from 1,362 to 3,894. This increase contributed to nearly a third (29.5 percent) of the total increase in the urban population during this period.

Only part of this evolution can be attributed to the gradual urbanisation of settlements in the vicinity of larger towns. Instead, the majority of census towns appear as small ‘market towns,’ providing trade and other local services to a growing rural market. The case studies of representative census towns in Bihar, Jharkhand, Orissa, and West Bengal show the role of increased connectivity and growing rural incomes in driving the demand for the small-scale and non-tradable services, which are the main sources of non-farm employment in these settlements.

The case studies also reveal that the trade-offs between urban and rural administrative statuses are actively debated in many of these settlements. Although statistical comparisons do not show a significant impact of urban or rural administrative status on access to basic services, urban status is often favored by the social groups involved in the growing commercial and services sectors, and resisted by the residents still involved in the traditional farming sectors.

The full policy research working paper can be accessed here.