A JOURNAL ON COMMUNICATION FOR DEVELOPMENT The Consumer Awakening
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A JOURNAL ON COMMUNICATION FOR DEVELOPMENT
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A JOURNAL ON COMMUNICATION FOR DEVELOPMENT
The Consumer Awakening
DttPAH
SILK inTCGHATlOnAL
Cinderella and Her
Sisters
M Corinne Scott elaborates on
the glaring disparities between
the elite and the majority of
India's women.
Consumer Protection
Act
K S Krishnaswamy examines the
Act's power to deliver the
minimum needs of the poor.
An Unhealthy
Scenario
Mathew N M looks at
healthcare and medical services
for the Indian consumer.
VOICES, Vol 11 No. 3 1994
How are consumer
rights defined?
The right to satisfaction of basic needs - To have access to basic, essential goods
and service: adequate food, clothing, shelter, health care, education and sanitation.
The right to safety - To be protected against products, production processes and
services which are hazardous to health or life.
The right to be informed - To be given the facts needed to make an informed
choice, and to be protected against dishonest or misleading advertising and
labelling.
The right to choose - To be able to select from a range of products and services,
offered at competitive prices with an assurance of satisfactory quality.
The right to be heard - To have consumer interests represented in the making
and execution of government policy, and in the development of products and
services.
The right to redress - To receive a fair settlement of just claims, incuding
compensation for misrepresentation, shoddy goods or unsatisfactory services.
The right to consumer education - To acquire knowledge and skills needed to
make informed, confident choices about goods and services, while being aware
of basic consumer rights and responsibilities and how to act on them.
The right to a healthy environment - To live and work in an environment which
is non-threatening to the well-being of present and future generations.
International Organisation of Consumers Unions, Information Kit,1994.
MflDHVflM
COMMUNICATIONS
VOICES
VOICES
Vol II No. 3 1994
For private circulation only
Published by
A Tale of Two Worlds
Kalpana Shanna
4
MADHYAM COMMUNICATIONS
Consumer Rights and Minimum Human Needs
K S Krishnaswaniy
6
Post Box 4610, 59 Miller Road
Who is a Consumer: Examining the Term
Kalpana Jaishankar
9
Benson Town
Bangalore 560046, India
What's in Store for the Indian Consumer.
Global Trends
Srinivas Sirnoorkar
12
Fax : 5546564, 569261
Blocks in the Channels:
the Public Distribution System
Kavita M
15
Editorial Consultant
An Unhealthy Scenario: Medical Services
Mathew N M
18
Ajnmu Joseph
New Moves: The Indian Drug Scene
Anil Pilgaokar
22
Editorial Team
The Water We Drink: How Safe is it?
Anjana Das
25
Sucharita S Eashwar
Cheryl A Rebello
What's Happened to Cinderella and her Sisters?
Consumerist Culture and Women
M Corinne Scott
27
Manisha S Wazarkar
We Pay to Learn: Consumers of Educational Services
Srinivas Narayanswami
31
Pro-Consumer Contracts? Insurance Policies
Neelani Alwin George
32
A Growing Consumerist Culture:
What Does it Cost our Children ?
Meher Marfatia
35
A World of Make Believe: Advertising
Ajit Mani
37
Checks and Balances: Making the Transportation
System Accountable
Rohini Nilekani
41
Time to Press Further
Y G Murlidharan
42
Acknowledgements
Times of India, Bangalore,
for cartoon by Ponnappa reproduced
on page 28.
Deccan Herald, Bangalore,
for photographs appearing on pages
16, 19, 39 and 48.
VOICES Contribution
Rs. 75 per annum (3 issues) in India
USS 18 per annum (3 issues) overseas
You are welcome to reproduce/translate any of the material in this journal.
Please credit us appropriately and send
us a copy of the reproduced material for
our information.
Change in the Ain All India Radio
A S Chandra Mouli
43
They Promise you the Stars
C K Meena
44
Organised Citizen Response: The Consumer
Movement in India
Vasanth Kumar Parigi
45
The views expressed in the articles are those of the authors and not necessarily of the
publishers.
VOICES, Vol II No. 3 1994
FOREWORD
The consumer movement is gaining momentum but the
question is : where and among whom? The Consumer Protection
Act (COPRA, 1986) has been in existence for eight years but the
common perception is that it is a "five star act," that it serves the
few who are aware of it and, further, have access to consumer
goods. Consumer protection has meant little or nothing to the
majority who form the middle and low income groups. The law
and the movement need to realise their potential to promote and
protect the rights of every consumer, without exception. Among
the most important of these is the fulfilment of basic needs like
food, water, clothing, shelter, san
itation, health care and education.
With liberalisation opening the
doors of the nation to the world
market, heightened competition
among manufacturers and service
providers and the increasingly con
sumerist culture adopted by local
elites, it is necessary to review the
government's policies from the
viewpoint of the average consum
er. Is the government committed
to ensuring that the needs of all are
met and that public services - such
as water supply and sanitation,
power, transportation, posts and
telecommunications, health care
and education - are provided in an
efficient and affordable manner to
all citizens of the country?
Today, an increasing number
of people are in the grip of a
consuming desire to acquire more
and more of the attractive con
sumer goods and durables avail
able in the market. However, a
section of those grappling with
these market pulls are concerned
to find ways to contend with the
consumerist trends willy-nilly
overtaking their lifestyles, affect
ing moral values and ethics, as
well as the buying priorities, atti
tudes and behaviour, particularly
of adolescents and children.
Ordinary people are understandably apprehensive that the
government, while "opening up the economy" and formulating
market-oriented policies, which will benefit the haves, might
neglect its primary responsibilities towards the have-nots. If
market forces are allowed to reign supreme, there is a real danger
of market abuses - price wars, cartels, unfair competition, and so
on - which can adversely affect the average consumer and
accentuate social and economic inequalities and injustices.
The problem is compounded by the fact that the existing
consumer protection legislation is fraught with loopholes which
2
undermine its implementability. COPRA is supposed to be an
enabling mechanism and must be recognised as a positive attempt
to strengthen the consumer movement in the country. However,
one has to address the question of whether it fulfils its purpose.
The Act is meant to make public and private enterprises more
accountable to customers and to ensure a better quality of life for
every consumer. But does it indeed take into account the needs of
all citizens, including the silent majority, made up of the socially
and economically disadvantaged?
Policy-makers, planners and consumer activists, however, are
of the view that COPRA may not,
indeed, be the answer to questions
related to the fulfilment of basic needs
and better quality of life, but that it is
nonetheless, an invaluable instrument
that must be used to its fullest poten
tial.
It is with these concerns in mind
that we at Madhyam Communica
tions have decided to focus attention
on various facets of consumer rights
and protection. We think it crucial to
redefine the "consumer". We also
need to review legislation relating to
consumer rights and protection on
consumer disputes/redressal etc, and
to examine the impact this and other
interrelated legal mechanisms have
on the lives of common people, espe
cially the marginalised sections of
our society.
Through this edition we hope,
fi rst of all, to clarify the often misused
and misunderstood word - "consum
erism", which could mean either "the
theory that an increasing consump
tion of goods is economically desir
able" or "the promotion of the con
sumer's interests". In the Indian
context it is apparent that the former
definition fits. We have tried to
broaden the definition of consumer
rights and to review the nature and
growth of the consumer protection
movement in India. We have also
attempted to examine the role of the state and the media in
promoting and protecting the rights of all consumers and to
highlight certain neglected areas where consumer protection is
urgently required. We hope that this edition of VOICES will play
a part in furthering the cause of consumers in India and provide
some food for thought for those involved in the consumer
movement and, indeed, all citizen consumers, individually and
Collectively.
Editors
VOICES, Vol II No. 3 1994
READERS’ VOICES
•
The VOICES edition on "Family Ties : Bond or Bondage" has covered many
relevant aspects that impact and shape our family life. We as a culture have always been
proud of our sense of family values, and quickly point to the west as an example of
erosion of family bonds. But, a family doesn't mean just a physical entity that is forced
to be so because of economic or other compulsions.
We have to be able to understand the family as a social and psychological microcosm.
As long as families are run on domination, power plays, unequal control of money and
information, the words "family values" mean nothing.
The only way a family can stay together in a healthy manner, is when the bottomline
is defined by love and mutual respect; otherwise we will forever remain as families
where grandparents become unpaid servants, daughters-in-law are burnt to death,
children get beaten into discipline and siblings kill one another over property.
Mallikarjun Konduri, Ideaquest, Bangalore
•
Your journal, VOICES, Vol II No.2 made fruitful reading. The root question
"Family Ties - Bond or Bondage", indeed, set me thinking, and one almost instinctively
began to look for answers through the articles.
Some of the areas covered in this edition could have been dealt with in greater detail,
for instance, the media portrayal of families. I particularly liked the sections "These are
Families Too" and " When the Family Hurts".
I hope VOICES will, in future, focus on many such areas of concern, and stimulate
critical thinking on subjects one often takes as givens.
Kavitha N, Chinmaya Yuva Kendra, Bangalore
•
I am halfway through the latest issue of VOICES. It's extremely impressive.
There's something marvelous about the selection of articles, commissioned or otherwise.
It should give the initiated but intelligent reader the full range of the alternative
perspectives, and all its facets. Brilliant of all such journals I have seen so far, VOICES
alone has a kind of profound thematic coherence that is both intellectually and
emotionally satisfying. Congratulations to you and to your team. "Quality is never an
accident, it is the result of intelligent effort," as the menu at Koshy's has been saying for
years.
N Kalyan Raman, Scientist, ISRO, Ahmedabad
The letters column is a regular feature in VOICES. We welcome
letters (preferably typewritten) on your responses, ideas and
suggestions.
3
A Tale of Two Worlds
Kalpana Shanna
Consumerism as we see it in India today,
reflects the theory that 'an increasing
consumption of goods is economically
desirable', says KALPANA SHARMA.
This has only served to sharpen the di
vide between the 'haves' and the 'havenots' and not to an improvement in the
quality of life.
atch this commercial close
ly. A typically "modem"
couple, the man wearing a
suit and the woman some
form of western attire, are encircled by
"savages" (read tribals of some unconfirmed variety wearing war
paint) who kidnap the woman. She is forced to go through a
"primitive" ritual, resembling a wedding ceremony. Eventually
her "civilised" partner rescues her, but as she leaves she drops a
red scarf. The story, however, does not end there. Just as they are
about to fade into the sunset, a spear - with the woman's red scarf
- lands in front of them, bringing a nostalgic smile to her face. Even
"savages", apparently, can be noble!
The commercial described above is not just an advertisement
for a particular brand of fabric. In fact, it is a grossly exaggerated
depiction of the two worlds in India, one inhabited by the
growing urban middle class representing a vast "market" for
consumer products and another where life remains "primitive"
with people denied some of the basic amenities of life.
W
Changing consumption patterns
The Webster's dictionary has two different meanings for the word
"consumerism"; "the theory that an increasing consumption of
goods is economically desirable" or "the promotion of the
consumer's interests". The consumerism we see in India today is
closer to the first definition than the second, consumer protection
laws notwithstanding.
Nevertheless, few middle class Indians complain about the
consumer society that is well and truly upon us. Why should
they? They can now eat Kellog's cornflakes for breakfast, wear the
latest international brand names as they drive to work in a car
built with foreign collaboration. In office, the world is at their
doorstep with the very latest in communication technology. And
in the evening, they can settle down to a drink of the best whisky
and vodka as they imbibe a big dose of "global culture" from their
multi-channel television. What more could a person want?
The marketing techniques used to sell a variety of consumer
products recommend certain values and lifestyles. Even if all
4
those who watch these commercials cannot
afford the actual products, be they con
sumer durables or food products, they
imbibe the message of the seller and aspire,
directly or indirectly, to imitate.
Thus, even if a particular soft drink
being sold is out of reach, people will drink
a cheaper imitation rather than staying
with the home-made variety that had sat
isfied generations. Similarly, if cornflakes
are projected as the wonder health food,
people will feel compelled to eat the prod
uct or its equivalent, forgetting that tradi
tional Indian breakfasts are far more nutri
tive and would probably have won the full
endorsement of the creator of Kellog's cornflakes, who was a heal th
fanatic!
Another strong message in most commercials for consumer
products is the importance of individual gratification. This glori
fication and reification of the individual necessarily undermines
commitment to community or society.
But what meaning does all this have for the long-term prosper
ity and stability of Indian society? Can any society hope to survive
on the prosperity of a few and the misery of the many?
Lagging pace
Apart from consumer products, available now in abundance
compared to a decade ago, competition is supposed to herald the
way to better services. Yet, in several areas this premise is not
supported by facts.
Take the area of health, for instance. Private care has dominated
health care in India for decades. Over 70 per cent of all curative
services are located in the private sector. There is plenty of
competition and choice there.
The public health structure is engaged largely in preventive
work and in implementing a variety of centrally-funded health care
programmes. Curative services form a relatively smaller part of the
health package offered by the government.
While there is some level of accountability in public facilities
there is practically none in the private sector. As a result, poor
patients are often victims of the grossest forms of malpractice including over-prescription, useless surgeries and excessive and
pointless investigative procedures which add to the costs. Nothing
could illustrate better the lack of the spirit of service in the private
sector in health than the way over 500 private doctors fled Surat as
soon as an epidemic of pneumonic plague was declared in the city
in late 4th September 1994.
The expansion in health services in the last decade has taken
place largely in the private sector. But here, too, the increase has
VOICES, Vol II No. 3 1994
been in highly sophisticated "five star"
facilities, catering to the elite in cities. In
itself, there is nothing objectionable about
this as the people using these facilities arre
willing to pay. Yet, the expansion of spe
cialist facilities has coincided with a decline
in the health care for the poor. It has also
contributed to the perception that high cost
and high tech medical care are synony
mous with better quality care. Thus, even
if fairly reasonable care is available in
public health facili ties, the poor are turning
to private care and paying out rupees they
can ill afford to squander.
Private sector values
Numerous studies have shown the debili
tating impact of such values on the health
and the pocketbooks of the poor. A visit to
a primary health clinic barely two hours
away from Bombay revealed precisely this.
According to the doctor at the Primary
Health Centre (PHC) in Apta village of Pen
district, people are no longer satisfied with
just an "injection", which they believe will
miraculously cure all ailments. Today, peo
ple demand a "cocktail", an injection that
combines a multivitamin, an antibiotic, a
steroid, an anti-histamine and a painkiller.
Patients are willing to pay a fairly high
price for this "magical" remedy, which
under any standards would be considered
a dangerous combination.
Another injection in great demand is
the "strength-giving" injection, or a saline
drip. The private doctor argues that he is
merely fulfilling a demand. Yet, it is the
values spread by the private sector, where
only expensive treatment is considered
effective, that force poor people to turn to
such health care. In terms of percentage of
income spent, it is they who bear the
greatest b urden for such an expensive health
care system without getting any of the
benefits of the really effective technological
interventions. The latter are completely
outside their reach.
Another area where the dichotomy be
tween private and public is evident is in
transport. While the capacity of many more
individuals to own their personal mode of
transport has grown greatly in the last five
years, there has been a noticeable decline in
the public transport system. This is percep
tible in most metropolitan cities including
Bombay which, until recently, boasted of a
fairly efficient public transport system.
The explosion in privately-owned vehi
cles is a direct outcome of the growth of
finance companies vying with each other
to provide easy schemes for purchasing
vehicles. But even as private car owners
proliferate, the road tax structure remains
unchanged and city authorities lack the
funds to improve the infrastructure to deal
with this growing load.
Clearly, existing roads cannot bear this
additional load as is evident in practically
all metropolitan cities. Bombay, for in
stance, has the lowest per capita roads in
the country but the number of cars has
increased rapidly in the last two years.
Without the resources to invest in a more
efficient network of roads, it is suicidal to
allow vehicular traffic to grow unchecked.
But such calculations apparently have not
entered the minds of our policy-makers.
But what meaning does all
this have for the long-term
prosperity and stability of
Indian society? Can any
society hope to survive on the
prosperity of a few and the
misery of the many?
At the same time, lack of timely invest
ment and expansion of public transport
facilities, such as rail services, has led to
commuter anger erupting in violence as
witnessed recently in Bombay. The result
ant disruption only adds to the growing
belief that public transport is unreliable
and private transport unavoidable.
Need and greed
Oddly, while consumer goodies such as
cars and two-wheelers are supposed to
improve our quality of life, the values that
underlie such consumption are already
contributing directly to a decline in the
quality of life. Take just the quality of the
air we breathe in most cities. Thanks to the
proliferation of automobiles, even the rich
cannot avoid breathing in noxious fumes
when several decades ago only the work
ing classes lived in areas where chimneys
spewed out poisonous releases.
Gandhi said "enough for your need
but not for your greed." In India, consum
erism has certainly brought to the fore a
greed - based society, far removed from
Gandhi's ideal. Satisfying needs has been
redefined as satisfying every whim. The
dozens of buy-now-pay-later schemes,
plus the plethora of credit cards available
even to the salaried classes, makes heaven,
in the form of a car, a television, a video,
a fridge etc, within the reach of many more
people.
The advertising messages are implicit
and explicit. The individual is the centre of
this new world being forged. Community,
society come second. If the family counts,
it is the nuclear family of perfectly formed
men and women with faultless children.
Such people don't exist in the real world.
Yet the world of advertising, selling con
sumer products, projects these images ev
ery day through every medium available.
Within this celluloid world, the poor,
the handicapped, the deprived, the minor
ities have little space. They appear as nov
elties, as oddities, as amusements. A soci
ety's perception of and tolerance towards
those considered the "other" rests greatly
on the way these groups are projected. The
media can, very easily, reinforce deepseated prejudices, directly or indirectly. By
setting up a norm, you automatically ex
clude entire groups of people.
Rejecting reality
With the growth of consumerism there will
be greater intolerance - of those who can
not be successful, who cannot look like the
models on the silver screen, who cannot
speak in a particular way, who cannot
afford to eat or drink particular types of
products, in other words those who cannot
make it in the brave new world where the
consumer is king or queen.
The media can, very easily,
reinforce deep-seated
prejudices, directly or
indirectly. By setting up a
norm, you automatically
exclude entire groups of people.
The problem with the consumerist so
ciety and the values it propogates is that it
creates an unreal world which only a small
percentage of people inhabit. The vast
majority are given no choice but to peep
into this world from the outside while
continuing to live lives that bear no resem
blance to this fantasy world.
In unequal societies like ours, this bub
ble, created by consumerism, will be forced
to burst once the pressure from the de
prived majority reaches explosion point.
For, given the iniquitous distribution and
control of resources, there is little chance of
the poor woman, or the tribal, ever getting
a piece of this particular consumerist pie.
■
Kalpana Shanna is an Assistant Editor
with The Hindu, based in Bombay. She
writes on environment and development
issues. She has recently co-edited a book
with Ammu Joseph, "Whose Netos? The
Media and Women’s Issues" published by
Sage publications.
5
Consumer Rights and Minimum
Human Needs
K S Krishnaswamy
The Consumer Protection Act per se is not
the answer to the fulfilment of minimum
human needs says Dr. K S KRISHNASVVAMY. Alternative mechanisms and
watchdog bodies to safeguard consumer
interests is the need of the hour
hen you grouse against ir
W
regular supplies or poor
quality of goods distribut
ed toration card holders in
fair price shops, you are often told: "Why
don't you lodge a complaint under tne
Consumer Protection Act (COPRA)? Y>. ur
government has promised to provide your minimum needs of
food articles atsubsidised prices, hasn't ■ ?" Relevant questions,
indeed; but what is the reality? Does COPRA ensure for the
consumer a right to claim his minimum needs?
Unfortunately, it does not, for two main reasons. Firstly, with
the Government of India's "new economic policy'' centering
around marketisation, privatisation and globalisation, it is no
longer certain that either the central government or state govern
ments are committed to a minimum needs programme - that is,
an undertaking to provide the mass of the people their minimum
requirement of essential food articles, education and health
services, housing, potable water or domestic fuel. True enough,
we still have a "public distribution system" and frequent state
ments from the Prime Minister downwards that a prime objective
of economic development is the provision of a decent standard of
consumption for everybody in the country. But the government's
actual policies do not confirm this.
Lack of commitment
Indeed, it is doubtful if even during the earlier decades of
planning there was any such firm commitment. Plans were, of
course, built around the concept of "minimum needs". But in the
actual implementation of development programmes, this was
transformed to selling through the public distribution system
(PDS) a part of the available supply of rice, wheat, sugar, edible
oils and kerosene at subsidised prices. Since most of the PDS was
in urban or industrial centres the benefit rarely accrued to the
poor and disadvantaged in rural areas. Even in the ration or fair
price shops, there were no fixed amounts to be supplied month
after month. The quantities varied frequently and so did the
prices. In commercial terms, there was nothing equivalent to a
contract between the governments and the ration card holders,
6
which was enforceable in a court of law.
Minimum needs vs. market
This is not the problem that COPRA ad
dresses - and this is the second reason why
it is irrelevant to the issue of minimum
needs. COPRA seeks to resolve certain
"market" problems which are faced mainly
by the more affluent consumers - the buy
ers of what are commonly called U-sector
goods and services. The policy of
liberalisation and globalisation of the
economy, thatbegan around the mid-1980s
and took a quantum jump after the
Narasimha Rao government assumed office in May 1991, has led to
a rapid increase in the size and spread of the market for consumer
durables of all kinds, luxury and semi-luxury goods, private medical
services and educational enterprises etc. There is an explosion of
aggressive advertising and marketing campaigns, exaggerating the
good and suppressing the bad aspects of products sold - resulting in
the exploitation of credible consumers. It is in this context that
COPRA becomes relevant.
COPRA'S principal objective of providing better protection of
consumer interests originally covered only the following "consumer
rights"
* the right to be informed about the quality, quantity, potency,
purity, standard and price of goods sold;
* assured access to a variety of goods at competitive prices;
* the right to be heard and assured that their interests will be
given due consideration in dispute settlement agencies; and
* the right to be provided consumer education.
In the original Act (1986) these rights could be claimed by the
consumer on an individual basis, and hence applied in reality only to
specific transactions between a buyer and a seller. However, the
scope of the Act was extended in 1993 through an amendment which
provides for the filing of "class action complaints" by groups of
consumers having a common interest. Such complaints can also be
filed "on behalf" of such groups by some of the consumers.
On a superficial view, it appears as if the government being aware
of the possibility of exploitation of ignorant or innocent consumers by
unscrupulous traders in a chronically shortage economy, has provid
ed them with a legal means of redressal. But there are several snags.
Questions of applicability
As mentioned earlier, for any redressal under COPRA, the sale of a
good has to be accompanied by specific warranties about quality,
amount, standard etc. When any of these assurances is not fully met
VOICES, Vol II No. 3 1994
by the seller, the buyer can claim compen
sation either by way of return of money
paid or replacement of article or recom
pense for damage suffered. Obviously there
would be warranties or similar assurances
in the case of durable consumer goods like
TVs or washing machines and packaged
goods subjected to marking of price and
description of contents. But what of the
basic consumer goods such as foodgrains,
vegetable oils, sugar etc sold by the public
distribution system or the grocers and ven
dors in moffusil areas?
ity, road transport and public distribution
system. In principle, there is room here for
raising a dispute under COPRA by an indi
vidual or through a class action petition.
But whether such disputes will prevail be
fore a dispute settlemen t agency remains to
be proven. Chances are slim because in the
case of these utilities, the selling agency
undertakes no firm obligations regarding
the quantity or the quality of the service
sold.
On a superficial view, it
appears as if the government
being aware of the possibility
of exploitation of ignorant or
innocent consumers by
unscrupulous traders in a
chronically shortage economy,
has provided them with a legal
means of redressal.
COPRA's scope is, in other words, limited
by the persistent dualism in India's econo
my, the long-standing rural-urban divide,
accentuated further by technological and
income differences that have grown with
liberalisation. The affluent urban classes
have now been joined by the better-off ag
riculturists in enlarging the market for highpriced consumer goods of all kinds, sold
through super-bazaars, department stores
or specialised market agencies under condi
tions which enable the consumer to make
full use of COPRA. But for the millions of
low-income earners in the urban and rural
areas, who are still dependent on the tradi
tional grocers or thestreet hawkers - or even
the "fair price shops" - redress against un
fair trade practices still remains a far cry.
These inadequacies of COPRA for ad
dressing the issue of minimum needs care
are compounded by the arduous proce
dures involved for the consumer seeking
redressal against an unfair or exploitative
transaction.
Many of these articles are bought in
loose form and in small quantities, often
without any public display of their quality
and price. Quite frequently, the scales and
measures used are notof the approved type.
Consumers of these articles include the ur
ban and the rural poor, who have neither a
good knowledge of the varieties of such
articles nor access to competitive sellers in
the same locality. It is again in this context
that questions about the nature of protec
tion offered by COPRA arise.
Like all legislative measures, COPRA
has defined each of the terms involved consumer, trader, unfair trade practice, de
fect, bargaining price, consumer dispute.
These terms have been further interpreted
in the decisions of Dispute Settlement Agen
cies or civil courts, with the consequence
that several types of goods or services are
excluded from thepurviewofCOPRA. Thus
while a patient in a private nursing home is
a consumer - and hence can seek redress in
case of negligence or mistreatment - a per
son obtaining medical treatment in a gov
ernment hospital is not a "consumer": like
wise, though the maintenance of roads and
highways is a "service", the road-users can
not be viewed as having "hired" this ser
vice. The argument apparently is that in
these services of common use, no "individ
ual sale" is involved.
This does not however rule out the ap
plicability of COPRA to the government
sector as such. The condition of "individual
sale" is clearly satisfied in respect of public
services like the supply of water or electric
Dual economy implications
These inadequacies of COPRA
for addressing the issue of
minimum needs care are
compounded by the arduous
procedures involved for the
consumer seeking redressal
against an unfair or
exploitative transaction.
The machinery set up for ensuring the
consumer's rights under COPRA consist of
(i) Consumer Protection Councils at state
and national levels and (ii) quasi-judicial
Dispu te Settlement Agencies at district, sta te
and national levels. The former of these, viz.
the consumer councils are basically consul
tative bodies, concerned with policy or broad
administrative questions. They consist of
the Minister concerned with consumer af
fairs as chairperson and a number of offi
cials and non-officials representing con
sumer interests. Naturally these councils
remain, by and large, urban institutions
representing the U-sector. It is the Dispute
Settlement Agencies which constitute the
operative wing.
The base institutions for dispute settle
ment are the district fora, generally restrict
ed to one per district. Each district forum
has to be presided by "a person who is, or
has been or is qualified to be a district
judge". Such persons are not too plentiful
in the countryside except at district head
quarters. In consequence, rural consumers
have to travel to district headquarters, to
file a complaint or fight out a case!
Procedural delays
Since the district forum is deemed to be a
quasi-judicial body, its procedures are long
drawn-out, like those of any other civil
court. On receipt of a complaint by or on
behalf of the consumer, the Forum has to
refer it to the "opposite party". When the
opposite party denies or disputes the alle
gation, the Forum has to have a sample of
the commodity in question tested by an
accredited laboratory and obtain a report.
In such cases, the complainant has to de
posit with the Forum any fees that have to
be paid for testing. Any objections that
either of the disputants have to such a
report have to be submitted to the forum in
writing after which the Forum will hear the
arguments from both parties and give its
decision. This decision can, as usual, be
appealed against by either of the parties
before the State Commission, and then the
National Commission.
Given this elaborate procedure, it is not
easy or inexpensive even for an individual
in the urban centres who has been unfairly
treated to take on an established manufac
turer of consumer articles who disputes the
claim. Since the seller's reputation is in
volved, chances are that every loophole in
the Act will be utilised to avoid recompense,
even if the dispute has to be moved succes
sively to theStateCommission, the National
Commission and theSupremeCourt. Above
all, few consumers will have the stamina to
wait that long or incur those expenses.
Alternative mechanisms
Experience in other countries has shown
that despite all talk about "consumer's sov
ereignty'" in a free market, consumers' tastes
and attitudes are cleverly manipulated by'
high-pressure advertising and aggressive
salesmanship. In these circumstances, con
sumer protection is sought not merely
through means such as COPRA but in many
other ways as well. Major steps in this
regard include the development of regula
7
VOICES, Vol 11 No. 3 1994
tions or codes of conduct for producers to
adhere to specified standards of purity or
quality; truth in advertisements; dissemi
nation of information abou t prices and sub
stitutes; and formation of strong, non-govemmental consumer associations or fora to
act as watchdog orcontesting bodies. In the
United States, for instance, the consumer
movement launched by Ralph Nader in the
1950s has now developed into a powerful
institution, constantly providing accurate
information on the relative merits of com
peting products, and launching national
campaigns against trading malpractices.
With the Government of India's policy
of privatisation and liberalisation, the role
of "government" as a supplier and seller of
goods is getting drastically reduced, and
that of domestic and transnational private
corporations growing. But there are still
several vital areas of consumption in which
the government remains an important, if
not the main, supplier. Chances are that
with the advent of new governments in
Karnataka and Andhra Pradesh which are
overtly "pro-poor", other states will also
follow suit, even if it be as a political ploy.
That apart, we now have an increasingly
competitive market for the U-sector goods,
and a very substantial area of essential con
sumer goods in which the traditional gro
cers and government owned or sponsored
outlets constitute the supply side. In both
these sectors, the consumers are weak in
relation to the sellers; and they need all the
means that can be legitimately used to in
crease their bargaining advantage.
On matters of truth in advertising and
quality improvement at the production lev
el, there are some sticks and some carrots
which the central and state governments
have already utilised. Some of these are
legal, and some only advisory. But it is only
theobservance of an ethicby the advertisers
and the manufacturers that can effectively
prevent the sale of sub-standard goods or
the recourse to misleading sales drives.
Chambers of Commerce or Confederations
of Industry can also help in providing rela
tively inexpensive testing facilities, and
widespread dissemination of trading infor
mation. India's private sector has yet to
develop these devices, as also a sense of
social obligation. The hope of policy-mak
ers is that competition from the transnational
corporations in the Indian market for con
sumer goods will hasten such a change in
the attitude of producers and traders. But
what guarantee is there when the
transnational corporations themselves hope
to benefit from the relative ignorance of the
Indian consumer about the goods they buy?
However, the urban buyer is waking up
8
to the advantages of forming consumer
associations of their own and seeking to
build their bargaining advantage. The rise
of COPRA has so far been used by such
individualsand consumer associations, who
are alive to the possibility of both the legal
means of COPRA, and theextra legal means
of political influence to secure their rights as
consumers, vis-a-vis private traders and cor
porations.
But where a government agency or un
dertaking is concerned, their successes have
been few and far between. A potent reason
for this is the extremely lengthy process of
obtaining redress under COPRA, even when
there is the clear basis of an individual sale
transaction. The position is far more diffi
cult where class action is required.
Further need
As regards minimum needs much more
than the simplification of COPRA proce
dures is required. Admittedly, if there is no
firm commitment on the part of government
tosupply theessential requirements of basic
consumer goods, no grounds for legal ac
tion on grounds of non-fulfilment of a busi
ness "contract" exists. It is also unlikely that
COPRA will be - or indeed can be altered so
as to make the election "promise" of a party
in power equivalent to a government un
dertaking in the legal sense.
The public distribution system, for in
stance, is viewed as an aid to the satisfaction
of minimum needs, rather than a guarantee.
It is a trading outlet, which can distribute
only what the government is able to pro
cure. Articles such as foodgrains, sugar or
edible oils being inelastic in supply - except
when a country has large foreign exchange
resources and world supplies are plentiful no government can take on a firm commit
ment on the quantity or quality of supplies
they can provide throughout the year. Con
sequently, the public distribution system
generally covers only limited areas or spec
ified sections of the community, and re
mains an adjunct to the large number of
private retailers in the country. The areas or
sections to be covered are principally polit
ical decisions, which are apparently not jus
ticiable.
Complaints against the PDS cannot,
therefore, be on grounds of insufficiency of
quantities distributed. However, it is well
known that ration or fair price shops often
deny the consumers even the limited quan
tities that may be announced from month to
month, goods supplied are also frequently
unsuitable for human - or even animal consumption. The poorer of the clientele is
usually discriminated against, when the
vendors sell part of the supplies allotted to
them in the black market. These are matters
which ought to lie within the scope of class
action complaints by, or on behalf of, the
ration card holders. Over and above all
these, it is necessary that when political
parties renege on the promise they may
have made while securing votes at election
time, it should be possible for consumer
associations to prefer "public interest" com
plaints before the dispute settlement agen
cies. Such a facility would also be useful in
obtaining better service from government
or private utilities providing "services".
Creating awareness
Rural consumers who are in the most need
of such protection are unfortunately not
organised to engage in such dispute settle
ment. There is therefore great urgency for
creating an awareness of their rights
amongst such consumers, especially the
women in rural areas who have the respon
sibility of running their households. Be
sides providing consumer education and
regular information on prices, supply situ
ation, available substitutes, through radio
and TV, both government and non-government organisations - including those of
producers and traders - have to strive hard
to set up consumer organisations in the
rural sector and among low-income groups.
Sadly all this seems a long way off at present!
When all is said and done about con
sumer organisations, legal structures and
so forth, a basic need remains. Consumers
will remain weak and unorganised so long
as they lack employment, incomes, educa
tion and a faith in their combined strength.
In other words, so long as economic devel
opment is such that a large section of the
population is left below the "poverty line"
(defined in terms of minimum needs), pro
tection of the "rights" of consumers will be
limited to the literate and affluent classes;
or to those who, like industrial labour, are
well organised. We need a rapid growth of
the gross domestic product; bu t this growth
has also to be such that there is more em
ployment and greater equity in its distribu
tion. A trend in this direction, encompass
ing among other things universal educa
tion and free access to market information
constitute the foundation on which the
rights of all consumers to minimum needs
can hopefully be established. Mere amend
ments of COPRA however ingenuous will
not suffice.
■
Dr. K S Krishnaswamy, former Deputy
Governor, Reserve Bank of India is with
the Institutefor Social Studies Trust. He is
concerned with development problems
related to the poor, zoomen and deprived
classes.
Who is a Consumer?
Examining the Term
Kalpana Jaishanker
The term "consumer" has come to acquire
new significance with the growth of the
consumer movement in India. Its scope
and definition have been extended, ac
cording to KALPANA JAISHANKER.
he word "consumer" is selfexplanatory, but ramifications
of what it actually means needs
exploration and
calls upon the human mind to think well
beyond the narrow confines of the word
itself. Each and every person on this earth
is a consumer in one way or the other.
In the Indian context, I see the word
consumer as being synonymous with the word "citizen", and
this then automatically leads on to various rights a consumer has
as a citizen. Undoubtedly, an aware citizen is a prerequisite to
a successful democracy.
T
Increasing reach
The consumer movement today is at a stage where to a certain
extent awareness of consumer rights have managed to permeate
to the educated middle class and the elite class of society. People
involved in the movement have a herculean task before them in
trying to develop methods and means by which awareness on
consumer protection can be spread to the lower middle class and
the rural population.
On the one hand while something as basic as spreading
awareness goes on, on the other hand the champions of the
movement are also engaged in lobbying and advocating with the
government to effect consumer-friendly legislations.
Scope of consumer legislation
The Consumer Protection Act, 1986 (as amended 1993), has been
in existence for eight years but the perception that it is a "Five
Star Act", serving only the few who are aware of it and have
access to consumer goods, needs to be dispelled. It is true, that
while only if one knows of the existence of this legislation can
one use it, it is wrong to believe that the Act is applicable only
in the context of consumer goods. In the Act a complainant is
defined as a person who pays for goods purchased or for services
availed.
Consumers of services provided by the government as a
result of taxes collected are not complainants under the CPA.
Consumer organisations are fighting a long-standing battle
against the non-inclusion of consumers of such services as
complainants under the CP Act. It is an
undeniable fact that public services are
paid for by all citizens in the country in the
form of taxes and there is no way in which
it can be argued that they are provided
"free of charge".
Numerous consumers having the same
complaint and the same interest can com
plain as a group to the consumer court (this
is basically seen as a class-action com
plaint). Voluntary consumer organisations
can also complain on behalf of consumers
before consumer fora. The inclusion of this
provision has been specifically made be
cause the beneficiaries of such a social
legislation generally belong to the weaker
sections of society who might find it difficult to make use of the legal
processes.
It is also interesting to note that the state and central governments
as guardians of public interest can file complaints before consumer
courts.
There are also several cases which were filed before consumer
courts against the government. Two examples of the same are given
below.
Consumer Unity and Trust Society vs. Union of
India
Several persons were severely disabled due to consumption of
adulterated rape seed oil. The injured filed a complaint. The defence
taken by the government was that a scheme for rehabilitation and
treatment was being implemented in this regard. The commission
held that the implementation of such a scheme would not debar the
complainants from pursuing other remedies under the Act.
Common Cause vs. Drug Controller of India and
Others NCDRC, New Delhi 1991
Complaint was made to the National Forum under Section 2 (i) (j)
698 CP Act (defective goods) of the lack of adequate quality control
in the manufacturing and bottling of intravenous fluids given to
patients, leading the defect was the presence of fungus due to the
poor quality of the fluid itself and the inadequate cleaning and
scaling of the bottle containing it. The Drug Controller was ordered
by the Forum to constitute an expert committee to review the
provisions of the existing legislation regulating quality control and
make recommendations.
The committee did so and made recommendations for taking
steps to achieve the goal of protecting the public against the possi-
9
VOICES, Vol II No. 3 1994
bility of contamination of I.V. fluids.
Consumer organisations and other pub
lic interest organisations have been able to
make imaginative use of the law to bring
succour to consumers irrespective of which
section of society they belong to.
In the context of economic liberalisation
there is a great danger that the government
may rely entirely on market forces to
operate, leaving the vulnerable poor in a
position worse than it is today. The
Ministry of Consumer Affairs.has consti
tuted a working group comprising con
sumer organisations, industry and trade,
where this concern has been repeatedly
emphasised by consumer organisations.
Consumer protection as a movement
can be recognised only when each and
every citizen becomes aware of her/his
rights and responsibilities; participates in
the practical and economic decision mak
ing of the country; considers her/his
opinion important and insists on his voice
being heard.
The consumer movement and the Con
sumer Protection Act legislation can be
seen as the beginning of some vestige of
respect being accorded to the common
person. It also recognises that the law is for
every person and not the exclusive domain
of lawyers and the powers that be. The
Consumer Protection Act is a consumer
friendly law and has proved to be the focal
point around which the Indian consumer
movement has revolved and spiralled.
The Indian Railways has recently is
sued an "advisory" to the passengers, the
essence of which is: those having grievanc
es regarding non-refund of rail fares
should file their petition before the Rail
way Claims Tribunal (RCT) and not before
consumer disputes redressal agencies set
up under the CPA. It is, however, not
worth filing a case before the RCT as it
takes ages before a judgement is passed on
these cases. There is also the possibility of
the Railways trying to bring in all disputes
pertaining to the railways under the Tribu
nal. One would welcome such efforts only
if they were triggered by a genuine concern
for redressal of consumer grievances and
Public utilities and consumer
protection
It is very interesting to note that though an
immediate linkage is formed in the minds
of the average person between consumer
protection and consumer goods, in effect
this constitutes a mere 15 per cent of total
cases which are dealt with by most con
sumer groups. Today, about 60 per cent of
cases in a leading consumer organisation
like the Consumer Education and Research
Centre, Ahmedabad, pertain to non-transfer of shares, non-issuance of shares,
delayed refund of money when shares are
not allotted and other investment related
problems. About 25 per cent are in connec
tion with public utilities and services. The
problems which are often encountered
before consumer fora while dealing with
public utilities and services is that though
the CPA is in addition to and not in
derogation of any law existing in force,
monopolistic government undertakings
and corporations constantly design ways
and means of ensuring that they fall
outside the purview of the CPA.
10
not with the sole desire to cut down on the
compensation being given to passengers.
It is important that such tribunals
coexist with the present machinery for
getting compensation under the CPA. As is
very well known, CPA works on the
principle of natural justice, and compensa
tion is awarded not only as retribution but
as a punishment to the perpetrators to set
right the systemic wrongs due to which the
consumer suffers.
Laws in force like the Post and Tele
graphs Act are pathetically outdated; in
addition , they permit inefficiency in
government undertakings to continue. The
establishment of a Public Utilities Com
mission to deal to deal with complaints of
this nature have been scuttled on one
pretext or the other. Consumer groups all
over the country are in the throes of
deliberations on ways to plug existing
loopholes and to widen the ambit of the
CPA. There is also a proposal to see
whether the concept of Public Utilities
Commission can be included in the CPA.
Much care and caution has to be exercised
to ensure that we are not biting off more
than we can chew.
Women get organised
The fact that the word "consumer" is
limited to the elite in terms of their rights is
no longer true. There could be no better
illustration than what is given below to
substantiate this.
A state level conference was organised
by the Federation of Consumer
Organisations of Tamil Nadu (FEDCOT) in
March 1994. Rural women were brought
together and they responded admirably to
the call for united consumer action on their
part. These women said that they usually
found themselves helpless as there was
corruption everywhere and even to get a
radon card they had to pay a "bribe".
However, suddenly small group meetings
organised in their villages by conveners of
the conference have given them some
hope. They also spoke of lack of educa
tional facilities for their children as also
absence of essential drugs at health centres.
Women were urged to form small groups
to take up issues like lack of potable
drinking water, absence of roads, poor
quality of foodgrains sold through fair
price shops, hike in administered prices
and inadequate supply of drugs in primary
health centres, in the course of this confer
ence.
The task of mobilising the rural women
was apparently not an easy one. The rural
women who participated in the programme
were vocal about the dismal state of affairs
and about the lack of basic infrastructure in
the health, education and public amenities
sector. The Public Distribution System
(PDS) as it prevailed in the state of Tamil
Nadu drew a great deal of flak from the
women participants. They felt that the
government should hand over manage
ment of all fair-price shops to women and
those with an income of over Rs. 3000 a
month should not be beneficiaries of the
public distribution system.
Slow but sure
The consumer movement is trying t0
extend its reach to rural areas, albeit
slowly. It cannot be denied that the
VOICES, Vol II No. 3 1994
consumer movement is more a top-down
movement, but the advantage in such an
approach can also be seen as the strength of
this movement. Organised and concerted
efforts can be made by established con
sumer groups and the government to see
that consumer awareness touches each and
every consumer in our country even in
remote rural areas.
Consumer groups are working in areas
like making available safe drinking water,
ensuring rationalisation of drugs, stream
lining- the public distribution system among various other areas of public inter
est. To cite a few examples, we have
Consumer Action Group (CAG), Madras,
which carried out a campaign in 1992,
between October and December, when
more than 10,000 people were admitted to
the Madras Corporation's Communicable
Diseases Hospital with acute diarrhoeal
diseases. CAG, Madras, along with Exnora
International, INTACH, Trust Help and
other concerned citizens first launched a
signature campaign. A protest in this form
against the inaction by the Metrowater and
Madras corporation was expressed.
Water samples were tested and a report
focusing on health effects of consuming
contaminated water, an analysis of cholera
victims from different zones, a status
report on ongoing projects on urban
development in Madras etc. was prepared
and released at a press meet. The campaign
culminated in a petition being filed in the
Madras High Court in April, 1993 praying
for, among other things, compensation for
the patients admitted to the Communica
ble Diseases Hospital and a reconstitution
of the Metrowater Board as per the Act to
include members of the public.
Consumer Coordination Council has
launched a country-wide campaign on
making safe drinking water available. The
first phase of the campaign has started in
the South, once again by CAG, Madras.
Region-wise comparative data, on the
basis of tested water samples is sought to
be collected. The results would help in
advocating with policy makers at the
national level.
Consumer groups throughout the coun
try are campaigning for the immediate
withdrawal of all banned, hazardous and
irrational drugs from the market; also for
making quality drugs available at reason
able prices.
As long as the consumer movement
focuses on such issues it would always
remain a people's movement.
■
Kalpana Jaishankar is a post graduate
from the Institute of Rural Management,
Anand. Presently she is Coordinator,
Consumer Coordination Council (CCC),
Delhi. She works in the area of consumer
training, information dissemination,
consumer campaigns and advocacy.
Public Servants
Accountable
n a significant judgement, the Supreme Court has made
public servants personally accountable for their inaction
and ruled that
they have to pay damages if found guilty of causing
harassment and mental agony to any person while
discharging their public duty.
The judges observed that when the court directs
payment of damages of compensation against the state, it
is the tax payers money which is paid for the action of those
who are entrusted under the law to discharge their duties
in accordance with the law.
Therefore, it is, necessary that the National Consumer
Disputes Redressal Commission, when satisfied that a
complainant is entitled to compensation for harassment or
mental agony or oppression, should further direct the
department concerned to pay the amount to the complain
ant from the public fund immediately, and to recover the
same from those who are found responsible for such
unpardonable behaviour by dividing it proportionately
when there are more than one functionaries.
I
Consumercoordination Council News,Forerunner, April
1994.
11
What’s in Store for the Indian
Consumer?
Global Trends
Srinivas Simoorkar
The services sector, according to
SRINIVAS SIRNOORKAR, will reach
its potential with the onset of the
globalisation trend. An overview of in
ternational developments augur a mixed
picture for Indian consumers.
ith the process of liberali
W
sation and globalisation of
the Indian economy and in
dustry having been set in
motion, the indigenous industry has no
other option but to integrate with the glo
bal mainstream of quality and standard of
products or services. "Globalise or perish" seems to be the new
slogan for Indian manufacturers and service industries. If they
don't read the slogan there is a writing on the wall for them. With
the rolling of the red carpet for multinational companies and
foreign investors the domestic industrial and economic scene in
India should change dramatically. The consumer culture which
hitherto was alien to Indian manufacturing industries, particu
larly the goods of mass consumption, will naturally occupy top
position on the agenda.
An average Indian consumer is confused with so many
choices before him both in products and services. He does not
know which he should rely on. The high blitz advertising
strategies of the multinational companies are likely to condition
the minds of people, and this may have an adverse effect on the
marketing of the domestic goods. It will not be a surprise if the
popular slogan "Be Indian buy Indian" is replaced with "Be
Indian buy foreign" in the days to come. In this context there is
a dire need to educate the Indian consumers in the right perspec
tive. And this education and awareness is the joint responsibility
of both consumerorganisations, thegovernmentand the manufac
turing and servicing industries.
The first and foremost thing that domestic industry must do,
is to attain credibility of the consumer community, for its products
and services. The services particularly those pertaining to public
utilities in this country cannot be called as service by any stan
dard. The consumer is bound to buy without a second thought
any qualitative service available to him at a competitive price, by
a foreign company. A section of the consumer community is more
than willing to spend a few rupees more than what he is paying
presently for better services.
Innovation is the key
Innovation is one of the factors which is likely to hold the key for
the consumer acceptance. Innovation is the most basic, besides
12
being rapid, with some people even refer
ring to it as the "third industrial revolu
tion". The velocity of change of technology
is so fast that today's technology may be
come obsolete tomorrow. If the Indian
industry does not keep itself abreast with
this pace it will have to eat humble pie in the
competitive world. The supply and de
mand relation will have to be closely ob
served particularly in the wake of dumping
of goods by multinational corporations
(MNCs) in the country. Indian industry
will have to spend a lot on research and
development if at all it wants to cope with
the global trends. So there has to be a
thorough reorientation of priorities.
GATT threat
The emergence of the new world trade order (WTO) following the
signing of the GATT agreement has brought a basket of apprehen
sionsand fears about Indian economic, social and political sovereign
ty being thrown into turmoil.
The GATT approach to agriculture is most disturbing. This will
mean subsidies will be restricted only to the upper layer of the 10 per
cent of the total agricultural production. This would naturally rob the
poor farmers of subsidy, and even whatever meagre subsidy is made
available will be insufficient to cover the increasing cost of energy and
other inputs like fertilisers and pesticides. The Indian government
has already slashed fertiliser subsidy, and this has resulted in sky
rocketing fertiliser prices, hitting the small and medium farmers
badly.
The GATT prescribes that the developing countries must import
agricultural commodities to the extent of two per cent of domestic
consumption in the first year of the agreement; to be stepped up to
3.33 per cent at the end of six years. Another disturbing aspect is the
insistence on procurement and sale of foodgrains at market prices
which will dilute the public distribution system meant for the eco
nomically weaker sections of society. Besides this there is a lot of
ambiguity about the freedom farmers will have regarding multipli
cation, exchange and sale of seeds.
Health in peril '
Another sector which is going to be affected badly is the public health
system. The Indian Patent Act of 1970, considered to be the most
progressive one has provided a safety net to the marginalised sections
of society vis-a-vis their access to drugs and medicines. The drugs in
India are far cheaper than in any other country, thanks to the patent
act and drug price control measures. But the scenario will take a turn
VOICES, Vol n No. 3 1994
for the worse as a result of the GATT condi
tion that the patent act should be amended
suitably. This is ostensibly to serve the
interests of MNCs. The existing patenting
of process of a product will have to be
changed to patenting of the product which
will be a severe blow to the Indian drug
industry. The patent holders, mainly the
MNCs, will rule the roost and dictate terms
to manufacturers and in the marketing of
drugs. The monopoly of MNCs in the
pharmaceutical industries will result in a
sharp rise in the drug prices. Only affluent
sections will have access to drugs. The
government hospitals which are the bulk
consumers of drugs are now required to
buy their intent from the government ap
proved domestic drug industries. But, in
the post GATT period the MNCs will be
treated on par with the domestic compa
nies and the entire drug market will be
come the monopoly of MNCs. Thus health
and medicare are likely to take a back seat.
The research and development activi
ties will suffer a serious jolt with the paucity
of funds and severe competition from for
eign companies.
Major focus areas
Services sector is growing rapidly in the
developing countries particularly in India.
The contribution of the service sector in
India to GNP is around 10 per cent, and it
has abundant scope for futher growth in
future.
The services sector will virtually steal
the limelight as it will be the main focus in
the developing societies in future. One of
the reasons for this is that the development
of entrepreneurship is directly related to
the growth of the service sector. Services
sector, needless to say, is the strong
infrastructural base for the growth of in
dustry and economy. But in India, due to
various reasons, the kind of service offered
by the service sector which by and large has
still remained with the government, has
been taken for granted. For instance, the
Karnataka Electricity Board (KEB). Even a
small farmer has to wait for several months,
if not years, to energise his pump set. With
the energisation of the pump set he will be
virutally energising his troubles. The high
ly fluctuating, low quality and erratic sup
ply of power often leave him in the lurch.
As he is uneducated, unorganised and not
informed all he can do is curse his fate.
The ultimate result is steep fall in agri
cultural production. The agricultural econ
omy which is the backbone of the country's
prosperity will be in the doldrums. Accord
ing to an official experts committee report,
the agricultural production and productiv
ity in Karnataka has already reached stag
nation point.
The stagnation of agricultural produc
tion and productivity will have a chain of
adverse reactions on the country's econom
ic growth. The agro-based industries will
have to face the music. In the long run it can
also pose a threat to the Indian food securi
tyThe services sector comprises the activ
ities such as transportation, communica
tion, health, education, municipalities, wa
ter supply, housing, banks, etc. Some im
provements are visible in the
telecommunication sector as it has been
partially opened to private enterpreneurs.
The manufacture of telecom equipment has
been more or less opened to the private
sector. But the provision of telecom service
still rests with the government which has
miserably failed to provide satisfactory ser
vice to the customers.
21st century. Utter chaos and disorderliness prevails in the health and education
sectors. Since our polity is based on “social
ist democratic sovereignty", the govern
ment has to provide for the social welfare
and social security needs of the vast section
of our society. Universal education and
universal immunisation programmes need
to be launched with new vigour.
Though the government has a series of
schemes, they don't reach the needy. And it
is here that the role of voluntary
organisations and consumer groups as
sumes significance. Programmes like total
literacy, immunisation, child nutrition, etc.
have to be pursued vigorously. There should
be one or the other consumer group or vol
untary organisation in at least one gram
panchayat (a gram panchayat is a cluster of
four to five villages). This may be a sound
beginning that will usher in a new con-
A telling need
The service areas of concern for the govern
ment should be health and education in
stead of areas like telecom, transport and
hotels. With about 50 per cent of the Indian
population still below the poverty line, In
dia cannot march with confidence into the
13
VOICES, Vol II No. 3 1994
sumer culture and awareness at the
grassroots level. The services sector plays a
very crucial role in creating a conducive
environment for investments in other sec
tors. At a time when India is trying to attract
foreign investment, it is the confidence the
services sector gives to the foreign investors
that is going to matter the most. The need of
the hour is a standardisation of the services
sector.
The standard definition for quality is
"fitness for use and value for money”. Un
like in the manufacturing industry the con
sumers are the direct and immediate recip
ients of services. In the trading of a product,
consumers do not directly come in contact
with the manufacturer. The first and fore
most quality criteria in a sendee is the time
liness of the delivery of a service. If a
patient in distress is not treated immediate
ly the purpose of the health service ren
dered by any organisation isdefeated. Punc
tuality in the running of trains is an essen
tial indicator of the quality of the railways.
Connection of power to a new industrial
uni t within a specified time-frame will speak
of the quality of the service rendered by the
KEB. The inordinate delay on the part of the
KEB to ensure power supply could put the
entire project into the doldrums.
The fallout of competition
The second most important aspect is the
reliability of service. Can we rely on the
kind of service offered by the organisations
like KEB, KSRTC, water board, housing
board, civic bodies, posts and telegraphs
etc? The answer would be a dismal "no".
For tha t matter none of the Ind ian services is
reliable. Right from airline to water supply
all services are in chaos because they are
disorderly, non-responsive, and unaccount
able. Therefore, the need of the hour is to
make all these services function effectively.
Entry of private sector in all these services
may lead to competition besides making
the existing service sector under govern
ment control consumer oriented.
Modernisation in accordance with world
standards for rendering effective, satisfac
tory and timely services, would be inevita
ble. Wherever possible modernisation
should be immediately brought in. For
instance, use of computers in transport,
banks etc would help develop services that
caterbetter and more effectively to the needs
of the users.
Persons armed with governmental pow
ers are ruling the roost in service sectors.
Since investment by private sector is not
easily forthcoming, as these areas are not
profitable, it is the primary responsibility
of the government to step in effectively and
14
reform the system. The customers are ready
to pay more for better sendees. Enormous
growth of private health clinics and courier
services are best examples in this regard.
Adoption of standards
In the new international environment of
rapid technological change and an increased
emphasis on quality and environment, it is
imperative for India to exercise more exten
sive, dynamic and flexible standardisation
systems that can take care of national and
international needs and requirements. The
Indian response to this challenge can result
in a competitive advantage or a threat.
Quality assurance
Every product is a consumer product. Right
from a broomstick to a colour television, an
electric bulb to a high tech digital electronic
gadget, bakery products, instant foods, balm
for headaches, to life saving drugs and
other materials of mass consumption, all
must possess quality of fitness and stan
dards. Quality of a product refers to the
features and characteristics responsible for
meeting the needs of the customer. The
opening up of the Indian economy and the
consequential competitive environment,
and the enactment of the Consumer Protec
tion Act in 1986, have pressurised manufac
turers to provide quality assurance. The
ISO 9000 series of standards is a good refer
ence for quality assurance. About 400 Indi
an manufacturing companies have received
the ISO quality certification in the last
couple of years. This clearly shows the
growing quality consciousness among In
dian manufacturers.
Product quality is influenced by many
stages of interactive activities such as clear
understanding of customer's requirements,
design, purchase of quality inputs, produc
tion controls, inspection and testing at var
ious stages, handling, storing, packaging,
preservation and delivery. After-sales ser
vice of a product is another area where the
manufacturers are yet to develop a custom
er-friendly atmosphere.
In a seller's market manufacturers gen
erally do not make efforts and investments
for quality improvement which brings long
term gains as the products would enjoy
consumer support. But, unfortunately, the
manufacturers prefer to resort to making
fast money by exploiting the scarcity of
products in the market.
and delicensing. When shackles and trade
barriers are removed or minimised, the
irresponsibility on the part of the manufac
turers will also be reduced. Like in the past
they can't make dubious money by exploit
ing the customers as there would be a lot of
choice for a consumer. The monopoly of a
product or brand will become irrelevent
unless it has made a deep positive impact on
the minds of consumers.
Illegal trade practices, exploitation,
cheating, selling of sub-standard and un
safe products can be guarded against and
prevented by ensuring that the consumer
movement is truly organised. There should
be at least one strong registered consumer
organisation in every taluk and at the state
level a representative body like a confed
eration of consumer organisations. There is
also a dire need to create a powerful consum
er lobby to influence the powers that be in
order to make the policies and programmes
of the government consumer oriented. An
enlightened consumer society will be the
only effective answer for all type of con
sumer problems.
■
Srinivas Sirnoorkar is a Senior Reporter
zoith the Indian Express, Bangalore.
Even a Rupee
Counts!
Consumer protection
he Maharashtra State Consumer Dis
putes Redressal Commission's deci
sion, striking down banks' right to charge
unilater
ally Re.l per cheque leaf to the current
account holders was widely hailed. In a
recent order the Commission dismissed
an appeal filed by Canara Bank which
had opposed the claim of the complain
ant, that she had been wrongly charged
Re.l per leaf for 50 blank cheques by the
bank. The judge ordered Rs.500 as costs
to the complainant. He also ruled that
the costs, and Rs.50 as per the order of
the district forum, be paid to her.
However, there has been a sea change in the
economic order with the economy being
influenced by market forces, deregulations
Consumer Coordination Council
News,Forerunner, April 1994.
T
Blocks in the Channels
The Public Distribution System
Kavita M
The Consumer Protection Act has largely
been unsuitable for solving the problems
of the public distribution system which,
says KAVITA M, is treated not as a right
of every deprived citizen, but as a dole
handed out in largesse by the govern
ment.
oday "consumer" is the
buzzword in the market place.
If one were to investi gate what
the single largest consumer
problem affecting the masses is, one would
find it to be the quality and quantity of
products supplied through the Public Dis
tribution System (PDS).
Prices of essential commodities have sky rocketed because
of inflation, and consumers belonging to the lower middle and
lower income categories have no other option but to use the PDS.
Public Distribution System is the system through which
essential commodities are supplied at controlled prices to the
citizens. Essential goods that ought to be supplied through the
PDS include rice, wheat and non-polished foodgrains, con
trolled cloth, cooking fuel and refined cooking oil. It has been
floated to fulfill the objectives of food policy set out in the Fourth
Plan period to:
• ensure that consumer prices are stabilised, and in partic
ular, the interests of low income groups are guarded
• ensure that the producers get reasonable prices and
continue to have adequate incentives for increasing pro
duction
• build adequate buffer stock of foodgrains with a view to
ensuring the objectives stated above.
The seventh plan period recognised the Public Distribution
System as a permanent feature of the strategy to control prices,
reduce fluctuations and to achieve an equitable distribution of
essential goods.
T
From 1987-88 the Minimum Needs Implementation Programme
has also been included in the Public Distribution System.
Minimum Needs Programme aims to provide essential com
modities through fair price shops in every village to the deprived
classes. The aims of this programme are to:
* provide family cards (ration cards) to all the persons
below the poverty line, and to other economically weaker
sections
* open fair price shops with relevance to the population
* ensure that fair price shops are situated within one
kilometre from the residence of dalits,
scheduled castes, tribes and the backward
classes
establish mobile fair price shops in
areas unapproachable by traffic in
hilly and forest areas
ensure establishment ofsaleoutletsof
the Public Distribution System in
slums and other backward areas
give preference to cooperatives and
civil supplies departments to estab
lish fair price shops
canvas for sale of commodities
through the PDS.
Centre-State functions and PDS
The Central government is in charge of framing a food policy - export
and import of food products, issue of support and procurement
prices, price stabilisation, stock that ought to be maintained, and
stock for procurement. After accumulating stocks it is distributed to
the states for distribution through fair price shops.
State governments are in charge of distribution through fair price
shops. They also decide within their respective states the number of
card holders a particular shop will service and issue family ration
cards.
All these are lofty ideals on paper. Down to brasstacks, in terms
of what really the PDS does for the marginalised sections, we come
up with a whole range of issues. The PDS is plagued with all kinds
of malpractices. Short weighment, poor quality of products, poor
quality of service, refusal to issue supplies to card holders, short
supply of commodities, illegal access to traders and political bosses
are few of the problems.
Consumers have been making sustained efforts to find solutions
to these problems. Many representations have been forwarded to the
Ministry concerned to take steps to tackle the problems, following
which the Ministry came up with a brilliant idea of appointing
vigilance committees to monitor the conduct of these ration shops in
every district. It ended up with politicians being appointed many of
whom were corrupt, and the few appointments which were impar
tial turned out to be ineffective. In some places it took such an ugly
turn that honest vigilance committee members were beaten up by
goondas or slandered viciously by corrupt officials. Victimisation has
led to honest citizens shying away from serving on these committees.
In the context of consumer rights many consumer organisations
are today largely concerned with middle class problems and tend to
ignore PDS or have given up this as an unsolvable issue. The apathy
on the part of the government is striking, even as PDS is treated not
15
VOICES, Vol II No. 3 1994
A long road to survival
as a basic right of a deprived citizen but a
dole handed out in largesse by the govern
ment.
PDS consumers
Consumers of PDS are largely illiterate and
unaware of their entitlements as citizens,
except probably, the importance of owning
ration cards (specific to urban areas). Ra
tion cards for them are passports to ameni
Nadu (FEDCOT) nearly 2,500 women
participated. Out of the 54 resolutions
passed by this conference, approximately
30 were on the working of the Public
Distribution System. These resolutions
received the widest response. The audi
ence consisted largely of women belonging
to the dalit and deprived classes. The dis
advantaged position in which they are
placed led to added deprivation of their
consumer rights vis-a-vis the PDS.
ties.
Any development worker of a slum
dwelling, in any city, would be able to
point out the importance attached to ration
cards. Ration cards are not so much needed
for buying the essential commodities as for
availing of free dhotis, chappals and sarees
under various schemes. Even controlled
prices themselves are beyond the reach of
the impoverished. Secondly, in the villages
and remote areas fair price shops are large
ly inaccessible for the target consumers.
This is because these shops exist in distant
locations. The problems of consumers are
compounded with the non-availability of
commodities at fair price shops.
In a conference organised by the Fed
eration of Consumer Organisations of Tamil
16
Consumer Protection Act and
PDS
The Consumer Protection Act with all its
benefits has largely been unsuitable for
solving the ills of the PDS. The reasons are
many - for example, under the CPA a
consumer is a person who pays a consider
ation for buying any good or availing of
any service. "Consideration" has not been
defined under the Act, but the National
Commission has by its judgement restrict
ed the scope of "consideration" to fee paid
by the consumer and excluded tax pay
ment. Therefore if any service or good is
sought to be paid by tax it will fall outside
the scope of the Consumer Protection Act.
It is, therefore, not clear whether the con
trolled prices charged in the fair price
shops would fall within the scope of the
Consumer Protection Act or not.
Secondly, with regard to problems
like short weighment or poor quality of
service consumers are unable to prove
deficiencies with clear evidence. Again,
while the corrupt officials are willing
to ignore shouting matches, they victi
mise those who go further. Some of the fair
price shops are completely under the
conrol of unscrupulous, unruly elements
and the users are unable to frequent these
shops. Consumer Protection Act does
not provide relief when consumers are
denied access to the marketplace due to
illegal trade practices. One can, therefore,
conclude that the CPA has no relevance for
the single largest consumer problem affect
ing millions of deprived people in this
country.
The only benefit in this scenario, has
been the setting up of the Central and State
Consumer Protection Councils with the
Ministry under the Act. This has led to the
formation of an interface (at the very least)
with the concerned authorities, although it
VOICES, Vol II No. 3 1994
has not brought about much of a change in
the situation.
be held responsible, and approach it for
grievance redressal.
The PDS has been projected in the vernac
ular press largely as an issue of corruption.
The media have not projected a holistic
view. Articles that have appeared in the
Economic and Political Weekly have dealt
with the issue at a macro-level. Therefore,
this largest consumer problem remains
unpublicised and not pressured by media
(namely public opinion).
Agencies and PDS consumers
Problems of consumers of PDS are com
pounded by the multiplicity of agencies
involved in the Public Distribution System.
Policy decisions are controlled by the cen
tral government, distribution by the state
government, and implementation through
private or cooperative societies. The end
consumer is unable to comprehend one
single authority that can be held responsi
ble and, therefore, can be targeted for
grievance redressal. When there is a public
outcry on short supply of commodities, the
state governments sweep their inefficien
cies under the carpet and blame the central
government for non-allotment of quotas.
The central government is a faceless entity
as far as approachability of the average
PDS consumers is concerned. The agencies
through which commodities are supplied
through the PDS, are prone to shifting the
blame on the Civil Supplies Department of
the state, or the corrupt inspecting officers.
In Tamil Nadu PDS commodities are
distributed through cooperative societies.
These societies have largely replaced the
sharks in the market place and have lost all
the high ideals of the cooperative societies.
They have become corruption dens and are
highly politicised.
Several inspecting agencies exist to
check the various problems of PDS. Some
are specific to an issue, like the Inspectorate
of Labour which is in charge of inspecting
short weighment, and standards and mea
sures. Some agencies like the Civil Supplies
Department of the state government handle
The seventh plan period
recognised the Public
Distribution System as a
permanent feature of the
strategy to control prices,
reduce fluctuations and to
achieve an equitable
distribution of essential goods.
inspection as one of their many duties, and
they are unable to concentrate on inspec
tion. There are some like the Registry of
Cooperative Societies who are in charge of
checking malpractices in cooperatives. This
multiplicity of agencies reflects the famous
adage "Too many cooks spoil the both".
Moreover the PDS consumer is simply
unable to pick out a single agency that can
Media and PDS consumers
Pointers for improvement
Proper inspection systems ought to
be organised at all levels of procure
ment and distribution. To begin
with, establish a single inspection
agency
2. Coordinate the activities of pro
curement agencies, stockists and dis
tribution agencies, to ensure quality
service to PDS consumers
3. Regular assessment performance by
inspecting agencies
4. State governments should takestock
of the supply necessary for a month
and inform the Central government
earlier.
1.
New Economic Policy and
PDS consumers
Given the economic situation of PDS con
sumers, opening up of the market place
may not have any impact on their income
levels for the following reasons:
* Some of them are dalits (landless
labourers) who are not largely af
fected by changes in the market
* Some of them are class III or IV
employees in government service
whose income levels go up slowly
* Some of them are involved in minor
occupations with sustenance income
levels which will not be affected by
the new economic policy
In fact landless labourers might be
come further impoverished due to the shift
in land use and occupation due to new
economic policies. One possiblity is in
crease in income levels of personal services
in urban areas though not to the extent that
will lessen their need to use the PDS.
Therefore PDS would still be a necessity for
consumers until income levels of current
PDS consumers match inflation rates.
GATT and PDS consumers
With PDS being absolutely necessary, at
tempts to do away with subsidies would
seriously hamper the survival of the cur
rent PDS consumers. Already the Central
Government has cut down its procurement
levels and enhanced the prices of commod
ities supplied through PDS, making it un
approachable for the economically weaker
sections.
What more?
■/Ensure that PDS reaches all citi
zens living below the poverty line
and those with monthly income less
than Rs.2500
SA family of four requires 30 kgs of
rice, 3 kgs of sugar, 5 litres of kero
sene in houses with electricity and
10 litres in houses without electric
ity, 3-5 litres of oil and 1-2 kgs of
dhal per month. Ensure that these
minimum needs are supplied
through PDS
■/Ensure that the margin between
procurement price and sale price of
these commodities is small
■/Ensure that warehouses are main
tained as per BIS standards to avoid
wastage and pilferage which is cur
rently very high - in the region of 20
per cent
■/Publicise rights of PDS consum
ers and build public opinion.
Kavita M is presently legal coordinator at
the Consumer Action Group, Madras.
17
An Unhealthy Scenario
Medical Services
Mathew N M
The average health consumer is left
uncovered as the Consumer Protection
Act presently excludes government med
ical services from its ambit, says
MATHEW N M. Also, in spite of the
mushrooming of private health care ser
vices, health consumers in India even
today get a raw deal.
he Consumer Protection Act
(CPAJ1986, has rightly been
hailed as the single most impor
tant factor in taking consumer
awakening in India to its present level. Its
wide-ranging ramifications have resulted in an unprecedented
energy and hope among the so far unorganised and gullible
consumer community. The emergence of a large number of
resistance groups and consumer organisations all over the
country bears testimony to this fact.
Let us now look at health services from the consumer's point
of view. All of us need timely medical care during illness at
an acceptable level of quality, price and ease. Quality of life,
to a great extent, depends on the kind of medical goods and
services we have access to.
T
Unhealthy signals
Government is the largest provider of medical facilities in the
country through its wide network of research centres, medical
colleges, district hospitals, community/primary health centres
etc. But the overstretched government sector has become stag
nant and insufficient to meet the health needs of people.
Although there has been a phenomenal growth in government
infrastructure since Independence, the disillusionment and
frustration at the growing ineffectiveness of this sector has
gradually led people to shift over and avail of services of the
profit oriented private sector. According to an Indian Council
for Medical Research study in 1988, only 15 per cent of primary
health centres in the country had the requisite personnel and
facilities. Many a time the only health service provided at the
health centre for the needy people is a slip of paper with names
of medicines which they have to get from shops outside! Even
in city hospitals the conditions are far from satisfactory. Arro
gant staff and general neglect is usually what one has to contend
with. The emergency services are ill-equipped and suffer
further due to lack of essential medicines and facilities. There
is over-congestion leading to unhygienic surroundings, and
18
patient satisfaction from these services is
very very low, if not absent altogether.
Health consumers in this country, in
many ways, get a raw deal due to deficien
cy in services. Scarcity of health facilities
makes their position weak and keeps them
always at the receiving end. This disad
vantage of the consumers is partly respon
sible for making the health system
irresponsive and unanswerable. Several
incidences of medical negligence are being
reported from both government and pri
vate hospitals, ranging from simple care
lessness to wilful cheating and criminal
indulgences. Many government doctors
take to private practice adding to the woes of poor consumers. The
lure of the lucre naturally diverts the doctors' attention from the
government hospital services.
Private sector response
The gap between the demand and supply of medical services is
filled by the non-governmental sector of charitable and private
hospitals. They are supposed to be more responsive to patients,
but for a price. It has been noticed that about 76 per cent of all
the out-patient cases are handled by this sector. Hence its vital role
in the health management of the country.
. But is the private sector on the consumer's side? Opinions may
vary. Of late this sector has come under a lot of flak. Allegations
of callousness, overcharging, poor quality service, wrong diagnosis,
unnecessary medical investigations, prolonged hospitalisations and
above all, total lack of medical ethics and presence of quackery
abound. There is absolutely no standardisation of charges or
practices in these institutions. Consumers have reason to feel angry
and frustrated with lack of transparency in the whole gamut of
patient care and other connected issues. The mushrooming growth
of business houses in medical care mostly in the curative sphere
is not necessarily a sign of better health care. In the absence of any
social audit mechanism or effective legal framework to deal with
this problem, consumer interests are seriously at risk.
The accountability issue
The Consumer Protection Act at present excludes government
medical services from its ambit, purely because it is not paid for
by the patients. Consumers and doctors outside the government
sector are agitated about this. According to them, a negligence is
a negligence irrespective of whether it takes place in a government
VOICES, Vol II No. 3 1994
Government meitienl services: plagued by gross negligence
hospital or a private hospital. Presently,
only the latter is brought under CPA, but
accountability should be equal for all since
patients' rights are violated in both cases.
The only option now left with the
health consumers of the government sec
tor is to approach civil or criminal courts
for justice. It takes several years for justice
to be done and involves phenomenal costs
for consumers to get redressal, negating
the very spirit of consumer protection.
The poor patients who flock to govern
ment hospitals for free care, bearing all
inconveniences, can never think of ap
proaching the above courts for obvious
reasons. Even CPA holds no promise for
them at present. As of today, there is no
move on the part of the government to
bring government medical services under
the Consumer Protection Act. This is one
area where consumer activists should be
gravely concerned.
In a service like medical care, the
consumers have very little or no control on
the quality of goods and services they
receive as the decisions are taken by a third
party - the doctor. Consumer's right to
choice and information are severely re
stricted in medical cases.
From early 1990s, cases of medical
negligence started coming up in consumer
courts. Doctors did not take kindly to
being dragged into these courts. They saw
serious threats to the professional freedom
they had been enjoying practically unchal
lenged for long. Doctors are mainly
regulated by the Medical Council of India
(MCI) established under the MCI Act 1956,
which is a body of doctors. MCI is a weak
monitoring body with no authority to
adequately punish the erring doctor or to
compensate the medical victims. The CPA
changed the whole scenario. It demanded
doctors be accountable to patients, and
patients be compensated if they are victims
of doctor's negligence.
Now doctors and their professional
bodies are demanding review of the MC
Act. They want MC machinery almost on
the same lines as in CPA, including
compensation to the victims, setting up of
medical tribunals-cum-disciplinary com
mittees at the centre, state and district
levels comprising of doctors, legal experts,
consumer representatives and other public
figures. What would come out of this
new-found doctor's formula is of consid
erable interest to consumers.
A continuing debate
Doctors argued that medical services do
not come under the purview of the CPA
as it has not been specifically mentioned in
the Act. The scope of the Act, as given in
section 2(o) says "service of any de
scription which is made available to poten
tial users". Secondly, they argued that
doctor's service is "a contract of personal
service" which is exempted from this law.
Thirdly they argued that patients are not
consumers as envisaged by CPA. The Act
says consumer is a person who buys any
goods or service for a consideration (price)
which has been fully or partly paid or
promised. So any person availing of
medical services in private hospitals by
paying money becomes a consumer. Dif
ferent consumer courts ruled differently
on these issues, but generally the above
arguments of the doctors were found
untenable. In a landmark case of wrong
diagnosis in a hospital in Kerala (Vasantha
P. Nair vs Cosmopolitan Hospitals in
1991) the State Commission and later the
National Commission on 21.04.1992 set all
these arguments at rest.
Writ petitions challenging the applica
bility of CPA were filed in several High
Courts by agitated doctors. Few High
Courts ruled in favour of the patients but
the Madras High Court in the case of Dr.
C. S. Subramanian vs Kumarasamy & Ors
- W.P No 14713 of 1991 etc. dated 17.02.94
ruled that the patient is not a consumer
and medical services is a "contract of
personal service" which is outside the
purview of the Act. The Court, however,
did not extend this immunity to paramed
ical services.
Now the scene has shifted to the
Supreme Court. Hearing of the appeals
filed by the Indian Medical Association
and several specialist organisations chal
lenging the inclusion of the medical pro
fession in CPA, has started on 21 Septem
ber, 1994. Consumer organisations are
actively intervening in this matter.
As can be seen from the proceedings in
the consumer courts the number of cases
filed against medical services are very few
compared to other complaints. Proven
cases are still fewer. The reason for this
is that it is not easy to prove medical
negligence because of the complexities
involved. Medical services still remain
mysterious to the consumers. Added to
that is the respect and awe doctors com
mand. So, many people do not dare to
initiate action against doctors.
The Ministry of Civil Supplies, Con
sumer Affairs and Public Distribution
System of the Government of India is
earnestly trying to resolve this imbroglio
in the interest of the patients. But it is
interesting to note that the Ministry of
Health and Family Welfare does not seem
to favour this move for unknown reasons.
19
VOICES, Vol II No. 3 1994
Medical negligence
Unprincipled elements in the medical
profession dilute ethical standards and
indulge in profiteering from people's mis
eries, bringing disrepute to the entire
profession. The business in medical care
is overtaking the business of medical
services. A doctor's job is a very vital one,
as it deals with life and death. Therefore,
doctors should take their responsibilities
seriously, and if they do not, medical
negligence will result. Negligence is a tort,
i.e. a wrong done by one person to
another. In medical parlance it is defined
as "a mistake by a medical practitioner
which no reasonably competent and care
ful professional would have committed".
When a doctor agrees to treat a patient, it
is implied that he possesses the required
skill and knowledge. For things beyond
his control, especially the unexpected
developments and inherent risks associat
ed with medical cases, the doctor will not
be held responsible. This is not negligence.
Negligence can also occur if any doctor
attempts to handle cases beyond his com
petency or training. Delay in attending to
patients can also be considered negligence.
The negligent doctor cannot go scot free.
If the patient is a victim of deliberate
cheating or fraud the case assumes more
serious nature. Consumer courts try to
ensure that justice is done to the patients
in such circumstances.
The onus of
proving the guilt of the doctor lies with the
consumer, hence the success rates of such
cases are limited.
Medical services still remain
mysterious to the consumers.
Added to that is the respect
and awe doctors command.
So, many people do not dare
to initiate action against
doctors.
For a successful claim, patients will
have to prove negligence of the doctor in
any of the following areas:
- negligent diagnosis
- negligent operation
- failure to listen to the problems of the
patient
- negligent administration of drugs,
injections - administered in wrong
areas, breaking needles in the body
etc.
‘ negligent prescription of drugs
‘ negligent exposure of the patient to
risk of infections
70
- negligence in advice - meaning fail
ure to warn and inform the patient
about possible risks in the medicines
or operations
- negligent supervision on follow up of
cases
- negligent facilities - in providing
essential support systems, staff and
other infrastructure
- negligent operation - leaving instru
ment or swab inside the patient
- negligence in obtaining consent of the
patient or authorised relatives.
Frivolous complaints
The law is not against the honest and well
meaning doctors who have thus far sus
tained the system. It is always safe for the
doctor to explain to the patient the nature
of the disease, treatment, risks involved,
besides the financial costs. If somebody is
in to blackmail or humiliate any doctor by
filing a frivolous or vexatious case, the
consumer courts have the power to take
strong action against such complainants.
It can impose penalties upto Rs.10,000 on
the complainant. But a case decided by the
National Commission on September 9,
1994 made history of sorts. The complain
ant was asked to pay Rs.10,000 each to the
doctor and hospital who were implicated.
The court found that the complainant had
concealed the history of his heart ailments
while getting treated for gastroenterology
from Medical Research Centre, Bombay
under Dr. N H Banka.
In another case in September, 1994, the
Kerala State Commission granted Rs. 4,000
to the family of a patient who died of
breast cancer. The complaint was that the
Regional Cancer Centre delayed the result
of the camico embryonic antigens (CEA)
test for 74 hours which prevented prompt
treatment and the patient died due to it.
The commission accepted that the delay in
furnishing the result amounted to defi
ciency in service but the cause of death
could not be attributed to it.
Legal safeguards
Under the Fundamental Right to Life
(Article 21 of the Indian Constitution) and
other laws, patients can claim certain
rights in India. A Working Group consist
ing of consumer activists and profession
als is functioning under the Central Con
sumer Protection Council on the "Charter
of Patient's Rights"for India..
All patients have a right to "Health care
and humane treatment", "Give consent",
"Information on diagnosis, treatment, med
VOICES, Vol II No. 3 1994
icine and cost", "Right to adequate pre
scription information" and, "Health edu
cation".
These rights also put certain responsi
bilities on the patients. Every patient has
to take note of preventive methods to keep
good health, provide accurate and com
plete information to the doctor and accept
all the consequences of his own informed
consent.
Consumers and medicines
This is a very important area of concern for
consumers.
During sickness, patients
often take drugs without really knowing
the need, potency, risks, side effects and
necessary precautions of many of them.
There are over 70,000 formulations now in
the market many of which are unneces
sary, some banned, hazardous, irrational
and others overpriced. It is estimated that
40 per cent of the available drugs are sub
standard, spurious or outright useless.
The drug industry flourishes on the igno
rance of the consumers and in some cases
with active connivance of doctors. The
right to information, right to safety and
right to life of consumers are endangered
by deliberate cover up and malpractices.
Doctors promote certain medicines as they
get favours from the manufacturers, while
chemists prefer certain preparations be
cause of larger profit margins.
Consumers should take medicines
only when it is inevitable, strictly on the
advice of a qualified-doctor. They should
follow instructions regarding dosage, tim
ing, duration and precautions, and report
to the doctor if there are some unexpected
reactions. They should never use any
medicine after the expiry date. Check the
price and contra-indications mentioned on
the packets. Make it a point to collect the
receipt whenever a purchase is made. This
will be needed to file complaints in
consumer courts. Never hesitate to sue the
doctor or drug distributor and manufac
turer if any hazardous, unsafe product is
sold to you. Consumers can sue them if
banned drugs are being sold to them, or
unsubstantiated claims about any medi
cines are advertised, or proper informa
tion on them is withheld, or restricted
trade practices adopted. In these cases,
either the consumer right to information or
safety can be invoked.
Consumers have reason to be disap
pointed with the recent pronouncement of
the Drug Policy by the Government of
India. It is evident that the health needs
of the people and consumer interests have
been given a go by. The drug industry has
been further liberalised so that it can
flourish with emphasis on increasing
profitability, without bothering about the
production and distribution of essential
drugs needed for the masses in sufficient
quantities and at affordable prices. Dis
eases like malaria, TB, AIDS and even
plague are coming back with a vengeance.
The recent Rajasthan malaria epidemic
which has more than 1000 people dead
proves that when calamity strikes, essen
tial drugs are always in short supply.
Market forces do not work to the advan
tage of consumers in the case of medicines.
There are over 70,000 formula
tions now in the market
many of which are unneces
sary, some banned, hazardous,
irrational and others over
priced.
Sacred relationship
The relationship between the doctor and
patient is still considered sacred. But are all
the doctors living up to the standard
especially in the event of the rampant
commercialisation of medical services?
Perhaps not. There is an urgent need for
a new perspective, a qualitative change
and a re-definition of doctors' priorities.
Patients should not be treated as commod
ities for economic gains. Consumer satis
faction should be the central focus in
medical services. This is a justifiable
demand of the consumers which the
doctors will have to give in to.
The consumer movement is slowly
building up in the country. Concepts are
changing, laws are being updated, estab
lished systems are being challenged, con
sumers are getting more vigilant and
demanding. A new pro-consumer culture
is slowly emerging. We are all partners in
this growing movement and let us be
proud of it.
■
Mathew N M works with Voluntary
Health Association of India (VHAI). VHAI
promotes social justice in health care
through consumer action, campaigns, pub
lications, research, media and policy in
terventions.
21
New Moves
The Indian Drug Scene
Anil Pilgaokar
The pharmaceutical industry stands to
gain with the announcement of the new
Drug Policy, ironically formulated by the
Ministry of Chemicals and Fertilizers and
not the Health Ministry. According to
ANIL PILGAOKAR, profitability and not
the illness profile of society is the basis of
this policy.
11
>TI he consumer is king" claims
I the rhetoric from the mar-
keting world. "The purpose
of marketing is to serve the
needs of the market - convert "needs" into
"wants". "If the consumer thrives the mar
ket survives". These are some of the cliches one finds in the
literature on marketing. Unfortunately, the reality is very differ
ent. Over the years, the gullibility of the consumer has been
consistently exploited. The "haves" are more often than not
drawn into buying "more". They are lured into buying the "more
fanciful" - or the "more modern and sophisticated products" in
the market, and therefore to maximise expenditure. The "havenots" are quite often made to feel guilty about being the "havenots". The intense spotlight on individuals or segments of
society, has virtually pushed the rest of society into an arena of
non-concern, sometimes at unacceptable costs to the society, and
indeed, humanity. Indisciplined strides in commercial pursuits
have caused considerable concern, too, for example the colossal
environmental hazards posed by refrigerants and non-biodegradables. Again, marketing thrusts in one area can (and often
do) lead to neglect of social needs of other social segments.
E
Hapless consumers
"A consumer," is generally understood to be one who
consumes a product or service, "payment" being an integral part
of the process. This understanding of the concept of consumer
is - to my mind - unsuitable for the people in countries like India,
where a large section of society is deprived. Every citizen, even
those who need a service or a product, but have no access to the
same, for want of money or whatever other reason, must be
included in the segment of consumers perhaps as a special
category of deprived consumers - for even the deprived do pay,
directly or indirectly, for public, so-called "free" services. Trends
in current marketing programmes seem to be over-eager to serve
the greedy whilst neglecting the needy. No segment of market
exhibits this more clearly than the pharmaceutical market.
Whilst consumers of other goods have a semblance of choice,
in that the buying (or not buying) decision is, in the final analysis,
22
that of the consumer, when it comes to
drugs and medicines this decision is made
for her/him (in most cases) by the treating
physician. Illness in itself is a stress. Cou
pled with poverty, illiteracy and lack of
mere access to health care facilities, this
could be debilitating in more ways than
one. The vulnerability of the patient be
comes more acute if and when there is (i)
inappropriate licensing of drug manu
facture (ii) inappropriate manufacture and
marketing of drugs (iii) inappropriate trad
ing practices and (iv) inappropriate pre
scriptions. Unfortunately the role of the
State and the respective professional bod
ies in monitoring and weeding out inap
propriateness has become telling by its virtual absence.
Over 6000 crores worth of drugs (allopathic or modern) are sold
in the market today. An estimated (or rather guestimated as even the
Drug Controller of India does not have the exact figure) 80,000
formulations and more exist in the Indian market (even United
States doesnot have half this number of formulations in their market
and countries like Norway/Sweden can manage excellent health
care with less than 2000 formulations). Studies by All India Drug
Action Network (AIDAN) indicate that more than two-third of these
can be grouped together as being (a) unnecessary (b) irrational or (c)
harmful (i.e. with an unfavourable risk-to-benefit ratio). The exact
share of this group of drugs in the market is not known but indirect
analysis tends to suggest that this amounts to 65 to 70 per cent of the
market. In other words, when the "king" consumer buys Rs.6000
crore worth of drugs, he is doled out Rs. 4200 crore worth of useless/
irrational/or harmful drugs.
Ironically, the Ministry of Chemicals and Fertilisers is the nodal
Ministry for formulating Drug Policy, and not the Health Ministry
as one would expect. It then comes as no surprise to know that the
numberofdrug companies in India has jumped from less than 2,000
in 1950 to over 16,000 (more likely 20,000) today. Add to this the
enormous number of units in the trade (retailers and wholesalers).
To monitor it there were, some four years back, less than 1,000 Drug
Inspectors. But it is plain to see that this strength is hopelessly
inadequate to monitor the industry units. The situation is pathetic
since these inspectors have the responsibility of monitoring the units
in the cosmetic industry (which presumably is some five times
larger) as well. The establishment comes under the provisions of the
Drugs and Cosmetics Act 1950.
Illogical functioning
There are an adequate number of doctors in the country - over nine
lakhs - in all systems of medicine, but their distribution is lopsided.
This means there are too many in some areas and too few in others.
J
VOICES, Vol 11 No. 3 1994
Though it is understood that these doctors
legally and ethically prescribe drugs per
taining to the science they have been trained
in, in practice it is often found that many
amongst them prescribe medicines outside
the "system" - i.e. Allopathy, Ayurved,
Unani, Homeopathy, Siddha etc. - in which
they have been trained. Whereas, in devel
oped countries there are checks and coun
terchecks to weed out inappropriateness in
practice of medicine by (a) Medical Audit
(b) Prescription Audits and (c) Periodical
review of practitioners whilst renewing
registrations. There is none of this in our
country.
Trends in current marketing
programmes seem to be over
eager to serve the greedy whilst
neglecting the needy. No
segment of market exhibits this
more clearly than the
pharmaceutical market.
Drugs have adverse effects which often
are evident during treatment. It is neces
sary that there is both adverse drug reac
tion reporting and monitoring. In other
countries, this is routinely done; however,
in our country this is as yet non-existent.
Only now a few Adverse Drug Reaction
Monitoring Cells have been set up. It is
hoped that in due course these will play
their role in adverse drug reaction report
ing. The absence of adverse drug reaction
reporting is favourable to the industry in
India. Whenever there is debate of banning
drugs, which are banned in other countries
because their adverse effects are unac
ceptable in relation to the benefits, drug
companies are the first to shout that these
drug reactions are not seen in India (for
example lodochlorohydroxine, or
bromocrptine or analgin). "If it is not re
ported it does not exist" is the logic they
forward.
According to the Drugs & Cosmetics
Act, 1950, drugs are grouped under differ
ent schedules. Drugs under some sched
ules (e.g. Schedules L H and X) cannot be
dispensed unless prescribed by a regis
tered medical practitioner or authorised
authority. The ground reality is that more
often than not these drugs are sold without
prescription. At times the retailer also takes
on the role of "advising" the consumer in
matters of drug therapy.
Marketing drugs
Marketing of drugs is yet another matter of
concern. We have already seen that some
studies indicate that a large share of the
drugs sold in the market are what can be
termed "irrational" drugs. A large number
of these drugs are "promoted through
doctors i.e. through doctors' prescription".
Ironically this type of promotion - in mar
keting jargon - is called ethical promotion.
The sale targets decided for individual
products and individual sales representa
tives is more related to profits than the
illness profile of society. And it is easy to
achieve when one considers that consum
ers in the case of drugs are passive - totally
passive - when it comes to buying deci
sions. These are made by doctors who are
virtually free from any accountability. In
the rare case of a consumer becoming
active and wanting to exert his/her right to
fair scientific treatment, the consumer finds
that the prospects are loaded against her/
him. For one, the medical community is
reluctant to come forward and point out
the lapse of colleagues and even if there be
one, there is always a provision of "clinical
freedom" to escape censure.
There are more areas of inappropriate
ness of various other levels but here it
might suffice to illustrate the plight of
consumers in such a situation.
Hathi Committee prescription
It is not that the inappropriateness in the
pharmaceutical sector was unknown to the
State. A little over 20 years ago, the Govern
ment of India appointed a high-powered
committee under the chairmanship of Mr.
Jaisukhlal Hathi to study and recommend
measures to minimise the inappropriate
ness. This committee did a commendable
job and came out with recommendations
that could serve as landmarks for develop
ment of drug policy in developing coun
tries. Indeed, Bangladesh was motivated to
shape its drug policy, largely based on
these recommendations - a drug policy that
has received admiration from all respected
quarters.
Some of the important recommendations
were:
’ Abolish brand names and market drugs
under generic names. This has been
found the world over to cut cost of the
marketed drugs by some 30 per cent
* Regulate prices of drugs by price con
trol measures so that drug pricing is
not left to whims of the industry and is
more people- oriented
* Appointing a single authority - Na
tional Drug Authority to oversee and
enforce all aspects of the drug scene
‘ Reduce in a phased manner the licens
ing of drugs to essential drugs.
The committee identified 118 such drugs
then. The premise was that these drugs met
the requirements of treatment for almost all
the illnesses, also the smaller number lent
itself to better monitoring and control to
meet the objectives of serving the people.
The World Health Organisation (WHO)
was enthused by this concept and has since
been recommending the concept to all
developing nations. WHO has currently
identified a list of 289 such essential drugs.
This list, it is believed is sufficient to meet
the drug therapy requirements of almost all
diseases.
Government response
The government, at that time, as also suc
cessive governments have given lip service
to these recommendations and have con
trived to implement them half-heartedly.
Lately with the mad rush for going global
to please the powers that may be, the
present government is subtly undoing the
spirit of the Hathi Committee recommen
dations. The new Drug Policy is enunciat
ed but has yet to be passed by the House.
With the majority that the government has
in Parliament, this policy will come into
force. Some measures have already been
put into practice. The price control mea
sures are diluted; requirements for licenses
for manufacture of drugs in most cases are
done away with. We have bent backwards
to withdraw our Patents Act, which pro
vided for patents for drug manufacturing
processes and not the product, and
recognises norms that conform to the World
Trading Organisation.
The sale targets decided for
individual products and
individual sales
representatives is more related
to profits than the illness
profile of society.
Some effects of these changes are al
ready evident. The prices of many drugs
have risen sharply. But more ominous are
the things to come. The present drugs are
not covered under the provisions of the
altered Patents Act. But newer drugs will
be "protected" by patents for another 20
years. There will undoubtedly be new
entrants in the drug scenario tomorrow.
These will be high priced and profit cen
tered. Most medical practitioners are al
ways more than keen to prescribe new
drugs rather than the old (and still effec
tive) drugs. The industry representatives
are always at hand to motivate (with re
wards and incentives) the practitioners
23
VOICES, Vol 11 No. 3 1994
into prescribing these new and "powerful"
drugs. The doctors do not mind for it is
really the patient who pays for the pre
scribed drugs. In due course old and effec
tive and relatively less costly drugs will be
phased out. Even today, one finds doctors
wanting to prescribe even to poor rural
folk very costly norfoxin and ciprofloxin
even in situations where ampicillin or
chloramphenicol would do.
The New Drug Policy
n August 1992 the Government, Department of Chemicals and Petrochemicals,
Ministry of Chemicals and Fertilisers circulated a note to members of parliament
regarding proposed changes in the 1986 Drug Policy. This was interpreted as an
introduction to the New Drug Policy and was used by the industry to focus on its
demands to fewer controls and higher margins of profitability. After more than two
years the Government has finalised the draft for a new policy and has clearly
decided to go along with demands of the industry.
With absolutely no change in the number of hazardous drugs in the market, no
effort at ensuring unbiased drug information on ethical marketing practices and no
improvement in quality control or drug legislation, the Drug Action Forum,
Karnataka, All India Drug Action Network and National Campaign Committee for
Drug Policy have felt the need to file a petition in the Supreme Court of India on
behalf of all drug consumers of India. By this, the petitioners seek to enforce the
fundamental rights of drug consumers under Article 21 of the Constitution for being
protected against hazardous drugs and for information about hazardous drugs
which are being manufactured and sold in India.
The petitioners have prayed to the court that it must give appropriate directions
to the respondents to ensure that banned and harmful drugs are not manufactured
or sold in India and that the consumers are properly informed and educated about
them. The following are the details of the petition:
I
Petition
Free market does not necessarily free the
consumer, rather it frees the marketer. Free
market does not mean more "choice", it
often means a larger variety in fanciful
products with exorbitant price tags. Just a
few years back one could purchase shoes of
reasonable quality for less than Rs.100.
Today there are a fanciful array of shoes
ranging from Rs.800 to over Rs.2000 and
beyond, but many cannot afford them.
*
*
*
*
*
And the type of shoes one was used to all
along are no longer available. Is that choice?
Now, think of the plight of people who
have limited - very, very, limited income,
with no perks, no health insurance and
with a pathetically inadequate Primary
Health Centre to pass off as a health care
provision establishment. With the new free
market thrust aren't we pushing her/him
into the middle of nowhere? But who
cares? Willy-nilly, the new marketing
thrusts will have pushed them into the
arena of "non-concem".
None is so blind as one who would not
see.
■
Anil Pilgaokar is presently a fellow of the
Ashoka Foundation. He is involved in
establishing a "Drug Information Centre"
for patients. He is a member of the Govern
ing Board of the Centre for Enquiry into
Health and Allied Themes (CEHAT),
Bombay.
24
*
*
*
*
•
issue appropriate writs and directions to the Respondents
directing the union of India and the Drug Controller of India to make
appropriate rules to ensure that the chemists and druggist prominently exhibit
the list of banned drugs;
directing the union of India and the Drug Controller to ensure that manufactur
ers of drugs print and attach with the product in vernacular language the caution
statement and contraindications of the product;
directing the Union of India and the Drug Controller to ensure that publishers
of Current index of Medical Specialities (C1MS) and Monthly Index of Medical
specialities (MIMS) publish the trade names of banned drugs and do not
recommend banned drugs, and publish along with the products particulars and
caution statement and contraindications;
directing the Drug Controller of India to send all Medical Centers and Medical
colleges in India notifications of banned drugs and caution statement and
contraindications of such drugs notified by the Drug Controller;
directing the Union of India to ensure that the electronic media such as TV and
Radio broadcast periodically and as often as necessary information regarding
banned drugs in generic names and in brand names;
directing the Drug Technical Advisory Board to meet regularly to review and
recommend the banning of drugs and make their reports public;
directing the Union of India and the Drug Controller to implement the ban
orders and prosecute those persons responsible for flouting the orders in a time
bound manner;
directing the Union of India to take immediate steps to get vacated any stay
orders in other courts which is impleading the implementation of the ban orders
of the Government;
pass any other or further order/s as this Hon'ble Court may see fit and proper.
November 17 '94 hearing
The Bench comprising Mr.Justice J J Verma and Mr.Justice K S Paripoornan
indicated that the court would like to appoint an expert committee of eminent and
credible specialists to go into the whole question and make a report to the court.
The next hearing has been fixed for the 9 th of January '95. The proposed commission
consists of Dr.N H Antia, Dr.Naresh Bannerjee and Dr.Nityanand.
Drug Action Forum, Karnataka
The Water We Drink
How Safe is it?
Anjana Das
Overthe years, the two major components
of drinking water, namely safety and ad
equacy are increasingly a problem in In
dia, according to ANJANA DAS. She
briefly discusses various avenues for
redressal for water related complaints.
afe drinking water is undoubted
ly one of the most basic needs of
citizens. Over the years, the two
major components of drinking
water, namely safety and adequacy, are
increasingly a problem in India, both in the
rural and the urban areas. Tire standards
laid down by the WHO for both these parameters remain as mere
ideals on paper. The WHO standards state that a person should
have 150 litres per capita per day. What we get in our cities
(possibly with the exception of Bombay) is a paltry 30 to 50 litres
per person and that too of extremely poor quality. 1 can say this
with authority with respect to Madras city.
While the reality is that no citizen can be assured of adequate
and safe water for drinking, it is also true that several crores of
development money is being put into schemes for water supply
and sanitation. Many of the schemes were initiated at the start
of the eighties. It is also appropriate to point out that many of the
urban water supply schemes are at the cost of impoverishment
of water resources of the rural areas. Even after much money has
been poured into mega schemes, only a very small percentage
has access to public water supply and that too of questionable
quality. There is an increasing demand for ground water, as the
municipal sources completely dry out in drought years. Yet in
a monsoon year, there is enough water to tide over several
drought years, provided a sound long term plan for water
management is adopted. The danger of sea water intrusion in
areas where there is over-extraction of ground water has never
been greater. Waterborne disease are endemic, especially in
unsewered areas and areas where sewer systems are very old
and irreparable.
Administrators therefore need to realise that the problem of
chronic water shortage and problems with water quality has
more to do with resource management. If we do not grasp this
basic truth, no amount of public funding can help solve water
crises.
Having handled water problems faced by Madras, let me
explain in brief, some of the more important ones. My illustra
tions would be relevant to any other city or suburb, as the
S
situation is much the same throughout the
country.
Waterborne diseases
Every year, around the rainy season,
waterborne diseases (cholera, gastro
enteritis, hepatitis etc.) strike thousands of
people, mainly from the poorer sections of
society. These diseases are caused because
people consume water contaminated by
sewage and other chemical pollutants. The
water distribution systems in the city are
several decades old, some more that 75 years
of age. The pipes are badly corroded and it
is very easy for sewage water to seep in.
In 1992 we carried out field studies and tests on water samples
in the wake of alarming press reports. Government agencies such as
the Directorate of Public Health had conducted tests and found 60
to 70 per cent of the samples to be unfit for human consumption.
Typically, the government officals responded with stout denials.
They did admit that the water supply was polluted in a few places
by the infiltration of sewage water, but said that this problem was
due to faulty house connections. They claimed that the water from
the distribution pipes was adequately chlorinated but, due to prob
lems with old and corroded house pipes, contamination took place.
Undeniably, faulty house connections do cause such contamina tion,
but it is not as though this is the only reason for poor quality drinking
water. Simple logic supports this statement. Almost all the people
affected by the epidemic are from the economically weaker sections
and do not have house connections. They have to depend on public
hand pumps for their water supply. This inevitably leads one to the
conclusion that the water from these pumps is, to a large extent, unfit
for consumption.
Short term measures
Typically, short term emergency measures were adopted in the
wake of the cholera epidemic.
It must be borne in mind that preventive measures such as
administration of cholera vaccine have negligible value. The bene
fits conferred by the vaccine do not justify the cost of delivery.
Another short term measure is the intense chlorination of water
supplies. This again is a short-sighted measure as the continued use
of chlorine as a disinfectant is known to add to the organic and
chemical contamination of water. Several studies have shown that
chlorination by-products can be mutagenic and toxic. Also, chlori
nation is a disinfecting procedure and cannot prevent bacterial
contamination.
25
VOICES, Vol II No. 3 1994
Keeping these factors in mind, what
earthly good is achieved by spending huge
amounts of money every year on emergen
cy measures while giving long term solu
tions the go-by?
The struggle for securing safe drinking
water has now fallen upon the mantle of
consumer groups. Recognising the serious
ness of this global problem, the Internation
al Organisation of Consumer Unions
(1OCU) proclaimed that access to basic
goods and services such as water is a con
sumer right. Today, citizens are far more
aware of their rights and this is finding
expression through the campaigns and lit
igation of organised groups. Most groups
are finding that their single major handicap
is the fact that information is simply not
available.
Public participation
Time and again we found that there is little
or no access to information on development
projects and even less scope for public
participation. The term public participation
is a highly abused concept. It is often used in
policy statements and project descriptions
as being necessary for the success of a project.
Experience shows that these are purely rhe
torical statements.
Realising the importance of public par
ticipation, organisations such as the World
Bank which funds several huge projects,
have published a booklet on its policy on
information disclosure. Activists would do
well to make use of the new trend in trans
parency to get as much information as pos
sible on projects which can be used as in
puts for action.
Almost all the people affected
by the epidemic are from the
economically weaker sections
and do not have house
connections.
What rights do citizens have?
The legal position with respect to clean
drinking water is derived from the funda
mental right to life under the Constitution
of India. In repeated holdings, the Supreme
Court of India has said that the unassailable
fundamental right to life of a citizen of India
includes the right to a good quality of life
with free air, water and decent living as
befits living a human being.
There are a number of provisions within
the pollution control laws and the Environ
ment Protection Act to protect the rights of
citizens to clean drinking water.
26
The different avenues available to the
public are (a) writ petitions for violation of
fundamental rights (b) criminal complaints
under the Criminal Procedure Code or (c)
under the environment protection legis
lations.
The Consumer Protection Act has
emerged as a quick, inexpensive method of
seeking redress. It provides remedies for a
wide range of public interest issues such as
protection from hazardous goods etc.
Unfortunately, it can be used only on selec
tive occasions where water problems are
involved. This is because the Act does not
recognise the payment of water tax (or any
other tax for that matter) as sufficient to
bring the matter to the consumer courts
against those responsible forsupplying and
distributing water. In some cities such as
Madras, however, the public pays a water
charge based on consumption. It is possible
to approach the consumer courts provided
one is able to prove beyond doubt that the
water supplied was of poor quality.
A blueprint for action
The task before us as consumers to gain
access to clean and adequate drinking is
mammoth. However, armed with the right
type of information, and with good plan
ning and execution of action plans and
campaigns, it is possible to get our govern
ments to act. The following points may be
borne in mind:
* Forming alliances with committed
government officials to improve the
capacity to tackle issues.
* Buildingupasoundinformationand
data bank on water supply and qual
ity.
* Performing the functions of infor
mation dissemination to the public.
* Building up the capacity to tackle the
issue from the start to a logical con
clusion.
■
Anjana Das is the Director of CAG, a citi
zen, consumer and civic action group. She
handles CAG's projects in the areas of
public health, development and safety.
What's Happened to Cinderella
and Her Sisters?
Consumerist Culture and Women
M Corinne Scott
Drawing parallels between Cinderella and
India's poor women exposed to the new
consumerist culture, CORINNE SCOTT
attempts an analysis of how these women
are likely to be affected by the rising
consumerist trend.
any of us have loved the
rags-to-riches fairy tale of
Cinderella, the ill-treated
heroine who succeeds in
marrying the Prince, and living happily
ever after.
Let me try to connect this well-known
story with the issue at hand - the current
growth of a consumerist culture in India, which has its own fairy
tale quality about it, epitomised in some of the responses to the
recent crowning of the two beauty queens, Sushmita Sen as Miss
Universe and Aishwarya Rai as Miss World of 1994.
It is fascinating to watch the creation and elaboration of this
contemporary Indian "fairy tale," through the orchestration of
the media and advertising industry, who have been working
overtime to highlight the glitz and glamour surrounding these
two beauty contests, focussing on the persons and roles of
Sushmita and Aishwarya, and the adulatory responses of the
public. Almost daily in the electronic and print media, we are
graced with/subjected to (?) images and interviews with one or
the other of these two queens, in their daily round of appearances
to inaugurate whatever, meetings with the high and mighty,
visiting children in orphanages, and of course giving their views
to the press on how they have reached the pinnacle of success,
and even on the meaning of life itself.
Reactions in India to the world-wide recognition of Indian
beauty cover a wide range - all the way from those who view with
pride this accomplishment, taking it as a symbol of India's arrival
on the global scene (at least in the beauty queen category), to
those who take a critical view of beauty pageants, and of the vast
disparity between Sushmita and Aishwarya on the one hand, and
the majority of India's women, labouring in the unorganised
sector and struggling for daily survival for themselves and their
families, on the other.
The first view is expressed in an article on the editorial page
of The Times of India of 5 December, 1994, "Not Just Skin Deep:
The Symbolic Value of Sen and Rai." The author. Jug Suraiya,
calls the victories of Sushmita Sen and Aishwarya Rai "symbols
of national pride, inspiring confidence in millions of Indians"
from divergent backgrounds and walks of life. To quote him,
"With Sushmita and Aishwarya, perceived exemplars of excel
lence, we won not just against the whole world, or even the wider
M
universe, but in a way we triumphed over
the terra incognito of our own unplumbed
potential, largely unexplored for lack of
self-confidence and self-esteem." He com
pares Sushmita and Aishwarya as icons
and potential role models, with Jesus Christ
and Mahatma Gandhi!
It does lead us to ponder whether In
dia's self-confidence and self-esteem on the
world stage are so low and/or that the
victories of these two women in the beauty
contests so significant that they can gener
ate a sense of national pride and boost our
spirits to such euphoric heights. Are they
like the touch of the magic wand of a fairy
godmother, which glosses over or charms
away the glaring disparities and inequalities between the elite and
the majority of ordinary women? Is our wish for and pride in
symbolic victories not simply an escape into a fairy tale world, from
which we will awake one night at midnight, to find our chariot and
horses turned back into pumpkin and field mice, and to see ourselves
in the rags, sweat, soot, and cinders which are the day-to-day reality
of toiling women in fields and urban slums?
A few futher questions need to be put to Cinderella herself:
Did she really live happily ever after, escaping from unpaid
household drudgery and abuse, through her marriage alliance with
the power of the kingdom? If so, was her leisure based on the
exploitation of the labour of other poor cinder-maids, her sisters?
Why didn't she ask her fairy godmother to transform the living
conditions of all cinder-maids? Did she take revenge against her
cruel step-sisters, as is shown in some versions of the story, or
forgive them and facilitate their upward mobility into the ruling elite
through marriage to lords of the court?
Miss child labour
Another view of India's victories in beauty contests is given by the
cartoonist Ponnappa in the Bangalore edition of Times of India, of
21 November'94. He has drawn a contemporary critique, managing
to capture in a single cartoon the irony and hollowness of the
crowning of Miss Universe and Miss World, which fail to acknowl
edge that India might also qualify to win titles such as Miss Child
Labour, Mrs. Construction Worker or Mrs. Labourer. During the
Miss Universe pageant in Manila, the Philippines, women's rights
activists protested the staging of this and other beauty contests, by
wearing sashes marked Miss Unemployment, Miss Landless, and
Miss Political Detainee.
In fact, the emphasis on the cult of physical beauty, which plays
such an important role in beauty contests in particular, and in the
consumerist culture generally, not only ignores and denigrates poor
27
VOICES, Vol II No. 3 1994
cesses of the consumerist culture function
for the purpose of furthering the goals of
economic growth within a capitalist
model of development. Though closely
intertwined, consumerist culture can be
seen to be distinct from the processes of
economic liberalisation and structural ad
justment per se. Here we wish to focus on
the particular impact which consumerist
culture is making on women within the
larger setting of India's stratified, unequal
society.
Consumerist culture
unjust
labouring women, but also tends to humil
iate those who do not measure up to the
current canons of physical beauty. Con
temporary "ugly step-sisters" of various
sizes and shapes still try to reshape or
mutilate themselves in conformity with
unrealistic and unhealthy standards of
beauty set by an elite including, among
others, fashion designers, advertisers, cos
metics and beauty-aids manufacturers and
sales promoters, organisers and contes
tants of beauty pageants.
Thus, the impact of the consumerist
culture on the majority of women in India
may be more of a nightmare than a sweet
dream, more of a horror story than a fairy
tale!
Ideological function
A more focussed analysis is required in
order to clarify the way in which consum
erist culture functions, and its particular
effects on different groups of women. As
distinct from the neutral term consumer,
the one who utilises economic, goods and
services, the terms consumerism and con
sumerist culture, as 1 understand and use
them here, serve an ideological function.
Seen as playing a very positive role within
the framework of India's current
programme of economic liberalisation,
consumerism seeks to increase the con
sumption of goods in order to further the
process of economic growth within a mar
ket oriented economy.
Consumerist culture includes consum
erist values:
• the acquisition and display of mate
rial goods determine and enhance one's
status,
• they promote happiness, and
• they stand as symbols and measur
able indicators of the good life.
Reference to the consumerist culture
also indicates the mechanisms and pro
cesses whereby this culture is promoted
and furthered. These include, first of all,
the conversion of wants into needs, fol
lowed by the social pressure of elite status
groups and/or peer groups to acquire con
sumer goods, as symbols of status and to
satisfy wants.
The power of persuasion
Envy of others who possess something
which the targeted consumer doesn't have
is one of the principal emotions appealed
to. Note a striking example of this ap
proach used explicitly (and offensively) in
the Onida TV advertisements, where the
devil personifies different forms of tempta
tion; he was recently shown among the
sculptured heads of past US presidents at
Mt. Rushmore in USA, with the slogan:
"World's envy - India's pride."
Based on the values and mechanisms of
consumerist culture, a whole range of ac
tors, including sales people, advertisers,
educators, and other agents, representing a
range of interests from private businesses,
voluntary organisations, to government
ministries, develop their strategies and use
the media to create a demand, and to
persuade, convince, pressure, and other
wise sell their products and services to the
targeted potential customer, the consumer.
The rapidly expanding and increasingly
sophisticated multinational advertising in
dustry and its Indian counterparts, the
"hidden persuaders", are the most crucial
actors.
These values, mechanisms, and pro
Broadly speaking, within India's constitu
tional commitment as a democratic, secu
lar, socialist republic, the increasing power
and attraction of the consumerist culture,
and the rapidly expanding selection of
goods and services available to the elite
consumer, at ever increasing prices, is gross
ly unjust, in face of the denial of the rights
of the poor to the basic physical needs for
survival. The rural and urban poor are
being increasingly deprived, through nu
merous mechanisms, including the
privatisation of land, water, fuel, and other
resources needed for subsistence, to which
they formerly had free access through the
commons. At the same time as access to the
means of subsistence is being restricted or
eliminated, the costs of purchasing now
monetised means of survival are becoming
farther and farther out of reach of the poor.
The major portion of the burden of
these processes, euphemistically referred
to as "economic structural adjustments,"
falls on women, who have to work longer
and harder to maintain their households at
the subsistence level.
Instead of wealth and the benefits of
economic development "trickling down"
to the poor, it would seem that they are
"flowing up" to the elite and the middle
classes. The Andhra voters' emphatic re
jection of these economic "adjustments,"
through the ballot box in recent state as
sembly elections, has not made a major
difference in improving their purchasing
power for basic needs. But it is clear that
much as the Congress Working Committee
may deny that the elections in AP were a
referendum on the Central government's
economic policy, a serious debate is under
way.
At least a brief mention needs to be
made of the macro-threat which the con
sumerist culture and lifestyles around the
world, but especially in North America
and Europe, pose to the very survival and
sustainability of our planet, and to the
quality of life of all its inhabitants - human,
VOICES, Vol II No. 3 1994
animal, and plant life. Heated development
debates, too complex to enter into here,
centre around inter-related issues of the
limits to growth, population explosion,
pollution and ecological degradation, con
sumerist lifestyles, a new world economic
order and sustainable development, within
the context of an unequal world. India's
course and direction in relation to these
issues cannot be set independently, of
course, but is shaped and conditioned by
global forces.
Differential impacts
Within the limitations of this brief article, it
is only possible to sketch a tentative frame
work within which to consider the differ
ential impacts of consumerist culture on
different groups of women, according to
their caste/class / location and their differ
ent roles; and to offer a few examples of
what women are experiencing.
For the most part, the consumerist cul
ture targets and feeds back into the lifestyles
and expectations of the upper 10-25 per
cent of the population, primarily the urban
upper middle and upper class. But it is
clearly not restricted to those who can
afford it, especially with the recent inva
sion of satellite TV and the products of
multinational corporations, under the ae
gis of economic liberalisation. Increasing
ly, the consumerist culture is shaping the
expectations of large segments of the pop
ulation, particularly the urban poor and
working class, and especially the young
among them. Women consumers too are
increasingly being wooed by advertisers,
who have woken up to the fact that women
area relatively untapped market within the
Indian context, susceptible to various en
ticements and forms of persuasion.
The negative impact of the consumerist
culture on women is nowhere more bla
tantly evident than in the phenomenon of
dowry, in which women themselves be
come commodities. The rising demands
for consumer goods and the status which
they represent often lead to continuing pres
sure and harassment on the bride's family,
long after the time of the initial marriage
and dowry negotiations. The bride/wife/
daughter-in-law is converted from a per
son with dignity and the right to life to an
instrument or pawn, for the extraction of
wealth. The ultimate extreme of this
commodification and instrumentality of the
consumerist culture is dowry murder.
Dowry demands, and the harrassment and
violence associated with them, cut across
castes, classes, religions, cultures, and re
gions of the country. And the spread of
consumerist culture and values has led to
the increasingprevalenceand value of dow
ry demands, even among those communi
ties where dow ry was not tradi tiona 11 y prac
ticed.
How are different groups of women
affected? A useful way of formulating the
discussion is taken from Diane Elson's
article, "Structural Adjustment with Gen
der Awareness?"1 Looking at different roles
or dimensions of women's lives, it is pos
sible to explore how various groups or
classes of women may be affected by
consumerist culture as well as by structural
adjustment, in their major roles - as pro
ducers, home managers, mothers, and com
munity organisers. (Elson does not men
tion women's roles as daughters and daughters-in-law.) Women's roles as consumers
cut across all these categories. Particularly
in her roles as home manager and mother,
she interacts positively and negatively with
other members of the household; she influ
ences and is influenced by them in their
roles as consumers too. These roles and
relations are shaped and ordered on the
basis of unequal relations of relative power
and powerlessness along gender lines,
within the family and in the community
and society. The way in which the most
basic commodity, food, is distributed un
equally among members of the family, in
order, amount, and quality, according to
gender, is a striking example reflecting the
relations of power and status.
Women as producers
The majority of women producers in India
are engaged in agriculture, either as land
less laborers or as small peasant cultiva
tors, and most others work in the informal
sector, where their earnings are far below
those of men. Much of the work women do
is unpaid, and therefore not visible in any
economic calculus. It is well-known that
around the world, women do two-third of
the world's work, but earn only one-tenth
of the world's income. Nevertheless, what
little women do earn goes almost entirely
into providing for the survival needs of the
household, while male members' earnings
are much more likely to be spent on per
sonal, non-essential, or luxury items.
Another important characteristic of
women's work, where her roles as produc
er, home manager, and mother overlap, is
that as many as 60 per cent of poor women
working in the informal sector are the sole
or main supporters of their households,
usually living at or below the subsistence
poverty line. These conditions put tremen
dous stress not only on women, as the
following story shows, but women are fre
quently the ones who absorb the shocks
and pressures, and carry on in the struggle
for survival of their households.
A vivid example of the pressures of the
consumerist culture on women and youth
in the circumstances of urban poverty ap
peared in a recent newstory, "Bombay
Schoolboy's Suicide over Shoes," (Times
of India, September 22, 1994) Mukesh, the
16-year-old son of a widowed washer
woman, was studying in ninth class in a
prestigious English-medium school in
Bombay, on a scholarship provided as part
of the school's efforts to help economically
backward families. Mukesh's first love
was cricket, and he was a good sportsman;
but to play on the team he needed special
shoes, which cost Rs. 800. . His mother's
promise to get him the shoes next month
couldn't satisfy the intense pressure of
Mukesh's expectations to be appropriately
outfitted for the cricket team. In utter
despair, Mukesh committed suicide by
swallowing rat poison.
The story writer did not reflect on the
impact of this event on Mukesh's mother,
and we can only imagine that she mingles
her tears with the wash water, as she
continues to wash and press clothes as
before, the death of her son breaking the
mother's heart but not her will and spirit to
carry on.
Women's roles as home managers and
mothers are becoming more and more
laborious, time consuming, hazardous, and
stressful, especially under conditions re
sulting from commercial and growth ori
ented development - privatisation of former
commons, pollution and degradation of
the environment, rural to urban migration,
and industrialisation. In the socially condi
tioned sexual division of labour, neither
men nor boys are willing or expected to
29
VOICES, Vol II No. 3 1994
help with gathering fuel and water, caring
for the children, processing food, prepar
ing meals, washing utensils and clothes,
keeping the house clean, nursing the sick,
and many other tasks which are considered
"women's work."
The consumerist lifestyle priorities fur
ther aggravate these processes, for exam
ple in the area of basic foodgrains. Ordi
nary traditional coarse grains, millets, and
pulses, such as bajra, jowar, makka, channa,
and many others, previously the staple diet
of the poor, which were much more nutri
tious, have become less available, and pric
es have soared beyond the reach of the
poor. The availability of pulses, the main
protein source of the poor, has decreased
from its peak of 75 gms per person per day
in 1959, to only 37 gms per person per day
in 1993. As voters, the women in Andhra
obviously responded to the Telugu Desam's
direct appeal of the availability of cheap
rice.
Consumerist lifestyles are also resource
and energy intensive, as well as polluting
and waste generating. Thus, as the de
mands of the powerful elite segments of
the population increase, and as expecta
tions and demands for more goods and for
energy spread more widely in society,
pressures increase on the environment and
on the already limited resources, facilities,
and services allocated to the poor. These
deteriorating conditions for the majority of
the population have strained women's
time and capacities to the breaking point.
Women as community
organisers
The fourth role enumerated by Elson, wom
en as community organisers, may be less
evident, because of the tendency to stereo
type women's roles as circumscribed with
in the home and family. Yet the women's
movement, in coining the slogan, "The
personal is political," has highlighted not
only the political, social, structural linkag
es and dimensions of the issues which
women have always been taught to see as
"only my personal problem"; it has also
helped to make visible the ways which
women have developed over the centuries,
in many different contexts, to be in solidar
ity with each other, and to resist domina
tion, marginalisation, cooptation, to cele
brate life, and to work for peace and
reconciliation.
In our own time and place, several
efforts of ordinary women within India to
organise against growing commer
cialisation and consumerist culture have
received international attention and recog
nition, and there are many others taking
place at local or regional levels which are
significant, although we many never have
heard of them. Among the best known are
the Chipko Movement in the U.P. foothills
of the Himalayas, and the anti-liquor agi
tation in Andhra Pradesh. In both cases,
women have organised around local issues
of urgent concern in terms of their and their
family's very survival: felling of trees by
timber merchants, which posed a threat to
Garhwali women's sources of fodder and
fuel (and may do so again, after recent
changes in government regulations); and
the easy availability' of arrack and the
alcoholism of male agricultural labourers,
which consumed major portions of their
meager earnings and left their families
destitute.
From confronting these immediate is
sues, both these movements have grown in
strength of numbers, in depth of analysis of
the causes, and in their linkages with other
concerns and with other movements. In
the process, they have made significant
contributions to shaping alternate visions
and understandings of development and
of political and social priorities. And their
commitment to participatory action to
actualise their visions is playing an impor
tant part in the reshaping of politics in both
the Uttarakhand region and in Andhra
Pradesh. Acknowledging their obligation
to women voters in particular, the first act
of the newly installed Telugu Desam gov
ernment in Andhra was to introduce pro
hibition.
This wisdom of ordinary women,
which challenges the presuppositions and
directions of the consumerist culture, can
be seen in the well-known songs and say
ings of the Chipko Movement
What does the forest bear?
Soil, water, and pure air.
Soil, water, and pure air
Sustain the earth and all she bears.
Planning without fodder, fuel, and water is
one-eyed planning.
There are some lessons for all of us
from this discussion of the impact on
women of consumerist culture. Instead of
the symbolism of the role models of
Sushmita Sen and Aishwarya Rai as India's
contribution to a new global order, we
would do far better to lift up the images of
these two movements of women's solidar
ity in the struggle for life against the forces
of death and destruction, as the Chipko
Movement chooses to portray their cause.
And instead of wishing for a fairy
godmother to transform the misery and
cinders of modern day Cinderella and sis
ters into beautiful gowns and fragile glass
slippers, symbols of consumerist culture
and lifestyles, in which to try to escape to
some fairyland utopia, we would do better
to follow the example and lead of ordinary
labouring women, emulating their determi
nation to resist domination and cooptation
and to affirm a more just and equal model
of society.
M Corinne Scott is a lecturer in the Diplo
ma in Christian Service course at United
Theological College, Bangalore, and is ac
tive in the women's movement. She has
worked with slum women in Madhya
Pradesh, and has done a research study on
their oppression and their sources of
strength.
References
1
Elson, Diane, "Structural Adjust
ment with Gender Awareness?"
Indian Journal of Gender Studies,
1:2, July-December'94
2
Health for the Millions, 1:6, De
cember 1993, Theme: Lifestyle Re
lated Disorders
3
Kolbenschlag, Madonna, Kiss
Sleeping Beauty Good-Bye: Break
ing the Spell of Feminine Myths
and Models. San Francisco: Harper
and Row, 1979.
4
Mies, Maria, "Capitalist Develop
ment and Subsistence Production:
Rural Women in India," in Mies, et
al. Women: The Last Colony. New
Delhi: Kali for Women, 1988.
5
Suraiya, Jug, "Not Just Skin Deep:
the Symbolic Value of Sen and
Rai," The Times of India. 5 Decem
ber, 1994.
6
1 D. Elson, "Structural Adjustment
With Gender Awareness?" in Indi
an Journal of Gender Studies, 1:2,
July-December, 1994.
We Pay to Learn
Consumers of Educational Services
Srinivas Narayanswami
Our present day educational systems both
formed and non-formal, remain services
on payment of charges, yet according to
SRINIVAS NARAYANSWAMY there is
some ambiguity about its coverage within
the scope of the Consumer Protection Act.
he New Education Policy (NEP)
in the second half of the 1980s
opened the flood gates for self
financing (unaided by govern
ment) private educational institutions at all
levels from pre-primary to university. Thus
started "commercialisation" of education in
independent India. Self-financing schools,
colleges, engineering and medical teaching institutions of all
hues mushroomed, all with government approval but without
control. This resulted in sub-standard institutions everywhere
who demand exorbitant fees. Adding fuel to fire, almost all of
our universities vie with each other in conducting "Distance
Education" programmes to fill their coffers. They have even
started courses on "computer technology" through correspon
dence!
Barring very few institutions of this type, they lack basic
infrastructural facilities. Crowded classrooms, ill-equipped li
braries and laboratories, incompetent teaching staff and other
student amenities, are common features of these institutions, and
all at very high cost. The service-cost ratio in these institutions is
not proportionate. Especially in tire wayside "Computer Schools".
They are a law unto themselves with practically no control by the
authorities. They periodically conduct examinations after collect
ing hefty fees but seldom publish results in time. Even if results
are published, mark sheets/grades are not sent in time. A good
number of cases on this score are before Consumer Disputes
Redressal Fora all over the country.
The Consumer Protection Act 1986, defines service (Section 2 - Sub Section - O) as follows: "Service" means service of any
description which is made available to potential users and in
cludes the provision of facilities in connection with banking,
financing, insurance, transport, processing, supply of electrical or
other energy, board or lodging or both, housing construction,
entertainment, amusement or the purveying of news or other
information, but does not include the renderingof any service free
of charge or under a contract of personal service. The list is not
exhaustive but is only inclusive in nature.
Education is primarily dissemination of information by a
person and receiving it by another. The relationship between the
teacher and the student is not that of a master and servant and
hence not a contract of personal service.
T
Education : Within the
purview of CPA
Present day education, be it primary, sec
ondary, tertiary, or professional level, is
paid for either by the recipient (student)
himself/herself or by the parents/guardians. The beneficiary is the student. The
information(education)thestudent receives,
though not a tangible good, is for a personal
consideration.
Section 2 (d) (ii) defines a consumer as
follows, "consumer means any person who
hires or avails of any services for a consid
eration which has been paid or promised or
partly paid and partly promised or under
any system of deferred payment and in
eludes any beneficiary of such services other than the persons who
hires or avails of the services....".
Hence, by all norms of the Act education through information
paid for, is a service.
Deficiency inservice as per the Act means any fault, imperfection,
shortcoming or inadequacy in the quality, nature and manner of
performance which is required to be maintained by or under law for
the time being in force or has been undertaken to be performed by a
person in pursuance of a contract or otherwise in relation to any
service.
Thus it may be seen, that all aspects of our present day education
al system can be termed as a "service paid for", and the receiving of
education is for a consideration.
Fees for admission, tuition, examination as well as laboratory
fees, convocation fees and other fees for issue of various certificate/
degrees/diplomas are paid for an expected service and the service
is also for a specific consideration. If there is any delay or deficiency
in service, the recipient is put to inconvenience, loss etc. Hence it
becomes consumer grievance.
Misunderstood judgement on education
There has been quite a lot of controversy generated by press reports
that education has been taken out of the purview of the CPA. These
reports would have the public believe that all matters relating to
education - admissions, delay in publishing results, poor tuition
facilities, and the many other problems that plague our education
system can no longer be taken to consumer disputes redressal fora.
In fact, even some State Commissions are refusing to admit cases on
educational service without clearance from the National Commis
sion on this issue.
It all started with a complaint filed by a consumer group before
Maharashtra State Commission claiming compensation for wrong
> Continued on page 40
31
Pro-consumer Contracts?
Insurance Policies
Neelam Alwin George
The Consumer Protection Act offers a ray
of hope for those who opt for insurance
policies, saysNEELAM ALWINGEORGE.
However, according to hera lot more needs
to be done to ensure insurance contracts
are in reality pro-consumer.
nsurance basically is a cover against
risks and adversity. It can be against
death or disability, accident, theft and
burglary, fire, loss of property, life
insurance and general insurance.
Experience in the field over the last 16
years has indicated that largely because of
state monopoly, life insurance has been
predominantly savings-oriented and not risk oriented, as a result
of which those who need cover against the contingency of death
with the lowest cost and who do not have investible surplus are
denied individual insurance cover to suit their needs.
Another feature which has been noticed is that insurance
organisations are keen to procure business and they are equally
keen to reject the claim. The most common ground used for
rejecting the claim is a standard phrase - "non-disclosure of
material fact", a mechanical non-application of mind.
Apart from loss, hardships and cost to the claimants, insur
ance has, like several others in the country, standard forms of
contracts where a number of conditions are unilateral and anti
consumer. Consumer has no choice except to take it or leave it.
These conditions of contract when strictly and technically
enforced by the insurance organisations cause enormous but
avoidable hardships to the claimants, who are generally weeping
widows, helpless minor children and old ailing parents, in case
of death of insured.
In the Indian context, it gets compounded in view of the
expensive and time consuming judicial system.
Some ray of hope is the Consumer Protection Act and the
quasi-judicial machinery set up thereunder.
In 1986 a 24-year-old youth took an insurance policy. In 1987
he met with an accident in which he lost both his legs. He
suffered physical agonies and financial strain. In 1993 he learnt
from a friend that the policy amount is payable not only in the
event of death but also in the event of permanent disability. He
checked his policy, realised his folly and submitted his claim in
1993 with Life Insurance Corporation of India (LIC). The claim
was rejected on the ground of delay. This is a true life story of the
pathetic experience of a youth. The major lapse on the part of this
youth was that he had not read the policy conditions when he
took the policy.
I
32
The insured have suffered considerably
owing to failure on their part to either read
the policy conditions or understand their
implications. Reliance on competence or
understandingof agents have often exposed
them to harassment and unnecessary litiga
tions. The interaction between the agent
and insured at the time of taking the policy
being an oral dialogue leaves the insured
practically defenceless as far as representa
tions madebythe agent are concerned. The
proposal form and other documents are
practically filled in by the agent and the
insured merely signs it. However, the dif
ficulties faced by the insured are not re
stricted to the conduct of the agents.
Common complaints
Some of the major areas where those insured suffer, relate to
* High premium and low returns
* Unfair and arbitrary policy conditions
* Delay in issue of policy
* Delay in settlement of claims
* Unjustified repudiation of claims
* Ineffective internal dispute settlement machinery
• Nominations and procedures etc.
* Litigations
These issues arise in life and general insurance. Life insurance
business is the sole monopoly of LIC and general insurance business
(insurance other than life) is the sole monopoly of General Insurance
Corporation of India (GIC) which is conducted through its subsidiar
ies namely the New India Assurance Co. Ltd., United India Insur
ance Co. Ltd., Oriental Insurance Co. Ltd. and National Insurance
Co. Ltd.
An overview of the machinery provided by Consumer Protection
Act, 1986 (CPA) is presented vis-a-vis insurance, which will enable
the reader to understand his rights and obligations. An insured is a
consumer within Section 2(1) (d) (ii) of CPA The insurer provides
service of insurance to the insured (consumer) within section 2 (1) (o)
of CPA for consideration (payment by insured by way of premium).
Conduct of insurance business by GIC and LIC which are instru
mentalities of state (state agencies) does not exempt them from their
obligation under the CPA.
Grounds of complaint
A consumer can file a complaint with theConsumer Dispute Redressal
Agencies (CDRA) against the insurer on following grounds:
1. Insurer is guilty of an unfair trade practice. For example,
- misleading representations with regard tobenefitofascheme
VOICES, Vol II No. 3 1994
2.
3.
- false representations by agents
- failure to fulfil promises made etc.
The service provided by the insurer is
deficient in nature. For example
- delay in settlement of claim. It has
been held that three months is rea
sonable time for settlement of a
claim.
- unjustified or illegal repudiation (re
jection) of a claim is deemed as defi
ciency in service, as is unjustified
reduction claim amount.
Insurer is guilty of a restrictive trade
practice. An example of this is the tie
up practice, where a policy condition
requires the insured to avail of scheme
"A" cumpulsorily, if he wants to avail
scheme "B".
Reliefs awarded
The insurer can be ordered to remove the
deficiency in service. If a claim is rejected
illegally or on account of irrelevant consid
erations the insurer can be ordered to settle
the claim.
The insurer can be restrained from adopt
ing unfair trade practice (UTP) or restrictive
trade practice (RTP) and also ordered to
refrain from continuing the UTP or RTP in
future. Such an order is known as cease and
desist order.
If policy conditions are vague and give
the insured the impression that they are
covered for a particular contingency, and in
practice at the time of claim the insurer
interprets the conditions to their advan
tage, such a practice is a UTP and cease and
desist order can be issued.
One such condition is in medi-claim
insurance policy. "The liability of the insur
er is excluded with regard to all pre-exist
ing diseases when the policy first com
menced."
This clause gives the insurer the liberty
to exclude liability for any conceivable dis
ease. In practice not only the pre-existing
disease but also a disease arising out of a
pre-existing ailment is excluded and claim
rejected.
In a case with Consumer Ed ucation and
Research Centre, Ahmedabad (CERC) the
insured took the medi-claim policy in 1986
which was renewed yearly. In 1988 he was
hospitalised for heart ailment. The claim for
Rs.3500 was settled and the policy thereaf
ter, renewed yearly. In 1993 the insured
underwent open heart surgery. Claim for
Rs.35,000 was rejected. The grounds were:
a) The insured was suffering from diabetes
in 1986 when the policy first commenced
and pre-existing disease is excluded.
b)The insured had not disclosed the mate
rial information regarding pre-existing
disease.
Even if one presumes that the insured
was suffering from diabetes in 1986, the
claim in 1993 was for heart surgery and not
diabetes. The crucial question is can the
insurer be given the liberty to exclude their
liability widely and also link diseases? Such
exclusions will leave the insured practically
uninsured.
Second question in this case is, can the
insurer after settlement of a claim earlier
accept the premiums, continue the policy
for 4 years knowing the nature of ailment
the insured is suffering from and then repu
diate the claim on the ground that material
information is not disclosed.
Such practices are unfair to the insured
and consumers have to fight them tooth
and nail. CERC is taking up this case with
CDRAs.
A review of thecases decided by CDRAs
reveal that in several cases the claims are
rejected because the officials fail to appreci
ate of the corporations the consequences of
Major conflicts
Some major controversies are discussed
which illustrate the difficulties encountered
by the insured. Though majority of the
cases which have attained controversy re
late to life insurance, the underlying princi
ples and similar practical difficulties are
also encountered in general insurance cas
es.
Non-disclosure of material
fact
Majority of insurance claims are repudiat
ed on the ground of non-disclosure of ma
terial fact. Section 45 of the Insurance Act,
1938 provides the guiding principle on this
aspect. The underlying philosophy is rele
vant for other forms of insurance also, espe
cially medi-claim insurance where the non
disclosure pertains to physical ailments of
insured.
In Mithoolal vs. LIC, 12962 Supp. 2 SCR
pg.571, Supreme Court laid down three
principles of a claim on this ground.
The statement must be on a material fact
or must suppress facts which are mate
rial to disclose.
(ii) The suppression must have been
fraudulently made by the policy holder.
The
(iii)
policy holder must have known at
the time of making the statement that he
suppressed material facts which should
have been disclosed.
Thus the non-disclosure must be mate
rial and fraudulent. As per section 45, non
disclosure of facts which is not material and
fraudulent cannot be relied upon by the
insurer after expiry of two years of the date
of policy.
(i)
Insurer, agent and insured
the Corporation's unsympathetic approach,
unnecessary harassment etc. It is therefore
imminent that the officials "responsible for
the harassment of the insured ought to be
accountable for the lapse on their part. In a
landmark case Supreme Court of India ob
served, "The authority empowered under a
statute while exercising power discharges
public duty. It has to act to subserve general
welfare and common good". The court
observed that if exercise of power is capri
cious and results in harassment and agony,
then exemplary damages (compensation
for harassment) awarded to the consumer
should be paid out of public funds immedi
ately and the department should be direct
ed to recover the same from those who are
responsible for such unpardonable
behaviour.
The relationship amongst the trio has raised
questions of law and fact. In CERC &
Jaswantrai Shah vs. LIC this relationship
was exposed. The insured obtained four
insurance policies for a total value of Rs.l
lakh from a general agent of LIC. He had
paid two half-yearly premia on 06.06.86
and 06.09.86. The payment for the third
half-yearly premium was due on 06.03.87.
He paid a bearer cheque for Rs.2,730 on
04.06.87 to the agent but the agent did not
deposit the cheque with LIC. The insured
died in a road accident on 09.08.87. On
hearing about his death the agent deposited
his cheque on 10.08.87. LIC repudated the
claim treating the policy of the deceased as
lapsed. CERC filed a complaint on behalf of
the deceased as lapsed. CERC filed a com
plaint on behalf of the widow before the
Maharashtra State Commission, which di
rected LIC to settle the claim in relation to
33
VOICES, Vol II No. 3 1994
four insurance policies. It held that pay
ment to an agent of LIC is valid, payment to
L1C and the company is liable for wrongful
act of its agent. Tire agent while collecting
the premium acted within the apparent au
thority.
This decision was reversed by the Na
tional Commission. It held that as per LIC
rules, the agent is authorised to collect only
the first premium. LIC is not liable for
failure on the part of agent to deposit sub
sequent premia.
In practice it is seen that agents openly
collect premium on behalf of the insured, in
Life and General Insurance policies. Sever
al such instances have come to light. In
sured suffers due to the misconduct of the
agent and the Insurer repudiates the claim.
This aspect has to be resolved by law. This
problem will be aggravated once the insur
ance business is privatised, if the relation
ship of the trio is not clearly defined.
Representations for
repudiated claim
In the case of life insurance, representations
for repudiated claims can be made to the
Claims Review Committee, which is at Cen
tral and Zonal levels. In the case of general
insurance, there is no specific body. How
ever, representations can be made to higher
authorities.
Delay in issue of policy
It is common knowledge that there is con
siderable gap between date of payment of
first premium and the date of issuing the
policy. Though, when the policy is issued,
risk can be covered retrospectively, the dis
pute arises when the contingency (risk cov
ered) occurs after the payment of the first
premium and before the policy is issued.
Insurance companies argue that in such
cases the contract is not concluded and the
risk is not covered during this period. This
approach adversely affects the insured, and
principles of liability of the insurer in such
cases have to be evolved.
Inadequate information
The literature provided by the insurer and
the explanations provided by the agents
does not often communicate the implica
tions of policy conditions. A classic example
of this is the case of CERC & Sanjay
Kothari vs. LIC. The deceased got married
in 1966 and on 20.07.68 she delivered a male
child in U.K. She died on 22.07.68. The
claim was not honoured by LIC.
In 1986 the male child attained the age of
18. On 27.02.89 he filed a claim with LIC but
was unsuccessful. A complaint was filed
on 15.05.91 with Gujarat State Consumer
34
DisputesRedressalCommission. Itordered
payment of Rs.10,000 with interest for last
three years and damages of Rs.3,000.
The Commission observed that the preg
nancy clause was not applicable in cases
where the insured was expected to go to a
qualified doctor. It further observed that
even if the clause was applicable it could be
waived by LIC.
The fact that the application of the first
pregnancy clause could be excluded by
payment of extra premium of Rs.5 per
Rs.1,000 was not disclosed by the insurer.
The insured had the right to be informed of
this important right. Though the Commis
sion upheld the right of the insured to be
informed about the exclusion and fixed the
liability of the opposite party to pay the
claim amount, the interest awarded could
not be limited to last three years only.
The National Commission has
upheld the decision of the Gujarat State
Commission.
Whether the insurance business is privatised
or not, the fact remains that the insurance
companies have to introspect and review
their service standards. In the event of
privatisation, the performance standards
would be particularly relevant. Insurance
business being an industry clothed with
public interest, needs to be regulated with
regard to the fairness of policy conditions,
standard of performance, role of agents etc.
The regulatory authority suggested is not
to police the insurance companies but to
ensure a code of conduct in public interest.
Conclusion
* Read policy conditions
* Ask for clarifications in case of doubt
* Preserve premium receipts and oth
er documents such as copy of pro
posal form filled by you.
’Follow up issue of policy
* Pay premia in time
•Do not pay subsequent premia
through agents
’Give appropriate nominations and
inform nominees preferably give a
copy of policy to the nominee
’In case nominee is a child give ap
propriate authorisation to trusted
person
’ File claims in time
’ If claim rejected, file complaint with
in 2 years from date of rejection
» Preserve all correspondence
The issues discussed reflect the prevailing
approach of insurance companies, which
is primarilydue to lack of competition. Life
Insurance and general insurance business
was nationalised in 1956 and 1972 respec
tively with the objective of protecting the
insured against the arbitrary practices of
the insurance companies. It was expected
that instrumentalities of state would carry
on the insurance business as trustees of the
insured, having social responsibilities.
It was also expected that the insurance
business would be carried on sound busi
ness principles and its benefits passed on to
the insured by way of low premia and high
returns. However, the expectations have
been belied and the alternative of
privatisation put forth by various factions.
■
Neelam Alwin George is Legal Research
Associate at the Consumer Education and
Research Society (CERC), Ahmedabad.
Caution for insurance
consumers
A Growing Consumerist Culture
What Does it Cost Our Children?
Meher Marfatia
Popular consumer oriented status sym
bols is what parents seek to adopt and
transfer into their children's lifestyle,
says MEHER MARFATIA. This has a
significant impact on children and ado
lescents and it may be too much too soon
for them.
hat does a me-first genera
W
tion fired by an overriding
ambition do? It overly in
dulges the next generation.
And the one after. And so it goes on. One
is presented today with the perfect climate
for a reign of aggressive consumerism.
While at least a section of the adult population can handle it
somewhat maturely, it is children and teenagers who lie in
danger of being completely under its spell.
The consumer boom has obvious origins in both economic
and social factors. Thanks to liberalisation opening up the
country to the rest of the financially thriving world, the
spending power of the middle class has spiralled to great
heights. The new affluence in tandem with a growing need for
societal approval for having "arrived", has equated clocking
material benefits with achievement milestones. Sadly enough,
such a dramatic change has resulted in placing the child at the
focus of the consumption pattern of upwardly mobile parents.
Changing times
According to Simonil Forbes, a psychotherapist and counsellor
working with children in Bombay, it is no novelty to discover
that children will always be perceived as being very different
from a previous generation. "Times can only keep changing,
and should. Nothing must remain static. Anyway, what has
happened is that we grew up in a far more parochial environ
ment, without the media revolution which has now totally
transformed kids' awareness on various fronts."
On the positive side this exposure has unlocked certain
avenues once unavailable for exploration. The problem creeps
in when there is an absence of a proper value system that
informs a young person about what ought to be absorbed and
what thrown out with discrimination. These values, Forbes
believes, are instilled through healthy interaction within a
family where parents share a sound rapport, and are more good
friends with their children than anything else. The ideal
situation for this to come about favours either one parent
working on a part-time basis (if means permit this arrange
ment), so that children are seldom left entirely neglected. "It's
security alone, that will build a child's selfesteem, convince him or her that what's
important are human qualities, not posses
sions. A budding identity is finally going
to be determined by the time and effort
parents give to those crucial years," she
concludes.
There are no dearth of instances illus
trating her point. In a well-to-do south
Bombay nuclear family an ll-year-old and
his nine-year-old sibling regularly run-up
credit accounts with a dial-a-pizza
takeaway counter.when they entertain
school friends two to three evenings a
week. An industrialist father and socialite
mother obligingly settle their bills at the
end of each month.
Educationist Gloria de Souza, responsible for introducing
environmental studies into the curriculum of several schools in
Maharashtra and Gujarat, is disturbed by the eroded values parents
let go unnoticed. "Even a noble concept like Teacher's Day is made
crass by commercialisation. Come September 5 and shops are
flooded with special cards and elaborate gift hampers which in no
way reflect a child's true feelings towards the teacher. Everything
becomes a commodity with a price tag. It's literally playing with and
trading in young emotions. But supply is definitely dependent on
demand. When parents themselves buy such presents to make an
impression, they are actually allowing the children to think that love
may be communicated with money.
De Souza goes on to explain how Mother's Day, Father's Day and
Valentine's Day are also similarly exaggerated in a manner wholly
unrelated to real caring. False wants feed an industry that rakes in
high profits without a thought to the accompanying corruption
setting in.
Reams of accounts have documented and discussed the adverse
impact of sex and violence witnessed in cinema and music videos.
The magnetic hold these powerful media have over children and
adolescents, particularly, is too well known to be dealt with here.
Rising status consciousness
What, in current terms are popular consumer-oriented status sym
bols? The answers are provided by a cross-section of observant
mothers, teachers, other childcare experts and - most relevantly children themselves. Cars, birthday celebrations, designer clothes,
shoes, fashionable holiday destinations and, of course, expensive
schools chosen mainly for the parents' gratification.
Believe it or not, snob appeal makes even kindergarten toddlers
differentiate between all manner of cars - there are gradations which
make them think it is infra dig to own a Fiat when one could be driven
35
VOICES, Vol II No. 3 1994
around in a Maruti at the least. Three-yearolds are actually able to tell a Maruti 800
from the 1000 model and the latest, the
Esteem, from the Maruti LJdyog stable.
Foreign cars, naturally, are considered the
last word here.
Birthday celebration parties verge on
the ludicrous, with "theme parties" being
the rage. For a millionaire's ranson you
have access to professional party organisers
putting up a show for the evening. Dino
saur, WWF (World Wrestling Federation,
not the World Wildlife Fund which may
well have been the happier choice!) and
Barbie Doll parties are the most heavily in
demand at the moment, and create an
atmosphere of artificial spending.
"The harm," notices psychologist
Madhavi Gupte, "occurs when parents
face a dilemma about, say, sending their
daughter to a Barbie party. If each little girl
is expected to carry her own doll, a family
which doesn't have this toy is obviously
going to be gripped by the need to prompt
ly buy one. It's a vicious cycle involving
vulnerability to suggestion, which media
specialists exploit to the fullest." It is, in
fact, interesting to know that in advertising
jargon children are referred to as "the
pester crowd", and a campaign according
ly tailored to be attractive enough to pro
mote a craving unknown till then.
Appearances matter
Another major area that the consumerist
lifestyle has radically altered is clothes. At
the centre of a new breed of child-product
industries, readymade garment manufac
turers are contentedly laughing their way
to the bank as cash counters jingle contin
uously, registering the success of their
merchandise. Double income-earning fam
ilies think nothing of wasting vulgar sums
of money for equally tasteless clothes only
sought for the prestige of the designer tag
attached to them.
As the general manager of an upmarket
department store in a north Bombay sub
urb inhabited by the nouveau riche reveals,
brand names do roaring business because
of peer pressure operating at school and
junior college levels. It was only yester
day's child who unquestioningly accepted
the clothes handed to him/her. Easier
access to trips abroad has heightened the
average child's consciousness of what is in
vogue elsewhere in the world, and s/he
begins clamouring for the same.
"Why is it," asks one perceptive moth
er, "that over and above the fancy clothes,
electronic toys, computer games and video
gizmos bought for kids these days, there
are still absurd amounts of pocket money
doled out too? Are children ever likely to
36
learn the worth of things then? Small
denials no longer seem part of the bringing
up process of children." Her sentiments get
precisely to the root of the matter - parental
attitudes. Consider the following situa
tions.
At a playschool in Bombay two moth
ers exchange notes while waiting to collect
their daughters. It is halfway through the
term, yet it is the first day that one of them
has seen the set-up for herself - a garage
converted to cram a number of listless
children. She wishes the maid had told her
how dull and dingy the place is, "but I can't
believe this, considering who's running it".
Who's running it is a well-known socialite,
admission to whose school is fast becom
ing de rigueur.
A tired housewife recently decided she
would have to employ a second driver
though her husband already has one with
the company car. There was the nagging
question of ferrying her primary school
Reams of accounts have docu
mented and discussed the adv
erse impact of sex and violence
witnessed in cinema and music
videos. The magnetic hold
these powerful media have over
children and adolescents,
particularly, is too well known
to be dealt with here.
going children all over town to six different
kinds of classes between the two of them.
Painting, pottery, ballet, cookery, music
and craft. Since one was at Colaba, another
at Breach Candy, a third atWorliand so on,
she could hardly spend her day going back
and forth at various times. She quickly
solved the problem. Hiring another chauf
feur specifically for this purpose.
Even junior school functions have ac
quired a new dimension now, with compe
tition replacing fun. At a so-called fashion
show for these children, mothers spent
upto a cool couple of thousands on design
er outfits specifically ordered for the occa
sion from a leading city boutique.
Anxious parent syndrome
Underlying the three examples cited is the
"anxious parent syndrome". One where a
particular set of priorities suddenly has
mothers making the youngest of children
rush around madly "doing interesting
things", so that practically every waking
hour of their day is structured with them
attending some or other class. If not being
whisked off for all these activities it is
almost suggested that scant attention is
being paid to their formative years, ob
serves a mother who refuses to fall in with
this band of status symbols - her own
children have learnt just elocution and
yoga for years.
Whatever happened to good, old-fash
ioned playing in the park or curling up
with a book to read? Or, for that matter,
spells of doing nothing at all? Child-care
experts say there is much to recommend
the last mentioned, what has been de
scribed as "mental staring" by humanities
educator Joseph Chilton Pearce in his
pathbreaking book Magical Child. Here,
a section exploring the cycle of creative
competence states: ".... the child needs
solitude and quiet. Just as they (parents)
must avoid exposing the child to sensory
overload, they must avoid overloading
his/her life with demands. S/he needs
long stretches of unfilled time for mental
staring." It is this unique idea of conceptu
al staring, as defined by the writer, that
paves the way for full sensory discovery so
essential to shaping intelligence. It is giv
ing a chance to thought for thought's sake.
This is thinking about thinking, as it were.
Stifling such reasoning is not the only
casualty of the current trend of little eager
beavers raging around "to do". There is the
significant fear of a warped value system
headed by the keeping-up-with-the-Joneses
attitude that can easily be imbibed at an
early and impressionable age by the child
from a parent. With strong views on the
subject, Binaifer Karanjia, professional
stained glass artist at The Design Studio,
remarks, "Everything is geared towards
achievement today, but at what risk? Put
a child in an exclusive play school but find
out, is it safe? Like several pricey places
they can be nothing short of breeding
grounds for infections." Her children so
far have swimming scheduled for their
recreation, with perhaps another sport such
> Continued on page 40
A World of Make Believe
Advertising
Ajit Mani
It surely is a matter of concern when adver
tising sells fantasies and lifestyles rather
than of f ering information on products and
services, according to AJIT MANI. Adver
tising should help the consumer make an
informed choice, but in reality misleading
advertisements abound.
dvertising is reported to be
growing at a rate of 40 per cent
per year and it seems like there
is no looking back. Here we
will examine the implications of the current
wave of advertising that has followed the
mushrooming of consumer products in the Indian market-place.
Our ministers tell us that the process of liberalisation and the
dismantling of the permit/licence raj is irreversible.
Participation in the global economy by means of modern infor
mation technology has given consumers access to choices with
considerably reduced regulation and control by the Government.
The power of advertising and the scramble for the customer's
attention and money raises the inevitable question, "Does advertis
ing really serve the interest of the consumer?"
A
New products and brands
Our shops are now full of new brands and new products, with high
quality standards and assurance.
Although some of us have no sympathy for the bureaucrats
who tried to tell multinationals in what sectors and product lines
they could invest, we do worry about the numerous brands of
bubble-gums, soaps, cigarettes and men's shirts that are appearing
on our shop counters.
When several manufacturers begin to offer similar but not
identical products, the quest for the customer's fancy and money
begins in right earnest. At this point, advertising is summoned as
the fairy Godmother who will turn a pumpkin into a coach and
even a Cinderella into a beautiful princess.
Consumer reasearch, creative skill, technological advantage
and management are combined to emphasise the uniqueness of a
product, referred to in marketing and advertising jargon as "Differ
entiation".
Product improvement and differentiation
Product improvement is one of the consequences of competition.
Those firms which intend to remain in business have to constantly
ensure consumer satisfaction in terms of product features and
technological advancement.
For almost half a century, the
Indian customer was forced to buy the
Ambassador car with little or no product
improvement, and indifferent quality in a
seller's market. With the arrival of Japanese
technology, Hindustan Motors has been
experiencing loss of market share and is
reported to be weighing the possibility of
going into collaboration with General Mo
tors of the USA.
If advertising can put obsolete technology
and shabby workmanship out of business
and create demand for new brands which
embody state-of-the-art technology, we must
agree that it certainly serves the interest of
the customer.
But this is one side of the coin. Product differentiation gives a
producer a degree of power, normally associated with sole suppli
ers of a product. Advertisers tell us that branding is a guarantee of
quality maintenance and reduces the time a consumer would
normally have to spend before making a "rational" purchase.
However, we are also aware of the magnetic "pull" of some care
fully tended brands like Colgate and Bata and sometimes wonder
if w'e were really "in command" of purchase decisions connected
with such brands.
Product Improvement adapts the product to consumer demand,
while Product Differentiation, with the help of advertising, adapts
consumer demand to the product!
Real and imaginary differences
We have every right to be happy about the real differences of one
product over another, which is highlighted by advertising. This
could include information about new features, and technological
improvements or cost advantages. But what of the imaginary
differences?
A research study conducted recently had teenagers complain
ing about the promise made by a chewing gum called Centre-Fresh,
whose ads had visuals of syrupy material coming out of the centre
of a piece of chewing gum. "That's not real. It has no such juicy
centre. And the flavour doesn't last for long. It's not worth seven
rupees." One of the participants said that he would not complain if
the product cost only five rupees.
At the 84th Annual Meeting and Conference of the Association
of National Advertisers in 1993, the President, De Witt F.Helm Jr.
said, "An advertising campaign may be an improvement in
communications, but not an improvement in brand".
During 1993, in the USA, it was noted that many manufacturers
had raised retail prices beyond the value associated with the brand
by consumers. Philip Morris was cited as having made deep cuts in
37
VOICES, Vol II No. 3 1994
the retail priceof its flagship brand Marlboro,
to recover sales lost to cheaper cigarettes.
In a Focus Group discussion which was
part of the same study mentioned above,
one young lady said that a certain shampoo
"really delivers the promise made in the
advertisement." The "promise" was that
the shampoo would give the user's hair
"body" and "bounce".
The lady wasn't able to describe what
she understood to be "body" and "bounce";
but said that her colleagues at work noticed
her hair was no longer limp; and asked how
she managed to look so glamorous. We
need to worry about such "promises" and
products which appear to convince people
that the promise has been delivered, through
some psychological process which is not
very clearly understood.
We have here two situations: in one, the
campaign makes claims which the consum
er finds to be unreal - to the extent that the
consumer can even quantify the value in
rupees he or she is prepared to pay for the
product. In the other situation, the consum
er believes she has experienced the attributes
embodied in words like "body" and
"bounce".
In the first case, we need not be con
cerned, because the market knows how to
deal with products which do not deliver the
promises it makes, even by implication.
Many new products never live beyond the
first two or three campaigns.
In cases where advertising has secured a
customer through a process which must be
described as nothing short of witchcraft,
we do need to be worried. It is surely a
matter of social concern that products are
sold on the basis of vague promises and
dream sequences which associate users with
a new lifestyle.
In the next two sections, we examine the
case against and for advertising to enable us
to arrive at independent decisions based on
a balanced argument.
The examples used to illustrate issues
are from a study using Focus Group discus
sions with children, teenagers, women and
men; and Depth Interviews with marketing
and advertising "insiders".
Although the respondents frequently re
ferred to print ads, the discussions were
invariably centred around TV ads - particu
larly those appearing on satellite TV.
Misleading advertisements
Participants in Focus Groups frequently re
ferred to ads which were misleading to the
point of being deceptive.
"Can you dip a soiled shirt into a bucket
full of detergent liquid and lift it out, gleam
ing white?" The ease of operation as depict
ed in the ad is unreal and causes a disso
38
nance and dissatisfaction when the con
sumer tries out theproduct for the first time.
Participants pointed out the Videocon
washing machines were not as easy to use as
the ads suggested. Advertising experts said
that they had to make the most of the few
seconds they had to present the various
stages in the use of the product. "Ofcourse,
there will be some exaggeration. It's a com
munication device to create impact and en
sure recall."
A young mother was persuaded by her
daughter to buy a Funskool toy which was
advertised on TV. The close-ups of the toy
looked marvellous; but when the product
was finally bought, it turned out to be "just
a coloured piece of plastic!"
Sometimes inappropriate for
children
Children are programmed to imitate almost
everything they see and hear. That's part of
growing up. With multiple channels now
available on television, it is very difficult to
target advertising. Teenagers in the study
recalled alcohol ads in remarkable detail,
and appeared familiar with brand names
like Mcdowell, Smirnoff, and Kingfisher.
These teenagers said that although they do
not drink, they might do when they grew up
and had their own income. The enthusiasm
for cigarettes was markedly less, and with
out exception, the participants recalled the
public interest ad on Zee-TV which linked
cigarette smoking with cancer. Half-clad
women, suggestive encounters as in the ad
for Haywards Beer ("Hi, I'm Sanju - Do you
have another Haywards?"), appeared to be
popular with teenagers for their entertain
ing, rather than titillating value.
Parents appeared to be upset about the
fact that their children now knew all about
condoms, thanks to the AIDS scare. "When
we were young, who knew what condoms
were until we went to college?" One parent
said that his five year-old son thought that
Nirodh was a tablet for AIDS.
The KS (Kama Sutra) condom ad evoked
mixed responses from participants of vari
ous groups. "What was the need to splash
the ad on hoardings all over the city?" Com
munication professionals said that a bold ad
like that, claiming respectability from an
cient Indian culture was needed to nudge
middle-class conservatism and hypocrisy.
The Yankee Doodle ad featuring Madhu
Sapre was seen by parents as an obscene ad,
although children and teenagers did not
appear to recall the ad.
Children said that they were under tre
mendous pressure from their parents to
study and do well in examinations. As a
result, their viewing was strictly supervised.
Frequently when mothers felt embarrassed,
they sent their chidren to do small errands
or even to study as a censoring technique.
Many mothers distinguished between ob
scene ads and "adult" ads. They felt embar
rassed in the presence of their children, but
didn't feel that these ads should be banned.
Parents preferred watching programmes
like Bold and the Beautiful and Dynasty
without their children around . "If real life
is not like that, it's a great fantasy. It's quite
entertaining, and I feel the same about what
you call "obscene" ads."
Teenagers in thestudyappeared to have
far more freedom over their viewing. They
frequently watched programmes when both
parents were not at home, and had an op
portunity to see "everything."
Stereotyping women
In cases where advertising has
secured a customer through a
process which must be
described as nothing short of
witchcraft, we do need to be
worried. It is surely a matter
of social concern that products
are sold on the basis of vague
promises and dream sequences
which associate users with a
new lifestyle.
Some women participants felt that women
were portrayed as middle-class shoppers
looking for bargains. "But we are talking to
middle-class women, and what's wrong
with looking for bargains?" asks an account
executive. There are some annoyance among
women with the picture of the dressed-up
and made-up woman who was at the door
to receive her husband when he returned
from work. "You never see women as boss
es or leaders in a mixed group." This serves
to perpetuate old-fashioned attitudes when
ads could serve to change attitudes. "But
that's the way life is", contends a creative
director, who says that advertising is a true
reflection of real life.
VOICES, Vol II No. 3 1994
ads give the customer choices, the main
indicator of a free and developed society.
Many individuals feel that advertising is a
mirror of social behaviour and sets high
standards for an achieving society.
Apart from anything else, viewers find
ads to be entertaining. Captain Cook was
picked out by group after group as an exam
ple of an entertaining ad which worked.
Freedom of speech
Essentially, a seller is talking about his prod
uct or brand. We don't want some shabby
bureaucrat to tell us what is good for us and
what is not good for us. The power of the
omniscient and omnipotent Indian Govern
ment has been eroded with the arrival of
satellite TV. "Doordarshan can't dump gov
ernment propaganda on us any more. Simi
A captive audience : absorbing consumerist images
"Why are all our models fair-skinned?
Are all Indians so fair?" This question gets
the answer that advertising also reflects typ
ical Indian attitudes.
However, there was no clear explana
tion why a female model should be shown
in a tyre ad or as a prop with any other
industrial product.
This is not an exploitation of women,
because the models have obviously been
paid very heavily. Aishwarya Rai appears
in a tastefully made ad for Philips. And if
the consumers feel so strongly about it, they
can switch the programme off, and also
refuse to buy the product.
Some ads irritate or annoy
During the study, we tried to understand
which ads were found to be irritating or
annoying. The teenagers group found the
BPL campaign for the Home Theatre Sys
tem irritating because it appeared too fre
quently, and because the young model was
very artificial. However, parents found this
campaign very entertaining.
The VIP ad for men's underwear ("What
has he got that I don't have") was cited as a
top of the mind example of an ad made in
extremely bad taste.
Ads for sanitary towels were embarrass
ing and irritating, especially in the middle
of a film being viewed by the entire family.
The conclusion seemed to be that apart
from viewing time, it is very difficult to
target television ads, as a result of which the
w rong audience got to see various ads. Nontarget audiences expressed irritation with
certain ads, particularly because of the em
barrassment
caused
in
the
presence of the rest of the family, including
house servants.
Creates social tensions
It is very clear that advertising is targeted at
people who have money to spend - the 300
million affluent middle-class of India. In
most cities, there is a segment referred to as
"Maruti Class" -the affluent who own a
Maruti car. What about people who do not
have the money? Are we raising expecta
tions which cannot be satisfied? Are we
lining ourselves up for a backlash from the
have-nots?
During 1991, research in seven slums in
the heart of Bangalore city revealed that car
stereos were a favorite item among petty
thieves, not because they were easy to con
vert into money, but because it was one way
of hitting back at the rich youngsters who
arrogantly drove past blasting rock music.
The same research study showed that
Maggi Noodles and Cup O'Noodles were
preceived as more nutritious than rice or
bread. Street children saved money to buy
a slab of Cadbury's chocolate which cost ten
rupees, rather than a very good rice and
curry meal.
Case for advertising
Is there a case for advertising? Of course
there is! Advertising has become what it is
because it pays for itself. Would hardnosed product managers spend their bud
get on advertising which doesn't work? Ad
vertising is obviously measured by the
amount of sales it can generate. If an adver
tising campaign doesn't pull in substantial
sales, it will die a natural death.
Informed choices
There is obviously a distinct difference be
tween information ads and competitive ads.
While competitive ads may be wrangling
about largely similar products, informative
If advertising can put obsolete
technology and shabby
workmanship out of business
and create demand for new
brands which embody state-ofthe-art technology, we must
agree that it certainly serves
the interest of the customer.
lariy, we don't want the lower middle class
values of ministers and bureaucrats thrust
down our throats. This is the age of the
mature Indian consumer. We will decide
what is obscene and what is not."
Any ad should be allowed regardless of
the product or presentation, provided the
ad maker meets legal requirements. Inter
pretations of what is good and what is bad
taste can be very subjective. After all, if the
ad is bad, it is the brand which suffers. If the
non-target viewers do not like the ad, they
can switch to another channel.
Supports national
communications
Advertising specialists were quick to point
out that many newspapers, magazines and
indeed Doordarshan depended on adver
tising revenue to stay in existence.
Events like cricket series and football
matches depend on advertising sponsor
ship to pay for itself.
Well meaning but naive journalists
frequently create holy smoke about major
brands hoggingall the advertising on cricket
series without realising that there is a sym
biotic relationship.
39
VOICES, Vol II No. 3 1994
Apart from the employment created in
the advertising and researchbusinesses, high
levels of consumer spending lead to higher
levels of employment in the economy.
At the end of the day, it appears that
advertising is something we have to learn
to live with, and which cannot be wished
away by NGO activists.
However, this is not a defeatist position
which accepts that if rape is inevitable, it is
better to lie back and enjoy it!
Control institutions
There are several institutions which hold
advertising in check, apart from the market
itself.
In India, we have the "Three A's of I"
(AAA of India) which has a self-regulatory
function. This is an influential institution,
although Indian ad agencies have personal
ities of their own.
Competition in advertising is consid
ered to be a good control institution, be
cause of high professional standards.
We would like to see less and less of our
ham-fisted government meddling in con
sumer choice, and more and more of non
government organisations (NGOs) in the
area of consumerism.
If the consumer NGOs could become a
powerful force, they could even demarket
some generic products like cigarettes and
alcohol.
Can we look forward to the day when
advertising commissioned by consumer
NGOs will ask customers not to buy hand
made matches because they perpetuate child
labour?
Continued from page 31 >
Continued from page 36 >
valuation of a student's answer script in an
examination by the University of Bombay.
The student had asked for revaluation, but
this had been so delayed that she had to miss
a year. She wanted damages to be awarded
by the University for the loss of opportuni
ty. The State Commission had upheld the
claim and had awarded a conservative sum
as compensation. The University had gone
on appeal to the National Commission.
In an earlier case the National Commis
sion had taken the view that evaluation of
answer scripts, revaluation or retotalling
upon request by students, though paid for
specifically, cannot be termed as service for
a consideration and that any dispute arising
out of this cannot be termed as a consumer
dispute. In this petition also, the National
as tennis or squash encouraged later for
exercise.
"Otherwise, what does this amount to in
the end?'' she continues. "Why must sixyear-olds bake their own cookies and fry
potato crisps or shape stylish pots and be
forced to play the flute? Not too many are
going to emerge prodigies. It's more likely
the mothers want to get the kids out of their
hair."
The need for public policies
In India today, NGOs have a great role to
play in crystallising people's aspirations and
feelings, and incorporating these in policy
making.
We are living in an age of change, and
we cannot turn the tide back. Having in
formed choices appears to be what could
make the difference between cultural inva
sion and evolutionary change.
This is an age when we are asking for a
reduction of Government interference in
our daily lives. While we strive to keep a
bloated bureaucracy out of our hair, we
must determine our own codes, and be pre
pared to regulate ourselves.
■
Ajit Mani is Managing Director, Interven
tion (India) Pvt. Ltd, a group that offers
consultancy on social, environmental and
public policy matters.
40
Commission had reiterated its earlier deci
sion and set aside the orders passed by the
Maharashtra State Commission.
Unfortunately, the press had mistaken
ly taken this to mean that education per se
had been taken out of the CPA (and not just
the valuation of papers) and fuelled unnec
essary misgivings on the subject.
While there is yet some ambiguity with
some State Commissions refusing to admit
complaints related to educational services,
it must not deter consumers from raising
voices in dissent and advocating a more
comprehensive way of covering education
al facilities/services under the CPA.
■
SrinivasNarayanswamy is Chairman, Con
sumer Protection Council, Thanjavur.
Too much, too soon?
Escaping the energetic presence of children
without the guilt of neglecting them may
explain why they are readily bundled off
variously. According to Manjula Screwvala
who runs Head Over Heels, a kind of gym
nasium for babies accompanied by mothers,
the important thing is that no parent should
be led into believing that such and such is
the best for a child. "But there is certainly no
harm in introducing every child to a range
of activities in moderation. Never push - the
personality of a child ought ideally to deter
mine what s/he could do and not what
parents think right. The idea is to guide
without deciding for."
It has often been argued that a series of
activities outside the home at least reduces
television viewing opportunities. In reality,
despite the seductive combination of sight,
sound movement and colour which make
the twenty-inch-screen medium as gripping
as it is, children have always proved sensi
bly reactive to plenty of other distractions.
The simplest events turn out most popular.
Stimulated enough, any child is happiest
doing what s/he loves best: usually, being
somebody else. Indulging in unfettered
dramatic flings can teach the child confi
dence and originality. Make-believe dress
ing up sans expensive costumes, imagina
tive messing with water, sand or dough,
laughing over a game of hopskotch...the
possibilities are endless. The pleasures to be
chosen by the child alone.
In the ultimateanalysis, thesimple words
of Rabindranath Tagore eloquently
summarise the effect of withstanding the
onslaught of the too-much too-soon con
sumerboom. As children playing together
he recalls how he and his brothers were
never given an excess of toys - "That is how
we developed our imagination," he re
marked.
■
Mehan Marfatia is a freelance journalist,
based in Bombay.
VOICES, Vol II No. 3 1994
Checks and Balances
Making Transportation Systems Accountable
r. A on his moped is edged off a city road by Mr.
B in his truck. Mr. A finds himself navigating
a mega pothole and loses his balance, sustain
ing injuries from his fall. Can Mr. A take the
city corporation to the court for neglecting its primary duty
in keeping city roads navigable and safe? Is road maintenance
a mandatory function of government?
And like Mr. A, what of countless others, who've suffered
damage or injury due to unmarked road dividers made
invisible by oncoming headlights, due to poorly illuminated
streets, stray animals, malfunctioning traffic signals etc?
What of pedestrians who've hurt themselves negotiating
dangerous carriageways because footpaths are simply unus
able? As consumers of a service or amenity provided by the
city corporation to which they pay taxes, do they not have a
right to safe roads and freedom of mobility?
In its present form, the consumer protection act does not
allow recourse to consumer courts for instances such as these.
But if the consumer awakening implies that providers of a
service/amenity or product must be accountable for quality
to its consumers or purchasers, then surely there is scope to
widen the purview of COPRA.
If we must adopt western models of urban development,
we must also incorporate the checks and balances that most
western societies accept in consensus.
Take public transport, for example. Like most metros in
industrialised countries, Indian cities urgently need to give
primacy to public transport systems. So far, there is no
coherent policy on transportation and traffic in this country,
especially as far as the consumer is concerned.
Our cities, 12 of which accommodate 40 per cent of all the
vehicles in the country, merely move from one crisis to
another, and the crucial importance of traffic and transporta
tion management in the development of urban areas is
underplayed or ignored.
M
So, instead of keeping the pedestrian, the cyclist and the
user of public transport as the cornerstones of traffic policy,
the government is recklessly and unrestrictedly encouraging
millions of cars, and worse, two wheelers on our roads each
year.
By 2000 A.D., we will have 30 cities with a million-plus
population. In some of them, it is still not too late to team from
the experience of other cities and give prime importance to
non-congesting transportation systems, that is : pedestrians.
Can Mr. A take the city corporation to the
court for neglecting its primary duty in
keeping city roads navigable and safe?
public buses and cyclists.
Any upwardly mobile citizen's first dream is, understand
ably, to acquire a vehicle for personal mobility (most middle
and upper class people believe that public transport is what
others must use). But, as western countries discover to their
chagrin, personal mobility taken to an extreme means re
duced mobility for all. Too many private vehicles, quite
simply, choke up roads. When individual freedom becomes
collectively damaging, it has to be restricted.
But will the newly awakened consumer, bold and confi
dent of her/his rights, agree to restrictions on personal
freedom? Here we turn to the other face of consumer issues.
The same consumer who may justifiably demand city govern
ment which is accountable to tax paying citizens must also
accept that his rights as a consumer are incumbent upon the
larger interests of society, whether in transportation or in
anything else.
The Indian consumer movement will come of age only
when it is generally accepted that both providers and consum
ers of a good or service are reciprocally accountable.
■
Rohini Nilekani
41
VOICES, Vol II No. 3 1994
Time to Press Further
he role of the press in moulding
public opinion has been a subject
of great interest. Several studies have
been carried out to analyse the influence
of the press on social, political and reli
gious movements. While the forties saw
the press fighting for the cause of free
dom and social regeneration of India,
the late seventies saw a crusade for
political consciousness. The Emergen
cy of 1975 generated fresh perspectives
on political rights, constitutional liber
ties and human rights. Tire masses who
were hitherto content with entertain
ment columns and headlines, started
looking beyond. In fact the press was
responsible, to a great extent, for the
formation of several civil liberties and
human rights groups.
T
Growing consumer
consciousness
In the past few years, particularly after
the enactment of the Consumer Protec
tion Act (CPA), there has been wide
spread interest among readers about
their rights as consumers. The con
sumer movement is relatively a new
phenomenon in this country; however,
in less than a decade it has made re
markable progress. The number of cases
filed in various consumer fora and the
spurt in the growth of consumer organi
sations is a reflection of growing con
sumer consciousness.
The average consumer who was at
the receiving end, is now more assertive
and cannot be taken for granted by the
traders. While voluntary consumer
organisations have been doing their best
to bring about this awareness, thanks to
the press, the consumer movement is
here to stay.
Since the enactment of the CPA and
even before that, newspapers and mag
azines have been responding to the
needs of the consumers in more than
one way. Apart from publishing ar
ticles, columns and public interest news
stories, newspapers have also tried to
come to the rescue of the harassed con
sumer. For instance, The Indian Ex
press was one of the earliest newspa
pers to start a Consumer Complaints
column. It carried the problems and
42
grievances of consumers and also took up
the responsibility of forwarding it to the
concerned authorities/agencies/manufacturers for redressal. In many cases the
reply was published and consumers were
able to get their grievances settled.
The success and popularity of the col
umn in The Indian Express prompted
other newspapers to follow suit. Today,
almost all newspapers carry a consumer
complaints column every week. The lan
guage newspapers are not lagging far be
hind. This is some indication of the grow
ing interest expressed by the press to fur
ther consumer welfare.
The number of letters to the editor on
consumer issues have also increased to a
great extent. Earlier these letters were
confined to comments on editorials, fea
tures and edit articles. But increasingly
newspapers have been publishing letters
of consumer interest. The inadequate num
ber of cash counters at electricity and wa
ter board offices, erratic water supply,
power cuts without intimation, shortage
of city buses, absence of bus shelters and
such other problems are given importance
both in terms of space and number of
letters.
Consumer columns
Despite the fact that newspapers have a
slant towards politics, crime and corrup
tion, consumer issues do find a place in
columns, both own and syndicated. The
Bangalore based Deccan Herald, The In
dian Express and the Hyderabad- based
Newstime, have been carrying a column
exclusively on consumer issues for the
past ten years. Recently the Madras based
Business Line from The Hindu group,
has started a column on consumer sub
jects.
The north Indian newspapers have
gone one step further by devoting an en
tire page to consumer issues. For example,
the Delhi based Pioneer carries a full page
on consumer related topics every fort
night. The Times of India and The Tele
graph have columns every week. The
Telegraph also carries a Helpline column,
where consumer grievances and possible
solutions to them are discussed by con
sumer activists.
Apart from the newspapers, regular
magazines have also come forward to
help consumers. One of the earliest
magazines to start a consumer column
was the Bombay based Femina. Though
the magazine is targeted towards
women, it has been successful in at
tracting male readership as well through
theirconsumer column. Regional maga
zines have made similar attempts to
educate their readers on their rights as
consumers. Consumer action guides
are being published to inform readers
on ways to register a complaint, where
to complain and how to follow up the
complaint. Recently a Kannada maga
zine published a small booklet to be
handed out as a complimentary copy
along with its annual issue. Apart from
individual issues, class issues like pol
lution, unjust price hike, adulteration,
quack medical products have also fig
ured in many magazines.
Space for more
Despite the fact that the press has played
a vital role in educating consumers, a
lot has been left uncovered. It is inter
esting to note that while newspapers
have correspondents to report exclu
sively on politics, films, crime, stocks
and shares etc. there is no newspaper
which has a correspondent exclusively
for consumer affairs. The reasons are
many. For one, no aspiring journalist is
interested in this area. In the words of
Raj Chengappa of India Today, "a ca
reer as a consumer correspondent is
less glamorous and important than the
one that spans the whole gamut of
news".
Many newspapers and magazines
are not interested in consumer affairs.
The nation's best magazines like India
Today, The Week, and Sunday do not
have correspondents for consumer is
sues, nor do they have a column de
voted to such issues. And the same is
the case with language magazines.
Consumer issues are not confined
to complaints and their redressal. The
Indian consumer who is bombarded
with a plethora of brands of consumer
durables, needs to be educated about
their quality, price etc. Evaluation of
VOICES, Vol II No. 3 1994
products does not find a place in press
coverage. Today, the average consumer
does not know the difference between
the soaps, toothpa- stes, shampoos etc.
which s/he uses. The price variation
appears too wide when one compares
products on the basis of quality. The
press can play a more meaningful role
in promoting consumer awareness, if
they focus on such analyses.
Similarly, the quality of articles that
cover consumer issues, their depth and
range leaves much to be desired. The
south-based newspapers are far behind
their northern counterparts. For in
stance, the articles published in The
Pioneer and The Telegraph are inter
esting and relevant, whereas southern
papers sometimes just reprint the bro
chures supplied by the concerned agen
cies/ departments.
Poor coverage
Many judgements that have far-reach
ing implications have been passed by
various State Commissions and the
National Commission. Strangely, how
ever, they are not reflected in the col
umns of Bangalore, Madras and
Hyderabad newspapers. Whereas, The
Pioneer and The Telegraph comment
on them exhaustively. Recently the
Madras High Court passed a judge
ment tha t ed ucation does not come un
der the purview of the CPA. But the
southern newspapers are yet to com
ment on this.
There is a common belief that con
sumerism is something connected with
prices and products. As a result, con
sumer columns are filled with com
ments on cases related to consumer
goods and durables. The newspapers
have yet to break free of this conserva
five approach. Increasingly, consum
ers are interested in the stock market,
civic amenities, nursing homes, medi
cal services, essential public services
and so on.
For the press to be a more effective
and active player in the consumer pro
tection movement, increased interac
tion between editors, correspondents
and consumer activists is a necessary
step. Providing an enabling environ
ment for activists to write would cer
tainly further the cause of consumers,
one and all.
■
Y G Murlidharan is the Executive
Trustee of Consumer Rights, Education
and Awareness Trust (CREAT), a Bangalore-based consumer group.
Change in the Air
All India Radio
adio and T.V. have often been accused
of
promoting
consumerist
trends among various secHons of Indian
consumers. Yet, the same media have
launched consumer awareness campaigns
that further the cause of social education.
The relevance of radio in this context,
becomes more transparent as it is the
single largest medium that reaches the
common person. Besides, in a country like
ours, where the effective literate popula
tion can be counted, the role of radio
becomes more and more meaningful.
R
Consumer education
All India Radio, realising it's social re
sponsibility to the people of India and the
role it can effecHvely don, has aired a
number of programmes on Consumer
Protection. In fact, the focus of all these
programmes has been on educating a
common consumer on her/his rights and
how s/he can discharge them.
All India Radio has also realised that
sporadic programmes devoted to con
sumer issues do not fetch the desired
result. Hence, almost all AIR Stations
have done interactive programmes in a
series, touching upon all aspects of con
sumer education.
This series of interactive programmes
on consumer issues were aired from
Dharwar, Mysore and Bangalore. The
serials sought to enlighten consumers on
the legal protection envisaged by the Con
sumer Protection Act (CPA), services cov
ered under the CPA, and how to approach
a consumer forum. Grievances related to
agencies like banks, the Karnataka Elec
tricity Board, railways, and water supply
were tackled and also redressed. Here,
AIR played the’role of a catalyst on the one
hand through consumer education
programmes, while on the other sensi
tising concerned officials in consumer fora,
industry and trade as well as ministers in
charge of various departments.
Common problems
Adulteration of food arHcles, decepHon
in weights and measures, spurious
drugs, exploitation in the supply of cook
ing gas, the malpractices in the Public
DistribuHon System, wrong and mis
leading campaigns waged by manufac
turers of cosmeHcs, erratic supply of
kerosene etc. were also addressed and
the concerned authorities were pulled
up during interview sessions with them.
This had a profound impact on the
audience. Some of them even contacted
AIR for redressal which was eventually
done by approaching the authorities in
question or by forwarding the com
plaints to the consumer forum.
Different stations called the series by
different names. Mysore called it "Aeli
Aeddeli" meaning "Up! Get Up", Banga
lore called it “Grahaka Jagruti" meaning
"Consumer Awareness", Dharwarcalled
it "Nimnin SevegagiNaavu" meaning "We
- at your service".
The impact of all these programmes
was quite encouraging as a number of
problems could be sorted out. How
ever, it is important that AIR continues
this campaign as any let up in this
endeavour may prove very dear.
■
A S Chandra Mouli is Audience Research
Officer, All India Radio, Bangalore.
43
VOICES, Vol 11 No. 3 1994
They Promise You the Stars
4
yVi n- '/j''
??
that ostensibly burns fat twice as fast)
and an emphasis on beauty contests. A
picture
of
Ash
(as
the
"unpronounceable" Aishwarya has
been renamed by the western media)
now snuggles into the teenager's wal
let.
The liquor ads that Doordarshan
rejected on moral grounds may have
gone to Star Plus but as far as advertis
ing goes, DD still reigns supreme.
Needless to say, consumer products
occupy pride of place on all DD chan
nels as well.
If the consumer is king or queen, in
the new scheme of things, he/she is
also an illiterate king/queen. Nobody
is talking about educating him on his
rights.
he NRI brat on Star Plus whose
ears you're dying to box is listing
out the things he hates. Or, to put it in
his eloquent though primitive fashion,
the things to which his reaction is a
jarring: "Gyeeeeah"
He wants to throw up at the mention of
heavy schoolbags, his little sister pester
ing him and his Bina aunty who pinches
his cute cheeks. He wants to throw up
at the thought of eating bittergourd
(karela, which he pronounces as
"curella"). Relatives, in the ambit of the
"nuclear" generation, are a breed to be
despised. And who wants to eat curella
when chocolates beckon bright?
T
The good life
Satellite television is constantly feeding
us sugar and spice and everything nice.
No healthy bites of karela to remind us
of the bitterness of some people's lives.
The mood is upbeat. Suffering is just an
image that can be wiped out by a Liveaid
or a Michael Jackson singing "Heal the
World".
Pretty soon, our kindergarten prim
ers might start carrying "E is for Enter
tainment" and "C is for Consumerism".
The two go hand in hand. The teenager,
whose ultimate dream is to be a per
former, simply cannot get her dance
steps right, so she munches a 5-Star bar
for inspiration, and voila, she does a
perfect number. The lyrics in the back
ground go: "Reach for the stars".
Eager-eyed membersof theburgeoning middle class have been gulping
down sweet froth in more ways than
one. Doordarshan (DD), in a desperate
attempt to catch up with satellite televi
sion, has been cashing in on the E-word
for all that it's worth. Information is
boring, say the viewers. We want more
movie-based programmes and fewer
documentaries on biogas. And DD is
only too happy to oblige.
Did someone mention education?
Well, Channel V does tell you to "Get
44
Reaching the middle class
yourself an education" - by tuning in to
Videocon Flashback to raise your level of
knowledge about old Hindi films.
The accent is no fun. The good life.
Television is undoubtedly targetting the
consumer, not only in the commercials but
in the lifestyles being promoted in various
programmes. Star Plus is selling you more
than just sneakers, suits and TV sets: it is
selling you the American way of life. Chan
nel V unabashedly proclaims: "Tune in to
America. The Land of the Free."
Liberalisation is confused with liberation.
Women in advertising
Talking of liberation, it is interesting to
note that, true to the norms of a consumer
ist culture, there is a sudden resurgence in
the blatant use of women in advertising
Indian consumer products. A woman's
bare belly is juxtaposed with a "full, flat"
TV screen. She complains: "Why can't I
have a flat stomach?"
Yes, no stomach is flat enough, no waist
slim enough, to match the western ideal.
Slimming is in, on TV. You have work-out
programmes, ads for the Double Burner
(not a gas stove but an exercise machine
Television does cater to the middle class
consumer of durables, rather than the
poorer class of consumers of basic
amenities like water and shelter. And
there is precious little being done to
inform this breed of consumer how not
to get bamboozled.
We might soon have, as in the West,
an entire channel devoted to consumer
goods: programmes where the qualities
of each new product are extolled by the
comperes. We are going to be bom
barded with no-holds-barred mudsling
ing and a stupefying number of claims
and counter-claims. Only a vigorous
consumer movement can help the con
sumer navigate his way through this
maze.
Amidst this whirlwind comes a small
voice: what about opting out of the
race? Saving the earth's resources?
Oh pur-leeease! Or, to say it with
the monosyllabic eloquence of the NRI
brat: “Gyeeeeah!"
■
C KMeena is a freelance journalist and
Assistant Professor, Asian College of
Journalism set up by B D Goenka Foun
dation.
Organised Citizen Response
The Consumer Movement in India
Vasanth Kumar Parigi
Since the days of barter trade, consumer
protection has gained increasing signifi
cance. V K PARIGI traces the history and
evolution of the consumer movement in
India and presents a critique of the same.
he protection of people against
economic exploitation has exist
ed for several hundred years.
During the middle ages, the dis
honest traders had their hands cut off, a
trader selling shoddy goods would be
dragged around the town with his wares
tied around his neck! Magna Carta estab
lished standard measurements for wool
and the first regulations regarding bread sizes were established
in 1226 AD. Sale of adulterated food and drink was made subject
to criminal penalties in the 14th century.
It was not until the middle of the 19th century that the first
parliamentary moves for the statutory protection of consumers
on a large scale were made. In 1852 the Merchandise Marks Act
was passed in the UK, and in 1878 the first Weights and
Measurements Act. Then came the famous Sale of Goods Act
1893.
T
Historical background
Coming to our own country, we find references to unfair trade
practices, food adulteration and punishments to be meted out to
the erring traders in thelawsof Manu. But in those days of barter
systems, the consumer and the producer/trader knew each other
personally and there was little scope for the producer or the
trader to cheat the consumer. Industrialisation came to India
along with the East India Company and the British introduced
the same laws as in Britian which inter alia protected consumers
although they were mainly meant to regulate and control trade
and industry.
Some organised effort to protect consumers from middle
men was made in the 1940s by freedom fighters such as Sri
Tanguturi Prakasam, and Rajaji in the South by starting consum
er cooperative stores to retail essential commodities to the
consumers. These consumer cooperatives made their mark
wherever the organisation was sound and free from corruption.
After the 1950s all of them became political and a rich source for
making money by the politician-directors who swelled into the
management of the consumer cooperatives. The Planning
Commission during the regime of Sri Asok Mehta constituted a
price monitoring cell in the Commission to review price trends
and advise the government whenever measures were needed to
protect consumers from rising prices.
The Chinese war saw the reality of
consumer exploitation where traders re
sorted to unfair price increases,
blackmarketeering and hoarding. Citizens
in Delhi and Bombay set up price rise
resistance movements and organised
morchas, and demanded an effective pub
lic distribution system to cater to the eco
nomically vulnerable people.
As an organised movement, it was in
the mid - sixties that nine educated house
wives in Bombay set up the Consumer
Guidance Society of India to tackle the
problems of consumers in a systematic
manner. Historically the year 1973 is a very important year for the
Indian consumer movement. It was in this year that the crippling
effect of price spiral spurred people to spontaneous action and more
than 50 to 60 consumer organisations were formed by citizens
themselves without any political prompting. The movement
launched by Sri Jayaprakash Narayan, in recognition of this spon
taneous citizen's response to the threats posed by unscrupulous
industry and trade and an indifferent government, included con
sumer protection and consumer solidarity in its objectives.
For over a decade, the consumer organisations were campaign
ing for a comprehensive legislation to protect consumers on the
pattern of laws that were made in the West. In April, 1984, the United
Nations Organisation passed in the General Assembly the UN
Guidelines on consumer protection, and member countries were
called upon to pass suitable legislations based on these guidelines.
Consumer Protection Act, 1986
Ultimately, in December 1986, the Rajiv Gandhi Government passed
the Consumer Protection Act (COPRA), and a three-tier judicial
system at the district, state and national level was set up to
compensate consumers against losses and damages from the sale of
shoddy goods and negligent services. Actual implementation of
COPRA began only from 1989 after the state governments set up the
District Consumer Disputes Redressal Fora. Today there is a
Consumer Redressal Forum for each district, a good number of
them function regularly while a few function only on Saturdays.
Over three lakh cases have been filed across the country in consumer
fora, and around 30 per cent of the cases have been disposed of.
Efforts are being made to improve the disposal rate of the cases with
added manpower and infrastructure.
The Consumer Protection Act, 1986, is not meant to be a panacea
to all woes of consumers. Its objective is to financially compensate
consumers against injustices in the market place, and not to provide
45
VOICES, Vol II No. 3 1994
basic needs to the people. Therefore it is
naive to expect the Consumer Protection
Act to improve the economic conditions of
the poor or play any catalytic role in
providing the basic necessities to them.
Spurt in consumer
organisations
Following the enactment of the Consumer
Protection Act, there has been a spurt in the
number of consumer organisations in In
dia, which were around 180 prior to the Act
and now are over 900. Andhra Pradesh
alone has over 450 consumer organisations.
The movement which was initiated by the
urban middle class has now percolated to
the rural areas except in some states such as
Uttar Pradesh, Bihar, Madhya Pradesh
and a few. other states where it has made
no impact at all.
evaluate - should be applied to other areas
of life such as housing policy, education
policy, environmental issues, disposal of
toxic wastes and so on. The consumer
movement is not for training people in the
art of acquiring more and more personal
possessions, but it is concerned with social,
economic, community responsibilities even more so in a system in which econom
ic and social inequalities persist to a very
large extent.
A great deal can be said both for and
against economic liberalisation. We must
Challenge ahead
Whenever consumers are
spending on luxury and
conspicuous consumption they
are voting for exploitation of
the poor and the downtrodden.
It is this message that has to be
broadcast by consumer
organisations in India in their
mass contact programmes.
The right to basic needs and services is
recognised
by
the
Internationl
Organisations of Consumer Unions (IOCU)
- a global body of consumers - as one of the
important rights of consumers. Consumer
organisations in India are concerned about
the basic needs of the millions of poor
masses, who have no access to the basic
needs such as food, water, clothing, shel
ter, sanitation, health care and education.
But it is the task of the political system that
gives power to the elected governments,
and it is the responsibility of those in power
to evolve and implement policies and ac
tion programmes which can deliver the
basic needs of the masses. It would be
foolhardy to expect the consumer move
ment to achieve this objective in the present
social, economic and political context.
Increasing scope
All consumer movements, on the other
hand, can work towards improving "the
quality of life" of citizens. It may be all
right to test colour TV sets or some other
household equipment bu t similar approach
es and methods - to question, test and
46
realise that the age of centralised or con
trolled economies with regulations and
control by the state is over. The swift
changes in the former USSR and East
Europe have baffled many, but the reality
is that consumers want choice, and choice
is the aim of the market economy. With the
technological improvements in communi
cation and transportation, globalisation of
markets has become a natural phenomenon.
But we cannot globalise markets, without
globalising incomes. It is here that the
perceptions of the multinational corpora
tions (MNCs), the World Bank, the IMF
and other international bodies differ with
those who seek justice for the people in the
developing countries.
The movement which was
initiated by the urban middle
class has now percolated to the
rural areas except in some
states such as Uttar Pradesh,
Bihar, Madhya Pradesh and a
few other states where it has
made no impact at all.
The consumer movement in India will
have to address itself to the challenges
posed by the economic liberalisation pro
cess, the opening up of the rural markets to
high pressure advertising and merchandis
ing by all-powerful MNCs who have the
skills and the wherewithal to change our
age-old and healthy traditional patterns of
consumption overnight. Already we see
that much damage has been done to the
nutritive food consumption habits of the
rural masses by the subliminal advertising
of foods such as Horlicks, Bournvita,
Complan and Maggie Noodles. But who
cares?
The response of the electronic media to
consumer protection issues has been dis
mal and negative. In spite of repeated
appeals to Doordarshan authorities by the
consumer activists in the Central Consum
er Protection Council (the apex body under
the Consumer Protection Act) no time slot
has been given for consumer education on
Doordarshan programmes. Many adver
tisements of unsafe, hazardous, adulterat
ed, and substandard products appear on
the TV and are aired on All India Radio
(AIR). Consumers are not represented in
the panels which are supposed to screen
advertisements before being accepted by
the government electronic media.
The Press has been playing a very
helpful role in championing the cause of
consumers. Many newspapers, both En
glish and language dailies and periodicals,
carry articles on consumer protection is
sues and run exclusive columns on con
sumer issues and redressal of grievances.
The language press can play a major role in
spreading consumer awareness in the rural
areas with wider consumer news coverage.
It is fashionable to speak on the "em
powerment" of the poor. Over the last four
decades several poverty alleviation
VOICES, Vol II No. 3 1994
programmes have been implemented by
various governments at the centre and the
states, costing several crores to the exche
quer. The benefits have, in fact, been
reaped by the middle men and a new class
of contractor - politician mafia have taken
over charge of these programmes. The
only way to empower the poor is through
income generation on a regular basis and
distribution of resources such as land,
water and inputs - which is a far cry, given
the present political, economic and social
structure.
This is not an area where
consumer organisations can enter to play
any major role except that they declare
their solidarity with the social and political
movements that aim to achieve the em
powerment of the poor. Nor is it the ambit
of the Consumer Protection Act.
Need of the hour
A vibrant consumer movement in India
needs visibility if it is to be effective. It
cannot confine its activites to filing of cases
under the COPRA in consumer fora or in
holding numerous workshops and semi
nars, where VIPs invited for the inaugural
and valedictories sing their usual "dirge".
Boycott squads and picketting squads
Fresh perspective
The entire concept of providing basic needs
to the poor needs a fresh look. Govern
ments and political parties are fond of
grandiose plans costing several crores with
out recourse to local resources and local
initiatives. Water supply, power, sanita
tion and health care services could have
been provided long ago to all people in the
rural areas had we used low cost technol
ogy, locally available labour and cash re
sources through compulsory contributions
from the agriculturally rich landlords.
Poverty and inequality are linked issues,
and effective instruments to eradicate pov
erty should have teeth to tackle both pov
erty and inequality simultaneously.
Economic liberalisation no doubt may
bring in faster growth rate and an increase
in the per capita incomes but would not
bring about better life for the poor because
of discriminatory distribution built into the
system. A vibrant consumer movement
can throw up these contradictions in the
system and create an awareness among the
well-to-do consumers so that they realise
their social responsibility.
Whenever the rich or the middle class
consumers are spending a rupee they are
voting for a particular economic system.
When the rupee is spent on foreign brand
ed goods or goods produced by mega
technology the vote is against the poor
employed in the handloom and the cottage
sector.
Whenever consumers are spending on
luxury _i conspicuous consumption they
are voting for exploitation of the poor and
the downtrodden. It is this message that
has to be broadcast by consumer
organisations in India in their mass contact
programmes.
liberalisation and the market forces there
will be further damage to these life systems
through conspicuous consumption and
multiplicity of unwanted products and
services for which a growing demand is
being created through high pressure ad
vertising and credit cards. The marketing
of unsafe medicines, the production of
hazardous and unsafe products, the ex
ploitation of gullible investors by corpo
rate criminals are all urgent matters that
brook no delay. Very little has been done
in these areas to protect the ordinary con
sumer.
The total consumer movement has the
goal to provide possibilities to the ordinary
man, woman and child for influencing
their own situation. To develop the indi
vidual's possibilities, to analyse his/her
needs and to verbalise his demands within
the framework of his/her society, the move
ment has to work for a suitable climate.
The second goal is to create and develop
organisations and economic decision mak
ing processes which make it possible for
the individual to influence his/her situa
tion in different sectors of life. The third,
helping to develop meaningful alternatives
and making it easier for individuals to
choose from among them. And fourth,
protecting the individual from harmful,
unsuitable alternatives as well as against
forces which w'ant to exploit his insecurity
and lack of knowledge.
■
should be set up by every consumer
organisation to make consumer protest
visible and effective. The shops of the
dishonest traders and the offices of the
indifferent government officers and public
utilities should be targeted for picketting.
Social boycott as an effective weapon must
atleast be given a trial, to bring corrupt
public servants who are anti-consumer, to
book.
The consumer movement by its nature
and definition will have to address itself to
those who are consumers of goods and
services. Largely its constituency is among
the industrial workers, the lower and the
upper middle class, perhaps even the rich
- for they are all consumers. But its focus
can keep shifting depending on its strength
and following.
There are many areas where the Indian
consumer needs to be protected urgently.
The most important one being in the envi
ronmental area. Poor resource manage
ment hits the consumer most. Our basic
life support systems have already suffered
grievious depletion and damage and are
unable to cope with even their existing
burden. As a consequence of economic
V K Parigi founded the Vishakha Consum
ers Council in 1972 and since then has been
in the forefront of the consumer movement
in India. He is a member of various local
and national consumer organisations.
47
VOICES, Vol II No. 3 1994
That commercialisation and consumerism in India are growing every day is a
foregone conclusion. The global trade winds have already begun to buffet the
Indian consumers - promising a material el dorado and enticing them with lucid
and lurid images. Will these citizens of tomorrow, caught as they are in systems
that lack efficiency, resources and conviction, be able to withstand the gilt-edged
consumerist onslaught? Or will they grow to become suitable receptacles for the
messages of the multinational mammon?
The consumer movement in India is growing slowly but steadily. If it were to
checkmate the market forces, political will and social concern will have to lend
their support to this nascent revolution.
48
Madhyam Communications is a registered, non-profit trust working
for positive changes in Indian society which will lead to a more just
and egalitarian social order. We recognise that communication is vital
to any action against the injustice faced by the marginalised and
oppressed sections of society, such as women, children, dalits and
tribals, who form the majority of our population. We believe that the
process of change can be catalysed through the use of both mass media
and other cultural forms of entertainment and expression, traditional
as well as modern.
Our work in communication is mainly in these areas:
□ Training in communication skills
□
Consultations and workshops
□
Production of communication material like films, posters and the
VOICES journal
□
Studies related to media and cultural forms
□
Networking with action groups and media practitioners
□
Audio Visual Resource Centre
THE NEXT EDITION OF VOICES
Quest for Peace
This is the working title for our next edition which will seek to explore
the complex reasons for the many different forms of social upheaval and
conflict that characterise most parts of the world today, including India,
with a view to seeking solutions based on sound understanding. Con
scious that there are no easy answers, we hope to bring together a wide
range of ideas on the subject so as to encourage meaningful dialogue and
action at various levels.
Design, layout and illustrations by
Mallikarjuna Konduri
Ideaquest Communication Design
37/C, South End Road
Basavanagudi
Bangalore
Composed and typeset by
Vijay Kolour Scan Pvt. Ltd, Bangalore
Printed at
Sri Sudhindra Printing Press, Bangalore
MADHVAM
COMMUNICATIONS
Ce
H - 7 -
Page 1 of 5
Community Health Cell
From:
To:
Sent:
Subject:
Lynerte Martin <imartin@uwc.ac.za>
<pha-exchange@kabissa.org>
Monday, March 03, 7003 7:10 PM
PHA-Exchange> THE REPORT OF THE COMMISSION ON MACROECONOMICS AND
HEALTH: ASUMMARY CRITICAL APPRAISAL
THE REPORT OF THE COMMISSION ON MACROECONOMICS AND HEALTH: A
SUMMARY CRITICAL APPRAISAL
Professor David Sanders
School of Public Health, University of the Western Cape, South Africa,
Civil Society Member of SCN Steering Committee
"The world community has within its power the capacity to save the lives of millions of
people every year and to bolster economic development in the world's poorest
countries." (CMH, p.21)
This is the stirring first sentence of the Report of the Commission on Macroeconomics
and Health, sometimes referred to as "the CMH" or "the Sachs Report" - after its
Chairperson, Professor Jeffrey D. Sachs of the Centre for International Development at
Harvard University. The opening passage continues: "This Report describes a strategy
for achieving these goals by expanding investments in the health of the world's poor.
Our conclusions are substantiated by extensive research and consultations undertaken
during the past 2 years, especially by the work of six Working Groups, which in total
produced 87 background studies and six synthesis monographs to be published by the
World Health Organization". (CMH, p.21)
The Commission established six working groups on: health, economic growth, and
poverty reduction; international public goods for health; mobilization of domestic
resources for health; health and the international economy; improving health outcomes
of the poor; development assistance and health.
The Commission was set up by the Director-General of WHO to "assess the place of
health in economic development".
KEY FEATURES OF THE CMH
The central argument in the Report is that better population health will contribute to
economic development. The Report devotes significant space to analyzing the "channels
of influence from disease to economic development". In essence it argues strongly that
better health creates economic growth which in turn creates health. There is, indeed,
significantly greater emphasis placed on the contribution of health to economic
development than on the contribution of underdevelopment and poverty to ill-health.
/ a
The Report then demonstrates that the resources available for health care in low-income
countries are insufficient to meet the challenges they face. It is proposed that donor
finance will be needed to bridge the financing gap. Three mechanisms for raising these
additional resources are proposed: debt relief, through the Poverty Reduction Strategy
/Papers (PRSP) process, and through discount pricing of Pharmaceuticals. (Legge, p.1)
. cl?
3/4/03
-5
&T
y
'
Page 2 of 5
Other key features of the CMH are the identification of a particular set of disease
priorities, especially communicable diseases, and a corresponding set of health
interventions. It also proposes a set of principles for health system development such as
subsidized community-based financing, universal access and close-to-ciient (CTC)
service strengthening, and categorical or vertical approaches to particular diseases,
The CTC level, which is accorded highest priority, consists of "relatively simple
hospitals", health centres, health posts and outreach services. CTC services will be
staffed predominantly by nurses and "paramedical" staff with supervision from doctors.
The health centre is identified as the key site for uncomplicated births, and for
most
personal prevention, diagnosis and treatment of common priority diseases
e.g. childhood infections, T.B., malaria, STI's and counseling and testing for HIV as well
as administration of nevirapine to reduce the risk of mother-to-child transmission.
To circumvent the problems of "limited capacity within health systems" a "vertical" or
categorical approach is proposed for HIV/AIDS, malaria, TB and "perhaps other specific
conditions". Such approaches, including childhood vaccination, are singled out for their
past success and for "the concentration of expertise and commitment that drives
(them)." (CMH Working Group 5, p.57)
NUTRITION IN THE CMH
Together with communicable diseases and tobacco-related disease, malnutrition is briefly
mentioned as a "primary target” in the Sachs report. However, in the Report of Working
Group 5, "Improving Health Outcomes of the Poor", just over two pages are devoted to
malnutrition which is identified as a key contributor to childhood mortality. Breastfeeding,
complementary feeding, improving micronutrient intake, treatment of malaria and
intestinal worms and targeted supplementary feeding are identified as key interventions.
STRENGTHENING HEALTH SYSTEMS AND IMPROVING CAPACITY
The CMH acknowledges that "in some of the world's poorest countries, the coverage of
many basic interventions is falling" (CMH, p.46), including attended deliveries and
vaccination coverage. It notes the urgency of "building new physical infrastructure,
increasing the numbers and training of health sector personnel, and strengthening
management systems and capacity" (p.64), with the highest priority accorded to the CTC
level.
The report summarises in five categories constraints to increasing coverage. At the
health services delivery level "shortage and distribution of appropriately qualified staff,
weak technical guidance, programme management and supervision" (CMH, p.70) and
inadequate supplies of drugs, equipment and infrastructure are all implicated. The main
report deals with capacity in a somewhat peremptory fashion, referring to "increasing the
numbers and training of health-sector personnel, and strengthening management
systems and capacity" (p.64) as well as to the need for strong community involvement
and trust in the CTC system. The Report of Working Group 5 goes into more detail,
recognizing the need to both increase numbers of trained workers as well as skills. It
proposes that categorical programmes (e.g. vaccination, tuberculosis control) are often
key sites for strong technical training, but acknowledges that such programmes can have
a disruptive impact on the health system unless priority is given also to promoting social
mobilization and inter-sectoral collaboration. (CMH, Working Group 5 Report, p.66).
Management strengthening through training and mentored implementation and the
3/4/03
Page 3 of 5
improvement of information systems ore noted to be important components of health
system strengthening in tne Report of Working Group 5.
STRENGTHS OF THE REPORT.
The key strength of the Sachs report is the clear message it gives of the health crisis
facing poor countries. It emphasizes the widening gap in health experience between rich
and poor countries, the rapidly increasing and intolerable burden of ill-health affecting the
poor, especially in Sub-Saharan Africa with deepening poverty and the devastating
HIV/AIDS epidemic.
The key recommendation of the CMH Report is that "the world's low and middle-income
countries, in partnership with high-income countries, should scale up the access of the
world's poor to essential health services, including a focus on specific interventions."
(CMH, p.4)
WEAKNESSES OF THE REPORT
As David Legge has observed: "The Commission relates its findings and
recommendations to the crisis of legitimacy of the prevailing regime of global economic
governance." He notes that on page 15 trie Report slates; "With globalisation on trial as
never before, the world must succeed in achieving its solemn commitments to reduce
poverty and improve health."
Legge notes that "the message for the governors of the World Bank, the leaders of the
G8 and the members of the Paris Club is simple:
■ The health situation in many developing countries is insufferable;
■ These countries do not have the resources to provide basic health care;
• Poverty and iii-heaiih contribute to social and global instability;
■ Globalisation is on trial (indicted on the grounds of poverty and health and under threat
through social/giobai instability);
■ Increased funding for health care in low income countries must be found through debt
relief and increased aid." (Legge, p.3)
Yet, notwithstanding the Commission's recognition of the mutually reinforcing strong links
between ill-health, poverty and poor health services and the context of globalisation.
there is no attempt to critically analyse the current regime of global economic governance
and regulation. It is striking - and disappointing - that the Commission carefully avoids
any explicit interrogation of currently dominant macroeconomic policies or of the
structures and mechanisms which entrench developing country disadvantage, iii-heaith
and deteriorating services. For health and the health sector, these include the WTO dominated by the rich and powerful countries - and its conventions regulating trade in
both commodities and intellectual property, the latter being exploited as patent rights by
the transnational pharmaceutical corporations and placing many essential drugs beyond
the economic reach of many poor countries. Similarly, the new GATS (Global Agreement
on Trade in Services) convention, which threatens privatization of public services,
including health, is not mentioned. Thus, while the CMH concludes that the current
global economic dispensation is not generating sufficient resources for poor countries to
address their basic health needs, it avoids any analysis of or suggested response to such
systemic discrimination against the world's poor. Instead, it notes the recent declines in
official development assistance (ODA) and concludes that the rich governments, the
banks and pharmaceutical corporations must provide the necessary ODA, ensure debt
relief and provide discounts on pharmaceuticals so that basic health services can be
3/4/03
Page 4 of 5
primary prevention or active treatment of giobai inequity and its effects.
PRSPs are recommended by the CMH as the main mechanism through which ODA is
directed to strengthen health systems. Yet PRSPs are an integral component of the
current regime of giobai economic governance and inciude such reforms as reduced
public spending on social services, including health!
Another weakness of the Report is the limited recognition it accords to social factors in
shaping population health. This leads to an overwhelming focus on health sector
interventions and, within those, vertical programmes. For nutrition this is of concern,
given the increasing recognition that nutrition programmes require for their success
efficacious technical inputs embedded in broader social processes involving communities
and other sectors.
CONCLUSIONS
The Report of the CMH is likely to be influential given the high profile of the
Commissioners, the weighty composition of its Working Groups and its endorsement by
WHO. Its description of the global health situation and of health systems in poor
countries, as well as its key recommendations are strongly reminiscent of the central
thrust of the World Bank's influential 1993 Report, "Investing in Health", which also
emphasized the point that health is a major input to economic growth, but also studiously
avoided any critical engagement with the global macroeconomic architecture which
continues to generate economic growth accompanied by deepening inequalities.
A decade has elapsed since that influential global health policy document was published
and promoted. Yet in poor countries, particularly Africa, poverty has deepened and the
health situation has further deteriorated, and health systems and their capacity have
declined, it is difficult io avoid asking the question: "Why should things be different this
time?"
BIBLIOGRAPHY
• Commission on Macroeconomics and Health (2001). Macroeconomics and Health:
investing in Health for Economic Development. Geneva, WHO
• Commission on Macroeconomics and Health (2002). Improving Health Outcomes of the
Poor, Report of Working Group 5, Geneva, WHO
■ Legge, David, Globalisation on trial: World Health warning, preliminary comment, 13
June 2002, School of Public Health, La Trobe University, Australia.
Prof uavid Sanders/Lynette Martin
3/4/03
Page 5 of 5
School of Public Health
University of the Western Cape
Beiiviiie, 7535
Cape, South Africa
Tel: 27-21-959 2132/2402
Fax: 27-21-959 2872
Cell: 082 202 3316
PHA-Exchange is hosted on Kabissa - Space for change in Africa
To post, write to: PHA-Exchange@kabissa.org
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3/4/03
IIQI
MADHYAM
CONSULTATION ON
HEALTH FOR ALL : THE ROLE OF THE MEDIA
MARCH 23, 1991, BANGALORE
It is widely acknowledged that health-care is one of the most neglected aspects
of the Indian development process.
Whatever development has occurred in
the country in this field has resulted in a grossly skwed situation; a privileged
minority has access to high quality, highly specialised medical care, involving
the use of sophisticated technology, more often than not in fancy private
hospitals, while the large and poor majority, especially in the rural areas,
have to make do with poor facilities (public or private) or none at all.
This well-entrenched trend has spawned several new ills but left many old
ones untouched.
While there have been critics of the system all along and
although alternative health-care models have existed for some time, these
voices and efforts were largely unnoticed by the general public until very
recently.
The concept of consumer rights in the area of health is also of
recent origin in India, and these rights are still barely exercised, even by the
middle classes, let alone the really poor and needy.
Public ignorance, lack of consciousness and passivity make possible the continued
neglect of the health sector by planners, administrators and health-care personnel,
not to mention political leaders.
Three pre-requisites for a real improvement
in the public health-care system are :
a)
public awareness about the current situation;
b)
public consciousness of their rights and the responsibilities of the State
as well as the health-care professions;
c)
public demands for the system to effectively cater to the felt needs and
priorities, particularly of the tribals, women and children, and the under
privileged rural poor.
59 Miller Road, Benson Town, Bangalore 560 046. Phone 575800
QI
: 2 :
The whole spectrum of the media have a pivotal role to play in this process.
In fact, public
health
campaigns
and
programmes
(governmental and non
governmental) have been using the media - both 'mainstream' media and cultural-
traditional forms - to communicate ideas and information as well as to promote
the social and attitudinal change necessary for a better public health status.
Objectives of the Consultation
1.
to review and evaluate the coverage of health issues in the media and
the communications efforts of health related organisations and programmes;
2.
to initiate a dialogue between health and media professionals, as well
as consumers of health services;
3.
to evolve a strategy for optimising media inputs in the field of health
in order to create and promote public awareness about health-care and
to encourage responsibility/accountability in health professionals towards
consumers of health services.
Q
PROGRAMME
Morning Session
Registration
Inaguration and Welcome
Keynote talk on the correlation (or lack of it) between priority areas in public health
and media coverage of health issues.
by
Dr Veena Shatrugna
National Institute of Nutrition
Hyderabad
Discussion
Analysis of reasons for success/failure of government efforts at communicating health
issues, especially with reference to national health programmes and services.
by
,
Dr Prem John
ANITRA Trust
Madras
.
Discussion '
Analysis of reasons for success/failure of NGO/grassroots efforts at communicating
health issues to deprived populations.
by
Dr Shirdi Prasad Tekur
Community Health Cell
Bangalore
Working groups
Post Lunch Session
Analysis of coverage of health issues by
the press
Doordarshan
All India Radio
Other traditional and non-traditional communication media
Discussion
Working groups discussion
Plenary and summary of group discussions
Conclusion
MADHYAM
THE ROLE OF THE MEDIA
CONSULTATION ON HEALTH FOR ALL
March 23
1991
'Bangalore
PROGRAMME
Morning Session
9.15
a.m.
Registration
9.30
a.m.
Welcome
Ms Sucharita S Eashwar
Executive Director, Madhyam
Introduction
Ms Ammu Joseph
Freelance Journalist and
Consultant, Madhyam
9.45 - 10.15
Keynote talk on the correla
tion between priority areas
in public health and media
coverage.
Dr Veena Shatrugna
National Institute of
N utrition,
H yd erabad
10.15 - 10.45
Clarifications and Interventions
10.45 - 11.15
Analysis of reasons for succes s/
failure of govt efforts st com - Dt Prem Chandran John
municating health issues and
ACHAN
programmes .•
Madras
11.15 - 11.45
Clarifications and Interventions
11.45 - 12.15
Analysis of reasons for success/Dr Shirdi Prasad Tekur
failure of NGO/grassroots .
Community Health Cell
efforts at communicating health Bangalore
issues to deprived populations.
Dr Magimai Pragasam
Catholic Hospital
Association of India,
Secunderabad.
12.15 - 12.45
Clarifications and Interventions
MODERATOR
12.45
Formation of Working Groups
1.00 - 2.00
Working lunch in groups .
Dr Saraswathy Ganapathy
Institute of Social Studies
Trust, Bangalore.
. .2. . .
59 Miller Road. Benson Town. Bangalore 560 046. Phone 575800
G2
: 2 :
Afternoon Session
2.15
Analysis of coverage of health issues
- 2.30
the Press
-
Ms Leela Rao
Ms Sandhya Giri
Dept of Communication
Bangalore University
Doordarshan
-
Mr J Victor Koilpillai
Communication Consultant
Christian Institute for
Study of Religion and
Society, Bangalore
Akashvani
-
Mr Chandra Mouli
All India Radio
Bangalore
-
2.30
- 2.45
2.45
- 3.00
3.00
- 3.15
3.15
- 3.30
3.30
- 3.45
MODERATOR
3.45
Discussion
-
Discussion
-
Discussion
-
Dr Prem Chandran John
ACHAN
Madras
Formation of working groups
4.00
-5.,00
Discussion in working groups
5.15
- 5..45
Presentation of group recommendations 8nc| pi8nary
5.45
Conclusion
*********
HEALTH ON DOORDARSHAN
************** ****** •***
J. Victor Koilpillai
From what appears from time to time on TV, in English and
Hindi on the national network, and in regional languages
from other centres, one may conclude that Doordarshan (DD)
and the government which controls it would like to us the
medium for informing and educating people on health and
health-related matters.
How effectively this is being done
can be determined only through a systematic survey of viewers'
reactions. What is attempted here is an examination of some
randomly viewed programmes from the point of view of effective
communication.
Those viewed were comprised of some in English and Hindi from
Delhi and some in Kannada from Bangalore.
DD in this State
has a weekly programme on health related topics besides short
items and spots put out from Delhi, some of them dubbed in
Kannada and used as fillers.
Those in Kannada viewed for this
analysis were about medication during pregnancy, fever and
fits in children, tuberculosis, yogasanas, clean drinking
water and a skit on drugs.
The majority of health programmes
in Kannada are interviews, which are perhaps the easiest to
arrange and produce: get a person fairly knowledgable on a
topic, together with an interviewer and make them have a
session of questions and answers.
There are slight variations
in the pattern of interviews, the dullest type being the one
in which the two persons have obviously gone over a prepared
set of questions and answers and almost recite them, occasionally
glancing at notes which are of course out of sight of the viewers
The answers in such an interview, if taken out and strung to
gether would form a speech or a dull essay.
It is anybody's
guess as to what proportion of viewers sit through such inter
views with questions and answers coming monotonously in the
same tones.
A variation which relieves the tedium is when the questioner
interjects supplementaries on the answers given, brining up
questions that people might ask on the subject, which makes
it more of a conversation and more spontaneous^
In some
interviews charts and figures were flashed on the screen,
but no clips from real life.I feel interviews are all right
for bringing a celebrity or other interesting personality
before the viewers, but not an attractive form for educational
and informative purposes. What I am referring to are inter
views made up wholly of questions and answers from two
person, unrelieved by anything else.
A documentary with some persons in it talking besides the
narrator is more effective for communicating information,
and one such I viewed was about clean drinking water broad
cast from Bangalore.
The visuals moved rather fast as too
many had to keep pace with the narration, particularly the
2
2
description of ways in which water in various places is
polluted.
Funeral pyres were shown three times, which I
thought was unnecessary to warn people of the Ultimate
consequences of drinking unde an water.
There was rather
unrealistic emphasis on boiling water for drinking, which
is a luxury for the poor who in the rural areas are the
greatest sufferers of lack of drinkable water.
The need
to provide drinking water in every villager, or at least
information on what is being done, in this respect should
have been mentioned.
The most glaring defect in this short film is the language.
The narrator throws questions at the village folk appearing
in it who reply in their typical colloquial Kannada, but
the advice given to the obvioQsly similar audience is in
high-flown language, with literary flourishes, long
sentences and difficult words like: parisara, apoushtika,
poushtikamshagalu, sookshm ad arsh ak a, kalmasha, and so on.
The producers have not bothered to adapt the language to
the target audience.
Two short ones (spots) have been appearing recently on
drinking water; one on boiling the water and another
showing women around a handpump.
One of them says, "We
drink only this water". Well, who doesn't?
Doordarshan
should know that people don't drink dirty water by .choice.
If a borewell and a handpump are provided, they will all
drink that water only, will they not ?
Another set of programmes viewed for this report were
exercises for keeping fit.
One was a set of exercise for
the biceps, arms, chest muscles, the back and the abdomen.
Part of a series, these were presented by a group of young
men and women directed by a compere (instructor).
These
exercises were apparently for the benefit of all, that is,
persons of all ages, but even the warming up called for
strenuous effort (like jumping up and down many times) which
only teenagers and young men and women in their 20s and 30s
can perform.
Perhaps there are others in the series meant
for older people and the very young.
There should also be
special ones for those whohave back trouble, the pregnant ■
women, and others.
One set of yogasanas this writer viewed, presented with
instruction and explanation in English in the morning
transmission from Delhi, included variations for the
benefit of people who could not do it in the standard way.
A stout lady and a person who could not sit with legs
stretched forward were helped to demonstrate how to get
the benefit of the Paschohimathomas an a, though they had
problems with their physique.
This was one asane, done
slowly, with every movement fully explained, allowing
time for the interested viewer to learn it properly.
Quite in contrast to this was a programme in Kannada of
a number of asanas demonstrated rapidly by two slim,
teenage girls.
None of the asanas remained in my mind
afterwards.
Again the communication factor had been
overlooked.
If the viewers cannot get the message easily
.3
end clearly, and remember it enough to practise it later,
TV programme on a health related topic is a waste.
a
In India, it is as important to help people learn as it is to
unlearn beliefs and practices about health and nutrition.
A
good deal of superstition surrounds also certain diseases like
measles, chicken-pox, leprosy, tuberculosis, and so on.
In
the interview programmes from Delhi in English and from
Bangalore in Kannada I viewed recently some questions were
raised on popular misconceptions about TB, pregnancy epilepsy
and even water (How can Ganga be polluted ?).
it would be
helpful to pick up sets of wrong beliefs in various aspects
of health and medicine and focus on them.
For example, in
the interview in Kannada on medication during pregnancy, the
doctor said only in passing that one cause of deformities in'
babies (apart from toxio medication of the mother), was con
sanguine marriages - an established tradition in India, on
which a whole programme could be done.
Programme on health are not entertainment, but they can be
made entertaining enough to get and hold viewers' attention
to put their message across to them.
This requires creative
skill in handling the facts which, of course, must be
authoritative and exhaustive enough for lay people.
Among'
the items viewed for this write-up one was a cartoon for
children in Hindi and a skit in Kannada for a general audience.
The cartoon was more interesting with a message on nutrition
from vegetables.
The skit was on the sale and use of drugs.
Three persons symbolically represented drugs and the plot
let to a trial in a court, the judgement being several
declarations on the responsibility of pharmacists, on using
drugs prescribed by a doctor only, on buying them only from
a pharmacist, and ao on.
It was not as funny as it was meant
to bey. it was unconvincing and artificial, but DD must persist
in such attempts.
All creative, interesting forms of presen
tation must be used, and recourse to dull interviews must be
reduced to the minimum.
I wish to reemphasise that every
programme should be tested to ensure that.it communicates its
message effectively to the audience aimed at.
It must be added here that apart from programmes produced and
put cut by DD, we get health related messages on TV in another
way, namely the advertisements. We get messages constantly on
nutrition for example: magical breakfast cereals which improve
a child's performance at gymnastics the same morning; processed
food drinks which give energy to play great cricket, biscuits
which are the secret of a boy's fine extra ability at games,
and so on.
Similarly, we are told about tablets which make a
cold disappear instantly, cough syrups which put an end to
your coughing, no matter what causes your cough.
Does DD
endorse all that is promised through these products ?
I think I can stop with that question, as these are not
conclusive but stray thoughts for further thinking.
THE ROLE OF ALL INDIA RADIO
COMMUNICATING HEALTH
A. 5. Chandra Mouli
Health is a vital resource which any country would like to
earner for various reasons.
As a matter of fact, the objective
of a country would be to have a qualitative population than a
merely quantitative one. Obviously, the planners always aim at
reducing the mortality and morbidity rates, in addition to bring
ing about positive changes in the demographic structure of the
population.
Change pre-empts many things, the contention being, change
is generally viewed with suspiction, though it's directed to
bring about betterment.
This, indeed, desiderates the help of
certain agents who can work towards bringing about the desired
effect of change. But the question that arises is, who are
these change agents? How do they identify themselves as
change agents?
Generally, a change agent is one who is acceptable to the
society or community at large; who enjoys a special status, and
most importantly the one who has a mass appeal.
Perhaps, in
this background, one could easily infer that the various media,
by virtue of these inherent qualities, could be construed as
egents of change. Radio, television and the print media could,
by communicating issues related to development in various
fields, best serve as agents of change.
Achieving the goal of Health for All by 2000 A.D. needs
a sustained campaign.
This cannot be done by the health infra
structure alone, which is set up to provide health education.
Besides, in a country like India, where as much as 00 per cent
of the population lives in’villages, and illiteracy is to the
tune of 60 per cent, some complementary efforts are imperative.
Reaching Out Through Radio
It is in this context, that the role of radio assumes great
significance, given the number of radios owned, and the reach
of broadcasts. Today, radio signals reach as high as 96 per
cent of the population and the number is more than 10 crores.
No other medium has such wide reach and accessibility.
In
addition, communication through radio always has endeavoured
to give its listeners the local touch.
This makes the
message not only sound personal but endearing.
1
Committed to the triple objective of providing information,
education and communication (IEC), radio has, in a way, championed
the cause of development communication.
Although radio began
as a medium promoting art and culture, it eventually realised
the importance of educating people on agriculture and health.
Today all the one hundred stations are putting out programmes
t
on health, which have both wide audience and demand.
In a bid to provide sustained education on health, health
communication gained an impetus in AIR when a separate cell
was croated to produce programmes on health and family planning.
Since it's inception in May 1967, each cell has been devoting
itself to identify the local disease pattern and health
problems - both physical and mental and enlighten the audience
on the preventive and curative measures of these illnesses.
What is perhaps noteworthy is that seasonal diseases arc iden
tified and the audience educated about them.
It may indeed
be interesting to note that each year an Advisory Committee
consisting of experts in the field of health and family plann
ing is constituted to guide and help in planning of health
programmes, providing support and credibility to scheduled
programmes.
Papular Health Programmes
Topicality is another aspect of radio broadcasts.
Obviously, the programme schedule reflects the health issues
that deserve wide coverage or education during the period.
Experts in the respective field are invited either to give
talks, or for an interview or discussion, and, 'Arogya Bhagya',
a programme broadcast from AIR Bangalore is one such.programme.
This is indeed, is a very popular programme.
'Health hints'
broadcast from AIR Delhi is also'a very popular programme.
Similarly programmes on health broadcast from other Stations
ore also equally popular.
AIR Programmes are broadcast in different formats.
They
are talks, Discussions/Interviews , features and plays.
Though
ell these programmes are produced, keeping in view, who the
target audience is, still plays are better liked by the
audience. The reason being, the message is not direct and there
is a story-line. This rule, however, does not apply much to
health programmes. The reason being, as far as health issues
are concerned, the audience desire the message directly. For
.instance, in the recently concluded 13 episode series on
medicinal plants, the actual information on plants began from
episode VI, while the first five dealt with history and various
aspects of medicinal plant wealth. The audience were too
impatient to wait till the sixth episode. During this period
hundreds of letters came from the listeners asking AIR to
start talking about medicinal plants at once instead of
narrating history et.al.
2
Among the health programmes broadcast from AIR, Bangalore
'Meet the Specialist', is highly popular.
This programme adrosses all the question of the audience on a particular dise
ase to an expert who is a medical doctor. Listeners from very
far and remote areas write to AIR to get remedy for their
ailment. Similarly 'Varta Taranga' a news bulletin on health
programmes to be held in an around the state is widely listened
to.
According to the feedback received from both listeners
and the department of health, people stand to get educated
about health and family planning camps from this programme.
As a matter of fact, the department of health and family wel
fare service, Karnataka has gone on record appreciating the
contribution of AIR in creating awareness about the immuni
sation programme.
Communication becomes more purposeful whan it is need
based.
The message put across still have greater suggestibi
lity when it appeals to a particular section/society.
Accord
ingly, AIR programmes are produced to suit the needs of diff
erent groups. In broadcasting parlance, these groups are
described as Special rtudience. Women, youth, children, rural
women, farmers and industrial workers are identified as
special audience groups. Health programmes are planned to
suit the needs of these groups; for instance, in women's pro
gramme, health of women is given greater focus.
In addition,
programmes on antenatal care, child care, etc., are broadcast.
Similarly in Farmer' programme aspects like environmental
sanitation, seasonal diseases, certain prophylactic measures
are accentuated.
In Industrial Workers programme industrial
hazards and industrial health are given greater emphasis.
Though a majority are deprived of the ability to read and
learn, radio has been creating an awareness and educating
them on various aspects of health.
A
Apart from the routine programme fare, All India Radio
has also been doing some special serials on health and
family welfare. To name a few, the scries don^ on Maternal
and Child Health is active collaboration with the United
Nations International Children's Education Fund (UNICEF)
Radio Date on Drug, Alcohol and Tobacco abuse, done in col
laboration with the Indian Council of Medical Research and
'Jeevan Sourabha', a series on family life education.
Radio
Date and Jeevan Sourabha were very bold programmes, and they
dealt with certain problems which one would hesitation in
sharing with others.
Another notable feature of these series
is that they were broadcast by all AIR Stations in the country
to a captive audience of more than a lakh listnors. The
listeners of Radio Date were also given some printed literature
on drug, alcohol and tobacco abuse to reinforce the message.
AIR, Bangalore, broadcast a series on planned parenthood
through which it handed down a guide to the prospective and p
present parents as to how a family should be planned.
A series
on 'The Heart' is now planned; it endeavours to show how
3
strong or frail is the heart that is so tenderly spoken of
by poets.
Committed to the cause of health
Health communication has always carved a place for it
self in broadcasting.
All AIR Stations are committed to
the cause of health and are trying to educate thejsir
audience on all aspects of health.
Programmes on environ
ment and sanitation, which are complementary to health,
are being broadcast regularly both at regional and
national levels.
The role of radio in health communication is well docu
monted in studies done by various research institutions.
It may not bo an exaggeration to say that in an’illiterate
society like ours radio, provides a rays of hope.
4
ANALYSIS OF NEWS COVERAGE OF HEALTH ISSUES IN FOUR NEWSPAPERS
OF KARNATAKA
At Alma Ata in 1978, 160 nations declared' their
resolve to ■work towards a minimum level of health for all
citizens so as to enable them to be economically productive
and socially useful.
This Declaration, under the aegis of
the World Health Organisation (WHO) and the World Bank,
aimed to achieve Health For All by 2000 AD.
This goal was sought to be achieved through the primary
health care approach, in a spirit of social justice and as
a part of overall development.
The Declaration laid emphasis
on the preventive and promotive aspects of health well inte
grated with curative, rehabilitative and environmental
measures.
As a party to the Alma Ata Declaration, India has in
collaboration with the WHO, formulated both short-term and
long-term strategies to achieve health for all its people.
The National Health Policy provides crucial goals for the '
Health and Family Welfare programme to achieve by 2000 AD.
The government, has evolved about a dozen national health
programmes to provide a greater thrust to the health care
system.
J
Pr. N. H. Antia (Seminar, May 90, 19-23 and elsewhere
in this journal) has identified some of the major defici
encies of Indian health programmes. According to him,
public health has been appropriated by both the public and
the private sector, while the people themselves have been
excluded from understanding and undertaking what is pri
marily their own function. He accuses vested interests in
the profession of with-holding information and mystifying
knowledge about health. Appropriate health education can
encourage people to question unnecessary investigation,
medication and surgery. Dr. Antia suggests that an
-2important aspect of such education is the passing on of the
information to people about the public services meant for
their welfare.
This, he says, will bring accountability
in to the system.
It is clear that the crying need of the day is to
create awareness among the masses in this regard. This is
where the importance of the mass media is keenly felt. The
media have been involved in every significant social change
since they came into existence and have taught us a basic
precept : a major involvement of communication always
accompanies any major social change.
Among its other obvious functions, the role of the
media in development, especially in Third World countries,
is of prime importance.
As 2?r. Wilbur Schramm has pointed
out, the media can help to create a climate for development.
They can alert citizens to dangerous situations and can
focus attention on the need for change. The media can also
help to raise the aspirations of a people and create a
sense of nationhood.
According to Amao-Michael Habte, in most Third World
countries, the mass media are primarily expected to function
as part of the national effort in the task of modernization.
NEW ROLES
The role of newspapers in circulating news is dec
reasing as broadcasting, particularly television in deve
loped countries has stepped up its reporting efforts and
enhanced its appeal as a news source.
But newspapers
play an increasingly valuable role in explaining, inter
preting and commenting upon events in society, especially
where broad debates on major social objectives or world
affairs are taking place and require expanded analysis
as opposed to straight forward reporting.
It was with this role of the press in view that the
present study was conducted.
-3-
The objective of the study is to examine and analyse
the type and extent of coverage given to health issues in
newspapers.
Apart from studying the coverage given to thematic
categories, coverage has also been studied in terms of
their location, emphasis and tjipe categories..
Six leading newspapers were chosen for the purpose of
the study : Indian Express, Deccan Herald, The Hindu and
Times of India (English dailies), Prajavani and Kannada
Prabha (Kannada dailies).
The editions of June and July 1990, the two months
prior to Gulf conflict, were chosen for. the purpose.
The
sample was chosen on basis of every second day; and
ensured that all days of the week were uniformly covered
twice.
The total sample size was 180 issues.
In order to identify and categorise coverage of
health issues, a thematic classification of content was
developed.
A code frame having 30 thematic mutually' exclusive
relevant categories was prepared under eight category
heads.
The thematic categories are:
1. Health care : International, National, Regional,
local.
2. Health Programmes : Prevention, Control, Eradication,
Rehabilitation.
3. Maternal and Child Health : Maternal Health,
Child Health.
4. family PlanningsProgramme, Promotion, Methods.
-45. AIDS : Spread, Control, Treatment.
6. Treatment : Methods, Research, Technology.
7. Pharmaceuticals : Policy, Price, Supply, Industry.
8. Miscellaneous : Rare cases, Medical Education, Consu
merism, Hygiene, Epidemics, Narcotics,
Diseases,Other (scandals, legal cases,
ayurveda, environment).
Coverage Categories are:
1. Emphasis : Lead 1, Lead 2, Lead 5, Lead 4, other.
2. Location : Front page, Editorial page, Feature page,
Other.
3. Type : News, Editorial, Feature, Letters to Editor,
Photographs or Cartoons.
The themes were chosen on the basis of their relevance
and importance to society and the Health For All by 2000 AD
goal.
Standard categories used in content analysis -
emphasis, location and type - have been adopted to study
coverage.
ANALYSIS:
The study proved to be an eye-opener.
Not even two
percent of the total coverage in each newspaper was devoted
to health.
(See Sable 1).
Kannada Prabha stood first
in terns of the percentage of health coverage (1.06$),
whereas, when it came to the total number of column centi
metres, the Indian Express tops the list (2212 col.Cms).
totally, the greatest amount of space was given to
miscellaneous items such as scandals, legal cases relating
to health care, ayurveda, the environment, blood dona
tion and medical education (33.4$). (See Table 2). These
items were grouped together under miscellaneous, keeping
in mind their lesser relevance to the Health For All goal
when compared to the other thematic categories. The
-5thene, treatment has been given greatest coverage in the
Indian Express (50.4%), Prajavani (55.5%) and. The Hindu
(42.4%).
Except for Kannada Prabha (7.8%) and The Hindu (7.5%)
the newspapers gave little emphasis to family planning
issue.
Prajavani’s coverage of the issue was nil.
On the
other hand, Kannada Prabha gave absolutely no coverage to
today’s most dreaded disease, the Acquired Immune Deficiency
Syndrome
(AIDS)' ty the newspapers was a mere 7.2' per " ..
cent^of the
total health coverage.
The coverage given to the treatment of health problems
was second in the list, and it made up 22.4 per cent of the
total space devoted to health.
Coverage Categories:
Coverage categories refer to the way a particular item
has been published, its location, its importance and type.
Coverage categories of health issues in newspapers offer an
interesting glimpse of a newspaper's attitude towards health.
(See Table 2).
Of a total of 550 items devoted to health,
half of them (178) were hidden along with other items in a
page.
Lead one health items were 48 in number.
item is the most important item for the page.
A lead One
These were
mostly features appearing in the feature page or news items
of regional importance.
Times of India carried a lead one,
jfege &ie news story on how over 1800 medicos were left in
a lurch after passing the AIIMS entrance examination.
Another important page One item in the Times was a very
useful and informative piEExjjxiEE piece on Epidemics :
"It is Epidemic season : Time for States to Act* (96 Col.Cms).
Two editorials regarding health have been published
Kannada Prabha was critical of the treatment facilities
in government hospitals, while Deccan Herald in its
editorial suggested measures to control epidemics, June and
July being epidemic time in India.
-6All other health items on the front page dealt with
local or regional health care infrastructure, medical
education or
AIDS
(20 items).
The coverage given to
the strike hy medical students in Bangalore occupied q
large chunk of space.
A few articles, many letters to the
editors, along with just two editorials occupied some space
(23 items) in the editorial page.
More than 75 per cent of the health items conered
were in the form of news.
Thematic Categories;
1. Health Care ; The theme health care encompasses health
care infrastructure, the present health situation and
access to health facilities at the international, national,
regional and local levels.
(See table 4).
Health care
occupied just 10.6 per cent of the total space given to
health. The Hindu and the Times gave 8.1 per cent coverage
to international health care items, while others ignored it.
The most important aspect of the theme's coverage in the
Hindu was a comprehensive, lead one article in the Editorial
page,
'Health care As People's Movement' (97 ool.Cms).
A 63 col.cm. article on Psychiatry as a profession, was of
significance in Times of India.
More than 50 per cent of
health care items dealt with regional health care facili
ties. They mainly concerned the recruitment of doctors in
the state, scandals in government hospitals with respect
to the misuse of money meant for health care, and so on.
2. Health Programmes:
Health programmes of the govern
mental, non-governmental and international agencies were
also poorly covered *(8.6$) (See Table 5). Coverage given
to rehabilitation programmes occupied the largest chunk of
space (45.4$) devoted to this theme. Almost all the
features/news stories on /rehabilitation dealt with the
physically disabled. Also, most of the control or treat
ment programmes publieliised were conducted by voluntary
-7-
organisations.
The almost total lack of interest shown
by the Hindu (24.5 col. eras) and the Times (45.5 col.eras)
is striking.
Indian Express topped the list (299.5 col.
eras) in giving coverage to this theme.
5. Maternal and Child Health;
Maternal and Child Health
has always been a priority issue, especially so in develop
ing countries. On the whole, both mother and child have been
given almost equal inportance (48.6$) ar>d 51.4$ respectively).
Maternal health was of zero value to Prajavani and The
Hindu.
Indian Express had three large articles (covering
427 col.eras) to its credit (abortion, contraceptive and
child birth methods), while Prajavani published just one
article on this theme - a 198 column centimetre feature on
child health.
This category was covered by Kannada Prabha
in its feature page,
'Naari Loka'.
4. Pbnily Planning:
family Planning has been studied apart
from health programmes because it is India's most well-
known, high priority programme.
This issue was almost
totally neglected (5.4$ of total health coverage).
Praja-
vani's contribution was nil, whereas Kannada Prabha and
file Hindu published articles on how to treat female sterility.
5. A. I. P Si
AIDS, a major preoccupation of the last
decade and still very much so, did not worry Kannada Prabha
(nil). Prajavani concentrated on its spread in India and
abroad.
The Hindu gave page one coverage to news of its
spread in India. Times of India came ■ out with two very
interesting articles on AIDS (11.7$), among others. A
51.5 column centimetre article focused on how Indian
hospitals are refusing to admit AIDS patients, and a 62
column centimetre article, on AIDS victims being shunned
by society in India, showed a sympathetic attitude towards
the victims. Apart from these, most items on £IDS, espe
cially the ones on its spread, dealt with prostitutes
having AIDS, or of cases like that of an AIDS infected,
high-on-drugs prisoner stabbing his needle into a prison
guard.
-86. Treatment;
New drugs, cures, medical technology,
research devoted to treatment of a patient, are covered
under the theme treatment.
.
.
As a single theme, treatment
occupied 22.4 per cent of the total health space.
Indian
Express (671.5 col. cms) and The Hindu (651.5 col.cms)
topped the list in giving coverage to this issue.
The
coverage given to this theme scored hues over other themes
in the Hindu (42.5$). The Health Page in the Sunday
magagine consisted mainly of comprehensive, educative
articles on new methods of treatment.
Yet another column
of importance in The Hindu was the one' on proper use of
particular every-day-use drugs like Aspirin.
Most of the
news on research in the newspapers, dealt with studies on new
methods of prevention of diseases like heart diseases,
cancer, tuberculosis etc., with changes in diet and other
habits being suggested here.
Most of the news on treatment
in all news papers except The Hindu, appeared as brief news
stories.
It was concentrated in the- ’In Brief' columns of
Deccan Herald and Times of India; 'Prom Here and There' and
'Global Monitor' columns of Indian Express.
7., Pharmaceuticals;
The Pharmaceutical industry has seen
tremendous growth in the past few years.
Government drug
policy occupied a major portion (62.3$) of coverage given to
pharmaceuticals.
Most of them were in the form of news
stories, and hence did not reflect the opinion of the
newspapers. Kannada Prabha (6.5$) and The Times (9.5$)
gave the least coverage to this issue.
Of interest is a
110 column centimetre article in the Deccan Herald's
editorial page, criticising the Pharmaceutical Industry’s
pricing and other policies.
8. Mi see 1lane oust
Small news items of rare medical cases,
articles on consumerism and hygiene, news of epidemics of
cholera etc. narcotics, items involving scandals, blood
donation, legal cases, ayurveda, environment, all together
formed the largest chunk of the health coverage
-9-
in the newspapers.
It was the largest in Deccan Herald
and Kannada Prabha.
The Hindu .gave
least coverage to
the issue compared to the other newspapers.
The most important factor to be noted here is the
enormous coverage given to Medical education (1231 col.cns
or 11.9% of the total coverage on health).
This was k
because of two reasons: one was the strike by local medical
students and later, doctors, throughout June.
June and
July were also months of medical results and entrance exa
minations.
Hews items on new courses, increased seats in
medical colleges and seminars contributed to the bulk of
the coverage on medical education.
In Times of India, a 234 column centimetre article on
headache contributed to the large coverage of the mxsEBkkacx
miscellaneous category.
The Hindu and The Times published
one article each on mental health.
.
Of the newspapers studied, Deccan Herald and The Indian
Express
have their own weekly science supplements.
The
Hindu, apart from its e science supplement, has a special
page for health in its Sunday supplement.
weekly Science Page.
The Times has a
The Hindu's column on proper use of
drugs; Deccan Herald's column on consumerism are of direct
practical use to the common man.
Conclusion:
While most items on health issues were not opinionated,
features on health themes were comprehensive and educa
tive.
Features on abortion, effect of contraception on
women, female infanticide were not only educative, but
were also critical in tone.
Features on cancer control
± showed a concern for the health of the common man.
Kannada Prabha's articles in its weekly ’Yuva Sakti’ page,
advising youth'against drugs and smoking, showed the
newspapers attitude towards social and health problems.
-10-
Editorials reflect the opinion of a newspaper.
There
was one editorial that criticised the facilities available
(or not available) in government hospitals.
Two of the most impressive items were The Times item,
'It is Epidemic Season : Time for States to Act' and the
article ’Health Care As People's Movement' in The Hindu.
Both articles were relevent, analytical and informative.
The Pharmaceutical industry was not given importance.
Concern about the spread of AIDS in India ensured for the
issue a front page coverage, and nothing more.
Only The
Times carried some thought provoking articles on the issue.
Family Planning has also been neglected.
In most cases, the newsworthiness of a health issue
played the most important part in its coverage. The
fress did keep in mind its educative role and hence,
informative features on health issues were also published.
* * * * *
TABLE - 1
Prajavanl
KANNADA
PRABHA
THE HINDU
TIMES OP INDIA
TOTAL
2,21,616
1,40,286
1,43,880
2,02,176
1,95,696
11,30,454
1983.5
2212.0
1433.0
1527.0
1536.5
1691.5
10383.5
(0.87$)
(1$)
(1.02$)
(1.06$)
(0.8$)
(0.9$)
(0.9$)
SPACE IN
COL.CMS
DECCAN
HERALD
TOTAL
SPACE
(50 days)
2,26,800
HEALTH
CO TERAGE
IT = 180
INDIAN
EXPRESS
TOTAL COVERAGE GIVEN TO HEALTH
TABLE - 2
NEWSIiPER
Healthcare
C.C
$
HEALTH COVERAGE ACCORDING TO THEMATIC CATEGORIES
Health
Maternal &
Dr ogrammes Child
Health
C.C
$
C.C
%
*(Col.Cms. = C.C)
Family
Planning
AIDS
Treatment
C.C
C.C
C.C
$
Pharmaceu
ticals
C.C
$
Miscella
neous
C.C
$
DECCAN
HERALD
159.5
8.1
167
9.4 55
2.8
61.0 3.1 273.5 13.8 137.5 6.9
277.5 14
INDIAN
EXLxIiSS
119.0
5.4
299.5 13.5 427
19.3
15.5 0.7 119.0
5.4 671.5 30.4
81.5
3.7
479
21.6
PRAJAVAII
172.5
12
91
6.4 198
13.8
0
44.0
3.1 480
33.5
40.5
2.8
407
28.4
KANNADA
PRA11IA
159.0 10.4
247
16.2 166
10.9
120.0 7.8
0
0
1.4
6.5
0.4
807.5 52.9
THE
HINDU
208.5 13.6
24.5
1.6 109.5
7.1
114.5 7.5 111.5
7.2 651.5 42.4
16.5
1.1
300
19.5
TIMES OF
INDIA
277.5 16.4
45.5
2.7 107
6.3
45
2.7 198
11.7 363
9.5
0.6
646
38.2
TOTAL
1096
10.6
894.5
8.6 1062.510.2
356
3.4 746
7.2 23245 22.4 432
4.1
3472
33.4
0
21.0
21.4
832.5 41.9
TABLE - 4
-1 4 -
NEWSPAPER
INTERNATIONAL
C.C.
%
THEMATIC CATEGORY ; HEALTH CARE
NATIONAL
C.C.
7°
REGIONAL
C.C.
%
LOCAL
c.c.
%
,
TOTAL ■
Col..Cns.(C.C)
DECCAN
HERALD
0
0
0
0
107
67.1
52.5
52.9
159.5
INDIAN
EXPRESS
0
0
40.5
54
44
57
54.5
29
119\
PRhJAVANI
0
0
0
0
164.5,
95,5
8
4.7
172.5
KANNAEA
PRABHA
0
0
17
10.7
142
89.5
0
0
159
THE HINDU
20
9.6
158
66.2
50.5
24.2
0
0
208.5
TIMES OP
JNIIA
69
24.9
78
28.1
150.5
47
0
0
277.5
TrTAL
89
8.1
275.5
24.9
658.5
58.2
95
8.7 . ;
1096
”
N = 160
—
•
TABLE - 5 : COVERAGE CATEGORIES OF HEALTH (IN Number of items)
EMPHASIS
LEAD
2
.3
4
NEWSPAPER
- . ■
.1
LOCATION
Other A
B
TYPE
_c '
D
. A ■ ' ■■'Bi-.' C
-Total- ■■items
D
Photo .-;-
DECCAN
HERALD
11
11
10
5 ' ■ 53 ' "4
8
10
68
74 '1
10
5
90
INDIAN
EXPRESS
9
8
11
2
■45
3
4-15
53
'65 ' 0
8
2
75
in
PRAJAVANI
7
5
6
3
15
2
1
9
24
26 .. Q
.10.
.0..
.. ..7.-36
......4
KANNADA
PRABHA.
7
8
6
3_.
9 . .'.2.
2
8
2-1 - ■ - - 22
1-
... 9.
1 ~
"
THE HINDU
11
7
6
3
28
6
14
30
55
0
15-. . 5
3
12
TO
.8
28
2
11
44
.48
51
49
24 ,178
. „— .
23
67 240
270
2
2
I
i
4 •>
i
-
1 1
,
1
‘
20
*
5
33 '” ’
i
N = 180-
.
TOTAL
I
TIMES OF'
INDIA'
.
.
>' >
.
1
1
KX
1
■
, .
-
' 6 '
E f ' 55 ..■
5
•— w—
. 5.5.0.
■ 20 . ...
M* MW
... •■)
.4.8 _p .. .10. ’ ■■-73';' -"■■- --61 -- ■- ... ....,0 -....- --
: 62
16
<:■
-.Location: A:- Front Page; B:Editorial Page; C:Feature page D:Other page
Type: A: News; B: Editorial; t:.Feature; B: Letter to Editor.
- ./-■
TABLE - 5
-1 5 -
NEWSPAPER
PREVENTION
THEMATIC CATEGORY : HEALTH PROGRAMMES
CONTROL/
TREATMENT
£
ERADICATION
REHABILITATION
C.C.
C.C
<i°
TOTAL
ae
$
C.C.
DECOhN .
HERALD
21
11.2
10
5.4
9
4.8
147
78.6
187
INDIAN
EXPRESS
35
11.0
11
5.7
102
54.0
155.5
51.5
299.5
PRAJAVANI
0
0
0
0
0
0
91
100
91
KANNADA
PRABHA
125
50.6
122
49.4
0
0
0
247
THE HINDU
5
20.4
0
0
61.2
24.5
TIMES OP
INDIA
45.5
100
-
TOTAL
229.5
25.7
145
N = 180
15.9
4.5
$
0
18.4
15
-
■-
-
-
45.5
115.5
12.9
406.5
45.4
894.. 5
TABLE - 6 : THEMATIC CATEGORY : MATERNAL & CHILL HEALTH
NEWSPAPER
MATERNAL HEALTH
cr/,
C.C.
DECCAN
HERALD
CHILD HEALTH
C.C,
TOTAL
Col.Cms.
6
10.9
49
PRAJAVANI
402.5
0
94.5
0
24,5
5.7
198
100
KANNADA
PRABHA
72
43.4
94
THE HINDU
0
0
109.5 100
109.5
TIMES OP
INDIA
36
33.6
71
66.4
107
TOTAL
516.5
48.6
546
51.4
1062.5
INDIAN
EXPRESS
'
89.1
55
. 427 ______
198
56.6
166
N = 180
TAELE - 7
NEWSPAPER
THEMATIC CATEGORY : EAMILY PLANNING
PROGRAMME:
C.C. %
TOTAL
METHODS
C.C. %
PROMOTION
C.C. $
A
6.5
61__________
INDIAN
EXPRESS
7
45. 2
3.5
54.8
0
0
15.5
PRAJAVANI
0
0
c
0
0
0
0
KANNADA
PRABHA
0
0
0
0
120
100
120
THE HINDU
13.5
11. 8
0
0
101
88.2
114.5
TIMES OR
INDIA
45
100
0
0
0
0
45
TOTAL
79.5
22.
63.2
356
N = 180
225
1
!
i
1
o'
VI
■
>
i
I
vi
I
—k
VI I
l
1
70.5
i
43
I
23
!
14
1
DECCAN '
HERALD
■-11 -
;
TABLE - 8
NEWSPAPER
THEMATIC CATEGORY
AIDS
TREATMENT
C.C.
%
CONTROL
C.C.,
%
SPREAD
C.C.
:
TOTAL
DECCAN
HERALD
13
48
■252.5
92.3
8
2.9
273. 5
INDIAN
EXPRESS
24.5
20.6
0
0
94.5
79.4
119
SRAJAVANI
44
100
0
0
0
0
44
KANNADA
PRABHA
0
0
0
0
0
0
0
THE HINDU
42.5
38.1
69
61.9
0.
0
111. 5
TIMES OF
INDIA
96.5
48.7
0
0
101.5
51.3
198
TOTAL
220.5
29.6
321.5
45
204
27.4
746
N = 180
TABLE - 9
NEWSPAPER
: THEMATIC CATEGORY : TREATMENT
NEW METHODS/ RESEARCH
CURES/DRUGS
C.C.
C.C.
%
.%
NEW TECHNOLOGY
C.C.
%
TOTAL
DECCAN
HERALD
14.5
10.6
105
74.9
20
14.5
137.5
INDIAN
EXPRESS
230.5
34.3
504
45.2
137
20.5
671.5
PRAJAVANI
232
48.4
168.5 ' 55.1
79.5
16.5
480
KANNADA
PRABHA
0
0
21
100
0
0
21
THE HINDU
555
85.2
78.5
12.0
18
2.8
651.5
TIMES OF
INDIA
160.5
44.2
202.5
55.8
0
0
363
TOTAL
1192.5
57.3
877.5
37.8
254.5
10.9
2324.5
N = 180
TABLE - 10
NEWSPAPER
POLICY
C.C.
$
f
THEMATIC CATEGORY
PRICE
C.C!.
%
SUIPLY
C.C .
%
PHARMACEUTICALS
INDUSTRY
C.C.
%
TOTAL
DECCAN
IERALD
145.5
52.4
16
5.8
0
0
116
41.8
277.5
" INDIAN
EXPRESS
81.5
100
0
0
0
0
0
0
81,5
22.5
55.6
0
0
18
44.4
0
0
40.5
.. prabhA
6.5
100
0
0
0
0
0
0
6.5
' THE HINDU
8
48.5
0
0
0
0
8.5
51.5
16.5
TIMES OP
INDIA (
5
52.6
0
0
0
0
4.5
47.4
9.5
269
62.5
16
5.7
18
IRAJAYANI
(k
T—
t
KANNADA
TOTAL.'
N = 180
i
i
i
i
4.2
129
29.8
452
TABLE - 11
NEWS
PAPERS
-19'
DECCAN
HERALD
Rare cases Medical
Educat ion
C.C.
C.C. $
30.5
THEMATIC CATEGORY
: MISCELLANEOUS
Consumerism Hygiene
Epidemics
Narcotics Diseases Other
C.C.
C.C.
C.C.
C.C. %
%
Ci
ft
C.C ft
C.C.
TiaTatal
ft
293
• <' ■
35.2-
159
19.1
84
10.1
45.5
5.5 198
23.7 0
0
22.5
2.7 832.5
INDIAN
EXPRESS 14.5
3
291
60.8
0
0
0
0
5
1
36
7.5 0
0
132.5
27.7 479
ERAJ AVANI
16.2
28.5
7
198
48.6
0
0
0
0
0
0
0
114.5
28.2 407
66
0
KANNADA
PRABHA
0
0
230.5 28.5
0
0
0
0
4.5
0.5
87
10.8 354 43. 81131.5
THE
HINDU
24
8
196.5 65.5
0
0
0
0
0
0
15
5
0
0
64.5
21.5 300
TIMES
OF
INDIA
0
0.
191.5 29.6
0
0
9
1.4
107
16.6
31
4-. 8 0
0
307.5
47.6 646
TOTAL
135
3.9 1231
357
10.3
93
2.7
162
4.7 367
10.5 354 10. 2 773
22.3 3472
•
35.4
16.4 807.5
N = 180
- SANTHYA GIRI
The Media and Women's Health
Four media
'approaches'
to health
A recent analysis of the coverage of health and medicine in the British and North
American media distinguishes four types of approach (Ann Karpf: Doctoring
the Media: the reporting of health and medicine). These provide a general
frameworkfor thinking about how health and medicine are dealt with in the media
of most countries.
The power of
medicine
• The medical approach, which emphasises the curative power of medicine.
Certain images, celebrating medicine at its most powerful - the white-coated
(male) ooctor, the stethoscope, the test-tube, the operating theatre - are call
ed to mind by this approach. It regards illness as abnormal and pathological:
we 'get it' or 'catch it', ‘get rid of it' or 'shake it off. The medical approach is larg
ely uninterested in the causes of illness, but it favours biological explanations.
Better health is equated with better medicine and more medical technology.
Individual
responsibility
’ The !ook-aft°r-vourself approach, which stresses the need for changes in
individual benaviour. This attnbutes illness to'unhealthy'habits or lifestyle
- eating the wrong food, drinking too much, smoking, lack of exercise, and
stress In this approach, individuals are assumed to have almost unlimited
powers to shape their lives.
The oatient's
rights
■ Th° consumer approach, which focuses on the relationship between the
patient and tne medical services. It questions the organisation of health
care, and may criticise doctors for being uncommunicative, arrogant or
patronising. When searching for the causes of illness, this approach tends to
centre on the medical treatment itself - an incorrect diagnosis, the side
effects of a prescribed drug. Above all. the consumer approach gives authority
to the patient's experience and perception of illness, often advocating seffheip and self-medication.
Socio - economic
roots of illness
‘ Th? environmental approach, which identifies the social and economic origins
of illness. In this analysis poverty, environmental degradation, economic
policy, the role of the food and tobacco industries, sexism and other forms of
social discrimination are ^identified as contnbutors to the incidence and
distribution of illness.
The dominant
approaches ...
The analysis concluded that it is the medical approach which clearly
preoommates. There is a small, and fairly consistent, proportion of output
in both the consumer and the environmental categories. But a most striking
development is the growing importance of the iook-atter-vourself approach. In
the Video on Health, all four approaches are illustrated. You may be able to
carry out an analysis of your own national meoia system to see which of these
■and any others that you may identify - is most prevalent. Meanwhile, think
of examples from your national and local meaia which characterise each of the
four approaches outlined above.
19
... their
limitations ...
Few people would argue that medicine has a significant - if circumscribed role to play in treating illness, orthat the ‘medical’ approach should be excluded
from media coverage. But this approach distances health and illness from the
social relations which help to shape them: if you are sick, you need pills, an
operation, medical intervention. The increasingly prevalent 'look-after-yoursetf
approach also removes health and illness from their social context: if you are
sick, you need bran, aerobics, jogging. The solution is still consumption. The
only change is in the kinds of goods and services consumed: from medical serv
ices and drugs to exercise classes and vitamins. Fears are merchandised,
the 'solutions’ are profitable.
... and their
implications
for women
The ‘medical’ approach in the media supports existing medical values and
priorities which, as we have seen, revolve around a particular view of women as mothers, or potential mothers, rather than as independent human beings
with their own health neeos. It reinforces a pattern of social relations in which
the authority of the doctor is paramount and the passivity and powerlessness of
the patient is confirmed. And, almost by definition, this approach ignores
the material reality of women's lives. The same is true ofthe’look-after-yourself
approach which preaches fibre and fitness. Even middle-class women, an
increasing number of whom work both outside and inside the home, have
trouble finding time to shop let alone jog.
Health messages
in the mecia ...
.. must they
maintain tne
status cjo7
Most health messages in the media perpetuate images of ‘appropriate’
female behaviour, scapegoating women who already carry the major burden
of responsibility for family health. For instance studies of early motherhood
nave shown that, farfrom being the irresponsible creatures often implied by the
nealth promotion programmes, many women suffer conflicts of responsibility and
uncertainty about exactly how to meet thecompeting demands made on them
Thernetonc of preventive health care can easily exaceroate their anxiety and
ieeimgs of inadequacy, and may well conflict with the economic constraints
which shape their existence.
... or can
they break
the mould?
This text has outlined some of the issues surrounding women's health in
Asia. Bringing these more directly into the public spotlight must be a priority
for the region's media, with much more attention paid to the social and
economic context which gives rise to the problems, and limits their solution.
And health messages must be addressed to men too. All these issues concern
men - or should concern them - as fathers, husbands, sons, brothers. For if
the present mould is not broken, health and medicine will continue to control
rather than to care for women.
20
Recipes For
MaKing Low - cost
EascjTo MaKe.
Media Materials
"Recipes for Making Low-Cost Easy to Make Media Materials" is the third
of three sections included in Working With Villagers Media Resource Book
developed jointly by the American Home Economics Association International
Family Planning Project and the East-West Communication Institute (1977).
The complete manual is available from AHEA International Family Planning
Project/2010 Massachusetts Ave., N.W./Washington, D.C. 20036/U.S.A.
Reprinted by the International Clearinghouse on Adolescent Fertility (1980)
RECIPES SECTION
Contents
How to maze a Plannelgrap^i
.■..................
1.
How to Make Two Different Elip Charts
3.
Chalkboards
8.
Making Chalk
lO.
........
II,
Rubber Cement.................................................................................................................................
13.
Modeling Clay..........................................................................................................
H.
Making a Bamboo Tripod Easel
iff.
Inks, Dyes and Paints
How to Make Paste
How to make a Bamboo Compass
.
17.
How to Make Three Lettering Markers
IS,
Protective Coatings
19.
Adhesive Papers
IP.
HOW TO MAKE A FLANNELGRAPH
The flannelgraph is essentially a piece of cloth fastened/to:a. stiff
backing. The cloth may be felt, flannel, suede or cotton cuttihg,' burlap
flour or potato sacks, a rough weave blanket, turkish towel, or'any other
roughly napped material. The backing may be wallboard, masonite, plywood
or heavy cardboard. The following instructions are for making/a portable
flannelgraph.
Materials:
2 pieces of masonite, plywood or cardboard each 75 x 50 cm
1 piece of flannel 75 z 100 cm
canvas hinges or heavy masking tape
Process:
1.
2.
Join 2 pieces of board together by
using canvas (or metal) hinges or by
using heavy masking tape.
n
.
Flannel (or similar material) may be
stretched over boards on one side and
glued in place, or it may be tacked to
the board only when used and folded
under the arm for traveling- purposes.
Other ideas for mounting flannel are
provided in the "Suggestions" section.
Suggestions: The measurements given here
are only suggestions. Adapt tnem as you'
see fit, keeping in mind the size of the
audience and the space needed for your usual
visual presentations.
. When not being used as a flannelgraph, the
board may also be used as a bulletin board.
By drilling or punching several small holes
along one side of the 2 boards, you can loop
pieces of string through the holes and hang
it on a wall.
1.
Bulletin Bo^nd
D
. If you prefer to combine the flannelgraph
witn a blackboard, prepare one or both sides
for a blackboard, following instructions
under "Portable Blackboards." You can then
use one side as a flannelgraph and the other
side as a blackboard for making notes and
illustrations suggested by the group during
discussion.
Flakinelgk-aph
The important thing to remember in using a
flannelgraph is that it works best when
placed at a slant (10° to 1$° angle). If
it is used in an upright position, tne pictures
will fall off—no matter how firmly secured
with backing material. It will therefore be
necessary to use some sort of easel (see
"Bamboo Tripod Easel") or to prop it against
a table, for example, at an angle.
To insure a tight fit of the flannel over
the board, use a slightly larger piece of
flannel than the board and hem a length of
elastic band along the edges. The flannel
backing can then be easily slipped over the
board and will have a smooth, flat fit.
When not in use, remove the flannel and
fold it for storage.
NOTE: Fasten pieces of sandpaper to back
of pictures to be used on flannelboard.
ftlacKboard
HOW TO MAKE WO DIFFERENT FLIP CHARTS
The following instructions are for making a durable flip chart that
can stand without a^y support (that is, it does not need to be held or
does not need any other presentation stand). Included under "suggestions"
are ways in wnich it also can be used as a "mini" chalkboard or flannelboard.
Materials:
2 pieces of plywood or thin (5 mm) hardwood measuring
45 cm x 50 cm
2 strips of wood measuring 5& mm x 40 cm x 8 mm
2 hinge joints
2 bolts and 2 wing nuts
piece of cord 5 mm thick x 28 cm long
ruler, pencil, paper
Process:
1.
Drill two holes in each long wooden strip
at approximately 15 cm from eacn end.
2.
Hinge each strip to a piece of plywood.
5.
Place a sheet of paper, the size that you
will be inserting in the flip chart, on
one of the joined wooden strips and ply
wood boards. Position the paper in the
middle of the top edge of the wooden strip.
With a pencil, gently punch a hole through
the paper that corresponds to the holes in
the wooden strip.
4.
Remove the paper and measure the distance
from the side and top of each hole. These
are the measurements you will use in punching
holes in the papers you will be inserting in
your flip chart. Punch holes in all papers
you are going to use. Be sure to add some
additional clean sheets for further notes or
drawings that may come up in tne discussion.
3.
5-
In the middle of the bottom edge of one ply
wood board, drill a J mm hole.
(This now
becomes cover A.)
6.
In the middle of the bottom edge of the
other plywood board, cut a vertical slot 2 mm
wide and 1.5 cm long. (This now becomes
cover B.)
7.
Stack your papers together evenly. If the
holes have been punched accurately, you should
be able to see through the holes.
8.
Insert a bolt through the bacK of each hole in
the wooden strip of cover A. Place cover A
flat with the bolts sticking up (the hinged
joints should be flat against the table).
Insert punched papers (face up) over bolts.
9.
With the hinged surface of cover B facing you,
place it over the punched papers, inserting
the bolts through the holes in the wooden
strip of cover B. Fasten securely with wing
nuts.
10.
Pass the cord through the hole at the
bottom of cover A. Make a knot at both
ends of the cord large enough so that it
will not slip through the hole. To keep the
flip chart open while you use it, pull the
cord tnrough the vertical slot, until the
second knot catches in it. The flip chart
will now stand up (a)•
4.
Suggestions: For further adaptability of your flip chart, you may want to
consider painting the inside of one cover with a flat black paint which will
give you a small chalkboard. (See instructions for preparation in recipe
book under "Chalkboards".) The other inside cover can be covered with a
piece of flannel to give you a small flannelgraph.
« Use plain, pliable paper in the flip chart (not cardboard!) so that you
can easily flip through the pages.
* Newspaper can be cut and used as pages in the flip chart. Remember to
select newspaper pages that are free of large print and photographs as
these can be very distracting.
• This flip chart can be easily refilled so feel free to tear off any
sheets and give to members of the group for their reference.
• The addition of blank sheets placed either at the end or interspersed
throughout the presentation will allow you to make notes and respond to
the group discussion.
. If more than one subject is included in your presentation, or if the
topic you are discussing has several different components, use blank
sheets to separate the components.
« Experiment with writing on the paper you use in the flip chart before
binding it:
- make your drawing big and bold, use thick lines. Stand at a distance
to check that the drawing or writing can be easily seen.
- you can use crayons, chalk, felt pens or charcoal to write on the
paper; chalk and charcoal have a tendency to smear easily and, if
used, should be protected by a blank cover sheet.
- some inks will soak through one sneet of paper and onto the next;
you may have to do your ink drawings or writing before placing them
in tne flip chart.,
. The measurements of the boards are only suggestions; use whatever dimensions
you desire. The size of the flip chart is determined by tne number of
people with whom you plan to use it. Keep in mind that the covers of the
flip chart should be larger than the pages and that the length of the wooden
strips should be tne same width as the boards for the cover.
■ If you have someone cut the boards and strips, ask that the holes be drilled
at the same time. If you use the measurements suggested, you might simply
show the diagram to the person cutting the materials with the following
instructions.
NOTE: If flip-chart will have heavy use,
glue strips of tape or paper where holes
will be punched and around edges of paper.
£
I need.:
2 boards cut with these measurements
2 strips of the same material cut
with these measurements.
Please drill two holes in each wooden strip, each
1J cm from an end.
In the middle of the bottom edge of one board, drill a J mm hole.
In the mi rid!e of the bottom edge of the other board, cut a vertical slot 2 mm
wide and 15 mm long.
If this is done before you begin putting yopr flip chart together, you need
only do the following steps in the process: 2, J, 4, 7 - 11.
You can use metal, cloth, or canvas hinges. If hinges are not available,
drill additional holes at the same point in eacn wooden strip and board and
use a loop of heavy cord for the hinge.
Flip Chart jf2:
The following instructions are basically the same as those
given for the first flip chart. However, this flip chart will
not be freestanding and offers less protection fur enclosed
pages than does tne first flip chart. It also involves fewer
materials and is cheaper and easier to matte.
Materials:
1 piece of plywood (or similar material), 40 cm x 50 cm
1 long strip of plywood, 40 cm
40 M
2 bolts and 2 wing nuts
Process:
1.
Drill two holes at the top of the plywood
board approximately 13 cm from eacn end.
Drill two matching holes (1$ cm from each
end) in the wooden strip.
2.
Position a sheet of paper slightly below
the top of the plywood board and center it.
Gently punch a hole through the paper that
corresponds to the holes in the board.
Taking the measurements of these holes,
punch holes in all sheets to be used.
J.
Place bolts through back of board and slip
punched sheets over bolts. Place wooden
strip over sheets, inserting bolts through
holes in strip. Secure firmly with wing
nuts.
Read suggestions and adapt ideas given for Flip Chart #1.
7.
CHALKBOARDS
MAKING A CLOTH CHALKBOARD : This small portable chalkboard which is both
light and easj to carry can be used with groups of up to 15 people.
Materials:
55 -< 75 cm piece of oilcloth
round wooden pole or stick
can of opaque black paint
sandpaper
Process:
1.
Roughen tne shiny side of the oilcloth with
sandpaper. Apply two coats of black paint,
allowing the first coat to dry thoroughly
before applying second coat.
2.
When paint is dry, fix a round, smooth
wooden rod or pole to the long end of
the painted cloth.
5-
Connect both ends of the rod with a piece
of cord so that you can hang it on a nail.
4-
In rolling up the chalkboard, roll the
painted side in so that the unfinished
surface is on the outside.
c
Suggestions: If oilcloth is not available, use a smooth, thick piece of
cotton cloth. Give the cloth a very thin coat of (carpenter's) glue on
one side. When glue is dry, apply two coats of paint as above, remembering
to let each coat dry completely.
. Before using cnalkboard, go over it with eraser containing chalk powder
to make it easier to erase what you write.
PORTABLE CHALKBOARDS
Materials:
55 x 75 cm piece of linoleum, plywood, masonite or similar material
If you are planning to carry tnis chalkboard , remember the material
you select should be lightweight.
Sandpaper
Black paint or chalkboard paint
a
Process;
Whatever material you select, whether
it is smooth as linoleum or rough as
plywood might be, it should be sanded
carefully to an even roughness.
2.
Apply two separate coats of black paint
to the roughened surface. Be sure the
first coat of paint is dry before
applying second coat.
5.
A good wooden frame is suggested to
help prevent warping and give the
cnalKboard more permanency.
Suggestions: Before using the chalkboard, rub a chalk-dusty eraser or
cloth over it—it will be easier to write on!
CHALKBOARD PAINT
1 part lamp black
1 part varnish
1 1/2 parts of kerosene
Mix varnish and kerosene thoroughly
before blendin6 thoroughly witn
lamp black.
9.
MAKING CHALK
INGREDIENTS:
1 part soil to 4 parts water
Process;
1.
Shovel up some chalky looking soil. Put in bucket, leaving room for
about 4 times as much water as soil.
2.
Add water and stir vigorously. Crumble large pieces and dissolve soil
as much as possible. Ignore hard rocks or pebbles.
3.
Allow soil to settle overnight.
4.
Pour water off the top and skim off top layer of silt.
(This is usually
several inches thick.) The top layer you have just skimmed off is
"chalk" in a liquid state.
5.
Put "chalk" in bag made of muslin or similar coarse, porous cloth and
let drip overnight. To speed process, water may be squeezed out.
6.
Roll chalk, which now looks like clay or bread dough, into long, snake
like pieces, cut to desired lengths, and let dry. Or, split bamboo stalk
and use for chalk mold. Thicker chalk will not break as easily.
7.
Now test it.
If your soil is the right kind, you have chalk.
Suggestions; You may be puzzled about how to find "likely-looking soil»"
One way is to observe what people in the village use for marking. Por
example, in Nepal, red clay is frequently used by villagers for marking.
•If you want colored chalk, add any dye available in the village.
Other'Recipes
|O.
AAi| Own Formula
FORMULAS AND SUBSTITUTES
INK FORMULA
22 cc alcohol
14 cc water
2 grams dry or powdered blue dye
Other dyes which may be used instead
of indigo blue are:
orange
green
Add ingredients and stir well.
Experiment witn using dyes common
to your area.
DYES AND PAINTS
Another
A wide variety of roots, barks,
seeds, and leaves can be used.
Check witn local dyer for ideas
or buy commercial dye. Mix with
a thin glue solution until desired
consistency is achieved (same
consistency as paints commercially
prepared). This glue can be made/
obtained from the residue of
boiled bones.
IL
■HouHb Make. Pss+e.
Archer recipe.1
FLOUR PASTE
Commercial wheat or cassava flour
Water (as needed.)
Remove all lumps from tne flour by
sn tin it through wire screening.
Add water as needed to the flour to
form a smooth paste. Insecticide
may be added in areas where insects
are a problem. WARNING: If insecti
cide is used, store out of reach of
children who sometimes eat paste!
Suggestion:
In Nepal, field workers have found that cooking flour and water,
stirring it constantly until all flour is dissolved, is a good means of
preparing paste. Allow to cool before using.
and ano+her recipe*
RICE PASTE
Handful of rice
Water
Cook rice in water as usual until
rice is moist and sticky. Do not
allow rice to become dry. Allow to
cool, drain off any excess water
Dab a small amount of cooled, sticky
rice on area of paper on which pic
ture is to be mounted. With finger,
smooth rice onto paper pressing out
any lumps. Picture can then be
mounted.
IZ.
RUBBER CEMENT
INGRESTENTS:
5 grams of raw rubber (translucent, light brown sheet kind.—crepe
soles from shoes, or some baby bottle nipples may be used.)
250 cc of uncolored, gasoline (if not available, see below.)
Process:
1.
Put rubber and gasoline in a jar with a screw top.
2.
Let stand about j days until rubber is dissolved in gasoline.
J.
If any globs of rubber remain, stir until dissolved.
should be smooth and milky-colored in appearance.
4.
Store in airtight brown bottle in ventilated cupboard. One idea you
may want to try is to insert a one-inch paint brush through the metal
cover of the jar. This will then give you a brush with which you can
apply the rubber cement.
Rubber cement
Suggestions: If uncolored gasoline is not available, use the following
process to filter colored gasoline:
1.
Take a clean tin can and puncture a hole in the bottom. Place a small
piece of cloth in bottom to keep particles of charcoal out of filtered
gasoline.
2.
Fill the rest of the can with small particles of charcoal.
J.
By holding can over a bowl, pail or other container, pour the gasoline
over the charcoal.
4.
This process may have to be repeated several times to remove all color
from the gasoline. Charcoal also may have to be changed after J to 4
pourings.
CAUTION:
Gasoline is flammable. Use care when mixing and applying the rubber
cement. WorK with gasoline outdoors.only. Do not use near fire.
KEEP OUT OF THE REACH OF CHILDREN.
15.
1 part flour to 1 part salt. Add. enough
water so that when flour and salt are
mixed, tails of dough are formed.
Z. Shred newspapers or paper towels.
Mix
with any starch paste and knead thoroughly.
Another Recipe:
5. Dissolve 250 ml of starch paste in water
to thin slightly. Add 375 ml of plaster;
500 ml of sawdust; knead to consistency of
tough dough.
Another Reci pe
Soak small pieces of newspaper in bucket of
water overnight. Remove from water and rub
wet paper between palms of hands until it is
ground to a pulp. Mix 1 ml of glue in 250 ml
of water; add 500 ml of plaster; 1 liter of
wet paper pulp. Knead to a doughy consistency
J*. Mix 250 ml of dry clay powdered and sifted
through a screen with 5 ml of glue in 250 ml
of water; add wet paper pulp and knead to
doughy consistency, adding more water as
necessary.
k. Powder mud from an ant hill and mix with water.
"7 Check to see if clay is available in your
locality—you may only need to dig a bit.
MAKING A BAMBOO TRIPOD EASEL
A bamboo tripod easel can be easily constructed to hold a flannelboard
or flip chart or other large, stiff-backed visual materials. ' It is sturdy,
made of low-cost materials, and convenient to carry and to use.
Materials:
Three 1.5 m poles
Two 8 cm wooden pegs or sticks
4 m of heavy cord
Bamboo
Process:
1.
Drill a hole through the bamboo near
one end of each pole. With 20 cm of
heavy cord, tie the three ends together
securely, but not so tightly that tripod
legs cannot be opened.
2.
Drill another hole near the center of
each pole. Beginning with the first
pole, slip the heavy cord through the
hole ana tie a knot at one end of the
cord leaving at least 8 cm hanging free.
3.
Pull the rest of the rope through the hole
until the knot you have made rests firmly
against the pole.
4-
Measure off a distance of 60 cm and
insert the rope through the hole in the
next bamboo pole and make another knot.
5.
Follow this same process with the third
pole, always allowing a 60 cm length of
rope for the distance between poles. For
the last length of rope, tie the two ends
together (remember you have 8 cm hanging
free), measuring first to be sure the
length of cord between the two poles will
be approximately 60 cm in length when the
knot is completed.
6.
Set your tripod up now as it will be when
you use it. Decide at what height you
want to place the bottom edge of your
visual materials and mark this spot on the
front two poles,
(it would be a good idea
to measure this distance to make sure both
marks are the same length from the bottom.)
7-
If your rope holes are big enough,
you may be able to slip the wooden
pegs through these. If not, drill two
holes and insert wooden pegs or sticks
to support flannelboard or other display.
Suggestion: The length given for the wooden pegs will vary according to the
size of the bamboo. You will want at least 7 cm of the peg sticking out in
the front, so cut your pegs with this in mind.
/to.
HOW TO MAKE A BAMBOO COMPASS
Materials:
2 bamboo rods about 1-5 cm in diameter and 40 cm long
Kn^fe
wooden peg 2 cm in lengtn and a diameter that fits into hole in
bamboo (piece of pencil may be used) with one end sharpened
1 piece of chalk
2 strong elastic bauds
a bolt a1;d a wing nut
Directions:
1.
Make a slit 1/2 cm wide and 3 cm deep
in one end of both rods. (Note:
If
chalk and/or wooden peg fit securely
into bamboo holes, this step is not
necessary.)
2.
Fit a piece of chalk in the end of one
of the rods and clamp it firmly with an
elastic band.
(A)
3.
Fit a sharpened wooden peg in the end of
the other rod and clamp it firmly with a
rubber band. (B)
mb00
sticks
At the other ends of both rods slice off
3/4 of circumference to a depth of 3 cm,
leaving thin end pieces.
4
Puncture or drill holes in the protruding
end pieces and fasten them together with
the bolt and wing nut. (C)
Rubber
’f-Band
In using this compass, loosen wing nut and
set compass at desired distance; then tighten
wing nut.
17.
HOW TO MAKE THREE LETTERING MARKERS
BAMBOO MARKER
(To be used, instead of felt-nib pens)
Materials:
10 cm stick of bamboo (the inside diameter should be the same size as
the line you want to draw)
wad of cotton or any very absorbent material
small piece of loose-weave muslin
Bamboo 9h’cX
Procedure:
1.
Compress cotton tightly and cover with
muslin. Stuff into end of bamboo.
2.
Using ink or dye (see Recipe Section
under Inks & Byes), dip cotton into
dye and allow a reasonable amount to
be absorbed. Wipe off excess.
J.
Begin lettering.
MUSLIM
ova-r" Gott OH
Rubber 0and
Hart* SHcK.
FLAT STICK
For making large letters you can wrap a small piece of felt over the
end of a flat stick such as a tongue depressor and secure tightly with
an elastic band. Dip into ink and begin lettering!
bamboo Sfic-k.
BAMBOO LETTERING PEN
Materials:
Knife
12 cm st.ck of bamboo cane
knife or razor blade
Carve an excellent lettering pen as shown in
the drawing. Be sure that the end is flat and
even in thickness as this will affect the
lettering you produce!
16
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