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Development with Justice
Te Bihar Experience
TECH
Since the nation’s independence, the union and state governments of India have employed a variety
of development strategies, some of which have evolved over time. The model of development
implemented in Bihar in recent decades is different from its prior development strategies. Along
with a number of social reform initiatives, the Bihar government implemented the “development-
with-justice” model to enhance the lives and living circumstances of the most marginalized groups
of the population and ensure the attainment of social justice.
In light of the aforementioned context, this book offers an understanding of the various aspects
of the Bihar government’s “development-with-justice” model, and the effects of its implementation
BILLIONAIRES
on lives and quality of living conditions of the state’s underprivileged population. The book covers a
wide spectrum of areas such as history of social reform measures, social justice in education, health,
labour market, etc., caste- and gender-based discrimination, women’s empowerment, migrant
workers, poverty, inequality, agrarian concerns, planning for development, and so on. Besides
recommending policies to improve the state’s development outcomes, this book will aid researchers
in identifying topics that may require additional research.
Clearly researched, concise, and up-to-date, this book will be useful to the students and researchers
from the fields of development economics, development studies, gender studies, sociology, political
science, economic history, as well as the policy-planners in the government.
Sankar Kumar Bhaumik is the Director of the Patliputra School of Economics. Prior to joining
the Patliputra School of Economics in August 2020, he served the Departments of Economics of
Calcutta University (22 years), Vidyasagar University (9 years), and the Central University of South
Bihar (3 and a half years). He became Professor and Head of the Economics Department at Calcutta
University and Professor and Head of the Economics Department and Dean of Social Sciences at the
Central University of South Bihar. He also served as Director of the Institute of Development Studies
in Jaipur. His fields of specialisation are econometrics, the economics of agriculture, Indian economic
development, and research methodology. His previous book publications include Principles of
Econometrics: A Modern Approach Using EViews, Reforming Indian Agriculture: Towards Employment
Generation and Poverty Reduction, Enhancing Agricultural Productivity and Farmer Incomes in Bihar,
and Tenancy Relations and Agrarian Development: A Study of West Bengal. He has to his credit 35
research papers published in refereed journals or edited books. He has completed 5 research projects,
and supervised 14 PhD theses (all awarded) and 11 MPhil dissertations (all awarded).
Development with Justice
Te Bihar Experience
Edited by
Sankar Kumar Bhaumik
First published 2024
by Routledge
4 Park Square, Milton Park, Abingdon, Oxon OX14 4RN
and by Routledge
605 Third Avenue, New York, NY 10017
The right of Sankar Kumar Bhaumik to be identified as the author of the editorial material, and of
the authors for their individual chapters, has been asserted in accordance with sections 77 and 78 of
the Copyright, Designs and Patents Act 1988.
All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form
or by any electronic, mechanical, or other means, now known or hereafter invented, including
photocopying and recording, or in any information storage or retrieval system, without permission
in writing from the publishers.
Trademark notice: Product or corporate names may be trademarks or registered trademarks, and are
used only for identification and explanation without intent to infringe.
DOI: 10.4324/9781032626413
Acknowledgements xv
Introduction xvii
Contributors xix
13. An Inquiry of Causes and Persistence of Poverty among Dalits in Bihar 162
Krishna Ram
viii Development with Justice: The Bihar Experience
16. Economic Growth and Social Justice: A Study with Reference to Agricultural
Households in Bihar 196
Subhankar Mukherjee and Kranthi Nanduri
19. COVID-19 as Social Crisis and Justice: Migrants from Bihar 230
Surya Bhushan, Aditi Thakur, Shankar Purbey,
S M U Qadri and Urvashi Kaushik
Index 295
Figures
3.1A Ranking of India’s States by Total Net State Domestic Product (Rs. ’000 Cr)
(Current Prices; 2011–12 Series) 23
3.1B Ranking of States by Per Capita NSDP (Rs.’000) for 2020-21
(Current Prices; 2011-12 Series) 24
3.2 Growth of Bihar’s Net State Domestic Product (NSDP) and Per Capita 24
3.3 Bihar’s Net State Domestic Product as a Percentage of India’s Net Domestic
Product: 2012-13 to 2019-20 (Current Prices; 2011-12 Series) 25
3.4 Urban Households with Public Transport within 500 metres from Home
(left-side figure) and Rural Households with All-Weather Roads within
2 km from Home (right-side figure) 27
3.5 Percentage of Households Living in Pucca Structure 27
3.6 Inter-state Comparison of Per Capita Expenditure on Education for 2020-21 32
3.7 Inter-state Comparison of Per capita Expenditure on Medical and Public Health
for 2020-21 32
3.8 Inter-State Comparison on Per Capita Net Transfer of Resources from Centre to
States, 2020-21 33
4.1 Percentage of Never Enrolled Children Below Age 18 in Bihar 39
7.1 Percentage of Ailments Received Treatment on Medical Advice in Bihar (2017–18) 75
7.2 Per Capita Government Expenditure on Medical Care and Public Health
(at Current Prices) 79
8.1 Effect of Education on Contraception Choice 90
12.1 Prevalence of Stunting Among Children Aged 0-5 Years in 2019-21 (Percentage) 152
12.2 Percentage-point Decline in Prevalence of Stunting Among Children in India
and Bihar 152
12.3 Absolute Inequality in the Prevalence of Child Stunting between General
Caste and Other Social Groups in India and Bihar 153
12.4 Absolute Inequality in Nutrition Indicator for Different Age Cohort 154
12.5 Backward and General Caste Inequality in Prevalence of Child Stunting by
Wealth Class and Maternal Education 154
12.6 Percentage Contribution of Different Endowments in Explaining Caste Inequality 157
14.1 Public Expenditure on Social Services out of Total Development Expenditure,
Total Expenditure and GSDP in Bihar (Percentage) 181
14.2 Public Expenditure on Various Heads of Social Services Expenditure in Bihar’s
GSDP (Percent) 182
14.3 Public Expenditure on Various Heads of Social Services out of Total Social
Services Expenditure (Percent) 182
18.1 Share of Agriculture in Bihar’s State Expenditure 224
18.2 Number of Factories and Workers in Bihar, 2005−06 to 2016−17 225
19.1 Reasons for Returning During Lockdown 233
19.2 Uncertainties during Lockdown 234
19.3 Stigma and Discrimination at the ‘Source’ 234
19.4 Financial Coping Strategy during Lockdown 235
x Development with Justice: The Bihar Experience
19.5 Change in Food Consumption Basket during Pre- and Post-Lockdown 235
19.6 Re-migration Triggers 235
20.1 Coverage of Jeevika 242
21.1 Institutional Delivery 251
21.2 Trend of Health Expenditure in Bihar 251
21.3 SHGs – Credit Linked (Financial Inclusion) 253
21.4 SHGs Credit Linked with Amount (Rs. in Lakhs) 253
21.5 Trend of Female IMR in Bihar 254
21.6 Life Expectancy at Birth for Females in Bihar 255
21.7 Status of Literacy of Men and Women (15-49 years) 256
21.8 Rural-Urban Scenario 256
23.1 Percentage Distribution of Cases of the Total Victims by Districts Selected for the
Case Study 268
23.2 Route Map of Child Trafficking from Bihar 269
23.3 Number of Victims of Child Trafficking by Per-capita Net State GDP and HDI
of the States 271
24.1 Percentage of Women (20-24 years) Married Before 18 Years of Age 279
25.1 The Logic Model 288
Tables
3.1 Share of Economic Sectors in GSDP and Workforce (Principal + Subsidiary status)
in Bihar 25
3.2 Household Amenities and Wellbeing 27
3.3 HDI Component Gender: Women’s Empowerment (Age 15–49 years) NFHS 28
3.4 Outcome Indicator/Targets of Bihar Government: Human Development
Sub-Mission – Health 29
3.5 A Comparative Perspective on the Status of Health and Wellbeing 29
3.6 Basic Reading Skills in Std. III and Std. V by School Type in Bihar (2012–2022) 31
3.7 Basic Arithmetic Skills in Std. III and Std. V by School Type in Bihar (2012–2022) 31
4.1 Enrolment of Children below Age 18 by Gender in Bihar (Percentage) 38
4.2 Enrollment of Children below Age 18 by Social Group and Gender in Bihar
(Percentage) 39
4.3 Status of Schools by Selected Indicators in Bihar and India 41
4.4 Learning Levels in Government Schools 42
4.5 Reasons for Never-enrolled/Currently Not Attending School in Bihar (Percentage) 42
4.6 Results of MLR Model (5-14 years) 43
4.7 Results of MLR Model (15–18 years) 44
4.A1 Different Enrolment Ratios of Children in Bihar, 2017–2019 48
4.A2 Performance of School-going Children in Bihar, 2007-2014 48
6.1 Description of Variables 61
6.2 Correlation Matrix of Component Variables for Teaching Quality in Bihar 63
6.3 Moderation Regression Results for Bihar
(Dependent variable: Student_Outcome) 64
6.4 Correlation Matrix of Composite Variables for Bihar 64
6.5 Correlation Matrix of Component Variables for Teaching Quality in Kerala 65
6.6 Moderation Regression Results for Kerala
(Dependent variable: Student_Outcome) 66
6.7 Correlation Matrix of Composite Variables for Kerala 66
7.1 Indicators of Access to Government Health Care and Urban Bias 73
7.2 Availability of Government Allopathy and AYUSH Practitioners 74
7.3 Percentage of Ailments Treated on Medical Advice and Distributions of
Untreated Ailments by Reasons (2017-18) 75
7.4 Utilisation of Private Facilities for Outpatient Care and Reasons for
Non-utilisation of Government Facilities (2017–18) 76
7.5 Rate of Hospitalisation per 1000 Population and Dependence on Government
Hospitals 77
7.6 Health Insurance Coverage in Bihar, Kerala and Tamil Nadu 78
7.A1 Select Health Indicators Across Major Indian States 83
7.A2 Select Health Sector Indicators Across Major Indian States (2017-18) 84
8.1 Sample Frame 88
8.2 Characteristics of Sampled Households: Social Background and Income 89
8.3 Education and Usage of Modern Contraception 91
xii Development with Justice: The Bihar Experience
17.2 Land Size Distribution within Various Castes and Religious Categories of
Farmers Households 209
17.3 Distribution of Loan (in rupees per households) of Indebted Farmer Households
by Institutional and Non-institutional Sources for Various Land Size, Caste and
Religious Groups in Rural Bihar 211
17.4 Distribution of Farmer Households Based on Different Interest on Loans by Land
Size, Caste and Religious Categories in Rural Bihar 212
17.5 Distribution of Farmer Households Based on Different Interest on Loans by Land
Size, Caste and Religious Categories within Institutional Loans in Rural Bihar 213
17.6 Distribution of Farmer Households Based on Different Interest on Loans by Land
Size, Caste and Religious Categories within Non-Institutional Loans in Rural Bihar 213
17.7 Distribution of Loans of Farmer Households Based on its Purpose Across Various 215
18.1 Number of Ration Card Used Outside the Home States, April 2023 219
18.2 Number of Migrants from Bihar using Ration Cards Outside the State, April 2023 220
18.3 Top Destinations and Origins of Migrants in India, 2011 221
18.4 Top Destinations of Migrants from Bihar, 2011 221
18.5 Top Five Destinations of Migrants from Bihar with Reasons 222
18.6 Number of Agricultural and Non-agricultural Households in Rural Bihar 223
18.7 Unemployment Rate in Bihar (percent) 225
20.1 Cost Estimates of Financial Inclusion with Secondary Layering Activities 245
21.1 Enrolment of Girls in Higher Education (in’000) 250
21.2 Share of Women in NHM (Rs. Lakh) 251
21.3 Total Fertility Rate by Level of Education 254
21.4 GER of Girls in Different Classes 256
21.5 Livelihood-related Activities of Jeevika (in lakh) 258
21.6 Political Representation of Females in Bihar 258
22.1 Method of Implementation of 35 Percent Reservation in Police Force in Bihar 263
23.1 Total Number of Victims of Child Trafficking in Bihar 270
23.2 Total Number of Victims of Human Trafficking by Purpose in Bihar 270
23.3 Disposal of Cases of Crime Against Children by Police in Bihar in 2021 (Number) 273
23.4 Disposal of Cases of Crime Against Children by Court in Bihar in 2021 273
23.5 Summary of the Case Studies from Nine Districts of Bihar 274
24.1 District-level Prevalence of Child Marriage in Bihar 280
24.2 Profile of Women (20-24 years) who are Currently Unmarried or Married
Before the Age of 18 Years in Bihar, 2019-20 282
24.3 Results of Logistic Regression (Odds Ratio) to Identify Determinants of
Child Marriage 283
25.A1 The Programme-Scheme Matrix for Agriculture in Bihar 293
Acknowledgements
The chapters included in this book represent a subset of papers presented in a two-day international
conference organised by the Patliputra School of Economics (PSE) in Patna on the very theme of
the book on June 2-3, 2023. These chapters have been prepared through dedicated research over
a considerable period of time by their respective contributors, using the latest available data and
applying appropriate statistical and econometric tools wherever necessary. The chapters have
undergone several rounds of revisions in accordance with the suggestions of the editor and referees.
The editor is immensely grateful to all the contributors for their cooperation and dedication to
making the conference a grand success and for submitting their revised papers within a short period
of time.
The idea of organising a conference on this theme was conceived in the course of one of the many
academic discussions on Bihar’s economic development the editor had with Shri Amir Subhani
(Chief Secretary, Bihar Government). He has been one of the most important motivators for the PSE
since its inception to pursue its academic activities in the best possible manner in spite of several
constraints as a new institution. Without his constant help and encouragement, we couldn’t have
arrived this far. So, the editor conveys his sincere gratitude and respect to him.
The editor received constant help, guidance, and encouragement from Dr. Arunish Chawla
(Additional Chief Secretary, Planning and Urban Development Departments, Bihar Government,
and former Senior Economist, International Monetary Fund, Washington, D.C.). The editor greatly
benefited from several discussions with him in the course of devising the agenda of the conference
and also at the stage of finalising the contours of the book. Apart from providing the keynote address
to the conference, he took active part in deliberations on both days so as to motivate the organisers
as well as the academicians who came from different parts of India and abroad. The editor and the
entire PSE fraternity convey their gratitude to him.
The editor is also immensely grateful to Smt. Harjot Kaur Bamhrah (Additional Chief Secretary,
Art, Culture, and Youth Affairs Department, Bihar Government, and former Chairman-cum-
Managing Director, Women & Child Development Corporation, Bihar) and Shri Divesh Sehara
(Secretary, SC & ST Welfare Department, Bihar Government) for their gracious presence in the
conference and motivating the participants through their insightful addresses. We are also grateful
to Shri Dipak Kumar Singh (Additional Chief Secretary, Co-operative Department, and former
Additional Chief Secretary, Education Department, Government of Bihar) for giving the valedictory
address to the conference and helping us with his advice and guidance to organise the event in a
satisfactory manner.
The organisation of the conference and publication of this book have been facilitated by the
generous financial grants received from the three sponsoring Departments of the Bihar government:
Planning & Development, Women & Child Development Corporation, and Bihar Mahadalit Vikas
Mission (under the SC & ST Welfare Department). The editor once again conveys his thanks to Dr.
Arunish Chawla, Smt. Harjot Kaur Bamhrah, and Shri Divesh Sehara for their kind support in this
regard.
All the officers and staff of the three sponsoring departments have been helpful at various stages
of the organisation of the conference, and many of them actively participated in it. Prof. Iftekhar
Ahmed (former Director, School of Journalism and Mass Communication, Aryabhata Knowledge
University) has always been ready to help and guide the editor as his junior colleague. The officers
xvi Development with Justice: The Bihar Experience
and staff of the Aryabhata Knowledge University extended all necessary help and support to ensure
the conference’s success. Dr. Sweta Sharan (Assistant Professor and Head, Economics Department,
Magadh Mahila College, Patna) and the editor’s former students from the Central University of
South Bihar skilfully managed the academic sessions of the conference. Ms. Neha Kumari single-
handedly managed the entire burden of correspondence with contributors and event management
during the days of the conference with utmost sincerity. The editor is highly grateful to all of them.
The editor is grateful to Dr. Gagandeep Singh (Senior Publisher), Shri Satya Narayan Sabut
(Assistant Territory Manager), Shri Towfeeq Wani (Editor), and the other members of the editorial
and production teams at Taylor & Francis (Routledge) for their help and advice at various stages of
this work.
Last but not least, the editor would like to convey his gratitude to his wife Bidisha and daughter
Jayini, who have always been ready to extend their moral support and encouragement that enabled
him to carry out his academic activities as best as possible for many years in the past.
8 Development with Justice: The Bihar Experience
in Nitish Kumar’s governance model that are related to political, economic, and social inclusiveness,
grassroots democratisation, social empowerment, socio-political integration, economic and human
development, and so on, all of which have a significant impact on the socio-economic scenario of
Bihar at the moment.
5. Conclusion
It is clear that a constant torrent of social-cultural transformation has been flowing in Bihar against
established norms and orthodoxy. Bihar has had ideological diversity from the beginning. As a
result of such ideological diversities, Bihar experienced both imperialist and republican experiments
at the same time. On the other hand, such diversities resulted in the early emergence of various
socio-religious sects in Bihar, each of which strove to prescribe their own views and practises for the
social and religious advancement of the people. Even in modern times, there have been numerous
movements based on class and greater societal concerns. These movements bolstered concepts such
as inclusion, empowerment, social justice, equality, freedom, and grassroots democracy. Moving
beyond socio-political concerns, modern leaders like Nitish Kumar have set out to give this socio-
political dynamism substantial economic foundations and have formed the notion of ‘Development
with Justice’, which is a vision of Bihar’s further advancement. However, we must keep in mind that
the present-day Bihar suffers from a contradiction. With its socio-political dynamism, it is also an
indelible fact that, despite ongoing efforts for economic development, Bihar remains an example of
a bottom state or basket case. Bihar is still dealing with migration and poor health and educational
infrastructure. Because of the absence of industrialisation and expansion in the service sector, the
problems of poverty and unemployment continue unabated. Bihar is currently a state where there is
a need to push both economic and human development simultaneously. If the current contradiction
in Bihar is considered in a delicate way, it appears to be more than just an issue of politics and
governance. The solution to this conflict rests in Bihar’s socio-political dynamism. There is a need
for Bihar’s socio-political force to be directed towards ‘total development’ by integrating it with the
state’s collective consciousness and identity.
Notes
1. Choudhary (1958)
2. Diwakar (1958)
3. Gopal (2018)
4. Das (1983) & (1992)
5. Heningham (1982)
6. Damodaran (1993)
7. Gopal (2018), p.1
8. Das (1992), p. xii
9. Diwakar (1958), p.378
10. Ibid, p.378
11. Ibid, p.377
12. Choudhary (1958), p.212
13. Kumar (2009), p.78
14. Singh (1992), p.22
15. Nayak (2010), p.1253
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