10 August 2001
Shri Atal Bihari
Vajpayee
Prime Minister of
India
Parliament House
New Delhi – 110001
Dear Shri
Vajpayee,
I am addressing
this letter to your Excellency in my capacity as the United Nations Special
Rapporteur on adequate housing as a component of the right to an adequate
standard of living, appointed by the United Nations Commission on Human Rights
under its resolution 2000/9.
As part of my
mandate given by the Commission, I am to monitor both the violations and the
steps taken to realize the right to adequate housing all over the world. As a framework for this mandate, the
Commission has identified the applicable legal norms to include article 25.1 of
the Universal Declaration of Human Rights, article 11.1 of the International
Covenant on Economic, Social and Cultural Rights, article 27.3 of the
Convention on the Rights of the Child, article 14.2 (h) of the Convention on
the Elimination of All Forms of Discrimination against Women, and article 5 (e)
of the International Convention on the Elimination of All forms of Racial
Discrimination.
Based on this
broad legislative mandate, and consistent with the authoritative
interpretations given to the right to adequate housing by UN treaty bodies, I
have defined (in my first report to the Commission on Human Rights,
E/CN.4/2001/51) the human right to adequate housing as: “the right of every
woman, man, youth and child to gain and sustain a secure home and community in
which to live in peace and dignity.”
In this
connection, I would like to draw your Excellency’s attention to information I
have received concerning the housing and living conditions of the tribals and other people displaced by the Sardar
Sarovar Project (SSP) on the Narmada River.
As you are aware more than 40,000 families will be affected by this
project.
Over
the past six months, I have received numerous communications from civil society
organizations in India, including the National Alliance of People’s Movement
(NAPM) and the Narmada Bachao Andolan (NBA), about the grave situation of human
rights in the Narmada valley. In
response to these messages, I commissioned an independent fact-finding mission
to the Narmada Valley. The mission was carried out in May 2001 and visited affected villages
and rehabilitation sites in Madhya Pradesh, Maharashtra and Gujarat.
Your government’s
publicity at both national and international levels, claims that the
rehabilitation policy for those displaced by the Sardar Sarovar Project is the
best so far formulated by India and that the work of rehabilitation of those
displaced by the first phase of the project is proceeding in a satisfactory
manner.
However, according
to the findings of the fact-finding mission of my office, the reality seems to
paint a very different picture. The
much publicized elaborate structures and systems developed for ensuring proper
rehabilitation are generally not functioning adequately and in some cases not
functioning at all. Such a situation,
is inconsistent with the guiding spirit and letter of our Constitution,
numerous national legislations, the Narmada Water Disputes Tribunal Award (NWDT
Award) or of the international human rights instruments India has ratified.
I am writing to
you in the hope that the efforts of your Government to rehabilitate the tribals
and others displaced by the Sardar Sarovar Project would benefit from the
international human rights safeguards to protect the right to adequate
housing. In this context I would like
to bring the following instruments, that India is legally bound by, to your
attention. Relevant excerpts of these instruments are included in an annex to
this letter for your ready reference:
1.
The Universal Declaration of Human Rights
(UDHR).
2.
The International Covenant on Economic,
Social and Cultural Rights (ICESCR)
3.
The International Convention on the
Elimination Of All Forms of Racial Discrimination (CERD).
4.
The Convention on the Rights of the Child
(CRC).
5.
The Convention on the Elimination of All
Forms of Discrimination against Women (CEDAW).
6.
Convention 107 (Protection and Integration
of Indigenous and other Tribal and Semi-Tribal Populations in Independent
Countries) of the International Labour Organisation.
In addition to
these legally binding instruments, there are a number of declaratory UN
instruments that also provide valuable guidance for States to determine the
feasibility and conditions that allow for the displacement (and adequate
rehabilitation) of affected people and communities:
7.
UN Commission on Human Rights resolution
1993/77 entitled ‘Forced Evictions’
8.
General Comment No. 4 (1991) “The right to
adequate housing” of the UN Committee on Economic, Social and Cultural Rights
9.
General Comment No. 7 (1997) “forced evictions” of the UN
Committee on Economic, Social and Rights
10. UN Comprehensive human rights guidelines on development-based
displacement (1997)
11. UN Commission on Human Rights resolution 2000/13 and 2001/34
entitled “Women’s equal ownership of, access to and control over land and the
equal rights to own property and to adequate housing”.
Proceeding from the understanding that these provisions,
and authoritative interpretations, of international law must guide the planning
and implementation of any development project in India, the mission from my
office attempted to answer whether in the process of the planning, survey work
and the building of the Sardar Sarovar Dam, the right to housing of those
effected has been respected, or what nature of violations have taken place. The
Main findings of the independent mission are outlined below:
Finding 1 A large number
of SSP affected people are not considered as official Project Affected People
and therefore not eligible for alternative housing and land.
Finding 2 The
Project-Affected People (PAP’s) that are recognized officially have not been
provided suitable and adequate alternate housing including land, rendering them
homeless.
Finding 3 The
rehabilitation provided to the PAP’s violates minimum core obligations under
the International Covenant on Economic, Social and Cultural Rights that are
required to protect the right to adequate housing.
Finding 4 The standard of
living of the tribals has fallen because they have lost the rich source of
sustenance from the forest - such as minor forest produce, timber for building
houses and fruits, etc - available in them in their home village. As a
result many of them have had to resort to agricultural labor in grossly
exploitative conditions. In addition to the relevant provisions of the Covenant
on Economic, Social and Cultural Rights such as situation is in violation of
India’s commitment under articles 2(1) and 12 of ILO Convention 107.
Finding 5 The
project was announced as early as 1961. Since then all “developmental work” in
the form of new constructions, and even repair or up gradation of old ones has
stopped. In effect a whole generation have grown up without their rights to
housing, education and health. The affected people are
completely unprepared for a life post displacement which will require much
greater skills and training in a setting where their traditional lifestyles and
skills may no longer have a place. In the absence of these facilities in the
villages to be displaced and the resettlement sites, children are growing up
without these basic amenities in the present. Clearly India’s commitments under
the Convention on the Rights of the Child are called into question.
The findings of the independent mission, based on eyewitness
accounts, interviews with the affected people and data collected from civil
society and governmental sources, concludes that the SSP resettlement of the affected
people has been a comprehensive failure. The responsible authorities at local,
state and the central level have failed to demonstrate either the commitment,
or the capacity, to carry out the resettlement in a manner consistent with the
basic human rights of the affected people.
The displacement of the oustees of the SSP is forced evictions under
international law and forms a clear violation of their right to adequate
housing.
Such a situation indicates violations of, in addition to the right to adequate housing, the human
rights to security of the home, the right to information, the right to work,
the right to health, the right to food and so forth. All these are human rights contained in international human right
instruments that India is duty bound to respect.
In the light of these, I would like to suggest that an
immediate moratorium be called to any further increase in the heights of the
dam so that ongoing violations come to a halt. In addition, the following
concrete steps be initiated to ensure that resettlement is done in accordance
with our Constitutional provisions and in keeping with our obligations to
international human rights instruments.
Recommendations:
·
The height of the dam should not be raised
till the rehabilitation of all the project affected persons upto 90mts is
complete so as to protect their human rights to livelihood, housing and
congruent rights.
·
The project authorities should show
transparency and demonstrate the location and quality of land to be offered for
resettlement. The government claims that it has land for rehabilitating oustees
if the height of the dam is increased.
·
The government officials carrying out or
overseeing rehabilitation work should regard the rehabilitation of the project
affected people as their human right flowing from the right to adequate
housing, and not as a favour being granted to them or numbers to be filled in
records.
·
At the existing rehabilitation sites, the
land related problems and the provision of basic services needs to be addressed
immediately to ensure that the oustees can satisfy their right to housing and
livelihood.
·
The Madhya Pradesh Government should not
violate the NWDT Award and force the project-affected people to move to
Gujarat. The Madhya Pradesh Government
is under an obligation to give full information to the oustees of their rights
under the NWDT Award.
·
Responsible governmental authorities at all
levels need to pay particular attention to ensure that Women are ensured rights
to property, land, housing and required civic services consistent with India’a
obligations under CEDAW.
·
Particular attention needs to be given to
the SSP affected children. All governmental authorities should keep in mind the
opinion of the UN Committee on the Rights of the Child (Concluding Observations
(para 53) on India, January 2000) that
“the Committee encourages the State Party to prevent any occurrence of forced
evictions, displacement and other types of involuntary movements. The Committee
recommends that resettlement procedures and programmes include registration,
facilitate comprehensive family rehabilitation, and ensure access to basic
services.
·
The project-affected people should include
those people whose lands have been acquired for the canals, dykes and
sanctuary.
·
In all the above outlined processes the
human right to information and participation of the Project affected people
must be respected. Genuine consultation followed by informed consent must be
the basis of any progress to be made regarding rehabilitation of affected people.
To facilitate the implementation of these recommendations I would like to suggest that Your Excellency establish an independent Committee with a twofold objective: to investigate the status of resettlement in the Narmada Valley and to draft guidelines that would allow for monitoring compliance in the resettlement process with Constitutional provisions, the NWDTA and India’s international human rights commitments. These guidelines could lead to human rights impact assessments of the project to determine its feasibility in light of the violations that have already taken place. This would ensure that the complete cost benefit review of the SSP that is called for includes full consideration of the implications of continuing with this project on the human rights of those to be affected.
The establishment of such a Committee would be consistent with the
authority vested in your office in the parts of the Indian Supreme Court
Judgment in October 2000 (Narmada Bachao Andolan v. Union of India and
Others) that deal with the determination of the adequacy of rehabilitation.
I would urge Your Excellency, given the scale of violations that have
already taken place, to include in the mandate of such a Committee to ensure
that the rights to rehabilitation of all the people displaced by the SSP since
the first displacements began in the 1980’s.
As you are aware the conditions placed by the Supreme Court to ensure
adequate rehabilitation are only for the people to be displaced after the
raising of the height of the dam beyond 90 meters.
The Sardar Sarovar Project has received intense publicity at the
national and international levels and has been one of the most controversial
development projects in the world since the displacement of people began in the
1980’s. In this context, and given that
one of the intentions of this letter is to initiate a dialogue on the level of
compatibility of the rehabilitation with India’s international commitments to
human rights I am releasing this letter to the public.
In India, numerous credible Committees have documented in detail
the considerable shortcomings of the rehabilitation efforts; in particular the
failure of the implementing authorities to comply with national law and the
strictures lay down by the NWDTA. The most recent example of this is the report
of the Justice S.M. Daud (Retd.) Committee established by the government of
Maharashtra. The findings of this Independent Committee were submitted to the
government of Maharashtra on 3 July 2001. I completely subscribe to the
conclusions of this Committee, as they are consistent with my own findings.
What this letter has attempted to show that the international
obligations have also been and continue to be violated. India’s credibility in the international
community is at stake. Your leadership is urgently called for to ensure that
the human rights of the project-affected people are respected and protected. I
would urge you to take steps that these instruments are scrupulously adhered
to.
I trust that the Special Procedures mechanisms of the United
Nations human right program such as my mandate, can serve to be a resource in
your efforts to seek the needed solution, towards protecting the right to
adequate housing for the tribals and others displaced in the Narmada valley.
In the mandate entrusted to me by the UN, I am called upon “to
report the status, throughout the world, of the realization of the rights (to
adequate housing), and on developments relating to these rights, including on
laws, policies and good practices,” taking into account information received
from various courses, including governments. I have also been urged by the UN
to seek collaboration with governments towards the fulfillment of the rights
related to adequate housing.
In this context, I look forward to your response concerning
further positive developments and offer my services for any role you see fit
for me to play towards the resolution of the large-scale crisis that India
finds itself in as she seeks to respect the human rights of all the people in
the Narmada valley affected by the SSP.
Please accept,
Excellency, the assurances of my highest consideration.
United Nations Special Rapporteur on
adequate housing as a component
of the right to an adequate standard of living