Vol - XLVIII No. 24June 15, 2013, epw
It was not until the 1990s that the sexual torment endured by a rural level change agent in Rajasthan and her subsequent determination to challenge what led to her violation gave rise to a long overdue common-sense approach to what needed to change. It was us. Sexual harassment hit the Indian legal map when Bhanwari, a saathin in Rajasthan, prevented the child marriage within an upper caste community. In doing so she was subjected to unwelcome sexual harassment through words and gestures from men of that community. When she reported the harassment, the local authority did nothing. That omission was at great cost to Bhanwari – she was subsequently gang-raped by those very men.
Surprisingly, nationwide calls for justice hovered around demands for a stringent criminal law response, i e, the filing of a first information report (FIR). With a history of failures by the criminal justice system to stem the pandemic of violence towards women, such demands appeared futile. At the risk of offending purists of criminal law, it has always struck me as somewhat offensive that a breach of criminal law is effectively treated as a crime against the state. Each FIR becomes the pursuit of a culprit by the police for a harm which the “State” has endured. At most the complainant woman is only ever a witness.
Bhanwari’s experience invited us to change that pattern. Rather than perceive sexual harassment in the home, on the street, at work or in accessing justice as individual personal injuries, we needed to experience it as a constitutional concern. The microcosmic commonality of Bhanwari’s experience of sexual harassment mirrored what scores of working Indian women faced in India – everyday, everywhere, all the time. In the absence of any existing legal response to “sexual harassment”, the opportunity was ripe for a comprehensive approach. In 1992, therefore, we approached the Supreme Court of India in a public interest litigation to do precisely that – rethink “the way things are”.
Sexual Harassment at Work
Sexual harassment was a form of discriminatory conduct at the workplace. It hampered women’s constitutional rights to equality and dignity. It sabotaged work performance, affected working environments, impaired women’s progress, resulted in absenteeism and cost both individuals and institutions in terms of qualitative health and growth. The statistics of the International Labour Organisation (ILO) reveal how 55% of women from the ages of 14 to 55 in Italy have been subjected to sexual harassment (2004); sexual harassment in the United States army has cost close to $250 million (1999 survey); 40 to 50% of women in the European Union have faced some form of sexual harassment; and a 2002 survey by Sakshi (a non-governmental organisation) of 2,000 persons across workplaces found 80% acknowledging that workplace sexual harassment existed in India.
Statistics apart, constitutional equality was never the lens through which we viewed women’s experience of sexual harm at work. It took that rare creative courage of a judge, the late Justice J S Verma (then chief justice of India) to rise to the occasion and in 1997 we were given Vishaka vs State of Rajasthan. Unlike anything before it, Vishaka was a visionary decision. Primarily, it filled a legal vacuum. Second, it viewed sexual harassment through an equality lens and thus prioritised prevention. Third, in the absence of legislation, it became legally binding on all workplaces. Unlike the criminal law, it was the State, the employer, and the institution that had to own up for the equality and dignity of women at work.
Finally, it gave us a map for creating accountability. Workplaces, organisations, institutions (including educational establishments) were compelled to raise awareness about sexual harassment, take steps to prevent it and to offer effective redress. We sought and were granted the presence of a third party expert on complaints committees for sexual harassment, a mechanism mandated by Vishaka for all workplaces.
It was an innovative moment in the history of women’s constitutional rights within all workplaces. That is what a visionary approach does for people’s rights. It expands and uplifts them through an inclusive process. Vishaka changed the map of how we could respond to other forms of violence against women. Unfortunately, the moment and momentum was frittered away by a state unable and unwilling to adhere to the bar Vishaka had set. Despite the Government of India’s own ratification of Committee on the Elimination of Discrimination against Women (CEDAW), the women’s convention which promised to uphold the equality rights of women in all aspects of life, its commitment rang hollow. Added to this was increased public immunity to the daily sexual exploitation of women who never took adequate notice of what Vishaka had to offer.
‘To Do Something’
Still, Vishaka made it impossible for us to slip back to the way things are. It gave us language. Women’s experience of unwelcome sexual conduct was no longer a patronising moral transgression of her ”modesty”, it was sexual harassment – a violation of her constitutional equality.
Sixteen years post the landmark judgment, the Government of India introduced a new bill. Such delay might have been justified had excellence and improving on Vishaka been the goal. In reality, the state simply awoke from its lengthy slumber to “do something”. Amidst the din of the coal block allocations scam in the Lok Sabha, a defective Sexual Harassment of Women at Workplace (Prevention, Prohibition and Redressal) Bill was allowed to pass into law without debate in September 2012. Before the Rajya Sabha, a feebler introduction was made by the minister whose “vision” suggested that it was a bill “to make them economically empowered so that they can do their work properly” – a condescending preface to constitutional equality which was the backbone of the Vishaka judgment. Adding insult to injury, nowhere does the debate find mention of constitutional equality.
Apart from the statement of objects, there is little in the language and content of the new Act which has continued to raise the bar, let alone retain the spirit of Vishaka. An itemised definition of what constitutes “workplace” might have been more easily stated as any place where a woman is present by virtue of her work – a suggestion supported by many at a consultation held in the presence of parliamentary standing committee members. Educational institutes have complained that the definition does not go far enough to include students who, while not workers, frequently suffer coercive sexual harassment on campus or otherwise linked to their educational growth, a concern endorsed by the Justice Verma Committee. Such institutes will need to adopt a creative approach to ensure students are covered. Extensive cross-country research carried out for the Vishaka hearings provided contemporary approaches to the definition and a road map for preventing workplace sexual harassment.
Use of such knowledge was scarcely evident in crafting the latest Act. Inaccurate phrasing (a trait which characterises much of the Act) of hostile workplace sexual harassment eclipses the relevance of the most common forms of workplace sexual harassment. Mismatches between subheadings and content compound that perception. A section titled “Prevention of Sexual Harassment”, for instance, fails to deliver on anything related to preventive measures. Instead, the section highlights “circumstances” which may amount to sexual harassment. Such glaring oversight betrays an abysmal lack of homework by the legislative draughtsperson and ignorance about the issue by parliamentary representatives across the political spectrum.
Diluted Version of Vishaka
As for the internal and local complaint committees now mandated under the Act in all workplaces, political understanding of what was intended to be an inclusive and informed redress mechanism simply is not there. Diluting third party presence on these committees to persons committed to “the cause of women” demeans the skill and specialisation required to meet the nuances of workplace sexual harassment. In a recent example, a lawyer committed to the “cause of women” was inducted into a government department complaints committee. Post the proceedings, my office was contacted by the department for a follow-up. Amazingly, the record revealed how the person accused of sexual harassment was allowed to openly question the complainant as part of the committee proceedings – a fundamental violation of the non-intimidation principle designed to protect complainants from just such practices. Third party persons (lawyers or not) must bring knowledge, skill and capacity to the table to ensure processes are professionally informed and unbiased. Vishaka envisaged an inclusive complaints committee to build ownership of the issue, ensure fair treatment and enhance knowledge and experience around workplace sexual harassment.
Of all sections, the most disturbing provision in the Act (Section 14) is one which punishes a “false or malicious complaint”. Such inventions are only ever peculiar to gender-specific legislations which relate to women and violence. In no other area of law do such penalty clauses exist as a matter of practice. Its presence in the new Act has no legal basis.
Investigations (and this is true of any law) are designed to determine whether a harm occurred or not. That is it. To premise an Act on the assumption that women are potential liars about their human rights abuses reeks of stereotyping women and for that reason would be constitutionally untenable. Flawed drafting further amplifies the lack of political seriousness towards socially relevant legislation for women. The “false” charges section provides that “mere” inability to substantiate a complaint or provide adequate proof “need not” attract action against the complainant, but does not enlighten us on what “need not” means. Does it imply that if a complaint does not succeed, it “ought not to but still might” attract action for false charges?
The absence of user-friendly, unambiguous and accessible language throughout the new Act renders it prone to typical gender stereotyping in such cases. In all consultations on the bill, this retrograde provision was rejected outright. To foist it into the legislation can only be perceived as an attempt to discourage women from making complaints of sexual harassment.
In the 16 years since Vishaka, progressive developments have taken place in international guidelines and practices on workplace sexual harassment. Prescribing “duties” under the new Act as a way to compel employers to prevent sexual harassment runs contrary to contemporary human rights emphasis on promoting “responsibilities”. It is the difference between what employers feel obliged to do (and hence resist and scuttle) from what they would responsibly own and do (and hence, be proud of).
Clearly, the absence of urgency and enhanced vision has given us a diluted version of Vishaka. Dilution is what traditionally allows sexually inappropriate conduct to fester, spread and eventually escalate into rape in the first place. That is how it all began in Bhanwari’s case. For that reason, a 16-year wait offers no excuse for not getting a law that mirrored global standards of excellence and understanding in systemically tackling workplace sexual harassment.
At the same time, legislation, flawed or otherwise, cannot excuse us from implementing change, one which calls upon our own willingness to connect the dots. At most, legislation has reignited attention towards the plague of workplace sexual harassment. Owning the constitutional subtext to make it work is our job. Unexpected but welcome initiatives have begun to dot the landscape even pre-legislation. A recent award by the industrial tribunal in West Bengal offers an unusually credible direction in the sexual harassment case of senior journalist Rina Mukherjee against The Statesman.
Rina Mukherjee vs The Statesman
Within six months of joining The Statesman, Rina Mukerhjee lost her job. While the company alleged that her work was “tardy” and “lacking in quality”, it suppressed Rina’s complaint of sexual harassment against the news coordinator, Ishan Joshi. Within her first month of work, Rina had taken her complaint directly to the managing director (MD), Ravinder Kumar. Understandably, she expected him to act professionally and intervene, but time passed and nothing happened. Exploiting her status as a probationer, Rina was fired by The Statesman.
Such patterns are common to organisations who fail to see the importance of promoting a workplace free from sexual harassment. Frequently, a woman on probation will find it impossible to make a complaint, let alone succeed with one. Hence, most women hesitate and tolerate the behaviour. Rina was an exception. Post her termination she filed a formal complaint with the MD, The Statesman’s owner, C R Irani and the West Bengal Women’s Commission with the firm belief that her termination was a result of her sexual harassment complaint.
The matter was eventually heard by the Industrial Tribunal (West Bengal). In a rare display of social context, insight and clarity amongst the judiciary, judge Kundan Kumar Kumai, rejected The Statesman’s claim that Rina only referred to “professional” harassment in her complaint to Ravindra Kumar. In Kumai’s view, Kumar’s failure to dig deeper was clearly suspect. In the judge’s words:
He [Ravindra Kumar] never started any enquiry however discreet it may have been. Fairplay demanded at least an explanation from the senior executives as to why there was an allegation of professional harassment against them. Rather he has gone hammer and tongs over the delay made in making the sexual harassment public, in writing. What else could she have done... she made a verbal complaint of sexual harassment and professional harassment and she was dismissed from her service even without completion of her probation period.
It should also not be forgotten that the lady workman was not only well-educated but had about ten years of journalism, with other well known publications, behind her and not a novice or a rookie journalist, at that relevant time.
Moreover...it becomes clear that there was no Committee on sexual harassment, as per the Honb’le Supreme Court’s direction in Vishaka vs State of Rajasthan, existing in The Statesman, at that relevant time...to expect-the lady workman to file a written complaint and not to believe the same, when it has been filed ‘at a later date’ is sheer bias.The Statesman was ordered to reinstate Rina and grant her full back wages from the time of her termination to the date of the order. It took 11 years but Rina won an order that dispels assumptions about why women take time to complain about sexual harassment, how those in power try through sheer numbers and gagged employees to dismiss such claims, and how workplaces can no longer take legal compliance on sexual harassment lightly. Had The Statesman taken her complaint seriously at the outset and complied with Vishaka, the result could have been beneficial for all – for Rina, women workers, the workplace environment and inevitably the company’s reputation.
Repetition creates a life pattern. Enduring workplace conduct which sexually demeans, intimidates, offends, excludes and limits women is not only about the patterns of sexist behaviour, it is also about the repetitive nature of our own complacency. We have become immune to the pervasive harm of sexual harassment and its unconstitutional character.
People like judge Kumai, justice Verma, Bhanwari and Rina remind us that this need not be so. They inspire the rest of us who care, to use our carefully crafted skills, know-how and passion to innovate and transform the most ill-crafted provisions in law to work for us rather than limit us.
Sexual harassment need not be “the way things are”. It is up to us as political leaders, judges, responsible workplaces and individuals to change that pattern of thought. Having found its way onto our constitutional map for all to follow the direction and visibility of workplace sexual harassment will be determined by the men and women who understand the professional and human worth of speaking up. As frightening as that can be, it will enable us to own our constitutional equality not has some elusive right we should continue to aspire for, but as something we can live, experience and embrace everyday. That is not the way things are, that is the way things should be.