REVIEW OF PAST PERFORMANCE
1. Growth Since 1950 1.1 It has come to be accepted now that planning in the Elementary Education sector has to focus on universalisation as the target. This objective is laid down in the Constitution itself
"The State shall endeavour to provide within a period of 10 years from the commencement of the constitution for free and compulsory education for all children until they complete the age of 14 years."
It has guided our policies since then, and planning since the Sixth Plan (1975-80). The Sixth Plan document makes a serious reference to the desirability of a time-bound plan to achieve universal enrolment. The Seventh Plan conveys a sense of urgency about the need to achieve this objective. Midway through the Seventh Plan the National Policy on Education 1986 (NPE)reinforces that urgency, elaborating and restating that target as follows:
"It shall be ensured that all children who attain the age of about 11 years by 1990 will have had 5 years of schooling or its equivalent through the non-formal stream. Likewise, by 1995 all children will be provided free and compulsory education upto 14 years of age."
By this definition, the National Policy on Education decides also the target of the Eighth Plan. Before we proceed, however, to draw up the perspective and requirements for the coming years with Universalisation of Elementary Education (UEE) as the goal by 1995, we may take stock of our progress since the commencement of planned development after independence.
1.2 This progress has not been inconsiderable. Between 1950-51 and 1986-87 the number of primary schools increased from 2.1 lakh to 5.29 lakh and upper primary schools from 0.14 lakh to 1.39 lakh.
YEAR Primary Schools Upper Primary Schools
1950-51 2,09,671 13,596
1955-56 2,78,135 21,730
1960-61 3,30,399 49,663
1965-66 3,91,064 75,798
1970-71 4,08,378 90,621
1975-76 4,54,270 1,06,571
1978 4,74,636 1,12,404
1986 5,29,392 1,38,687
1.3 With this,about 94% of the rural population was served by a primary school/section within walking distance of 1 Km., and 85.39% by an upper primary school/section within a walking distance of 3 Kms. Enrolments have
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increased phenomenally, at the primary level (Classes I-V) from about 192 lakh to about 867 lakh, and at the upper primary level (Classes VI-VIII) from about 31 lakh to about 272 lakh:
(in lakhs)
YEAR Primary (I-V) Upper Primary (VI-VIII)
1950-51 191.55 31.20
1955-56 251.67 42.93
1960-61 349.94 67.04
1965-66 488.35 102.44
1970-71 570.45 133.15
1975-76 656.60 160.24
1978 686.02 179.58
1986 866.83 272.00
1.4 The gross enrolment ratio increased from 42.6 in 1950 to 93.6 in 1986 for Classes I to V and from 12.9 to 48.5 for Classes VI to VIII in the same period.
YEAR Primary (I-V) Upper Primary (VI-VIII)
in %age in %age
1950-51 42.6 12.9
1955-56 52.8 16.5
1960-61 62.4 22.5
1965-66 76.7 30.9
1970-71 76.4 34.2
1975-76 79.3 35.6
1978 81.7 37.9
1986 93.6 48.5
2. The 7th Plan Period: 2.1 The period of Seventh Plan has been one of steady growth. The accent has been on universal provision of facilities, qualitative improvement of the education system and increasing Enrolment of children from the educationally backward and disadvantaged groups and areas. 2.2 in the last three years from 1985-86 till 1987-88 (latest figures are not available), the number of Primary Schools increased by 2.8% and the number of teachers by 8.08%.The growth in enrolments was significant (6.29% in Classes I-V and 9.53% in Clases VI-VIII).
YEAR No. of children GER No. of children GER
(6-11 Years) (11-14 Years)
1985-86 52246774 B 111.08 17736098 B 61.82
35193740 G 79.24 9573757 G 34.34
87440514 T 95.62 27309855 T 48.96
1986-87 53850028 B 111.83 18543453 B 66.50
36143018 G 79.21 10236646 G 38.95
89993046 T 95.96 28780099 T 53.14
1987-88 55168885 B 113.13 19208445 B 68.87
37774671 G 81.75 10706054 G 40.62
92943556 T 97.86 29914499 T 55.15
B-Boys, G-Girls, T-Total
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2.3 The most significant activity during the Seventh Plan,however,was in areas in which the centre shared responsibility with the State Governments through schemes aimed at qualitative im- provement of Elementary Education although their real impact will be felt only in the coming years, in terms of growth and development.
We may pause here to discuss the progress achieved under these three major schemes, of Operation Black-board, Teacher Education and Non-Formal Education. The first two schemes were introduced in the third year of the Plan (1987-88) in consequence of the National Policy on Education, 1986; the third the centrally sponsored Scheme of Non- Formal Education, had been taken up in the Sixth Plan and initially continued on the same pattern in the Seventh; it was substantially revised and the outlay in it enhanced from 1987-88.
3. The Centrally Sponsored Schemes :
3.1 The Scheme of Operation Blackboard: 3.1.2 The Scheme of Operation Blackboard was formulated to bring about a qualitative improvement in the Primary School system in the Country. Launched during 1987-88, it aims to provide atleast to all weather rooms to schools in buildings; a second teacher, preferably a woman, in single teacher schools, and essential teaching and learning equipment in all primary schools in the country.This is to be done in a phased manner beginning with 20% of the blocks and Municipal areas in 1987-88, 30% in 1988-89 and 50% in 1989-90.
3.1.3 During 1987-88, 24 States and 3union Territories submitted their proposals to implement the first phase of the Scheme and received central assistance amounting to Rs. 110.61 crores. The coverage of first phase of the Scheme extended to 113417 primary schools (21.4%) in 1724 blocks and 304 municipal areas. The amount released comprised Rs. 29.48 crores for salary of 36891 additional teachers to be appointed in single teacher schools in the Selected blocks/Municipal areas and Rs. 81.13 crores for essential equipment.
3.1.4 On their part, the State Governments committed nearly Rs. 300 crores for construction of buildings or additional classrooms in nearly 40% of the selected schools.
3.1.5 The implementation of the first phase of the Scheme really took off in 1988-89,since the State Governments took some time in recruiting the additional teachers and streamlining the machinery for procurement. All along the emphasis has been on the purchase of equipment of good quality for which NCERT developed norms and specifi- cations, for the various items to be Supplied to schools. According to the information received, so far 327777 teachers have been appoint- ed and there is considerable degree of progress in purchase of equip- ment.
3.1.6 During 1988-89, Rs. 151.91 crores was sanctioned and Rs. 135.73 crores released to 20 States and 2 UTs in the second phase of the Scheme. The sanctioned amount include Rs.. 28.30 crores for continuing salary of teachers appointed for the first phase; Rs. 22.10 crores for salary of 36327 teachers to be appointed for the second phase and Rs. 97.66 crores for the provision of equipment to 139862 Primary schools in 1795 blocks and 319 municipal areas in the country.The States would be required to spend about Rs. 340 crores to lake up the construction programme in nearly 41.46% of the schools.
3.2 Non-Formal Education 3.2.1. To achieve the goal of UEE in fulfilment of the Constitutional objectives, Non/formal Education Programme for the elementary age group children has been developed as an alternative system to formal schooling. The scheme of non formal education (NFE), introduced during the Sixth Five-Year Plan as a Centrally assisted Scheme in the educationally backward States of Assam, Andhra Pradesh, Uttar Pradesh, Rajasthan,jammu & Kashmir, West Bengal, Bihar, Madhya Pradesh and Orissa was reorganised and expanded in 1987 to cover, in addition, Arunachal
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Pradesh as also urban slums, hilly, desert and tribal areas and projects for working children in all the other States. Assistance is being given under the Scheme to State Governments in the ratio 50:50 and 90:10 for running general NFE centres and girls' NFE centres respectively. Hundred percent Central assistance is being given to voluntary agencies.
3.2.2 In 1985-86, there were about 1.5 lakh centres running, at an expenditure of Rs.5427 lakhs in the first two years of the 7th Plan. The revision to the norms of the Scheme entailed a more realistic pattern of expenditure, with a view to bringing about qualitative improvements, and a larger supervisory structure. The programme is now being implemented on a project basis, with a project being generally co-terminous with a CD block and comprising about 100 NFE centres. The essential features of the revised Scheme are organisa- tional flexibility, relevance of Curriculum and diversity in learning activities to relate them to the learners' needs.
3.2.3. Positive measures are now being taken to involve as many voluntary agencies and Panchayati Raj Institutions as possible in the programme. The Scheme for assistance to voluntary agencies was re- vised in January 1987 to streamline procedure for sanction and dis- bursement of grants and provide the required flexibility. The budget of the programme, estimated at about Rs. 12629 lakhs in the beginning of the 7th plan, was enhanced in 1987 to Rs.23044.74 lakhs for 1989- 90.
3.2.4 In 1987-88, against a target of 2 lakhs centres, 193463 centres (184716 centres to 15 State/UTs and 20062 centres to 104 voluntary agencies) were sanctioned. In addition, 8 Experimental and Innovative Projects were also sanctioned. The total expenditure in 1987-88 was Rs.38.07 crores which exceeded the revised estimate by Rs.4.07 crores.
3.2.5 In 1988-89, Rs.35.92 crores were released for running 240164 centres (220102 by 16 States/Uts and 20062 by 275 Voluntary agencies) and 25 Experimental and Innovative Projects Admittedly, the State governments were Constrained by a lack of resources in being able to raise the additional resources required for their share for rapid expansion of the NFE programme on the new "projectised" basis. For developing an extensive computerised management information system (MIS) for the Non formal Education Programme, the Ministry has launched a project `Computerised Planning for Education' (COPE) with assistance from the Department of Electronics and NIEPA. Formats and Software prepared for Instructors and Project Officers have already been filed tested and finalised. In the first phase, the MIS is being proposed to be introduced in 4 States Viz. Uttar Pradesh , Haryana, Madhya Pradesh and Rajasthan with the help of electronic corporations to train the NFE personnel in the use of MIS registers and data input and Output on Computers.
3.3 Centrally Sponsored Scheme for Teacher Education :
Progress so far: 3.3.1 Pursuant to the adoption of the NPE, 1986, a Centrally sponsored scheme of Teacher Education was approved in 1987-88 leading the following 5 components:-
(i) Orientation of about 5 lakh teachers every year in 10 day camp, to increase their motivation and competence for implementation of the new policy (This component was started in 1986 itself, immediately after the adoption of the new policy, and much before the approval of the larger Centrally sponsored Scheme);
ii) Setting up of about 400 District Institutes Of education and Training (DIETs);
(iii) Strengthening of about 250 Secondary Teacher Education Institutions (STEEls) and development of about 50 of them as institutions of Advanced Study in Education (IASES);
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(iv) Strengthening-of SCERTs, and
(v) Establishment and strengthening of University Departments of Education (by the UGC).
3.3.2 About 13.48 lakh school teachers have been covered under the programme of Mass Orientation, during the years 1986, 1987 and 1988 (Figures of the last year being provisional). Of these, 9.31 lakh were Primary Teachers and the remaining 4.17 lakh were Upper Primary and Secondary Teachers. In the first year, the accent was on explaining to the teachers the new Policy and its implications. With each Successive year, emphasis has been shifting from Policy to upgradation of professional competence. Efforts are made to further orient the programme in 1989 for primary school teachers working in blocks already covered under Operation Blackboard, specially to the use of materials provided under the Scheme, and generally, to adoption of child centred approach.
3.3.3 It is expected that, by the end of the Seventh Plan period, some 18 lakh or more teachers would have been covered under this programme.
3.3.4 During 1987-88, Central assistance was released for setting up 101 DIETs and for strengthening 15 STEIs in the country (in addi- tion, one DIET was sanctioned under Border Area Development Programme). State Governments concerned are taking steps to Utilise the first instalment of Central assistance so released and to set UP/strengthen these institutions. Necessary posts for DIETs have been created almost everywhere, and recruitment procedures are being fina- lised. Construction of buildings has started in some States, while in others it it expected to start soon. Action to procure necessary equipment and design some basic in-service training programmes is also in progress. During 1988-89, some 100 additional DIETs are expected to be sanctioned, together with the strengthening of 30 STEIs.
3.3.5 As envisaged in the NPE, phasing out of sub-standard, surplus and malpractising teacher education institutions has been a precondition for sanction of any Central assistance to State Governments under the Centrally sponsored scheme. Since setting up of DIETs and strengthening of STEIs involves construction of additional buildings, procurement of a variety of equipment and recruitment of specialised staff in considerable numbers, it is expected that nearly all of these institutions sectioned during the Seventh Plan period, would become fully operational only during the Eighth Plan. Details of the remaining two components of the Schemes, viz., strengthening of SCERTs and of University Departments of Education are being worked out by the Ministry/NCERT and the UGC respectively.
3.3.6 Action is being taken to prepare a Bill for conferring statutory status on the National Council of Teacher Education as envisaged in the NPE.
3.3.7 Allocation for the Teacher Education Scheme for 1989-90 is going to be set at the same level as for the previous two years, i.e. Rs.50 crores as against the projected requirements of Rs.219 crores. The extent by which more DIET/CTE/IASE projects Would get approved during 1989-90 would depend on the extent to which claims are received from States for release of second instalment for projects sanctioned in the earlier two years. At present, However, it appears that this entire allocation Would be used up in meeting claims for second instalments, and probably no new projects would be sanctioned in 1989- 90. Thus, we are likely to end the VII plan period with the establishment of 200 DIETs and strengthening of about 30 STEIs (as estimated in January, 1989). Thus, out of the target originally envisaged for the VII Plan it would still remain, at its end, to establish about 200 DIETs, and strengthen about 220 STEIs, besides a number of SCERTs (and University Departments of Education through the UGC).
4. Shortfall in the Seventh Plan Outlay 4.1. Non of these major programmes could, during the Seventh Plan, be provided with outlays of the magnitude originally envisaged for them when they were launched (or, in the case of NFE, revised ) in 1987-88. The outlay
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approved by the Cabinet for the last three years of the Plan, for these three schemes and the outlay and expenditure for 1987-88 and 1988-89 and outlay for 1989-90 are indicated in Anex-I. Overall, a Central outlay of Rs.1433.88crores was envisaged for this period, but the resources available are likely to exceed Rs.640 crores On present indications.Correspondingly,physical achievement will also fall short of the targets envisaged; indeed the scale of new activity in 1989-90 will have to be drastically reduced because of the burden of recurring expenditure from previous sanctions (which must be met within about the same outlay as was provided for 1988-89).
4.2. The implementation of programmes in the State sector was also affected by a constraint on resources. The allocations in the VII Plan to Education as a whole (Annex -II) or to elementary education as a proportion to the whole of the Education Plan (Annex-III) were made keeping in mind the past trends and proportions rather than the quantified demand while, of course, from all indications so far, the actual expenditure is likely to exceed the approved outlay, it is fairly obvious that the outlay did not in any Way match the needs or even the objectives and strategies elaborated by the VII plan document.The target of enrolment of an additional 50 million children by the formal and non formal stream was not supported by adequate provision for expanding the NFE scheme or opening new schools in uncovered. habitations. Further, no increase in outlays were made when additional programmes were launched mid plan as NPE initiatives on these new, more elaborate targets set for qualitative improvement and universal provision of facilities.