 INAUGURAL ADDRESS SHRI K.N.
 CHANNA, SECRETARY, MINISTRY OF
 EDUCATION, SOCIAL WELFARE AND
 CULTURE

SHRI K. N. CHANNA

Secretary, MInistry of

Education, Social Welfare& Culture

I have great pleasure in welcoming you to this Conference. I am grateful to all of you for having responded to our invitation and come for a rather longish stay in Delhi. I look forward to fruitful discussions in this Conference which will not only help the deliberations of the Central Advisory Board of Education, but also assist all of us in improving educational administration, both at the Centre and in the States.

As you are aware, I joined my present post in the Ministry of Education recently. During this short period, it has not been possible for me to visit the States or to study the vast educational problems on the spot. I must confess that I am not in a position to suggest any magical solutions for the intricate problems that we face in the field of education. What I propose to do in this inaugural address, therefore, is to share with you my concern for some aspects of these problems. I shall then assume the more appropriate role of a listener and a learner and try to benefit from your combined experience and wisdom to evolve policies and programmes for the consideration of the Central Advisory Board of Education.

Financial Stringency

One thing which is worrying all of us at the present juncture is financial stringency. The country is now passing through an extremely difficult economic situation created, among other things, by a spiralling inflation. Government has, therefore, been compelled to cut down its expenditure drastically, and, as might be anticipated, the axe has fallen heavily on all plan expenditure, and particularly on the non-core sector under which Education happens to be classified at present. The finances available to us have, therefore, been greatly reduced. We began our discussions regarding the Fifth Plan two years ago when the Central Advisory Board of Education approved of a plan

for Education and Culture with a total outlay of Rs. 3320 crores. This was successively reduced. till we now have a total plan outlay of Rs. 1726 crores only and there are possibilities that even this might get reduced further. Meanwhile, the prices have risen steeply so that the reduction in actual programmes, such as appointment of additional teachers, establishment of new schools, construction of buildings or purchase of equipment, is even greater than the reduction in the financial allocations. This has been a disappointment to all of us. What is more distressing is the possibility that this financial stringency is likely to continue for quite some time.

This situation poses a diffcult challenge. On the one hand, the unfinished tasks in the field of education are indeed many and these are becoming more and more urgent as time passes. As they can be ignored only at great national peril, we shall have to do our best to accomplish them. On the other hand, the actual financial resources available are getting reduced, and their purchasing capacity is being attenuated further through a rise in prices. We have to find a way out of this dilemma.

It is necessary to realise that there are no easy solutions. It has been suggested, for instance, that some of the present financial difficulties could be overcome through liberal Central assistance for specific programmes. It would appear that this proposal is based on a misconception. It is not as if there is no money in the States while all of it is readily available at the Centre. The plain fact is that financial stringency afflicts both the Centre and the States.

We shall have to continue to strive to mobilise the maximum financial resources possible in support of Education. There is a strong feeling among the public and the academic community that Education has been accorded a much lower priority than it deserves in the matter of financial outlays. We must, therefore, try our best to see that this priority is raised to the extent possible. We shall also have to raise additional resources to supplement the inadequate Plan allocations through local taxation, community contributions and donations, and receipts from productive effort. But this may not be enough. Our efforts in this direction will have to be supplemented by other related and important measures. For instance, we may have to take steps to reduce the unit cost of Education. Priorities may have to be redefined. A rigorous scrutiny of the Plan schemes may have to be undertaken and 'available resources will have to be

concentrated on the implementation of a few major programmes of significance rather than scattered thinly over too many schemes, including some of relatively lower priority. What is even more important is that we shall have to mobilise human effort to make up for the shortfall in financial outlays.

Whatever the methods that may be adopted-and these may vary from State to State in keeping with local conditions-there must be agreement on one issue: we shall not slacken our efforts at the reconstruction and development of Eduction under any circumstances.

Elementary Education

What are some of the major programmes on which it is desirable for us to concentrate ?

From the earlier deliberations of the CABE. I find that the highest priority has been accorded to the provisional of universal education in the age group 6-14 before the end of the Sixth Plan. A major question for us to consider is whether we modify our targets and postpone the achievement of this goal to a later (late or modify our strategy and insist on reaching this goal within the next ten years.

In the papers Circulated for the consideration of this Con- ference, the following three major proposals have been put forward for modification in the strategy :

(1) We should be able to enrol a fairly large number of additional children even in the existing institutions. This will imply better administration, an intensive utilization of existing facilities, and, if necessary, even the adoption of a larger teacher- pupil ratio.

(2) We should adopt the programme of multiple entry and part- time education in a big way, especially in the age-group of 11-14. Apart from a sizable reduction in unit costs, this will bring into schools large numbers of children from poor families who are required to work and who would otherwise remain outside the system. The programme will also provide adequate educational opportunity to all children who drop out at various stages on account of poverty. It will thus eliminate a good deal of wastage that now occurs in the system. Obviously, this is a programme for part-time students and we shall have to utilize the part-time services of a large number of persons-teachers as well as others-to promote it.

(3) The programmes of national service which have to be developed for young persons who have completed secondary school or college. may be linked up with programmes of expansion of elementary education by providing suitable opportunities to National Service Volunteers to work as teachers in primary and middle schools.

These are the basic issues and, ultimately, our success in providing universal elementary education in the age-proup 6-14 during the next ten years will depend upon the extent to which we carry out these major changes. I realise that there will be several problems involved in the implementation of these recommendations. It is also obvious that there will be no common or uniform solutions which can apply to such widely different situations as those in Kerala and Tamil Nadu on the one hand, and Bihar and Rajasthan on the other. It is, therefore, necessary for each State to evolve its own programmes and strategies appropriate to its own situation. But while the strategies may vary, the provision of universal education at an early date is worthwhile and should, under no circumstances, be abandoned. It is, therefore, our responsibility to evolve a realistic and practicable policy in this behalf and to implement it effectively. I shall welcome your concrete suggestions on the subject.

Secondary Education

In the field of secondary education, it is my understanding that three main issues need urgent attention.

The first relates to expansion. It has been argued that a linear expansion of secondary education has been over-emphasised in the plans, as they now stand, and that a large amount has been allocated for the purpose. You will agree that there has been considerable unplanned and haphazard expansion of secondary education in the past and that there are far too many uneconomic and small secondary schools at present. A time has, therefore, come when we should change this policy and regulate the establishment and location of new secondary schools and even rationalise the existing institutions. This will also conserve considerable financial resources which could then be utilised for programmes of vocationalisation, for adoption of the new pattern, or qualitative improvement.

The two other major programmes in secondary educational and these will have to be discussed together-are vocationalisa-

tion and the adoption of the common pattern of 10+2+3. The desirability of these measures is generally accepted. They will help to divert a fair proportion of students in different walks of life and thereby reduce the pressures on admission to the universities. They will also help to improve standards, both at the school and the university stages. While the adoption of the pattern may require some non-recurring investment, the measure will ultimately result in a reduction in recurring expenditure. There is, therefore, need to implement these programmes on a priority basis. I am glad that some States have already implemented the reforms and some others have initiated steps towards its implementation. It is obvious that a good deal of elaborate preparation is needed for a successful implementation of these programmes. This only implies that we must begin the preparation without any further delay. I would, therefore, welcome all practical suggestions from the point of view of imple- menting both these reforms as soon as possible.

Higher Education

The most important issue in higher education relates to the regulation of total enrolments. Ever since Independence, higher education has been expanding rapidly at almost 10-13% per year. There has been some evidence recently of a slight decline in this growth rate; but it is still high. As you all know, this rapid expansion leads to deterioration of standards and accentuates the difficult problem of educated unemployment. In the fifth Plan, therefore, suitable measures will have to be adopted to regulate enrolments. It has been suggested, for instance, that no new full-time institutions of higher education, except in under-developed areas where an irrefutable case can be made for them, should be established. It will also be necessary to promote the development of large institutions which tend to be both economical and efficient. The interests of the weaker sections of the community, and particularly of the Scheduled Castes, Scheduled Tribes, and the first-generation learners, will have to be protected and their access to higher education increased through measures like reservation of seats in full-time, institutions, coupled with adequate programmes of scholarships and hostels. It is appreciated that pressure for expansion of higher education are strong and that it is not easy to resist them. All the same, regulation of further expansion of higher education is a programme of great significance and priority. I should like to benefit from your experience in the matter and from your suggestions to achieve this objective.

Programmes for Youth

Problems of youth have been increasing in urgency and complexity in recent years, and must be tackled on a priority basis. This is particularly important in higher education where the incidence of student unrest is growing. Steps will, therefore, have to be taken for better provision of amenities and services, and for improving teaching.

It is also necessary to look after the needs of the non-student youth, both in urban and rural areas. Proposals included in the Fifth-Year Plan for the development of programmes of nonformal education for the out-of-school youth in the age group 15-25 are. therefore, welcome and should receive adequate attention.

There are three main proposals of youth welfare and services included in the Central sector. The first is that or the Nehru Yuvak Kendras where the target is to establish one Kendra in every district during the Plan period. The second is the establishment of the National Service Volunteer Corps under which graduate students will be given a monthly stipend of Rs. 175,/- and required to work in specific programmes for the period of one year. The third is the National Service Scheme including programmes of vacation camps, like 'Youth Against Dirt and Disease'. For the successful. working of these pro- grammes, we need your cooperation and collaboration. In addition, we also expect that appropriate plans of youth welfare and services should also be included in the State Plans to supplement our efforts.

Programmes of Qualitative Improvement

The programmes of qualitative improvement have an obvious priority. However, when there is a fight for resources, the programmes of linear expansion somehow manage to get the lion's share of the allocation and programmes of qualitative improvement tend to be driven to the wall. In the Fifth Five Year Plan, we must not allow this to happen. After all, these programmes are not dependent only on a large-scale monetary investments; and if we can somehow provide about 20 to 30 per cent of the total Plan allocation for programmes of qualitative improvement, appreciable progress can be made. But to do 'so, it may be necessary to regulate linear expansion of educational facilities and to adopt non-formal programmes in a big way.

The programmes of qualitative improvement, among other things, include : improvement of curricula, adoption of dynamic teaching methods, improvement of textbooks and other teaching and learning materials, examination reforms, improvement of supervision, and bringing the school and the community closer together in mutual programmes of service and support. it is also essential to improve selectively a few institutions to higher levels of efficiency and to make their facilities available to teachers and students of schools in the neighbourbood. These programmes essentially require the mobilisation of human effort, the dedicated and sustained effort of students, teachers and the members of the community. This is precisely the challenge to the State Education Departments. I shall be greatly interested to know from you the measures that are being proposed to mobilise this human effort and to bring about marked qualitative improvement in education in the next few years. This is also an area in which our considered recommendations will have to be highlighted.

We at the Centre shall be too happy to assist you to improve standards of education. Our principal instruments for the purpose are the N.C.E.R.T. and the National Staff College. Brief notes on the programmes which these organisations are proposing to develop to assist you have been circulated. We shall be grateful for your comments and suggestions regarding the manner in which the work of these organisations can be closely dovetailed with that of the corresponding organisations at the State level so that we are in a position to help you more effectively in the realisation of our common goals.

Educational Administration

Improvement of educational administration is our major res- ponsibility. Let us not ignore the fact that the educational systerm is now under serious stresses and strains and ofter on the verge of a breakdown. The educational process of proper teaching and learning does not take place in many class-room situations. Students' attendance is often bogus and inflated. Many educational institutions remain closed for long periods of the year, on account of disturbances. Examinations are not often held in time, and adoption of malpractices on a large scale has become widespread and often created law and order problems. Unrest, both among teachers and students, is increasing and interfering with the quiet pursuit of education. There is a growing discontent among the public about the efficiency and

performance of the education system. In these circumstances, it is incumbent on us to see that the quality of administration is improved and that certain minimum standards are maintaned in all educational institutions. Unless this is done, all talk of reform or further development is meaningless and additional investments into the system will merely add to the existing waste. It is necessary to discuss this problem in detail and to evolve concrete suggestions and programmes to improve educational administration.

One aspect of educational administration which deserves special attention is the need to provide proper leadership in ail programmes of educational development. The initiative for this will have to come from the top : the Education Secretaries, the Directors of Education, and the State Institutes of Education. It will also be desirable to involve the universities in programmes of school improvement and thus bring in a new and able leadership into the picture. The inspecting staff will have to be properly chosen and adequately equipped for the purpose. The teachers will have to be involved closely in planning and implementing programmes of educational reform so that a considerable part of the leadership needed will come from the teachers themselves. Needless to say, the students also will be involved in the programme, especially in higher education. Special efforts will also have to be made to bring the leaders of the community in closer contact with the school system to provide the necessary popular and political support to programmes of education reconstruction. These aspects of the programme have been comparatively neglected in the past and will need greater emphasis in the years ahead.

Collaboration between the Centre and States

We are anxious that the Centre and the States should work closely and continuously together in planning and implementing programmes of educational development. Education is constitutionally a State subject, but it is also a matter of national concern. What happens in one State or one part of the country, has its own repercussions in all other parts as well. If the best results are to be achieved, therefore, it is necessary that the Centre and the States should work together as partners in the endeavour. The main purpose of the CABF and of the periodical Conferences of Education Secretaries and Directors of Education is to help in this direction. I, however, feel that, while these periodical deliberations have their own important role, we

must also involve supplemental methods of deliberation, cooperation and collaboration which will keep us in close and constant touch. I shall be grateful if the Conference finds some time to discuss this important issue.

Conclusion

I do not think I should take any more of your time. Like all new comers to any field of activity, I have begun to see the problems that beset it rather than the solution to these problems. You will, therefore, pardon me if I have merely shared my concerns and questions with you and not indicated the answers. For answers, I want to draw on your vast experience and benefit from your learned guidance.

As civil servants, we have a two-fold role to play. We shall have to assist, first of all, in the formulation of an appropriate policy which will help us to get over the present crisis; and once the policy is formulated, we shall have to do our best to implement it. Our deliberations today and tomorrow will have to be centered round these two major issues and, let us hope, will bring forth useful recommendations for the considerations of the Central Advisory Board of Education.

Before I close, I should like to thank you, once again, for your cooperation.

INAUGURAL ADDRESS SHRI K.N. CHANNA, SECRETARY, MINISTRY OF EDUCATION, SOCIAL WELFARE AND CULTURE