VII. REPORT OF THE WORKING GROUP ON ELEMENTARY EDUCATION.
The Group on Elementary Education was chaired by Shri Radha Raman Shastri, Minister for Education, Government of Himachal Pradesh. The list of participants is enclosed.
2. The Group considered the amendments proposed by the CABE Committee on Policy with reference to the NPE, 1986 and NPERC with specific reference to the area of elementary education and teacher education. The Group had a very animated discussion on variegated components forming part of the elementary education and impinging upon the conceptual framework for achieving the goal of universalisation of elementary education (UEE). Recognising the need for maintaining the thrust of the strategy for development on the elementary education, the Group also focussed attention on effectuating a sound programme of action for the implementation of the goal of UEE in the backdrop of the Revised Policy. There was a consensus amongst the members of the Group that the gap in regard to implementation of the Policy should receive priority attention and suitable modifications and modulations should be carried out in the Programme of Action to reflect the new Revised Policy initiatives. In this connection, the following specific points were raised by the members:
(i) In terms of thrust strategies, it was felt that the value formation and character building should be the core element of the elementary education.
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(ii) The effective structure for implementation of UEE would require effective and operational decentralisation and community participation both in regard to improvement of school facilities and quality education.
(iii) The elementary education should be child-centred and to fructify this objective, congenial atmosphere should be provided, school calendar should be designed to suit the specific local conditions, the content and process of education should be made more effective, interesting, dynamic and child-centred and the lessening of the load of curriculum should take place. While drafting the Programme of Action, locationspecific and problem-specific strategies should be developed with an in-built element of flexibility to meet the different requirements. For instance, the strategies for improving the access of services in hilly areas could be counter-distinguished from the facilities visualized for plain areas. Similarly, the requirments of the migratory and the child labour would require altogether different approach in terms of universalisation of education.
(iv) There was a great deal of emphasis on teachers' training, particularly at the primary level, to impart right attitudes in them and also to induce qualitative change to sharpen decision making capability and teaching methodology.
(v) Infrastructural facilities in the form of buildings and equipment can provide the basic conducive structure for
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making, the learning-teaching process interesting and attractive.
3. Following from the above, the Group unanimously felt that Programme of Action needs to be drastically changed to incorporate the thrust areas as visualized in the Revised Policy and to suggest specific practicl measureas for translating these goals into action. Both in regard to time frame as well as the operational aspects, realistic measures need to be evolved which can overcome the difficulties as encountered in regard to the implementation of the programmes under the NPE, 1986. The underlying strain of the POA should be to implement the Policy initiative in a mission mode.
4. After thorough discussions and detailed deliberations, the Group made the following recommendations to revise the NPE, 1986 with reference to elementary education:-
(1) Revised para 5.5 5.5 The new thrust in elementary education will emphasize three aspects: (i) universal access and enrolment, (ii) universal retention of children upto 14 years of age; and (iii) a substantial improvement in the quality of education to enable all children to achieve essential levels of learning.
(2) Revised Para 5.7 5.7 Provision will be made of essential facilities in primary schools. The scope of operation Blackboard will be enlarged to provide three reasonably large
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rooms that are usable in all weather, and black boards, maps, charts, toys, other necessary learning aids And school library. At least three teachers should work in every school, the number increasing, as early as possible, to one teacher per class. A minimum of 50 per cent of teachers recruited in future should be women. The operation Blackboard will be extended to upper primary stage also. Construction of school buildings will be a priority charge on JRY funds.
(3) Revised Para 5.8 5.8 The Non-formal Education Programme, meant for school dropouts, for children from habitations without schools, working children and girls who cannot attend whole-day schools, will be strengthened And enlarged.
(4) Revised Para 5.9 5.9 Modern technological aids will be used to improve the learning environment of NFE Centres. Talented and dedicated young men and women from. the local community will be chosen to serve as instructors, and particular attention paid to their training. All necessary measures will be taken to ensure that the quality of non-formal education is comparable with the formal education. Steps will be taken to facilitate lateral entry into the formal system of children passing out of the non-formal system.
(5) Revised Para 5.11 5.11 The Government will take over-all responsibility
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for this vital sector. Voluntary agencies and Panchayati Raj institutions will take much of the responsibility of running NFE programmes. The provision of funds to these agencies will be adequate and timely.
(6) Revised Para 5.12 5.12 The New Education Policy will give the highest priority to solving the problem of children dropping out of school and will adopt an array of meticulously formulated strategies based on micro planning, and applied at the grass roots level all over the country, to ensure children's retention at school. This effort will be fully coordinated with the network of nonformal education. It shall be ensured that free and compulsory education of satisfactory quality is provided to a 11 children upto 14 years of age before we enter the twenty-first century. A national mission will be launched for the achievement of this goal.
5. The group also found it feasible to give their reflections and observations about the revision in the Programme of Action in view of the Revised Policy initiatives. The suggestions would be by way of identification of concernd areas which need to be incorporated while developing a detailed Programme of Action. The following were suggested in this context.
6. The Group felt that some structural changes have to be introduced in forming POA as well as in dealing with the subject
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of elementary education. So far as the methodology is concerned, the revision of the POA, though initiated by suitable subcommittee or a committee appointed by the CABE, the draft propositions and guidelines should be circulated to all the field institutions/representative groups, voluntary institutions and .other agencies involved in the field of education. This would make the POA realistic, implementable and doable. Concomitant to this, it was strongly felt by the Group that insted of fragmented approach followed in the existing design of POA with regard to elementary education, all the components impinging on the issue of elementary education should be integrated and dealt with in a holistic manner.
7. The Group made the following suggestions with regard to the following components of UEE:-
a) Elementary Education
b) Teacher Education
C) Non-Formal Education
Elementary Education i) The new dimension of access which has been incorporated in the Revised Policy would require framing of suitable approach and strategies in designing the normative basis for improvement of access, particularly for girl children, hilly, tribal and difficult areas. The norms have to be spelt out taking into account spatial, geographical and local requirements.
ii) The education of the girl children must receive a special attention in the POA.
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iii) For improvement of facilities for the elementary education, the funding through Finance commission mechanism should continue. Apart from a specific assistance following through JRY, the Central assistance for specific activities for improving the school facilities must be expanded. The cost of second teacher already provided and third teacher, additional class room and equipment should form part of a Centrally sponsored scheme.
iv) Greater emphasis should be placed on the methodology of the recruitment of teachers.
V) The conceptual framework of minimum levels of learning needs to be fully explained in the POA and it should emphasize the following components:
- Curriculum design
- Use of mother tongue at the initial stage of education
- Learning-teaching material. suited to the local conditions and incorporating the local ethos.
vi) A National Mission as incorporated in the Revised Policy on the model of NLM with a specific time frame, should be launched.
vii) As a sequel to the Policy for expanding the scope of the scheme of Operation Blackboard to upper primary stage, necessary facilities for upgradtion of primary schools, equipping the upper primary schools should be included in the POA.
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Teachers And their training 1. Steps should be taken for improvement in the status of teachers along with effective teacher accountability. Reforms in teacher recruitment, service conditions, grievances redressal, increased teacher participation in policy making and implementation, ensuring teacher performance upto an acceptable norm and quality should be enumerated and highlighted.
2. Emergent steps required for operationalising the DIETs (including DRUs), filling up of posts, framing up of recruitment rules and strengthening and intensifying the activities in the DIETs.
3. Attention to be given while making recruitment in the DIETs that people of proven merit, motivation and relevant experience are recruited. Non-governmental institutions may also be upgraded into DIETs just like CTEs/IASEs.
4. Networking arrangements of the DIETs and SCERTs to be made. SCERTs be given autonomous and independent status to emerge as State level academic and training suport institutions.
5. Arrangements should be made to provide at least one in- service training to every teacher over a five year period, besides other professional support programmes through peer group meetings and the media or requisite arrangements to be made through DIETs/other training institutions/mass orientation of teachers/school
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complexes/teacher centres/block resource centres/ distance education and other appropriate institutions/ programmes.
6. NCTE be given a statutory status and to exercise control over the standard of teacher training in the country. NCTE also to play an important role in standards and norms for institutions, curricula and methods of teacher education and preparation of learning materials, etc., for teacher education.
7. Distance education be given importance for in-service training of the teachers. Appropriate mechanism for preparation of software, supply of audio-video equipment, broadcast of programmes and appropriate curriculum be emphasised. SCERTs and DIETs to play an important role in these.
8. Emphasis be given to creation of a cadre of teacher educators, framing their recruitment rules and giving them necessary incentive and respectibility.
9. State level assessment of in-service training requirements be done, and role of the institution not being upgraded into DIET but having reasonable standard be defined so that a concerted in-service training programme can be launched..
NON-FORMAL EDUCATION The Group was of the opinion that in the light of the revisions in the NPE relating to non-formal education, the text in the Programme of Action on pages 9-11 (Paragraphs 25 to 35)
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captures the essence of the revised sections in the NPE.
However, some of the issues in the Programme of Action need further emphasis in the light of experiences gained in the last four years. These points are:
(1) significance of Non-Formal Education: Non-Formal Education is not merely a scheme of education for school drop-outs, but an integral part of basic Education for All.
(2) Strengthening of Non-Formal Education: The scheme of non-formal education must be appropriately enlarged and strengthened to enable State Governments and voluntary agencies to participate effectively in the scheme.
(3) Structure of Non-Formal Education: The Project as the basic unit for implementtion of non-formal education has been found effective. Planning as well as implementation, including control of funds and day-to-day functioning must be at the Project level.
It is important to further de-centralise management of non-formal education by ensuring effective peoples participation at the Centre level.
(4) Role of Voluntary Agencies: As already envisaged in the revised NPE the major task of implementing non-formal education will rest with nongovernmental and voluntary agencies. This must be carried in letter and spirit. More and more voluntary agencies should be encouraged to participate in the implementation of non-formal education.
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5. Non-Formal Education Centre: The NFE Centre is a critical unit in the entire scheme. It is essential that all necessary facilities and inputs are provided at the centre level. This would include teachinglearning materials, training of instructors and pysical facilities like space, lighting, teaching- aids, adequate material for children to sit on and other materials necessary for effective teaching-learning at the centre level.
6. Training of Instructors: It is necessary that instructors be given proper and adequate training in NFE methodology.
7. Training: Training responsibilities must be shared by the project, district level institutions like DIET and DRU, State level institutions like SCERT and NIEPA. Coordination of training must be ensured at various levels and appropriate models of training should be evolved and implemented. The NCERT model has been very effective.
8. Materials: In order to ensure satisfactory scholastic levels it is essential that the norms laid down under the Minimum Levels of Learning be strictly adhered to. All teaching-learning materials therefore, must be according to the minimum levels of learning established for primary education.
All existing materials need to be reviewed in the light of MLL's.
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9. Evaluation: All evaluation must be centre-based and related to the levels of learning by the children. Project evaluation may be conducted at the project level.
Evaluation techniques and methodologies should be evolved by the various institutions concerned in the implementation of non-formal education i.e. NCERT, SCERT, DIET, DRU, etc.
Monitoring of NFE should be centre-based. MIS models already developed ray be used for monitoring.
10. Funding: It has been stated in the revised NPE that Government shall provide adequate and timely funding for non-formal education. The scheme will succeed only if sufficient funds are available for the various activities outlined above. It is recommended that the Centre: State funding ratios should be 75:25 for co-educational centres, 90:10 for girls' centres and 100% for centres run by voluntary agencies.