APPENDIX D:
MEMORANDUM ON ITEM 6 :
EXPANSION OF PRIMARY EDUCATION
 

Item 6(a) To consider the need for special efforts to push up primary education in backward States like Rajasthan, Madhya Pradesh and U.P. A definite phased programme to be drawn and requisite Central assistance to be made available. (Shri H. C. Mathur Member C.A.B.E.)

NOTE OF THE EDUCATION MINISTRY

Primary education has not progressed at the same pace in all the States. This is due to various factors, Historical, social, economic and political. Taking the statistics for 1961 for instance, it is found that the States show very unequal progress. In the age-group of 6-11, the most advanced State is Kerala where the enrolment in classes I-V was about 109 per cent of the total number of children in the age- group of 6-11. This was least in Rajasthan where the enrolment in classes I to V was only 42 per cent of the total population in the age-group of 6-11. In order of advance, the States could be arranged as follows: * * 1. Kerala (109), 2. Madras (79), 3. Maharashtra (73), 4. Gujarat (72), 5. Mysore (67), 6. West Bengal (66), 7. Punjab (62),8. Assam (62), 9. Andhra Pradesh (60), 10. Bihar (54), 11. Orissa'(48), 12. Madhya Pradesh (47), 13. U.P. (45),14. Jammu and Kashmir '(45) and 15. Rajasthan (42). Similarly, in the age-group of 11-14 the States show equally large variations. The most progressive State is Kerala (50) and the most backward is Orissa (8) In order of advance, the States can be arranged as follows: 1. Kerala (50), 2. Madras (30). 3. Maharashtra (29), 4. Punjab (28), 5. Jammu and Kashmir (28), 6. Assam (27), 7. Gujarat (27), 8.Mysore (24), 9; West Bengal (21), 10. Bihar (19), 11. U.P. (19), 12. Madhya Pradesh 16), 13. Andhra Pradesh (16), 14. Rajasthan (15), and 15. Orissa (8). it is obvious that it is not in the national interest to permit such wide variations in primary education. The maintenance of an equitable development in the field of essential social services in all parts of the countries a fundamental requisite of a welfare state and an indispensable elemen, for national emotional integration. It is, therefore, a special responsibility of the Government of India to see that the development of primary education takes place more equitably in future.

2. How is this equitable development to be brought about is the next question? It is not possible to hold up further advance of the progressive States until the backward States catch up with them; nor is it practicable to provide for the same rate of progress in all areas. The only thing that can be done is to provide for a minimum level of development which

* Shri Mathur did not forward any note on the item.

* * The figures within the brackets show the percentages of enrolment in classes I-V or VI-VIII to the total population in the age group of 6-11 or 11-14.

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shall be reached in every part of the country and then leave it to each State to advance ahead, if possible, with the help of its local resources. For implementing a policy of this type, special financial assistance from the Centre to the comparatively backward States is held to be justifiable.

3. The first Finance Commission did recommend a special grant- in-aid for the development of primary education in those States where it was particularly undeveloped. This policy was reversed by the second Finance commission which discontinued the grant-in-aid. The view of the second Finance Commission was that it is not necessary to give grants for special purposes like the development of primary education. Its opinion on this subject is very important and is quoted below for ready reference;

65. "Another consideration, which weighed with the previous Commission, is the function of grants-in-aid in reducing inequalities in the standards of basic social services in the States. We recognise that maintenance of certain important services at a minimum national level may justify giving special grants-in-aid. Since total resources are limited, this can be achieved only by stages. We have taken the view that it is the function of the Planning Commission and the National Dcvelopment Council to ensure the equalisation, as far as practicable, of the standard of essential social services in the various States of the Union. To the extent that plan expenditure incurred on raising the level of social services has become committed expendi- ture, we have taken it into account. For our scheme of devolution. we have accepted the plan as ensuring an equitable development in the field of social services. There is, therefore, now no room for any grants in this field, such as the grant for expansion of primary education recommended by the last Commission.

66. The principles of grants-in-aid, which we recommended, are as follows:

(i) The eligibility of a State to grants-in-aid and the amount of such aid should depend upon its fiscal need in a comprehensive sense. In a Union, in which the Centre and the States co-operate for planned development, grants-in-aid should subserve this end. Priorities and provisions in the plan itself should determine the fiscal needs for development for the period of the plan.

(ii) The gap between the ordinary revenue of a State and its normal inescapable expenditure should, as far as possible, be met by sharing of taxes. Grants-in-aid should be largely a residuary form of assistance given in the form of general and unconditional grants.

(iii) Grants for broad purposes may also be given. While they last, they should be grants-in-aid of revenues, but the States would be under an obligation to spend the whole amount in furtherance of the broad purposes indicated. Where these purposes are provided for in a comprehensive plan, there will be no scope for such grants."

It will be seen that the second Finance Commission has recommen- ded that "it is the function of the Planning Commission and the National

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Development Council to ensure the equalisation, as far as practicable, of the standard of essential services in the various States of the Union." It has also suggested that both the eligibility for and amount of Central aid should be based, not on the consideration of individual or separate items, but on "Fiscal need in a comprehensive sense." In the Third Plan, these principles have been acted upon. In considering the amount of Central assistance to be given, account has been taken not only of the backwardness in primary education but backwardness on other fields as well and also of the needs of major developmental projects. In other words, the basis of Central aid has been "Fiscal need in a camprehensive sense" as suggested in paragraph 66 (i) of the report of the second Finance Commission.

4. It is understood that the question of reinstating the special grant for the development of primary education (which was made by the first Finance Commission and discontinued by the second Finance Commission) has also been raised before the third Finance Commission by some State Governments. The report of this Commission, however, has not yet been submitted.

Appendix D (Contd.)

MEMORANDUM

ON

Item No 6 (b)Review of the target for enrolment in primary schools for the Third Plan and provision of more funds to meet the increasing demand for appointment of more teachers resulting from enrolment drive and mass desire for education.

(Government of Gujarat and Orissa)

REVIEW OF TARGET FOR ENROLMENT IN PRIMARY

SCHOOLS FOR THE THIRD FIVE YEAR PLAN

(Government of Gujarat)

As a part of Third Five-Year Plan a target of enrolment of 80 percent of children in the age group 6 to 11 in our primary schools has been fixed. In order to achieve the national targets; attempts have to be made in some of the States to achieve 100 percent enrolment in this age group. For doing so special efforts have been undertaken in almost all the States under the guidance of the Ministry of Education. Meetings, conferences, etc, at all levels including the village taluka, district and the state levels have been organised. The result has been that there is a great rush for enrolment into primary schools. This rush has increased all the more because in most of the States education at the primary level is free. The result has been that the pressure for admission into primary schools is much greater than what had been anticipated. The target of 80 percent enrolment was to be achieved by the end of the Third Five-Year Plan. At the same time it is not possible to refuse the demand

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for admission to children. It is, therefore, the experience of this, State and must be the same with most of the States that it is not possible. to cope up with the rush for admission in primary schools. It is, therefore, suggested that the Central Advisory Board of Education may review the position and consider whether the target of 100 percent enrolment for the age group 6-11 cannot be achieved before the-end of the Third Five Year Plan. Here it may be mentioned that as a result of increased enrolment in the lower age-group i.e. 6-11, the number of pupils in higher agegroup namely 11-14 will also go up. Considering the demand for admission to primary schools and the great hunger of the people for education, it is necessary that the target be revised and additional financial resources be found to meet the requirements.

PROVISION OF MORE TEACHERS AND FUNDS TO MEET

THE INCREASING DEMAND FOR APPOINTMENT OF

MORE TEACHERS IN PRIMARY SCHOOLS DUE

TO ENROLMENT DRIVES

(Government of Orissa)

Enrolment Drives have proved very successful in bringing to primary schools large numbers of non-attending children. For a back ward State like Orissa with a low percentage of enrolment, Organisation of such Drives is found to be one of the most effective measures of achieving the Third Plan target of 70 percent enrolment. If the Drive is intensively carried on and the strength of children enrolled is maintained, it may be possible to arrive at the target much earlier than 1965-66, so that the achievement at the end of the Third Plan would be higher than 70 percent enrolment target

2. To retain the children enrolled by special efforts during the Drive, it is necessary to provide teachers in adequate numbers. Almost every parent is associated with the Organisation of the Enrolment Drive and naturally there is a public demand that teachers should be appointed in proportion to the number of children enrolled during the Drive. Failure to appoint teachers in required numbers would result not only in a heavy. drop in enrolment figures but also in damping public enthusiasm for the expansion of primary education.

3. There is a provision for the appointment of twelve thousand primary school teachers in the Third Plan. This provision was based upon the estimated enrolment of sixteen lakhs by the end of 1965-66. But, in view-of the increase-in enrolment on account of Enrolment Drives, the enrolment target would undergo a substantial increase. The rollstrength in the primary schools was 8.93 lakhs before the commencement of the Enrolment Drive in 1960-61. As a result of the Drive, 4.75 lakhs more students were enrolled and the enrolment figure stood at 13.63 lakhs. There were about 30,000 teachers prior to the- Drive so that the average teachers-pupil ratio was about 1:30. With 3,500 teachers appointed during 1960-61, the total number of teachers rose to 33,500, slid the teacher-pupil ratio after the Drive was 1:41. Considering the large

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number of single-teacher primary schools in the backwarad creas of the State with a roll strength of 15-22 in each, the over-all average of 1:41 would imply that in a large number of schools the ratio was too high, in some cases being as high as 1:70. This resulted in a big drop of enrolment: The enrolment figure 13'68 lakhs on 1-6-1960 dropped down to 12-22 lakhs on 31.12.66 within a period of 7 months. The inadequacy of the number of teachers appointed was greatly felt and there was demand for the appointment of more teachers from all quarters.

4 The Third Plan allocations for appointment of Primary school teachers are based on estimates of normally_ anticipated enrolment and therefore would fall short of actual requirements necessary for the consolidation of the results of annual Enrolment Drive. Therefore 3,000 more teachers may be provided during the Third Five Year Plan period in addition to the existing provision for 12,000 teachers. The financial and physical target would be as given below:

         
        Physical 
        Target.   1961-62   1962-63   1963-64   1964-65   1965-66      Total
        
        No. of
        teachers.     500       750       750       500       500      3,000
        
        Financial
        Target.      1.56      9.38     16.43      21.90    26.58      75.85
        
        
                                          

(Figures in lakhs of rupees)

Appendix D- (contd.)

MEMORANDUM

ON

Item No. 6 (c) To reiew the provisions and programmes of girls education for taking additional steps to expand specif- icaly those facilities which aim at increasintg the supply of women teachers in rural areas.

NEED FOR WOMEN TEACHERS

(Ministry of Education and Government of Bihar)

The Third Five Year Plan aims at total additional enrolment of 204 lakhs of children in primary, middle and secondary schools. Of these at the middle stage and 4.68 at the secondary stage. This practically implies about 103 lakhs will be girls 85.55 lakhs at the primary state, 12.82 at the middle stage and 4.68 at the secondary stage. This practically implies the doubling of the existing enrolment of girls.

It is obvious that massive effortt; will be needed throughput the country to realise these targets and more Specially so in those States where the education of girls is lagging seriously behind.

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One effective method to meet this challange will be to increase the number of woman teachers. Woman are needed as teachers in boys schools also. But even if it is meant to provide women teachers for the additional enrolment of girls only, we will need nearly 2,65,000 women teachers. Such a target cannot be reached unless specific and large-scale measures are taken to increase the number of women teachers.

I. Existing Provisions in the Third Plan

(a) The National Council for Women's Education had made a number of specific proposals for increase increasing the number of woman teachers, which the C.A.B.E. and the Educational Ministry had also endoursed. In spite of this, the provisions made for these schemes in the State Plans are very inadequate. In a total provision of Rs. 408 crores, the provision for these schemes is only Rs. 520,98,000 as indicated below * :

        
                             States and Union Territories  
        
             1.   Quarters for Woman 
                  Teachers                                     351,00,000
        
             2.   Condensed Courses 
                  for Adults                                    18,43,000
        
             3.   Stipends to Women 
                  Teachers                                       8,62,000
        
             4.   Village Allowance for
                  Woman Teachers                               113,88,000
        
             5.   Continuation Classes                          29,05,000
        
                                          
                                          

        
                                      Total                    520,98,000 
        
                                          

        
                                          

(b) The State Governments have also been requested to increase training facilities for women by opening new institutions for the training of woman teachers, increasing the intake of existing institutions, attaching training sections to secondary schools, pre- selection of trainees at the secondary stage, provision of part-time training, grant of financial assistance to girls from rural areas to become teachers, etc. but more none of the States has taken up any of these schemes on a sufficiently large scale to meet the need.

(c) A recommendation has also been made by the National Council that, in the general programme for employing training teachers, the targets for women teachers should be clearly laid down as in the case of enrolment of girls so that the problem may not be relegated to the background. This has yet to be taken up by the State Governments.

* In addition to these, the Central Social Welfare Board has made a provision of Rs. 1.5 crores for Condensed Courses for adult woman which is an important scheme for the preparation of woman teachers for rural areas.

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II: Supplementary Proposals for the Third Plan

It will thus be only too obvious that, with programmes and provisions as actually made in the Third Plan, the targets in the enrolment of girls would not be achieved. It is, therefore, necessary immediately to review the programmes and provisions for girls' edu- cation now included in the Plan and to undertake supplementary schemes or to increase the financial allocations in order to achieve the targets set down.