VII. SOCIAL EDUCATION IN THE FOURTH PLAN
Introduction 1. Widespread illiteracy is a real handicap in the way of both economic and social development. Owing to a variety of reasons, the programme of the liquidation of illiteracy has not been adequately attended to in the past and has led to various problems. Though literacy* increased from 17% in 1951 to 24% in 1961 and is expected to have increased to about 33% in 1968-69, the number of illiterates also increased from 298 million in 1951 to 334 million in 1961 and is expected to increase to 349 million in 1968-69, due to the increase in population. In 1960-61, the literacy percentage in the age-group 15- 44, which constitutes the working force, and is very important from the point of view of the production capacity of the country both in industrial and agricultural sectors, was 30.6. The number of illiterates in this age-group was 131 million. It is estimated that in 1968-69, out of the total population of about 230 million in this age-group 150 million would be illiterate.
Causes of Slow Rate of Literacy 2. The main reasons for the slow rate of literacy in India is the inadequate provision for compulsory primary education facilities and the huge problem of wastage and stagnation. The other reason for retarding the growth of literacy is the inadequate support given to it in terms of finances and low priority given to it in the development plans. In 1950-51, the expenditure incurred on social education was Rs. 8.56 million (0.6 per cent of the total educational expenditure of Rs. 1,440 million). In 1965-66, the expenditure incurred on social education was Rs. 12.00 million (0.2 per cent of the total educational expenditure of Rs. 6,000 million). While the total, expenditure on education during the period 1951-66 increased about four times, the expenditure on social education increased only by one and a half times. This means that, in educational development programmes, adult literacy and social education have been given the lowest priority. Thus, for instance, while the proportion of expenditure incurred on social and adult education to the total educational development programmes in the First Plan was 3.3, it was reduced to 1. 5 in the Second Plan and to 0. 5 in the Third Plan. Even in the literacy classes, conducted in the country, the main emphasis is on reading and writing without any due regard being given to the functional aspects of literacy programme. There has also been a lack of coordination between various departments in organising literacy programmes. The educational administrators and planners have not felt the need for linking adult education and
*Percentage refers to total population. The criterion for literacy as indicated in the Census of 1961 is explained below :
"The test for literacy in the Census of 1961 was satisfied if a person could with understanding, both read and write. The test for reading was ability to read any simple letter either in print or in manuscript. If the person could read one of the examples in the enumerator's handbook with facility, he was taken to have passed the test for reading, the test for writing was ability to write a simple letter. To qualify for literacy, a Person was not required to pass any standard examination. On the other hand, literacy was, recognised as something a man still possessed and actively put to use and it was in this general practical sense that it was uniformly applied. The results are thus comparable from area to area. If a person could both read and write and had also passed a written examination or examinations as proof of an educational standard attained, the highest examination passed was to be recorded." -Census of India-1961, Vol. I, page XIV.
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adult literacy with economic development with the result that the priority given even in overall planning and educational development has been very low.
The educational administrators have been adopting the conventional and orthodox methods without creating any motivation among the adults or mobilising voluntary public and political support for developing the programmes.
Approach 3. Within the span of the next five years, it would be an impossible task to take up the programme of the eradication of illiteracy among 150 million adults in the age-group of 15-44 . The strategy may be to take up this programme in a modest way by concentrating on the most sensitive age-group of 15-24, where the number of illiterates is estimated to be about 60 million. It may not, however, be desirable to neglect the other age-groups particularly the illiterates in the age-group 25-44, who form the majority of the leaders in the villages at present. Further, in the Fourth Plan, social education which in its comprehensive sense, includes besides literacy, the health, recreation and home life of the adults, their economic life and citizenship training would largely centre around functional literacy which can be achieved in two stages. While financial resources for adult education will have to be found, for other programmes, there is no need for expenditure but of organisation. The organisations which can take care of such programmes will have to be identified.
First Stage of Adult Education 4. The first stage of adult education may be in the form of a mass movement largely dependent on the mobilisation of local resources, both of personnel and finance. This again can be taken up by (a) educational institutions in neighbouring villages and towns and cities, and (b) non-student educated youth and other social workers in compact areas.
Literacy by Educational Institutions through Adoption Programmes (a) Students, teachers, members of professional classes, educated people, etc. can be an important asset in this movement. Here the cooperation of secondary students and that of college students through the programme of National Social Service, which has already been accepted for implementation, can be obtained. Every educational institution may be required to run literacy classes regularly and be given responsibility for liquidating illiteracy in a specified neighbouring area, the size of which may be determined by the size of the staff and the number of students available for literacy work.
Literacy Campaigns in Selected Areas (b) Towards the end of the Third Plan, Adult literacy pilot projects were implemented, as an advance action programme, to take up a massive programme of adult education in the Fourth Plan. The results of the projects implemented have indicated that public cooperation in imparting literacy has been coming forth, though there would be need for some incentive awards and transportation charges etc. to encourage workers to take up this work. In 1968-69, these pilot projects are being taken up in more States. In the course of the Fourth Plan, literacy on the lines of these projects will be taken lip in compact areas in selected blocks. A small area of manageable size, whether a large village or a panchayat samity block can be taken in hand for concentrated effort, with the object of making every adult, especially in the age-group 15-24 literate. Literacy programmes amongst adults will be organised
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wherever there is necessary atmosphere and local enthusiasm. The first phase may be largely on a campaign basis with the added condition that the follow-up for taking the neo-literates up to the functional standard would immediately follow without leaving any gap between the two.
5. The main effort under these twin programmes would be to provide the first stage of literacy to 10 million illiterates in the rural areas, especially in the age-group 15-24, whose total number is about 60 million. In addition 5 lakh illiterates will be covered in the hilly and tribal areas.
6. The second stage would include a regular and systematic education of those who are identified at the first stage, both in rural and urban areas, as being capable of putting in serious effort.
Functional Literacy in Rural Areas (a) A start has already been made in giving functional literacy in the rural areas covered by the high-yielding variety projects. The number of such projects may have to be increased. The functional literacy projects will be taken up in high-yielding variety areas, in conjunction with rural industries projects and other similar projects in different States. The functional literacy programme will need a paid teacher on a part-time basis and a proper library containing suitable follow-up literature. This entire programme may be financed jointly by the State and the local community. It is proposed to cover 11 million illiterate adults, mostly in the age-group 15-24 under this programme.
Functional Literacy in Urban and Industrial Areas (b) Programmes of adult education will have to be developed in industrial and commercial undertakings-public and private-Government offices, etc. In fact the State and Central Governments should give a directive to their offices and public sector undertakings to make their workers literate. It should be possible to make about 5 lakh persons literate under this programme.
(c) The development of adult education, especially in industrial areas, has been strongly recommended by the Planning Commission COPP Team on Literacy among Industrial Workers and by the Education Commission. The success of the programme of literacy will largely depend upon how major occupational groups can be identified and effective literature of a functional character produced for them. In the case of large organised, identifiable groups like industries, large farms, government offices etc., it may be the responsibility of the employer to provide literacy and social education to these workers.
Further Education for Industrial Workers 7. In addition to these programmes, corporations, other local bodies and institutions may also arrange adult education programmes for slum areas. About 2 million adults may be covered under this programme. Industrial plants, both in the public and private sector, may take the lead in organising classes for workers and encouraging them to go in for various examinations. In view of the important role which the working classes play in improving production, their education may not be allowed to end after they have become functionally literate. The main function of these programmes may be to equip an increasing number of workers with higher technical and vocational qualification so that they can rise to positions of responsibility in the industry.
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Selected Literacy Projects 8. A number of experimental projects, viz., Vidyapeeths, janta Colleges, workers social education institutes, polyvalent centres, continuation classes for adults, extension departments, correspondence courses etc. initiated earlier have, in certain cases, done commendable work and have proved their worth. To promote these activities on a large scale in various parts of the country, assistance may be given to the State Governments and voluntary organisations for taking up such projects. In the Fourth Plan, voluntary organisations should be given all encouragement to realise their full potential for work in the field of adult education, where they have many advantages over official agencies.
9. The universities have an important part to play in extra- mural and extension lectures, taking up literacy and adult education classes, conducting researches and studies, organising pilot projects, correspondence courses, training of key personnel, etc. For organising such activities, the universities should be helped in setting up departments of adult education.
Training of Literacy Workers 10. Attention would also be paid to the training of literacy workers. The training of workers for carrying out literacy work may have to be organised on a big scale. The training may be short and intensive both for salaried and voluntary workers.
Library Services 11. The other problem is that of organising library service. There will have to be an extensive net work of libraries covering the whole country, at all levels, manned by properly trained librarians. School libraries may be integrated with the system of public libraries. Libraries will need reorientation in order to function as media of adult education. They may need to be stocked with reading materials, which will lead the neo-literates step by step from simple but interesting reading to more advanced books giving information of value to them.
Book Production 12. Before the programme of literacy is taken up, in a big way, it may be necessary to organise a large number of workshops in different parts of the country (in every linguistic area) for training writers of suitable books for the neo-literatcs. This reading material may be required in enormous quantity if the follow-up is to be effective and is to have relevance to the life and social needs of those people. Besides, the business of book production for the use of the masses of the people may have to be undertaken on a big scale. This will call for a, considerable amount of specialised skill, resourcefulness and organisation. It may be necessary not only to ensure the production of the right type of reading material but also in the practical aspects of the scheme, quality of printing, efficient organisation in production and distribution of books and other printed material. The literature provided by various technical departments centring round various development programmes may have to be suitably processed by the Education Departments in order to suit the mental equipment of adults. The literature will have to be life centred and in this connection the role of wall news paper cannot be over- emphasised. Some of the talks meant for rural listeners can also be given in the form of suitable lessons to be used in literacy classes.
Literacy and Mass Media 13. Modern means and scientific aids may be pressed into service in support of the campaign of literacy and also other adult education programmes
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to make them attractive and more effective. Audio-visual aids, radio listening, preparation and exhibition of special films, even the use of television and other media of mass communication may be tried to the extent financial resources permit. To a large extent funds for organising these programmes are already provided in the budgets of the Department of Information and Broadcasting.
Literacy Administration 14. Taking up the various programmes of adult education, as detailed above, would mean considerable work load on the staff in the States. To strengthen the State Departments of Education at the district, block and village levels, and also at the headquarters, additional technical staff may have to be appointed. The adult education programme will need the closest collaboration and cooperation of various governmental authorities, ministries and departments as also between official and non-official organisations. State Boards of Adult Education may have to be set up to provide the necessary inter-departmental coordination, to organise programmes like the initial phase of literacy, functional literacy, obtaining non-official support from all possible sectors etc.
Targets of Literacy 15. Adult education programmes are generally informal. They have a large variety and standards of courses. They can be as numerous as the groups and sections of the community which they would serve. The basic idea would be to provide facilities, opportunities and means for them to acquire knowledge, and in their functions as citizens. A big and nation-wide programme of adult education organising the movement, preparing the materials, training personnel and a number of other requisites, requires time. It would be possible to achieve full literacy in various areas, at different times, depending upon the stage of educational development in area, the degree of public cooperation and the efficiency of organisation. Any postponement of the date of ilquidation of illiteracy beyond the period of 10 to 15 years may aggravate the problem. In 1968-69 it is estimated that, out of the total population of 230 million in the age- group 15-44, the number of literates may be 80 million or about 35 per cent. In the age-group 15-24, out of the total population of 100 million the number of literates may be about 45 million or about 45 per cent. The objective, therefore, may be that, it should be possible, by providing literacy to about 35 million adults under various programmes, to raise the percentage of literacy in the age- group 15-24 from about 45 in 1968-69 to 66 by 1973-74. In the age- group 15-44 by 1973-74 the percentage of literates is expected to be about 45 or so.
Outlays for Adult Education 16. For various programmes relating to adult education, a provision of Rs. 40 crore will be required as detailed in the Statement enclosed. The appendices enclosed with this note indicate the norms of costs of some of the important programmes.
Popular Leadership and Literacy 17. Motivation for literacy and retention of literacy once imparted are two important problems which need the urgent attention of educational administrators. Adult education programmes can be successful if it is ensured
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that there is follow-up in terms of the provision of reading materials through a net-work of libraries. The Fourth Plan makes provision for the follow-up materials adequately. As far as motivation is concerned, in a democratic setup it will depend on the level of political and popular leadership and the enthusiasm which can be generated by treating literacy as a national programme. The Education Commision have observed that the responsibility for initiating a massive movement to combat illiteracy goes beyond the capacity of the administrative and educational system so that it rests squarely upon the political and social leadership of the country. This is more true now than ever.
STATEMENT Adult education in the Fourth Plan-List of Schemes,
Provisions and' Targets
Sl. Name of the Scheme Physical Financial Details
No. Targets Outlays about Norms
(Rs. in and Costs.
crores)
1 2 3 4 5
1 First stage of literacy 15 million 6.00 Appendix I
in rural areas
2 First stage of literacy
in tribal, hilly, border,
denotified areas 1/2 million 0.40 Appendix II
3 Functional literacy in
rural areas including high
yielding variety areas 10 million 14.00 Appendix III
4 Literacy in urban and
industrial areas 2 million 2.00 Appendix IV
5 Establishment of block
libraries 1,200 6.30
6 Strengthening of existing
block libraries 175 0.43 Appendix V
7 Village circulating libraries .. 4.07 Appendix VI
8 General reading material for
neoliterates 5 crores booklets 3.00 Appendix VII
9 Training of librarians 0.10
10 Training of literacy
teachers, workers, and key
personnel 0.10
11 Exprimental Project (Workers'
Social Education Institutes,
Vidyapeeths, Extra-mural lect-
ures, polyvalent centres) 0.20
12 Assistance to voluntary
organisations 5 million litera- 3.00
tes.
13 Production of literature
for neoliterates and for neo-
reading public (Department of
Adult Education of NCERT) .. * ..
14 Strengthening of literacy
administration .. 0.10 ..
15 Departments of Adult Edu-
cation in Universities .. 0.30 ..
TOTAL .. 40.00 ..
*To be provided under NCERT.
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APPENDIX I
FIRST STAGE OF LITERACY IN RURAL AREAS
The per capita expenditure from Government sources on the first
stage of literacy for a period of 4 months was earliar estimated to be
about Re. 1.00 with the break-up shown in table below :
Table : cost per capita-Initial Literacy
Sl. A ticles etc. No. Approxi-
No. mate
Price
1 2 3 4
1 Primer................... 1 0.50
2 Chart for a Group upto 30
members @ Rs. 1. 50 per chart
Share per adult 1 0.05
3 Progress record book @ 0. 90
Share per adult 1 0.03
4 Teachers' Guide @ Rs. 1. 40
Share per adult. 1 0.04
5 Note-books @ 0. 19 2 0.38
TOTAL 1.00
It was assumed that the community, Panchayat samities, etc. will bear the cost of slate, pencils, kerosene oil, etc. which would roughly amount to Re. 1.00. For calculation purposes, this expenditure was let out earlier on the assumption that this will be the share of the community on the lines of the Gram Shikshan Mohim of Maharashtra. The Conference of Adult Education officers convened in 1966 by the Ministry of Education was, however, of the view that this was a very low estimate. It was thought that though no regular remuz neration would be given to social workers, etc. for conducting literacy classes, there would be need for giving incentive awards, transportation charges, etc. in some form or the other. Further, the cost of materials. and kerosene oil had also gone up. They were, therefore, of the view that the cost per capita from Government sources, for the initial phase of literacy, should be assumed to be Rs. 4.
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APPENDIX II
FIRST STAGE OF LITERACY IN TRIBAL, HILLY, BORDER, DENOTIFIED
AREAS For the backward, hilly and tribal, denotified areas etc. where it would not be possible to enlist public support for making adults literate through voluntary workers etc., the cost per capita for period of 4 months would be about Rs. 8 with the break-up between different items as shown in Table below .-
Table : Cost per capita-Initial Literacy in Tribal, Hilly, Denotified Areas.
Sl. Teachers/articles Appro-
No. ximate
Cost
1 2 3
Rs.
1 Teacher
Rs. 20 per month for four months and for
30 adults 80.00
2 Lanterns
6 @ Rs. 8/- lasting 4 years 6.00
6x8
-------
4x2
3 Kerosene oil
@ Rs. 10/- per month 40.00
Rs. 10 x 4 months
4 Primers
@ Re. 1/- 30 x 1 30.00
5 Note Books and Pencils
@ Re. 1/- 30 x 1 30.00
6 Slates Rs.1/- x 30. x 1 30.00
7 Teachers' kit 4.00
8 Contingencies
Rs. 5 x 4 months 20.00
TOTAL FOR 30 ADULTS 240.00
Cost per adult 8.00
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APPENDIX III
FUNCTIONAL LITERACY