EDUCATION, CULTURE AND SPORTS
GENERAL EDUCATION:
Introduction 11.1 It is now universally acknowledged that the goal of Plan efforts is human development of which human resource development is a neces- sary pre-requisite. Education is the catalytic factor which leads to human resource development which comprises better health and nutri- tion, improved socia-economic opportunities and more congenial and beneficial natural environment for all. There is already enough evi- dence in India to show that high literacy rates, especially high female literacy rates, are associated with low rates of population growth, infant mortality material morality and a higher ate of life expectancy. Although the country has not so far achieved the goals of universalisation of elementary education (UEE) and eradication of adult illiteracy (EAI), the 1991 census results reveal a literacy rate of over 52 per cent, with a higher rate of growth for female literacy. This is highly encouraging and the country can hope to achieve the broader goal of `Education for All' (EFA) by 2000 AD, which has inci- dentally received international recognition at the world conference on EFA held at Jamtien in March, 1990. The commitment of the Government to the National Policy on Education (NPE) announced in 1986, imple- mented from 1986-87 onwards and reviewed in 1990 has been reaffirmed. On the eve of Eighth Plan, therefore, the country is poised to make a real breakthrough in achieving its long-cherished educational goals as well as in supporting the drive for higher rate of economic growth.
PLAN PERFORMANCE REVIEW (1985-92): 11.2 The development of educational in terms of institutions and enrolment from 1984-85 onwards is indicated in the Annexure 11.1.
Elementary Educations: 11.3 The Seventh Plan gave over-riding priority for the realisation of the objective of UEE by 1990. It was estimated that for achieving the goal, over 5 crores additional children would have to be enrolled. By 1991-92, however, about 2.53 crores were actually enrolled in the formal system and even after taking account of 0.72 crores in the non- formal system, the target could not be achieved. At the end of 1991- 92, the gross enrolment at the primary and upper-primary stages is likely to have reached 10.09 crores and 3.44 crores respectively. The details of enrolment at the elementary stage are given in the following table:
Table 11.1
Enrolment in Elementary Education: Additional and Cumulative Achieve-
ment During 1985-92
(Figure in Crores)
Sl. System/Stage 7th Plan Annual Plans Cumulative
No. (1985-90) (1990-91 & Enrolment at
Addnl. 1991-92 the end of
Achivt. Addnl.Achivt. 1991-92
1. Formal: 1.95 0.58 13.53
a) Primary 1.34 0.36 10.09
b) Upper 0.61 0.22 3.44
primary
2.Non-formal: 0.64 0.08 0.72
Total 2.59 0.66 14.25
289
The latest data show that in 1990-91, the gross enrolment ratio (GER) had reached 101.03 per cent at the primary stage and 60.4 per cent at the upper primary stage. Considering that the number of overage and underage children in the GER data was in the range of 16-23 per cent and the dropout rate for primary stage in 1987-88 was 46.97 per cent and for elementary stage as a whole 62.29 per cent, we are clearly far away from the goal of universal enrolment and retention, much less achievement.
11.4 The strategies of the Seventh Plan underwent a change in the middle of the Plan period with the adoption of the NPE in 1986. The new thrust in elementary education emphasized the aspects of: (i) universal enrolment and universal retention, and (ii) substantial improvement in the quality of education. As part of implementation of NPE, the new scheme of `Operation Blackboard' (08) was launched, Besides, the scheme of Non-Formal Education (NPE) was revised and a number of schemes for teacher educa- tion were also taken up. By March, 1992, the scheme of 08 covered about 80 per cent blocks, 49 experimental, innovative, NFE projects were sanctioned, there were 27,342 NFE centres run by 419 voluntary agencies and there were 2.72 lakh State-run NFE centres.
Teacher Education: 11.5 In 1987-88, a Centrally-Sponsored Scheme (CSS) for restructuring and reorganisation of teacher education was started which included the Mass Orientation of School Teachers (MOST), strengthening of Secondary Teacher Education Institutions (STEIs), State Councils of Educational Research and Training (SCERT), setting up of District Institutes of Educational and Training (DIETs) and establishment and strengthening of Institutes of Advanced Studies in Educational (IASE) in Universi- ties. Between 1987-88 and 1991-92, 12.96 lakh teachers were covered under the scheme of MOST and Central assistance was extended to set up 287 DIETs, 12 IASEs. The scheme of strengthening SCERTs did not, however, make headway.
Adult Education: 11.6 The NPE '86 and the Programme of Action (POA) envisaged that the Adult Education Programme (AEP) would cover 4 crore illiterates by 1990 and another 6 crores by 1995. With the launching of the National Literacy Mission (NUM) in 1988, the targets were reformulated and strategies recast. Accordingly, 3 crores illiterates were expected to be covered by 1990 and 5 crores by 1995. While Rural Functional Lit- eracy Programme (RFLP) and post-literacy and covered by 1990 and 5 crores by 1995. While Rural Functional Literacy Programme (RFLP) and post-literacy and teaching-learning process were modified, new strate- gies like area-specific and time-bound approach to achieve 100 per cent total literacy (TL), massive participation of non-governmental organisations (NGOs) and students and effective utilisation of tradi- tional and folk theatre forms in literacy work were evolved. By 1991- 92, the post literacy programme was institutionalised in the form of 32,000 Jan Shikshan Nilayams (JSN). Apart from the introduction of Improved Pace and Content of Learning (IPCL) method which reduced the duration of learning from 500 to 200 hours, technology demonstration programmes were initiated in 42 selected districts. The scheme of Sharmik Vidhyapeeths (SVs) was reviewed suggesting a need for expen- sion. The number of State Resources Centres (SRCs) increased from 19 to 20. A national Institute of Adult Education (NIAE) was set up in January, 1991 to augment the technical and academic resource support to adult education and to undertake quality research and evaluation studies.
11.7 Area-specific and time-bound campaigns for TL first launched town and Ernakulam district in Kerala in 1989 with the active participation of students and voluntary agencies have been extended to other dis- tricts. By March 1992, twenty-five districts had achieved total lit- eracy (in the sense of 85 per cent literacy) and TL campaigns were at different stages of progress in 80 districts in AP, Bihar, Gujarat, Haryana, HP Karnataka, Maharashtra, MP, Orissa, Punjab, Rajasthan, UP and WB covering over 3 crore illiterates with the help of about 30 lakh volunteers.
Secondary Education: 11.8 As part of NPE, new CSSs for vocationalisation of higher second- ary stage, improvement of science education and environmental orienta- tion to school education were started. The new Central schemes of Navodaya Vidyalyas (NVs) and National Open School (NOS) were also initiated. The existing schemes of Integrated Education, Educational Technology and Computer Literacy Studies (CLASS) Project were strengthened.
290
11.9 By the end of 1991-92, about 8.7 per cent of the higher second- ary students (5.85 lakhs) would have been diverted to vocational stream. The Open School affiliated to Central Board of Secondary Education (CBSE) was converted into an autonomous NOS in 1989 and by 1991-92, the total enrolment was in the neighbourhood of 1.50 lakhs. Under the CLASS Project, 2,598 schools were equipped with computers with 60 institutes providing resource support to these schools. As many as 275 NVs designed to provide good quality school education to tented rural children have been established in 29 States/Union Terri- tories. As on march 31, 1991, there were 64,517 students in the NVs and pass percentage of first batch which took Class X examination was 95.77. The National Council of Educational Research and Training (NCERT) brought out the National Curriculum Framework for all stages of education and undertook a massive revision of text books for class- es I-XII on the basis of revised syllabi designed as per the frame- work.
Other Programmes: 11.10 The Central language institutions relating to Hindi, Indian Languages, English, Urdu, Sanskrit and Foreign Languages implemented a variety of schemes relating to training of language teachers, publica- tion of language teaching materials, assistance to voluntary organisa- tion, support for Urdu Calligraphy Centres etc. The National Book Trust (NST) was involved in the work relating to preparation of liter- ated for neo-literates under the NLM and preparation of a Central list of books for the libraries of 5.5 lakhs primary schools under the CB Scheme. The NBT's Nehru Bal Pustakalya and Aden-Praden Schemes have also made a mark. Besides continuing the schemes relating to national scholarships and scholarships for the talented children for the rural areas, in 1988-89 a new scheme for upgradation of merit of SC/ST students through remedial and special coaching was started as part of NPE.
THRUST AREAS OF EIGHTH PLAN: 11.11 Universalisation of elementary education, eradication of illiteracy in the age group of 15 to 35 and strengthening of vocation- al education (VE) so as to relate it to the emerging needs in the urban and rural settings are the major thrust areas of the Eighth Plan in the Education Sector. Utilisation of formal, non-formal and open channels of learning would be the strategy for this purpose. The changed approach, improved methodology of teaching, increased partici- pation of NGOs and student volunteers have infused a new vitality into the literacy programme and have given it a fresh momentum. The aim would be to impart a similar vitality and momentum to the universal primary education programme with a definite edge in its favour. The programmes of AE and UEE are complementary and there are situations where the Elementary Education (EE) programmes may benefit from the spin-off effect of the AE programmes. The improvement in the literacy percentage in the decade 1981-91, after allowing for statistical adjustment due to the exclusion of age group 0 to 6 is as much due to the higher literacy rate of school age cohorts and attrition of old- age cohorts with low level of literacy as to the special efforts on the AE front. The need for according the highest priority to UEE is, therefore, well-established. Within the overall school-age population, the focus would be on girls who account for two-thirds of target and among adults the focus would be on women's literacy which has a beneficial impact on children's literacy as well as other national objectives like population control and family welfare.
11.12 So far as UEE is concerned, the NPE stress on retention, participation and achievement, rather than mere enrolment, would be reinforced. Enrolment data are easily available and enrolment is a pre-condition for any further action. However, special attention would be paid to increase in retention, improvement of quality, specification of minimum levels of learning (MLL) and their attainment by the learners.
11.13 In regard to literacy, the emphasis would be on sustainability of literacy skills gained and on the achievement of goals of remedia- tion, continuation and application of skills to actual living and working conditions.
11.14 In view of the employment orientation of the Plan and the need to establish meaningful linkages between the world of work and the world of learning, VE would be another priority area. This would not be confined to higher secondary stage but permeate the whole arena of secondary education and non-formal education/training. A combination of vocational and academic courses would be offered at secondary stage with open education (OE) as an important channel, preparing the stu- dents for wage employment and self-employment. In the service sector, expansion of health-related courses having courses having a rural orientation would be emphasised. In the rural areas, agro-based and
291
technology-based vocational courses would be developed by combining the strengths of existing institutional structures with OE institu- tions.
Targets: 11.15 It is estimated that additional enrolment to be achieved during the Eighth Plan to reach universalisation is approximately 5.61 crores children. These data are based on the assumption of 15 per cent incidence of overage/underage phenomenon both at the primary and the upper primary stages. Enrolment of about 4.38 crores would be achieved through formal schools, about 1 crore through non-formal centres and the rest through the open learning channel of upper-primary stage. These targets are much higher compared with Seventh Plan achievement. They are, however, within the realm of possibility if the requisite will and mobilisation of organisational and financial resources are brought to bear on the task and innovative schemes like voluntary primary schools and OE at the upper primary stage are introduced. The NDC Committee on Literacy recently appointed is expected to give a lead in this regard. Working targets in relation to retention and achievement based on institutional capabilities and consultations with State Governments need to be laid down. The details of enrolment targets are given in Table 11.12 and State-wise targets of formal system in Annexure 11.6.
Table 11.2
Elementary Education: Projected Enrolment for Eighth Plan (1992-97)
(Figure in Crores)
Sl. Stage Popu- Popula- Enrolment Addnl. Popu-
No. lation with achieved lation to be
by 1997 overage/ upto enrolled by
underage 1991-92 1997
children.
Total Female Total Female Total Female Total Female
1 2 3 4 5 6 7 8 9 10
1. Elem.Edn 16.64 8.09 19.14 9.30 13.53 5.54 5.61 3.76
(67%)
a) Primary 10.53 5.12 12.11 5.89 10.09 4.24 2.02 1.65
(I-V) (82%)
b) Upper- 6.11 2.97 7.03 3.41 3.44 1.30 3.59 2.11
Primary
(VI-VIII) (59%)
11.16 According to the 1991 Census, the number of illiterates in all age-groups in 33.6 crores. It is estimated that there will be 11.2 crore illiterates in the 15-35 age group of whom 70 lakhs would have become literate by the end of March, 1992. Thus, the target to be covered during the Eighth Plan will be about 10.5 crores as against the achievement of 2.65 crores during the Seventh Plan. In the context of the emphasis on sustainability of literacy and on continuing educa- tion, suitable targets in this regard need to be laid down after consulting State Governments.
11.17 In the VE, the target is to cover 15-20 per cent of students of higher secondary stage by the end of Eighth Plan.
292
Strategies: 11.18 The main strategy for achieving the targets would be: (a) adoption of the decentralised approach to educational planning and management at all levels through Panchayat Raj (PR) institutions; (b) combining this approach with a convergence model of rural development involving integrated utilisation of all possible resources available at Panchayat, Block and District level for activities relating to elementary education/literacy, child care/development, women's socio- economic empowerment and Rural Health Programmes; (c) large scale participation of voluntary agencies and (d) development of innovative and cost-effective complementary programmes including open learning system (OLS) supported by distance education techniques.
11.19 In specific terms, following measures will be adopted:
(1) The formal school system will be expended and improved.
(2) The non-formal system mainly catering to the needs of children working for wages, children working whole-time in domestic or househ- old duties an children in school-less habitations will be expanded, improved and strengthened in the matter of supply of teaching-learning materials, instructional delivery and achievements.
(3) A voluntary school scheme will be introduced. At present, elemen- tary education is considered a responsibility of State and local bodies. However, there is scope for providing part-time school or non- formal education to a large number of learners who are not able to avail of the facility of formal full-time school or non-formal educa- tion centres. Voluntary agencies would be encouraged in a big way to start non-formal part-time schools, thus catering to the learning needs of urban working children and children in the tribal, hilly and inaccessible areas.
(4) A well-defined open learning system will be developed with a network of educational opportunities relevant to the needs and circum- stances of learners, especially girls, women, SCs/STs, and the poor, the unemployed, and the untrained. The major thrust of OLS would be on the acquisition of life-skills, vocational skills, directly contribut- ing to productivity and inculcation of habits of self-learning.
(5) The MLL with reference to class III, V and VIII will be laid down for improving learning achievement. The educational system will be required to ensure that every child who completes any of these stages of learning reaches the minimum level of achievement. Measures for improving classroom teaching like introduction of a comprehensive evaluation system and a continuous inservice training of teachers will be taken simultaneously. The MLL approach will be decentralised, each planning unit being able to determine its present levels of achieve- ment, adopt appropriate MLLs and define a realistic timeframe within which to achieve the mastery level, through additional efforts and inputs where necessary.
(6) District Boards of Education (DBEs) would be set up. They are conceived as the nodal agency for planning and management of education at the district level comprising formal education, AE, NFE and teacher training, vertically linked to Block/ or Mandal Education Committees and Village Education Committees (VECs) in a decentralised framework.