GUIDING PRINCIPLES
Role of Panchayati Raj 3.1 Education in the country is at a crucial stage of development. Despite phenomenal progress since independence, the objectives of universalisation of elementary education and total literacy still remain elusive goals. The problem of irregular attendance of children and their subsequent drop-out in large numbers continues to be a cause for concern. Another matter for concern is the slow progress in providing education to the disadvantaged sections of population, such as, girls, children belonging to Scheduled Castes, Scheduled Tribes, backward classes and minorities. All these issues pose a serious challenge for the management of education. The Committee recognises that decentralisation of educational management under the institutions of local self-government would ensure active and greater participation of people and their representatives. However, keeping in view the challenging nature of the tasks ahead, the Panchayati Raj/Municipal bodies would require adequate preparation and strengthening before they are called upon to perform the new roles and functions.
Administrative Support 3.2 The Panchayati Raj/Municipal bodies in some of the states are still relatively inexperienced in the tasks of administration. Their members are mostly part-time voluntary workers who are being called upon to shoulder a wide range of complex responsibilities. There is obvious need for capabilty building of elected members of the Panchayati Raj bodies for performing their functions through periodic orientation programmes, and through interaction with political leadership and departmental officers at different levels. With the responsibility for management of educational institutions and programmes, they must be given the necessary administrative and professional support through appropriate departmental structures. The existing departmental and administrative structures of the State at these levels will have to be placed at the disposal of the Panchayati Raj/Municipal bodies. They would also have to be strengthened wherever necessary.
3.3 The administration of educational programmes would require professional support. Hence, the Panchayati Raj/Municipal bodies which are entrusted with specific educational responsibilities should have representation of experts and educationists for providing a professional orientation to their tasks.
Finances 3.4 The finances of the institutions of local self-government constitute the weakest link. While they may become cost-effective with growing experience and confidence, in the initial stage they would require financial and resource support from the State Government and the Centre. The allocations that the Centre and State provide for the different programmes and activities which may be transferred to the Panchayati Raj/Municipal bodies, should be made available in full to these bodies. There would also he a need for additional financial support to make these Institutions viable. At the same time, it is also necessary that the pattern of such financial assistance must result in cost- effectiveness and efficiency, right
from the initial phase. Generation of their own resources should be suitably rewarded with matching grants.
Teaching Community 3.5 Education is a sensitive area. The academic community is the most important constituent of the educational programmes. The Panchayati Raj/Municipal bodies must be sensitised to the need for handling educational cadres with restraint, imagination, sympathy and genuine understanding. The past experience indicates that the teaching community has not always been happy in its interactions with the Panchayati Raj bodies. Issues relating to recruitment and transfers seem to have created misunderstanding between these bodies and teaching community. While the role of Panchayati Raj bodies in ensuring effective and regular functioning of schools is significant, they have to recognise and appreciate the role of teachers. The State would need to lay down clear guidelines with respect to various aspects of personnel management, particularly norms for posting and transfers of teachers.
Professional Support 3.6 While the Panchayati Raj bodies should be able to secure community participation, educational progress would require professional inputs and support. The Panchayati Raj bodies must be enabled to build their links with professional institutions and voluntary organisations and seek their support and assistance in promoting their educational effort". Evaluation of progress, formulation of perspective plans, preparation of innovative schemes, organisation of surveys and such other educational tasks will require professional inputs. The State Departments of Education must assist the Panchayati Raj/Municipal bodies to develop appropriate mechanism for securing professional inputs and support.
Delegation of Functions 3.7 While the Constitution provides for the establishment of Panchayati Raj/Municipal bodies and holding of regular elections as a mandate, it allows discretion to the State legislatures in deciding about the functions and powers to be delegated to these bodies. The composition of these bodies have been left to the discretion of the State Government. While formulating guidelines for the States regarding the composition of various bodies under these institutions, the Committee's proposals are mainly derived from the Constitutional provisions, the National Policy on Education and the Programme of Action. These guidelines are in the nature of a broad framework which has to be elaborated and developed by the States in the light of their varying situations. The proposals of the Committee are intended to facilitate the work of the State Governments in deciding the issues in their own context. Ultimately, the States are free to choose their own structures, determine their own schedules of functions and powers to be delegated to the Panchayati Raj/Municipal bodies keeping in view the spirit underlying the Constitutional Amendments. The Committee is well aware that there can be no single model for all the States. The extent of powers to be entrusted to the Panchayati Raj/Municipal bodies may vary from state to state depending upon their past experience, present perceptions and circumstances and future requirements. The Committee has attempted to make the proposals as comprehensive and detailed as possible so that the States may have an opportunity to assess all the details for their own course of action best suited to their needs and circumstances.
Role of State Governments and other Agencies 3.8 The State Governments, the Departments of Education, professional institutions, voluntary organisations and Panchayati Raj/Municipal bodies must become partners in the
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task of educational reconstruction. The State Governments must provide requisite support, guidance and advice; the education departments must extend professional support and administrative assistance; the professional organisations and voluntary efforts may provide the necessary insights; while the Panchayati Raj/Municipal bodies would secure the community backing and mobilisation. Rival roles and negative responses have no place in these efforts. The ultimate success of Panchayati Raj/Municipal bodies in development of education will depend upon how well the Centre, the States and the Departments provide support and guidance to these bodies for their development along the best lines.
Perspective 3.9 Local self-government is not a new development in our country. Villages in ancient India were very effective instruments of self governance. Even during the British rule, District Boards played a significant role in educational development. Subsequently, the Panchayati Raj movement was launched to accelrate the process of development. While the record of educational management under the Panchayati Raj bodies has been mixed, perhaps for reasons which are largely political, some of the states have shown good results. Recently, some states which have established Panchayati Raj bodies, have reported an encouraging progress. It is increasingly becoming evident that bureaucratic systems are not able to manage the challenges in the field of educational development and the people's participation is seen the world over an essential pre-requisite for achieving the goal of education for all. It is in this context that the Committee perceives the entrustment of educational programmes to institutions of local self-government as a step in the right direction.
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