PROGRAMME OF ACTION (1992),
 EXTRACTS FORM CHAPTER ON
 MANAGEMENT OF EDUCATION
 

I.EDUCATIONAL MANAGEMENT SYSTEM

23.1.1 The National Policy on Education (NPE) is comprehensive and envisages wide-ranging action on a variety of issues and problems. Yet it seeks a convergence of such action to secure a total and coordinated impact. It also reaches beyond the education sector to link effectively with other sectors of social development to achieve quick and positive results.

23.1.2 The task of ensuring effective implementation of the NPE rests on the education management system. Flexible and relevant management structures and organisations, processes and procedures are needed all along the line to secure the detailed planning and implementation of the Programme of Action (POA).

23.1.3 Education in India has been largely a budget-based system where efficiency is rated by ability to "consume" budget and to demand more. Performance at delivery point has not been an important criterion. The on-going economic reforms and structural adjustments would, therefore, demand a shift from inputs to performance and outcomes - consideration of cost effectiveness should inform all levels of educational administration and planning.

23.1.4 Absence of effective decentralisation, failure to evolve priorities and pursue objective-oriented programmes, weak personnel management system, and ineffective intra-departmental and inter- departmental coordinating mechanisms have adversely affected the performance of the education system. Even routine tasks like the supply of text-books, conduct of examinations and operation of academic calendar are not being properly attended to. The highest priority in POA should be to ensure that these routine tasks are performed properly and that the delivery of education services improves at all levels.

23.1.5 Soon after adoption of POA 1986, the Central Advisory Board of Education (CABE) had constituted committees to recommend measures for toning up educational management. These committees prepared draft reports for pursuing action with the states and other authorities concerned. However, due to frequent political changes, action could not be pursued on many of these initiatives. It is now necessary to resume action and pursue these objectives vigorously.

23.1.6 This chapter covers only management issues which cover the entire field of education and those which cover more than one sub- sector of education.

2. DECENTRALISATION AND INVOLVEMENT OF PEOPLE

23.2.1 The NPE and POA have emphasised the importance of decentralising planning and management of education at all levels and involving people in the process. Decentralization implies democratic participation by elected representatives of people in decision making at the district, sub-district and Panchayat levels. In pursuance of the POA provision the State Governments have been taking steps to set up structures for decentralised planning and management. The future course of decentralisation would be influenced to a great extent by the proposed Constitution Amendment (Seventy-second) Bill, 1991; they would have to be finalised after the Bill is enacted.

(a) The Constitution (Seventy-second) Amendment Bill, 1991

23.3.1 The Constitution (Seventy-second) Amendment Bill of 1991 on Panchayati Raj institutions envisages introduction of democratically elected bodies at the district, sub-district and panchayat levels. These bodies will be responsible for the preparation of plans for the economic development and social justice. The Bill provides for representation of women, scheduled castes and scheduled tribes.

23.3.2 The proposed Eleventh Schedule of the Constitution provides, among other things, for entrusting to Panchayati Raj bodies of :

" Education including primary and secondary schools, technical training and vocational education, adult and non-formal education, libraries, and cultural activities".

The subjects closely allied to education, namely, health, welfare, women and child development are also to be entrusted to the Panchayati Raj bodies.

(b) State Legislation

23.3.3 The Panchayati Raj Bill is an enabling legislation. The states are to frame their own legislation in their turn. The states would need to draw up appropriate legislations which, among other things, must provide for Panchayati Raj Committees for Education.

(c) District Level Body

23.3.4 Within this legislation a district-level body may be setup with the responsibility for implementation of all educational programmes including non-formal and adult education, and school education up to the higher secondary level. The district body will provide for representation of educationists, women, youth, representatives of parents, scheduled castes/ scheduled tribes, minorities and appropriate institutions in the district. Representation may also be provided for urban bodies and cantonments which organise educational activities. The district body will also be vested with the responsibility for planning which would include, inter alia, area development, spatial planning, institutional planning, administrative and financial control and personnel management with respect to primary, middle, secondary and higher secondary schools and other educational programmes. Implementation of different educational programmes at the district level will be supervised at-id monitored by the body. The district educational plans will also go into the levels of participation and retention of boys and girls under different age- groups by socio-cultural and economic categories, particularly SC & ST, and plan for measures for ensuring physical infrastructure, equitable access as well as qualitative aspects of education.

23.3.5 In order that the district body discharges the functions allotted, it would be necessary to assign state funds for implementation of the various programmes. Provision will also be made to enable the district body to raise its own resources. Funds, which are not earmarked, will also be placed at its disposal so that these resources can be used for any purpose that may be considered essential by raising matching funds of its own.

23.3.6 The relationship of the State Government with the district level body in terms of administrative and financial control and personnel management will be clearly spelt out in appropriate guide lines to be issued by the State Governments. It will also be necessary to clarify the levels of recruitment and structure of cadres of teachers of different categories.

23.3.7 There will be a Chief Education Officer for the District to look after all levels of schools, adult and non-formal education. Under him, there will be a District Education Officer looking after establishment, budgeting, planning and the educational data base. In addition, there will be district-level officials of appropriate rank engaged in specific educational

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programmes. The Chief Education Officer will be the principal education officer of the district body.

23.3.8 The district body will draw upon the expertise of the District Institute of Education and Training (DIET), and other institutions for substantive curricular and pedagogic inputs into all programmes of elementary education, non-formal education and adult education at the district level. It may also seek the support of institutions of higher education in the district.

23.3.9 In states and areas where the Constitution (Seventy-second) Amendment Bill, 1991 will not apply, such bodies on similar lines may be set up at district level.

(d) Village Education Committee

23.3.10 Under the Constitution Amendment Bill, Panchayats will be formed for a village or a group of villages. The Panchayat will have elected representatives. Besides, each Panchayat may constitute a Village Education Committee (VEC) which would be responsible for ad- ministration of the delegated programmes in the field of education at the village level. The major responsibility of the VECs should be operationalisation of micro-lovel planning and school mapping in the village through systematic house to house survey and periodic dis- cussion with the parents. It should be the endeavour of the committee that every child in every family participates in the primary education. In these activities they will be provided expert guidance and support by DIET.

23.3.11 The State Governments may consider entrusting the following functions to the VEC: Generation and sustenance of awareness among the village community ensuring participation of all segments of population; and

Developing teacher/instructor and community partnership to oversee and manage the effective and regular functioning of the schools and centres.

In view of the critical role and function of VEC, it should be vested with appropriate statutory and necessary financial and administrative authority.

(e) Model Legislation

23.3.12 It would be necessary for the Ministry of Human Resource Development (MHRD) to prepare, model statutory provisions for the guidance of states when they formulate their legislation under the Panchayati Raj Act. As other sectors such as health, women and child development, social welfare are also involved, MHRD may also consider preparing comprehensive model legislation covering all these areas for achieving coordination. This may be done in collaboration with the concerned Central Ministries/Departments and Planning Commission. The preparation of this model Bill may commence immediately as it will be required by the States when the Constitution Amendment Bill is brought into effect.

(f) Urban Local Bodies

23.3.13 The Constitution Amendment Bill on Urban Local Bodies provides for constitution of Municipal Corporations, Municipal Councils and Nagar Panchayats. The proposed Twelfth Schedule to the Constitution provides for entrusting these bodies with "promotion of cultural, educational and aesthetic aspects". These bodies would be entrusted with appropriate statutory responsibilities with regard to the education sector by an appropriate state legislation.The MHRD may prepare model legislation in this area also for the consideration of the states.

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4. INVOLVEMENT OF VOLUNTARY AND NON-GOVERNMENTAL AGENCIES

23.4.1 The successful implementation of programmes like elementary education including non-formal education, early child-hood care and education, adult education, education of the disabled, etc. will require people's involvement at the grass-root level and participation of voluntary agencies and social activist groups on a much larger scale. Considering the need for ensuring relationship of genuine partnership between the government and voluntary agencies, the government will take positive steps to promote their wider involvement. Consultations will be held with them from time to time about programmes and procedures for selection of voluntary and nongovernmental agencies. The procedures for financial assistance will be streamlined to enable them to play optimal role.

23.4.2 It would be desirable for the state governments to develop specific action plan for entrusting selected programmes of educational development to voluntary agencies and nongovernmental organisations. They could be used to supplement effectively the on-going programmes to enhance their quality and impact. They should be allowed to function in a congenial and supportive atmosphere. It is expected that appropriate indices of accountability in terms of performance would be evolved in consultation with the voluntary organisations and NGOs.

5.ACCOUNTABILITY AND EFFICIENCY

23.5.1 Norms of performance by the different categories of educational personnel and institutions must be prepared by the states. The MHRD may assist them in the preparation of such norms. These should be finalised after due consultation and discussions with the representative groups. Norms which are finalised must be given publicity and the performance should be duly notified. Non-observance of norms must result in disincentives while good performance must receive recognition, incentives and due publicity.

23.5.2 Monitoring of all educational programmes for implementation at the district will take place at the state level and relevant indicators for inter-district comparison will need to be worked out. Suitable incentives may be provided to the districts linked to their achievements. Similar arrangements may be developed for the Block and Panchayat level institutions.

23.5.3 In view of the constraint of resources, cost effectiveness has to be promoted in educational planning and administration at all levels. Financial and administrative norms relating to the educational programmes will need to be evolved and enforced with greater diligence. Mere budgetary concern must be replaced by assessment of efficiency on the basis of carefully developed indices of educational and institutional achievements. Location and estab- lishment of institutions should be planned rationally with due regard to the catchment areas of existing institutions, identification of unserved and underserved areas, and the possibility of expanding facilities in existing institutions. As far as possible facilities should be shared among institutions and extrashifts resorted to in urban areas to provide better utilisation of resources. The chapters on higher Education and Technical Education (chapters 11 and 15) have spelt out some measures in this regard.

23.5.4 All procedures and processes which hamper the functioning of institutions and hold up programme implementation must be reviewed and simplified. For example, migration, conduct and identification certificates and similar other plethora of outmoded practices only hinder programmes of education. Simplified manual of instructions and codes must be evolved to facilitate the proposed reforms in education. Modernization of educational offices will enhance their efficiency.

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6. STRENGTHENING OF EDUCATIONAL PLANNING AND ADMINISTRATION

(a) School and Educational Complexes

23.6.1 School complexes will be promoted as a network of institutions on a flexible pattern to provide synergic alliances to encourage professionalism among teachers, to ensure observance of norms and conduct and to enable the sharing of experiences and facilities. The school complex will serve as the lowest viable unit of area planning and will form a cluster of 8-10 institutions in which different institutions can reinforce each other by exchanging resources, personnel, materials, teaching aids, etc. and using them on a sharing basis.

23.6.2 It is expected that in course of time, school complexes when fully developed, will take over much of the inspection functions including educational mapping, grading of institutions and identifying strength and weakness of individual schools. Inspection to be con- ducted will invoke a culture of participation and providing correctives rather than the existing practice of finding faults. These inspections will be in addition to the normal routine inspection functions of district/block level inspecting authorities.

23.6.3 Guidelines for functioning of school complexes have been prepared and communicated to the State governments. Although a number of states have experimented with the scheme of school complexes, the programme is yet to emerge as a comprehensive and systematically administered one. As the institutional resource endowment varies from place to place, there can be no single model for creation of school complexes. Every state has to evolve its own operational model based on its experiences or by drawing upon experiences of other states. The states may prescribe necessary guidelines for creation and functioning of school complexes and define the nature, mode, type of planning and inspection work to be performed by them. Considering that some of the schools forming part of the complex will be non- government institutions, the State governments may give them necessary assistance to facilitate their participation. It would be desirable that the recommendations regarding the school complex programme are implemented on a state-wise basis during the Eighth Plan period.

23.6.4 At the same time it is desirable to attempt larger networking of institutions in a district in the shape of educational complexes on an experimental basis during the Eighth Plan period. In the educational complex, the networking could be done from the primary to college and university level. The Central Government may develop in the next two years guidelines for organising this on an experimental basis in situations where the atmosphere is congenial for launching such complexes. While developing the educational complexs, support from institutions like DIET, Teacher Education Colleges, ITIs, Polytechnics, particularly Community Polytechnics may also be sought.

(b) Block Level Administration

23.6.5 It is observed that the block-level setup of educational administration is very weak almost all over the country. The supervisors often have little contact with the schools. The routine administrative duties such as collecting statistics, disbursement of salaries, posting and transfers of the staff take up most of their time. The following steps may be taken to improve the functioning of block-level education set up:

(i) Norms, not only on the basis of number of schools but also number of teachers should be evolved through systematic studies so that the block-level education officer may effectively cope with his administrative responsibilities and supervisory functions.

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(ii) Most of the time of block-level education officers is spent on routine administrative work. Their duties may be laid down in detail so that their support for the academic programmes gets due importance.

(c) District Educational Administration

23.6.6 The jurisdiction of a district for the educational purpose may be co-terminus with its revenue jurisdiction. The big districts could be divided into sub-educational districts but these will be coordinated and controlled by a Chief Education Officer (CEO) for the whole district. He will look after all levels of education -- primary, middle secondary and higher secondary, non-formal and adult education. The planning and statistics branch of CEO will be provided with computer facilities for Educational Management Information System (EMIS).