REPORT OF THE COMMITTEE OF THE CABE (CONDITION OF SERVICE OF TEACHERS) PAMPHLET NO. 36 (1946)

 REPORT OF THE COMMITTEE OF THE
 CENTRAL ADVISORY BOARD OF
 EDUCATION APPOINTED TO CONSIDER
 THE CONDITIONS OF SERVICE (OTHER
 THAN THE REMUNERATION) OF
 TEACHERS.

At their eleventh meeting held at Karachi in January, 1945 the C. A. B. of Education considered further certain matters affecting the conditions of service of teachers at all stages of education, e.g., size of classes, hours of work, holidays, sick leave, etc., and appointed the following Committee to examine and report on the issue :-

Lt.-Col. Dr. J. C. Chatterjee, M.A., D.Litt., M.L.A., Vice-Chancellor. Agra University.

Sir Maurice Gwyer, K.C.B., K.C.S.I., D.C.L., LL.D., Vice-Chancellor, Delhi University.

Dr. V. S. Jha, Ph.D., Officer on Special Duty (Post War Reconstruction), Central Provinces & Berar.

A. S. Khan, Esquire, M.Sc., I.E.S.. Director of Public Instruction, Bihar.

Dr. Mohan Sinha Mehta, M.A.,. Ph.D., LL.B., Bar.-at-Law, Diwan of Banswara.

S. N. Moos, Esquire, C.I.E., M.A., (Cantab.), I.E.S., Director of Public Instruction, Bombay Province..

Mrs. Renuka Ray, B.Sc., Econ. (Lend.), M.L.A.

Dr. John Sargent, C.I.E., M.A., D.Litt., Educational Adviser to the Government of India.

Dr. (Mrs.) Malini B. Sukthankar, M.B.B.S., J.P.

K. Zachariah, Esquire, M.A., I.E.S., Director of Public Instruction,

2. The Chairman of the Board subsequently appointed the following additional members:--

Dr. Zakir Husain, M.A., Ph.D., Principal, Jamia Millia Islamia, Delhi.

It. P. Patwardhan, Esquire, B, A. (Oxon.), I.E.S., Director of Public Instruction, Bombay, (Vice Mr. S. N. Moos, retired).

Miss K. Ranga Rao.

Mrs. Hannah Sen, Principal, Lady Irwin College, New Delhi.

3. The Chairman also appointed Sir Maurice Gwyer as Chairman of the Committee.

4. The Committee met in the Secretariat, New Delhi, on the 12th and 13th December, 1945. The following members were present:--

1. Sir Maurice Gwyer. (Chairman).

2. Lt. Col. Dr. J. C. Chatterjee.

3. Dr. Zakir Husain,

4. Dr. V. S. Jha.

5. A. S. Khan, Esquire.

6. Dr. Mohan Sinha Mehta.

7. R. P. Patwardhan, Esquire

8. Miss K. Ranga Rao.

9. Dr. John Sargent.

10. Mrs. Hannah Sen.

11. Dr. (Mrs.) Malini B. Sukthankar.

12. K. Zachariah, Esquire.

Mrs. Renuka Ray was unable to be present. Dr. D. M. Sen, Secre- tary, C.A.B. of Education, was Secretary of the Committee.

5. The agenda which the Committee considered and the papers circulated to the members; are set out in the Annexures to this report.

6. The conditions of service of teachers in Universities and other institutions or similar status having been previously dealt with by another committee appointed by the Board, the Present Committee have omitted this submit from their consideration. The agenda also exclude such matters, e.g., the remuneration of teachers as have already been covered by the Report of the Committee appointed to consider the question of the Training, Recruitment and Conditions of Service of Teachers.

7. The Committee wish to stress the fact that many important problems which have a direct bearing on the efficiency or otherwise of the teaching profession have received inadequate attention hitherto and that their urgent and satisfactory solution will largely determine whether the profession is to attain the dignity which should belong to it, attract the right type of men and women and get the best out of them. It is a sad commentary on the existing state of affairs that in regard to basic issues such as methods of selections, terms of appointment, security of tenure, provision of leave, etc., there is no uniformity of practice in the country. It was the realisation of this urgent need, that brought this Committee into existence.

8. A study of the information set out in Annexure IV will reveal that different provinces follow different principles in regard to the selection and appointment of teachers. The conditions generally and particularly those which obtain in schools managed by District Boards, Municipalities and in private institutions leave much to be desired. In many cases the managers of recognised schools or the office-bearers of local Boards, do not possess the experience in educational matters which would enable them to select people of the right type and apart from this, their judgment is prone to be influenced by extraneous considerations. Hence, the quality of the teacher in the schools they control is often very poor. When, in addition, the selection, and appointment of teachers are in one man's hands, as is often the case, there is always a risk of corruption and favouritism, and the right type of qualified teacher often fails to get a fair deal.

The Committee feel strongly that the final say in selection should rest in the hands of educationists and that proper machinery should be devised so that the rights of the teaching profession as well as the claims of the schools are safeguarded. At the same time, it has to be recognised that an adequate number of qualified teachers is not available today because the facilities for training are lacking and the financial aspect of

the profession is not sufficiently attractive. Due allowance may have to be made for these difficulties; but educational expansion cannot, be allowed to stand still on this account and the very fact of the existing shortage increases the need for a careful and impartial selection. The Committee realise that no uniform machinery of selection can be prescribed which will suit the circumstances of all areas but they suggest that in the case of stage schools it should be possible to but all appointments, subject of course to confirmation by the Education Department, in the hands of selection committee consisting of an officer of Education Department, in the hands of selection committee consisting of an officer of Education Department, a local educationist of standing if one is available, and a representative of the local Board or Municipality responsible for the control of the school. From the point of view of administrative con- venience it may be desirable that such a selection committee should deal with all appointments to schools within a given area. In the case of school aided or recognised by Education Department it should be made a condition of aid or recognition that an office of the Department should be associated with the managing body when appointments are made.

The Committee are opinion that teachers may be classified under the following main grades:-

i. Graduates trained.

ii. Graduates untrained.

iii. Matriculates with two years' training.

iv. Middle-School Certificate-holders with two years' training.

v. Matriculates untrained.

vi. Non-matriculates untrained.

Moreover. to ensure a reasonable amount f control by the Department over all appointments and to encourage a sense of solidarity to the teaching profession. the Committee feel that every province should constitute a register of teachers covering all the grade specified above. All teachers employed in schools maintained aided or recognised by Provincial Education Departments should be on the Provincial register and where an institution desire to employ a teacher who is not already on the Provincial register they should apply at once to Education Department for his or her inclusion in it. The teacher should be removable from the register for misconduct, inefficiency or other good reason and thereafter should not be eligible for employment in any recognised school in the Province unless and until reinstated.

9. The Committee observed that even in such important matters as security of tenure and the period of probation, there are substantial differences of practice between on Province and another. Probationary periods vary from three to twelve months in Government Schools, while recognised schools make their own rules. The Committee see no reason, provided that a teacher has been selected by proper agency, why there should be any undue delay in confirming him though they accept the need for a minimum period of probation which should be uniform for all schools, before a teacher is placed on the Provincial register. The Committee therefore consider that a young teacher should be put on probation normally for one year but under no circumstances for more

than two and that A teacher of ten years' experience should not be re- quired to go on probation on a new appointment. Probation in the case of Head teachers is also to be deprecated as it is calculated to weaken their authority at a critical stage.

It was agreed that all teachers, whether in Government or private Institutions, should be appointed on a written contract which should provide for three months, notice by either party in the, case of termination of appointments for reasons other than misconduct as well as for a right of appeal.

10. Leave rules for teachers, need to be standardised as well as liberalised. It is essential to the peace of mind of a teacher that he should know the amount of leave, with or without pay, on which he can count both in the normal course and in the event of illness. Except when an engagement has been terminated summarily for misconduct a teacher who has completed a term's work should be regarded as entitled to the ensuing holidays with full pay. Sick leave should accumulate at the rate of 15 days for every six months' service up to a maximum of twelve months on full pay but to meet cases of hardship arising from sickness in the early years of service teachers should be allowed to draw sick pay in advance up to a maximum of six months, the amount so drawn to be debited against subsequent accumulation.

In the case of women teachers it was agreed that they should be allowed there same amount of leave as men teachers with the addition of a period of three months at a time in the way of maternity benefit up to a maximum of one year in all.

In view of the recommendation set out above the Committee do not regard any provision for so-called privilege or casual leave as neces- sary, especially as no other profession has the equivalent of the school vacations which, every teacher enjoys as a matter of course. The Committee, however, consider that a teacher Should be allowed emergency leave upto a limit, of seven days in a year for special reasons. This leave should not be claimed as a matter of right.

11. The size of the class which he may be called upon to teach will obviously affect, the extent and incidence of a teacher's work. Unfortunately what may be regarded as the ideal size from the point of view of efficient instruction and personal contact between teacher and taught will not be attainable until the available supply of teachers in all grades of school is much greater than it is at present or is likely to be for years to come. The Committee must therefore be content to express the view that no class in any school should have more than 40 children on the register, and that the number of pupils in a High School and a Primary School should not exceed 600 and 300 respectively.

12. In fixing the working hours for teachers the peculiar nature of the teacher's task must be kept in view. Teaching is an exacting business which makes great demands on the patience and imagination as well as the physical stamina. No good teacher's working day can be limited to the hours actually spent in the class room. The Committee recommend that a teacher should be required to be on the premises of the school for 32 hours per week. Out of this not more than 24 hours should be devoted to teaching and tutorial work, the remainder being given to

extra-mural activities, supervision of games, excursions or such other work as may be allocated by the Head of the school.

13. With regard to the question of working days and holidays it is evident that in a vast country like, India, this matter will have to be largely determined by local custom and conditions. Uniformity is possible in fixing the minimum of working days ; but each Province will arrange the time both of school session and of holidays according to its convenience and requirements.

In fixing the proportion between the working days and the holidays, the Committee agreed that schools should remain open for 200 working days every year. Each Working day should be divided into two sessions, each session consisting of not less than 2 and not more than 2 1/2 hours. A working day will consist of not more than two sessions.

14. The Committee were divided in opinion on the question of permitting school teachers to undertake private tuition. Complaints are frequent that teachers devote so much time to outside tuition that they tire themselves out and so fail to give their best to the school. On the other hand, teachers hold that they have to supplement their present inadequate salaries if they are to make both ends meet. Moreover there is often a strong demand on the part of parents for extra tuition for their children. The Committee were of the opinion that while no arbitrary ban can be imposed some sort of check is necessary to ensure that the teacher was not undertaking this kind of work to the detriment of his main task. Therefore, the Committee suggested that before undertaking private tuition teachers should obtain permission from their Heads who should maintain a register of private tuitions for the scrutiny of the Inspector of Schools. Moreover a teacher should not be permitted to undertake private tuition of a Pupil whom he is teaching in his own class.

15. There is very little provision in existing school codes either to encourage or allow the teachers to undertake further study and training. The Committee strongly felt that all teachers and particularly teachers in isolated rural schools should be given every opportunity and encouragement to undertake higher study and avail themselves of study leave for this purpose. They accordingly favour a wide extension of refresher courses and facilities for study leave though in the latter ease they feel it necessary to differentiate between study leave which is mainly in the interest of the school and that which is mainly in the interest of the teacher. They also recommend the adoption as soon as circumstances permit of the principle of " grace terms" whereby a teacher after not less than seven years' approved service becomes entitled to a term's leave on full pay.

16. It is reasonable to require that teachers in their own interest and that of their pupils should be healthy in body and mind. More and more stress is now being laid in the need of introducing a high standard of hygiene in schools but if teachers are found to be medically unfit or careless in matter of personal hygiene much harm can be done to the health of the children. In the opinion of the Committee, every teacher should undergo a medical examination before his appointment and if at subsequent stage the Inspector of Schools or the Head is dissatisfied

with his physical condition, he may be required to undergo another medical examination. To ensure fairness in all such cases, the Committee advocate the appointment of a Medical Board to hear appeals. In all such cases the teacher should not be asked to pay the medical fee.

The Committee were of opinion that in view of the conditions generally obtaining in this country 55 should but retained as the age at which a teacher could either claim to retire or be required by his employer to do so. In view of the shortage of teachers, however, there would be an obvious argument in favour of granting extensions up to the age of 60 to all teachers still capable of rendering efficient service. Only in very exceptional circumstances should teachers be retained in service after the age of 60.

17. Main conclusions.-The following is a summary of the Committee's main conclusions.

I. Selection Committees should be established for the appointments of teachers in all types of school on the lines set out in the Report. All teachers of whatever grade where confirmed on their appointments should be placed on a, Provincial cadre.

II. The period of probation should be one year in normal cases, and should not exceed two years under tiny circumstances.

III. Teachers should be appointed on a written contract basis.

IV. Teachers should become entitled to 15 days' sick leave on full pay for every 6 months' service and should be allowed to accumulate it tip to a maximum of 12 months. Women teachers may avail themselves of three months leave in the way of maternity benefit upto a maximum of one year in addition to the Usual sick leave. There is no necessity for privilege or Casual leave in addition to the above, but emergency leave upto seven days in a year may be granted under exceptional circumstances.

V. The size of a class should not exceed 40 Students.

VI. Every teacher should be required to he on the premises of the school for 32 hours per week, out of which not more than 24 should be occupied by teaching, the remaining being devoted to extra-mural or other school activities not entailing actual teaching.

VII. Schools should be open for not less than 200 days or 400 sessions a year each session consisting of 2 1/2 hours approximately. A working day will consist of only two sessions.

VIII. Teachers should obtained permission from the Head Teacher to undertake private tuition-and a register will be kept in this connection.

IX. Teachers should be given facilities for refresher courses or study leave on full pay a distinction being drawn between study leave which is in the interests of the school and that which is in the interests primarily of the teacher. A 'grace term' on full pay after seven years' service should be given as of right.

X. Teachers should undergo compulsory medical examination before appointment and subsequently when required.

XI. The normal age of retirement should be fixed at 55, to be extended upto 60 when thought desirable in the interests of the School.

ANNEXURE I.

AGENDA.

1. To Consider the suitable methods of selection and appointment of teachers in Basic (Primary and Middle) Schools and High Schools under each of the following categories:-

REPORT OF THE COMMITTEE OF THE CENTRAL ADVISORY BOARD OF EDUCATION APPOINTED TO CONSIDER THE CONDITIONS OF SERVICE (OTHER THAN THE REMUNERATION) OF TEACHERS.

ANNEXURE I.

AGENDA.