 EARLY CHILDHOOD CARE AND EDUCATION

8.1 The NPERC considered NPE to be a historic document in that for the first time a policy document boldly recognized the importance of the Early Childhood Care and Education (ECCE) and laid down the holistic principles on which the programme was to be developed. The NPERC strongly rearticulated the NPE's perception of ECCE as an important input in the strategy of human resource development, as a feeder and support programme for primary education and as a support service for working women from the disadvantaged sections of society.

8.2 The following three recommendations of the NPERC relate to policy :

i) Enlarging the scope of Article 45 of the Constitution 3º3 Š so as to include ECCE (R.No.104).

ii) Inclusion of ECCE in Minimum Needs Programme (MNP) (R.No.106).

iii) Transfer of ICDS and other related Centrally Sponsored Schemes (CSS) for ECCE to the States and Union Territories following the completion of the present phase. (R.No.127).

Article 45

8.3 The NPERC interpreted Article 45 of the Constitution in a novel way. It held that all along this directive principle was interpreted narrowly as applicable only to the education of children from the age of six upwards and that it was never too late to acknowledge that, since care and education must begin at birth, ECCE was part of the Constitutional provision to provide free and compulsory education upto the age of fourteen years (R.No.104). According to the NPERC, Articles 39(f), 46 and 47 of the Constitution lend support to its interpretations. Consequently the NPERC recommended that the scope of Article 45 should be enlarged to include ECCE. While making a departure from an interpretation which was held all along, it would be necessary to consider the implications of the new interpretation. The nation as a whole and the State Governments in particular are still struggling for the achievement of UEE for 6 to 14 age group. Accordingly, the implied additional responsibilities of compulsory and free ECCE for the 0-6 group would impose an unrealistic target which would be difficult -- rather well nigh impossible -- to achieve in the foreseeable future. The NPERC itself, in para 5.11.0, noted the magnitude of resources needed for the universalisation of ECCE and concluded that government cannot conceivably mobilise such vast resources. According to the NPERC, even providing resources for the more limited coverage envisaged by POA would be difficult and it would be necessary to motivate non-governmental resources. In concrete

terms, the NPERC endorsed the coverage suggested by POA, viz., that at least 70 per cent of the children below the age of 6 should be provided with an essential package of services by A.D. 2000 (R.Nos.136 to 140). We feel that it would not be prudent to set higher goals in policy than what is feasible. Therefore, we feel it is premature to include ECCE in Article 45 and suggest that government should instead vigorously strive for achieving the goals laid by the POA. We strongly recommend that while expanding the coverage particular attention should be paid to the under-privileged communities as suggested by the POA (Para 7, Chapter 1) and reiterated by the NPERC (R.No.116[iv]).

MNP

8.4 The NPERC's recommendation to include ECCE in MNP is in keeping 3ñ3 Š with its interpretation of Article 45 of the Constitution. We expect that this recommendation would be taken into consideration by the Planning Commission when the MNP is revised.

ICDS

8.5 The NPERC while noting that ICDS is the chief vehicle for ECCE, had recommended transfer of the scheme and the other Centrally Sponsored Schemes (CSSs) of ECCE to the States after completion of the present phase and entrusting the management of the Anganwadi and other ECCE centres to voluntary organisations, local community groups, particularly of women. In coming to this conclusion the NPERC was no doubt prompted by its general approach to the CSSs as well as a study of ICDS centres. The NPERC observed that the ICDS had come to acquire rigidity, bureaucratisation, low performance, lack of community participation and insensitivity to local needs, patterns and socio- cultural conditions. The NPERC did note that, within the ICDS there was scope for a wide variety of models and flexible approaches to the vast diversity and complexity of situations it is required to respond to. The NPERC also envisaged ICDS's chief role eventually to be offering support to NGOs, local communities and women's groups through essential funding and to provide ECCE according to local needs. The observations of NPERC advocating a decentralised and participative management are avowedly in keeping with the principle laid down by NPE that local communities will be involved in ECCE. What is important is that in vital areas like ECCE there should be a meaningful partnership between' the Union and the States for fulfilling national objectives. The Union should provide resource support and associate the States on a continuous basis in the formulation and implementation of policy and programmes. It is also necessary for both the Union and the States to strengthen the monitoring and evaluation systems so as to achieve the cost-effective programme outcomes. Considering that NPERC itself recognized the potential flexibility of ICDS and the imperative need to provide States with additional funds with the conditionalities of non-divertibility and accountability, we feel that the present arrangement with regard to ICDS and other CSSs in the area of

ECCE may continue during the Eighth Five Year Plan. We note that the NDC, at its 43rd meeting held on 23rd and 24th December, 1991, had endorsed the recommendation of the NDC Committee on CSS that ICDS should continue as a CSS during the Eighth Five Year Plan. Simultaneously, we strongly recommend that the Department of Women and Child Development should undertake a detailed review of these schemes in consultation with the States so as to facilitate implementation of the scheme in the light of the POA provisions and the NPERC recommendations. We envisage an expanded role for the Anganwadi workers who should be the focal point for a number of activities and support services for women and children, such as child care, family welfare, nutrition and health. The recruitment and training of Anganwadi workers should be so organised as to ensure that they have the necessary skills and motivation to discharge the expanded role. 3(3 Š

Implementation Modalities

8.6 The NPERC had delved a great deal into the fine details of implementation of ECCE which include:

i) Development and testing of alternative models of ECCE,

ii) Curriculum and content of ECCE,

iii) Acceptable ratio of adults to children in ECCE programmes,

iv) Service conditions, training and preparation of ECCE personnel,

v) Linkages between primary education and ECCE,

vi) Involvement of local communities in the planning and implementation of ECCE, and

vii) Implementation of ICDS.

8.7 Excepting the recommendation suggesting the transfer of ICDS to the States the other recommendations of NPERC are largely a restatement and elaboration of the POA provisions. The NPERC's main concerns arise from the fact that implementation did not measure up to the policy and that coordination between various agencies at different levels extending from the Government of India to the field, was hardly adequate. Consequently the NPERC spelt out many operational details covering all aspects of the programme. The NPERC strongly reiterated the need for the principle of diversity, flexibility and design to inform all aspects of ECCE, a principle highlighted by NPE and POA. While reiterating the recommendation of POA that the Departments of Women and Child Development at the Central and State levels should be held accountable for the implementation of ECCE in its entirety', the NPERC had strongly urged close co-ordination between the Department of Women and Child Development on the one hand and the Department of Education on the other, both in the

Centre and the States. The NPERC had also suggested institutional mechanisms such as setting up inter-ministerial committees at the Central and State levels comprising representatives of the Departments of Labour, Health and Education to assist the Department of Women and Child Development in the planning, monitoring and coordination of the ECCE programmes. The NPERC also suggested preparation of a ten year action and resource allocation plan for the building of a national network of child care services on the lines suggested in POA. In our opinion, the importance of proper planning, monitoring, evaluation and coordination and of community involvement cannot be overstated. 3_3 Š Specific and serious attention is required towards resolving the problem of inter-departmental coordination. We suggest that the recommendations of the NPERC should be borne in mind while revising the POA and that the agencies concerned should work out and introduce effective measures for implementing ECCE programme.

8.8 To sum up:

i) The scope of Article 45 of the Constitution need not be enlarged.

ii) ICDS and other CSS relating to ECCE should continue as Centrally Sponsored Schemes during the Eighth Five Year Plan. The Anganwadi workers should play an expanded role and should be the focal point for a number of activities and support services for women and children, such as child care, family welfare, nutrition and health. The recruitment and training of Anganwadi workers should be so organised as to ensure that they have the necessary skills and motivation to discharge the expanded role.

iii) The other recommendations of the NPERC which broadly relate to implementation modalities should be taken in to account for reviewing the POA.