 MANAGEMENT OF EDUCATION

18.1 The recommendations of the NPERC on Management fall into eight distinct areas : Disaggregated Target Setting (R.Nos.303-306), Educational Complexes (R.No.307), Indian Education Service (R.No.308), Involvement of Voluntary Organisations (R.No.309), Coordination and Convergence of Services (R.No.310), Role of Central Institutions (R.No.311) and Centrally Sponsored Schemes (R.No.312). Excepting those in the area of Educational Complexes, Indian Education Service and Centrally Sponsored Schemes, all the recommendations of the NPERC are in congruence with NPE/POA perceptions. We suggest that these recommendations be taken note of while revising the POA. We are also considering in this Chapter R.No.220 relating to grievances redressal which was dealt with by the NPERC in the chapter on Higher Education, as this recommendation can be extended to all stages of education. 3œ3 Š

Educational Complexes

18.2 The NPERC assigned a very important role to the Educational Complexes in planning and implementation of different programmes. While the main recommendation figures in the chapter on 'Decentralisation and Participative Management,' the related recommendations, assigning a key role to Educational Complexes, are dispersed among many other chapters such as 'Education and Women's Equality' (R.Nos. 15, 28, 35, 39), 'Education for Scheduled Castes and Scheduled Tribes and other Educationally Backward Sections' (R.Nos. 62 and 68), ECCE (R.Nos.122, 131, 132, 133, 141 and 142), 'Universalisation of Elementary Education' (R.Nos.155A, 158, 169, 171, 173 and 175), and 'Teachers and Students' (R.Nos. 284 and 290). The idea of school complexes was first mooted by the Kothari Commission (1964-66). The networking of schools in a school complex was expected to facilitate sharing and exchanging of resources and experiences. NPE assigned a key role to school complex and POA elaborated the NPE perception. We find that the educational complexes suggested by the NPERC is an enlargement of the idea of school complexes in that colleges and universities are also brought into the network. We find a certain measure of uncertainty in the NPERC's approach to the educational complexes. In this chapter, the NPERC had advocated experimentation with the idea of an educational complex while in other chapters the recommendations relating to educational complex proceed from the premise that educational. complex is a proven institution which can be entrusted with entire responsibility of management of education and major programmes like Operation Blackboard in the area as falling in its jurisdiction. Given the present stage of higher education, it seems to be rather far-fetched to expect colleges and universities everywhere to play a leading role in educational complexes. We therefore, suggest that the idea be tried on an experimental basis in selected areas.

District Boards of Education

18.3 The NPERC also refers to the District Boards of Education which were assigned a very important role by NPE in the management of education upto the secondary level. We recommend that these Boards should be set up and operationalised expeditiously. The constitution of the Board should be such that these are genuinely tripartite bodies with due representation to elected representatives in the district, district officials and teachers. One of us does not agree with this recommendation.

Indian Education Service

18.4 NPE called for the establishment of the Indian Education Service (IES) as an All-India Service so as to bring a national perspective to the vital sector of education. It also suggested that the basic principles, functions and procedures of recruitment to IES be decided 3Ó3 Š in consultation with the State Governments. The NPERC suggested (R.No.308) creation of cadres of Educational Advisory Services in the States on the model of a similar service of the Government of India. We notice that several Commissions, Committees and Conferences,, including Kothari Commission (1964-66) and the Sarkaria Commission (1983-84), had favoured the establishment of IES. Potentially IES can draw the best talent into the field of educational management. Many bright youngsters who join other services may opt to remain in the education field, if there is IES. Allotment of a certain percentage of recruits to States other than those to which they belong, as in other All-India Services, would promote national integration and a national outlook in the management of education. In the States, such a service can promote establishment of good norms, professionalism and continuity in educational administration. IES would also further the Centre-State relations and give the much needed State perspective in the management of education in the Government of India. State level education advisory services are redundant since excepting some secretariat posts all other posts are already filled by educational cadre. We feel that it would be necessary to hasten the process of consultation with States and to give concrete shape to the idea of IES with due regard to the views and concerns of the States. Two of us do not subscribe to the idea of IES.

Centrally Sponsored Schemes

18.5 Regarding Centrally Sponsored Schemes (CSSs), we find two points of view figured before the NPERC. The first point of view reflected in the Approach Paper of the Eighth Five Year Plan (1990-95) which advocated in principle the transfer of all CSS to the States. The second view strongly urged the continuance of CSS in the field of education having regard to factors such as Education being in the Concurrent List, inadequacy of resources with the State Governments, need for a Central role in achieving national objectives such as UEE and removal of educational disparities, etc. The NPERC also took

note of the fact that normally CSSs run for a full five year period and going by this practice, the CSSs started in pursuance of NPE had to be continued till 1992. The Committee also noted that abrupt discontinuance of these schemes would lead to disruptions of initiatives already taken in the crucial areas. Having regard to these views, the NPERC pragmatically suggested that the CSSs started in pursuance of NPE should continue upto 1992-93 and that a review of the implementation of these schemes should be undertaken before the end of that year. The NPERC also suggested that no new CSS should be initiated unless it is for the purpose of securing decentralisation of education management at the grass-roots level (R.No.312).

18.6 We have taken note of views of the various Commissions and Committees which examined the issue of CSS, including the Sarkaria Commission and the Committee of the National Development Council (NDC) on CSSs, under the Chairmanship of Shri P.V. Narasimha Rao (1988). 3 3 Š The NDC Committee scrutinised all the extant CSSs and recommended continuance of all CSSs in the area of education as well as ICDS during the Eighth Five Year Plan. The NDC Committee also laid down the following modified criteria for the retention of the existing, and the initiation of new CSS:-

a) The fulfilment of an important national objective such as poverty alleviation or achievement of minimum standards in education, or;

b) The programme has a regional or inter-State character, or;

c) The programme or scheme should be in the nature of a pace setter or should relate to demonstration, survey or research.

18.7 We are strongly of the opinion that without a steep increase in the resources made available for education it would not be possible to bring about educational transformation. While adequate availability of resources may not by itself be a sufficient condition for such transformation it is a necessary condition. The nation as a whole should find resources for the vital area of education and in this endeavour the Centre and States should play complementary roles and become real understanding partners, true to the spirit of concurrency. Given its larger resource base, the Centre should supplement the efforts of States. In order to realise the overall objectives of Central support in vital areas of education, it is necessary to insist. upon accountability and non-divertibility of resources. Broadly speaking, this is all that CSS aims at.However, there is a general perception that the schemes are formulated and implemented without due consultation with the States and that the schemes are devoid of flexibility needed to suit local conditions. We were informed that the CSSs started in pursuance of NPE were formulated and are being implemented in close consultation with the States. What is important is that, in the

formulation and implementation of the policy and programmes, there should be close and continuous consultation between, the Central and State Governments in the true spirit of partnership. If this principle is observed in letter and spirit, there should be no misperception about CSS. We are, therefore, in agreement with the decisions of the NDC at its 43rd meeting held on 23-24 December, 1991, which is as follows:

"It was agreed that 113 Centrally Sponsored Schemes, as suggested by Narasimha Rao Committee, will be transferred to the States along with Central share of funding which will be released outside the Gadgil formula."

3A3 Š None of these schemes relate to Education or to ICDS. We take note of the fact that the Department of Education has undertaken a review of all the ongoing CSSs in consultation with the States. We expect that these schemes would be modified during the Eighth Plan in the light of these consultations. We would also suggest launching of new CSSs in some priority areas not so far covered, such as the advancement of educationally backward minorities after due process of consultations. one of us is not in agreement with the suggestion.

Redressal of Grievances

18.8 The Law Commission in its 123rd Report had suggested the setting up of 3-tier structure for redressal of grievances in the higher education system. This recommendation is one of the several measures suggested by the Commission to relieve the congestion and burden on the High Courts and the Supreme Court and to hasten the redressal of grievances. The NPERC suggested an early decision by the Government of India on the report of the Law Commission (R.No.220). The Department of Education had suggested that setting up tribunals would be useful also at all levels of education. In every State hundreds of cases are pending in matters relating to the service conditions of teachers and administrative staff and implementation of Educational Acts, Codes and Manuals. Because of the proliferation of litigation, the State Departments of Education find it difficult to give adequate attention to educational issues and educational programmes. At the same time, teachers, administrative staff of the education departments and the management of the educational institutions feel aggrieved at the enormous delays in the redressal of their grievances. Constitution of specialised State Level Educational Tribunals is, therefore, desirable. The details of setting up of these tribunals may be worked out in consultation with the State Governments.

Making the System Work

18.9 Management of Education is a critical, but often an under- emphasised, dimension. It is no exaggeration to say that several parts of education, particularly the higher education system, is in a state of disorder. As eloquently observed by NPE,

"these and many other new tasks of education cannot be performed in a state of disorder. Education needs to be managed in an atmosphere of utmost intellectual rigour, seriousness of purpose and, at the same time, of freedom essential for innovation and creativity. While far-reaching changes will have to be incorporated in the quality and range of education, the process of introducing discipline into the system will have to be started, here and now, in what exists.

The country has placed boundless trust in the educational system. The people have a right to expect concrete results. 3x3 Š The first task is to make it work. All teachers should teach and all students study."

18.10 We agree. Making the System Work has to be treated as non- negotiable. We strongly urge formulation and implementation of an Action Plan to put into practice the strategy outlined in Para 7.3 of NPE.