MAKING THE SYSTEM WORK
 

THE PRESENT SITUATION

1. Our system of education and learning has nurtured roots of our culture and is the foundation of our innately tolerant and civilised society. With all its imbalances and shortcomings the educational system is a living entity which has vast achievements to its credit. It has sustained the democratic institutions and the administrative apparatus, and has provided the manpower not only for spectacular advances in agriculture and industry, but also in new and emerging areas of science and technology.

2. The educational system, however, presents an uneven, often conflicting picture: of great institutions, with a large number of universities and colleges where all norms of academic conduct are undermined; several thousands of schools in which teachers and students are engaged not only in observance of their expected roles but which radiate excellence, and also those which do not open on time, are unkempt and where the teaching and learning processes have little chance to germinate; large numbers of teachers who inspire their pupils and are known for their learning, but also teachers who thoughtlessly ignore their obligations, sometimes altogether absenting themselves from the institutions; most sophisticated systems of pupil evaluation, with an examination system which is fast losing its credibility; and innumberable instances of outstanding work done by people engaged in the onerous task of organising adult and non-formal education programmes, as well as large numbers of projects which just do not function.

3. It is obvious that in this dichotomous situation, it is women, the urban poor, and the rural population who suffer. The lack of order and discipline in the educational system prevents achievement of optimal results from the vast investment made in it, which in turn is the cause of widespread despair and cynicism about the country's future.

4. Unless the system of education works properly at all stages of education, in all parts of the country the ambitious programme of educational reform envisaged in NPE will come to a naught. As pointed out in the document 'Challenge of Education a policy perspective', brought out by the Central Government in August 1985, the system of education is an integral part of the total socioeconomic system and that transformation of the system of education will have to go side by side with critical changes in the rest of the system. NPE acknowledges this, but it goes on to affirm that, given the will, and a collective endeavour of teachers and students it is possible to infuse a new life, a new creativity into the system.

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THE IMPLICATIONS OF POLICY, STRATEGIES AND OPERATIONAL PRE- REQUISITES

5. The three short paragraphs on Making the System Work (para7.1 to 7.3) have been spelt out as the pre-requisite for reform of the educational system. It implies that just as functioning of the democratic institutions and enjoyment of fundamental rights are dependent on observance of civic responsibility and Inner discipline by the citizen of a country, likewise an atmosphere of freedom, innovation and creativity in educational system is dependent upon observance of norms of intellectual rigour, mutual consideration among all concerned, and creation of a new work ethic.

6. In view of this, NPE refers to the necessity of introducing discipline into the system "here and now, in what exists". Secondly, it refers to a better deal to teachers to go side by side with a sense of greater accountability among them; provision of improved students' services alongside an insistence that their behaviour is in accordance with acceptable norms; and better facilities for educational institutions with a system ensuring that the performance of the institutions comes up to the norms set at the national and State levels. While any insistence on imposition of rigid uniformity or lifeless discipline would not be in consonance with the general tenor of NPE, and the process to be followed in creating the new educational order has to be participatory, cooperative and based on a renewed faith in the country's future, it is incumbent upon us to develop a clear approach to this crucial task. The essential aspects of this task are the following:

(a) Certain norms of performance must be laid down for observance by the administration (Government as well as managements of educational institutions), teachers, students and educational institutions. It should be made clear that these norms are non-negotiable, and not conditional on fulfilment by any other category of Organisation or individual of their obligations.

(b) Non-observance of these norms should inevitably lead to certain consequences, and neither fear nor favour should affect it.

(c) Some immediate measures have to be taken to improve the working conditions of teachers and the conditions in which students study and live. Similarly, the essential conditions which enable educational institutions to effectively play their role have to be fulfilled. The faith manifested by the nation in the teachers and students, as reflected in NPE, implies that they will be systematically consulted at various stages of planning and implementation of Making the System Work. Indeed, much of the responsibility for this will rest on teachers and students.

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(d) One of the malaise which has eaten into the educational system is unwarranted interference by political and administrative centres of power. While it is not possible to insulate the educational system from the socioeconomic and socio-political forces, it will have to be ensured that the working of the system is not undermined by the political bureaucratic and anti-social elements-within or outside the educational system.

TEACHERS

7. Measures proposed to be taken for improving the working and living conditions of teachers have been *pelt out elsewhere. The immediate steps to be taken in the context of this Programme of Action are as follows:

(i) Grievances redressal machinery will be established on the lines indicated in the section on Teachers, to ensure that all their legitimate grievances are promptly attended to and they receive what is due to them;

(ii) Teachers in aided and private institutions are often subjected to indignities, extortions and under- payments. This will not be tolerated and legal action taken as may be due.

(iii) All State Governments will formulate guidelines/rules for posting and transfers of teachers. The Central Government will send general advice in the matter. Representatives of teachers will be consulted before finalisation of these guidelines/rules.

(iv) The expectation that the teachers work in the institutions where they are posted/appointed, attend institutions regularly, and take classes in accordance with the predetermined schedule will be enforced. Meetings and conferences, within the country or overseas, must not interfere with the instructional programme. Appropriate mechanism will be created to verify that these norms are being observed. This would include regular taking of students' attendance' and maintenance of consolidated record of the same by the head of the institution/department. Teachers who are elected/nominated to Parliament or State Legislature will be required to take leave of absence during their term as Member. However, in this process they will not be losing their seniority or increments.

(v) A comprehensive, open, participatory and data- based system of teacher evaluation will be established. This system will take into account the work of teachers in the area of research and innovation, regularity and attention to teaching, and extension and social service activities. While each State Government or university or management may create a system of teacher evaluation as may be

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appropriate, it would, generally speaking, include self- evaluation, evaluation by peers and, in appropriate cases evaluation by heads of institutions/departments and by students. It will not be open for teachers not to undertake self-evaluation where such evaluation is prescribed.Selection of teachers to higher positions and promotions will take these evaluation instrumentalities into consideration. The small number of non-performers and negligent teachers will be isolated, and where necessary, subjected to appropriate penalty.

(vi) There are instances of teachers conducting themselves in a manner not befitting the profession. In some extreme cases this includes coming to institutions in a state of intoxication, using foul language towards students, misbehaviour towards female students, requiring students to do unnecessary chores and inducing pupils to take private tuitions. Such aberrant behaviour can not be tolerated and the management system as well as organisations of teachers must do everything in their power to prevent it.

STUDENTS

8. There has been a marked deterioration in the amenities available to students in universities, colleges as well as in schools. Instances are not wanting where students have had to agitate for securing facilities of drinking water, cycle-sheds, timely supply of textbooks, well-cooked meals in hostels, etc.. Other legitimate facilities like inexpensive canteens, well-managed cooperative stores for supply of books, stationery and other necessities, recreation centres, sports facilities, etc. are wanting in practically all institutions. Comprehensive programmes for provision of students' amenities will be taken up in all categories of institutions. Meanwhile, action has to be taken immediately as follows:

(i) The glaring deficiencies in regard to students' amenities will be made good without delay and an effective machinery created for removal of students' grievances.

(ii) Students eligible for scholarships and other incentives will receive them in time. Those responsible for neglecting this aspect would be appropriately penalised.

(iii) Students should be treated with consideration and necessary steps taken for securing their partnership in making the system work.

(iv) Each State, university and college must take decision, keeping in view the guidelines provided by the Education Commission (1964-66) regarding students' unions. In cooperation with students it has to be ensured that union elections do not degenerate into a game of money power, unseemly behaviour and disfigurement of buildings.

Students' unions will be advised to function in a democratic manner and their funds audited by the University auditors.

(v) The vast majority of students want to pursue their studies and other educational activities in a peaceful and dignified fashion. However, there are some elements which cause unnecessary disturbances in the academic atmosphere. There is no place for violence, coercion and intimidation in the educational set up. Universities and colleges will formulate codes of students' discipline through suitable statutes/ordinance or other appropriate ways. All persons who commit offence punishable under law should be treated like any other person and other acts of indiscipline should not go unchecked and unpunished.

(vi) Students' hostels have some time tended to become shelters for anti-social elements and frequently persons not eligible to stay there stay in an unauthorised manner. Discipline in hostels is as important as elsewhere and all instances of misconduct should be visited by appropriate action.

INSTITUTIONS

9. References have been made at several places in the various Programmes of Action to institutional improvements. As the internal efficiency of each institution improves, the performance of teachers and students would improve also. Without waiting for implementation of all the measures proposed in the various Programmes of Action, some steps will be taken immediately for improving institutional performance. Detailed planning in this regard will be undertaken by `State Governments, universities, colleges, schools, panchayati raj bodies, District Boards of Education, Village Education Committees, etc.. However, some of the steps which should be taken immediately are listed below:

(i) A minimum threshold of facilities will be provided for all educational institutions,, special priority being given to primary schools, which have suffered from a greater neglect in the past.

(ii) The existing physical plant and facilities available in the institutions will be tidied up, repaired as may be necessary, and refurbished. Optimum use will be made of these facilities.

(iii) Without under-emphasising the importance of democratic and participatory functioning of educational institutions and university departments, persons having administrative responsibility will be given necessary authority for them to be able to discharge their responsibilities. Where appropriate and possible, administrative heads who have proved incapable of shouldering their responsibilities will

be replaced by more worthy persons.

(iv) Central and State organisations such as UGC, AICTE, NIEPA, NCERT, State University Grants Commissions, SCERTs, etc. will set criteria for assessment of performance of educational institutions. These criteria will include:

- number of days of instruction in a year,

- number of days of forced closure,

- regularity in conduct of examinations,

- regularity regarding declaration of results,

- regularity of academic sessions,

- quantity and quality of research,

- number of teachers, with reference to number of days, who absented themselves.

These institutional evaluations will be brought out in the form of an appropriate annual report of the institution.

PROCESS

10. It is of the utmost importance that the process of arriving at decisions and their observance should be genuinely participatory. This process will be set into motion with preparation of a detailed scheme and consultations with educationists, teachers and students. Machinery for redressal of teachers' and students' grievances will be set up immediately. Preliminary outline of a Code of Professional Ethics for Teachers will be prepared by a joint group of national level teachers' organisations. CABE and SABE will set up special committees to lay down criteria of evaluation in respect of 'making the system work' and these committees will also regularly monitor, at the initial stages once every quarter, the extent to which the various parameters are getting operationalised.