LANGUAGE DEVELOPMENT
POLICY The National Policy on Education, 1986 has reiterated in respect of languages the policy elaborated in the National Policy on Education, 1968. Briefly, the policy emphasises the adoption of regional languages as the media of instruction at the university stage; vigorous effort at implementation of the three language- formula; improvement in the linguistic competencies of students at different stages of education; provision of facilities for the study of English and other foreign languages; development of Hindi as the link language, as provided for in Article 351 of the Constitution; teaching of Sanskrit at the university stage as part of certain courses like Indology, Indian History, Archaeology etc.; serious effort at translation of books from one language to the other; and the preparation of bilingual and multi-lingual dictionaries.
MEDIUM OF INSTRUCTION AT THE UNIVERSITY STAGE
Present Position: 2. The emphasis in the Policy is on the adoption of modern Indian languages as the media of instruction at the university stage. However, the need to provide education through the mother tongue, which may be different from a modern Indian language included in the VIII Schedule, is recognised on academic grounds. The Constitution of India recognises, in respect of linguistic minorities, the desirability of providing instruction through the mother tongue for first five years of education (Article 350-A). Every effort is, therefore, required to implement this obligation, although a number of difficulties are likely to be encountered: administrative and financial feasibility of providing instructional facilities through a variety of mother tongues, difficulty to use some tribal languages as media of education etc. In the context of these difficulties switch over to a modern Indian/regional language has to be ensured as early as possible. The Safeguards for Linguistic Minorities, recognising the difficulties, recommended that "for the purpose of providing instruction in the mother tongue of the linguistic minorities at the secondary stage of education, the modern Indian languages in the Eighth Schedule of the Constitution as well as English, should be used as media".
3. Modern Indian languages are already being used as media of instruction at the school stage. The need is for their progressive adoption as media at the university stage. To facilitate this, 7000 university level textbooks have been
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produced by the State agencies and some universities with the assistance of the Government of India. The off-take of these books is not satisfactory. Consequently, large unsold stocks of books have accumulated' in the States, the main reasons being (a) preparation and production of these books has not synchronised with the universities' decision to switch over to modern Indian languages; (b) university teachers having received education through English find it difficult to teach through the Indian languages; (c) unlike the school stage, control over prescription of textbooks is not tight, with the result that, for various reasons, book produced by private publishers get generally recommended; and (d) Indian language-medium courses are generally not popular with students because of the lack of professional comparability and poor employment potential.
Pre-requisites 4. The primary pre-requisite appears to be specific decisions by the State Governments, in consultation with universities, to progressively adopt the modern Indian languages as media of instruction in all subjects and at all levels.
5. A critical review of the experience of the programme of production of university level textbooks is required. A decision to constitute a review committee has already been taken. The study and recommendations of the committee are likely to assist in formulating a more worthwhile and feasible programme for implementation. The review is proposed to be completed early.
Specific Action 6. The main action would include; (a) preparation and production of textual materials/reference books in modern Indian languages on a much larger scale than undertaken hitherto; (b) orientation of university teachers; (c) translation of text books, reference books from English into Indian languages; and (d) regular review and monitoring of the effort.
Role of Agencies 7. The State Governments would have to, in consultation with universities and the University Grants Commission, identify measures to ensure the adoption of modern Indian languages as media of instruction. With the assistance of expert institutions, a feasible and time-bound programme of action would have to be worked out. The preparation of university level books in regional languages, being undertaken with the assistance of the Government of India, would have to be speeded up by State level agencies, ensuring at the same time that books so prepared are used in the system.
8. The Ministry has been receiving requests from State Governments to continue assistance beyond Rs. 1.03 crores provided/committed to them for creating a revolving fund. In case
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of some participating States, the full amount has not been released. Apart from releasing the balance amount to those States which have not yet utilised the admissible assistance, there is need to consider the possibility of providing more assistance to States to which the admissible amount has already been released.
Monitoring 9. At the Central level, the Commission for Scientific and Technical Terminology which has been coordinating the programme would need to be strengthened to undertake more effective monitoring of the programmes and for organizing orientation courses for teachers of various disciplines. The University Grants Commission could set up a small cell for monitoring the adoption of the regional languages as media of instruction. In each university, a cell could be established for monitoring and facilitating the switch-over to regional languages.
IMPLEMENTATION OF THE THREE LANGUAGE FORMULA 10. The Three Language Formula provides for a study of a modern Indian language, preferably one of the Southern languages, apart from Hindi and English in the Hindi speaking States and of Hindi alongwith the regional language and English in the non-Hindi speaking States.
Present Status 11. The implementation of the three language formula has been less than satisfactory. The main deficiencies include the following: (a) all the languages are not being taught compulsorily at the secondary stage; (b) a classical language has been substituted for a modern Indian language in some States; (c) no provision exists for the teaching of South Indian languages for which the formula indicated a preference, in the Hindi speaking States; (d) duration for compulsory study of three languages varies; and (e) competency levels to be achieved by students in respect of each language have not been precisely specified.
Pre-requisites 12. The effective implementation of the three language formula would require: (a) decision by States, State Boards of Secondary/ School Education, etc. to make the study of three languages compulsory at the secondary stage; (b) prescription of the Class from and the duration for which three languages will be taught; (c) specification of objectives of teaching different languages; and (d) specification of levels of language proficiency to be reached in respect of each language.
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Specific action 13. The action required would include:
(i) The Central Government should continue to assist the non-Hindi speaking States for the appointment of Hindi teachers.
(ii) The pattern of Government of India's assistance should be restored to 100 per cent of the approved expenditure on the appointment of Hindi teachers as was available till 1978-79.
(iii) On the pattern of the scheme for appointment of Hindi teachers in non-Hindi speaking States cent per cent assistance should be given to Hindi speaking States for the appointment of modern Indian language teachers, preferably teachers of South Indian languages, as the three language formula suggests.
(iv) Apart from establishing teacher training institutions for training of Hindi and modern Indian language teachers in States, facilities for training of language teachers need to be augmented and improved in existing teacher training colleges.
(v) The Ministry's language institutions should be strengthened to undertake programmes facilitating teaching of languages, particularly research in methodology of teaching languages and experimentation in the use of computers and new communication technologies.
Physical Targets 14. The number of teachers to be appointed for teaching of languages would depend upon the number of schools and students and the requirements of the syllabus of secondary schools. With the decision to make study of three languages compulsory at the secondary stage-to be taken by the State Board/States would have to work out the exact requirement of teachers and provide for their salaries in the State budgets. While most of the language teachers required would be provided for under the normal programmes of the States for provision of educational facilities, the Government of India could share part of the financial burden of the States.
Roles of Agencies 15. A proposal, seeking the restoration of the earlier pattern of assistance, will be formulated by the Ministry. With cent per cent assistance Hindi speaking States will find it easier to appoint a much larger number of teachers. A proposal for assisting Hindi speaking States to appoint modern Indian language teachers in the Seventh Plan has also been worked out.
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16. The State Governments and the Boards of School/Secondary Education would be primarily responsible for implementation and monitoring of the programme. They would have to take decision to prescribe on compulsory basis the study of three languages. The scheme of examinations would have to prescribe and evaluate the competency levels to be achieved in different languages.
Monitoring 17. The Kendriya Hindi Sansthan, Agra, the Central Institute of Indian Languages, Mysore, the Central Institute of English and Foreign Languages, Hyderabad, and the National Council of Educational Research and Training will establish cells to monitor the programme. They will also be responsible for providing academic/technical assistance to State Boards and educational institutions.
IMPROVEMENT IN THE LANGUAGE COMPETENCIES OF STUDENTS
Present Status 18. The proficiency of students in using languages is reported to have deteriorated over the years. No definitive evidence is, however, available to indicate whether students enrolled in and/or completing different levels of education are less proficient in the use of languages than those who completed education 15-20 years back. Irrespective of the expressed opinions, improvement in language skills of students is important, considering the significance of language proficiency for cognitive development and further learning.
Pre-requisites 19. It would seem necessary, among other things, to: (a) undertake study of the language attainments of students; (b) specify objectives of teaching different languages, particularly at the school stage where three languages are to be studied compulsorily; and (c) identify language skills that students must attain in terms of the specified objectives.
20. The Kendriya Hindi Sansthan, NCERT, Central Institute of Indian Languages, Central Institute of English and Foreign Languages, Regional Institute of English, Bangalore and H.M. Patel Institute of English, Vallabh Vidyanagar, have been requested to (i) collaborate in the task of undertaking a systematic study of language attainments of students; (ii) undertake studies with the purpose of specifying objectives of teaching various languages; and (iii) consider the possibility of using the English language proficiency test developed at the instance of the Bureau, by NCERT, Regional Institute of English, Bangalore, CIEFL, Hyderabad and H.M. Patel Institute of English, Vallabh Vidyanagar for foreign students seeking admission to institutions of higher learning in India, with a view to determining the English language proficiency of Indian students completing Class XII. The Central
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Institute of Indian Languages, Kendriya Hindi Sansthan and Dakshin Bharat Hindi Prachar Sabha have been provided with BBC micro computers for undertaking experimentation in computer aided language instruction and learning. The CIEFL has set up an Educational Media Research Centre for English language teaching. The University Grants Commission has identified and is assisting some universities for strengthening arrangements for English language teaching. Summer institutes for orientation of university/college teachers of English are also being undertaken.
Specific Action 21. Apart from continuing these and other similar activities, some specific programmes to be taken up for implementation, will include: (a) development of textual materials for ensuring attainment of specified language abilities; (b) preservice and inservice training of teachers in the methodology of language teaching; (c) research in the methodology of effective teaching-learning of languages, with particular emphasis on the use of computers and other communication media; (d) infrastructural facilities of language and other training institutions for training of teachers and experimentation in computer aided instruction and the use of new communication technology; (e) designing of specialised/bridge/remedial courses for school and university students.
22. The programmes included in the Seventh Five Year Plan of institutions provide for some of the activities listed earlier. A scheme under which assistance will be provided to States and some State level institutions for in-service training of English language teachers and production of textual materials, has already been developed. Financial assistance is being given to State Governments for establishment of District Centres for English language teaching. The augmentation of the activities of these institutions will require additional provision.
Roles 23. The language institutions of the Ministry and NCERT will provide academic and technical inputs in the form of prototype textual materials, modules for inservice training of teachers, training of key personnel, software for computer-aided instruction and for transmission through radio and television, etc. The implementation of the plan of action on a sufficiently large scale, covering as many institutions as possible, will be the responsibility of State Governments/State Boards of School/ Secondary Education and universities. For instance, once objectives of language teaching and specification of language abilities have been determined necessary changes would have to be incorporated in the syllabi, text books and scheme of examinations. In respect of universities, the University Grants Commission and universities will assume responsibility for above functions.
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Monitoring 24. The Kendriya Hindi Sansthan for Hindi, the CIEFL for English and the CIIL for modern Indian languages will, in collaboration with other institutions, assume the responsibility for providing research and training inputs. U.G.C. can coordinate and support the programmes. for university students and teachers. These organisations will also be involved in monitoring the plan of action.
TRANSLATION OF BOOKS AND PREPARATION OF BILINGUAL AND MULTI-LINGUAL
DICTIONARIES
Present Status 25. At present translation of worthwhile books and their production is undertaken by a number of governmental and nongovernmental agencies the National Book Trust, the Sahitya Academy and State Academies, private publishers etc. However, the availability of the translated books in different Indian languages does not seem to be satisfactory. Dissatisfaction with the quality of translation has also been voiced which may be due to non-availability, in sufficient number, of good translators.
26. As regards dictionaries, the Central Hindi Directorate has already brought out 19 dictionaries. The manuscripts of other 41 dictionaries are either in press or in various stages of preparation. The Commission on Scientific and Technical Terminology has also brought 23 definitional dictionaries on science and social science disciplines. Similarly, the Bureau for the Promotion of Urdu has published seven glossaries while work on 8 dictionaries is in progress. The State level agencies also undertake similar work. The Central government is also assisting in the preparation of dictionaries in Sanskrit. The activities of the governmental agencies do not represent the total effort. Private publishers also bring out bilingual dictionaries.
Pre-requisites 27. Information on the magnitude of current effort is not available. There is, therefore, need for surveys which will indicate (a) extent of existing governmental and non-governmental effort (b) capabilities of agencies undertaking translation work and (c) arrangements for training of translators.
28. As in the case of translations information on the magnitude of the total effort and its quality is not available in respect of dictionaries. A status report on dictionaries available, their quality and facilities for preparing dictionaries at different levels, is needed. This study should also provide information about the gaps that exist. The Central Hindi Directorate and CSTT, in collaboration with State level agencies, could be entrusted with this responsibility.