 MANAGEMENT OF EDUCATION

THE PRESENT SITUATION

Educational planning will need to be linked to manpower planning by setting up mechanisms for assessing the needs of the industry, commerce, professional services, agriculture in the context of the technological trends and growth strategies. Based on different assumptions indicating the level and structure of income and income distribution, nature of technologies likely to be used in different capital-labour coefficients, structure of employment and job/skill profiles required, alternative scenarios of development for the next 15-20 years and the task for education derived from such scenarios will require to be formulated. At present no agency has either the capacity or the responsibility to undertake the kind of exercise required even in quantitative terms, to link long term planning of education to match developmental and manpower needs in the country. This capacity of manpower demand forecasting will have to be provided for in the overall structure for the management of the educational system.

POLICIES AND IMPLICATION FOR STRATEGY

2. The management design and process for education are derived in the context of objectives and the- specific functions of the education process. In order to achieve the objectives of universalisation of elementary education and eradication of illiteracy the implementation process will require special measures to be taken to ensure that the groups who are left out of the ambit of education namely the weaker sections of the society including SC/ST and women and, adult illiterates in the age-group 15-35, are enabled to participate effectively as beneficiaries of the relevant educational programmes so that achievement of national goals and objectives could be ensured. This would call for a planning model which would have the flexibility to cater to the immense diversities encountered in, the context of universalisation of elementary education, equalisation of educational opportunities especially in respect of disadvantaged sections and reorienting the content and process of education. Decentralisation of the planning and management process within a multilevel framework appears to be inescapable for the implementation of educational programmes.

3. Decentralisation, as far as education at higher levels,namely at under-graduate/post-graduate or at the level of polytechnics, technical colleges etc. is concerned, would be required essentially to allow the exercise of initiatives and making of innovations by teachers, students and management with a view to enhancing the relevance and improving the quality of education. In order to make the system work effectively, it will be essential

197

not only to distinguish carefully between roles and responsibilities, but also to define for each of the functions performed, the section or group towards which various authorities will be accountable. In addition, to perform the functions for which accountability has been defined, operational autonomy and the requisite authority and powers for the management of institutions will have to be matched with each other. In this context, some institutional arrangements will have to be established which would have the authority as well as the resources to encourage institutions with a good record in respect of innovations and adherence to academic schedules, processes and programmes and the attainment of students and, in an appropriate and effective manner, ensure that those not fulfilling their obligations come to adverse notice of all concerned. Rigorous systems of performance audit against practical and objective performance will have to be laid down and enforced through incentives and disincentives.

4. The National Policy on Education gives pre-eminence to people's involvement, including association of non-governmental agencies and voluntary effort. People's involvement should, even more than non- governmental agencies and voluntary associations, mean involvement of parents, developmental agencies, employers, professionally competent teachers and representatives of financing bodies with educational processes at all levels. People's involvement should lead to establishment of closer linkages between educational institutions and the community, improvement in relevance and quality of education, reduction of absenteeism and irresponsibility, greater access to community resources and better discipline in the management of educational institutions. At the same time, it should eschew importation of local politics and power play into educational institutions.

PRIORITIES AND MACHINERY FOR IMPLEMENTATION

5. The following areas identified for implementation of the National Policy on Education will deserve priority attention:

(a) making the system work;

(b ) decentralisation of management and establishment of District Boards of Education, District Institutes of Education and Training (DIET), provision of autonomy and establishing accountability of institutions, systems and teachers;

(d) manpower planning and Demand Forecasting;

(e) media and Educational Technology with special reference to Adult Education, Non-formal Education, Open and Continuing Education;

198

(f) development and periodic review of curricula and teaching-learning processes;

(g) strengthening the data base; monitoring and evaluation system.

6. The CABE may consider looking into details of implementation of National Policy on Education in the above mentioned areas through appropriate committees.

7. It was recognised that the main areas of central responsibility in respect of the management functions include determination of national priorities, evolving strategies through the participation of concerned agencies, laying down guidelines for formulation of programmes and schemes, providing continuous technical back-up and resource support, undertaking monitoring and evaluation and creating conditions for the maintenance of quality and efficiency.

NATIONAL LEVEL MECHANISM

8. Considering the responsiblity vested in the Government of India and the role it is expected to play especially, in respect of universalisation of education and establishment of a National System of Education, immediate steps will have to be taken to strengthen the Departments under the Ministry of Human Resource Development dealing with the NPE. This strengthening will, inter alia, involve setting up of effective mechanisms for exploratory studies for collecting inputs for programme formulation; participative field studies to assess the effectiveness of on going programmes and provide on-the-spot guidance; cellular structures for handling the tasks of project/programme formulation and appraisal and, administrative and financial management of programmes for which the Centre will hereafter be equally responsible along with the States; and performing the clearing house functions for exchange of relevant experiences between States.

9. While considering the restructuring of programmes at the central level, the desirability of placing programme planning, implementation of policy, monitoring, guidance, interpretation of NPE under one authority may be considered.

10. Because of historical reasons, government has tended to assign an increasing measure of responsibility for the implementation of even State administered educational programmes to bodies which, because of their autonomous and central character, could not negotiate with the State agencies with the requisite blend of firmness and flexibility. It has also been observed that wherever these bodies have accepted to function as "agencies" for the government, they have had to compromise with their creative research and technical responsibilities. In view of this, two essential decisions are called for: the first is with regard to the role of the Government itself which now has to assume larger responsibility for motivating and, within a multilevel framework,

199

ensuring proper management of the programmes for which central government will be making large provisions; and secondly, to establish the role and responsibilities and availability of autonomous bodies more sharply.

STATE LEVEL MECHANISM

11. The State Governments will consider creating a framework for integrating all the activities concerned with human resource development through the State Advisory Board of Education which will perform as an umbrella organisation for this purpose.

12. In setting up the State Advisory Boards of Education, the State Government will, for getting a wider over-view, consider giving adequate representation to educationists of national standing, who are actually involved in innovative and experimental work in education, inducting some from other States; planners, scientists, industrialists and representatives of Development Departments. Representation from women and youth will be ensured in this body. Representation will be given not only to distinguished teachers functioning at different levels of the educational hierarchy, but, also to parents who, more than any other group, have a critical stake in the effective functioning of the educational 'system. Systematic nurturing of parents, participation and involvement is, even otherwise, advocated as an urgent need for strengthening the educational system. Besides, these, representatives of voluntary organisations and trade unions participating in educational programmes will also have to be associated with the SABE.

13. The arrangements for planning and coordination of college and university education at the state level at present are inadequate. States with large number of universities will set up State Councils for Higher Education to review performance, determine financial requirements and plan for innovations and inter-se network. These Councils will have, besides the Vice-Chancellors and officials, Vice- Chancellors of Central Universities if any in the State, distinguished educationists as well as representatives of the Central scientific, education and resource institutions as and such other persons as may be considered necessary, as members.

14. At the state level also administrative arrangements will be strengthened and reorganised in view of the priority assigned in the NPE to the implementation of programmes of universalisation of elementary education, non-formal education, eradication of illiteracy, establishment of the National System of Education as well as monitoring and evaluation of all priority programmes.

INDIAN EDUCATION SERVICE

15. The establishment of an Indian Education Service will be an essential step towards promoting a national perspective on management of education. Basic principles, functions and procedures for recruitment to this service will call for detailed consultation

200

with the States so that the States adequately appreciate the need and benefit of this structure, particularly in the context of attracting talented personnel and giving them a stature commensurate with their responsibilities. Detailed proposal inclusive of alternate career paths for the cadre, processes of selection and induction of existing manpower engaged in education arrangements for mobility between the State and the Central Government and the scope for lateral movement as well as mobility and secondment vis-a-vis the academic system will require to be worked out in consultation with the State Governments.

TRAINING OF EDUCATIONAL PLANNERS, ADMINISTRATORS AND HEADS OF INSTITUTIONS

16. Educational planning and management requires separate identity and separate attention; special schemes for research and development in this area will be launched as soon as possible.

17. In addition to specialised institutions at the national and State levels, for the training of educational administrators and heads of institutions, Institutes of Management and other similar organisations will also be motivated and enabled to take up management development and training programmes, as well as policy-oriented research in these areas through documentation of case studies of real life situations and action research for institutional development.

18. Training of senior level personnel will be designed to provide some exposure to educational perspective and the role of education in social development and, in addition, include institutional planning and development, curriculum planning and, programme evaluation and review techniques.

19. For Heads of Institutions training in financial rules and procedures, legal provisions governing educational activities, personnel management, programme planning and data management and review techniques will be considered essential.

20. Before training is initiated, the objectives of the training programme for various categories of personnel like planners, administrators and heads of institutions will be defined in terms of job profiles of various levels of personnel and the required expertise skill and, institutional development.

21. Pre-induction training will be prescribed as an essential requirement for personnel selected as Heads of Institutions. Further, their confirmation in grades of Heads of Institutions will be subject to satisfactory completion of periods of probation as may be prescribed in the relevant recruitment rules.

MACHINERY FOR IMPLEMENTATION AT DISTRICT LEVEL

22. District Boards of Education will be set up with the responsibility for implementation of all educational programmes

201

including, school, non-formal and adult education upto the higher secondary level. The Boards will also be vested with the responsibility for planning which would include inter alia, area development, spatial planning institutional planning, administrative and financial control and personnel management with respect to primary, middle, secondary and higher secondary schools.

23. The District Boards will be required to formulate development strategies and plan educational activities of these institutions mentioned for the entire district. These plans will, interalia, look Into the settlement pattern of habitations, distribution of educational institutions, the demographic profile and projections. The District Educational Plans will also go into the levels of participation and retention of boys and girls under different age groups by socio-cultural and economic categories and plan for measures for ensuring not only for physical infrastructure and a more equitable access to all but also for the qualitative aspects of education.

24. The need for ensuring that the decisions at the State level regarding various educational programmes should invariably take into account the plans drawn up and suggestions put forward at the district level would call for special emphasis.

25. Considering the planning and management model envisaged, and their functions, unless the District Boards of Education are vested with appropriate statutory authority, these bodies cannot effectively manage the functions entrusted to them.

26. In such States where administration and management of education already constitute the responsibility of Panchayat Raj bodies, the composition of the District Boards of Education will in consonance with the existing management structure of the Panchayat Raj bodies. In States where Panchayat Raj institutions are not in existence, the composition of the District Boards of Education will take into account the need for representation of educationists, women, youth representative of parents, Scheduled Castes/Scheduled Tribes, minorities and interests of representative institutions in the district if any.

27. In order that the District Boards of Education discharge the functions allotted, it would be necessary to assign State funds for implementation of the various programmes. Provision will also be made while constituting the statutory authority to enable the District Boards of Education to raise their own resources. Some un- earmarked funds will also be placed at the disposal of the District Boards by the State Governments so that District Boards can use these resources for any purpose that may be considered essential by raising matching funds of their own.

28. The relationship of the State Government with the District Boards of Education in terms of administrative and financial control and personnel management vis-a-vis primary, middle, secondary and higher secondary levels will need to be clearly

202

spelt out in appropriate guidelines to be issued by the State Governments. It will also be necessary to spell out clearly the levels of recruitment and structure of cadres of teacher of different categories. The State Governments will take the measures required to constitute District cadres of elementary school teachers.

29. There will be a Chief Education Officer for the District to look after all levels of education primary, middle and secondary. Under him there will be a District Education Officer looking after establishment, budgeting, planning and the educational data base. In addition there will be district level official of appropriate rank engaged in specific educational programme.

30. Implementation of different educational programmes at the District level, will be supervised and monitored by the District Boards of Education which will oversee all aspects of educational development.

31. Monitoring of all educational programmes for implementation in the District will take place at the State level and relevant indicators to establish inter-district comparision will need to be worked out. The resources to be transferred to the District will be linked to the performance and achievement.

32. For ensuring quality of education in educational institutions at different levels, consideration will be given to appointment of District Inspectors of Education to look after academic functions exclusively. Such functionaries who will be selected with due regard to their understanding of the academic functions to be performed, will be responsible for looking after the academic standards in educational institutions, provide academic leadership and help in better performance of their academic functions by heads of institutions and teachers.

33. The District Institute of Education & Training (DIET) under the District Board will be responsible for making substantive curricular and pedagogic inputs into all programmes of education at the district level and will also be responsible for training of personnel and provision of resource support to programmes including adult education.

MANAGEMENT OF EDUCATION