NAVODAYA VIDYALAYAS
THE ARGUMENT : The NPERC has not specifically elaborated its own line of thinking regarding the Navodaya Vidyalaya Scheme. It has only listed the arguments made before it for and against the scheme and then suggested three alternatives for the consideration of the Government. However, the considerations that appear to have weighed with the NPERC can be Inferred from the nature of its recommendations regarding the scheme. These appear to be as follows :
- There is a doubt regarding the propriety of incurring such heavy expenditure on a relatively small number of students.
If the Navodaya Vidyalaya scheme is considered in isolation, then, perhaps, there is some force in the argument against heavy expenditure on a relatively few, particularly in the context of over- all limited resources.
However, it would not be proper to view the Navodaya Vidyalaya Scheme as an isolated investment decision, rather it should be viewed in the context of the totality of the educational Perspective , as , indeed , NPE , 1986 has done. NPE envisages a large overall increase in educational expenditure - almost doubling the proportion of GNP devoted to education, raising it at least to 6%. In the context of overall general improvement In education at all levels, the Navodaya Vidyalaya Scheme was envisaged in pursuance of paras 5-14 and 5-15 of NPE-1986 to cater to the special needs of children with special talent or aptitude, serving the objective of
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excellence coupled with equity and social justice and promoting national Integration by providing opportunities to talented children, particularly from rural areas, to develop their potential in free residential schools. These schools are also to play a pace-setter role - by creating a pool of resources to be used by neighbouring schools, and new initiatives and Innovations which could bring about an overall change In the educational system. The scheme seeks to achieve objectives which fit well In the overall educational scenario envisioned In NPE.
As regards the actual cost of education In Navodaya Vidyalayas, while it is t rue that imparting education to children in a good residential school of this character is relatively expensive, the cost In the Navodaya Vidyalayas has been kept as low as would be possible consistent with the objectives of the scheme. The earlier,annual expenditure per student of Rs.9,582/- in 1988-89 has now, with the increase in the number of students, actually come down to Rs.7,474/in 1990-91. However, although the overall cost per child has shown a declining trend, yet there is need for constant review to keep it as cost-effective as possible.
It has been suggested that in reality the scheme may be working to benefit relatively privileged students. The validity and reliability of the admission tests conducted has been -called into question in this connection.
The concern expressed on this point raises a basic issue. The scheme is still relatively new and it is difficult at this stage to make a very conclusive assessment.A study conducted in 1988 did indicate that above 40% of entrants were from families below the poverty line and about 16% were first generation learners. The proportion of SC and ST admissions has also been reasonable, viz., 19% and 11% respectively. The academic results of the first Board
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examination faced by Navodaya Vidyalaya students, viz., the Class X CBSE examination 1991, were very good, which would also tend to confirm the validity of the selection procedure and the Implementation of the scheme.
Nevertheless, the importance of this Issue must not be minimised. The validity and reliability of the selection procedure goes to the heart of the whole scheme. If the selection procedure is valid and reliable, then the objectives of the scheme will be achieved substantially despite other possible short-comings In implementation, but if it is not then no amount of other Improvements in the scheme will undo the damage done by defective select ion of candidates for admission. There has not been any objective external evaluation of the selection procedure. There is also need for establishing simple correlation between initial test performance and subsequent performances, and an attempt to profile the candidates appearing and those selected for the admission test on an objective basis. A procedure of periodic review and monitoring of these aspects by the Samiti in consultation with the agency that conducts the examination may be helpful and such modifications as may be necessary may be made on a continuing basis.
There were also doubts regarding the soundness of the present language formula which involves the teaching of science through English and Social Studies through Hindi in class IX onwards.
The present language formula followed in the Navodaya Vidyalayas has, been introduced after due consideration of all aspects. Under this pattern, the medium of instruction is the regional language initially, with Hindi and English being taught as subjects. In the higher classes, Science subjects are taught through the medium of English and Social Studies through Hindi, while the regional language continues to be a subject of study. Where Hindi is the regional language,
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another modern Indian language is taught as a subject.
The Navodaya Vidyalayas are envisaged as a nation-wide family of like Institutions and migration of a large proportion of students from schools of non-Hindi speaking areas to those of Hindi-speaking areas and vice-versa, Is an essential feature of it. This scheme should In course of time create a group of well-educated young people who have been brought up In an environment which is conducive to national Integration and devotion to national ideals and to our Constitution, who coming largely from rural areas may become a great source of strength to the nation. Such a group of students should also be able to get the best education available in the country. The language scheme adopted for the Navodaya Vidyalayas will enrich them in their further studies.
As regards the pedagogical soundness of this language formula, while such a formula may not be without its problems, it is one which has already stood the test of time In the Kendriya Vidyalayas, and the experience of the Kendriya Vidyalayas has been taken into account. The available information as reflected in academic performance in the CBSE examination also tends to confirm that this formula has been advantageous to the students.
A point has also been made that the Centre has unnecessarily gone into an area which legitimately belongs to the States
The need to nurture talent amongst students from as early a stage as possible has long been recognised. The National Policy on Education, 1968 stated that, for the cultivation of excellence, it is necessary that talent in diverse fields should be identified at as early an age as possible and every stimulus and opportunity given for its full development. NPE, 1986 also accepts this principle and
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states that children with special talent or aptitude should be provided opportunities to proceed at a faster pace by making good quality education available to them irrespective of their capacity to pay for it. The scheme of Navodaya Vidyalayas alms to achieve these objectives. In order to bring about consistency In the scheme, and to fully serve the objectives of national Integration, It Is necessary that the scheme is Implemented centrally. Besides, handing over the scheme to State Governments would subject it to the financial and other compulsions which affect the educational system In several States. In addition, there would be the likelihood of weaker States not being a position to fufil the objective of the scheme as well as the more economically and educationally advanced States. Moreover, most of the States have actually evinced keep interest in taking advantage of this scheme and there is an increasing demand to open more Navodaya Vidyalayas.
A further criticism made of the scheme was that it was unlikely to achieve the -intended pace-setting role as these Navodaya Vidyalayas were allegedly cut off from and alienated from the local community and local schools.
As regards the pace-setting role of Navodaya Vidyalayas, one has to acknowledge that these institutions are still very new and that it is too early to judge them in regard to this role. As of now, all efforts are being made to ensure that this is done over a period of time. The institutions do not appear to be alienated from the community. Most of the students are from the rural community of the same area, and this circumstance itself promotes a vibrant relationship between the school and the community. There are other external factors also which influence the pace-setting role and these relate to the operationalisation of DIETs, the development of school complexes, etc.
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SUMMARY: -NVs should not to be seen in Isolation from rest of NPE, 1986. In overall context, they aim to meet one major need/objective without disproportionate attention to few as feared. -Such measures as may be feasible should be taken to make the scheme more cost-effective. -The objectives of NVs remain valid. -Available evidence suggests considerable success in serving the target groups. -There is need for continuous evaluation and monitoring of selection process. -Language pattern is a compromise between conflicting considerations, already tried and tested in Kendriya Vidyalayas. -It is premature to judge the pace-setting role.
II. Analysis of recommendation No.103 of NPERC: The NPERC has not made specific recommendations regarding Navodaya Vidyalayas but has indicated three alternatives, which are reproduced and discussed below:-
1. First alternative No further Navodaya Vidyalayas need be opened. The existing 261 Navodaya Vidyalayas may be restructured and continued with provision of adequate resources. The scheme may also be reviewed at the end of 199293, with well spelt out terms of reference.
2. Second alternative All the existing 261 Navodaya Vidyalayas may be transferred to the State Sector for the States to run them as residential centres on the Andhra Pradesh
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model.
3. The third alternative: The Navodaya Vidyalaya scheme may be transferred into a Navodaya Vidyalaya programme of broad based talent nurturing and pace-setting. (A day-school each under the common school system can function in the premises of the Navodaya Vidyalayas).
The main argument in favour of the first alternative would be that In view of the possible limitation of resources, the quality of Implementation of the scheme Is likely to suffer If a rapid rate of expansion is continued. Clearly, unless sufficient outlay is provided, there may be a case for slowing down expansion of the scheme. This does not, however, mean that there should be-no expansion at all. Considering the demands put forth by the State Governments f or more and more Navodaya Vidyalayas, there has to be commensurate expansion of the scheme. In fact there is such pressing demand from the States that there may be no alternative to setting up a NV in all the districts of the States which have accepted the scheme.
The argument of the NPERC could be based on the alleged need to make a review of the scheme before further expansion. While such a scheme should be kept under continuous objective review and evaluation for the reasons already discussed, that in itself is no reason for slowing down or stopping implementation of the scheme. Rather the two activities of review and implementation should be seen as going hand in hand.
Handing over the scheme to State Governments as suggested in the second alternative would be contrary to the basic objective of the scheme which is to select and provide good quality education to gifted children on a national basis and furthering the cause of national integration. Secondly,
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It is by no means certain that all State Governments would be able to Implement such a scheme which would be a new activity for many of them and an encroachment on their existing limited resources, both financial and administrative/academic. This would create inequalities as between States with different levels of resource availability - both financial and human resources. Thirdly, It would involve duplication of efforts and prevent the pooling of academic resoruces for development and monitoring of academic activities etc. It may also be mentioned that the scheme has In fact been welcomed by all the State Governments with the exception of West Bengal and Tamil Nadu.
The strategy proposed in the third alternative appears somewhat nebulous and also much more difficult of implementation in the conditions of rural areas where schools are widely scattered. The intention appears to be to combine the functions of a Bal Bhavan and DIET in one place in a district, along with a lead day school serving only the particular village or locality. It is felt that this would be a very complex and expensive project and, in terms of the investment required for it, both financially and academically, it is unlikely to be cost-effective.
In conclusion, the implementation of the scheme could-be monitored and evaluated on a continuous basis and corrections made according to the results of such evaluation. Since it serves a group of talented children pre-dominently from rural areas regardless of their socio-economic background, it would be inadvisable to undermine the programme in any way.
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SUMMARY - NPERC makes no clear recommendations - rather puts three alternatives before the Government.
- First alternative :
Stop expansion and review after two years.
Resources constraint has already slowed expansion. No justification for stopping expansion and reviewing the scheme merely for sake of review and evaluation Implementation and review may go hand in hand.
- Second alternative
-Transfer of NVs to State Governments.
Uniformity and national integration are essential features of the scheme which may not be achieved as enivsaged if NVs are transferred to State Governments.
State Governments' capacities to implement such a scheme are unequal.
- Third alternative
Transform NVs into a programme of broad based talent nurturing and pace-setting.
The idea is nebulous. it would be complex, difficult and not cost-effective.
It would be inadvisable to undermine the programme in any way.
III. Details of Developments since formulation of NPE The main development since NPE in regard to Navodaya Vidyalayas has been the relatively successful implementation of the scheme, but at a slower pace than originally
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envisaged, because of paucity of resources.
Initially an outlay of Rs. 500 crores was envisaged in the Seventh Five Year Plan, but the actual progress of the scheme was as follows:
Year No.of Budget Actual Remarks
NVs provision expenditure
opened (in crores) (in crores)
1985-86 2 2.00 2.00
1986-87 81 18.00 17.28
1987-88 126 69.00 71.87
1988-89 47 69.30 79.30
1989-90 5 79.30 79.30
1990-91 Nil 42.38(NP) 45.38(NP)
35.00 (P) 52.00(P)
During 1990-91, no new Navodaya Vidyalayas were opened pending review of the scheme by NPERC, but 14 have so far been opened in 1991-92. As on 31.3.91, there were 64,517 students in the Navodaya Vidyalayas. The following positive Indicators regarding the scheme may be mentioned.
(1) This year candidates from 83 Navodaya Vidyalayas appeared for the class X examination. The results of Navodaya Vidyalayas were extremely encouraging, even better than those of private schools.
(2) The schools are undoubtedly popular as reflected in the number of candidates seeking admission and the demand for opening of new Navodaya Vidyalayas.
(3) The available information also suggests that these schools are successfully serving their social purpose. Among the selected candidates for admission 78% belong to rural areas, 19% belong to the Scheduled Castes and 11% to the Scheduled Tribes, which is in excess of the prescribed
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minima of 15% and 7 1/2 respectively. 27% of admissions were of girls. A provisional study through the Principals of children selected for admission in 223 Vidyalayas showed that 40% of the children selected came from families of an Income below the poverty line and 16% were first generation learners. This data needs to be updated and collected systematically , prefereably through external evaluation, but It does suggest a satisfactory general picture.