17.17 The Strategy. Planning for literacy must reckon with the magnitude and complexity of the situation obtaining in the country. It is not proposed to analyse the position in this chapter; but a picture of the size of the undertaking can be formed by the fact that there are, according to the 1961 Census, 189 million non-literate adults (age-group 15+) in the country urban areas have a much higher literacy (47 per cent) than the from areas (19 per cent ). The map of literacy shows very wide variation from the areas to area in the country and ranges from 52.7 per cent in Delhi to 1.8 per cent in NEFA.*209 is also a wide variance in literacy among men and women in different parts of the country, and among different social groups. Motivation for education varies from area to area depending upon several factors such as development of education and industrialization. Obviously there can be no single or simple approach to tackle the problem; each situation will need very special investigation and remedial measures will depend upon such opportunities as are locally at hand or can be made available. We feel that we can only indicate certain general principles.

17.18 We recommend a two-fold strategy for combating illiteracy in the country which, for the sake of convenience, we may call:

(a) the selective approach; and

(b) the mass approach.

Programmes planned on the basis of the two approaches should go hand in hand; they should not be considered to be alternative.

209* 1961 Census figures.

17.20 ADULT EDUCATION 785

17.19 The Selective Approach. The selective approach is specially suited to groups which can be easily identified, controlled and motivated for intensive literacy work. The specific needs of these groups can be ascertained and purposeful literacy programmes prepared to meet them. It is easier to handle such groups and investment on literacy for them can yield comparatively quick and gainful results. A further advantage of the selective approach that the literacy programmes can include training which Aft advance the occupational and vocational interests.

17.20 By way of illustration, we suggest the following instances where selective programmes can be introduced immediately with great profit:

(1) Industrial and commercial concerns employ a considerable work force of which about 40 per cent are non-literate. The problem is big enough to need attention. We recommend that all employers in large farms and commercial, industrial, contracting and other concerns should be made responsible, if necessary by law,for making their non-literate employees functionally literate within a period of three of their employment. The responsibility of educating them should be squarely on the employers who should release them, in accordance with an agreed programme, for such education. They should also provide incentives to the non-literates and otherwise induce them to make a serious effort to learn. Government should bear all educational costs and supply the teachers, books and other teaching materials. We have no doubt that enlightened employers will find it of advantage in the long run to educate their workers.

(2) We further recommend that the big industrial plants in the public sector should take the lead immediately and set the pace in this important programme.

(3) All economic and social development plans have their human aspect and involve a large number of persons who have had no schooling. It is, therefore, logical that every development project in whatever field- industrial, agricultural, commercial, health, education or any other-should include, as an integral part, a plan for the education of its employees, more especially of those who are non-literate.

(4) A series of schemes are launched by Government for economic betterment of the people and for social welfare. For instance, the Khadi production scheme of the Khadi and Village Industries Commission or the scheme of applied nutrition and child welfare programmes of the Community Development Department, involve several lakhs of women. We suggest that literacy programmes should constitute an essential ingredient of all such schemes.

786 EDUCATION AND NATIONAL DEVELOPMENT 17.21

These illustrations are by no means exhaustive. Planners of literacy programmes should be on the look-out to locate and develop others.

17.21 The Mass Approach. The essence of the mass approach lies in a determined mobilization of all available educated men and women in the country to constitute a force to combat illiteracy and an effective organization and utilization of this force in a well-planned literacy campaign. This approach is unorthodox but not untried. Whereas the selective approach is tied down by its inherent limitations and is by its very nature ineffective as an overall solution, the mass approach can achieve a real break-through. The mass approach was a remarkable success in the USSR. In a different way and on a smaller scale this approach was attempted in Maharashtra through the scheme of Gram Shikshan Mohim. The Mohim exploited the local villa e patriotism to eliminate illiteracy from the village and required the teachers and all local educated men and women to work for literacy. The scheme cost very little and its gains were much more than what could be measured in terms of literacy. Its critics have referred to certain inadequacies in the preparation for the Mohim. and to weaknesses in the follow-up work. These defects can be remedied.

17.22 The responsibility for initiating a massive move to combat illiteracy goes beyond the capacity of the administrative and educational system. It rests squarely upon the political and social leadership of the country. The success of this approach depends upon the strength of the conviction of those who are at the helm of national affairs, that illitracy impedes national development as well as upon their ability to carry conviction to the people and to generate strong enthusiasm and motivation. We are convinced that if the nation is determined to make the country literate and to make the effort and sacrifice commensurate with the undertaking, India can become a literate nation within the foreseeable future.

17.23 Adult education is by nature a voluntary activity; the basic driving force is, therefore, the individual motivation of the adult. It may be clear to planners, educators and administrators that national security and integration, productivity and population control, health and general welfare of the people would improve through widespread adult education and training. This may not be so immediately apparent to the individual farmer or urban dweller that he would willingly sacrifice several hours in order to acquire such education. It is essential that the literacy programmes should be presented in ways which are meaningful to the adult and related in dear and understandable ways to the environment and to the conditions which he knows.

17.24 A mass literacy campaign depends largely upon the voluntary

17.26 ADULT EDUCATION 787

services of all educated people. including government servants, employees in public organizations, lawyers, doctors, engineers and others. But the main brunt of the campaign will fall on the teachers and students in schools and colleges and considerable responsibility for organization will fall on educational institutions of all kinds. We recommend that the students in the higher primary, secondary, higher secondary, vocational schools and those in the undergraduate classes of the universities and colleges should be required to teach adults as a part of the compulsory national service programme which we have considered elsewhere.*210 It is equally necessary to require the teachers in schools of all types to teach and to participate in the campaign when they are called upon to do so. Work for adult literacy should be a part of their normal duty. In order to help them to do so it may be necessary either to give them relief from normal school work or to remunerate them for adult literacy work. Their services should be available for work connected with adult education whenever required. Every educational institution should be required to run literacy classes regularly and should be given responsibility for liquidating illiteracy in a specified neighbouring area the size of which should be determined by the size of the school staff and the number of students available for literacy work.

17.25 The New Function of the School. The new responsibility related to adult education will imply a significant change in the function and outlook of the school. The area of its main concern will not be confined to the school children; it will embrace the entire local community which it serves. It will be required to function as a centre of the life of the community. It will need to be transformed from a children's school to a people's school. It follows that it will need to be equipped and serviced as a centre of the community and an important base for extension services. It will require, among other aids, a library, radio sets, exhibits, posters, models and other materials necessary for adult education.

17.26 Conditions Necessary for the Success of Literacy Programmes. A word of caution is necessary. No adult literacy drive should be launched without prior planning and careful preparation. While we do not suggest that years of study and survey of every area are necessary before a programme is launched, we believe that attention to the more important points mentioned below will pay dividends and avoid frustration:

(1) Before a programme is launched, all political, social and other leaders as well as all government departments should be involved in awakening interest and mobilizing support for it.

(2) The adult non-literates to be enrolled in the programme should

210* Chapters I and VIII.

788 EDUCATION AND NATIONAL DEVELOPMENT 17.26

be psychologically prepared and motivated for it. They must be made to realize what literacy would mean to them and feel convinced that such effort and sacrifice as they make win be worth while.

(3) The widest use should be made of the mass media of communication for awakening and sustaining the people's will to learn and for giving them general support throughout the operation of the programme and after. The radio, television, films, the spoken word, and all other media should be utilized for creating and maintaining an atmosphere which will be conducive to the success of literacy work.

(4) The material required for adult education programme should be prepared well in advance and should be available in sufficient quantities when the campaign is launched. These should include textbooks and other reading material, charts, maps, guide books and other instructional material and aids for the workers.

(5) Literacy programmes should be carefully planned with due regard to local conditions and requirements. In addition to imparting skiffs in reading and writing, they should help to improve knowledge and skills relating to the profession of the non-literate adult; make him aware of the important problems of the com- munity, his country and the world and of the need for active participation in important national programmes such as population control and give him some understanding of the fife and culture of the country.

(6) Literacy programmes should lead the neo-literate to continuing education. Literacy succeeds best when a person learns to use his knowledge to solve his problems through self-effort and to profit by the avenues to further knowledge such as schools, libraries and museums. A well-designed follow-up plan is an essential part of literacy programmes.

(7) It should be clearly realized that literacy programmes, as we visualize them, cannot be left to the teachers alone. The work of teachers should be supported by: (a) extension services of the universities and of such departments as industries, agriculture, public health, cooperatives and community development. These extension services should mainly help to improve knowledge, skiffs and practices related to the professions of the people; and

(b) mass media of communication and more particularly All India Radio should be used for awakening the consciousness of the adult non- literates towards their responsibilities to civic life and to vital programmes of national development.

17.27 ADULT EDUCATION 789

(8) The effects of literacy programmes will be short- lived unless they are supported by the establishment of libraries and a continuous supply of good reading material and newspapers.

(9) A carefully thought-out plan of action should envisage the training in advance of the local leadership including civic and other authorities. Those involved should be acquainted with the details of the action planned and with the specific role they are required to play in carrying it out.

(10) Students and educated persons who volunteer to teach should be given a short training in the methods of teaching and dealing with the adults. They should also be provided with guide-books and other helpful material.

(11) An efficient machinery for administration and supervision is needed and should ensure involvement of voluntary agencies and support of vigilant evaluation and research.

(12) Planning for literacy must visualize the activities which should continue after the intensive literacy campaign concludes. Those involved in the literacy programmes should be encouraged to help one another to continue to learn and, to this end, constitute study groups, associations, clubs or recreational groups.

(13) Public commitment, support and enthusiasm are vital to the success of the literacy programmes. Public appreciation of the success of the programme, its concern when the activities slow down, its participation in improving its procedures, its encouragement of those who do outstanding work are all factors of extreme importance. Public involvement and support should be kept alive with the help of newspapers, leaders or social and political life, of learned societies, and other agencies.

17.27 Literacy for Women. The state of literacy among women is particularly distressing. The Census of 1961 showed that 34.5 per cent of the women in urban areas and only 8.9 per cent of them in rural areas were literate. It is universally acknowledged that unless women become educated, there is little hope for social transformation. Yet, efforts to make adult women literate are negligible. We cannot too emphatically recommend the urgency of initiating bold, imaginative and effective measures for stepping up literacy among women, particularly those in the rural areas. It is unnecessary in this Report to consider at any length what factors hinder operation of literacy programmes among women. It is well known that motivation to learn among women is weak; the social environment tends to be hostile for organizing literacy campaign among women; the women themselves have little leisure and they certainly cannot count on hours when they will be free to learn. The

790 EDUCATION AND NATIONAL DEVELOPMENT 17.28

most difficult problem is to find teachers for women. Some of the difficulties will be solved by the suggestion we have made for employing school children to teach; children could be made to deliver education to women at their door step at hours convenient to them. There would be little social objection to the `little teachers' visiting homes for teaching women.