EDUCATION AT MIDDLE STAGE
1. Article 45 of the Constitution contains the directive that education for children up to 14 years, that is, up to middle stage has to be provided on a universal, free and compulsory basis. The middle stage in India comprises two to four years of schooling after the first four or five years of the primary stage according to the pattern of classes in different States and Union Territories. The progress of middle education in India has not been satisfactory and we are still far away from the target laid down in the Constitution. At the commencement of the Five Year Plans, the enrolment at the middle stage constituted only 12.7 per cent of the children in the corresponding age groups. The percentage figures for boys and girls separately were 20.7 and 4.5 respectively. By the end of the First Five Year Plan, the overall percentage was raised to 16.5 and the corresponding percentages for boys and girls separately were 25.5 and 6.9 respectively. In 1960-61, that is, at the commencement of the Third Five Year Plan, the enrolment at the middle stage constituted only 22.8 per cent of the population in the age group 11+ to 13+. The target for the Third Five Year Plan was 28.6 per cent (39.9 per cent for boys and 16.5 per cent for girls).
2. As at primary stage, an attempt has been made in the present Survey to collect data relating to
(i) provision of schooling facilities to indicate the extent to which the facilities at the middle stage have been made universal;
(ii) enrolment at middle stage; and
(iii) size of middle sections.
SCHOOLING FACILITIES AT MIDDLE STAGE 3. The implications of the universal provision of schooling facilities at middle stage have to be different from those at the primary stage, though in both cases the aim is to provide schools for all. First, easy accessibility of schools has to be viewed differently at the two stages, and secondly, the provision of schooling facilities at middle stage in a given area is determined by the availability of schooling facilities at the primary stage. Therefore, any shortfall in universal schooling facilities at the middle stage is partly attributable to the failure at the primary stage.
4. The First Survey envisaged a separate middle school for a habitation with a population of '1,500 or above'. Habitations with a population of less than 1,500 were tagged to existing or proposed schools up to a walking distance of three miles (with some exceptions) or else they were grouped in such a manner that the total population of these habitations within an approximate distance of three miles around the proposed school was at least 1,500.
5. Regarding the distance limit, the Report of the First Survey states:
.... it is true that 3 miles is a pretty long distance, but looking at the total population of the different habitations and the manner in which rural habitations are scattered as also the economic conditions of the country under which it would be impracticable to have in the near future middle schools in each one of the habitations, this distance limit was considered inevitable. If, however, at a future date any other distance limit is decided upon, the data collected in this survey is so tabulated that it could be easily recast to know what the changes would be as the mutual ditances. between habitations as also their population and the school areas for the primary school within one mile radius are available both in the school area register and on the maps. In Kerala the distance limit of two miles was taken.
6. As regards the population limit the following reasons were given for fixing the criterion of 1,500:
The population limit laid down for a middle school was 1,500 because at the rate of about 7 1/2%, about 110 pupils, according to the 1951 Census, would be available and so an adequate number of children for one class in each standard would be possible. If the population of the adjoining habitations could make up a total population of 1,500, then also a middle school could be proposed. This, however, does not mean that for every 1,500 population one middle school was to be proposed. What was envisaged was if the population of the habitation itself was 1,500 then on the strength of its population it could have middle school and that was to be recommended. In the case of others, however, it was the distance limit of three miles from an existing or proposed school that was to have precedence over the total population of 1,500 and a middle school was to be proposed at the central place provided the total population of the habitations within three miles from that central place was at least 1,500. The distance limit would be, of course, slightly
34 SECOND ALL-INDIA EDUCATION SURVEY
extended or the population limit slightly reduced in special circumstances.
7. The Education Commission in their report have made the following suggestions regarding the criteria:
At this stage, accessibility is the overriding consideration and small schools, in spite of their heavier cost and lower efficiency, must be accepted .... The optimum size of school is .... for a higher primary school, a school of 7 or 8 classes, a teacher for each class (excluding the headmaster) and an enrolment of 300400. Wherever possible, schools of this size (or even bigger ones) should be established. This can be done in all urban areas and in villages of 1,500 persons or more. Since, however, small villages predominate, small schools will have to be established, in spite of their comparatively greater cost and lower efficiency. The general rule should be to establish .... a higher primary school, within three miles. Villages with a population of .... 700 or more should have a higher primary school.
8. The criteria for the location of schools in future will be laid down by the State Governments. Nevertheless, it is necessary to have some uniform basis, at least for the purposes of inter-State comparisons and for a comparison of the findings of the present Survey and the First Survey. It may, therefore, be assumed for the present that habitations without middle sections within the convenient walking distance of three miles are not served by middle sections, irrespective of the population of each. This assumption is made without any implications whatsoever for the criteria for planning the school areas that might be adopted by the State Governments in future according to the conditions obtaining in individual cases.
9. At present 2.31 per cent of the habitations are in population slabs of 2,000 and above. More than 76 per cent of the habitations have populations of less than 500 each. The problem of providing schooling facilities in rural areas at the middle stage, therefore, is a problem of providing schools for small habitations. The grouping of habitations for the middle school stage on a very large scale is inevitable.
Findings of the First Survey 10. According to the data of the First Survey, in 1957, only 26,267 habitations constituting 3.13 per cent of the total habitations were served by middle sections in them and 3,96,542 habitations constituting 47.21 per cent of the total number of habitations were served by middle sections in neighbouring habitations. According to the proposals of the First Survey, 7,48,098 habitations constituting 89.05 per cent of the total habitations were to be served by existing and proposed schools, including 47,992 habitations served by schools in them and 7,00,106 habitations served by schools in the neighborhood. It was felt that 10.94 per cent of the habitations would remain without middle schooling facilities even after the proposals of the First Survey were implemented.
Findings of the Second Survey 11. According to the data of the Second All-India Educational Survey, 69,424 habitations out of 9,82,251,
STATEMENT 14
DISTRIBUTION OF HABITATIONS AND POPULATION ACCORDING TO MIDDLE SCHOOLING FACILITIES AVAILABLE AT
VARYING DISTANCES IN RURAL AREAS
Habitations having middle sections at varying Population having middle sections at
Distance distances varying distances
Number Percentage Population Percentage
1 2 3 4 5
Within the habitation 69,424 7.07 10,09,46,122 25.45
0.1 to 1.0 mile 2,32,015 23.62 8,24,88,062 20.80
1.1 to 2.0 miles 2,43,699 24.81 8,72,07,330 21.99
2.1 to 3.0 miles 1,67,756 17.08 5,55,74,073 14.01
Within the habitation or up to 3.0 miles 7,12,894 72.58 32,62,15,587 82.25
3.1 to 4.0 miles 90,527 9.22 2,69,49,788 6.80
4.1 to 5.0 miles 51,518 5.24 1,41,83,848 3.58
More than 5 miles 1,27,312 12.96 2,92,30,900 7.37
Total 9,82,251 100.00 39,65,80,123 100.00
EDUCATION AT MIDDLE STAGE 35
i.e. 7.07 per cent are served by middle sections in them (Table 63), and 7,12,894 habitations, i.e. 72.58 per cent are served by middle sections either in them or within a walking distance of three miles. Not taking into consideration the figures for West Bengal, Laccadive, Minicoy & Amindivi Islands, Goa, Daman & Diu, Pondicherry, Dadra & Nagar Haveli where the First Survey was not conducted, the excess in the target of habitations with middle sections in them fixed under the First Survey is of the order of 17,838 habitations. Assuming that the additional habitations have one middle section each, the number of middle sections established in excess of the target of the First Survey in the areas common between the two Surveys is of the order of 17,838. This excess cannot be altogether without reasons. First, the proposals of the First Survey were based on the data of the 1951 Census. With the tremendous increase in population during the past 15 years, the number of habitations or groups of habitations which had populations of 'below 1, 500' and were not considered for middle sections at that time, have in the meantime exceeded that limit. Though the exact increase in the number of habitations with a population of '1,500 or above' cannot be given, an idea of the increase in the number of habitations with relatively large populations can, however, be given by the increase in the number of habitations with a population of '1,000 or above'. According to the First Survey, the number of habitations with a population of '1,000 or above' was 53,502. The corresponding figure at present in the areas covered by the First Survey is 79,697, the increase being of the order of 26,195 habitations. It is also possible that in some cases schools could not be opened according to the proposals of the First Survey because the output of the primary sections in the respective catchment areas was too poor to justify the establishment of a middle section. To that extent, there have been genuine difficulties in the middle sections not having been established strictly in accordance with the proposals of the First Survey. Considering the present position in terms of population, however, 82.25 per cent of the population are served by middle sections, including 25.45 per cent having middle sections in their own habitations.
12. In the population slab '5,000 and above', 1,798 habitations out of 2,000, i.e. 89.90 per cent have middle sections in them, 98.45 per cent have middle sections in in them or within a walking distance of three miles. Of the population in this slab 98.56 per cent are served by middle sections including 90.70 per cent that have middle sections in their own habitations. In this slab, therefore, the population are largely served by middle sections in their own habitations. However, 31 habitations are not served and they will need examination in the course of planning in future.
13. The habitations in the population slab '2,000-
STATEMENT 15
HABITATIONS AND POPULATION IN VARIOUS POPULATION SLABS SERVED BY MIDDLE SECTIONS IN THEM OR WITHIN A
WALKING DISTANCE OF THREE MILES IN RURAL AREAS
Population Slab
Sl.
No. Item of Information 5000 and above 2000-4999 1000-1999 500-999 Below 500 Total
1 2 3 4 5 6 7 8
1. Number of Habitations 2,000 20,738 63,987 1,45,001 7,50,525 9,82,251
2. Habitations served by middle sections
in them 1,798 13,564 22,733 18,418 12,911 69,424
3. Item 2 as % of item 1 89.90 65.41 35.53 12.70 1.72 7.07
4. Habitations served by middle sections
in them or within a walking distance
of three miles 1,969 19,523 55,769 1,17,631 5,18,002 7,12,894
5. Item 4 as % of item 1 98.45 94.14 87.16 81.12 69.02 72.58
6. Percentage of population served by
middle sections in their own habita-
tions or within a walking distance
of three miles 98.56 94.14 87.62 81.53 72.74 82.25
36 SECOND ALL-INDIA EDUCATIONAL SURVEY
4,999' constitute 2.11 per cent of the total number of rural habitations and they account for 14.6 per cent of the rural population. In this slab 94.14 per cent of the habitations are served at present including 65.41 per cent having middle sections in them. In this slab 1,215 habitations are without middle schooling facilities. Considering the present position in terms of population, however, 94.57 per cent are served, including 67.66 per cent that have middle sections in their own habitations.
14. The habitations in the population slab '1,000-1,999' have not been classified separately into `below 1, 500' and 'above 1,500'. In the slab '1,000-1,999', 87.16 percent of the habitations are served by middle sections including 35.53 per cent that have middle sections in them. As regards population, 8762 per cent are served at present, including 37.16 per cent that have middle sections in their own habitations. The population without middle schooling facilities in this slab constitute 15.14 per cent of the, rural population without middle schooling facilities' and 2.69 per cent of the total rural population. This slab is, therefore, of considerable importance, as it includes a good proportion of the existing backlog and the establishment of middle sections would largely be feasible, at least in terms of the population.
15. The habitations in the population slab '500-999' present a very difficult problem. At present, 1,17,631 habitations out of 1,45,001, i.e. 81.12 per cent of the habitations in this slab are served, while 27,370 habitations in this slab are not served. The population in the habitations not served in this slab is 26.33 per cent of the rural population not served by middle sections and 4.67 per cent of the total rural population. Whereas according to the criteria adopted in the First Survey, middle sections could not be proposed in these cases, the Education Commission have recommended the establishment of middle sections in habitations with a population of '700 or above'. The feasibility of the establishment of middle sections in the habitations in this slab will have to be very carefully examined.
16. More than half of the population not served at present are in the slab 'below 500'. These habitations cannot be considered for middle sections in them except where they can be grouped together or tagged to the bigger habitations where middle sections can be proposed. In this slab, 69.02 per cent of the habitations accounting for 72.74 per cent of the population are served by middle sections at present.
17. Let us now analyze in detail the existing backlog. At present 2,69,357 habitations, i.e. 27.42 per cent are not served. Out of these habitations, 0.46 per cent are in the slabs '5,000 and above' and '2,000-4,999', 3.05 per cent are in the slab '1,000-1,999', 10.16 per cent are in the slab '500-999' and 86.33 per cent are in the slab
STATEMENT 16
HABITATIONS NOT SERVED BY MIDDLE SECTIONS EITHER IN THEM OR WITHIN A WALKING
DISTANCE OF THREE MILES IN RURAL AREAS
Col. 3 as Y. of habitations
Population slab Number of habitations Habitations in the slab In the Not served by middle In the rural
in the slab not served by middle slab sections in them or with- areas in the
sections in them or with- in a walking distance country
in a walking distance of 3 miles
of 3 miles
1 2 3 4 5 6
Above 5,000 2,000 31 1.55 0.01 0.003
2,000 - 4,999 20,738 1,215 5.86 0.45 0.12
1,000 - 1,999 63,987 8,218 12.84 3.05 0.84
500 - 999 1,45,001 27,370 18.88 10.16 2.79
Below 500 7,50,525 2,32,523 30.98 86.33 23.67
Total 9,82,251 2,69,357 27.42 100.00 27.42
EDUCATION AT MIDDLE STAGE 37
STATEMENT 17
POPULATION NOT SERVED BY MIDDLE SECTIONS EITHER IN THEIR OWN HABITATIONS OR
WITHIN A WALKING DISTANCE OF THREE MILES
Col. 3 as Y. of population
Population slab Population of the Population of the habi- In the Not served by middle In the rural areas
habitations in tations in the slab not slab sections in them or in the country
the slab served by middle sections within a walking
in them or within a walk- distance of 3 miles
ing distance of 3 miles
1 2 3 4 5 6
Above 5,000 1,34,83,551 1,95,377 1.44 0.28 0.05
2,000 - 4,999 5,79,46,622 31,49,520 5.44 4.48 0.79
1,000 - 1,999 8,59,91,887 1,06,51,039 12.39 15.14 2.69
500 - 999 10,03,62,771 1,85,29,715 18.46 26.33 4.67
Below 500 13,87,95,292 3,78,38,885 27.26 53.78 9.54
Total 39,65,80,123 7,03,64,536 17.74 100.00 17.74