IMPROVEMENT OF THE TEACHING PERSONNEL
TEACHERS
The Need for Improving the General Conditions of Teachers In the preceding chapters of our Report we have referred to the various steps to be taken to improve the quality and standards of Secondary education and to make it a worthy medium for the balanced development of the students' personality. We are, however, convinced that the most important factor in the contemplated educational reconstruction is the teacher-his personal qualities, his educational qualifications, his professional training and the place that he occupies in the school as well as in the community. The reputation of a school and its influence on the life of the community invariably depend on the kind of teachers working in it. Priority of consideration must, therefore, be given to the various problems connected with the improvement of their status. During our tour, we were painfully impressed by the fact that the social status, the salaries and the general service conditions of teachers are far from satisfactory. In fact, our general impression is that on the whole their position today is even worse than it was in the past. It compares unfavourably not only with persons of similar qualifications in other professions but also, in many cases, with those of lower qualifications who are entrusted with less important and socially less significant duties. They have often no security of tenure and their treatment by management is in many cases, inconsistent with their position and dignity. The same story of woe was repeated at almost every centre by the Teachers' Organizations and by responsible headmasters and others interested in education. It is surprising that, in spite of the recommendations made by successive Education Commissions in the past many of the disabilities from which teachers suffer, still persist and adequate steps have not been taken to remove them. We are aware that in recent years, in many States, there has been a revision of teachers' grades and dearness allowances' have been sanctioned. But they have not brought adequate relief, be-' cause, meanwhile, the cost of living has risen steeply and thus nullified the concessions that had been granted. We are fully conscious of the financial difficulties of the State Governments and the fact that they have to attend simultaneously to a large number of urgent and pressing problems. But we are convinced that, if the teachers' present mood of discontent and frustration is to be removed and education is to be. come a genuine nation-building activity, it is absolutely necessary to improve their status and their conditions of service.
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Method of Recruitment There seems to be no uniform system in the different States in regard to the recruitment of teachers. We have referred elsewhere to the measures that may be adopted to attract the best persons to the profession by giving them stipends and treating them as on probation during the period of training. Many schools have still a large number of untrained teachers and it does not seem to have been realised by managements that it is unfair on their part to let the students be taught by such teachers. Some management's utilise untrained teachers for short periods and then discharge them and thus circumvent the departmental rules regarding the employment of trained teachers. We realise that the training facilities available are not adequate and that a considerable increase in the number of training institutes is necessary. Still we are not convinced that the managements have taken all the steps possible to attract trained teachers. We feel that there should be a reasonably uniform procedure for the selection and appointment of teachers and this should not be very different as between Government schools and schools under the management of private agencies. In the case of Government schools, the Public Service CommisSion selects teachers-at least in the higher grades-and in doing so they have the advice of the Director of Education or some other high official of the Department. In privately managed schools, however, the procedure varies from State to State and sometimes from institution to institution. We recommend that in all privately managed institutions there should be a small Selection Committee entrusted with the responsibility of recruiting the staff, with the headmaster as an ex-officio member. It is also desirable that a nominee of the Department of Education should be on the Managing Board. We also recommend that, in schools maintained by local boards or municipalities, a similar policy should be adopted and either the Public Service Commission of the State or a body constituted on similar lines should be entrusted with the task of selecting teachers.
Period of Probation At present there is no uniformity in regard to the period of probation prescribed for teachers. Unless it is short-term vacancy, it is desirable that a trained teacher, appointed to a permanent post, should be on probation for one year, and after satisfactory completion of the period he should be confirmed. In exceptional cases, the managements may extend that period by one year which should be the maximum period of probation before deciding confirmation. After confirmation, the teacher should normally be continued in service till the age of retirement.
Qualifications of Teachers in High and Higher Secondary Schools We have already stated that, so far as the High schools are concerned only graduates with a degree in education should be appointed. We feel that at the Middle school stage also it is important to have a fair number of trained graduates on the staff. It is our hope
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that, in course of time, education at the Middle school stage win be imparted by graduate teachers, and Secondary grades trained teachers will be available for Primary or Junior Basic schools. We recommend this for consideration as a long-term plan.
In regard to the appointment of teachers for technical and technological subjects included in the diversified courses of study, the qualification should be prescribed by the departments of education after taking into consideration the requirements of the particular subject to be taught. In the majority of cases, we recommend that such teachers should be graduates in the particular subject and should have received training in teaching it.
We have noted that at present, in many schools, the staff appointed satisfy only the minimum educational qualifications prescribed. It is very desirable that at least some of the teachers should possess higher educational qualifications both in general education and in teaching.
Many universities have given teachers employed in recognised schools the privilege of taking the examination for a higher degree after private study. As an incentive for the acquisition of such additional qualifications, we suggest that school authorities should grant some additional increments to teachers who obtain higher degrees while in service. Care must, however, be taken to see that this does not interfere with the satisfactory discharge of their normal duties.
We have recommended that the Secondary school course should be extended to cover an additional year and that at the end of this period candidates must be eligible for the Higher Secondary schools certificate. This additional year of school course carries with it the responsibility for greater efficiency in teaching and for the attainment of a higher standard. It is necessary before any school is recognised as Higher Secondary school that teachers with higher qualifications should be appointed to the staff. We found that in one State, whenever a school is upgraded into a Higher Secondary school, it was incumbent upon the management to have on the staff persons with higher qualifications (a Master's or Honours Degree) the number of such teachers depending upon the number of subjects taught in the school. In view of the fact that one year of the old Intermediate is to be added to the Higher Secondary schools, we feel that the qualifications of the teachers entrusted with the last two years at the Higher Secondary stage should be the same as prescribed in some universities for teachers of the Intermediate. These qualifications are the Honours or M.A. Degree or a first Class B.A. with a degree in teaching. For the traditional period we suggest that persons employed in Higher Secondary schools should have these high academic qualifications and possess either a degree in Education or at least three years' teaching experience in a college. In the Higher Secondary
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schools which impart instruction in the technical and vocational sub- jects some of the teachers dealing with the last two years should likewise possess high qualifications in their own subjects. These may be prescribed by the special advisory committees which we have suggested for technical education.
We have referred in another chapter to the importance of properly trained teachers of languages at the school stage. If, as we envisage, students have to be taught two or more languages, the need for properly trained teachers becomes even greater. At present, in a number of schools, the language teacher is required to have a university qualification and in some State qualifications awarded by certain other bodies have been recognised as equipment. We trust this recognition has been given with due reference to their academic standards, and that government have satisfied themselves about the courses, the methods of teaching and qualifications of staff. We feel that unless this is done, there will be wide variation in the standard of attainment of language teacher in different schools. These teachers, like the teachers of other subjects, require special training in method of teaching. In some States such training is provided for language teachers and certificates are awarded by the University or the Government. We recommend that all other States should likewise arrange for the training of graduates, oriental title holders and other persons possessing necessary linguistic qualifications.
Conditions of Service In addition to what we have stated above there are certain other important conditions of service which merit consideration.
(a) Scale of Pay: Considerable dissatisfaction exists everywhere about the scales of pay for teachers in the different grades of schools. Certain minimum scales of pay have been recommended by successive committees and commissions as well as in the Reports of the Central Pay Commission, the Central Advisory Board of Education and the Kher Committee. These recommendations, have not, however, been implemented and as we have pointed out, the concessions actually made have been largely nullified by the phenomenal increase in the cost of living. The problem therefore requires urgent consideration.
Apart from the question of the actual scales of pay sanctioned we see no justification for variations in the grades of teachers working in government schools and in schools conducted by local bodies and private agencies in the same State. We recommend as a general principle that those who have similar qualifications and undertake similar responsibilities should be treated on a par in the matter of salary irrespective of the type of institution in which they are working. We have noted that in some States the scales of pay are much lower than on other States. We wish to emphasise that the revision of the present scales of pay is urgent and this revision should take into due consideration the recommendations made by previous committees during the last few years as well as the increase in cost of living that has
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occurred since then. Since the cost of living as well as the financial position of different States vary considerably, it is not possible for us to suggest a uniform pay scale applicable in all States. We, therefore, strongly urge that the States should appoint special committees to review the scales of pay of teachers of all grades and make recommendations that meet in a fair and just manner, the present cost of living.
(b) Provident Funds and Pension: Apart from the scales of salary the general conditions of service should be such that teachers can duly discharge their family and civic responsibilities without anxiety about their future and the security of service. At present they are entitled to Provident Fund benefits in most of the States. The contribution made to the Fund by the teachers, the States and private managements vary considerably. Generally, the teacher subscribes an amount not exceeding 6 1/4 % of his salary and an equal amount is contributed by the management and the State or by the Local Board concerned, the whole amount being invested in some kind 'of securities and paid to him at the end of his service. Teachers who are transferred from one educational institution to another have the right to have their Provident Fund also transferred. In some States, however, an equal contribution is not made to the Provident Fund by the parties concerned.
Teachers in government service are entitled to pension as in other services of government but not so the teachers in private schools. We have had several unfortunate cases where the sudden demise of a teacher has left the family almost penniless and the Provident Fund did not meet even the immediate needs of the family. It is, therefore, necessary to think of other ways of overcoming such difficulties.
Triple Benefit Scheme for Teachers Recently, in one of the States, a triple benefit scheme has been instituted for government servants, called the Pension-cum-Provident Fund-cum-Insurance Scheme. We understand that this scheme has been introduced by some universities also for their employees. We feel that, if the teachers are to be relieved of worries about the future of their family, this triple benefit scheme should be made applicable to teachers in all States. The details of the scheme are given in the Appendix IX Since the majority of the institutions are privately managed, the responsibility for the maintenance of the Provident Fund and Pension Fund account should rest with the government through the Department of Education which will be responsible for working out the details and administering the fund.
Security of Tenure The teaching profession in the country is much perturbed about security of tenure of office and the general conditions under which they have to work. In some States, schools have been established by managements who have no experience of educational work. There is no doubt
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that many managements have abused their position and treated teachers shabbily and this is probably responsible for the demand by some teachers and Teachers' Associations that all schools should be brought under the control of the government. We have also received complaints that service conditions under local bodies have been unsatisfactory and that teachers have been subjected to humiliating treatment by the authorities concerned in the matter of transfer, termination of services, and punishments. In brief the present position of these bodies and their relationship to the teaching profession is not satisfactory. We have been told by responsible teachers and Teachers' Associations that it is not unusual for some managements to ask for "voluntary donations" from the teachers for the schools. We consider it essential that all those who have to do with educational administration should recognise clearly and without any mental reservation the status of the teachers and the respect and consideration due to them. At the same time we must strongly affirm that it is the duty of teachers to set up such a high example of personal and professional integrity as to win the respect as well as the full co-operation of the management and the community.
It has also been brought to out notice that punishment are sometimes meted out to teachers inconsiderately-their services are terminated or their transfers made without adequate grounds or increments stopped without justification. While we would not suggest that an erring teacher should not incur any punishment, we feel that whenever such punishment are meted out there should be provision for an appeal by the teacher to a higher authority. We are aware that, in certain States, the managements are required to report to the Director of Public Instruction certain types of disciplinary action. For this purpose, Arbitration Boards or Committees should be appointed which will have a right to look into these appeals and any grievances and to consider whether the punishment accorded, suspension, dismissal, stoppage of increments, or reduction to a lower status is justified. This board should consist of the Director of Education or his nominee, a representative of the management and representative of the State Teachers' Association. The decision of the Board should be final, except in the case of government servants who have the right to, appeal to a higher authority i.e., government. Where a local board has a number of schools under its management, we deem it desirable that there should be a special officer of the Education Department to look after the conditions of service of teachers employed under it. In the case of girls' schools the special officer should be a woman of the status of an Inspectress of Schools. These officers should be authorised to deal with transfers, appointment, etc., subject to a right of appeal either to the Director of Education or the Arbitration Board according to the nature of the case.
Age of Retirement At present, the age of retirement is 55, but in private institutions, it can be extended up to 60 with the approval of the Department of Education. We feel that in view of the expanding need for qualified
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teachers and in view also of the improvement in the general expectation of life within recent years, the age of retirement may be extended to 60 with the approval of the Director of Education provided the teacher is physically and otherwise fit.
Other Amenities In addition to the above specific recommendations we feel that there are certain other amenities that should be provided for the teaching profession so as to attract the right type of persons. Among these may be mentioned the following:
(i) Free Education of Children: Free education up to the age of 14 is a responsibility of government under the Constitution. It would therefore, be in keeping with this policy, if the children of teachers are given free education in schools. We were glad to note that in one State the children of all the teachers are given free education up to the middle school stage, and half-fee concession at the high school stage, the State compensating the managements concerned for the loss of fee on this account. We recommend this policy and suggest that the children of teachers should be given free education throughout the school stage.