Revitalizing secondary education

By Sadaket Malik

With the central government lobbing its ball to the state governments for the implementation of the several schemes  for the revitalization of the system of the secondary education in the country, the schemes of the access, equity, Mahila Samakhya, and quality in the field of secondary education has lost its very essence. Basic issues of quality, equity and access to secondary education in India still unresolved besides the central legislations by the Ministry of Human Resource development Govt of India. The expert committees were formulated by the Govt. to gauge the system and suggest the measures to universalize the whole system. The central governments own figures indicate that many as two-thirds of those eligible for secondary education remain outside the school system today. A Central Advisory Board of Education (CABE) committee estimates that 88,562 additional classrooms will be required in 2007-08 and over 1.3 lakh additional teachers. The CABE is the highest advisory body relating to policy making in education in India. Figures put out by the Ministry of Human Resource Development’s Department of School Education and Literacy indicate that as many as two-thirds of those eligible for secondary and senior secondary education remain outside the school system today. While noting that adequate number of elementary schools is to be found at a reasonable distance from habitations, the ministry admits in its website that this is not the case with regard to secondary schools and colleges. The gross enrolment rate for elementary education in 2003-04 was 85 percent, but for secondary education, the enrolment figure stood at 39 percent.

Pertinently, the CABE report also notes that the benefits of India’s reservation policy in higher education are unlikely to reach those it’s intended for in the absence of a strong secondary education system. A large majority of children and youth belonging to SC and ST community  do not have access to secondary education; less than 10 percent of the girls among SCs and STs have access to the plus two stage. Without secondary or senior secondary education, benefits of reservation to SCs/STs will remain elusive,” the report says. These are questions that the CABE report tries to address. School systems, the report says, should strive for equality and social justice, transcending discrimination that may arise because of gender, economic disparity, societal norms on caste and community, location (urban area or rural), disabilities (physical and mental) and cultural or linguistic differences. However, these inequities seem bound to remain given the current circumstances, where the government involvement in secondary education is much less than what is expected of it. The Committee report says that almost 25 percent of the secondary schools today are private, unaided schools whose clientele comes only from the privileged sections of society. Expert opines that Private education has always played an important role we have different types of private secondary schools, such as private unrecognized, private recognized but unaided schools, and private, recognized and aided schools. In Kerala and West Bengal, it’s common to see private aided schools, which are schools run by private managements that receive government grants. Going by the Sixth All India Survey Data, the CABE report notes that private aided schools account for over 46 percent of all secondary school students. The overwhelming participation of the private sector in secondary education, however, in no way absolves the government of its many responsibilities. To improve access to secondary education, experts agree that the government should invest more money. Unfortunately, the Centre has baulked at involving itself even in primary education, more so when it has to be on a collision. course with private schools.

Similarly, though the CABE committee report advocates a common school system, the government seems to have already shown its disinterest.The CABE report was accepted in principle, but soon after, the Planning Commission diluted our recommendation that the typical secondary school should be like a Kendriya Vidyalaya. The Commission started saying that instead of Kendriya Vidyalaya norms, SSA norms could be extended to secondary schools. Such a move would result in parallel streams of education with poor quality being accepted as a part of secondary education. The CABE committee, incidentally, had worked out the expenditure that will be incurred if all secondary schools are managed like Kendriya Vidyalayas. The total costs in such a scenario do not exceed six percent of the GDP but that does not seem to have been enough to convince the government. The report does not mention how many additional schools will be needed to meet the future demand. However, it presents two estimates, one projection based on the 100 percent success of SSA and the other, the 75 percent success of the programme. In the case of the former, the report estimates that 88,562 additional classrooms will be required in 2007-08 and over 1.3 lakh additional teachers

A worrisome trend in government schools, undoubtedly a factor contributing to their poor performance, is the fact that almost 95 percent of the government grants go into paying staff salaries. There is no money for buying teaching learning materials, for cleaning or blackboards,” he explains. The ratio should be at least 80:20, with 20 percent of the grant being used for improving or creating infrastructure, he adds. To ensure that government schools are more efficiently managed, a committee comprising members from the neighborhood could be asked to take decisions concerning the school, suggests several experts  of CABE Committee. Experts opines that there are several examples of successful private-public partnerships. “There have been initiatives like DPS Delhi Public School being given the responsibility to run two-three government schools in Gurgaon in Haryana In this way, the private schools can manage the schools for a while and use their expertise to train teachers.

The educationists have a consensus that the children are actually walking out because there is no quality education. Poor children can ill-afford to spend their time in classes that are taken badly, or in schools that have no infrastructure or teachers. Instead of looking for the reasons that are behind the problem, the government appears to be trying to implicate parents or children for the ‘drop-out’ rates. The CABE committee report has already set down comprehensive norms that secondary schools should follow, ranging from having one classroom for 30 students, ensuring safe drinking water facilities and separate toilets for girls and boys to computer labs. Experts also suggest granting free ships or scholarships to those from disadvantaged backgrounds to encourage enrolment in secondary and senior secondary schools. The CABE report notes that expansion of secondary education can be achieved by setting up new schools, upgrading existing elementary schools into high schools by providing more infrastructure and adding to the facilities in existing secondary schools to accommodate more students.

In view of this, the Central and the State/UT governments must jointly initiate planning to implement the agenda of universal and free secondary education in the first phase by the year 2015 and then extend it to senior secondary education in the second phase by the year 2020. The conventional expectation from secondary/senior secondary education lies in its role in creating the necessary base for generating technical person power, raising the potential of a society in contributing to the growth of knowledge and skills and thereby enhancing the nation’s capacity to face the challenge of global competitiveness.

The no of  higher secondary schools has been raised to 50,273 with  1000112 teachers, and figure of secondary schools is 101,777 with 1082878 teachers. Official statistics reveal that the enrolment of secondary and higher secondary school level is  3.70  crore and the gross enrolment ratio is 39.91. The total dropout rate up to matric is 61.92 as on September 2004. The population of children in this age group has been estimated to be 88.5 million as per Census, 2001.Enrolment figures show that only 31 million of these children were attending schools in 2001-02,

However, Para 5.13 –5.15 of the National Policy on Education (NPE), 1986 (as modified in 1992) deal with Secondary Education. Para 5.13. of the NPE, inter alia states that access to Secondary Education will be widened with emphasis on enrolment of girls, SCs and STs, particularly in science, commerce and vocational streams. The disparity between boys’ and girls’ enrollment is particularly marked at the secondary stage. As per the latest data available, out of the total enrollment of 21.2 millions n 1991-92 (as on 30.9.91) at the secondary stage (Classes IX and above), the girls account for 7 millions only, i.e. mere 33 per cent of the total enrollment, whereas boy’s enrollment at this stage of education is 67 per cent of the total enrollment.

            Nevertheless, a significant progress is also made in all spheres of secondary education. More than 84 per cent habitations in 1993-94 had a secondary school/section within a distance of 8 km as compared to 70 per cent within 5 km.  The number of unserved habitations declined from 21 per cent in 1986-87 to 15 per cent in 1993-94.  During 1950-51 to 1999-2000, number of secondary & higher secondary schools increased from 7 thousand to 117 thousand.  The increase (16 times) is much more rapid than the corresponding increase in primary (3 times) and upper primary (14 times) schools.   In the latest decade (1990 to 99), more than 37 thousand secondary & higher secondary schools were opened. The ratio of upper primary to secondary schools also improved from 1.83 in 1950-51 to 1.69 in 1999-2000.

Keeping in view the dismal statistics of secondary education in the country, Ministry of HRD launched several schemes, like scheme for strengthening of boarding and hostel facilities for girl students of secondary and higher secondary schools. The scheme is being implemented by NGOs and of the state governments. A one-time grant non recurring  grant @Rs.1500/- per girl boarder for purchase of furniture (including beds)and utensils and provision of basic recreational aids, particularly material for sports and games, reading room equipments and books. And recurring Rs.5000/- per annum per girl boarder for food and salary of cook. Finally, The CABE Committee in June 2005 recommended that “there is no alternative acceptable to regular schooling of good quality to all the girls”. The Committee also felt that “incentives offered for promotion of girls education need to be revisited and measures taken need to be of such nature, force and magnitude that they are able to overcome the obstacles posed by factors such as poverty, domestic/sibling responsibilities, girl child labour, low preference to girl’s education, preference to marriage over the education of girl child, etc.” The key issues relating to secondary education highlighted in the Tenth Plan are: greater focus on improving access; reducing disparities by emphasizing the Common School System; renewal of curricula with emphasis on vocationalisation and employment-oriented courses; expansion and diversification of the Open Learning System; reorganization of teacher training and greater use of ICT. After merging several schemes like ET & CLASS scheme, a new Scheme called ICT Schools was launched for which the Annual Plan Outlay for 2006-07 was Rs. 67 crore. The intervention of the Central Government in Secondary Education has primarily been in two areas, (i) through apex level bodies and (ii) through various Centrally Sponsored Schemes. Central Government supports autonomous organizations like NCERT, CBSE, KVS and NVS and CTSA, the first named body for providing research and policy support to the Central and State Governments; CBSE for affiliating Secondary Schools and the remaining three for their own school systems. There are 929 Kendriya Vidyalayas (KVS) and 507 Navodaya Vidyalayas (NVS), and 69 Central Schools for Tibetans (CTSA).  Scheme of Vocationalistion of Secondary Education at secondary level to enhance individual Employability. Rashtriya Madhyamik Shiksha Abhiyan (RMSA) launched in 2007 is a mission-mode exercise to universalize secondary education in which the centre is all set to universalize the secondary education till 2020.

The irony is that the arguments on the part of HRD ministry on community participation in implementing such schemes are not encouraging. Government should initiate evaluation mechanism and core commission to evaluate the progress of the schemes and policies to support the education sector by community mobilization to revitalize the schemes and put the policies into practice.

The author can be contacted at sadaketmalik@rediffmail.com