SARVA SHIKSHA ABHIYAN

 

Third Joint Review Mission, January 2006

 

Aide-Memoire

 

1.0  Introduction 

 

1.1       Sarva Shiksha Abhiyan (SSA) is a comprehensive and integrated flagship programme of Government of India (GoI), to attain Universal Elementary Education (UEE) in the country in a mission mode.  Launched in partnership with the State Governments, SSA aims to provide useful and relevant education to all children in the age group of 6-14 years by 2010.  It is an initiative to universalise and improve the quality of education through decentralized and context specific planning and a process-based, time-bound implementation strategy. Its goal is consistent with the Constitution (86^th Amendment Act) 2002, making elementary education a fundamental right of every child and with the Millennium Development Goal (MDG) of universalising primary education by 2015.

 

1.2       SSA is a national programme supported by domestic resources, supplemented partially by external funding from the World Bank’s International Development Association (IDA), United Kingdom’s Department for International Development (DFID) and the European Commission (EC). As per the Agreements, the GOI and Development Partners (DP) carry out a Joint Review Mission (JRM) twice a year.   The main objective of the JRM is to review progress in the implementation of the programme with respect to the Development Objectives and to discuss follow-up actions in the light of the Terms of Reference (TOR) agreed upon for each JRM.

 

1.3      The first Joint Review Mission was held from January - February 2005 and the second was held in July 2005.  This Mission is the third Joint Review Mission of Sarva Shiksha Abhiyan and was held from the 11^th to 24^th January 2006. This JRM was also the Mid-Term Review for the development objectives of Sarva Shiksha Abhiyan and combined the 22^nd JRM of DPEP. The terms of reference for the Mission and details of the Mission composition are enclosed (Appendix 1A).  

 

1.4       The Development Objectives of the project are as follows: 

 

     i.      To reduce out of school children by at least 9 million in the 6-14 age group, with an increase in enrolment, in the process of universalizing elementary education.

     ii.      To narrow existing gender and social gaps so that enrolment of girls will be near parity with boys, enrolment of children of SC and ST will be near parity with that of other groups; and enrolment of children with disability will increase.

     iii.      To increase the quality of education of all elementary school students so that learning will be improved and transition rates from primary education to upper primary education will increase.

 

1.5      The Mission’s approach is one of learning to understand the progress made under the programme and to indicate experiences that highlight strengths and weaknesses, with a view to strengthening implementation. The Mission has undertaken the task of reviewing progress towards the programme goals in terms of educational and programme monitoring indicators and the processes, including management functions. This review is based on study of available documents and discussions with National and State level functionaries and observations from field visits in ten States. 

 

1.6       The Mission records its deep appreciation of the support received from the Department of Elementary Education and Literacy, GoI, the Technical Support Group, national institutions, the State Governments, district officials and community members in making available documents, providing insightful presentations and discussing issues in a transparent and candid manner. The Mission is particularly grateful to the States for facilitating the field visits. 

 

Mission Objectives 

 

1.7       The main objective of the Joint Review Mission is to review progress in the implementation of the programme with respect to Development Objectives and agreed indicators, and to discuss follow-up action, including capacity issues. The purpose of the third JRM was to look at processes being adopted to achieve the development objectives of Sarva Shiksha Abhiyan and to review State and district specific strategies being adopted that underpin the impact of the programme. The objectives of the Mission were as follows: 

 

1.      To review district plan approvals, GOI budget allocations

2.      In States to be visited, to review

•         overall programme implementation

•         financial management, procurement and safeguard issues.

3.      Provide recommendation on any studies, to be undertaken in the following six months.

4.      Estimate the financial contribution of external partners.

5.     Overall programme implementation with an emphasis on quality improvement, focussing on teacher recruitment/training, classroom transactions, student learning, and effectiveness of BRCs/CRCs as supporting institutions for quality enhancement.

6.      To review and make recommendations for strengthening the planning, implementation and monitoring of the programme.

7.      Suggest specific areas for capacity building on a prioritised basis.

 

1.8       The 3^rd JRM for SSA visited 19 districts of ten States, viz., Bihar, Orissa, Rajasthan, Uttar Pradesh, West Bengal, Andhra Pradesh, Karanataka, Mizoram, Chattisgarh and Himachal Pradesh.  The Mission members visiting Bihar, Orissa, Rajasthan, Uttar Pradesh and West Bengal also covered one district of DPEP. The Mission comprised twenty-four members, with 12 members, including Mission Leader, from the Government of India, 6 members (including a UNICEF representative for DPEP-III) from the World Bank, 4 members from DFID and 2 members from the E.C.   

 

1.9       The Mission focused on

 

1.      Status of out of school children – identification of districts and sub district/clusters with large number of out of school children – implementation of strategies towards bringing children back to school. (Development objective 1)

2.      Progress from the baseline with regard to gender and social groups – identification of districts, clusters and communities needing more focused intervention. (Development objective 2)

3.      Quality of education including learning levels of students, time on task by teachers, status of teacher recruitment and training (Development objective 3)

4.      Programme management: issues of staffing & capacity building; adherence to financial management & procurement procedures; timeliness and volume of fund releases (both from the State and GOI) and utilization; environmental and site selection issues in school construction.

5.      Measures taken to improve quality of DISE data.

6.      Review of the Financial Management and Procurement (FMP) procedures.

 

Overview of progress 

 

1.10     From the Mission’s visit to States and consultation of secondary data SSA implementation is generally on track. There continues to be good progress in reducing the number of out-of-school children (OOSC) and the target of reducing this by 3 million per year is being exceeded. The number of OOSC has fallen from 25 million in 2003 to 13.5 million as on March 2005 and it is expected that this positive trend will continue in 2006. The Mission was presented with the report of the independent Survey on Assessing the Number of Out of School Children in the 6 to 13 Years Age Group that was commissioned by MHRD. The findings of this sample survey conducted in all States and Union Territories (UT) and including 474,759 households generally confirm the Government’s own estimation of the number of OOSC. 

 

1.11     There has been an increase in enrolment of girls which  is now  47.52 % at the primary level and 45.32% at the upper primary level. There has been a marginal improvement in this respect between 2004 and 2005. At the primary level the GER for girls is 92.6% compared to 95.1% for boys. The NERs of girls and boys are 77.6% and 79.5% respectively for primary school. The DISE data shows that at the primary level, the percentage of girls’ enrolment varies from 50.36% in Meghalaya to 43.79% in Bihar, with 9 States having a percentage below 47%. At the primary level, the States that are furthest behind in terms of gender parity are Bihar, Chandigarh, Jharkhand, Jammu and Kashmir, Punjab, Arunachal Pradesh and Rajasthan. 

 

1.12     While retention rates have improved at the national level, dropout rates remain unacceptably high and in some States these rates continue to exceed 50%. The survey of OOSC indicates that the highest percentages of dropouts are those that left schooling after completing class 5 and class 2 (20.5% each). The main causes of dropout appear to be the high opportunity costs of schooling (or at least parents’ perceptions of these), particularly for the poorest households and the need for sibling care is a key factor in this for girls (this was a key finding during the visit to Orissa).  

 

1.13     The student classroom ratio came down from 1:46 in 2004 to 1:45 in 2005 owing mainly to efforts made by SSA and DPEP. The classrooms sanctioned for 562 districts during 2004-06 amount to 259,485, which is a prodigious target. If this extremely challenging target is achieved and 259,485 additional classrooms are constructed in time there will still be a gap remaining of 910,440 in the national requirement for additional classrooms and there will be a shortage of 36,851 in the national requirement for new schools. Out of the 562 districts requiring additional classrooms, only 234 of these will be able to cover the gap in less than four years time, while the remaining 328 districts will need much more time to meet their requirements: some will need more than 10 years on the basis of their past record of implementation of civil works.

 

1.14     The number of repeaters has reduced from 12.22 million in 2004 to 11.83 million in 2005. This equates to 7.58% of the elementary enrolment. The reasons for repetition are mainly failure in examinations (59%), long absence during the school year (26%) and re-admission after a period of dropout (15%).  

 

1.15     With regard to SC and ST enrolments, the positive trends of previous years have continued in the case of SC, but ST enrolments (in terms of percentage of total enrolments) have remained static, perhaps reflecting the problems of providing access to low density populations in remote areas. There is clearly a need to give more emphasis within SSA planning and implementation to increased access for low density populations in remote areas (where many ST children live) and to provide more support for girls’ education in particular in these areas. 

 

1.16     In quality improvement, the mission was pleased to note that according to DISE the average nation wide transition rate from PS to UPS has significantly improved by 12 percentage points from 75% in 2002 to 87% by 2005-06; it is 89% for boys, 86% for girls, 83% for ST and 80% for SC. A number of States have developed schemes for surveying pupil achievement outside regular examinations. Baseline surveys of Grade 3, and 7 or 8 have also been carried out by NCERT.  

 

1.17     At the national level the average pupil teacher ratio (PTR) for primary schools has decreased from the baseline 46:1 (2002-03) to 43:1 (2004-05) and for upper primary schools from 30:1 (2002-03) to 29:1 (2004-05) but large inter State, inter district and inter school variations persist.  Of the 7422 BRCs sanctioned 7201 (97%) have been established, and out of the 27965 staff positions sanctioned 21079 (75%) are filled.  Similarly from 70735 CRCs sanctioned 66140 (93.5%) CRCs have been established and out of the 55685 staff position sanctioned 42632 (77%) positions have been filled.   

 

1.18     Although a large number of teachers have been trained under SSA, only 51% of teachers received in-service training of 20 days (18 lacs against the target figure of 35 lacs). Only 48% of teachers received induction training of 30 days. The 60 days training for untrained teachers was given to 46% of the targeted number. 

 

1.19     These are encouraging signs of increased concern for quality and of meaningful steps taken towards raising quality. A significant resource is available in the   ‘Monitoring Formats for Quality Dimensions Under SSA’ that the NCERT has developed.

 

1.20     The progress indicated in concrete figures and measures reviewed above are to be appreciated. However, the widespread evidence of low levels of learning on the part of a large proportion of students as seen in the evaluation results shared with the team as well as during field visits is a matter for serious concern. 

 

1.21     While there has been an overall progress towards programme goals, and the move to bring quality issues centre stage is to be appreciated, urgent action is needed on the points summarized below to ensure achievement of quality elementary education for all. 

 

Challenges ahead 

 

1.22     While there is no doubt that the programme is progressing towards the development goals concerns that need to be addressed are discussed below: 

 

1.     As the implementation of SSA enters its fifth year, it is imperative that all States provide 100% access to all eligible children in the relevant age group, at the primary level and upper primary level in a time bound manner. The National level should closely monitor this.

2.      As an integral part of access, all States must put in place a policy for location of school infrastructure through a process of social mapping to ensure that no section of society is excluded because of location. Some States have already made this provision.

3.      Access for children with special needs still remains an area of concern. Accessibility provision like ramps was made in only 19% of 903890 schools across the country. For 2005-06 another 8% more will be covered, but still a gap of 72% may remain. These figures neither reflect the acceptability of quality nor the status of coverage of entire school with barrier free features. Since ramps address accessibility issues only for orthopaedically challenged children, there seems to be no clear picture about provisions being made in the school environment for other CWSN. However the key issue here is how the quality of provisions is made for other CWSN.

4.      States have stepped up their efforts to identify CWSN, medically assess them, provide them with aids and appliances and mainstream them, but the possibility of inclusion of all the CWSN in the classroom appears to be an uphill task.  Those in the formal schools are found to be repeating classes. This requires focused attention.

5.      There has been a major reduction in the number of children out of school. However, there continue to be States and pockets where this is a problem. There is a continuing need to focus on those geographical areas and on special focus groups like ST children, children with special needs, adolescent girls especially from the Muslim community, urban deprived children pointed out in the Study on Assessing the Number of Out of School Children in the 6-13 Years Age Group by SRI .

6.      There is an overall need to improve the quality of data being generated in the project. All States need to put in a credible system for 5% sample check.

7.      At the National level the average pupil teacher ratio (PTR) for primary schools has decreased from the baseline 46:1 (2002-03) to 43:1 (2004-05) and for upper primary schools from 30:1 (2002-03) to 29:1 (2004-05).   However there is a large inter State, inter district and inter school variation. According to DISE there was no progress regarding the reduction of single teacher schools from year 2003-04/2004-05. Conducive conditions for learning will need to be a priority.

8.      The content of the different teacher training programmes should be reviewed in the light of feedback received and revised to increase their usefulness. The participatory mode should be emphasized. Teacher training should have special focus on development of achievement and diagnostic tests and undertaking remedial and enrichment actions. Encouragement to teachers should be given to promote innovations in classroom practices and improved pupil achievement

9.      Research studies should be undertaken to assess the impact of training in terms of classroom processes and pupil achievement and the findings should inform  training programmes

10.  The monitoring quality formats now available should be used intensively with proper analysis at each level. Monitoring of quality dimensions using the tools available would need to be institutionalised in the States with proper backup support from national level institutions.

11.  The Sub-mission on Infrastructure provision needs to formulate comprehensive design strategies to address the diversity within and outside the classrooms since the present straight-jacketed design may not adequately support the quality of teaching-learning in the emerging scenario emerging due to mainstreaming of out of school children and the requirements of multi grade and multi level learning. Many outdoor spaces can be developed under the shade of the trees, shaded backyards, etc. thereby creating alternative learning spaces other than the formal classrooms

12.   Measurement and Evaluation of students’ achievement:   The achievement level of student should be regularly measured and evaluated in all States through the proposed set of language and mathematics test for grades 3, 5, and 7 or 8. The outcomes of pupil achievement should be utilized in two ways, namely, analysis for deriving feedback for immediate action through focused teacher training and remedial teaching and regular sharing with parents / PTA /community

13.   Roles and responsibilities of the Education Department functionaries at each level should be spelt out clearly and necessary capacity building be ensured through in-service training. Functionaries at district, block and cluster level and also the head teachers need training with a focus on quality including training in action research methodology

14.   The BRCs and the CRCs require strengthening and support and a clarity of vision to enable them to perform their role effectively. The chain of professional support from the DIET, through BRC, CRC to school should be revamped, strengthened and conceptualized as a complete package to ensure reinforcement of the in-service

15.   User friendly handbook containing guidelines for accounts maintenance and procurement in conformity with the Manual on Financial Management and Procurement should be customized at State level and necessary training imparted to sub-district level functionaries

16.   Internal audit mechanism with regular follow up should be instituted at every State without further delay

17.   Action should be taken as early as possible to resolve outstanding staffing issues, including staff vacancies, turnover of staff in key positions and selection of staff on the basis of aptitude

18.   Training of community bodies need to be strengthened to ensure adequate training on issues like construction and accounting apart from project goals and to ensure that all members especially those representing SC, ST or CWSN participate fully

19.   NPEGEL, which is being implemented in the States visited by this Mission, does not seem to be well understood and States are still found to grapple with operational issues. It is suggested that the States redefine their clusters under NPEGEL, as given in the scheme, for achieving the envisaged impact on the quality of education received by girls. 

 

Follow up of action taken on the recommendations of the second JRM

 

1.23     The Mission found the status of action taken on the recommendations of the 2^nd JRM as follows.

 

1.24     There is a need to increase the focus on weaker performing States, districts and blocks where progress towards the programme goals is slowest (para 3.9 and 5.2.2). 

 

1.25     Government of India has identified 48 districts in 10 States as having more than 50,000 children out of school. The need to focus on these districts has been taken up with the concerned States by the Government of India. The matter was highlighted at the State Education Secretaries and State Project Directors conference held on 22^nd & 23^rd September 2005. Workshops on strategies for bridge courses have been organized in three of the high prevalence States, viz, Bihar, UP and West Bengal  

 

1.26     The Mission was not informed of any targeted strategy for the identified districts in the States visited (AP, Bihar, Chhattisgarh, UP and West Bengal). Evidently States have still to adopt a targeted approach in the districts thus identified in addressing the question of children out of school.  In fact the need is to be able to identify and focus on problem blocks within these districts. Appreciation of this need will have to be further reinforced among the States for effectively tackling the children out of school. 

 

1.27     The gap in overall infrastructure provisioning needs to be addressed (para 3.13 and 5.3.3). 

 

1.28     An assessment of the infrastructure requirement has been carried out on the basis of DISE 2004-05. As per this assessment the backlog as on date is of 9.98 lacs classrooms. The requirement is highest in the State of Bihar, U.P., M.P, Rajasthan and West Bengal. The infrastructure need in UP would increase with the move to further relax the distance norm in setting up upper primary schools. Haryana, Himachal Pradesh, Karnataka, Maharasthra, Punjab, Tamil Nadu, Tripura and Uttaranchal are well placed in terms of infrastructure availability 

 

1.29     The assessment has been shared with the States and they have been directed to plan for meeting the infrastructure gap during the year 2006-07 and 2007-08. The Department has also estimated expenditure to meet up this gap. During 2006-07 funds of Rs.7500 crores will be required to construct 5 lacs classrooms. While this is a commendable effort by GOI, there has to be some way of expediting completion rates of civil works activities in the States. Having identified the gap it would be important to realistically assess the capability of States to complete the required volume of civil works within the stipulated time. The Sub Mission on Infrastructure Provisioning for SSA that has been set up by the SSA National Mission could play a critical role in infrastructure planning and strategizing for expeditious completion of works. It will also be important for States to simplify and streamline procedures to facilitate timely completion of the works. 

 

1.30     Greater degrees of community empowerment need to be facilitated to allow for local level management and supervision of schools, including the attendance of both teachers and students (para 3.3 and 7.14).

 

1.     The involvement of community remains localized to particular areas and depends largely on the characteristics of the local community and leadership of individuals. There are very good examples to draw upon in all the States visited by the Mission.

2.      States, as a matter of policy, have taken steps to effectuate decentralization and delegation either through statutes or Government orders. This has provided greater visibility to marginalized sections of the population whose children are the main beneficiaries of the Government schools. To this extent the emphasis on decentralization and delegation to the grassroots level in order to ensure community based implementation and ownership of schools provided in the SSA framework has taken roots in the community. VECs (and other agencies with the mandate) are managing funds for civil works, disbursement of honorarium to para teachers, distribution of school improvement and maintenance grants and TLM grants to teachers. It is also true that different kinds of community groups (mothers, parents, political leaders) are coming forward for the cause of education in their respective contexts. However, the need for even spread of community involvement in matters related to the school that includes planning and implementation of SSA, needs to take place for which concerted efforts may be necessary by the States.

3.      As pointed out by the previous JRM efforts will have to focus on further strengthening a community based approach for SSA implementation. The Sub-Mission on Social Mobilization, Community Involvement and Roles of Panchayati Raj Institutions formed by the National SSA Mission would have to examine the performance and achievements of States in this regard and also provide deeper insights into the aspect of capacity building of structures created. Capacity building efforts may have to be based on an understanding of the gaps in capacities evident from the field. This will be critical if habitation based planning, as envisaged in SSA, is to be realized.   Learnings from good practices need to be highlighted at trainings by using them as case studies

 

1.31     A multi-disciplinary expert group, comprising the national and State level representatives, including members from outside the government system should be constituted to undertake a comprehensive review of data management in SSA. This should include inter-alia, revisiting the definition and methodology used to compute drop out rates (para 3.10 and paras 5.6.1 – 5.6.3). 

 

1.32     A Multi Disciplinary Expert Group (MDEG) has been formed and a copy of the order constituting the group has been shared with the Mission. From the minutes of the first meeting of the Group it is seen that the present information system along with its use were discussed. The meeting also tried to reflect on the constraints faced. Based on this the feedback from members should have been shared and future course of action planned at the group’s second meeting that was scheduled on 10.1.06. The outcomes of this meeting were not shared with the Mission.   

 

1.33     There should be an increased focus on better monitoring of planned expenditures in quality related areas (para 3.7 and 9.4.9). 

 

1.34     Monitoring of expenditure on quality related parameters has been strengthened, as follows: 

1. Through quarterly monitoring formats.

2. In quarterly meetings of State Pedagogy Coordinators.

3. Through Quarterly performance reports submitted by Financial Controllers of State SSA Societies.

4. In National meetings of State Education Secretaries and State Project Directors of SSA.

5. Newly designed monitoring tools for school performance and academic resource institutions, by NCERT.

 

1.35     A ‘time-on-task’ study should be commissioned that examines the extent to which learners in elementary classrooms are engaged in learning (para 3.7 and 7.15). 

 

1.36     An Expert Group constituted by the ‘Committee for approval of research projects’ (CARP) in the Department of Elementary Education & Literacy, has prepared the research design of the proposed study. This will be shortly put up for the consideration and approval of CARP.  

 

1.37     Immediate action should be taken to improve the process of obtaining a reliable national benchmark to assess and evaluate progress towards learning achievement (para 3.6).  

 

1.      The Mission notes that as a follow up of the observations of the previous JRM, NCERT has finalized and further improved upon the sampling design for mid-term assessment survey at Grade-V. It has further undertaken a statistical re-analysis of BAS data at Grade-V and has removed the errors that had appeared in the original analysis. NCERT will be initiating the analysis of BAS data at Grade-III and VII/VIII, keeping in view the observations of the 2nd JRM of SSA.

2.      NCERT has prepared the schedule for Mid-Term Assessment Survey at Grade-V, starting from December 2006 till January, 2007

 

1.38     It is recommended that district level staffing be augmented (within SSA norms) to monitor BRC/ CRC/VEC accounting and provide basic guidance.  

 

1.39     The EE Bureau is regularly monitoring the staffing of Finance and Accounts staff at District level and the training on accounting at district level and sub-district level on a quarterly basis in the review meeting of State Finance Controllers and asking States to fill up vacancies that still exist. The Mission takes note of the progress made in this regard by the States but is still concerned about continuing vacancies. It would also be necessary to guide States on having them function efficiently. With decentralization expenditures have increased at the sub district level and that may necessitate provisioning of technical support to meet accounting needs at this level.   

 

1.40     Summary of Progress towards the Achievement of Development Objectives 

 

1.41     Progress in the implementation of the programme with respect to the Development Objectives is assessed against a set of agreed indicators. The status of these indicators is reported in the attached Results Framework (Appendix II). This section of the Report summarises the JRM’s discussion of the status of the Results Framework with the Centre, State, district and sub-district representatives and sets out recommended follow-up action, including future plans, financial allocations and capacity issues. The section is organised in accordance with the three Development Objectives. 

 

2.0       Development Objective 1: To reduce out of school children in the 6-14 age group, with an increase in enrolment, in the process of universalizing elementary education 

Reducing the Number of Out of School Children (OOSC) 

 

2.1       There continues to be good progress in reducing the number of out of school children (OOSC) and the target of reducing this by 3 million per year is being exceeded. The number of OOSC has fallen from 25 million in 2003 to 13.5 million as on March 2005 and it is expected that this positive trend will continue in 2006. The Mission was presented with the report of the independent Survey in Assessing the Number of OOSC in the 6 to 13 Years Age Group that had been commissioned by MHRD. The findings of this sample survey conducted in all States and Union Territories and including 87,874 households generally confirm the Government’s own estimation of the number of OOSC. The survey estimates that the number of children in the age group 6-13 years is 194,028,643 and that 13,459,734 of these (6.94%) are out of school. The majority of the OOSC are living in rural areas, but a significant proportion is urban dwellers. There are more children out of school among the age group 11-13 compared to those in the age group 6-10 years. In the 6-10 years age group there are almost as many boys as girls out of school, but in the higher age group, 11-13 years, girls outnumber boys. The survey finds that there is a high proportion of minority social groups in the out of school population: 

 

·         38.11% of children aged 6-13 years with disabilities are out of school;

·         9.97% of Muslim children aged 6-13 years are out of school;

·         9.54% of ST children aged 6-13 years are out of school;

·         8.17% of SC children aged 6-13 years are out of school; and

·         6.9% of OBC children aged 6-13 years are out of school.

 

2.2       With regard to the remaining population of children aged 6-13 years (i.e., after the above groups have been netted out), only 3.73% of these are out of school. On the basis of this survey, a child with disabilities would therefore appear to be twelve times as likely to be out of school as a child in the general population. A Muslim girl child would be far more likely to be out of school as a child in the general population. At the national level, among the children who are out of school, 68.26% of these have never been to school and the remainder is dropouts.  

 

2.3       The Mission found encouraging evidence of progress in reducing the number of OOSC at the ground level in all of the ten States included in the JRM: many of the representatives of VECs and local communities met during the JRM stated that the number of out of school children in their habitation had declined markedly in the last three years. In four of the States visited, viz., Karnataka, Mizoram, Himachal Pradesh and Rajasthan, there are few children remaining out of school. In Andhra Pradesh, Orissa and Chhattisgarh there are large numbers of OOSC, but these tend to be concentrated in just a few districts. The majority of the country’s OOSC are concentrated in the remaining three States visited: Bihar, UP and West Bengal. These States contain 39 out of a national total of 48 districts that each have over 50,000 children out of school: Bihar (20); UP (15) and West Bengal (4). 

 

State	No. of districts having >50,000 OOSC
Assam	2
Andhra Pradesh	1
Bihar	20
Chhattisgarh	1
Haryana	1
Maharashtra	2
MP	1
Tripura	1
UP	15
WB	4
Total:	48

 

2.4       As recommended in the Second JRM, there is a need to sharpen the focus of SSA and to concentrate human and financial resources and energy on the States with the largest numbers of OOSC and, within these States, to prioritise the districts with more than 50,000 children out of school. The GoI has taken action in this regard following the Second JRM and the status of the districts with more than 50,000 OOSC has been clarified as indicated in the table above. 

 

2.5       It is clear from GoI’s reporting and the independent survey that while progress at the national level is encouraging, there are variations across States and within States that need to be addressed urgently on a specially targeted basis through the AWP&Bs, particularly with regard to Muslim children, ST, SC, OBC and children with disabilities. There is also a need to improve the quality of the data on OOSC as currently there are a number of inconsistencies across States and within States. At the behest of GoI special workshops and training programmes have been held in several States including Bihar, UP and West Bengal since the Second JRM and during these events strategies have been developed for bridge programmes and other interventions. Conceptualisation of strategies for OOSC needs to be more fully developed in States prior to the formulation of AWP&Bs and, in addition, there also needs to be detailed monitoring of plan and budget implementation in the 48 districts with over 50,000 OOSC.  

 

Increasing Access 

 

2.6       The opening of new schools and EGS Centres, AIE programmes, building of additional classrooms and repairs undertaken has undoubtedly enabled access, in geographical terms, for the overwhelming majority of children in the country. The relaxing of norms for EGS and AIE in tribal areas has greatly assisted increases in access in those places. Access is being increased in all States and in Mizoram, Himachal, UP, Karnataka and Andhra Pradesh there is now a school or EGS Centre/AIE programme in almost every habitation. The eight DPEP districts of Orissa appear to have the lowest levels of access (82% of habitations) of all the districts in the ten States visited and plans are being implemented in that State under DPEP to address this situation, including new schools, EGS Centres and AIE programmes.  

 

2.7       With universal access to primary education now virtually achieved, except in the case of low-density populations in remote areas, the emphasis is shifting to increasing access to upper primary education. The ratio of primary to upper primary schools is improving in all States with the exception of West Bengal, the only State having a ratio above 4 (5.3). The national ratio is highest in rural areas (3.14), with urban areas being well served at a ratio of 1.71. There has been progress in Chhattisgarh, Mizoram and Karnataka where the ratio is now below 2. The four States with the highest ratios, West Bengal (5.3), Bihar (3.6), Jharkhand (3.78) and Meghalaya (3.91), should receive particular attention over the next two years in this regard and, in each case, the contribution of private schools should be taken fully into account.  

 

2.8       At the other end of the system, greater convergence is required with the managers of ICDS regarding pre-school education. There are enormous benefits to be derived from greater synergy between the pre-school provision of ICDS and primary schooling. 

 

2.9       Access is being increased in all States according to the current norm of a school within 1 km of each habitation. Most States have also adopted a population norm of at least 200 persons per habitation. There is an issue of how to deliver education services to habitations with populations of less than 200 dwelling in the remotest areas – these populations contain some of the hardest to reach children in the country. There are also issues of access for special groups that are not specifically geographical, such as the children of migratory workers – these groups are often the last to be brought into schooling in some of the smaller States that have enrolment rates of over 95%. The managers of SSA need to give some further thought to these questions in the months ahead. Residential schools like the KGBV and schools being run by the Department of Social Justice and Empowerment should be utilized optimally for this target group. 

 

2.10     AIE is also being used to support the opening of residential and non-residential bridge-course centres for migrant children at various sites in some of the States visited. There is evidence of effective partnerships with NGOs that have been developed in this regard, such as Orissa’s residential and non-residential bridge-course centres for migrant children at brick kiln sites in Andhra Pradesh in collaboration with SSA Andhra Pradesh and Action Aid India. There is also progress in inclusive education, particularly in Himachal Pradesh, Orissa and Karnataka. In a number of instances the Mission learned that active engagement by VEC or MTA members with parents of out of school children had been a key factor in the enrolment and attendance of children with special needs (CWSN). During field visits in several of the ten States the Mission found that almost all VECs, and many CRCCs, knew the identity and location of the remaining out of school children and the reasons for their non-enrolment, and in most cases had worked out a strategy (typically involving mobile teachers or intensified community engagement) to enrol these hardest-to-reach children. The development of Child Census databases in Karnataka and Orissa and the Child tracking System of Rajasthan should enable the State, Districts, Blocks, Clusters and Schools to further identify those children that remain out of school and to develop specific strategies for bringing these children into the system.  

 

2.11     The student classroom ratio came down from 1:46 in 2003-044 to 1:45 in 2004-055 owing mainly to efforts made by SSA and DPEP. The classrooms sanctioned for 562 districts during 2004-05 amount to 259,485, which is a prodigious target. If this extremely challenging target is achieved and 259,485 additional classrooms are constructed in time there will still be a gap remaining of 910,440 in the national requirement for additional classrooms and there will be a shortage of 36,851 in the national requirement for new schools. Out of the 562 districts requiring additional classrooms, only 234 of these will be able to cover the gap in less than four years time, while the remaining 328 districts will need much more time to meet their requirements: some will need more than 10 years on the basis of their past record of implementation of civil works.  

 

2.12     Given the present rate of infrastructure provision, and the increased enrolments that are expected, classrooms in these districts are likely to become increasingly crowded and the quality of education will undoubtedly suffer with the result that children will be either unwilling to enrol in these schools or, once enrolled, may be vulnerable to dropout. This major challenge needs careful management in two respects: firstly, the huge fund requirement of about Rs 7,500 crore to construct 5,00,000 classrooms is probably the single biggest financial, programme and community mobilisation effort in the history of education in India, possibly the world; secondly, while the new classrooms and schools are being constructed there is a need to intelligently manage the situation in the sites where the buildings are to be constructed so that rather than simply waiting for the classrooms to be constructed, the managers of these schools can develop alternative learning spaces that can be used for most or part of the year in semi-open or open areas at nominal cost and minimal planning input. This had been experimented with in a large way under the DPEP programme. These could include innovative use of verandas, corridors, pavilions, spaces under the tree, shaded backyards, use of existing walls or enclosures otherwise not currently put to educational use, etc. The sub mission on Infrastructure provisioning for SSA should focus on these two aspects of the classroom construction challenge as a matter of urgency. 

 

2.13     Based on DISE (2003-04) of 812,170 primary and 283,076 upper primary schools 145,943 (18%) and 12,701 (4.5%) of schools respectively did not have adequate drinking water provision. Despite SSA’s provision, a gap of 78,358 for drinking water in schools is likely to remain in 2005. In the case of toilets, despite SSA provisions, there may be a gap of 326,656 toilets in schools in 2005. However some States have shown 90% or more progress towards sanctioned targets and there are examples of good convergence for toilets and drinking water (i.e., Rajasthan and Gaya district in Bihar). The Mission is pleased to note that the Rural Development Ministry has sanctioned drinking water facilities for 64,833 elementary schools and 4.96 lacs toilets for elementary schools and these will meet the targets that had been set under SSA (the target set for toilets will be exceeded). In the light of this provision, from this year SSA will not sanction anything for drinking water facilities and toilets. In States that have completed the installation of toilets the issue is the use of these facilities – the Mission found instances where new toilets were locked or preserved for the use of teachers. 

 

Increasing Enrolments 

 

2.14     The independent Survey in Assessing the Number of OOSC in the 6 to 13 Years Age Group suggests that the Net Enrolment Rate (NER) (for children 6-13 years of age) is 94%.  However, the DISE data indicates that NER is 78.6% at the primary level (but this does not include data from some recognized and unrecognized private un-aided schools). While at the national level enrolments in Government and Government aided institutions are increasing from 143.54 million in 2004 to 156.01 million in 2005 and the number of OOSC is reducing, surprisingly there has been a reduction in enrolments in Government and Government-aided schools in some States (Orissa, Himachal and Rajasthan of the ten States included in the JRM) and, more generally, in 181 of 539 districts during the same period. The reasons for this decrease in enrolments are unclear but are almost certainly owing to the following factors: in-accurate enrolment data in previous years; transfers from the Government system to the private un-aided sector (for which data has not yet been collected); seasonal migration of workers and their families; reduced repetition (in Himachal) and shrinking populations in some areas, mostly caused by migration.  

 

2.15     While retention rates have improved at the national level, dropout rates remain unacceptably high and in one or two States these rates continue to exceed 50%. The survey of OOSC indicates that the highest percentages of dropouts are those that left schooling after completing class 5 and class 2 (20.5% each). The next highest percentage is those that dropped out after class 3 (17.5%). The main causes of dropout, as told to the Mission, appear to be the high opportunity costs of schooling (or at least parents’ perceptions of these), particularly for the poorest households and the need for sibling care is a key factor in this for girls (this was a key finding during the visit to Orissa).  As indicated above, convergence with ICDS pre-school provision would be particularly beneficial in this regard. In cases where ICDS is not an option, SSA should consider pre-school provision and there are examples of this in the States visited during the JRM.

 

2.16     There may also be issues of quality and relevance affecting dropout, particularly those that are dropping out after just one or two years of schooling. With regard to what States are doing to address the causes of dropout, the Mission noted with some concern that in several of the States visited the strategy for increased retention appeared to consist mainly of TLM Grants, Repair and Maintenance Grants, School Improvement Grants, Free Textbooks, and Infrastructure Improvement. While all of these inputs, together with the Mid Day Meal, free uniforms (in many but not all States) and training of VEC and MTA, are necessary for an effective school, they do not comprise a coherent and comprehensive strategy for increased retention and thus reduced dropout.  

 

2.17     There are problems with retention rate data and this may be contributing to the lack of coherent strategies for improvement. The Mission encourages the GoI and the States to examine the causes of dropout and to develop strategies for addressing this problem, particularly in the States that have the highest dropout rates (Bihar, Jharkhand, Uttaranchal, Orissa, Andhra Pradesh, UP, Haryana and Madhya Pradesh) and to target interventions at the points in the elementary cycle (class 2 and class 5) when children are most vulnerable.  

 

2.18     Retention and dropout are closely associated with attendance rates and the Mission duly checked attendance registers in each school visited and found these in order and up-to-date in almost all States covered by the JRM. The schools are filling in regular attendance returns in many States but these are not being consolidated, or analysed or reported on at the school, Cluster, Block or District levels. The attendance data is also not being used to inform retention and dropout strategies. For example, while the average attendance rate in the districts visited by the JRM, based only on Mission data, appeared to be in the range of 75% to 80%, in many States there are particular months in each year when pupil attendance appears to drop drastically owing to seasonal work or festivals – these trends in attendance have been apparent for many years but no strategies have been developed to reduce the adverse impact of these absences on learning. It is also apparent that attendance monitoring is not triggering action by the teachers or the VECs in cases where children may be vulnerable to dropout. Given that the First JRM recommended that greater emphasis should be given in future to attendance rates rather than merely enrolment rates in monitoring performance and setting targets, it is disappointing to note there has been only limited follow-up action in this area. The Mission recommends four next steps over the next six months to intensify efforts aimed at retaining more children in the education system and thus reducing dropout:

• Centre and States to analyse the findings of the SRI study of OOSC, in particular factors affecting Class 2 and Class 5 dropout;

• Develop more coherent and comprehensive strategies for increasing retention that make full use of the data available;

• Disaggregate these strategies to district, block, cluster and village level, ensuring that the actors at each level are responding to their own data and reporting, particularly attendance data; and

• Utilise the new NCERT monitoring tool to ensure that there is adequate response to issues of attendance.

 

2.19     In this regard the Mission looks forward to the reports of the two studies that have recently been commissioned by GoI on student attendance and teacher attendance. These reports should help the managers of SSA to understand the status and issues surrounding these two important factors affecting dropout.  

 

2.20     It is possible that a great deal of what is currently reported as dropout may actually be transfers to private schools. The survey of OOSC reports that enrolment in Government schools is 84.2% of the total number of children enrolled, followed by private recognised schools (13.3%), private unrecognised schools (1.8%) and AIE centres, Madrassas, etc (0.7%). As a matter of urgency SPOs in all States should use the databases they have and are in the process of developing to correct any mis-reporting in the DISE data and, in particular, to capture information about and report on (i) the status of enrolments in private un-aided schools; (ii) the reasons why parents are transferring their children to private schools; and (iii) the causes of dropout.  

 

2.21     The number of repeaters has reduced from 12.22 million in 2003-04 to 11.83 million in 2004-05. This equates to 7.58% of the elementary enrolment. The reasons for repetition are mainly failure in examinations (59%), long absence during the school year (26%) and re-admission after a period of dropout (15%).  

 

2.22     The Mission visited several EGS centres, all of which were functioning well with active VECs and teachers. The EGS centres seem to be a successful innovation for meeting the educational needs of children living in low-density areas. The Mission noted that these centres are generally coping with the particular challenges they face, but there is a need to increase the level of academic support provided to the education volunteers (EV). The EVs now appear to be regularly paid and no long gaps in payments were evident. In Orissa, for example, to ensure timely payment of honorarium funds have been transferred for three months in advance to the bank accounts of VECs. 

 

2.23     The Mission noted during its field visits several schools with teacher shortages, these shortages particularly affect schools that are some distance from highways and main roads and particularly habitations with low-density populations situated in remote areas. Several States have large cumulative gaps between their targets for recruitment of teachers and appointments made. These gaps must be closed as a matter of urgency and should be accompanied by rationalisation of teacher deployment in accordance with the increased targeting of resources recommended throughout this report. 

 

Recommendations  

 

2.24     GoI to intensify appraisal of AWP&B and to provide capacity building support to ensure:  

• the sub mission on Infrastructure provisioning for SSA develops an intermediate strategy to create alternative teaching and learning spaces in places where the infrastructure gap is present, while focusing on closing the gap of nearly 1,000,000 classrooms in the fastest possible time as a matter of urgency;

• States focus financial and human resources on the 48 districts with more than 50,000 OOSC;

• States focus on the most excluded social groups, particularly the disabled and children living in low density populations in remote areas;

• ·States increase the thrust on girls’ education, in particular access to upper primary and elementary education for ST girls.

 3.0       Development Objective 2: To narrow existing gender and social gaps so that enrolment of girls will be near parity with boys, enrolment of children of SC and ST will be near parity with that of other groups; and enrolment of children with disability will increase. 

 

3.1       The opening of new schools and EGS Centres, has enabled access, for the overwhelming majority of children in the country. This has led to an increase in primary enrolment that is close to the percentage of males and females in the States’ population. Presently enrolment of girls is 47.52 % at the primary level and 45.32% at the upper primary level. There has been a marginal improvement in this respect between 2003-04 and 2004-05. At the primary level the GER for girls is 92.6% compared to 95.1% for boys. The NERs of girls and boys are 77.6% and 79.5% respectively for primary school. The DISE data shows that at the primary level, the percentage of girls’ enrolment varies from 50.36% in Meghalaya to 43.79% in Bihar, with 9 States having a percentage below 47%. At the primary level, the States that are furthest behind in terms of gender parity are Bihar, Chandigarh, Jharkhand, J&K, Punjab, Arunachal Pradesh and Rajasthan. 

 

3.2       The percentage of girls enrolled continues to increase with gender parity almost within reach at the primary level: the girls to boys ratio at this level increased from 0.90 in 2003-04 to 0.91 in 2004-05. The national gender parity index (as per DISE 2005 by NIEPA) at the primary and upper primary levels are 0.91 and 0.83 respectively.  States that are yet to achieve GPI comparable to the national average of 0.91 at the primary level are Bihar (0.78), Chandigarh (0.81), J&K (0.85), Jharkhand (0.86) and Arunachal Pradesh and Rajasthan (0.87).  At the upper primary levels such States are Bihar (0.61), Gujarat (0.77), Jharkhand (0.72), MP (0.74), Rajasthan (0.58), J&K (0.79) and UP (0.80).  The Mission is concerned to note, however, that there has been slower progress in closing the gender gap at the upper primary level and this is largely owing to the problems of access reported on in the preceding section.  These States should receive particular attention over the next two years in this regard. 

 

3.3       With regard to SC and ST enrolments, the positive trends of previous years have continued in the case of SC, but ST enrolments (in terms of percentage of total enrolments) have remained static, perhaps reflecting the problems of providing access to low density populations in remote areas. There is clearly a need to give more emphasis within SSA planning and implementation to increased access for low density populations in remote areas (where many ST children live) and to provide more support for girls’ education in particular in these areas. 

 

3.4       At the upper primary level, 9 States have enrolment percentages below 45%. The survey on out of school children also shows that 6.18% of boys and 7.92% girls are out of schools overall, but in rural areas 6.78 % of boys and 9.14% of girls are out of school. In the 6-10 age group 5.51% boys and 6.87% girls (rural 6.18 & 7.87) and at the 11-13 age 7.46% of boys & 10.03% of girls (rural 7.97 & 11.76) continue to be out of school. In absolute numbers, the girls out of school out number boys out of school.

 

3.5       While the overall scenario is encouraging, regional variations are considerable, with a number of States and districts where gender differences continue to be significant. For instance in Bihar the inter district variation in gender gap in enrolment highlights that Supaul, Sheohar, and East Champaran have very high gender gaps while Buxar, Bhojpur and Patna (Urban) have relatively low gender gaps in enrolment. 

 

3.6       There is a clear need to give more emphasis within SSA planning and implementation to provide more support for girls’ education in the States which continue to show gender differences and to those geographical areas in each State where gender differentials continue. Under SSA generally and in the NPEGEL blocks in particular, each cluster needs to identify and focus on areas with continuing gender differences, with a complete analysis of the reasons for continuing gender gaps and formulate a concrete plan of action. 

 

3.7       During field visits it was noticed that most States have identified the opening of EGS and provision of incentives like the midday meal, uniforms and free text books apart from enrolment drives as the major vehicle for increasing girls’ enrolment and retention. This is happening even in areas where gender gaps in enrolment and retention are now negligible.  Some States like Bihar also have a good ECCE programme that helps address the sibling care problem. As gender gaps narrow, such generic solutions may not prove adequate, and added incentives may in fact discourage boys from similar social and economic groups. Some States like Uttar Pradesh have introduced provision of uniforms to girls and this has caused resentment among boys. Similarly, Bihar is using old textbooks provided by older students for boys from economically weaker households. The additional incentives being provided under NPEGEL should be need based and must be related to girls’ enrolment, retention or achievement. States need to focus now on the special needs of those girls that continue to remain outside the system. 

 

3.8       KGBV has opened up another opportunity for the education of girls at the upper primary level that targets the extremely marginalized and hard to reach segments of out of school girls. A majority of the residential schools under the scheme are operational but the enrolment shows under utilization of the facility in some States. This concern must be examined immediately to optimize usage of this very special provision for girls’ education. Some of the difficulties experienced by the implementers are attributable to the temporary arrangements for running the schools and hostels. Under the circumstances it becomes all the more important for the States to expeditiously complete the construction and run the school/hostel in own buildings. 

 

3.9       Going by the transition and pass rates it is clear that the differences between the achievement of boys and girls are fast narrowing. The transition rate of girls rose to 75.58% in 2004-05 from 71.98% in 2003-04 and the gender differences have reduced significantly. While this is the National scenario there are States like Bihar and UP that still have to work hard to improve their transition rates.  In States like Himachal Pradesh the board examination results of girls compare favourably with that of boys.  

 

3.10     NPEGEL, which is being implemented in the States visited by this Mission, does not seem to be well understood and States are still found to grapple with operational issues. There are some reservations about the feasibility of operationalising a hub school with such an extensive geographic coverage. In this context it is suggested that the States redefine their clusters under NPEGEL, as per the provisions of the scheme, for achieving the envisaged impact on the quality of education received by girls.  For example, in Rajasthan there are clusters with 15 to 56 villages/schools that is likely to impact on the usefulness of the scheme as funds are adequate for 10 schools at the most. States may confine to norms of the scheme in planning their clusters in NPEGEL. It was, however, encouraging to note that Bihar at the State level has a clear conception of what they propose to do under the NPEGEL scheme, but other States do not show the same level of conceptualisation. Even in Bihar the concepts have not adequately percolated down to the level of implementation especially in the non-MS blocks. 

 

3.11     One of the important initiatives undertaken under DPEP was to make textbooks gender sensitive and free of gender bias and to supplement this through gender sensitive teaching and learning materials. This was envisaged as an intervention that will impact on the way girls and women have been traditionally viewed with regard to their status and roles. This also forms one of the cornerstones of NPEGEL. It is not clear to what extent the States have clarity about this and what steps have been taken to undertake such activities, both as a part of the overall renewal of teaching learning material as well as part of NPEGEL and how far other aspects of implementing NPEGEL reflects this understanding. For example, their perception of the MCS as  “time and space” for girls.  

 

3.12     The Mission was pleased to note that the representation of female teachers is on the increase in the States and the reservation policy has been more actively followed in the case of para teachers. The current status is that 39 % of teachers serving in schools are female. 

 

3.13     The Mission was also pleased to note that there is a visible increase in the availability of toilets for girls in schools, to meet an essential condition for the security and privacy of adolescent girls in schools. However, as noted in the preceding section of this Report a gap of 3.27 lacs toilets remain in the country’s schools and it is expected that this gap will be met out of the 4.96 lacs toilets that have been sanctioned by the Ministry of Rural Development, Government of India. The Mission also notes that there is an issue of the use of toilets and more effort is needed to ensure access to toilets for girls. 

 

3.14     It was noted that the percentage of enrolment of SC and ST children at both the primary and upper primary level is more than their population. DISE data shows that at the primary level 20.73%, and at the upper primary level, 20.10% of children enrolled are SC as against a population share of 16.20%. Similarly, at the primary level 10.69%, and at the upper primary level, 8.59% of children enrolled are ST as against a population share of 8.2%. 

 

3.15     Of the 20.73 % SC children enrolled at the primary level 47.43% are SC girls and out of the 10.69% ST children enrolled in primary schools 46.76% are girls. The scenario at the upper primary level changes marginally with 44.73% of the 20.10% girls enrolled in primary schools being SC girls and 42.58% of the 8.59% ST children enrolled in upper primary schools being girls. It can be seen that ST girls in particular need focused attention. 

 

3.16     However, it is seen from the data on OOSC that 8.17% of SC children in the age group of 6-13 years are out of school while 9.54% ST children are out of school. The corresponding figure for Muslim children is 9.97%. This is higher than the general percentage of children out of school.  

 

3.17     It is now noticed that the overall representation of SC and ST children is higher than their representation in the population of the States and increasingly girls (irrespective of their social background) tend to outnumber boys in Government schools. Essentially, this reflects a trend for an increasing number of boys to migrate to private schools despite the large number of incentives (Study on Assessing the Number of Out of School Children in the 6-13 Years Age Group by SRI) in Government schools. In private schools the percentage of girls and the number of SC and ST children is almost invariably lower. This reflects the social value attached to private schools and raises questions about the community’s faith in the quality of education provided in these schools. With fewer influential parents sending their children to Government schools, the priority within the system for quality improvement is likely to diminish. Quality interventions in Government schools therefore become a greater priority to ensure that equity issues do not increasingly become one of Government vs private schools. 

 

3.18     Education of minority girls in mainstream education facilities has often been ridden with obstacles that are rooted in community beliefs and practices. There are examples of States such as Uttar Pradesh and Bihar that have a clear strategy of working with the religious institutions of the minority community to promote girls’ education.  States like AP, Karnataka and Bihar have Urdu as a medium of instruction.  Several strategies such as EGS centres and KGBV are running in minority dominated areas. 

 

3.19     Some States have articulated strategies focused on specific vulnerable groups, but most States, continue to focus on opening of EGS centres and bridge courses as well as supporting Madarsas to bring SC, Muslim and children of other vulnerable groups into school. Bihar is also experimenting with alternative schooling centers for adolescent Muslim girls and Muslim children in urban slums. Specific strategies for these groups need to be articulated in the annual work plans and be reflected in the budgets of the States to bridge this gap expeditiously.

 

3.20     There is little evidence to comprehensively check if the provision of infrastructure across the States / regions is being given to the most deserving areas and on priority.  It is essential that allocations of infrastructure be made on the basis of the need based planning to ensure optimum utilisation of funds and provision of infrastructure where it is most needed.  

 

3.21     In all States, there are policies for the representation of women, SCs, STs and parents of CWSN in the village education committees/school development and management committees. In Bihar it is mandatory for either the chairperson or the secretary of the VSS to be a woman. However, during field visits it was noticed that their participation levels were uneven. Adequate training needs to be ensured to enable full participation of all groups in such bodies.  

 

3.22     To ensure focus on vulnerable groups of children, it would be important to provide adequate staffing for girls, tribal children in tribal dominated States as well as for States with significant proportions of other vulnerable groups of children. This would help in the implementation of focused strategies for these groups of children. Even under the NPEGEL programme, it is noticed with concern that only the State of Bihar has kept dedicated personnel at the various levels, along with the core groups that would provide direction and allow full implementation of the programme.  Other States may like to learn from the good practices of Bihar where dedicated personnel at various levels have been provided for these groups of children.  

 

3.23     A category of children that has not received adequate attention seems to be urban deprived children particularly in the smaller urbanized areas. Many States visited had clearer ideas about children in rural areas. Many of the extremely vulnerable children like street children, girls engaged in house work, and boys working at tea stalls etc. reside in urban areas. Sometimes the administrative arrangements in the States are not conducive to delivery with intent, as the SIS has to operate through the urban local bodies. Despite this, learnings from positive experiences need to be drawn upon to address the needs of the urban deprived child. 

 

3.24     It is often stated that the funds for innovation are not sufficient for the kind of innovative activities States would like to implement to encompass all the children. The frequently cited issue is that bulk of the funds available under the Innovations head of SSA is actually spent on meeting recurring costs of activities (CAL, ECCE, Girls’ Education, etc) already initiated. It is noteworthy that there are unused funds despite this kind of commitment to meet recurring costs. In this context States will have to revisit their approach to utilizing the inbuilt flexibility through this budget head that is often being used for standard activities that the State is unable to meet out of its own fund (for example provision of uniforms). The provisions under Innovations and the EGS and AIE Scheme have to be used optimally to benefit all categories of children including boys who have been pointed out as another neglected but deserving segment by some States.

Children with Special Needs

 

3.25     States have stepped up their efforts to identify this group, medically assess them, provide them with aids and appliances and mainstream them. In doing the latter the States have adopted different strategies that include preparatory camps (that are residential and non-residential), as in Andhra Pradesh and Uttar Pradesh, provisioning of resource/iterent teachers and training regular teachers to deal with CWSN in the classroom. Going beyond this the States have also provided day care centers and home based education. Some good working examples were seen in Himachal Pradesh but the possibility of inclusion of all the CWSN appears to be an uphill task.  It is still not certain that inclusion in its present form will imply actual inclusion. Those in the formal schools are not progressing at the rate of peers in the class and are repeating classes and those outside the class are probably incapable of independent existence and require education of a kind that will enable them to perform basic survival tasks.  

 

3.26     Given the above, there is a need to conduct an assessment study of the initiatives in different States in relation to inclusion of CWSN and their retention in mainstream education systems under SSA. This would provide useful learnings for developing more holistic and comprehensive plans keeping in view the zero rejection policy. Thus in the context of the zero rejection policy and data on high out of school CWSN (38.11% out of school children in the 6-13 years age set according to the study by SRI), there is a need to develop strategies based on curricular approach that will enable all children to learn in the education system rather than the disability focus which is medical rather than social. There is a need to develop strategies based on a curricular approach that will enable all children to learn in the education system.

 

3.27     Accessibility provisions such as ramps were completed only in 19% of 903,890 schools across the country. For 2005-06 another 8% more schools will receive accessibility provisions, but still a gap of 73% of schools will remain. These figures neither reflect the quality of the provision nor the extent of the coverage of the school with barrier free features. It is likely that provision of barrier free access is available in much less than 27% of schools. Since ramps address accessibility issues for only orthopaedically challenged children, there seems to be no clear picture about provisions being made in the school environment for other CWSN – the Mission did not observe any other forms of provision beyond ramps. The key issues here are, therefore, firstly how is provision for ramps in all schools to be accomplished; secondly, how is accessibility provision to be made for other CWSN; thirdly, to what extent are schools becoming barrier free to all CWSN, and fourthly, while barrier free access within the school is a necessary condition for universalising elementary education, it is not a sufficient condition – the CWSN faces many more barriers on his/her journey from home to school than he/she does in the school itself.  

 

3.28     It is encouraging to note that special toilets for CWSN are also beginning to be provided in some of the schools (as in Una district of Himachal Pradesh where 112 schools have toilet blocks with four toilets – one each for girls, boys, teachers and CWSN).  

 

Recommendations 

 

3.29     The following are to ensure equitable education in the States :

 

• Formulation and appraisal of AWP&Bs in line with the priorities of States to be able to address the issues of all the children in dispersed habitations and urban areas who are in difficult conditions. Special care would be taken to incorporate specific strategies for Muslim children especially girls.

• Special attention will have to be paid to the upper primary level to bridge gender and social gaps. This is going to be the major challenge for the States, particularly those with no prior experience of implementing basic education projects and those who have had to take on the challenges at the primary and upper primary levels at the same time

• Identify issues of SC and minority children (particularly girls) to be able to intervene with appropriate strategies to upgrade their educational status. The SC children are often clubbed with the ST children and no effective targeted strategies are designed for them

• GOI should urgently provide the States with operational guidelines on NPEGEL and KGBV to create requisite awareness about them and facilitate proper implementation of the schemes

• Provision of adequate personnel at relevant levels for meaningfully executing activities designed for girls and special focus groups.

• Conduct an assessment study of the different strategies and interventions implemented for CWSN as States have introduced several innovative interventions. Findings of the study can be used to refine the plans and provisions for the inclusion of these children.

4.0       Development objective 3 – To increase the quality of education of all elementary school students so that learning will be improved and transition rates from primary education to upper primary education will increase. 

 

4.1       The Mission was pleased to note that according to DISE the average nation wide transition rate from PS to UPS has significantly improved by 12 percentage points from 75 % in 2002 to 87% by 2004-05; it is 89% for boys, 86% for girls, 83% for ST and 80% for SC. The State figures generally confirm this progress.  

 

4.2       NCERT undertook a baseline assessment of Class 5 student achievement in 2002.    It was reported to the Mission that following the recommendations made by the 2^nd JRM the base line survey data pertaining to Class 5 in all States has been refined. This is now available as a benchmark against which to measure progress in the mid- term survey of Class 5 due to be conducted in 2006. The following table presents the findings on the average percent correct in mathematics and language by State. It can be seen that the average achievement level was less than satisfactory and the variation within and across States is large.   

 

Average Percent Correct of  Baseline Assessment of  Grade 5 Mathematics and Language, 2002 

 

 

Source: “Learning Achievement of Students at the End of Class V”; Department of Educational Measurement and Evaluation, National Council of Educational Research and Training, 2003 

 

4.3       The baseline assessment shows a relatively small gender gap and rural urban gap in achievement.  However, the standard deviation is large.  The following table presents the data. 

 

Gender wise and Area wise Achievement of Grade 5 Students, 2002

 

 

 

Source: “Learning Achievement of Students at the End of Class V”; Department of Educational Measurement and Evaluation, National Council of Educational Research and Training, 2003. 

 

4.4       Baseline surveys of Grades 3, and 7/8 and the mid-term assessment have been conducted and results are to be presented on the following dates: 

      

 

4.5       A number of States have developed schemes for surveying pupil achievement outside regular examinations. These are Orissa, Uttar Pradesh, Bihar, Himachal Pradesh and Karnataka.

 

4.6       At the national level the average pupil teacher ratio (PTR) for primary schools has decreased from the baseline 46:1 (2002-03) to 43:1 (2004-05) and for upper primary schools from 30:1 (2002-03) to 29:1 (2004-05). However there is a large inter State, inter district and inter school variations. In some States there are still a significant number of districts with severe shortage of teachers.  In 2004-05, 87 districts had an average PTR above 70. Most of these districts are in UP (40) and Bihar (36). The focus of the teacher deployment policy in these States will be on the recruitment of new teachers and rationalisation of the deployment of existing teaching force. 

 

4.7       The scenario of teacher shortage is affected by 1.25 lacs (2004-05) single teacher primary schools and 11,000 single teacher upper primary schools. Highest number of single teacher primary schools is in Rajasthan (21,000 out of 75,000) schools, Madhya Pradesh (22,000 out of 97,000) and Assam (7000 out of 31,000) (from DISE).  According to DISE there was no progress regarding the reduction of single teacher schools from year 2003-04 to 2004-05. 

 

4.8       At the national level the average student classroom ratio (SCR) has decreased for primary schools from 43:1 (2002-03) to 40:1 (2004-05) and for upper primary schools from 43:1 (2002-03) to 42:1 (2004-05).  

 

4.9       Of the 7422 BRCs sanctioned 7201 (97%) have been established, and out of the 27,965 staff positions sanctioned 21,079 (75%) are filled.  Similarly from 70,735 CRCs sanctioned 66,40 (93.5%) CRCs have been established and out of the 55,685 staff positions sanctioned 42,632 (77%) positions have been filled.   

 

4.10     Although a large number of teachers have been trained under SSA, only 51% of teachers received in-service teacher training of 20 days in 2005 (18 lacs against the target figure of 35 lacs). Only 48% of teachers received induction training of 30 days. The 60 days training for untrained teachers was given to only 46% of the targeted teachers. 

 

4.11     The above section provides a summary of measurable outcomes serving as indicators of quality. The Mission finds that expenditures and the overall implementation in the area of quality improvement have been slow, and this has impacted on classroom processes as well as learning outcomes. 

 

4.12     The Mission was pleased to note that a number of specific initiatives towards enhancing quality are in place. The provision of free textbooks to girls and to SC and ST students is a significant measure to support learning. Textbooks are the mainstay of quality improvement inputs. An effective distribution system has made sure that books are available in time and the Mission saw stock registers documenting this. The textbooks are being used in schools, and are the main source of guidance for teachers. In many districts, supplementary reading material has also been produced. The teachers’ guides will enhance the effectiveness of the textbooks. 

 

4.13     Systems for monitoring school performance and teacher performance have also been developed by Himachal Pradesh, Bihar and Karnataka. In Himachal Pradesh the success rates of children in specific subjects taught by each teacher at the board examinations (Class V and VIII) is calculated and compared to the Board’s average pass rate in that subject. This provides a comparison of the teacher performance with the overall performance rates of children in the Board examination in the State. In a few States the training of teachers to enable them to undertake small research studies has also been initiated.  

 

4.14     These are encouraging signs of increased concern for quality and of meaningful steps taken towards raising quality. A significant resource is available in the   ‘Monitoring Formats for Quality Dimensions Under SSA’ that the NCERT has developed. The regional workshops conducted in the development phase also served to   orient personnel in several States to the scheme.  Further workshops to re-orient monitoring personnel from SCERTs, DIETs, BRCs CRCs are being conducted. A study of “Time on Task’ which involves direct observation of classrooms in action was recommended by the 2^nd JRM. The TORs for this study have been developed and shared with this Mission – the work should now proceed as soon as possible.

     

4.15     The progress indicated in the concrete figures and measures reviewed above are to be appreciated. However, the widespread evidence of low levels of learning on the part of a large proportion of students as seen in the evaluation results shared with the team as well as during field visits is a matter for serious concern. 

 

4.16     The Mission teams found wide variations in the level of teacher ability and preparation. Syllabuses and modules for training have been developed, but their impact on teachers has not been as high as hoped for. It is now important that their suitability for the specific target groups of trainees and their effectiveness be evaluated and modules be modified where required. It is encouraging that research by teachers is being undertaken in some blocks of Karnataka.  

 

4.17     It was also noted by many teams that the personnel at the district, block and cluster levels are quite inadequate in many cases with some districts having longstanding vacancies. Capacity building of the staff available also seems to be a pressing need through adequate training and support for administrators and teachers with varying needs. The wide variation in the number of schools within a cluster is a complicating factor. It is true that a few very competent individual officials with a clear understanding of their role were seen, e.g. in Gaya (Bihar).    

 

4.18     This evidence indicates that there is an urgent to need to focus attention now on studying and modifying those factors / elements most directly influencing teaching and learning processes at the school level – both within and outside specific lessons being taught.  

 

4.19     These include:

 

• Student achievement, teacher performance, relevance of teacher training given to different categories of teachers, on-site guidance provided to teachers by resource persons, school environment, especially the social climate and attention given to diverse learners and educational management at the individual school level.

     

4.20     A few concrete measures are given in greater detail below. 

 

• Measurement and Evaluation of students’ achievement: The achievement level of students should be regularly measured and evaluated in all States through the proposed set of language and mathematics test for grades 3, 5, and 7 or 8. The outcomes of pupil achievement should be utilized in two ways, namely, analysis for deriving feedback for immediate action through focused teacher training and remedial teaching and regular sharing with parents/ PTA/ community.

• Applying the monitoring of quality dimensions formats now available with proper analysis in the States with proper backup support from national level institutions.

• JRM’s visit to States witnessed availability of TLM in adequate measures but found its use very limited. Training should focus on this aspect. Science and mathematic kits could be a useful addition. It is learnt that NCERT has developed and tested a model science kit for PS, which could be produced at scale.

Role of SCERTs and DIETs 

 

4.21     The SCERTs at State level and the DIETs at the district level are an important resource to support a variety of SSA activities. The JRM visits to ten States observed weak linkages with the Department of Elementary Education and SPO with exception of Karnataka. This suggests that their capacities to influence SSA activities are presently limited. 

 

4.22     The extent of inputs from SCERTs, eg. in analyzing exam results, contributions to training was found to be low. This suggests that the capacity of these institutions needs to be developed.

   

Block Resource Centres and Cluster Resource Centres 

 

4.23     These institutions are the key structures to promote academic quality in elementary schools. Both the national statistics and the Mission’s findings in the States visited indicate large shortfalls in the availability of personnel at these institutions. Providing the needed orientation and skills training to staff at these centres needs to be given high priority, as the level of functioning of the existing centres was generally quite low.  Lack of clarity about roles and responsibilities is another aspect that needs to be addressed in strengthening the BRCs and CRCs. 

 

Recommendations

4.24     To promote quality the following specific steps should be taken :

 

• Provide training to BRC and CRC which covers clarity of roles and appropriate skills with emphasis on academic support

• Review the content of existing training packages and revise / add specific modules that are of direct relevance to teachers at different levels to make learning more effective

• Introduce the assessment of pupils through well designed tests other than regular examinations (as in HP)

• Encourage teachers to promote the use of innovative classroom practices.

5.0       Civil works 

 

5.1       Civil works constitutes 33% of the total funds spent under the project and is the most visible sign of the programme in the field. It also is crucial in the provision of a supportive environment for learning in schools. This component has seen considerable innovation in terms of design, technology and functionality as well as implementation during the implementation of programmes like DPEP, APPEP, Lok Jumbish etc. 

 

5.2       It is a matter of concern that there is little departure from the traditional straight-jacketed configuration of classrooms in most of the States visited by the JRM. Barring Bihar, where there has been a continued learning from DPEP in innovative designs as well as use of cost-effective technologies, there hasn’t been much movement. In Himachal Pradesh, from site-specific innovative planning under DPEP there is little innovation in SSA since mostly additional classrooms are being provided. There is an urgent need to address the design issues emerging due to mainstreaming of out of school children and the requirements of multi grade and multi level learning.   

 

5.3       There are several States where due to increased enrolment and inclusion of diverse group of children in the mainstream school, the diversity within the classroom has already increased or is likely to increase. In light of this, different learner groups within each classroom are inevitable, even if there are sufficient teachers. The spatial provision needs to address this to ensure quality of teaching-learning transaction. Thus, even if the number of children in a classroom does not exceed 40, classrooms may need allocated pockets for different learner groups, more child accessible storage, variety of display surfaces and free space for movement of teachers and children within the classrooms. Similarly, many classrooms are now being provided with furniture thereby affecting the space norm per child, which was originally calculated on the basis of squatting on the floor. The Sub-mission on Infrastructure provision would need to formulate comprehensive design strategies to address the diversity within and outside the classrooms since the present straight-jacketed design may not adequately support the quality of teaching-learning in the emerging scenario.  

 

5.4       The design of classroom environment to facilitate teaching learning has been found to be exciting in States like Karnataka. In Himachal and UP, it was found to be dark with less than adequate natural light in many schools. There are issues related to orientation, size, location and use of windows, as well as teacher’s capacity to creatively use the available space and its elements. Karnataka, Jammu & Kashmir and several other States are already moving towards using building elements as teaching learning aids.  

 

5.5       Innovative use of outdoor elements is possible only when schools have a protected outdoor space. Many States like Gujarat have already provided play equipments to their schools. Innovative use has also been reported from Bihar. Children like to innovate and improvise their play environment. Many outdoor spaces can be developed under the shade of the trees, shaded backyards, etc. thereby creating alternative learning spaces other than the formal classrooms.  

 

5.6       The community’s participation and its significance in managing civil works is evident in several States. However, in AP during the JRM visit, the community body (School Education Committee) stands dissolved upon completion of tenure. The active involvement of communities has been reported in States like Himachal Pradesh, Bihar and Karnataka.  

 

5.7       Preventive and corrective maintenance of school buildings need to be well worked out through a maintenance schedule to ensure longevity of the expensive infrastructure being created. Its significance was not widely seen during field visits.  This schedule will also help in proper utilisation of school maintenance grants. A module on preventive and corrective maintenance should be included in the training for community members as well as engineers. Although SSA does not provide for major repairs beyond Rs 5000/-, this is an issue that needs to be pursued with the States, as this is the most cost effective option. 

 

5.8       Interventions in the school system under additional classrooms, kitchen, toilets, plantation, playground etc. need to be well planned so that the school grows in a systematic, coordinated way. During field visits it was seen that additions are often made in a piecemeal manner.  This is resulting in a less than optimal utilisation of the available resource and space, which is precious in the rural as well as urban schools. This has been reported in Karnataka, and also observed in Chhattisgarh, and other States. A master plan should be developed for each school, based on present knowledge of schemes under implementation/likely to come up in the future. This will enable each school to progress and develop in a planned coordinated manner.  

 

5.9       Engineers working within SSA, whether working exclusively with the programme or as additional work, need to be further sensitized as evidence from field visits showed little impact. Similarly VEC members also need to be adequately sensitized.  

 

5.10     Resettlement and Rehabilitation : The MHRD is undertaking an evaluation of civil works in the States. The TOR of this study includes review of issues related to site selection and land ownership especially in tribal areas. The study will also highlight cases requiring resettlement. The study is expected to be carried out in the next six months.

 

Recommendations 

 

5.11     The Sub-mission on Infrastructure provision needs to formulate comprehensive design strategies to address the diversity within and outside the classrooms since the present straight-jacketed design may not adequately support the quality of teaching learning in the emerging scenario due to mainstreaming of out of school children and the requirements of multi grade and multi level learning. Many outdoor spaces can be developed under the shade of trees, shaded backyards, etc. thereby creating alternative learning spaces other than the formal classrooms.  

 

6.0       Institutions and Programme Management  

 

Institutional Arrangements 

 

6.1       In West Bengal, the structure is highly fragmented. Separate boards have been set up for primary, secondary and Madarassa education at the State level, responsible for curriculum development, textbook development, assessments, and training of teachers. The Directorate of School Education manages the administration of the primary schools. The Department of Panchayati Raj and Rural Development manages the SSKs and MSKs, the Department of Urban Affairs is in charge of SSPs. At the district level, District Primary School Council is in charge of all Government-aided primary schools and an elected management committee is responsible for upper primary schools. The SSA Mission has been situated amidst these numerous institutions to manage SSA and DPEP activities. The multiplicity of organizations at various levels and the lack of integration of SPO and DPO with the existing institutional set up has resulted in them not being in-charge of any aspect relating to SSA. As a result, SSA is viewed as a collection of activities without any focus on outcomes/output. This has adversely affected both the pace of implementation of the programme and its quality, and a lack of a strategic approach to solving the problems of elementary education prevails.   

 

Staffing 

 

6.2       Staffing is a key problem in almost all States, either because of unfilled vacancies or frequent changes of personnel, thereby affecting programme implementation.  The shortage of staff is particularly acute in specialized positions for coordination of accounts, civil works, gender, alternative education, and disabilities. 

 

6.3       In Chhatisgarh, for example, in the SPO, only 35 out of 56 posts are filled; at district level, only 158 out of 304 posts are filled; and, at the block level, only 372 out of 876 posts are filled. In Mizoram, more than 25 percent positions are vacant. In Bihar, only one-third of the required staff are in place (639 out of the 816 sanctioned posts at the State and districts are not filled). In Orissa, the situation has improved over the past year, but there has been significant turnover of staff in key positions in some districts. 

 

6.4       Turnover of staff also continues to be a problem in many States. In Rajasthan, there have been 3 SPDs within 8 months in 2005. In HP, also, there have been frequent changes of SPD in recent years, resulting in much disruption in programme management. Institutional arrangements for selecting appropriate staff based on experience and aptitude needs to be made. This will ensure that the SPO will have more control on the turnover of staff.   

 

Community Participation and Accountability 

 

6.5       SSA envisages a key role played by communities in planning, implementation and monitoring through the community. This has been done through various community level bodies like the VECs, WECs, PRIs, SDMC, PTA and MTA.  

 

6.6       The Mission was pleased to note that in all States visited, communities are involved in the programme though the level of awareness and ownership as well as powers and stake of these bodies is varied.  The participation of the women members and SC and ST representatives also varies. This is partly attributable to the fact that only some members of the bodies are trained. 

 

6.7       Training for community construction (the VNS), which formed a major component, is now found to be integrated in the larger training for community. Similarly some of the community members articulated a need for greater training on accounts in view of the large amounts of funds being handled by them. 

 

6.8       Transparency in the receipt and use of grants from various sources is also apparent as many schools visited by the Mission have displayed such information on the wall for all to see.  In AP, however, the SECs are in the process of being reconstituted after the election. Because of this, civil works have not progressed.   

 

6.9       A large number of members of community bodies have been trained, although this is a continuous process as they are elected periodically. In Bihar, according to a study of nearly three thousand VEC and community members, 90 percent of them reported to have received one day training and 71 percent two days. The training was also perceived to be useful.  

 

Use of data  

 

6.10     The Mission was pleased to note that 581 district in 29 States are now reporting under DISE. In addition most States are conducting household surveys, data for which was shown during field visits. Rajasthan has implemented the Child Tracking System (CTS) throughout the State and Orissa is in the process of completing a CTS. Most States have also introduced a system of student, teacher and school evaluation. Use of data for planning and monitoring however, remains a matter of concern in many States.  

 

6.11     It is important that the large amounts of data being collected be analysed at the State and district as well as sub district levels and be used for realistic planning. The Orissa team noted that elaborate micro planning exercises were taking place in the State that were not reflected in the district plans and budgets. The UP Mission has also noted that planning seems to done largely at the State level with little inter district variation in the plans. This is the case in most States covered by this JRM.

 

6.12     Another matter for concern is the quality of the data being generated. It is heartening to note that some States have conducted a 5% sample check of the DISE data. For example, Orissa has done 100% sample checks by the CRCs, 50% by BRCs, 20% at DPO, and 10% at State level. In Bihar, an independent institution is doing the 5 percent sample check. A third party 5% sample check has been conducted in two districts of HP.  All States need to institutionalise measures for validation of data.

Capacity Building and Training 

 

6.13     Although capacity building encompasses many activities, training is a necessary first step. To implement SSA effectively, there needs to be a clearly defined training strategy for all officials involved in implementation of SSA at the district, block, cluster, village and school levels – with a focus on orienting them to the vision and development objectives and activities of SSA, as well as strategies to reach specific goals and targets. The BRC and CRC are key links in the quality chain and their capacity building needs special focus. However, training has been lagging behind, as reflected by the relatively low expenditure on training (only 19% of allocation has been expended). In many States like Mizoram, there is a need to provide training to DPO, BRC staff, CRC coordinators, VEC members and community members in order to build capacity.  

 

Monitoring, Research, Evaluation and Supervision 

 

6.14     Monitoring and evaluation provide a solid base to programme improvement and enhancement of quality outputs besides streamlining the implementation process. It also improves accountability at each level. It was encouraging to note that NCERT as well as States are encouraging monitoring of learner outcomes as a part of overall monitoring of teacher and school performances.  With the increased use of the cadres of school inspection, for monitoring, evaluation and supervision, there is risk that they may continue on an inspectorial mode rather than providing resource support and capacity building. There is a need for reorientation of staff to ensure that all monitoring efforts are followed by the support and capacity building required for quality improvement under the programme.  

 

6.15     All States have carried out some studies, although details about their quality and rigor are unclear. Generally studies undertaken include cohort study, survey of response to teacher training, and follow up of students after bridge courses.  Some States have been more proactive than others. In UP, SIEMAT had facilitated 10 studies in 2004-05, and 12 studies in the current year. The studies taken up were more need-based, looking into the issues of implementation and innovation and were done through various universities, NGOs, and DIETs. Examples are: impact of training of Shiksha Mitra, study of utility and impact of aids and appliances, impact of school grading on improvement of schools, best practices in mid-day meals, study of out-of-school children and dropouts, and cohort analysis.  There is, however, inadequate understanding of the issues to feedback for actions and corrections of practices.

 

Recommendations 

 

• Action should be taken as early as possible to resolve outstanding staffing issues, including staff vacancies, turnover of staff in key positions and selection of staff on the basis of aptitude

• Institutional coordination between various actors needs to be strengthened.

• Evidence from the field visits suggests that VECs require adequate training on issues like construction and accounting apart from project goals. It is also necessary to ensure that all members especially those representing SC, ST or CWSN participate fully in such trainings.

• The States should undertake a 5% sample check to validate the data and ensure the data available to the sub-district and school level at planning. Reporting of enrolment should cover Government and private schools.

 Sustainability and Learning from DPEP 

 

6.16     A large pool of human resource was developed under DPEP with expertise in different areas like civil works, gender, community development, communication, project implementation etc. States need to ensure that resources thus developed are available for the implementation of SSA.  

 

6.17     Civil works: With the exception of Bihar no other State has continued with the process intensive, community based construction with cost effective technology on scale. The biggest casualty would appear to be the gradual disappearance of the outdoor innovative learning spaces and the multi grade and multi level learning spaces. States need to focus attention on such innovations 

 

6.18     Various innovative models of alternative schools were opened under DPEP. These included targeted interventions for adolescent boys and girls, interventions for urban deprived children etc. The Mission was pleased to note that some States have continued with these interventions and have built on their learnings.  

 

6.19     In terms of project components, all of the institutional structures created in DPEP will be continued into the SSA. However, in some States such as Bihar, the financial commitment for some of the interventions will not be transferred to the SSA. For example, the personnel in BRCs and CRCs created in DPEP districts and teachers recruited in Bihar will not be funded by SSA and the States will need to resource them from State Government funding. 

 

6.20     The Mahila Samakya programme in Bihar will now be funded under the Natioanl MS programme, however, sustainability of MS in Jharkhand is contingent on the registration of an independent society for MS.  

 

7.0       Financial Management and Procurement 

 

7.1       The Mission visited ten States of which four were selected for intensive review of Financial Management and Procurement (FMP).  A general review of procurement and accounting procedures was carried out by the teams in some other States as well.  Following are the Mission’s observations: - 

 

Expenditure 

 

7.2       A Statement showing component-wise allocation and expenditure for 2005-06 (till September 2005) is given in Appendix III.  Against a total allocation of Rs.13,422.74 crore, expenditure was Rs. 3,365.19 crore representing 25% of the total allocation.  This indicates a rather low level and the States should take all necessary steps to maximize the expenditure on approved activities in the remaining part of the financial year. Against funds available with States up to September 2005 the reported expenditure nationally was 54%.  It is observed that while the annual grants like repair and maintenance grant, school grant, teacher grant have shown good progress, interventions like textbook, IED, provision for out of school children, teachers training, innovative activities and NPEGEL have shown less progress. This indicates the need for a more realistic planning at the State level keeping in view capacity and needs.  

 

Fund Flow Arrangements 

 

7.3       It has been noted that the earlier fund constraints because of late release from Government of India has been adequately taken care of from the current year with the release of ad hoc funds in April-May 2005.   At the State level, funds have been released to the districts mostly within the time prescribed.  In a few States, however, the States’ share released has been less than the due share.  From the district to the sub-district level i.e VECs etc. procedure has been streamlined in some States (Uttar Pradesh) by resorting to advices through banking channel instead of through individual drafts/cheques. Electronic transfer of funds, wherever done, has eliminated the time lag substantially and needs to be adopted by all the States. 

 

7.4       From district to the sub-district level, funds could be transferred through banking channel rather than through issue of large number of drafts/cheques (Andhra Pradesh, Chattisgarh, West Bengal) which is time consuming and results in considerable delay impacting utilization of funds at the sub-district level.   

As a good practice, State Governments’ share may also be released on receipt of intimation of the GoI sanction, without waiting for receipt of funds from Government of India. In this manner, continuity in the implementation of the programme without fund constraints can be ensured.   

 

7.5       It has been observed from the position reported by the States as on 30^th September 2005 that shortfall in State share releases existed in Bihar, Himachal Pradesh, Orissa, Uttar Pradesh and West Bengal.  Concerned States has since made up these shortfalls.   

 

State Investment on Elementary Education  

 

7.6       As per SSA framework, the level of State investment on elementary education in a year should not be less than the 1999-2000 level excluding the State contribution for SSA. Since the investment figures of the State budget seem to be inclusive of SSA contribution (Chattisgarh), the State share on SSA, if included in the budget, should be taken into account before arriving at the level of investment on elementary education.  The State society while forwarding the figures for investment by State Government should give separately figure for elementary education as well as the State share for SSA. 

 

Roll out of the Manual on Financial Management and Procurement  

 

7.7       It was noted that the FM&P Manual has been rolled out to district level in all the ten States and there is a fairly clear understanding of the provisions in the Manual at the State level. Hindi and other vernacular versions (Karnataka, Andhra Pradesh) of the Manual have also been rolled out in many of the States for a better understanding by district level functionaries. An area of concern is, however, the lack of knowledge of the procedures and maintenance of records at some districts and sub-district levels.  This issue can best be addressed by developing a concise handbook (UP) in the local language at the State level highlighting the essential features of accounting and procurement procedures to be complied with at all sub-district levels. 

 

Training of the Accounts Staff   

 

7.8       In Orissa, the district accounting staff visits sub-district level for a few days each month.  SPO has developed a training programme for SSA personnel involved in accounting at VEC level. Elementary guidance has thus been given to the headmaster and the President of the VEC for maintenance of basic accounting records.  In Karnataka, master trainers have been trained at block level to further train the staff at VEC level.  In other States also training programmes focused on the above lines with hands-on exercise of maintenance of basic accounting records should be organized.  

 

Staff position 

 

7.9       A large number of vacancies of finance and account staff continue to exist in many States as on 30^th September, 2005. While the staff position at State level is not that much unsatisfactory, the positioning of staff at district level in some States like Bihar, Delhi, Jharkhand, Madhya Pradesh and Maharashtra needs urgent attention.

 

Procurement Procedure 

 

7.10     Though generally procurement procedures laid down in the Manual are complied with at State level, awareness about procurement procedure is quite low at district and sub-district levels. On a post review of a few contracts, some deviations have come to the notice of the Mission.  In Chattisgarh, negotiations were held with all the bidders, instead of L1 bidder only as prescribed in the Manual for the purchase of touch screen computers (570 units) at State level for a value of Rs. 3.76 crores.  However, the award was given to the L1 bidder only. In Nalanda district of Bihar repeat order was placed with the same firm for purchase of 9 more computers for a value to Rs. 9.84 lacs after about three months of completion of the last delivery instead of the laid down period of one month.  

 

7.11     To overcome any procedural deficiencies in procurement, the training proposed for accounts staff should cover intensive training on procurement procedures also.  State societies should also monitor the compliance of proper procedure at district and sub-district levels. 

 

7.12     Procurement plan has been prepared by many of the States as required under the Manual.  A few States like Bihar have still not submitted any procurement plan for 2005-06.  As provided in the Manual, the States must invariably furnish the annual procurement plan along with AWP&B proposals and implementation of the plan at the ground level needs to be monitored regularly at State level. 

 

7.13     It is observed that there is no uniform practice across the States regarding the official identified for handling procurement.  In West Bengal it was noted that an indenting official was also made responsible for procurement, which is not considered proper. As far as possible, a well-trained official on procurement procedure should be made responsible for carrying out procurements at State and district level. 

 

Accounting Arrangements 

 

7.14     The Mission noted that accounting records prescribed in the Manual are, to a large extent, being maintained at State level. At the sub-district level and in some cases at the district level, the work of up to date maintenance of cash books, bank reconciliation, annual verification of stock and monthly physical verification of cash was not being given due attention.  This is a matter of concern that should be addressed urgently.   

 

7.15     Most of the State societies have switched over to double entry system of accounts at State project and district level.  U.P. is yet to shift to double entry system of book keeping.  The Mission recommended that such States should take immediate action to switch over to double entry system of book keeping. 

 

7.16     It is suggested that States should develop Accounting Guidelines in conformity with the FMP Manual by incorporating illustrations of the accounting entries to be recorded for the various transactions.  It is observed by the Mission that in one district of Uttar Pradesh, the Accounts Officer has developed a simplified Accounts Manual, which may be emulated by other States as well. Also the ledgers should be numbered as per the activity code upto the break up level indicated in the AWP&B (across all States/districts).  Records and Registers to be maintained at different level i.e. State, district, BRC, CRC, VEC may be listed out separately.   

 

7.17     As per the SSA Framework a display board should be installed at every school showing the details of receipt and expenditure etc.  However, during field visit of the Mission, it is observed that this is not largely followed in many schools except in UP, Bihar, Orissa, Rajasthan and Andhra Pradesh. 

 

7.18     The Mission noted that all payments for civil works at schools are being made in cash (Andhra Pradesh, West Bengal). To strengthen internal control, it is recommended that major payments should be made through cheques, to the extent possible (refer paras 77.12, 77.13 of the Manual).    

 

Auditing Arrangements  

 

7.19     Internal Audit – This continues to be a weak area in most of the States (Andhra Pradesh, West Bengal, Bihar).  In some States like Karnataka, full complement of regular staff is available for internal audit. The Mission suggests that arrangements for internal audit should be made by all States on a priority basis.  

 

7.20     External audit – The external audit for 2004-05 has been completed and consolidated audit reports submitted by States/UTs by 31^st Dec 2005.  However, the audit reports for 2004-05 are still awaited from the four States/UTs of Bihar, Manipur, Sikkim and Delhi. 

 

 7.21    The Mission observed that procedure of engaging the Chartered Accountants for external audit is variable across the States.  While in Bihar and West Bengal, one Chartered Accountant firm has been engaged for external audit, in other States separate CA firms are being employed to cover each district. In States where more than one CA firm is engaged for audit, the TOR of the lead CA firm responsible for consolidating the audit reports from other CA firms should be modified suitably to provide for the additional responsibilities. 

 

7.22     The Mission also observed that in Andhra Pradesh while the State has followed the TOR prescribed in the Manual some districts have not appointed the CA firm as per the prescribed TOR.  The Mission, therefore, suggests that the procedure prescribed in the Manual and the standard TOR should invariably be followed by all States.  The engagement of CA firms should be centralized at the State level and number of auditors should be rationalized to make the process more effective.  

 

7.23     While appointing the CA firm, it may be a good practice if the audit team has a specialist on procurement procedure and the audit report contains more details on procurement audit.    

 

7.24     Compliance of observations of Statutory Audit  - While some States (Chattishgarh) have responded to the remarks made by auditors in their 2004-05 report, others (Andhra Pradesh) have not taken any action so far. 

 

Utilization of Grants and Advances 

 

7.25     There is a need to put in place at State/district level an effective system of watching utilization of funds provided to sub-district level and other government agencies for various activities specially to ensure that the certificate furnished by them reflects the actual position at the ground level.  If any unspent balance is lying with the sub-districts and other government agencies that should be suitably reflected in the UCs.  It was observed that monitoring of UCs at the district level was effective in case of UP.  

 

Concurrent Financial Review by Government of India 

 

7.26     Mission found the financial review report very useful and recommended that all the States may be covered under the financial review. Possibility of repeat of review in earlier covered States may also be considered to examine the compliance of earlier recommendations made. 

 

Recommendations 

•  User friendly handbook containing guidelines for accounts maintenance and procurement in conformity with the Manual on Financial Management and Procurement be customized at State level and necessary training imparted to sub-district level functionaries.

• Funds Flow procedure be further streamlined to ensure timely availability of funds at all the levels

• Internal audit mechanism with regular follow up be instituted at every State without further delay.

•  As a large volume of funds is involved, UCs from the sub-district level and other recipients reflecting the actual position be obtained within the stipulated time limit.  

Main Recommendations: 

 

From the many suggestions and recommendations found within the aide memoire the Mission would like to draw attention to the following for follow up for the next six months: 

 

1.      All States should intensify their efforts to provide 100% access to all eligible children in the relevant age group, at the primary level and upper primary level in a time bound manner through time bound targets

2.      States have stepped up their efforts to identify CWSN, medically assess them, provide them with aids and appliances and mainstream them, but the inclusion of all the CWSN in the classroom appears needs more required focused attention.

3.      Focus on those geographical areas mentioned in the study of out of school children, and on special focus groups like ST girls, children with special needs, adolescent girls especially from the Muslim community, urban deprived children along with a special focus on small habitations which do not qualify for a school or EGS.

4.      There is an overall need to improve the quality of data being generated in the project and to introduce a credible system for a 5% sample check of DISE data.

5.      To promote quality the following specific steps should be taken :  

a.      Provide training to BRC and CRC which covers clarity of roles and appropriate skills with emphasis on academic support

b.      Review the content of existing training packages and revise / add specific modules that are of direct relevance to teachers at different levels to make learning more effective

c.     Introduce the assessment of pupils through well designed tests other than regular examinations (as in HP)

d.      Encourage teachers to promote the use of innovative classroom practices.

 

6.     The Sub-Mission on Infrastructure provision needs to formulate comprehensive design strategies to address the diversity within and outside the classrooms since the present straight jacketed design may not adequately support the quality of teaching-

7.      Accounting systems need to be strengthened at all levels upto the VEC through (a) Creation of a user friendly handbook containing guidelines for accounts maintenance and procurement in conformity with the Manual on Financial Management and Procurement which should be customized at State level. (b) necessary training imparted to sub-district level functionaries and  (c) Internal audit mechanism with regular follow up should be instituted at every State without further delay.

8.      Action should be taken as early as possible to resolve outstanding staffing issues, including staff vacancies, turnover of staff in key positions and selection of staff on the basis of aptitude

9.      Further stress is needed for implementation of the NPEGEL scheme in letter and inspirit to ensure adequate focus on quality education for girls.

10.  States commence four next steps over the next six months to intensify efforts aimed at retaining more children in the education system and thus reducing dropout:

• Centre and States to analyse the findings of the SRI study of OOSC, in particular the factors affecting dropout in the class or classes in which it is high in a given State;

• Develop more coherent and comprehensive strategies for increasing retention that make full use of the data available;

• Disaggregate these strategies to district, block, cluster and village level, ensuring that the actors at each level are responding to their own data and reporting, particularly attendance data; and

• Utilize the new NCERT monitoring tool to ensure that there is adequate response to issues of attendance.

Appendix 1

 

Third Joint Review Mission for DPEP and Sarva Shiksha Abhiyan

 

Terms of Reference for SSA JRM

 

1.         Introduction

 

1.1       Sarva Shiksha Abhiyan (SSA) is a comprehensive and integrated flagship programme of Government of India, to attain Universal Elementary Education (UEE) in the country in a mission mode.  Launched in partnership with the State Governments, SSA aims to provide useful and relevant education to all children in the age group of 6-14 age by 2010.  It is an initiative to universalize and improve the quality of education through decentralized and context specific planning and a process-based, time-bound implementation strategy. Its goal is consistent with the Constitution (86^th Amendment Act 2002), making elementary education a fundamental right of every child and with the Millennium Development Goal (MDG) of universalizing primary education by 2015.

 

1.2       SSA is a national programme largely resourced through national resources, supplemented by external funding from the World Bank’s International Development Association (IDA), United Kingdom’s Department for International Development (DFID) and the European Commission (EC). As per the Agreements, the GOI and Development Partners (DP) will carry out a Joint Review Mission (JRM) twice a year.  These JRMs will take place in January  (to include field visits) and July of each year and will be coordinated and led by Government of India. The main objective of the JRM will be to review progress in the implementation of the programme with respect to the Development Objectives and to discuss follow-up actions.

 

1.3       The Development Objectives of the project are as follows:

 

(i)         To reduce out of school children by at least 9 million in the 6-14 age group, with an increase in enrolment, in the process of universalizing elementary education.

(ii)        To narrow existing gender and social gaps so that enrolment of girls will be near parity with boys, enrolment of children of SC and ST will be near parity with that of other groups; and enrolment of children with disability will increase.

(iii)        To increase the quality of education of all elementary school students so that learning will be improved and transition rates from primary education to upper primary education will increase.

 

1.4       The third Joint Review Mission of Sarva Shiksha Abhiyan is scheduled from the 11^th to 24^th January, 2006. This JRM will also constitute the Mid-Term Review for the development objectives of Sarva Shiksha Abhiyan.  The third JRM of Sarva Shiksha Abhiyan will combine the 22^nd JRM of DPEP.   DPEP  is  operational  in  104 districts  of  7  States. The TOR for DPEP JRM is at Part B of this document.

 

Part A : Terms of Reference for SSA JRM and MTR

 

2.         Mission Objectives

 

2.1       The main objective of the Joint Review Mission is to review progress in the implementation of the programme with respect to Development Objectives and agreed indicators, and to discuss follow-up action, including capacity issues. The objectives of the Mission will be the following:

 

1. To review district plan approvals, GOI budget allocations

2. In States to be visited, to review

           a.   overall programme implementation

b.   financial management, procurement and safeguard issues.

3. Provide recommendation on any studies, to be undertaken in the following six months.

4. Estimate the financial contribution of external partners.

 

2.2       The SSA JRM TORs are enhanced as follows to serve the Mid Term Review of the programme:-

 

1.      Overall programme implementation with an emphasis on quality improvement, focussing on teacher recruitment/training, classroom transactions, student learning, effectiveness of BRCs/CRCs as supporting institutions for quality enhancement.

2.      To review and make recommendations for strengthening the planning, implementation and monitoring of the programme.

3.      Suggest specific areas for capacity building on a prioritised basis.

 

2.3       The purpose of the January, JRM should be more to look at processes being adopted to achieve the development objectives of Sarva Shiksha Abhiyan and to review State and district specific strategies being adopted that underpin the impact of the programme. .

 

2.4       The Field visits would produce more textured, qualitative data and information [see Annexure 1(b)]. During their visits to the states, the Mission would enquire, in detail, into the following aspects:

 

• Progress against sanctioned interventions.

• Status of out of school children – identification of districts and sub district / clusters with large number of out of school children – implementation of strategies towards bringing children back to school. (Development objective 1)

• Progress from the baseline with regard to gender and social groups – identification of districts, clusters and communities needing more focused intervention. (Development objective 2)

• Quality of education including learning levels of students, time on task by teachers, status of teacher recruitment and training (Development objective 3)

• Programme management: issues of staffing & capacity building; adherence to financial management & procurement procedures; timeliness and volume of fund releases (both from the State and GOI) and utilization; environmental and site selection issues in school construction.

• Measures taken to improve quality of DISE data.

 

2.5       The review of the Financial Management and Procurement (FMP) procedures will be carried out as part of the JRM. The Mission would review the extent to which States are complying with the provisions and processes laid down in the FMP Manual of SSA.

• Progress against procurement plan for 2005-06.

• Post review of a few contracts

• Discussion with States on IPAI report (if relevant).

• Status of audit reports 2004-05 and compliance of 2003-04 audit reports.

• Review of accounts staffing / training.

 

2.6       The 3^rd JRM for SSA will make recommendations centred around the following issues drawn on the States visited:

• Assessment of progress towards the Development outcomes

• Assessment of programme management and implementation arrangements (including financing & procurement).

• An assessment of State, district and sub-district monitoring systems in place.

• Specific districts and states requiring focused attention and targeting during the project. 

• Focal areas requiring attention / emphasis

 

 

2.7       The 3^rd JRM for SSA will provide ten State reports on SSA and one overall report, which will include one section on issues of sustainability related to DPEP.

 

3.         Documents  to  be  provided  by  Government  of  India  for  Sarva  Shiksha  Abhiyan  by 4^th January, 2006 and JRM

 

1. State and district wise PAB approved budget allocations-2005-06

2. Information on Release of funds to states – 2005-06.

3. Report on concurrent Financial Review by IPAI.

4. FMRs (September, 2005)

5. Status of Audit Reports 2004-05 and compliance reports of audit State-wise for 2003-04.

6. Overall Programme Implementation Report of States (10 States) including Annexure 1(a) and State specific progress against the Monitoring Indicators as per Table 3.3 of the PAD.

7. Action Taken on Recommendations of second JRM of SSA.

8. Copies of research studies completed.

 

4.         Part B : Terms of Reference for 22^nd JRM of DPEP

 

4.1       Introduction

 

The District Primary Education Programme (DPEP) was designed to help achieve the objective of Universal Primary Education (UPE) outlined within the policy framework of the revised National Policy on Education 1986 (as updated in 1992) and the Programme of Action, 1992. The purpose of DPEP is stated clearly in the Programme Guidelines[1]:

 

The Programme will develop and implement in the districts selected a replicable, sustainable and cost-effective programme:

 

(i)         to reduce differences in enrolment, dropout and learning achievement among gender and social groups to less than 5%

 

(ii)        to reduce overall primary dropout rates for all students to less than 10%

 

(iii)       to raise average achievement levels by at least 25% over measured baseline levels and ensuring achievement of basic literacy and numeracy competencies and a minimum of 40% achievement levels in other competencies, by all primary school children

 

(iv)       to provide, according to national norms, access for all children, to primary education classes (I-V), i.e. primary schooling wherever possible, or its equivalent non-formal education.

 

The programme will also strengthen the capacity of national, state and district institutions and organisations in relation to planning, management and evaluation of primary education.

 

The  programme  is  currently operational in 104 districts of 7 States which includes UPDPEP-III (covering UP and Uttaranchal), DPEP-III (covering Bihar and Jharkhand), West Bengal, Orissa and Rajasthan projects).

 

4.2       Mission Objectives

 

(A)   Enrolment and Completion

 

(1)   Status of enrollment and efforts to bridge gender and social category gaps

(2)   Progress towards achievement of better completion of the primary level.

(3)   Effectiveness of alternative schooling in providing access to children and the progress in mainstreamed children.

(4)   Reduction in dropout rates by gender.

(5)   Progress in integrating children with mild and moderate disabilities.

 

(B)   Learning and Quality

 

(1)    Filling up of teacher’s position created under DPEP.

(2)    Strategies for improvement and evidence of progress in achievement level of primary grade students.

(3)    Progress in institutionalizing pupil evaluation systems.

(4)    Measures taken to enhance the effectiveness of teacher training

(5)    Measures to enhance learning outcomes in the alternative schooling systems

(6)    Effectiveness of BRC’s/CRC’s in providing onsite support to teachers and academic supervision in general.

 

(C)   Institutional capacity building and Programme Implementation

 

(1)   Progress in implementation of AWP&B of current financial year.

(2)   Progress against extension plan of DPEP III and UPDPEP.

(3)   Sustainability issues for projects closing shortly.

(4)   Status of audit reports and compliance.

(5)   Measures taken for improving quality of DISE data.

 

4.3       Documents for DPEP will be made available to the Mission by 4^th January, 2006

 

•     State Report - Information specific to progress with respect to the Terms of Reference of the 22^nd JRM.

•       Action Taken Report on the 21^st JRM (DPEP) recommendations.

•      The JRM for DPEP will prepare project wise reports covering the project States. These will be shared with the States in the State Wrap Up meeting and be sent to GOI and States not visited, forthwith. The members of JRM covering DPEP States will write a brief section covering sustainability issues arising from DPEP for inclusion in the main SSA Aide Memoire.

5.         Mission Structure

 

5.1       The Mission would visit the ten States of Bihar, Orissa, Rajasthan,. Uttar Pradesh, West Bengal, Andhra Pradesh, Karanataka, Mizoram, Chattisgarh and Himachal Pradesh.  The Mission members visiting Bihar, Orissa, Rajasthan, Uttar Pradesh and West Bengal will also cover one district of DPEP.

 

5.2       The Mission would comprise of twenty-four members.  Members would be chosen in such a way that expertise would be available for all the functional areas including four members for financial management and procurement. The four financial experts will be earmarked for teams to Bihar, West Bengal, Chhattisgarh and Andhra Pradesh.  Agency-wise composition would be as follows:

GOI                 -           12 members, including Mission Leader

World Bank     -           6 members (including a UNICEF representative for DPEP-III)

D.F.I.D.           -           4 members

E.C.                 -           2 member

 

5.3       A core team of eight members (4GOI + 4DPs) will be responsible for initial preparatory work, dissemination of information with respective Agency teams and compiling of the final report and Aide-Memoire for SSA.

 

6.         TIME FRAME

 

The JRM would take place between 11^th  & 24^th January 2006 as follows:

 

Day/Date	Activity
11th Jan, 2006  (F.N.)	GOI briefing to Mission members
11th & 12th Jan, 2006	ð     Initial discussions, analysis of documents and preparation for field visits ð     Departure for States
13th Jan 2006	State level discussion
14th – 17th Jan, 2006	Visit to District 1 & 2 (in DPEP States, one district will be a DPEP district)
18th & 19th Jan, 2006	State Report Writing
20th Jan, 2006	State wrap-up and return to Delhi.  Wrap-up at State level with draft State Report to be presented to the State.  (A fax or email copy be sent to Department of Elementary Education & Literacy, Government of India)
21st – 23rd Jan, 2006	Report Writing / Aide Memoire and Pre-Wrap up
24th  Jan, 2006 (A.N.)	Wrap-up/Report presentation to Government of India

LIST OF MISSION MEMBERS

 

 

1.          Ms. Shalini Prasad, Mission Leader, Government of India

2.          Dr. Deepa Das, Government of India.

3.          Mr. K.N. Khandelwal, Government of India

4.          Mr. V. Natarajan, Government of India

5.          Mr. K.K. Vashishth, Government of India

6.          Mr. Subir Shukla, Government of India

7.          Mr. Kabir Vajpai, Government of India

8.          Mr. Smia Zaidi, Government of India

9.          Mr. Jacob Tharu, Government of India

10.        Ms. Ruma Banerjee, Government of India

11.        Mr. C.S. Nagaraju, Government of India

12.        Mr. C. Chandramohan, Government of India

13.        Ms. Venita Kaul, World Bank.

14.        Ms. Prema Clarke, World Bank.

15.        Dr. Nalin Jena, World Bank.

16.        Ms. Kin Bing Wu, World Bank.

17.        Mr. Tarun Mathur, World Bank

18.        Ms. Aarti Saijhee, Unicef

19.        Ms. Sushila Zeitlyn, Dfid

20.        Dr. Michael Ward, Dfid

21.        Mr. Rajeev Kapoor, Dfid

22.        Mr. Shankar Lal, Dfid

23.        Mr. Horst Beyer, European Commission.

24.        Mr. Ashutosh Jha, European Commission.

25.        Mr. Parimal Bardhan, European Commission.

 

Annex 1

 

 Annex 1(a)

Overall Programme Implementation Report of States

 

• State and District wise outlay and expenditure– 2005-06.

• Provision and Release of State share – 2005-06.

• Progress against SSA goals / and development outcomes (as in table 3.3 of PAD).

• Category wise physical and financial progress against AWPB 2005-06 for the State

• Progress on functional areas (descriptive)

 

- Civil works

- Planning

- EGS/AIE

                                                               i.      Community mobilization

Formation of VECs/ PTAs/ MTAs.

Training of community members.

 

- Girls education

- Interventions for socially disadvantaged groups including minority, 

    SC/ST

- Children with Special Needs

 

- Pedagogical Renewal

Teacher recruitment.

Teacher training.

Classroom transactions.

Pupil evaluation systems.

Academic monitoring by BRC/CRC/DIET/SCERT

- Research and Evaluation

- Management Information System

                        DISE data

Household date on out-of school children

                        Use of data

- Capacity building of staff in position

- Institutional Development

            Coordination with mainstream education department.

            Role of SCERT/SIEMAT/Textbook Board in SSA implementation

            Capacity of BRC/CRC’s.

            Coordination with Panchayati Raj Structures

Functioning of SPO /DPO’s – degree of decentralizations; delegation of powers; functional autonomy.

 

Financial & Procurement Procedure

Ø      Status on implementation of FMP Manual.

Ø      Progress against procurement plan for 2005-06.

Ø      Status of audit reports.

Ø      Status of accounts staffing / training.

 

Annex 1(b)

Field Visit of the JRM for SSA – January, 2006 – A Framework

 

Planning and Monitoring Process

• Process of preparing AWP&Bs.

• Activity-wise bifurcation of Targets and Achievements

• System of monitoring of AWP&B.

 

Institutions at state/district/sub-district levels like SCERT,DIET,BRC,CRC

• Process of Orientation/Training/Interactions of these institutions for resource support in quality of education.

• Monitoring systems to assess role of BRCs and CRCs.

• Mechanisms and steps taken for redressal of problems/issues in this respect.

 

Community and PRI Involvement

• Linkage between PRIs and school level management bodies.

• Impact on school environment including change in attendance,   out of school children’s scenario and girls’ education.

 

Teachers

• Progress of recruitment of teachers

• Training of teachers (in-service, new recruits, untrained teachers)

• Use of distance education in teacher training 

 

Classroom transactions

• Availability and utilization of TLMs

• Availability of Textbooks and related learning materials

• Teaching, learning and evaluation process

 

Management

• Approved manpower structure, at various levels like state, district, sub-district, etc. and the same in place.

• Capacity building activities - within States and with GOI assistance.

• Practices adopted for improved fund flows and internal audit systems

·        Monitoring systems adopted by SPO and DPOs to review Sarva Shiksha Abhiyan implementation

·        Studies and evaluations conducted by State.

 

 

 

 

Appendix II SSA Development Objectives:

Status (as on January, 2006) on Results Framework (PAD, 2004) 

PRINCIPAL OUTCOMES
Outcome Indicators	Baseline	Target - Yr1 (04/05)	Cumulative Target up to Yr3 (06/07)	Progress made up to March 2005	Current Status (as on January 2006)	Additional Information	Remarks/ Recommendation
Objective 1
Number of children aged 6-14 years not enrolled in school or alternative system.	In 2003, 25 million children of 6-14 years are out of school	Number of out-of-school children aged 6-14 years reduced by 3 million per year.	Number of out of school children aged 6-14 years reduced by 9 million in 3 year period	Number of out-of-school is reduced by 11.5 million (from 25 million in 2003 to 13.5 million in 2005)	As on November 2005, only 9.6 million children of 6-14 years are out of school.	An independent estimation of the number of out of school children carried out by SRI during July-October shows that of the 194 million children in the age group 6-13, 13.45 million are out of school.	Achievement exceeded project targets.
Number of children enrolled in school	In 2003, 160 million are enrolled, of whom 114 million are 6-11 years old, and 45 million are 11-14 years old.	Increase in annual enrolment for primary and upper primary education, and for 6-14 years old.	Increase in annual enrolment for primary and upper primary education, and for 6-14 years old.	Increase in the annual enrolment to 187 million children; of which 110 million are in primary and 45 million children in upper primary sections in Government and recognised schools,  6.5 million in alternative systems, and the rest in unrecognised private schools	As on March 2005, 187 million children of 6-14 years are enrolled in schools, including alternative systems	The IMRB study estimates show that 181 million (out of 194 million) children in the age group of 6-13 are enrolled in schools	Project targets are met.
Objective 2
Girls, SC/ST and disabled children increase as a share of students enrolled in primary school	Share of girls in primary schools is 44%.	Share of girls in primary schools increases from 44% to 45%.	Share of girls in primary schools increase up to 47%	Share of girls in total enrolment in primary improved by 3 percentage points and in upper primary, it is 45%	Share of girls in primary school enrolment is 47% and for Upper primary stage, it is 45%		Project targets met
	Share of SC in primary schools is 18.9%.	Share of SC/ST children in primary schools reflect their shares in general population in the age group.	Share of SC/ST children in primary schools reflect their shares in general population in the age group	Share of SC in total population is 16.2 % and in enrolment, it is 21% and 19% respectively at primary and upper primary stage	Share of SC in total enrolment in primary is 21.3% and in upper primary, it is 19%		Targets exceeded (as significant percent of general category goes to private sector)
	Share of ST in primary schools is 10.3%.	Share of SC/ST children in primary schools reflect their shares in general population in the age group.	Share of SC/ST children in primary schools reflect their shares in general population in the age group	Share of ST in total population is 8.2 % and in enrolment, 10.3% and 8.2% respectively at primary and upper primary stage.	Share of ST in total enrolment is 10.3% in primary and 8.2% in upper primary stages.		Status quo
	Share of children with disabilities in primary schools is 0.6%.	Share of children with disabilities in primary schools increases from 0.6 to 0.7%	Share of children with disabilities in primary schools increase to 0.9%	The share of children with disabilities in primary schools has increased by 0.8 percentage points.	Share of children with disabilities is 1.37% in primary and 0.96% in upper primary		Exceeded the project targets
Objective 3
Transition rates from primary to upper primary increase.	Nationwide transition rate from primary to upper primary was 75% in 2002.	Improvement in transition rates.	Improvement in transition rates	Improvement in nationwide transitions reported by 12 percentage points. Transition rates by gender and SC/ST available.	Nationwide transition rate from primary to upper primary is 86%; this is 88% in the case of boys and 84% in the case of girls; 87% for ST and 82% for SC.		Project targets achieved
Students’ scores on tests of language and mathematics in Grades 3, 5,and 7 or 8 measured, and show improvement in repeated measures.	Baseline measures of language and mathematics for: Grade 3 (2004) Grade 5 (2002) Grade 7/8 (2003)	- Baseline Grade 3 assessment done; - Results of Grade 7/8 assessment reported	- Baseline and Mid term assessment to be conducted for Grade 5, 7/8 & 3 -Survey & Date of survey are: Baseline Grade 5         : 2002 Grade 7/8      : 2003 Grade 3         : 2004 Mid term Grade 5         : 2005 Grade 7/8      : 2006 Grade 3         : 2006	-    Progress delayed. -    Technical quality of studies completed found to be deficient	·  Baseline study for Grade 5 submitted after re-evaluation by Expert Group for Assessment. ·  Report of the Baseline study for Grades 3 is to be available in May 2006 and for Grade 7/8 in July ’06.		The benchmark for Class 5 released found to be reliable national benchmark

 

 

 

MONITORING INDICATORS
Monitoring Indicators	Baseline	Cum. Target – upto Yr1 (04/05)	% Cumulative achievement up to Yr1 (04/05)	Status/ progress made up to July 2005	Cum. Target – up to Yr2 (05/06)	Current status/ Progress made up to January 2006	Status / progress made up to Jan 2006	Remarks/ Recommendation
In moving towards UEE reduce out-of-school children and increase enrolment	% of classrooms constructed against sanctioned	172893	Completed – 83079 In progress - 60279	Completed -48% Completed + in progress – 82.9%	329690	Completed – 113871 In progress – 110872	Completed -35% Completed + in progress – 68%	The gap in overall infrastructure provisioning needs to be addressed (the estimated gaps in availability of drinking water and toilets in schools is going to be met out of the allocation of 64,883 drinking water and 4.96 lacs toilets by the Department of Rural Development, GoI)
	% of Additional school building				120629	Completed – 58181 In progress – 34516	Completed -48% Completed + in progress – 77%
	% of schools sanctioned becoming operational - New Primary Schools - New Upper primary Schools - EGS centres	122661 65301 57360	117677 63793 53878	96% 98% 94%	1.29 lakh	1.19 lakh	92.2%
	% of teachers sanctioned appointed	596245	386458	64.8%	772345	492261	64%
	% of schools with drinking water facility constructed against sanctioned	111147	Completed – 63448 In progress - 26717	Completed – 57% Completed + in progress – 81.1%	160760	Completed – 76370 In progress - 34382	Completed – 48% Completed + in progress – 69%
	% of schools with toilets constructed against sanctioned	156634	Completed – 88022 In progress - 26717	Completed – 56.2% Completed + in progress – 77%	222051	Completed – 108581 In progress - 47073	Completed – 49% Completed + in progress – 70%
	% of children enrolled in EGS/AS compared to Plan target	10.1 million	6.4 million	64%	8700000	6200000	71%	Many children mainstreamed into regular schools
Narrow existing gender and social gaps	% of girls receiving free text books	57.7 million	49.4 million	76%	61450085	50220434	82%
	% of SC children receiving free text books			87%
	% of ST Children receiving free text books			87%
	% of female teachers serving in the school system			39%
Provision of quality inputs to improve learning	PTR ratio		20 state/UT: <40:1 4 states/UT: -45:1	In 22 states, PTR Improved		Primary: 43:1 Upper Primary: 29:1
	% of BRC and CRC sanctioned  becoming operational	7422	7201	97%	BRC–7422 CRC-0735	BRC –7201 CRC-66140	BRC - 97% CRC – 93.5%
	% of teachers trained against sanctioned	3.2 million	2.2 million	67%	8960745	2402566	27%