State Education Report - Rajasthan.pdf

EDUCATION STATUS REPORT – RAJASTHAN

PRIMARY, MIDDLE, AND SECONDARY EDUCATION

Working Paper | November 2013

Prepared by Anju Gupta, Independent Development Consultant Catalyst Management Services (CMS) | CEI - India

Education Status Report – Rajasthan

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CONTENTS

ABBRIVIATIONS……………………………………………………………………………………………………………..3

1. EDUCATION STATUS OF CHILDREN…………………………………………………………………………………………5

2. LITERACY IN RAJASTHAN………………………………………………………………………………………………………..5

3. STATUS OF ELEMENTARY EDUCATION……………………………………………………………………………………6

4. STATE FINDINGS OF ACER 2012……………………………………………………………………………………………11

5. BUDGET ALLOCTAIONS UNDER SSA………………………………………………………………………………………13

6. RIGHT TO EDUCATION NORMS…………………………………………………………………………………………….14

10 ARTICLES RELATED TO RTE AND ITS IMPLEMENTATION ............................................ 18


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Abbreviations

ASER Annual Status of Education Report

Avr. Average

BRCs Block Resource Center

CRC Cluster Resource Center

DISE District Information system for Education

DPEP District Primary Education Programme

EBBs Educationally Backward Blocks

ECE Early Childhood Education

EGS Education Guarantee Scheme

Enr. Enrollment

GER Gross Enrollment Ratio

Govt. Government

GPI Gender Parity Index

ICDS Integrated Child Development Scheme

KGBV Kasturba Gandhi Balika Vidyalay

MIS Management Information System

MHRD Ministry of Human Resource Development

NLM National Literacy Mission

NER Net Enrollment Ratio

NPE National Policy of Education

NPEGEL National Program for Education of Girls at Elementary Level

OBC Other Backward Caste

P. Primary

PTR Pupil-Teacher Ratio

Pvt. Private

POA Program of Action

RTE Right To Education

RMSA

Rashtriya Madhyamik Shiksha Abhiyan

SC Schedule Caste

Sch. School

SCR Student Class-room ration

SEMIS Secondary Education Management Information System

Sec./H.Sec. Secondary/ Higher Secondary

ST Schedule Tribe


4

SSA Sarva Shiksha Abhiyaan

TLM Teaching learning Material

Unrec. Unrecognized

UP Upper Primary


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1. Education Status of Children

Education is one of the key factors to a healthy, productive, and equal society. It is necessary in

order to produce thoughtful and knowledgeable humans who can actively participate and

contribute to society. In order for people to grow and develop in ways that will benefit

themselves and their communities they need to have schools readily available. Education is the

backbone of society. It is the only way to make advancements in areas including technology,

business, economics, peace, social justice, and human rights. All of these require humans to be

educated. Education is not just learning simple math and reading. Teachers help children learn

how to problem solve, how to make decisions, and how to analyze and handle different

situations. All of this accumulates to creating citizens who are able to make educated and well

informed decisions about their lives and for their families. This is crucial for everything from

fostering healthy families to making political decisions, such as who to vote for.

One of the eight Millennium Development Goals set by the United Nations is to have universal

primary education. This will not be achieved without India’s help. In 2009 it was estimated that

8,000,000 children aged six to fourteen years were out of school. India has taken strong actions

since the goals were set and has since greatly contributed to decreasing this number. In merely

five years, from 2000-2005 primary school enrollment in India increased by 13.7 per cent

(UNICEF). As of 2011, 80 per cent of children are enrolled in elementary schools across the

country (UNICEF). This is a great improvement and is very encouraging. With the passing of the

Right to Education Act (RTE) India has made major strides towards achieving access to primary

education for all of its children. This act guarantees a high quality education for all children in

India aged six to fourteen. This is a vital aspect in achieving the Millennium Development Goals

and in creating an equal, just, and healthy society in India.

2. Literacy in Rajasthan

According to the 2011 Census, Rajasthan has the 33rd worst literacy rate across India. Across all

categories Rajasthan stands below the national averages. Overall the literacy rate for India is

74.04 per cent but for Rajasthan it is 66 per cent. The male literacy rate for Rajasthan is not far

behind the national average, which is very good. However, the literacy rate for women in

Rajasthan is much lower than the national average of 65.46 per cent at a very low 47.76 per

cent .

Category Literacy Rate Rajasthan

(2011)


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Rajasthan National

Male

79.19per

cent

82.14per

cent

Female

47.76per

cent

65.46per

cent

Overall

66.11per

cent

74.04per

cent

Source: Census 2011

.

3. Status of Elementary Education

According to the Elementary Education in India State Report Card of 2011-2012, across the

state of Rajasthan there are a total of 109,189 schools. Of these 77,833 are government schools

and 29,766 are private schools. There are only 1,590 unrecognized schools. Of the government

schools, a majority of 72,954 are in rural locations and 19,961 of the private schools are in rural

areas as well. Of the five types of schools, primary schools create the largest groups at 49,642.

Schools

Elementary

Education

Primar

y Only

Primary w/

Upper

Primary

Upper

Primary/Sec./H

.Sec.

Upper

Primar

y Only

Upper

Primary

w/

Sec./H.Sec

.

Total

Schools 49,642 40,322 12,424 280 6,520 109,18

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Gov't Schools 43,730 23,579 4,305 249 5,969 77,833

Private Schools 4,513 16,577 8,099 29 548 29,766

Unrecognized

Schools 1,399 166 20 2 3 1,590

Gov't Schools Rural 41,673 21,526 4,160 197 5,398 72,954

Private Schools

Rural 3,477 11,572 4,712 15 185 19,961

Source: Elementary Education in India State Report Cards 2011-2012.

The enrollment of children at primary and upper primary standards in relation to GER


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Source: Elementary Education: State Report Card 2012-2013

Comparative GER of Rajasthan

Gross Enrollment Ratio Total

Primary 116.1

Upper Primary 76.9


Enrollment in Primary & Upper Primary Classes 2012-2013 (All areas & all management)

Classes I-V

Ratio

of Girls

to

Boys

Enroll

ment

Classes VI-VIII

Rati

o of

Girls

to

Boys

Enro

llme

nt

Classes I-VIII

Ratio

of

Girls

to

Boys

Enroll

-ment

Boys Girls Total

1.08

Boys Girls Total

1.04

Boys Girls Total

1.07 2,336,

104

48per

cent

2,530,

649

52per

cent

4,866,

753

1,011,

239

48.93

per

cent

1,055,

257

51.06

per

cent

2,066,

496

3,347,

343

48.28p

er

cent

3,585,

906

51.72p

er

cent

6,933,

249


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3.1 Girls’ Enrollment

Girls’ enrollment in Rajasthan is not a positive situation. According to Educate Girls, “Rajasthan

has 9 of the 26 most backward districts in India. The gender gap in these districts is so immense

that girls and women are lagging behind their male counterparts in all spheres of life” (Educate

Girls) This includes girls lagging behind boys in school enrollment rates. From the 2009-2010

school year to 2010-2011 the number of girls greatly decreased. For every 1000 boys 857 girls

were enrolled in 2009-2010. However, in the following school year only 538 girls were enrolled

for every 1000 boys. This is a huge decrease and does not bode well for the future.

According to the most recent ASER report, the number of girls not enrolled in schools is

increasing. Of girls who are 11-14 years old in 2011, 8.9 per cent were not enrolled in school.

This has increased in 2012 to over 11 per cent. This is a very negative finding, as enrollment

should be increasing with all of the efforts being made.

Enrollment

Key Indicator Primary

Only

Primary w/

Upper

Primary

Primary

with UP

& High

School

Upper

Primary

Only

Upper

Primary

w/

sec./H.

Sec

Total

Total Enrollment 2,977,310 5,905,223 2,569,213 25,327 526,754 12,003,827

Enrollment in Gov't

Schools 2,440,876 3,380,985 814,524 21,459 497,755 7,155,509

Enrollment in Private

Schools 368,060 2,723,599 1,956,778 2,935 60,797 5,112,169

Enrollment in Madrsas

& Unrecognized 90,581 31,881 6,298 125 618 129,494

Enrollment in Gov't

Schools Rural 2,304,401 3,048,841 762,241 16,776 447,476 6,579,735

Enrollment in Private

Schools Rural 265,453 1,922,453 1,112,600 1,091 17,876 3,319,473

Total Teachers 108,580 227,347 89,807 1,506 32,974 460,214

Gov't Teachers 83,762 123,476 26,776 1,214 31,277 266,505

Private Teachers 19,032 110,874 68,579 183 3,599 202,267


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However, the government is attempting to create change in this area. According to UNICEF,

“Over the past decades, successive Governments in Rajasthan have shown commitment

towards addressing developmental concerns in the state, especially that of children and

women” (UNICEF) Strides are being made to increase the enrollment of girls in school. Efforts

include decreasing child labor, implementing after school programs, providing girls with

everything they need for school for free, and educating people about education.

While the previous statistics are dismal, ones for just primary school are encouraging.

According to DISE, in 2010-2011 80 per cent of children were enrolled in elementary school.

This includes an increase in girls at the elementary level.

However, girls’ dropout rates in upper standards are quite high. There are two main causes for

this. The first, as previously mentioned is child labor. As girls get older parents are more likely to

want them to work and make money rather than send them to school. The second main reason

for girls to drop out is child marriage. Once girls reach the age of twelve, most families believe

they are eligible for marriage so they take their daughters out of school and marry them off.

Families consider girls to be a burden since they have to care for them and the girls are not

allowed to work so they are just a hindrance on the families’ tight budget. Thus, families do not

want to waste money on educating their daughters because they just leave when they get

married anyway.


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3.2 Enrollment Status of Disadvantaged Group

Source: Elementary Education in India State Report Cards 2011-2012

Accessing disadvantaged populations is a major issue. These populations are often deprived of

a high quality education or any education at all. Education is key for empowerment and for

economic growth for families. If these families want to improve their situations, they need to

be provided with an education.

In primary school, 20.9 per cent enrolled are SC, 47 per cent are of these are girls. 16.6 per cent

of students enrolled are ST and 46.7per cent of these are girls. 47.9 per cent of those enrolled

are OBC and nearly all of these are girls.

Out of School Children

CHILDREN NEVER ENROLLED AND DROPOUTS

Teachers in Position

Teachers

Government 274,382

Private 198,962

Urban Gov't 23,910

0

500000

1000000

1500000

2000000

2500000

3000000

3500000

SC ST OBC General

Status Enrollment in Class I-VIII

Boys Girls


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Rural Gov't 250,472

Source: State Report Card 2012-2013

4. State Findings of ASER 2012

The enrollment level for all children age 6-14 is very good in Rajasthan. 94.5 per cent of

children in this age group are enrolled in either a government or private school. Since

2006 the enrollment rate for all children age 7-14 has been above 80 per cent. In 2012, a

majority of students are enrolled in government schools. While there is over 80 per cent

enrollment, only 68 per cent of enrolled children were present on the day of the visit.

During the study 877 schools were visited. The number of small schools is steadily rising.

In 2009 only 30.9 per cent of schools had less than 60 students enrolled. As of 2012 41.3

per cent now have less than 60 students.

The percentage of students who are in multi-grade classes is quite high. In 2012, 83.5per

cent of schools had children in standard 2 in classes with one other class. 63 per cent of

schools had children in standard 4 sit with one or mother other classes. These numbers

have greatly increased since 2009.

per cent of Children by Class & Arithmetic Level (All schools 2012)

Standard

Not

even

1 to 9

Recognize

Numbers Can

Subtract Can Divide Total

1 to 9 10 to 99

I 49.6 37.3 10.8 1.6 0.7 100

II 20.3 47.8 23 6.9 2 100

III 9.3 42.2 29.8 13.9 4.8 100

IV 5.7 28.8 30.6 22.6 12.3 100

V 2.8 19.1 30.1 27 21.1 100

VI 1.2 13.4 26.7 26 32.8 100

VII 0.9 9 21.4 28.7 40.1 100

VIII 0.8 5.9 21.4 26.8 45.1 100

Total 12.2 26.6 24.2 18.5 18.5 100

Source: ASER 2012

The table above depicts the arithmetic abilities children in standards I-VIII have. In the

first standard 49.6 per cent of children cannot even recognize numbers 1-9. Only 37.3

per cent can recognize numbers 1-9, but they do not recognize any numbers higher than

that. Only 10.8 per cent recognize numbers higher than 9. A mere 1.6 per cent can

subtract and .7per cent can divide. In the VIII standard .8 per cent of students cannot


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recognize numbers 1-9. Only 5.9 per cent recognize numbers 1-9 and 29.8 per cent

know numbers 10-99. Only 26.8 per cent can subtract and 45.1per cent can divide.

Reading is also a major concern. Below it is clear that very few students can read and

understand easy sentences. Less than half of all students in standard VIII can read easy

sentences. In standard I only 19.6 per cent of children can read capital letters and 9.8per

cent can read lower case letters.

“Student learning levels and trajectories are disturbingly low, with nationally-

representative studies showing that over 60per cent of children ages 6-14 are unable to

read at a second grade level (Pratham 2012),” said Karthik Muralidharan.

per cent of Children by Class & Reading Levels in English (All schools 2012)

Standard

Not

even

capital

letters

Capital

Letters

Small

Letters

Simple

Words

Easy

Sentences Total

I 65.9 19.6 9.8 3.5 1.2 100

II 43.9 26 18.8 7.8 3.6 100

III 31.8 24.9 22.9 16.2 4.2 100

IV 21.5 21.5 25.9 24 7.2 100

V 13.3 18.3 23.6 30.1 14.7 100

VI 7.9 13 22.5 30.8 25.8 100

VII 4.5 10.9 19.3 32.7 32.6 100

VIII 3.5 7.6 17.5 31.6 39.8 100

Total 25.4 18.2 20 21.3 15.1 100

Source: ASER 2012

per cent of Children by Class who Can Comprehend

English (All schools 2012)

Standard

Of those who can

read words, per cent

who can tell

meaning of words

Of those who can read

sentences, per cent

who can tell meaning of

the sentences

I

II 61.4

III 64.3

IV 64.9 53.1

V 64.4 60.4


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VI 67.4 59.4

VII 65.4 61.1

VIII 64.8 68.2

Total 64.9 61.3

Source: ASER 2012

Since the creation of the RTE Act in 2009, ASER began to include looking for indicators of

schools applying to these new rules about education. The 2012 ASER evaluation covered

877 schools throughout Rajasthan.

5. Rajasthan Budget Allocation under SSA

All Rural Government Primary Schools Are Entitled to Each of These SSA Grants Every Year

How much goes to each school? What is the purpose?

School Development Grant/ School Grant

5000 Rs per year per primary school School equipment including blackboards,

sitting mats etc. Also used to buy chalk,

registers, dusters, and other office

equipment.

7000 Rs per year per upper primary school

5000 Rs + 7000=12000 Rs if the school is Std 1-7/8

School Maintenance Grant,

(5000 Rs-7500 Rs) per school per year if the school has up

to 3 classrooms

Maintenance of school building consisting

of white-washing, beautification, repairing

bathrooms, building, hand pump repairs,

playground, boundary wall, etc.

(7500 Rs-10000 Rs) per year if the school has more than 3

classrooms

Teacher Learning Material Grant

500 Rs per teacher per year for every teacher in primary

and upper primary school

To buy teaching aids including posters,

models, charts, etc.

Source: PAISA 2011

5.1 Categories for SSA Budget

PAISA classified the SSA budget into the categories below in order to understand how the

budget is categorized:

Teachers: Teacher salaries, teacher training and teaching inputs such as Teaching-Learning

Material, Teaching-Learning Equipment and the School Development Grant.

School: Civil works, School Maintenance Grant and, if available, funds for building libraries.


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Children: Entitlements such as textbooks, uniforms and transport provisions, along with

mainstreaming out-of-school children, remedial teaching, etc.

Management: Administrative costs for BRCs, CRCs, management and MIS, and research and

evaluation.

Quality: Innovation and Learning Enhancement Programme (LEP).

Miscellaneous: Community mobilization and community training.

Expenditure Trends (per cent of Allocation) Across

Categories

Category 2009-2010 2010-2011

Teachers 83 81

School 69 62

Children 82 64

Management 78 71

Quality 68 73

Miscellaneous 81 63

Total 78 70

Source: PAISA 2011

In Rajasthan, schools receive three major types of grants including maintenance grants,

development grants, and teacher learning material grants. In 2010-2011 81 per cent of schools

received their maintenance grants, 63 per cent received their development grants, and 87 per

cent received their teaching learning material grants. Since 2008 the percentage of schools

receiving their maintenance grants has increased by 10 per cent. The percentage of schools

receiving development grants went up from 2008-2009 by a large 15 per cent, but

unfortunately decreased ten points from 2009-2010 to 2010-2011. The percentage of schools

receiving grants for teaching learning materials has remained roughly the same since 2008.

6. Right to Education norms

Since 2009-2010 to 2011-2012 the SSA budgets have increased by about 67 per cent in order to

aid the implementation of RTE. While it is positive that the number of schools without specific

toilets for girls has decreased from 2010 to 2012, data needs to be collected on schools with

specific, functional toilets for girls in Rajasthan in order to have an accurate assessment of RTE

qualifications. It is clear that the percentage of schools with useable toilets is steadily increasing


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and that more toilets are becoming useable. The RTE Act requires that there is at least one

classroom per teacher. This is a disappointing statistic in that the percentage of schools meeting

this requirement has decreased in the last year. However, since April 2011 11.5 per cent of

schools have started construction on new classrooms, which is very good but this statistic needs

to greatly increase in order to meet RTE requirements.

Schools Meeting Selected RTE Norms

per cent Of Schools Meeting Following RTE Norms 2010 2011 2012

Pupil-Teacher &

Classroom-Teacher

Pupil-Teacher Ratio 46.4 47.4 51.1

Classroom-Teacher Ratio 82 83.1 80.1

Building

Office/store/office cum store 91.2 89.4 89

Playground 51.7 57.4 57.7

Boundary wall/fencing 70.1 72.7 77.3

Drinking Water

No drinking water facility 20.9 21.9 21

Facility but no water available 11.1 8.5 11.9

Drinking water available 68 69.5 67.1

Toilet

No toilet facility 3.5 3.3 2.6

Facility but toilet not useable 31.1 26.9 25.3

Toilet useable 65.4 69.9 72

Girls Toilet

Schools without specific girls toilets 19.6 9.3 10.9

Schools with specific girls toilets

Toilet locked 13.3 5.5 6.6

Toilet not useable 16.8 19 17.5

Toilet useable 50.3 66.3 65.1

Library

No library 36.3 33 23.1

Library but no books used on day of visit 40.4 35.4 44

Library books used on day of visit 23.3 31.7 32.9

Mid-Day Meal Kitchen shed for cooking mid-day meal 83.8 84.7 85.6

Mid-day meal served on day of visit 94.8 97.1 93.9

Source: ASER 2012

1.1 Pupil-teacher and classroom-teacher ratio

The pupil-teacher ratio plays a major role in the quality of education children are receiving. The

smaller the ratio, the more attention children get, which advances and ensures their learning.

While the ratio has been steadily increasing since 2010, more work still needs to be done. Only


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51.1 per cent of schools meet this RTE requirement. On a more positive note, 80.1 per cent of

schools meet the classroom-teacher ratio. However, this could be due to a lack of teachers.

1.1 Drinking water

The drinking water situation at schools is not a good one. Accessibility has been steadily

decreasing since 2010 and as of 2012 only 67.1 per cent of schools have drinking water

available to its students.

1.1 Toilets

The number of functional toilets at schools has increased since 2010, but still needs some

improvement. In 2010 only 65.4 per cent of schools had useable toilets. As of 2012 72 per cent

had toilets. Unfortunately, there are not statistics on how many schools have separate, useable

toilets for girls. However, the percentage of schools that do not have a separate toilet for girls

has decreased.

1.1 Mid day meal

While the percentage of schools that have cooking sheds for making the mid-day meal has

increased from 83.8 per cent in 2010 to 85.6 per cent in 2012, the percentage of schools that

served a mid-day meal on the day of the visit has decreased. In 2012 only 93.4 per cent of

schools served a mid-day meal on the day of their visit opposed to the previous year when 97.1

per cent served a mid-day meal.

School Management Committee (SMC)

SMC has a very crucial role in actualizing the goals of RTE. It has tremendous potential to

transform the existing system of education, characterized by cynicism and a defeatist outlook

of the system functionaries and stakeholders, including teachers and parents. Through its

positive action and a constructive dialogue with other stakeholders the SMC can work towards

reinstating a well functioning school system. Consistency of positive actions by SMC will change

the dynamics and solutions will begin to take shape, first at local levels and then at the larger

systemic levels.


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All government, government aided and special category schools shall have to constitute SMCs

as per section 21 of the RTE act. Since private schools are already mandated to have

management committees on the basis of their trust/society registrations, they are not covered

by section 21. A proposed amendment makes the SMC an advisory, rather than statutory body

for schools covered under Article 20 and 30 of the constitution (minority Schools).

Parents can be the change leaders

Parents and children are the primary stakeholders of an education system and it is they who

bear the brunt of the faulting scho ol system. They need to be given opportunities and support

to bring about a change in the education system. Our role is to make them realize that they

hold the powerful key to initiate the process of reversing the decline in schools, through their

constructive and collective engagements with the school and other stakeholders.

SMC: Key Functions

1. Making School Development Plan (SDP) as per the RTE guidelines/norms.

2. Management of school.

3. Supervising and supporting implementation of SDP.

4. Supervision/monitoring of finance, management, academic progress, distribution of

entitlements and other functions.

5. Ensuring accountability and transparency in the system through the social audit

mechanism.

6. Keeping proper accounts of the fund available and sharing its deployment and utilization

with the “Aam Sabha”.

7. Creating and maintain an educational database.

8. Coordinating with the local authority, generating funds from other sources for

development of schools.

9. Monitoring academic progress of the children.

10. Instituting social audit mechanism and processes to bring transparency in the system

and ensure universal participation.

SMCs are supposed to have monthly meetings to discuss the developments and various issues

of the school. Without the support of the SMC, schools cannot use government funding.

Everything must be approved by the schools SMC in order to make changes, such as using funds

to repair a broken boundary wall. There are strict instructions as to the composition of the

SMC. They are supposed to be composed 75 per cent of parents, half of which should be

women. The other 25 per cent should be composed of local authorities, teachers, and students

equally. This should ensure that all points of view are represented in making school decisions. It


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is vital that mothers’ voices are heard, as they tend to care more about educating their

daughters than men do. It is also important that members of the community, teachers, and

students are represented. Teachers can express what is truly needed at the school and students

represent the student body and what is important to them at their learning place. SMCs

provide necessary support for schools in order for them to continuously improve and grow to

better serve its students.

QUOTA IN PRIVATE SCHOOLS

The Act promises free and compulsory education to any child in the age-group 6-14. The Act

says that schools should be within a radius of 1-3 km from where the child lives. All

government-aided schools have to reserve 25 per cent of their seats for students from

economically weak sections (EWS). Private schools that are not government-aided also have to

reserve 25 per cent of their seats in Class 1 for EWS students; the government will compensate

them. All government schools will have school management committees, 75 per cent of whose

members will be parents or guardians of the children. Fifty per cent of these have to be women.

State child rights commissions will monitor implementation of the RTE Act in their respective

states. All states have to set up state education advisory bodies. School management

committees will maintain the records of all children in the age-group 6-14 years and ensure that

they are in school.

7. Articles related to RTE Act and its implementation

7.1 Rajasthan schools fail to meet RTE benchmark

JAIPUR: Rajasthan's tall claims on implementing provisions of Right to Education Act-2009

before the March 31 deadline set by the Union ministry of human resource development seems

to have fallen flat.

The condition of government schools in the state is way below the mark set by the Act.

Survey reports while taking into account the improvement in infrastructure and providing mid-

day meals point at problems of poor retention levels and low quality of learning.

Data with the education department shows that the state has over 4 lakh teachers in 49,853

primary, 51,955 upper primary, 15,503 secondary and 8,144 senior secondary schools.


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Only 51.1 per cent government schools in the state meet the student-teacher ratio as per the

RTE norms.

The Annual Status of Education Report (ASER) for 2012 says that since 2010, the ability of

children to read basic text or to do simple arithmetic has been declining in government schools

while that of children enrolled in private schools have remained steady.

In 2011, 21per cent students could do simple subtraction, which dropped to 19per cent in

2012. To add to the shameful figures, 9.3per cent students in Class 3 cannot recognize

numbers 1-9, while 28.8per cent students cannot do simple subtraction. The condition in other

classes is no different.

For instance, the learning levels of Class 5 children in private schools increased from 56.6per

cent in 2009 to 65per cent in 2012 while for government schools it plummeted to 33.3per cent

from 40.1per cent in 2009. In other words, two out of every three children in government

schools in Rajasthan after five years of schooling can barely qualify for Class 2.

In mathematics, the situation is more alarming. The survey indicates that that for competencies

- reading and problem solving, the learning levels among children in private schools remained

considerably higher than those at government schools.

In Class 8, only 45per cent students know how to divide and 26.8per cent can subtract which

widely explains the reason behind mass dropout after middle level.

The survey report has exposed the government claims of providing quality education to

students in government schools. During the three years of RTE implementation, the focus has

solely been on filling the infrastructural gaps while academic performance has been hit.

For elementary education, (including Sarva Shiksha Abhiyan) the government made a provision

of Rs 1,619 crore for 2011-12. A majority of this amount was spent on developing infrastructure.

However, the recent survey findings point at a need for a rethink. The enrolment ratio, quality

of learning, especially basic arithmetic and language at primary level, needs to be improved.

The data from the annual cycle of ASER indicates that enrolment of children between 6 and 14

years in government schools has been decreasing every year - from 62.6per cent in 2008 to

53.4per cent in 2012.

Hiccups in implementation


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State has managed to score high on the number of enrolments which have gone up to 90per

cent but bringing the remaining 10per cent under the ambit remains a challenge. They mostly

belong to minorities, SC/ST groups or are child labours.

Even after getting admission under the RTE in elite schools, they discontinue studies either due

to migration or socio-cultural differences.

The state has failed to frame a policy and or a programme that can check the number of

dropouts. Lata Rawat, principal of Cambridge Court High School said, "This is a major problem

we have been facing. At several occasions we had to rush our admin staff on the given address

to figure out the reason for absenteeism. In most cases, the children migrate to other cities."

Pupil-teacher ratio

State has failed to implement the rationalization of Pupil Teacher Ratio and unequal

deployment of teachers in different rural and urban locations is posing problems in meeting the

RTE norm of PTR. State began the rationalization process in 2009 but it was stalled after

opposition from several pressure groups. "Every urban centre has dozens of schools which have

an uneven pupil-teacher ratio causing wastage of human resource," said a government officer.

Infra for CCE

The CCE which enables teachers to evaluate students on different parameters is yet to be

successfully implemented in many schools. Under the RTE Act, no student should be detained

till Class 8. At a time when conventional pattern of examination is being replaced by a more

comprehensive form of assessment globally, majority of schools in the state don't have the

adequate infrastructure to support the new system.

7.2 Challenges in implementing the RTE Act, May 2012, by Ramakant Ral

India is home to 19per cent of the world’s children. About one-third of its population (around

48 crore, according to the 2001 census) is below the age of 18, and around 74per cent of this

population lives in rural areas. The population of people in the age-group 0-25 years is 56 crore,

which in turn is 54per cent of the country’s total population. Indeed, India has the world’s

largest number of youngsters.

Around 1,618 languages, 544 dialects and 1,942 mother languages are spoken in India; schools

impart education in 148 different mediums. Some 27,000 small and big newspapers and

magazines are published in the country. All of this poses a huge challenge to India to produce

educated and empowered young citizens.


21

India also has one-third of the world’s illiterate population -- a worrisome trend. It’s not as

though literacy levels have not increased. If we look at the 2011 figures, 74.04per cent of

people above the age of seven are literate. The male literacy level has reached 82.12per cent ,

while female literacy has touched 64.46per cent (the difference between male and female

literacy level is 16per cent ).

It’s worth mentioning, however, that in the period between 2001 and 2011, the increase in

male literacy was just 6.88per cent . Similarly, the rate at which male and female literacy levels

increased between 1991 and 2001 -- male by 12per cent and female by 14.4per cent -- has

slowed down. Therefore, total literacy growth of 12.6per cent (from 1991-2001) has declined

to 9.21per cent .

Right to education for children

In 1990, at the World Conference on Education for All, in Jomtien, Thailand, 155 countries

including India took a pledge to ensure education for all by the year 2000. The pledge promised:

Care for development and early education of children in the age-group 0-6 years.

Spreading awareness about primary education for all.

Motivating youngsters to learn more.

Bringing down the illiteracy rate, with a special focus on female literacy.

Life skills for youngsters.

Education to improve overall quality of life.

However in 1998, when UNESCO and other agencies reviewed India’s position in achieving

these goals, it was found that very little progress had been made. The country was among those

at the bottom of the list.

Dakar Framework

In April 2000, 180 of a total of 193 countries came together for the World Education Forum in

Dakar (Senegal). Participants acknowledged that a lot of people -- people from the

disadvantaged class, with low socio-economic status, and the underprivileged -- were bereft of

basic education. Amid discussions it was agreed that the right to education was a basic right.

Thus the Dakar Framework was born.


22

India was among the 180 countries that took the pledge that by the year 2015, education would

be made available to everyone. As part of this objective, India promised to:

Expand and improve comprehensive early childhood care and education, especially for

the most vulnerable and disadvantaged children.

Ensure that by 2015 all children, particularly girls, children in difficult circumstances and

those belonging to ethnic minorities, have access to free and compulsory primary

education of good quality.

Ensure that the learning needs of all young people and adults are met through equitable

access to appropriate learning and life-skills programmes.

Achieve a 50per cent improvement in levels of adult literacy by 2015, especially for

women, and equitable access to basic and continuing education for all adults.

Eliminate gender disparities in primary and secondary education by 2005, and achieve

gender equality in education by 2015, with a focus on ensuring girls full and equal access

to basic education of good quality.

Improve all aspects of quality of education and ensure excellence of all so that

recognised and measurable learning outcomes are achieved by all, especially in literacy,

numeracy and essential life skills.

If one observes carefully, the Indian government has concentrated only on primary education,

ignoring the rest of the goals.

According to UNESCO’s report on progress in primary education, around 7.74 crore children

around the world are out of school. Three-fourths of these out-of-school children reside in 15

countries including India, Bangladesh, Pakistan, Indonesia, China, Brazil and the African nations.

With one-third of the world’s illiterate, the report places India 105th among 128 nations.

It was to battle this grim situation and with an emphasis on teachers, educationists and activists

that the Right to Free and Compulsory Education, 2009 came into being.

According to the 2001 census, India has 36 crore children in the age-group 0-14 years,

constituting 35.3per cent of its total population. In the age-group 5-14, there were 25.10 crore

children (24.6per cent of the total population). It is for these children that the Right to

Education Act was brought out. According to government figures, 18.78 crore children are

being taught by 58.16 lakh teachers in 13 lakh schools across the country.

According to figures provided in the District Information of School Education, of the total

number of primary schools in India, 80.51per cent are government-run and 19.49per cent are


23

private. In 2010, of the total number of admissions to Classes 1-5, 72.13per cent were in

government schools and 27.87per cent in private schools. Similarly, of the total number of

admissions to Classes 6-8, 63.10per cent were in government schools and 36.90per cent were

in private schools. Thus, 69.51per cent of children in Classes 1-8 were in government schools

and 30.42per cent took admission in private schools. Whilst the number of children in

government schools remains greater, their declining popularity and the simultaneous growth of

private schools is an early warning of the country’s deteriorating education system. In states

like Uttarakhand and Karnataka, there were even cases of the state government closing down

government schools. Faced with strong public pressure, the Karnataka government was forced

to go back on its decision.

Why has this situation arisen?

According to the Union Human Resource Development Ministry, in 2010-11, 907,951 teacher

posts have been lying vacant in primary schools across the country. Further, according to the

ministry, in 45.76per cent of primary schools, the teacher-student ratio is more than 1:30.

Likewise, in 34.34per cent of upper primary schools in the country, the teacher-student ratio

has been over 30. What’s more, almost 25per cent of teachers in most states are para-

teachers; in Jharkhand, for instance, almost half the teachers in schools are para-teachers. This

is a serious issue.

Out-of-school children

As has been mentioned before, around 18.78 crore children are in school in our country today.

But there are also hundreds of thousands of out-of-school kids involved in child labour or

domestic work. In fact, of the children enrolled in school, 46per cent drop out before they

complete their primary education. Most of them are girls.

At least 26 crore children in the country today are of school-going age. Going by the

government statistics, 18 crore children are in school. What about the remaining 8 crore?

The government needs to focus on this question in the context of the Right to Education Act.

Although the Act was notified in April last year, and all states were asked by the Centre to

implement it, its efficacy has not completely been proven.

Only 19 Indian states have notified the RTE rules. Among them are Rajasthan, Tamil Nadu,

Madhya Pradesh, Karnataka, Andhra Pradesh and Maharashtra. Nine states are yet to notify the


24

rules. A major obstacle behind implementation of the RTE Act, as put forward by the states, is

paucity of funds.

The Centre estimated an annual budget of Rs 231,000 crore for implementation of the RTE Act.

The Expenditure Finance Committee gave it the go-ahead, with a Centre-state contribution

ratio of 68:32. This was later approved by the cabinet. Of the total amount, Rs 24,000 crore

would come from the finance ministry and the remaining Rs 207,000 crore from the Centre and

the states. This, the government claimed, would prevent the states from being overly

burdened.

Then why are the states citing lack of funds as a hindrance?

Even in those states where the RTE rules have been notified, implementation of the law has not

been effective.

Right to Free and Compulsory Education Act

The Act promises free and compulsory education to any child in the age-group 6-14. The Act

says that schools should be within a radius of 1-3 km from where the child lives. All

government-aided schools have to reserve 25per cent of their seats for students from

economically weak sections (EWS). Private schools that are not government-aided also have to

reserve 25per cent of their seats in Class 1 for EWS students; the government will compensate

them. All government schools will have school management committees, 75per cent of whose

members will be parents or guardians of the children. Fifty per cent of these have to be women.

State child rights commissions will monitor implementation of the RTE Act in their respective

states. All states have to set up state education advisory bodies. School management

committees will maintain the records of all children in the age-group 6-14 years and ensure that

they are in school.

States’ role in implementation of the RTE Act

It has been observed that the Hindi-speaking states of Uttar Pradesh, Rajasthan, Madhya

Pradesh and Bihar have been the most half-hearted when it comes to implementation of the

RTE Act, despite the fact that 67per cent of out-of-school children are from these states.

Uttar Pradesh has, in fact, gone to the extent of claiming that funds given by the Centre would

be utilised to provide free and compulsory education to all children in the age-group 6-14. In


25

other words, the state has no intention of contributing towards implementation of the Act and

will depend wholly on the Centre.

It’s a strange irony that even as the states express concern over the financial burden of this

ambitious Act, the government has been encouraging the corporate sector by offering major

subsidies every year. The government has also favoured the growth of private educational

institutions under the public private partnership (PPP) concept.

Incidentally, the budget for implementation of the RTE Act throughout the country is just half

of the amount spent on organising the 2010 Commonwealth Games last year!

So to say that the country does not have enough funds to make the right to education a reality

is a farce. The Indian Constitution clearly says that it cannot be left to the states to provide

people their rights according to convenience. It is clearly not lack of funds that is a hindrance in

implementation of the RTE Act but lack of intent and political will.

This kind of attitude is a grim reminder of times before Independence when foreign rulers and

the upper class discouraged the idea that poor Indian children should be empowered with

education. Around a hundred years earlier, when the first debate on the right to education was

raised by Mahatma Jyoti Rao Phule in 1882 (in proposing a body for education), based on the

argument that while the British Raj was reaping the benefits of labour from the poor and the

upper class was using this money to get a higher education, he faced stiff opposition from big

landowners, nawabs and the upper class. No one wanted the poor to get educated.

Similarly, in 1891, a proposal in the Imperial Legislative Assembly for free and compulsory

education for all was opposed by the upper class and the ruling British. Maharaja Darbhanga

went one step further and gathered 11,000 signatures from the influential creamy layer to

oppose the move. The argument was: if everyone was to go to school, who would tend to their

agricultural land?

In 1937, at a major education forum in Maharashtra, Mahatma Gandhi tried to reason with the

newly appointed education ministers of seven Congress states that education for all was

absolutely essential for the betterment of the country. However, the ministers said they simply

did not have enough funds for basic education for all.

As discussions and debate dragged on in parliament, on the issue of free and compulsory

education for all children in the age-group 0-14, it was suggested that the upper age limit be

brought down to 11. Dr B R Ambedkar argued that the right place for children was in school,

and not in the fields. Still, this provision was not placed within the category of a basic right.


26

A similar argument was put forward by a group of ministers to the prime minister, in 2006, that

free and compulsory education for all children would cost the government Rs 50,000 crore

annually -- an expense the government would not be able to handle. Even as civil society,

teachers and educationists fought for it, the government washed its hands of the matter and

left it to the state governments to implement the same.

Now that the RTE Act has finally come about, the same paucity of funds argument is gaining

momentum all over again.

Challenges in implementing the RTE Act

Out-of-school children

According to the 2001 census, 8.5 crore children are out of school in India. However, latest

figures from the Human Resource Development Ministry put the number at 80 lakh. This

disparity is because the government has been trying to divide the children into two sections.

According to the National Crime Records Bureau, every year around 65,000 children fall victim

to trafficking. Only 10per cent of such cases are registered with the police. Officially, therefore,

only 6,500 children are trafficking victims. Besides this, around 1.20 crore children are involved

in child labour (2001 census), keeping them out of school.

One of the sections into which the government has tried to divide out-of-school children is

those who have never enrolled in school. But here the question arises: if these children have

never been enrolled in school how have they been counted? By which agency? And what was

the methodology adopted?

The second section includes children who have dropped out of school. Children who do not

attend school for three months are considered to have dropped out. In some states the period

is 15 days; in others it’s one month.

Taking these two sections together, the total number of out-of-school children is around 80

lakh. Nevertheless, the disparity between the figures of the two departments -- a drop from

around 8 crore to 80 lakh -- is nothing short of magic! And even if the 80 lakh figure is correct,

it’s still a huge number and the children are not out of school because of choice. To believe that

the RTE Act will magically put all such kids into classrooms would be naïve.


27

Some states have claimed that there has been a jump of 120per cent in school admissions. This

has to be taken with a pinch of salt. The 2011 census will make the picture clearer.

A recent survey under the Sarva Shiksha Abhiyan programme in Rajasthan found that 12 lakh

children were out of school. Of these, 7.13 lakh children were girls and the rest were boys.

Other states must carry out similar studies.

Coordination between various implementing agencies

Every other day we see children working at roadside restaurants, in people’s homes, on the

roads and in tea stalls. To pick these children up and put them in school is hardly as easy as it

sounds. To begin with, rescue of child labourers and punishing the employer is the work of the

Labour Ministry and the police. The responsibility of bringing children to schools and providing

them quality education is the work of the Human Resource Development Ministry. Then again,

monitoring implementation of the RTE Act is the responsibility of the child rights commissions

in each state, which are under the Women and Child Development Department. As of now, not

all states have even notified the RTE rules. It is crucial therefore that the efforts of all these

agencies are coordinated for the larger goal of providing education to all children to become a

reality.

Various kinds of schools

It’s a strange irony that while on the one hand the government wants to provide quality

education to all children, across all barriers, on the other hand it recognises four kinds of

schools under the Right to Education Act.

Government schools.

Government-aided schools.

Special schools recognised by the government such as kendriya vidyalayas, navodaya vidyalaya

and sainik schools. There are others at the state level too.

Private schools

With such a variety of schools, it is only natural that quality of education varies. Once again it

boils down to the rich being able to afford better quality education and the poor having to

compromise with something inferior.

So what is the need of the day?


28

For quality education to truly reach every child in the country, it is necessary that the following

steps are taken:

Each state should prepare a set of model rules for implementation of the right to

education, with the participation of the community and other stakeholders.

Although the RTE Act puts the applicable age-group at 6-14, it has been left to the states

to decide whether they want to widen this group, say from 0-18 as Kerala has done.

States should think about including more children under the Act’s ambit.

With the Act coming into effect, it has been found that there is a shortage of 12-13 lakh

teachers in schools. The states must take steps to employ more teachers and not rely on

para-teachers to provide children with quality education.

The government should ensure that all government schools are well-equipped to take in

students, so that they are not left with the sole choice of going to private schools.

School management committees should take it upon themselves to spread awareness

about the Act at the community level, in panchayats, so that people are encouraged to

send their children to school.

School management committees should be provided the necessary financial and other

support by the state to go about their duties.

For effective implementation of the RTE Act, states should give some sort of judicial

power to the education department.

The public private partnership (PPP) model in primary education should be avoided at all

costs so that there is no commercialisation of education.

There is a conflict between the child labour law and the Right to Education Act, although

both deal with related issues and promote the overall development of children. It is

important to bring them in step, to avoid confusion.

To effectively implement the RTE Act, the Human Resource Development Ministry,

Labour Ministry, Women and Child Development Ministry, Panchayati Raj Ministry and

Rural Development Ministry have to work together. There should be an umbrella body

that brings all these agencies together to work towards a common goal.

The government must make every effort to become self-sufficient by using the

education cess and other taxes to effectively implement the RTE Act. It must not always

beg from the private sector.

7.3 Rajasthan government stresses on effective implementation of RTE,

Tuesday, April 13, 2010


29

The chief minister asked officials to recruit third grade teachers through Zila Parishads and

strengthen offices of Block Education Officer and District Education Officer as soon as possible.

Rajasthan government today directed officials to take steps for effective implementation of

Right to Education Act (RTE) in the state.

Addressing a one-day meeting of officials of the education department, chief minister Ashok

Gehlot announced Shiksha Apka Adhikar (education your right) campaign and directed them to

complete child tracking survey before June 30 to ensure full attendance of students in next

academic session.

The chief minister also asked officials to recruit third grade teachers through Zila Parishads and

strengthen offices of Block Education Officer and District Education Officer as soon as possible,

according to an official spokesperson.

Stressing on effective implementation of the scheme of model schools in 18 blocks which are

backward in education, Gehlot asked officials to submit construction plan soon after

identification of land.

7.4 Rajasthan needs 14,000 crore for RTE, Sunday, June 13, 2010

JAIPUR: Rajasthan will require Rs.14,000 crore in the next three years for implementation of the

newly enacted Right to Education in the age group of 6 to 14. The State has sought a special

package from the Union Ministry of Human Resources Development on the basis of the

geographical conditions in the State which is, areas-wise, the largest in the country.

Reviewing the requirements for implementation of RTE with Rajasthan Minister for Education

Bhanwarlal Meghwal in Delhi on Friday, Union HRD Minister Kapil Sibal purportedly said that

funds would not be a constraint in opening of new schools, recruitment of teachers and

creation of infrastructure as per the requirements of the Act. He promised to consider the

special needs of the desert and the Adivasi regions of the State.

Referring to a letter written by Rajasthan Chief Minister Ashok Gehlot in this connection, Mr.

Sibal said the Centre would make efforts to fulfil the demand for a 75:25 ratio for the State in

opening of schools and recruitment of teachers. The ratio approved in principle at present is

65:35.

The Union Minister appreciated the initiatives already taken by Rajasthan in improving its

primary education by setting up of Task Force and by initiating the rationalisation process.


30

“Rajasthan was the first State to initiate rationalisation,” he noted.

Under the Sarva Shiksha Abhiayan the Centre has approved recruitment of 1.14 lakh teachers in

Rajasthan. “First attempt should be to cover the backlog,” Mr. Sibal suggested. The single-

teacher schools should have one more teacher and efforts should be made to improve the

student-teacher ratio, he said. A suggestion, that in future the recruitment of primary teachers

should be carried out through the panchayats, was under consideration, he said.

Mr. Meghwal informed the meeting that Rajasthan has 3.08 lakh accepted posts of teachers in

government schools and 2.19 lakh posts have been filled already.


31

Articles and reports referred during preparation of State

education report

http://www.unicef.org/india/education.html

http://www.unicef.org/india/overview_4309.htm

http://www.asercentre.org/education/level/india/media/p/74.html

http://articles.timesofindia.indiatimes.com/2013-04-02/jaipur/38216758_1_government-

schools-private-schools-education-act-2009

http://infochangeindia.org/education/backgrounders/challenges-in-implementing-the-rte-

act.html

http://www.dnaindia.com/india/1371031/report-rajasthan-govt-stresses-on-effective-

implementation-of-rte

http://www.hindu.com/2010/06/13/stories/2010061364830700.htm

www.dise.in

www.asercentre.org

Sharma, Saurabh. “Few girls, poor infrastructure plague Rajasthan schools.” Time of India.

October3,2012.

http://articles.timesofindia.indiatimes.com/2012-1003/jaipur/34237997_1_separate-toilets-

computer-education-enrolment

http://www.unicef.org/india/overview_4309.htm

http://educategirls.in/css/EG_Executiveper cent 20Summary.pdf

Press Release. The eighth Annual Status of Education Report (ASER2012) released. 17, January

2013.

http://articles.timesofindia.indiatimes.com/2012-10


32

Dayaram. http://aif.org/wp-content/uploads/2012/08/SMCBook1.pdf

http://aif.org/wp-content/uploads/2012/08/SMCBook1.pdf

Documents

State Education Report - Rajasthan.pdf