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By: ARUN C. MEHTA Fellow NIEPA, New Delhi – 11 00 16
(INDIA) The Present Paper and Data Sources The demographic and educational
development in north-eastern states has been briefly analyzed below. While analyzing educational development in
North-eastern states, data has been obtained from the Selected Educational
Statistics: 1997-98 of the MHRD, Sixth All-India Educational Survey:
1993-94 of the NCERT and household sample survey conducted by the NSSO on
students attending schools, 52nd: Round, 1995-96. It may be noted that school is the basic unit of collection in
the MHRD data while it is the habitation from which information is collected in
the NCERT data. However in the NSSO
the information is collected on household sample basis, the respondent being
the head of the household. Demographic Scenario The total population of seven
north-eastern states, namely, Arunachal Pradesh, Assam, Manipur, Meghalaya,
Mizoram, Nagaland and Tripura in 1991 was 31.55 million which constituted about
3.73 per cent of total population of the country (846.30 million). Of the total population of the seven
north-eastern states, Assam constituted the highest chunk of population (71.05
per cent) followed by Tripura (8.74 per cent), Manipur (5.82 per cent),
Meghalaya (5.63 per cent), Nagaland (3.83 per cent), Arunachal Pradesh (2.74
per cent) and Mizoram (2.19 per cent).
All these states had higher percentage increase during 1981-91 than the
all-India average of 23.85 per cent. In case of Nagaland, the percentage
increase was of the tune of 56.08 per cent.
Demographic Indicators:
North-Eastern States
*: Projected. It is estimated
that the population of north-eastern States will rise to about 37.72 million in
2001 and will further rise to 42.73 million in year 2011. The population of age-group
6-11 and 11-14 indicates that it was 4.63 and 2.04 million respectively in the
North-eastern states which is 3.97 and 3.85 per cent of the total 116.71 and
53.00 million of the respective age-group population of the country. It is estimated that both the 6-11 and
11-14 years population in north-eastern states will increase during 1991-2001
but is expected to decline during 2000-11.
Assam had the highest population and Mizoram, the least which is true
for both 6-11, and 11-14 years and is likely to remain same in the years that
follow.
Note: In view of the 2001 actual
population, the projected figures may slightly change. North-eastern
states are practically tribal states.
Except Tripura (16.36 per cent) and Assam (7.40 per cent), all other
states have a meager SC population. Except
Assam (286/ sq. km.), the density of population is far below than the national
average of 274/ sq. km. It was only 10
per sq. km. in 1991 in Arunachal Pradesh.
Tripura had a density of 263 per sq. km. The sex ratio in case of Manipur, Meghalaya, and Tripura was
higher than the national average. It
has been noticed that Mizoram, which had the highest literacy rate also, had
the lowest infant mortality, birth and death rate, all, which shows positive
impact of literacy on these vital events.
Note: In view of the 2001
actual population, the projected figures may slightly change. Literacy Scenario During the period 1991-97, the north-eastern
states have shown a significant improvement in the literacy rates (7+ and 15+
population). It may be noted that 1991
literacy rates (census) are based on complete enumeration while the 1997 rates
are generated by the NSSO based on the household sample survey i.e. 52nd
round. During the period, both the
rural/urban and male/female differential in literacy have declined. In 1997, Mizoram recorded the highest literacy
(95 per cent) followed by Nagaland (84 per cent), Meghalaya (77 per cent), Manipur
(76 per cent), Assam (75 per cent) and Tripura (73 per cent). The literacy rate (7+) was the lowest in the
state of Arunachal Pradesh (60 per cent).
The rural/urban differential was lowest in Mizoram (5 per cent) as
against the highest 23 per cent in Arunachal Pradesh. The male/female differential is also lowest in Mizoram (1 per
cent) and highest in Arunachal Pradesh (21 per cent). Quite a similar trend has also been noticed in case of 15 +
literacy rate. Not a single district of
north-eastern states in 1991 had literacy below 30 per cent against which 16
district had the same in case of female literacy. About 40 districts had literacy rate above 50 per cent against
which only 13 districts had the same in case of female literacy, all which suggests that female literacy
though improved significantly but one
North-eastern states has to go a long way to attain the status of universal literacy. The NSSO 1995-96 data further shows that
except in case of Meghalaya, Mizoram, Nagaland, Tripura and Assam, the majority
of literate (15 + population) had never completed primary level.
The Literacy rates for 2001 has
since been released by the Census of India authorities. Access to Schooling Percentage of habitations and rural
population having access to primary and upper primary schooling facilities
within a distance of 1 & 3 km. are the basic indicators of access. During 1986-87 to 1993-94, the total number
of habitations in north-eastern states have increased from 50,904 to
63,742. Mizoram had the lowest number
of habitation (705) against which Assam (41179) had the highest number in
1993-94. Manipur (82.26 per cent),
Mizoram (94.30 per cent) and Nagaland (92.36 per cent) had provided primary
schools to a large number of habitations even within the habitation. Except Arunachal Pradesh (77.87 per cent),
all other north-eastern states have provided a primary school within a distance
of 1 km. However, compared to primary
schools, upper primary schools are not easily accessible. In Assam and Tripura, more than 85 per cent
of the total habitations are provided upper primary schools with in a distance
of 3 km. which is above the national diverge.
Only 54.39 per cent habitations in Arunachal and 74.54 per cent in
Nagaland have been provided with this facility. However, number of habitations having population of 300 and more
when analyzed, it has been noticed that the facilities improved to a
significant extent both in case of the primary and upper primary schools. But Arunachal (73.22 per cent) and Nagaland
(70.15 per cent) still had lower
percentage than at the all-India average (87.91 per cent). The coverage of NFE centres in these
states also do not indicate that alternate schooling facilities have been
provided to unserved habitations. Only
a few NFE centres have been opened in north-eastern states. The analysis of villages served by primary
and upper primary schooling facilities also suggests that a large number of
villages in north-eastern states are yet to be provided schooling
facilities. The distribution of schools
further suggests that majority of schools, except in Meghalaya, are government
run schools. However, private (aided
and unaided) schools are also plenty in the states of Manipur, Meghalaya and
Mizoram, which is true for both primary and upper primary schools. Meghalaya had more than 92 per cent upper
primary schools managed by the private organisations. The enrollment distributed according to school management however
indicates that more students are in government schools than their share to
total number of schools. Unrecognized
institutions have only a meager percentage of enrollment at the primary and upper primary level of
education. The ratio of primary to
upper primary schools though improved but still not as envisaged in the policy
directives, only Mizoram has provided almost one upper primary school for every
two primary schools it had in 1993-94.
In rest of the north-eastern states, the ratio ranges between 3 to 5.
The NSSO data further reveals that only a few students of age 5-24 years
pursuing general education were receiving scholarships, free or subsidized
books and stationery and mid-day meals.
The highest percentage of students receiving mid-day meals was in
Tripura (30.4 per cent), followed by Assam (25.1 per cent), Mizoram (8.7 per
cent), Meghalaya (8.5 per cent) etc.
which is far below than the national average of 17.9 per cent. In Arunachal and Assam, more than 70 per cent of students were receiving
free or subsidized books which is far above the national average of 25.6 per cent. Facilities A few primary schools in Assam and
Tripura function either in open space or in tents. The percentage of schools having pucca (permanent) buildings across north-eastern states is far
below than the national average (65.07 pre cent). The percentage was as low as 9.63 per cent in Manipur, 2.44 per
cent in Mizoram and 4.00 per cent in Nagaland.
About 5 per cent schools in Assam and 2 per cent in Tripura did not have
instructional room in 1993-94. However,
average number of rooms per school, except in Assam and Meghalaya, was more
than two. A majority of both primary and upper primary schools still did not
have either drinking water or urinal facilities in school. All the north-eastern states had more than
two teachers in primary schools. The
average number of teachers in upper primary schools ranges between 5 in
Meghalaya to 12 in Tripura, all which suggests that more upper primary teachers
are available in North-eastern states than the national average of 6.9
teachers. The pupil-teacher ratio has
increased between the period 1986-87 to 1993-94, which indicates that despite
the increase in enrollment, the teachers have not increased at the same
pace. The percentage of female teachers
between 1986-87 to 1993-94 have improved significantly but still male teachers
out numbered their female counterparts.
The percentage of female teachers in upper primary schools is lower than
their percentage at the primary level. Unlike in other parts of the country, a
majority of teachers in North-eastern states are not trained the percentage was as low as 33 per cent in
Tripura and in 35 per cent in Manipur.
Student Coverage: Enrollment Availability of schools need not
guarantee that adequate facilities are available. This also need not guarantee that children of different age-group
are benefited and are enrolled in
schools which can be known only by analyzing
enrolment over time. The
enrolment in primary and upper primary classes during the period 1986-87 to
1993-94 irrespective of North-eastern states have improved significantly but is
not enough to attain either the status of universal primary or elementary
enrolment. It may also be noted that
girls' enrolment in these states has increased at much faster ratio than the
increase in boys' enrolment. The increase in elementary enrollment
in case of Arunachal and Manipur was almost 50 per cent during the period
1986-87 to 1993-94. This is also
reflected in the rate of growth in enrollment that is calculated during the
same period. The average annual rate of
growth in case of Arunachal and Manipur was more than 6 per cent per annum and
the least was in case of Meghalaya (1.54 per cent). The enrolment ratio (except Nagaland) during the same period has
also increased. However, care should be
taken while analyzing enrolment ratio because corresponding projected
age-specific population used in calculating ratio is based on population upto
1981 census, hence bound to change once the projections based on population
upto 1991 are available.
The latest figures (1997-98) reveal
that not a single North-eastern states is in a position to achieve the goal of
universal enrolment in the near future.
This is reflected in the NER calculated at the primary level. The lowest NER was recorded in the case of
Nagaland (44.4 per cent) and highest in case of Mizoram (88.2 per cent). Further, a wide gap across the north-eastern
states is noticed between the net enrolment ratio of boys and girls. The NSSO attendance ratio (1995-96)
further reveals that a large number of children of age group 6-10 and 11-13
years were not attending either I-V or VI-VIII classes. Age specific rates also suggest that a large
number of children of both 6-10 and 11-13 years were either not enrolled or not
attending schools, all which suggest that rigorous efforts are needed to bring
all out of school children under the umbrella of education system. The out of school children calculated
for year 1997-98 further suggests that as many as 5.71 lakh children were not
enrolled in any class which is just 1.63 per cent of the total out of school children at the all -India
level. The highest number of out of
school children (28.17 per cent) was in Meghalaya followed by Tripura (17.91
per cent), Nagaland (15.19 per cent) etc.
The lowest out of school children were however in Mizoram (4.27 per
cent). The projected enrolment also
suggests that north-eastern states are not likely to attain the status of UPE
by the turn of the century. The net additional
children that would be required to enroll in 2001 suggest that Meghalaya would
have to enroll 2.34 lakh children compared to about 23 thousand in Assam if
these states are to attain the status of UPE.
The distribution of never enrolled aged 5-24 years by reason of
non-enrolment suggest that a large number of students across North-eastern
states are not interested in studies or further studies. In addition, a considerable chunk of parents
in these states are also not interested in studies of their wards. Participation in economic activities,
financial constraints and domestic activities were found to be the other main
reasons of higher incidence of out-of-school/non enrolled/never enrolled
children. Transition Rates The analysis of entry rate suggests
that a large number of children enter into the system (through Grade I) but a
majority of them drop out from before the completion of primary cycle. The boys/girls differential in entry rate
(gross) further reveals that except in the case of Assam, it was wide and
significant in rest of the other North-eastern states, this is also true for
net entry rate. The dropout rates at
the elementary level suggest that it was a high as 73 per cent in Tripura
compared to 71 per cent in Manipur and Mizoram. The lowest dropout rate was calculated in case of Nagaland (41.7
per cent). However, the boys/girls
differential in dropout, except in Nagaland, is almost negligible, which means
that both girls and boys equally dropout from the system. However, the transition rate calculated
between primary to upper primary level suggests that irrespective of a
north-eastern state, it was quite high.
This indicates that a majority of children transited to upper primary
level and only a few children dropout in process. The boys/girls differential in transition rate is also
insignificant. Thus, there is need to improve the
efficiency of the primary system.
Unlike primary enrollment, which is a function of 6-11 population, upper
primary enrollment is not a function of 11-13 years population. Many of these children of 11-13 years
age-group are still out of school or enrolled in primary classes, as they enter
late in to the system. Only those children can get admission in upper primary
classes those who graduate primary level.
The failure of primary system will send fewer number of primary
graduates to the upper primary streme and it will compel to shift the target of
not only the UPE but also of the UEE.
The projection exercises undertaken in the recent past also indicate
that except Kerala not a single state is in a position to achieve the goal of
universal enrolment in the near future i.e. up to year 2010. However, there are a few states, which can
achieve the goal in case of boys earlier than projected. The goal of universal primary enrollment
however is likely to be attained by the year 2007. Efficiency of the System It
has also been noticed that despite the no detention policy in primary classes,
a large number of children used to repeat a grade, this is also reflected in
the NSSO data on causes of non-enrollment presented above. Across north-eastern states, the repetition
rates are comparatively higher in Grade I than in other grades. This together with high incidence of drop-out
severely effects the efficiency of the educational system. Except in Manipur, all the north-eastern
states are taking more than 7 years to produce a primary graduate than ideally
(5 years) required. The primary
education system of Meghalaya is efficient to the tune of only 54 per cent. The
most efficient system however is that of Manipur (97.1 per cent) where children
are taking only 5.1 years to complete the primary cycle. It was as high as 9.3 years in Meghalaya and
8.3 in Arunachal Pradesh. Unless, the
education system is improved, the goal of UPE cannot even be dreamed.
The financial
indicators are positive in case of north-eastern states than at the national
level. The per capita budgeted
expenditure, (except Arunachal); per
pupil expenditure (elementary); all
are quite high in North-eastern states
than the national average. Keeping in
view the inefficient state of the primary system in North-eastern states, the positive
financial position may be causing a lot of wastage. Despite the government expenditure, the NSSO data suggest that
private cost of primary education irrespective of north-eastern states is quite
high and well above (except Assam and
Tripura) the national average of Rs. 501/-.
Quite a similar trend is observed for other higher levels of
education. A good chunk of private cost
on education is imparted on tuition fee, which is true for all the
north-eastern states.
Analysis of aggregated data has only
limited use and can not be of much use in planning exercises. Therefore, there is a need to undertake a through
diagnosis exercise at disaggregated levels.
For developing plans at the district level, better it would be to
analyze the data at the block level. The diagnosis exercise can be divided
into two parts, namely, general and educational scenarios. Under the general scenario, general
information regarding district and its sub-units can be analyzed. So far as the educational scenario is
concerned, it has got twin objectives of identifying blocks/areas, which are
not as development as the other areas in the district/blocks. The other main objective of diagnosis is to
identify a focus or target groups that is not as educationally developed as the
other section/segment of the population is.
The problems, which the system is
facing, should also be highlighted and identified during the diagnosis. Education of girls and SC/ST population,
high incidence of dropout, low enrollment, teachers absenteeism, habitation
without schooling facilities, schools without teachers, single teacher schools,
building-less schools, etc. are some of
the problems a district and its blocks may be facing. For diagnosis purposes, quantitative as well as qualitative, time
series and cross-sectional data micro and macro data, primary and secondary
data and data generated by both the governmental and non-governmental agencies
can be used. Once the diagnosis
exercise is over, the next important task is to review the past plans, projects
and programmes that are undertaken in the district in the recent past. Experience of these programmes may be quite
helpful in developing programmes of similar nature. It is pertinent to mention here that the data users and researchers often question reliability of educational data, which is also evident, if the MHRD and the NCERT set of educational data is compared. Therefore, there is a need to develop a computerized Educational Management Information System. This can be possible, if the provisions made under the new initiative, namely, Sarva Shiksha Abhiyan are fully utilised. All the districts of the north-eastern part of the country would be covered under SSA before the end of the Ninth five year plan. Many of these districts have already submitted pre-project activity plans but the activities are not picked up as per expectations. The members of the planning teams in all of these districts have already been trained by NIEPA about development of district elementary education plans. The amount to carry out pre-project activities has already been released by the Government of India. The districts have to undertake micro planning exercises, conduct household surveys to assess out-of-school children, conduct a number of studies, strengthen the existing information system and establish computerized EMIS, initiate community through mobilizations campaigns etc. Community involvement is an important component of SSA, without which the goal to achieve UEE may not be realised. Lot of expectations are envisaged in SSA from the community.
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