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Para-Teachers in India: Status and Impact by Geeta Gandhi Kingdon PARA
TEACHERS Copy Right: DPEP Calling, Volume VI, No. 11, December 2000, Government of India, New Delhi. The
use of para teachers in primary education started on a large scale in the late
seventies with the start of the centrally sponsored NFE scheme. But the use of
para teachers in regular primary schools has started only in the eighties, the
first initiative being the volunteer Teachers Scheme' of Government of Himachal
Pradesh, in 1984. Subsequently the para teachers have been employed in most of
the states. These schemes of para teachers have originated in the background of
the states’ effort to universalize primary education, especially after the NPE, During
the last few years, especially after the start of DPEP there has been
phenomenal rise in the number of Para teacher Schemes. Almost all the
educationally backward states have come up with the scheme of para teachers. The
term 'para teacher' covers a wide range of recruitment for teaching in schools
and alternative learning centres. In a broad sense, any appointment, that is a
deviation from the past practice in that state, is referred to as a para
teacher. This broadly refers to large number of teachers recruited by the
community (though not always), at less than the regular teacher pay scale, for
the formal as well as Alternative schools, to meet the demand for basic
education within the limited financial resource available, in the shortest
possible time. Engagement of para teach-is also seen as a concerted effort to universalize
access in the remote un-served habitations that do not qualify for formal
primary school and have no school within an approachable distance of one
kilometer. The recruitment of para teachers, in some cases has been visualized
as an interim strategy to provide adequate number of teachers, without
compromising on quality. In other instances, the scheme of para teachers is
envisaged as continuing along with regular teachers, though there may be
possibilities of individuals graduating from the first category to the second.
There also exists a trend of departing from the earlier system of teacher
recruitment, with states opting for appointing teachers only on contract,
through panchayats. In the case of Madhya Pradesh, the older policy of
teachers' appointment on permanent basis as regular government employees has
now been substituted by appointment of teacher on contract by District and
Block panchayats. Since all the teachers will be appointed on contract in the
state and the cadre of regular teacher has been done away with, therefore the
contract teacher system has become the regular system. The government of Rajasthan
has taken a similar policy decision. In these cases, it has been seen as
decentralisation of accountability framework. For
the purpose of this study, all schemes of appointment of teachers, that is a
deviation from past practice in a broad sense, has been covered under the
umbrella of para teachers. However, such para teachers, who are working with
part time education programmes like, NFE and some Alternative schooling
centres under DPEP have not been included. Origin: The
recent schemes of Para teachers have come up in response to the challenge of
providing universal access to primary education under different situation. It
has three aspects. First, there are a sizeable number of small size habitations
in remote and tribal areas, in different states, which do not qualify for
formal primary schools within the state government norms. These habitations
are dispersed and the children of these habitations do not have access to
primary schools within a radius of one kilometer. Providing formal primary schools
in these habitations is financially not viable. Therefore, local teachers from
the communities are appointed, on a comparatively lower salary to these schools
in remote habitations. Secondly, para teachers are appointed in regular schools
to ensure a minimum of two teachers in every school. There are a sizeable
number of single teacher schools in most of these states. Thirdly, to address
the adverse Pupil Teacher Ratio (PTR), or in other words to meet the teacher
requirement. Large vacancies of teachers exist in the regular schools. These
vacancies have arisen partly because of the retirement of teachers and partly
due to the increase in enrolment. State governments are finding it difficult to
fill up these vacancies with teachers in regular pay scales. Para teachers are
being appointed to meet the requirement of teachers, because it does not
require any significant increase in financial allocation, especially when the
state governments are faced with the paucity of funds. Rationale: The
existing para-teacher schemes are quite varied and so are their origins and
rationale. These variations in the schemes are rooted in the contexts in which
these schemes have originated and also the specific problems they are trying to
address. Para teachers were first employed in India with the part time
education programme in the late seventies. Then the rationale for employing
para teachers was different. It was argued that since the children because of
'their problems' can not join full time schools, setting up part time school
during the hours convenient for them was considered necessary. Since children
were available for part time only, so the teacher also needed to work part
time. They
were meagerly paid (initially it was Rs. 100 p. m. which was raised to Rs. 200
p.m.) because they had to work for only about two hours daily. That is how the
concept of para teachers in education came into existence. In the mid-
eighties, the para teachers were extended to formal primary schools and in the
decade of nineties para teachers have been extended to upper-primary, secondary
and senior secondary schools also. The appointment of para teachers, in Madhya
Pradesh and Andhra Pradesh has been extended up to the senior secondary levels.
The rationale for appointing para teachers has changed. Focus has shifted from
the 'problems of children' to the financial inability of the governments.
Currently para teachers are paid less, not because they are working part time
or the services they provide do not justify payments more than what they are
paid currently. They are paid less because of state governments' financial
inability to pay them adequately, especially when the requirement has been very
large within a very short period of time, coupled with the high rise in the
salary of government employees. The
first scheme of para teachers in primary schools in Himachal Pradesh was
started for the purpose of providing additional teacher in single teacher
schools. Subsequently, this concept of para teacher has been applied in many
states, but the contexts in which these schemes have evolved are different. A
very substantial proportion of para teachers has been appointed in formal
primary schools to maintain the balance in Pupil Teacher Ratio (PTR). States
are finding it difficult to provide teachers with full pay scale in the
shortest time frame. Besides meeting the demand in the shortest time frame,
engagement of para teachers is also seen as a cost - effective strategy. This
has led them to adopt the para teacher recruitment route. With
the 73rd Constitutional Amendment, when Primary Education has become the
responsibility of Gram Panchayats, appointment of para-teachers by the Gram
Panchayat has found a new context. Powers to appoint para teachers in most
cases have been vested in Panchayats. In these states, it is seen as
empowerment of the Panchayat Raj system and a decentralization of the
accountability framework. In many schemes this has been further decentralised
and the power to identify/select teachers has been vested in the parents of the
beneficiary children. It is allowing states to develop a decentralised
framework with the involvement of community through the Panchayat Raj system
and the Village Education Committees. Decentralisation of appointments has
quickened the process of teacher recruitment. The
existing process of recruitment in different states has been time consuming.
Appointment of such a large number of teachers in such a short time
frame without decentralizing
the recruitment process probably would not have been possible. In
schemes like, Vidya Sahayak of Gujarat and Shikshan Sevaks of Maharashtra, the
appointment of para teachers have been seen as interim measures to be able to
meet the heavy financial requirement in a phased manner. But in most of the
schemes, such understanding is not clearly visible, In Madhya Pradesh, the
government policy is to appoint teachers only on contract basis. School
teachers will henceforth, no longer be, a regular government employees. Either
the Janpad Panchayats or the Zila Panchayats appoints them. The regular teacher
cadre is a dying cadre in Madhya Pradesh. Though
this has not been articulated very clearly in these schemes, there also seem to
be an understanding among the
educational planners and implementers that the local appointments
will solve the most difficult problems of irrational deployment of teachers in
schools. The appointment of teachers in most of these schemes is against
vacancy in a particular school and they are then not subject to the regime of transfer. In
Himachal Pradesh, which is near achieving the goal of universal access,
retention and quality are the two major concerns. The new scheme has been
launched, mainly with a view to provide minimum three teachers in each school
to improve the quality of learning. Though,
the schemes of para teachers Very significantly in their origin and approach
but the common factor in all of them is that the teachers are low paid and are
appointed on contract. In most cases, barring Gujarat and Maharashtra, pre-service
training is not mandatory. Induction training is largely between 20-40 days
duration, except in the case of Vidya Volunteers of Andhra Pradesh and
Sahyoginis of West Bengal. Another significant point about the para teachers is
that they are mostly from the local community. Appointing authorities in most
cases are VECs/SCs/Panchayats. The local communities have a major role in
functioning and management of para teacher run schools, especially those in
similar habitations. Honorarium to the para teachers also in majority of the
cases, is paid through the community Coverage: At
present in different states, more than 220 thousand para teachers are engaged
in full time schools out of which the state of Madhya Pradesh has a share of
53.7%, about 118 thousand. The rest, about 102 thousand para teachers are
distributed in states of Andhra Pradesh (35,000), Gujarat 485), Rajasthan
(18,269), Arunachal Pradesh (10,961) West Bengal (8,065) Assam (2,332),
Kerala (385) and Orissa (380). If number of para teachers working in
part time Primary education programmes, is also added, this number will go
above 500 thousands. These 220 thousand para teachers have been appointed in
the last 5 years and out of this about 180 thousand have been appointed during
the last two years. The
states of Uttar Pradesh and Maharashtra have notified new schemes of para
teachers on the patterns of Education Guarantee Scheme and Shiksha Karmi
Program of Madhya Pradesh. Going by the proposals of different states for the
current year, about another 90 thousand more para teachers are going to be
appointed in formal schools. Bihar is also in the process of finalising a
scheme of para teachers "Lok Shikshan Karyakaram". With this, all the
states under DPEE barring Kamataka and Tamil Nadu, will be having provision of
para teachers for full time schools. Types of para teachers: Due
to the very varied origins and rationales
of these schemes, categorising them has been a
difficult task. But, on the basis of the types of schools, the para teachers
are working with, they can be classified broadly into two categories: I. Para teachers working in formal primary schools and II. Para teachers working in
schools other than formal primary schools Again,
within both the categories, there can be two sub categories. A1. Para teachers appointed in
formal primary schools. This has been done with a view to address the problems
of single teacher schools as well as the high Pupil Teacher Ratio. Inspite of
the OBB scheme, there are many single teacher schools existing in the country
today. Apart
from this, there has been number of teacher posts vacant in most of the states.
These vacancies have arisen partly because of the retirement of teachers and
partly due to increase in enrolment. State governments are finding it
difficult to fill these vacancies by appointing teachers in regular pay scales.
The para teacher schemes have been conceived as measures to provide teachers at
a lower cost, especially when state governments are faced with paucity of
funds. In this category, the examples are; 'Vidya Upasak Yojana ' of Gujarat,
'Vidya Volunteer Scheme' of Andhra Pradesh, 'Shiksha Sawayam Sevi Scheme' of
DPEP Rajasthan and 'Guru Mitra Scheme' of Uttar Pradesh, Vidya Sahayak Yojana
of Himachal Pradesh and Shikshan Sevak Scheme of Maharashtra etc. A2. Para teachers replacing
formal primary schools teachers. In this category the only example is of
Shiksha Karmi Programme in Rajasthan. The Shiksha Karmi Programme Rajasthan was
launched in response to meeting the problems of teacher absenteeism in remote
villages in tribal and desert areas of Rajasthan. Regular teachers are replaced
by SKs who are local youths and trained specially. The minimum qualification
for teachers in SKP is class VIII and for women it is further lowered to class
V. They receive 37 days induction training and 30 days in-service training,
each year. The appointment is on contract basis. After 8 years of satisfactory
service, they are put in the regular grade. B l.
Para
teachers working in full time schools in small remote habitations, which do not
qualify for formal schools. A very sizeable number of such habitations,
situated in the remote, hilly and isolated areas, inhabited largely by backward
communities, exist in different states. These habitations have no facility of
formal school in the vicinity of 1 k.m. The size of population in majority of
the cases, is also smaller for which opening formal primary schools is not
viable both from the financial as well as management angles. These
habitations do not qualify for opening of formal primary schools under norms of
the state governments. Teachers under this category are also paid less compared
to regular teachers. The nature of appointment is contractual. There is no
insistence on pre-service training. Though most of them receive induction
training, ranging between 20-40 days. In
some cases, these schools are attached to the nearest formal schools and they
admit children, only for classes I and II. They have feeder status and children
after completing class II, join the nearest formal primary schools. The
responsibility of supervising these schools also lies with the headmasters of
the nearest schools. The examples of these types are; Community Schools of
Andhra Pradesh and Education Guarantee Scheme of Uttar Pradesh. In this case,
the new schemes do not grow as parallel to the existing system and thereby do
not create dichotomy. Barring
these two schemes, schools in most of the schemes under this category are upto
standard V Examples of these are — EGS of MP, Rajiv Gandhi Swam Jayanti
Pathshala of Rajasthan, Alternative Schooling Programme of Orissa, Rishi Valley
Pattern schools of Uttar Pradesh, proposed Vasti Shala scheme of Maharashtra
and Multi-grade schools of Kerala etc. Cl. Para teachers in part time
education programme. The teachers in these programmes also belong to the local
community. Teaching is not considered their main profession. They are paid very
poorly, ranging between Rs. 200-1,000 a month. No provision for pre-service
training exists. The induction training received by teachers is also of
significantly short duration. Examples under this category are; teachers of
centrally sponsored scheme, Sahaj Siniksha Programme or LJr and a number of
Alternative Schooling programmes in DPEP. Qualification of para
teachers: Minimum
qualification of para teachers in most of the schemes is intermediate.
Rajasthan SKP is the only scheme where minimum qualification for para teachers
have been kept as low as VIII standard and in case of women it is further
lowered to 5th standard. This has relevance in the context of Rajasthan. Since
SKP is meant for remote habitations and teachers have to be necessarily local,
finding teachers with better qualifications would be difficult in many
habitations. Even in SKP majority of the teachers are matriculate. In some
cases, candidates having pre service training experience get weightage or
preference over others in appointment. Honorarium of para teachers: Honorarium paid to para
teachers vary from Rs 900 to Rs 3,000 per month against the regular teachers'
salary of about Rs 5,000 per month. Honorarium of para teachers, who are appointed
in regular schools, is in the range ofRs 1800-3000 per month, with only
exception of Volunteer Teacher Scheme of Andhra Pradesh. For the para teachers
working in schools, which have been set up in unserved habitations, the
honorarium is largely in the range of Rs 900-1200 per month, except in Kerala.
In all these schemes, teachers are paid less in comparison to the regular teachers.
For one regular teacher's salary, in some cases, about 5 para teachers can be
appointed. Terms of Appointment:All
the para teachers are appointed on annual contract basis. The annual contracts
can be renewed if the para teachers work is found satisfactory. In some
schemes, there is a provision for annual increment but in majority of the
schemes such provision do not exist. In
the EGS types of schemes, mostly Gram Panchayat contract para teachers. The
selection of para teacher is also done by Panchayats on the basis of criteria
laid down in the schemes. Payment of honorarium to para teacher is also through
the Panchayats. But in schemes like Vidya Upasak of Gujarat, Vidya Sahayak of
Himachal Pradesh and Shikshan Sevak of Maharashtra, the appointing authority is
vested either in Zila Parishad or in the Education Department of the state
governments. In case of the SKP of Rajasthan, the BDO appoints the Shiksha
Karmi. In case of SKP, Madhya Pradesh the Shiksha Karmis are appointed
either by the Janpad Panchayats or by the Zila Panchayats, depending on the
grade of Shiksha Karmis. All
the Vidya Upasaks of Gujarat will be absorbed as regular teacher after 5 years
of their service. They may be absorbed after three years also if the vacancies
exist. In the Shikshan Sevak scheme of Maharashtra also such a provision has
been included. In Madhya Pradesh, state government policy is to appoint school
teachers only on contract though Panchayat Raj bodies. There are three grades
of SKs in Madhya Pradesh. The vacancy in SK grade II and III are filled 50% by
promotion of SKs from the lower grades and 50% by direct recruitment. In case
of SKP of Rajasthan, after 8 years of satisfactory service SKs are promoted as
senior Shiksha Karmis on A fixed salary, equivalent to regular teachers. SKs in
Rajasthan are entitled to have facilities like medical reimbursement after
hospitalization and ex gratia payment of Rs 30,000 to the nearest kin in case
of death. They are also compensated for textbooks and examination fees if they
appear in exams for improving their qualification. Trianing and
academic support: Training
of teachers is crucial for achieving quality of education. By and large,
the pre-service training for para-teachers is not mandatory. Maharashtra and
Gujarat are the only two states, where pre service training for para teachers
appointed in formal school is mandatory. They have to undergo the same training
which regular teachers undergo. But all the para teachers undergo induction
training, mostly in the range of 20-40 days. In some cases this training is as
short as seven days also. In
service training of para teachers in majority of the schemes is between 10-20
days per year. There are some schemes in which it is not spelt out clearly. By
and large, it can be said that the training of para teachers with few
exceptions is quite inadequate. And this requires immediate and serious
attention. Academic
support to para-teachers is provided through BRCs &CRCs in ; DPEP
districts, but in non-DPEP districts, it is through the DIETs. In some of the
schemes, like SKP of Rajasthan and SSK of West Bengal, ) separate arrangement
for academic support has been made. In non-DPEP district where CRCs / BRCs do
not exist, for DIETs to be able to reach to all the schools, seem a very
unrealistic proposition. Some arrangements below DIETs need to e made. The
issue concerning the pre-service training and the quality of induction as well
as in-service training of the para teachers, should be the matter of concern.
The academic support system, also need to be reviewed from the point of its
adequacy. Nature of school:
The
para-teachers in the schemes documented, are either appointed in regular
primary schools or schools which have been set up in remote habitations, which
did not have any schooling facility within the approachable distance of one
kilometer. These schools are full time schools, run during the day hours. Curriculum and textbooks: Regular
school curriculum and textbooks are used in the schools. In case of EGS Madhya
Pradesh, though the curriculum is the same as in the regular schools, separate
non-graded textbooks have been prepared for the EGS schools. Andhra Pradesh and
Kerala have developed multi-grade materials especially for these schools.
These textbooks and material developed in these states allow free pace of
learning for children and also encourage independent learning. These are
suitable for multilevel / multi-grade situation. In fact, free pace of learning
presumes multilevel classroom. School infrastructure: Schools
which are in unserved habitation, barring Rajiv Gandhi Swarna Jayanti
Pathshalas of Rajasthan, Multi-grade Centres of Kerala and to some extent EGS
of Madhya Pradesh, are being run in places / buildings provided by the
commujity. In SSK of West Bengal, there is a provision that Panchayat can
utilise development funds to construct suitable building for running the SSKs.
By and large the infrastructure in para teacher run schools in remote
habitations, is quite inadequate. This hampers the teaching-learning process.
This requires immediate attention. It is necessary to provide these learning
centers basic minimum infrastructure to ensure that we move towards the goal of
achieving universal quality primary education. Litigation impacting the para teacher schemes: These
schemes have been challenged legally in different courts. Primarily, there have
been three grounds on which these programmes have been challenged. a) Ensuring the provision of
reservation for different categories in appointment. b) Para teachers are being paid low wages in comparison to the regular teachers, for the similar work. Thereby these teachers place the grievances that they are being discriminated. Unequal ways for equal work violates the constitutional provision of right to equality and c) The third issue is the
appointment of local persons as teachers, and in some cases, only women being
appointed as teachers. Due
to court interventions, the schemes have undergone certain changes. In scheme
like SKP of Madhya Pradesh, the appointment of para teacher is at
block/district level instead of village level and the teacher, in this case,
does not belong necessarily to the community. This has meant that the
advantage which para teacher schemes have from teacher being local may be lost.
But the Shiksha Karmis continue to be appointed against vacancy in a
particular school, thereby the problem of irrational deployment of teachers, is
taken care of. There
are number of cases still pending in different courts against the para teacher
schemes. As para teachers are paid less than half to one seventh the amount of
regular teacher, this is a contentious issue, which will continue to attract
legal interventions. Prospects: The
appointment of para teachers has helped states in ensuring access for a very
large number of remote habitations, mostly inhabited by the deprived
communities. It has also helped in providing a second teacher in single teacher
schools, as well as filling up teacher vacancies in schools. The requirement
of teachers has been substantially large. Filling up all the vacancies with
regular teachers would have required major enhancement in the financial
provision for education, especially when salaries of government employees have
gone up very substantially. Without substantial increase in financial
allocation for education by the states, ensuring adequate teachers in schools
within a very short time frame, can be possible only by appointing para
teachers for less salaries / honorarium. This does provide solutions for the
problems of access as well as shortage of teachers for the time being but this
dualism of high paid and low paid teachers in the primary education system can
not continue for a very long time without creating tension and distortions in
the system. The
issue of incentives is equally important. In most of the currently started
schemes, there does not exist any provision of these teachers getting absorbed
in the regular system. Gujarat has appointed para teachers, without
compromising on qualification and pre service training requirement and the
scheme has a provision of absorbing all these teachers after five years. Some
may be absorbed even before that, if vacancies exist. Maharashtra also has
opted for similar provisions. In
Shiksha Karmi Scheme again, there is provision for SKs to be made permanent
after 8 years of satisfactory service. SKs of MP are placed in a regular scale
after three years of satisfactory service, but the SKs salary is lower compared
to the regular teachers. Gujarat
and Maharashtra have taken these schemes as an interim measure to tackle the
problem arising out of heavy requirement of teachers in a situation when they
are faced with the financial constraints. It also helps in resolving the
conflict arising out of dualism in the system. The
states probably need to estimate the number of teachers required till the
enrolment reaches a plateau, and ensure absorption of para teachers in the
regular system in a phased manner. The period after which these para teachers
in different states will get absorbed in the regular system will vary, based on
the requirement of number of teachers as well as the financial situation of the
state. The
issue of inadequate training is a matter of serious concern. Gradually the
states need to address this issue. It is true, that the training imparted
through our teacher training institutes is also inappropriate. But no training
and poor training are no answers. There is a need to think afresh about the
training needs of these teachers. Academic support systems also need
strengthening. Again
schools, which have been opened in unserved habitations, are likely to face
many problems. Most of them, because of
the small number of children are likely to remain single teacher schools for
long time, based on the present norms. For a single teacher to be able to teach
children upto class V is almost an impossible task, unless continuous support
and training is extended to him. Secondly, most of these schools lack basic
infrastructure required for organising classes properly.. By allowing these
schools to functions up to class V a parallel system of schooling, which have
started with inferior inputs, will be created and allowed to exist. If
these schools opened in smaller habitations are seen as an extension of the
nearest formal primary schools, where children are admitted only up to class
II, the problem of continuing with an inferior system can be resolved.
Availability of schools in their vicinity can ensure regular attendance of
younger children. Once they get oriented to schooling for two years it should
not be difficult for them to walk a distance of 2-3 kilometers. The local
school headmasters along with the community can be responsible for proper and
regular functioning of these schools. The schools headmaster can supervise and
extend academic support to the satellite school. The teachers of satellite
schools after certain years of service can also get absorbed in the regular
system and this will be a great source of motivation for them. The feeder and
satellite states will also help state; to get rid of dualism in the primary
education system. Andhra Pradesh and Uttar Pradesh have planned these schools
as feeder schools, but there is no provision for absorption of these teachers
in regular system. Para
teacher shcemes seem to have helped states in solving the problems if ensuring
universal access as well as neeting requirement of teachers to ope with the
increased enrolment in chools, without increasing the finan-ial allocation in
primary education. kit this may prove a short term olution. Systematic
approach, with ang term vision,/regarding use of para eachers, needs/to be
developed in the tates. |