REVAMPED PROGRAMME FOR IMPARTING LITERACY TO NON LITERATE ADULTS  

A Revamped Strategy to impart functional literacy to non-literate adults in the 15-35 age group,proposed to be implemented during the XI^th plan is given below:

                A presentation in this regard was made in the Conference of Secretaries of Education on 6.2.2008 at New Delhi.The education secretaries and all others concerned are requested to send their views/comments on the new strategies as  envisaged .A simple feedback questionnaire form is also enclosed to ascertain your views.Kindly download the questionnaire and send your comments/suggestions if any to the Director General,National Literacy Mission,Ministry of HRD,Deptt. of School Education and Literacy,Shastri Bhawan New Delhi-110001 by 29.02.2008.

Introduction:

     The National Literacy Mission was launched in 1988 with the objective of imparting functional literacy to adult non-literates in the 15-35 age group in the country.The main programmes of the NLM were the Total Literacy Campaign to impart basic literacy to the adult non-literates followed by the Post Literacy Programme to reinforce the literacy skills of the neo literates and the Continuing Education Programme to provide facilities like rural library and reading room for the neo literates and other sections of the community. In addition, vocational training is also provided to the neo-literates and other disadvantaged sections of the society through the Jan Shikshan Sansthans to fulfill the objective of NLM to provide functional literacy.

Impact of NLM: 

     The NLM has so far been able to cover 597 districts in the country under various literacy programmes and nearly 124 million people are reported to have been made literate so far.The literacy rate of the country has also increased from 52.21% in 1991 to 64.84% in 2001, registering one of the highest decadal growth in literacy so far.However, despite these gains, nearly 34% of the non-literates in the 15+ age group in the world are in India.The gender, regional and social disparities continue to be worrying.Apart from this,the campaign mode of NLM based on voluntarism and mass mobilisation has lost its fervor and has gone down in the scale of priority of the   state governments.Most importantly,based on the existing monitoring and evaluation system,it is not possible to estimate accurately the impact made by NLM on the literacy rate in terms of the objective it had set out for itself.

Dimensions of the problem:

      According to 2001 Census, there were 304 million non-literates in the country.Nearly 100 million of these non-literates are in the 15-35 age group   and another 159 million non-literates are in the 35+ age group.150 districts,which have the lowest literacy rate,alone account for 86.80 million non-literates in the 15+ age group out of which nearly 38.40 million are in the 15-35 age group.In addition,47 districts of the country have a female literacy rate below 30%.The low literacy rates of SC,ST and minorities and especially of women also call for immediate redressal.The number of non-literates in the 15-35 age group amongst scheduled castes is 21.47 million and amongst scheduled tribes is 13.15 million.Further, out of the 88 Muslim concentration districts,69 districts have a literacy rate below the national average.

Goals for the XI^th Plan:

      The target for the XI^th Plan is to achieve 80% literacy rate by 2012.The gender gap is to be reduced by 10%.The regional, social and gender disparities are also to be brought down.The non-literates in the 35+ age group are also to be covered.

Revamped Strategy of NLM:

       The main components of the revamped strategy of the National Literacy Mission during the XI^th Plan would be as under:
 

•       The National Literacy Mission would strive to impart basic literacy to adult non-literates in the 15-35 age group in the first year of the campaign.

•     Instructors of the literacy centres would be paid suitable remuneration with incentives for good performance.

•     A certificate of equivalence with the primary level will be awarded to learners who pass the examination conducted by a local school immediately after completion of the prescribed primers.

•     The continuing education programme would be re-structured and merged with this programme to provide follow-up to the neo literates through library and reading room facilities in the 2^nd and 3^rd year of the campaign.The panchayati raj institutions would be approached to provide accommodation and other support.

•     Convergence with other development programmes will be attempted to make literacy visibly linked to issues affecting the daily needs of life of a non-literate and aid in enrolment and retention.

•           NGOs with a good track record would be involved in taking up innovative projects, vocational training, academic and technical resource support for the Mission.

 Jan Shiksha Abhiyaan:

       As the primary objective of the National Literacy Mission is to raise the literacy levels in the country, a nation wide campaign known as Jan Shiksha Abhiyaan   would be launched to impart functional literacy to adult non-literates, in the 15-35 age group depending on the availability of resources. Though the ultimate objective is to achieve universalisation of adult education but due to shortage of funds it appears a distant goal now.Therefore, strategically priority would be given to adult non-literates in the age group of 15-35 living in low literacy districts   and belonging to the disadvantaged sections of the society. It would be a time bound campaign implemented in distinct phases.

(i) Planning and preparatory phase:  

       This phase starting in April would be spread over three months and would involve undertaking   the following preparatory activities before the actual start of the teaching learning process.

        (a) Survey :

                     A comprehensive door to door survey would be taken up in the first instance to identify,enlist and enumerate the actual number of non-literates.The survey would be got conducted on a proforma enclosed at Annexure I by the Village Education Committee of the Gram Panchayat under the supervision of Zilla Sakshartha Samiti the.The Gram Panchayat would give adequate publicity and constitute teams before the start of the survey.Wherever,such a survey   has already been undertaken recently and all relevant data required to be collected on Annexure I is already available,no fresh survey would be required and the available  data would be utilised.During the survey, an effort will also be made to identify such school students who are willing to teach one or two non-literate members from their own household.  

   Based on the information collected through the survey,a comprehensive database of the non-literates would be compiled at the Block level with the infrastructural support of the Block Resource Centre of the Sarva Shiksha Abhiyaan.This information would be posted also on the NLM Website.

(b) Selection of Instructors :

            In order to identify eligible and willing instructors a centralized advertisement would be issued at the District level in the local vernacular daily.The Gram Panchayat would also make a local announcement through various means at its disposal.Those interested would submit their applications to the Village Education Committee.There will be one instructor for a group of 15 non-literates.Immediately after the survey,the matching and batching will be done by the VEC in such a manner,that the group so formed and the instructor identified for this group is culturally,socially and economically homogenous to the extent possible. Women instructors   would be engaged   where   majority of the learners are women.The Village Education Committee will draw up a panel of instructors,which will be submitted to a Block level Committee to be constituted by the District Collector for ratification.

          While preparing the panel of instructors,the VEC would   give preference to the following in the descending order:

 (i)       A person who has worked as a literacy volunteer with a good track record in the earlier literacy programmes.

(ii)        Retired teachers not above 65 years of age.

(iii)      Facilitator or work   supervisor (working for the Rural Development Department),Asha worker (Health Department) etc.who are interacting with the non literates group for the promotion of schemes of various departments.

(iv)       10^th class pass   person with social commitment.

           The Block level Committee shall consist of representatives from the BRC,ZSS,Block level Panchayat and the SDM as Chairman.This Committee would scrutinize the list to ensure that the guidelines have been followed by the VEC in the selection of instructors and ratify the same.In case the guidelines have not been followed,the Committee will return the panel to the VEC for resubmitting the panel which would be in conformity with the guidelines.

(c) Training:

           The selected instructors would be given training and orientation with specific inputs on how to teach adults.The training programme would be primer specific.As far as possible,the training would be a residential programme at the Block level.The instructors would be trained by Master Trainers,who in turn would have been given orientation by Key Resource Persons.During the training,emphasis would also be given on different types of information useful for adults relating to health,sanitation,vocational skills, various developmental   and social welfare programmes.In particular,the instructor would be encouraged to form a group from amongst the learners who could be enrolled as beneficiaries under programmes like SGSY etc.Besides, facilitators of SGSY etc would also be given training for imparting literacy to their beneficiaries who are non-literates.

(d) Location of Literacy Centre:

            The literacy centre would be located in the local school,Panchayat building or any other government building and if these are not available,the centre may be allowed to function in the residence of the instructor,for which prior permission will be obtained from the Block organisor on a case to case basis.

(e) Teaching Learning Material:

           The State Literacy Mission Authority and ZSS would coordinate with the SRC to ensure timely preparation, procurement and distribution of teaching learning materials which would include literacy kit and the instructor’s manual.The Zilla Sakshartha Samiti will simultaneously take steps to procure complete set of primers and stationery for distribution to the literacy centres in one go before the teaching learning phase begins.Sufficient number of Primers and stationery would be provided to each of the VEC of the Gram Panchayat for distribution to the Instructor/Prerak of the literacy centres. These will be distributed to the learner on the 1^st of July at the learning centre in presence of the atleast one member of the VEC or the Gram Panchayat.

(ii) Teaching and Learning Phase:

                   After all the   preparatory activities have been completed,the teaching and learning process would start on a fixed date viz. 1^st July of the year.Teaching would be transacted six days a week for at least two hours daily.The timing of the Centre would be left to the convenience of the learners/instructor, which would be clearly displayed on the board.The teaching process would continue for a period of six months and would conclude by the end of December.It would be ensured that at least 240 hours of teaching would be completed by the end of the Programme.Every literacy centre will have an attendance register and inspection register in which the supervisors will record their inspection notes.

                      Wherever this literacy campaign is to be made a part of the Mahila Samakhya or Self Help Group or any other activity of the other departments or organisations this time frame and teaching-learning   methodology need not be followed.Attempt should be made be impart literacy through their route. However,evaluation of the neo literate will be done to ascertain the outcome of the exercise.

(iii) Evaluation and Certification:

                   The progress made by the learners would be assessed at different stages through an inbuilt system of internal evaluation at the centre level.The instructor would take tests built in the Primers at regular intervals to assess the progress made by the individual learners.After the completion of all the Primers, an examination would be conducted under the auspices of the local school in respect of all the learners enrolled at the centre.This exam would be conducted in the first week of January, immediately after the completion of the teaching–learning phase.The method of testing and   model question paper would be developed by the NLM.Those who are declared successful would be awarded a certificate equivalent to Class V signed by appropriate authority at a function to be held in the school on 26^th January by the Pradhan of the Gram Panchayat.Further,to encourage and motivate the Pradhans to actively participate in this programme,the best performing Pradhans would be honored on the occasion of the International Literacy Day function held at the District state/national level.

  (iv) Mopping Up unsuccessful learner :

                   Instructors will continue teaching such persons who could not pass the exam conducted by the local school in a special mopping up operation to be taken up immediately after the   result of the written exam is declared.This mopping up programme would be continued for a period of   2 with a re-test on 15^th March.  

  (v) Continuing Education Phase:

                   After the completion of the teaching learning phase opportunity would be given to the learner to consolidate his learning   on a continuing basis.This would require library facility with interesting and useful reading material within their reach.   

     For this purpose a library would be set up in every Gram Panchayat for which accommodation will be provided by the Gram Panchayat.The existing continuing education centres which were opened for a population of 2500 would be relocated in a manner that every panchayat has one such centre which will function as a library and information centre.These centres would be known as Jan Pustakalaya. The books and other materials provided to these centres earlier will be transferred to this relocated centre.This centre would act as a single Information Window and disseminate details of various development programmes to the beneficiaries.In the selection of books for the library,the Gram Panchayat would have a choice in the purchase of books depending on the local preference. Jan Pustakalaya will be manned by an instructor who has made the largest number of adults literate .A recurring and non-recurring grant of Rs.25,000/-each and 10% as administrative costs for three years would be provided.Existing CE centres will be supported till they have received three years of assistance.Thereafter it will be transferred to the Gram/Nagar Panchayat. If a district has already completed three years before the start of the scheme,then it will be provided Prerak to run the library and information centre for three years.The Prerak in charge of this centre will also be responsible for mopping up the remaining non-literates.  

(vi) Involvement of NGOs:  

                   NGOs with a good track record may also be involved by the ZSS in this programme.They may be given a compact and contiguous area for implementing this programme.In addition,the NGOs may also be involved in conducting training programmes,developing teaching learning materials,survey,creating awareness,monitoring,providing vocational skills and such other activities as may be found appropriate at the district level.If an NGO has worked earlier under the literacy programme such as the Accelerated Female Literacy Programme,Special Female Literacy Programme etc. with more than 75% success and are still active in the district,then their experience and expertise should be utilised.It will give ZSS good support and insight for addressing literacy related issues in sustainable manner.

  (vii) Honorarium and Incentives:

                     The instructors of the literacy centre would be provided honorarium at the rate of Rs.1000/- per month.This honorarium will be paid for a period of six months,which is the duration of the teaching learning phase.As an added incentive,the instructor will also be paid Rs.200/- per person made literate.Further,for every person made literate the instructor will obtain 1 incentive mark and for every person,who was not successful in completing the basic literacy programme,1/2 mark would be deducted.   Subsequently,if the instructor is able to make literate this particular person also during the mopping up programme,he would regain 1.5 marks which means that the negative effect of the learner not passing in first attempt will be annulled.Based on the net marks obtained in this programme,the States would be asked to give them due weightage for appointment as a para teacher under SSA provided he/she fulfills the eligibility criteria.School students up to Class IX who participate in the literacy programmes for teaching upto 2 adult non-literates would be given some incentive marks,which   may be decided by the concerned state government.The student would however get the monetary award at the rate of Rs.200 per person made literate.

  (viii) Monitoring:

                    Supervision and   monitoring on a continuous basis will be one of the key features of the Jan Sakshartha Abhiyaan.Monitoring structures would be built at all levels to ensure that the programme is implemented as per schedule.At the grass root level the Village Education Committee would be responsible to ensure that the literacy centres are functioning properly and regularly.Attendance and inspection registers will be maintained at all literacy centres.The next monitoring structure would be at the Sub Block or the Nyaya Panchayat level.Provision would be made for appointing full time personnel who would visit the centres regularly collect information about the progress and submit periodical report in prescribed proforma and to the Block level functionary for compilation, guidance and onward transmission.At the Block level the meetings of the Sub Block level officers would be held at regular intervals for orientation and to assess the progress made.Finally at the district,the ZSS would be responsible for the overall monitoring and coordination.The states would be given the flexibility to adapt the monitoring structures in accordance with the existing administrative structures in their districts.Monthly progress report would be transmitted electronically as well as by routine post to the NLM by the 15^th of every month.

  (ix) Coordination between ZSS and JSS:

                     In order to make learning more attractive to the neo-literates, they will be provided opportunity for self employment through vocational training at the Jan Shikshan Sansthan.JSS will use the data base of the NLM/ZSS to design training courses suitable to the needs of the new literates.JSS will also conduct skill based literacy courses for the non literates.Various types of training imparted by the JSS to the neo literates would be monitored closely in the monthly coordination meeting of the ZSS and the JSS.

    (x) Convergence with other departments:

                      Apart from imparting basic literacy,it is also necessary that the adult learner is apprised of the various development programmes of the Government.It is an essential ingredient of imparting functional literacy.For this purpose,convergence would be established with other departments so that on the one hand the beneficiaries are apprised of the salient features of these programmes and on the other hand steps are initiated to ensure that they avail of the fruits of these programmes.Simultaneously,the facilitators of the development programmes would also be sensitized and suitably oriented to ensure that the illiterate members of their group are also imparted literacy.

  The facilitators of the self help groups established under SGSY or the Mahila Samakhya would identify the non-literate members of their group.These facilitators can impart literacy for which purpose the ZSS would provide training to them and make available teaching learning material.On successfully making an adult literate,they would be eligible for the incentives being provided to the literacy instructors.There would be no time frame for completion of literacy outcome and the effort would be to build in the literacy activity   along with their regular activities.Similarly for the labor engaged under NREGA,literacy would be imparted at the worksite during their leisure or spare time.The instructors of the literacy centres would also form a group of eligible beneficiaries, particularly those from the BPL group, and get them enrolled for the services under the rural development programme.Such an instructor would be eligible to become a facilitator under that rural development programme also.An effort in collaboration with the panchayati raj institutions would also be made for making the non literate office bearers of the PRI literate.The mechanism of such a convergence would be worked out in consultation with the concerned departments at all levels.

  (xi) Funding and Coverage:

                    The per learner cost for the basic literacy programme is estimated to beRs.762 .The estimated cost of the programme with an average adult non-literate population of 1.85 lakhs is estimated to be 14.00 crores.The cost will be shared between the central and state government will be in the ratio of 80:20.The central government share per district would be around Rs.11.20 crores.The funding for the continuing education programme would continue at the same rate of Rs.25,000/-each for recurring and non-recurring with 10% additional cost for administrative purposes.The sharing for this programme would also be in the ratio of   80:20.The annual recurring grant for the State Literacy Mission Authority would be in the range of Rs.15.00 to Rs.25.00 lakhs.The funding for north eastern states would,however,be in the ratio of 90:10.

              Keeping in view the allocation of resources and the cost estimates as worked out above,it is estimated that 80 districts covering 1.47 crore adult non-literates can be covered each year.The total coverage for the remaining Plan period would be 320 districts and 5.88 crores adult non-literates.

    (xii) Modalities of Transition to the new strategy:

               With the adoption of the revamped strategy, henceforth there would be only one programme viz Jan Sakshartha Abhiyaan.Those districts implementing PLP projects would be directed to close down the projects as on 31.3.2008.As the new strategy is proposed to be adopted from 1^st April of this year,the existing total literacy campaign (TLC) and the project for residual illiteracy (PRI) may continue with their teaching learning activities but will have to submit fresh proposals indicating the remaining activities,balance fund available with them and additional fund required as per new norms.In other words, the teaching learning process,if underway,in these projects would continue as before with the proviso that honorarium and incentives will be paid as per the new norms after the system of examination and certification are duly complied with.The SLMA and ZSS would be asked to close and finalise the accounts of these projects as on this date and begin afresh with the new programme.The modalities of settlement of accounts of these old projects and transfer of funds to the new scheme would be worked out separately.

  The old CECs/NCECs will be reorganized in a manner that every Panchayat has one such centre called Jan Pustakalaya.Stocks including books of all other centres located in the Gram Panchayat will be transferred to this centre.  

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