Análisis de la gestión de los ingresos públicos por parte de las entidades

The analysis presented in this section points to significant improvements in the access and participation of children in elementary education, particularly in lower primary schools. It can also be safely concluded that certain programmes and strategies adopted in recent years have helped bring more children in to school and improve the quality of education provided. Implementation of these programmes has also brought forth some critical lessons that should guide further progress (see Govinda and Biswal, 2006; Govinda, 2008). For instance, modifying traditional distance and population norms and opening schools in small habitations has yielded some positive results. Similarly, moving from state level planning to district level planning for educational development has helped identify variations in the conditions at the sub- regional level, and developmental inputs have been adjusted accordingly.

Several strategies and programmes, such as those related to quality improvement and teacher education, are quite limited; often focusing on input provision and coverage of certain numbers of teachers. An example of this is the programme of direct grants to schools and teachers to improve school quality and classroom instructional processes. However, an absence of a systematic empirical evaluation of these programmes has left them vulnerable for criticism and potential rejection.

Another important aspect of the programmes and strategies over the last few years has been to reform the governance system by emphasizing community involvement. (Govinda and Bandyopadhyay, forthcoming) This is also linked to changes and developments in the strengthening of panchayati raj institutions in different states. The last few years have seen the emergence of a variety of mechanisms to facilitate community involvement in school governance such as School Development Management Committees in Karnataka, empowered School Management Committees in Andhra Pradesh, Committees of Panchayati Raj Institutions in Madhya Pradesh through the new Jana Shiksha Adhiniyam, and the revamped Village Education Committees in several other states. But in most of these cases, there is a danger that they will dissipate or become less effective over a period of time unless efforts are made to link them to administrative reform measures within the education department. It is important to note that such measures do not involve any financial investment, but would play a critical role in giving stability to the management system and have a positive impact on the participation of children in schooling.

Sarva Shiksha Abhiyan, the main vehicle for elementary education development, consists of an integrated programme, which interlinks various inputs flowing through a number of component activities. It is in line with this thinking that all component activities are designed and incorporated into a perspective plan for each district. It is on such District Plans that substantial amounts of funds are being spent in all districts with regard to both equity and quality considerations. This is indeed a positive move that should help bridge the persisting disparities and social inequities in access to elementary education in the country.

It is recognized that teacher and teacher-related factors seriously affect students’ participation in schools at various levels. Teachers who have inadequate qualifications and training and perhaps do not display a sympathetic and sensitive attitude towards students’ needs and differences are likely to impact on students’ experiences in class,

making them vulnerable to drop out and / or low achievement. Moreover, as Pandey (2006) suggests, teachers are better able to relate to students with whom they share a common first language and cultural understandings, and to be able to effectively facilitate communication in class and to incorporate students’ experiences into classroom practice. It is also argued that teacher’s lack of knowledge of students’ languages, cultures and communities might inhibit the development of close relationship with students (Pandey, 2006). In a culturally diverse society such as India, it may not always be possible to have a teacher with a similar background to his or her students, so it is important that the teachers be sensitized, educated and trained to acknowledge and be respectful of the various diversities among students. Issues related to teachers and their training also cannot be considered in isolation from the curriculum they teach in schools. Batra’s (2005) reflection on the voice and agency of teachers in relation to the National Curriculum Framework (NCF) suggests that there are two major gaps in relation to teacher education. First, it views teachers as people who need ‘to be persuaded and trained… oriented to the perspective…(and) …. should have the skills to teach…’ (Batra 2005: 4350), as opposed to those who need to be empowered to evolve pedagogies that foster critical thinking within a consciously created democratic environment of learning for all children irrespective of caste, religion, region, community and gender (Nawani, 2008). Secondly, it assumes teachers exist in isolation from the socio-political contexts that actively discriminate between people from different backgrounds; and that teachers can be ‘oriented’ successfully to ‘implement’ the articulated new perspective of the NCF (Batra, 2005).

Finally, as has been highlighted, the last 10-15 years have witnessed unprecedented levels of attention to the improvement of elementary education both in terms of quantity and quality. This has been spearheaded by the Government of India through major programmes such as DPEP and currently through Sarva Shiksha Abhiyan. While one may question if the levels of resources mobilized have been adequate, the overall expenditure on the development of the education system (as opposed to recurrent expenditure on teachers salaries, for example) has increased. However, common questions posed by many people in the field are: What efforts have been made to track cumulative changes and improvements in districts, some of which have received financial support for nearly a decade? And, do the district plans and the strategies adopted by the SSA reflect changed realities in quantity as well as quality of elementary education in the country? These questions point to the need for a more permanent arrangement for continuous and systematic assessment of educational conditions and processes as they unfold in each district, and for incorporating emerging lessons into the design of subsequent action plans, instead of engaging in temporary and arbitrary actions which may show results in the short-term but which may not contribute to the development of the system in a sustainable manner.