MAKING THE CESS WORK

MOBILISATION OF RESOURCES through the levy of a cess is only one, although important, step towards universalisation of elementary education. Much work remains to be done in designing the right curriculum, creating and maintaining the necessary infrastructure, and empowering local communities to oversee the functioning of schools. There is at present a lack of clarity about the form and quality of elementary education that is to be given in public schools. For instance, the Central Government-sponsored Sarva Shiksha Abhiyan (SSA), which is the main vehicle for universalisation, promotes both formal and informal (`alternative') schooling. The latter is justly criticised for putting children from under-privileged backgrounds through a second-class and low-quality education. The task therefore is for the Centre and the States jointly to benchmark the schooling system in the areas of physical infrastructure, teacher selection, the teacher-pupil ratio and, most important, the curriculum. Inadequate infrastructure, a lack of trained teachers, and teacher absenteeism are three major problems that plague the government elementary education system. The additional funding that will now be available can mitigate these problems, if the States show a commitment to free education. However, there is still the challenge of running a vastly expanded school programme under the SSA. State Governments will need to collaborate with local bodies in developing institutional arrangements that can manage the schooling system effectively and ensure the efficient use of Education Cess proceeds.

The reconstitution of the Central Advisory Board for Education (CABE) with many eminent persons as its members will aid the goal of expansion of elementary education. The United Progressive Alliance Government has revived the key advisory body that became defunct ten years ago; it has selected as its members prominent personalities from industry, science, the fine arts, literature, and the non-governmental sector. To re-set the objectives of the SSA, the Board can draw on the expertise of some of its members who have undertaken baseline studies in parts of Karnataka on the scheme's quality and development outcomes. The mid-day meal scheme is to be funded by the Education Cess and will be an integral part of the drive to put and retain every child of school-going age in the classroom. The cooked meal scheme makes a significant contribution to raising enrolment levels and improving the nutritional status of children. The breakthrough made on the ground by Tamil Nadu, which had the good sense not to heed expert World Bank advice against introducing a universal `free lunch,' is inspiring proof of what a bold social scheme for children can achieve. After goading by the Supreme Court the school-meal programme has been introduced in a number of other States. Yet implementation has been uneven, with Bihar and Uttar Pradesh yet to begin providing cooked meals to students. This is also an area where State Governments need to work closely with local bodies.

Unfortunately, the Central Government does not appear even to have begun to think about how to use the Education Cess funds. The Central budget for 2004-05 expects to raise Rs. 4,910 crores but the SSA and the mid-day meal scheme have, between themselves, been provided only an additional Rs. 625 crores this year. The Planning Commission may suggest a substantial increase in funding for education and mid-day meals after it carries out its review of government programmes. Meanwhile, it is vital to ensure that the resources raised from the new cess are sequestered in a separate account and do not disappear into the Centre's common pool of funds. The cess must be used solely for elementary education and the mid-day meal scheme — and for no other purpose.