Chapter 5 Innovative Programmes

5. Innovative Programmes

5.1 Continuing Education as People’s Programme
Case of West Godavari District in Andhra Pradesh
Taking National Literacy Mission (NLM) Continuing Education (CE) Scheme Guidelines as a broad framework, Government of Andhra Pradesh (AP) evolved its own model for its implementation. The implementation modalities devised present a certain re-definition and refinement over NLM’s CE perception and strategies. These were in respect of: (i) creation and involvement of people’s participatory structures in implementing the CE Centres (CECs); (ii) aligning CE programmes with the needs and interests of beneficiaries; (iii) linkage with development departments and their programmes; and (iv) lending “peoples institution” character to CECs, not only in regard to community support but also in incorporating their involvement in management of CE programmes itself.
5.1.1 CE in West Godavari District: Embodiment of a People’s Programme
West Godavari (WG) was one of the premier districts to take up CE Scheme in 1997, with preparations having started right from 1996. WG-CE Programme was conceptualized primarily as a people’s programme in which community participation, ownership and management of CECs and its activities would be the central features. The role of ZSS – the implementing agency at district level, was seen as one of a catalyst and facilitator, conceptualizing the critical parameters of people’s ownership and management characteristics of CE Scheme and facilitating its operationalisation through financial, technical and academic resource support to CECs (ZSS-WG, 1997 [in Telugu]).
Adopted from State Government policy, these critical parameters included:

• Formation of a village Core Group of persons committed to a social cause like literacy and CE and to organize neo-literates to participate in CE Programme;
• Forming an association of neo-literates (Akshar Sangam [AS]) by paying a membership fee of Rs. 10 per annum, and each AS, seeking a CEC, to have at least 250 members; and electing a 9-Member EC from amongst AS members, five of them being neo-literates and 4 of whom, women.
• Collection of Corpus Fund of not less than Rs. 10,000 for each village; and after fulfilling these formalities, applying to ZSS for a CEC.
• Specific provisions for de-recognition and discontinuation of funding and closing down of CECs found not satisfactory by the ZSS.
• Opening and maintaining a separate Bank Account by AS, operated jointly by President and Convener (HM of village Primary or Middle School) and money withdrawal only on the resolution of AS;
• Selection and appointment of Preraks by Village CE Committee, not by ZSS as elsewhere; Prerak being accountable to AS and it dealing directly with ZSS; Prerak not a functionary of ZSS but a part-time Volunteer.
• The AS entering into an MOU with ZSS to abide by its rules, such as conducting ZSS prescribed weekly activities in CECs, submission of quarterly utilization certificates of funds received from ZSS, etc.;

• AS being allowed flexibility by ZSS to organize such activities of their choice for one week in a month, after conducting activities prescribed by ZSS for first three weeks. NLM allowed flexibility to ZSS to devise CE programmes and activities in harmony with local requirements. WG-ZSS devolved these flexibilities on the AS, and thus, went beyond mere trappings and made CE as a partnership with the community not only in respect of ownership and management of CECs, but also its programmes.
5.1.2 Launching a People’s Participation-based CE: The Strategies Adopted
A well-orchestrated awareness, training and orientation and publicity campaign was undertaken for over 3 months to reach out to every village, section of society and organized groups. At least 5000 people received such training and orientation. More than three-fourths of them were people’s representatives and leaders of people’s associations of women, youth, teachers, NGOs and voluntary agencies. Through all these efforts, CE as a people’s programme, implemented by AS with government help became widely known and accepted by people.
Elsewhere in India, it has not been all that easy to secure beneficiaries’ participation in CE even when a hefty fare of awareness, knowledge and skill-based programmes were offered free. What made the .22 million people, majority of them from the weaker sections, take a membership in AS by paying a subscription fee, was their perception and valuing of people’s participation and ownership of the programme, in which they felt, they had both a space and stake (Rao, 1999). It was also this large membership that gave the programme the image of people’s partnership, and, in hindsight, one that made possible to continue the CE programme with people’s involvement for over 3 years even when the CE direction at State level went astray and funds were not released.
5.1.3 CE Activities in WG District 1997-1999
Based on NLM Guidelines, WG-ZSS devised five types of programmes, and activities, as below, and planned them in such a way that some were compulsory and others optional.
Educational Programmes
(i) Library & Reading Room
Commenced in 1997, Library and Reading Room activities continue till date in all 1095 CECs.
(ii) Literacy Classes
As part of CEC’s regular activity, 2910 sub-centres were opened to teach basic literacy to non-literates. These continued till 2000 when a second generation TLC (Akshar Sankranti) was taken up for which the CEC Volunteers (Preraks) were re-deployed for monitoring.
(iii) Varam Varam Vignanam [VVV] (a weekly lecture-cum-discussion programme) on development issues by development departments
The VVV programme was conducted non-stop for 108 weeks in all CECs up to September 2000.
Awareness Programmes
Publication of a Neo-literate Broad-sheet, a fortnightly newsletter and reaching it to every CEC was part of awareness programmes. Known as Akshar Deeksha, the 4 page neo-literates newsletter had over 5000 circulation. Considered as the pride of WG-CE, Akshar Deeksha was the most effective communication and dialogue channel between CECs and ZSS, with at least 100 letters a fortnight from readers and Preraks. ZSS was planning to convert it into a self-financing venture by pricing it, but was not fortunate to get the gestation period with subsidy.
Quality of Life Improvement
Programmes (QLIP)
QLIPs included activities on food and nutrition, health, hygiene and sanitation, expenditure and savings.
Skill
Development
Programmes (SDPs)
SDPs introduced in 830 CECs included preparation of pain balms, detergents, soaps, basket weaving, lace making, embroidery, candle making, etc.
Recreational Programmes
Sports and games and cultural competitions were organized and national days and events were
celebrated by Akshar Sangams wholly through community initiative and contributions.
5.2 Sustainability of Innovative Programmes
People’s CE Programme: Promising Features, Partnership Failures and
Consequences
The Community Involvement-endearing features of WG’s CE Programme that were critical for its success are worth noting:

• Crystal clear policy that sanction of CEC only to such villages which forms an association of neo-literates – Akshar Sangam, with at least 250 members.
• Membership to AS only by paying a fee and this as the only basis of forming an AS.
• A clear set of rules from ZSS, governing formation of AS, including the election to its EC and its composition of 9 members.
• The election to the AS-EC, of mainly those people who took an active interest in forming the AS, canvassing membership and collecting Corpus Funds.
• Affiliation to, and eligibility to receive funds from ZSS only those AS that fulfilled all formalities indicated in ZSS rules.
• A separate set of rules governing funds management, AS being required to submit a quarterly report of their accounts to the ZSS.
• In Corpus Fund collection, a clear policy against collecting large donations from one or two individuals or naming the CEC after them so that the principle of collective leadership is not compromised.
• Stipulation of a critical minimum of amount of Rs. 10,000, for Corpus Fund, to have an adequate amount, kept in a 5 year fixed bank deposit, the interest from which, along with annual membership fee, could help CECs to carry on its activities when state funding ends.
• All CECs, as did in WG, to function in government or public premises – a conscious decision, to facilitate people to access the CECs without any inhibition and create an atmosphere conducive to increase people’s participation and management.

By all accounts and especially in respect of community response, the WG-CE had a glorious run for over 3 years. This despite with only 50% of first year (1997) grant from NLM, and similarly, only the first installment from ZSS to AS in charge of each CEC. Procedural wrangles that seemed to mark NLM’s emerging approach to literacy movement delayed funds release for well over three years, and thereby sapped the motivation of even the most ardent activists of CE. The lessons, when Government’s partnership role fails, as seen from WG’s CE experience, point to the following – much the same in CE Programmes elsewhere:

• Local initiatives for a programme like CE cannot be sustained for long period without the back up support and inputs at every stage, especially for expanding and strengthening the scope of people’s management, in respect of funds, programme flexibility and autonomy of CE association.
• The initial understanding of CE Scheme with flexibility in programmes and certain autonomy in financial matters implied a facilitative role by government – the ZSS. This autonomy and flexibility was replaced with government control.
• A vision of fully equipped CEC with a five year assured funding and timely flow of funds for an activity packed CE, as in NLM CE Guidelines -- was canvassed. Zss’ release of funds was partial, the reason being non-receipt of grants from NLM or State government. Ill-equipped CECs and inability to take up the programmes promised, created credibility crisis of ZSS among the public.
• Library in CEC as the basis to sustain a reading environment could be some achievement even if target specific programmes could not be undertaken. The inability to develop library with a good collection of interesting books, rendered it unattractive.
• Target specific programmes not taking off due to its non-sanction and/or non-release of funds disappointed the organized groups like the SHGs, which mobilized members for AS. Beneficiaries’ disillusion led to drop in their participation in CE activities, as happened in WG.
• A voluntary informal group is essential to mobilize people’s participation in a non-formal sector like literacy and CE. This idea was taken forward with greater social sanctity in WG through fee linked membership to Akshar Sangam and election for its EC. The principle of election did not violate ASS’ voluntary character, and its 9 member EC allowed for wider representation. The substitution of this voluntary body by an officially constituted committee by State Government, took away autonomy and flexibility of Akshar Sangam and its EC and brought in bureaucratization of the programme and stringency about use of funds. This typified the emerging trend everywhere (Mathew, 2002). The policy trend towards the literacy movement has been characterized by (a) a certain loss of priority to the programme and turning it into yet another routine government programme at national, state and district levels; and (b) a slowdown in funds flow. WG-CE was fortunate to receive the second installment by 2000 end. CE programmes elsewhere were not so fortunate. Initial grant for first 6 months was all they had, and languished for 3-4 years before receiving next installment and may now be battling to pick up broken threads in the pursuit of creating a learning society.