The National Policy on Education was framed in 1986 and modified in 1992. Since then several changes have taken place that calls for a revision of the Policy. The Government of India would like to bring out a National Education Policy to meet the changing dynamics of the population’s requirement with regards to quality education, innovation and research, aiming to make India a knowledge superpower by equipping its students with the necessary skills and knowledge and to eliminate the shortage of manpower in science, technology, academics and industry.
For the first time, the Government of India is embarking on a time-bound grassroots consultative process, which will enable the Ministry of HRD to reach out to individuals across the country through over 2.75 lakh direct consultations while also taking input from citizens online.
Contents
Preamble
Vision
Part I - School Education
1. Early Childhood Care and Education: The
Foundation of Learning
2. Foundational Literacy and Numeracy
3. Reintegrating Dropouts and Ensuring Universal
Access to Education
4. Curriculum and Pedagogy in Schools
4.1. A new curricular and pedagogical structure for
school education
4.2. Holistic development of learners
4.3. Reduce curriculum content to enhance essential
learning and critical thinking
4.4. Empower students through flexibility in course
choices
4.5. Education in the local language/mother tongue;
multilingualism and the power of language
4.6. Curricular integration of essential subjects and
skills
4.7. National Curriculum Framework
4.8. National textbooks with local content and flavour
4.9. Transforming assessment for student development
4.10. Support of students with singular interests and
talents
5. Teachers
5.1. Effective teacher recruitment and
deployment
5.2. School environment and culture that is conducive
to quality education
23
41
45
55
65
73
113
5.3. Continuous professional development
5.4. Career management
5.5. Approach to teacher education
6. Equitable and Inclusive Education
6.1. Upliftment of underrepresented groups in education
6.2. Education of girls as a cross-cutting theme
6.3. Education of children belonging to Scheduled Caste
Communities and Other Backward Classes
6.4. Education of children from tribal communities
6.5. Education of children from educationally
underrepresented groups within minority
communities
6.6. Education of children from urban poor families
6.7. Education of transgender children
6.8. Education of children with special needs
7. Efficient Resourcing and Effective Governance
through School Complexes
7.1. Ending the isolation of small schools through school
complexes
7.2. Better resourcing of schools through school
complexes
7.3. Fostering integrated education through school
complexes
7.4. Improved support to teachers through school
complexes
7.5. Administration and management of school
complexes
7.6. Effective governance through school complexes
7.7. Effective governance and management of individual
schools within school complexes
8. Regulation and Accreditation of School Education
8.1. System architecture and roles in school education
system
8.2. Accreditation for autonomy with accountability
8.3. Regulation, accreditation, and oversight of private
schools
137
157
177
8.4. Implications for the RTE Act
8.5. Assessment of functioning of the school education
system
8.6. Protection of rights of the child and adolescent
education
Part II - Higher Education
9. Quality Universities and Colleges: A New and
Forward Looking Vision for India’s Higher
Education System
10. Institutional Restructuring and Consolidation
11. Towards a More Liberal Education
11.1. Liberal education to energise undergraduate
programmes
11.2. Liberal education approach to energise graduate
programmes
11.3. Enhancing professional education through a liberal
education approach
11.4. Liberal education and research to foster and bolster
each other
11.5. Programmes, degrees, and other certifications in
higher education
12. Optimal Learning Environments and Support for
Students
12.1. Innovative and responsive curriculum and
pedagogy
12.2. Student support for learning and
development
12.3. Open and distance learning: Curriculum and
pedagogy for enhancing access and opportunities
for life-long learning
12.4. Internationalisation of higher education
201
211
223
239
13. Energised, Engaged and Capable Faculty
13.1 Putting faculty back into the heart of higher
education institutions
14. National Research Foundation
14.1. Establishing a new National Research Foundation
14.2. Funding research proposals through rigorous peer
review
14.3. Building research capacity at all universities and
colleges
14.4. Creating beneficial linkages among government,
industry, and researchers
14.5. Recognising outstanding research funded by the
National Research Foundation through awards and
national seminars
15. Teacher Education
15.1. Restoring integrity to teacher education
15.2. Moving teacher education into multidisciplinary
colleges and universities
15.3. Departments of Education in universities
15.4. Faculty for teacher education
15.5. Faculty in higher education
16. Professional Education
16.1. Undergraduate education
16.2. Capacity planning for professionals
16.3. Postgraduate education and research
16.4. Faculty
16.5. Governance, Regulation and Accreditation
16.6. Agriculture and allied disciplines
16.7. Legal Education
16.8. Healthcare Education
16.9. Technical Education
255
265
283
293
17. Empowered Governance and Effective
Leadership for Higher Education Institutions
17.1. Empowered governance and effective leadership
18. Transforming the Regulatory System
18.1. Design and architecture of the regulatory
system
18.2. Accreditation as the basis for regulation
18.3. Standard setting bodies
18.4. Role of other bodies
18.5. Establishing new higher education institutions
18.6. Common regulatory regime
Part III - Additional Key Focus Areas
19. Technology in Education
19.1. Setting up of a new National Educational
Technology Forum
19.2. Approach to the induction of technology
19.3. Teacher preparation and continuous professional
development
19.4. Improving teaching, learning and evaluation
processes
19.5. Enhancing educational access
19.6. Streamlining educational planning and
management
19.7. Disruptive technologies
20. Vocational Education
20.1. Integrating vocational education into all schools,
colleges and universities
20.2. Frameworks and standards
20.3. Vocational education in secondary school
20.4. Vocational education as an integral part of higher
education
20.5. Vocational education for adults and youth
20.6. Areas of special focus
309
321
339
357
21. Adult Education
21.1. Developing a curriculum framework for adult
education
21.2. Ensuring infrastructure and universal access
21.3. Training a cadre of adult education volunteers
21.4. Ensuring widespread participation in adult education
22. Promotion of Indian Languages
Part IV - Transforming Education
23. Rashtriya Shiksha Aayog
Addendum - Making It Happen
A1 Financing
A1.1. Education - perhaps the best investment for a society
A1.2. Inadequate investment and other financial issues
A1.3. Policy for higher investment to improve quality and
equity of education
A1.4. Where will the additional resources be required?
A1.5. One time expenditure
A2 Way Forward
A2.1. Policy implementation
A2.2. Principles to guide implementation of National
Education Policy 2019
A2. 3. Approach to road map for implementation: Key
actions led by various bodies
A2.4. Conclusion
373
385
391
399
422
Appendices: Part 1
Appendix I: Drafting Committee for Draft National
Education Policy
Appendix II: Peer Reviewers of the Draft National
Education Policy
Appendix III: Secretariat to the Committee for Draft
National Education Policy
Appendix IV: Technical Secretariat to the Committee
for Draft National Education Policy
Appendix V: Consultation Process: A Walkthrough
Appendix VI: Meetings of the Committee for Draft
National Education Policy
Appendix VII: Details of Consultations by the
Committee for Draft National Education
Policy (July 2017 onwards)
Appendix VIII: Acknowledgements
Appendices: Part 2
Appendix IX: Order of Constitution of the Committee,
24.06.2017 up to 31.12.2017
Appendix X: Extension of Tenure of the Committee
up to 31.03.2018.
Appendix XI: Extension of Tenure of the Committee
up to 30.06.2018.
Appendix XII: Extension of Tenure of the Committee
up to 31.08.2018.
Appendix XIII: Extension of Tenure of the Committee
up to 31.10.2018.
Appendix XIV: Extension of Tenure of the Committee
up to 15.12.2018
Committee Report Summary
Draft National Education Policy 2019
Gayatri Mann
gayatri@prsindia.org
Anurag Vaishnav
anurag@prsindia.org June 7, 2019
PRS Legislative Research Institute for Policy Research Studies
3
rd Floor, Gandharva Mahavidyalaya 212, Deen Dayal Upadhyaya Marg New Delhi – 110002
Tel: (011) 43434035-36
www.prsindia.org
Committee Report Summary
Draft National Education Policy 2019
The Committee for Draft National Education Policy
(Chair: Dr. K. Kasturirangan) submitted its report on
May 31, 2019. The Committee was constituted by the
Ministry of Human Resource Development in June
2017. The report proposes an education policy, which
seeks to address the challenges of: (i) access, (ii)
equity, (iii) quality, (iv) affordability, and (v)
accountability faced by the current education system.
The draft Policy provides for reforms at all levels of
education from school to higher education. It seeks to
increase the focus on early childhood care, reform the
current exam system, strengthen teacher training, and
restructure the education regulatory framework. It
also seeks to set up a National Education Commission,
increase public investment in education, strengthen
the use of technology and increase focus on vocational
and adult education, among others. Key observations
and recommendations of the draft Policy include:
School Education
Early Childhood Care and Education: In addition
to problems of access, the Committee observed
several quality related deficiencies in the existing
early childhood learning programmes. These
include: (i) curriculum that doesn’t meet the
developmental needs of children, (ii) lack of qualified
and trained teachers, and (iii) substandard pedagogy.
Currently, most early childhood education is
delivered through anganwadis and privatepreschools.
However, there has been less focus on
the educational aspects of early childhood. Hence,
the draft Policy recommends developing a two-part
curriculum for early childhood care and education.
This will consist of: (i) guidelines for up to threeyear-old
children (for parents and teachers), and (ii)
educational framework for three to eight-year-old
children. This would be implemented by improving
and expanding the anganwadi system and co-locating
anganwadis with primary schools.
The Right to Education Act, 2009 (RTE
Act): Currently, the RTE Act provides for free and
compulsory education to all children from the age of
six to 14 years. The draft Policy recommends
extending the ambit of the RTE Act to include early
childhood education and secondary school education.
This would extend the coverage of the Act to all
children between the ages of three to 18 years.
In addition, the draft Policy recommends that the
recent amendments to the RTE Act on continuous and
comprehensive evaluation and the no detention policy
must be reviewed. It states that there should be no
detention of children till class eight. Instead, schools
must ensure that children are achieving ageappropriate
learning levels.
Curriculum framework: The current structure of
school education must be restructured on the basis of
the development needs of students. This would
consist of a 5-3-3-4 design comprising: (i) five years
of foundational stage (three years of pre-primary
school and classes one and two), (ii) three years of
preparatory stage (classes three to five), (iii) three
years of middle stage (classes six to eight), and (iv)
four years of secondary stage (classes nine to 12).
The Committee noted that the current education
system solely focuses on rote learning of facts and
procedures. Hence, it recommends that the
curriculum load in each subject should be reduced to
its essential core content. This would make space for
holistic, discussion and analysis-based learning.
School exam reforms: The Committee noted that the
current board examinations: (i) force students to
concentrate only on a few subjects, (ii) do not test
learning in a formative manner, and (iii) cause stress
among students. To track students’ progress
throughout their school experience, the draft Policy
proposes State Census Examinations in classes three,
five and eight. Further, it recommends restructuring
the board examinations to test only core concepts,
skills and higher order capacities. These board
examinations will be on a range of subjects. The
students can choose their subjects, and the semester
when they want to take these board exams. The inschool
final examinations may be replaced by these
board examinations.
School infrastructure: The Committee noted that
establishing primary schools in every habitation
across the country has helped increase access to
education. However, it has led to the development of
very small schools (having low number of students).
The small size of schools makes it operationally
complex to deploy teachers and critical physical
resources. Therefore, the draft Policy recommends
that multiple public schools should be brought
together to form a school complex. A complex will
consist of one secondary school (classes nine to
twelve) and all the public schools in its
neighbourhood that offer education from pre-primary
till class eight.
The school complexes will also include anganwadis,
vocational education facilities, and an adult education
centre. Each school complex will be a semiautonomous
unit providing integrated education
across all stages from early childhood to secondary
education. This will ensure that resources such as
2
infrastructure and trained teachers can be efficiently
shared across a school complex.
Teacher management: The Committee noted that
there has been a steep rise in teacher shortage, lack of
professionally qualified teachers, and deployment of
teachers for non-educational purposes. The draft
Policy recommends that teachers should be deployed
with a particular school complex for at least five to
seven years. Further, teachers will not be allowed to
participate in any non-teaching activities (such as
cooking mid-day meals or participating in vaccination
campaigns) during school hours that could affect their
teaching capacities.
For teacher training, the existing B.Ed. programme
will be replaced by a four-year integrated B.Ed.
programme that combines high-quality content,
pedagogy, and practical training. An integrated
continuous professional development will also be
developed for all subjects. Teachers will be required
to complete a minimum of 50 hours of continuous
professional development training every year.
Regulation of schools: The draft Policy recommends
separating the regulation of schools from aspects such
as policymaking, school operations, and academic
development. It suggests creating an independent
State School Regulatory Authority for each state that
will prescribe basic uniform standards for public and
private schools. The Department of Education of the
State will formulate policy and conduct monitoring
and supervision.
Higher Education
According to the All India Survey on Higher
Education, the Gross Enrolment Ratio (GER) in
higher education in India has increased from 20.8% in
2011-12 to 25.8% in 2017-18.
Table 1: GER comparison across countries (2014)
Primary
(Class 1-
5)
Upper
Primary
(Class 6-
8)
Upper
Secondary
(Class 9-
12)
Higher
Education
India 101.4 89.3 62.5 23
China 103.9 100.4 88.8 39.4
USA 99.5 101.9 93.2 86.7
Germany 103.3 101.6 104.6 65.5
Source: Educational Statistics at Glance (2016), MHRD; PRS.
The Committee identified lack of access as a major
reason behind low intake of higher education in the
country. It aims to increase GER to 50% by 2035
from the current level of about 25.8%. Key
recommendations in this regard include:
Regulatory structure and accreditation: The
Committee noted that the current higher education
system has multiple regulators with overlapping
mandates. This reduces the autonomy of higher
educational institutions and creates an environment of
dependency and centralised decision making.
Therefore, it proposes setting up the National Higher
Education Regulatory Authority (NHERA). This
independent authority would replace the existing
individual regulators in higher education, including
professional and vocational education. This implies
that the role of all professional councils such as
AICTE and the Bar Council of India would be limited
to setting standards for professional practice. The role
of the University Grants Commission (UGC) will be
limited to providing grants to higher educational
institutions.
Currently, the National Assessment and Accreditation
Council (NAAC) is an accreditation body under the
UGC. The draft Policy recommends separating
NAAC from the UGC into an independent and
autonomous body. In its new role, NAAC will
function as the top level accreditor, and will issue
licenses to different accreditation institutions, who
will assess higher educational institutions once every
five to seven years. All existing higher education
institutions should be accredited by 2030.
Establishment of new higher educational
institutions: Currently, higher educational
institutions can only be set up by Parliament or state
legislatures. The draft Policy proposes that these
institutions could be allowed to be set up through a
Higher Education Institution Charter from NHERA.
This Charter will be awarded on the basis of
transparent assessment of certain specified criteria.
All such newly constituted higher educational
institutions must receive accreditation as mandated by
NHERA within five years of being established.
Restructuring of higher education institutions:
Higher education institutions will be restructured into
three types: (i) research universities focusing equally
on research and teaching; (ii) teaching universities
focusing primarily on teaching; and (iii) colleges
focusing only on teaching at undergraduate levels. All
such institutions will gradually move towards full
autonomy - academic, administrative, and financial.
Establishing a National Research Foundation: The
Committee observed that the total investment on
research and innovation in India has declined from
0.84% of GDP in 2008 to 0.69% in 2014. India also
lags behind many nations in number of researchers
(per lakh population), patents and publications.
Table 2: Investment on Research and Innovation
Spending on
research and
innovation (% GDP)
Researchers
(per lakh
population)
Total Patent
Applications
India 0.7 15 45,057
China 2.1 111 13,38,503
USA 2.8 423 605,571
Israel 4.3 825 6,419
Source: Economic Survey of India 2017-18; PRS
The draft Policy recommends establishing a National
Research Foundation, an autonomous body, for
funding, mentoring and building the capacity for
3
quality research in India. The Foundation will consist
of four major divisions: sciences, technology, social
sciences, and arts and humanities, with the provision
to add additional divisions. The Foundation will be
provided with an annual grant of Rs 20,000 crore
(0.1% of GDP).
Moving towards a liberal approach: The draft
Policy recommends making undergraduate
programmes interdisciplinary by redesigning their
curriculum to include: (a) a common core curriculum
and (b) one/two area(s) of specialisation. Students
will be required to choose an area of specialisation as
‘major’, and an optional area as ‘minor’. Four-year
undergraduate programmes in Liberal Arts will be
introduced and multiple exit options with appropriate
certification will be made available to students.
Further, within the next five years, five Indian
Institute of Liberal Arts must be setup as model
multidisciplinary liberal arts institutions.
Professional development of faculty: The
Committee observed that poor service conditions and
heavy teaching loads at higher education institutions
have resulted in low faculty motivation. Further, lack
of autonomy and no clear career progression system
are also major impediments to faculty motivation.
The draft Policy recommends development of a
Continuous Professional Development programme
and introduction of a permanent employment (tenure)
track system for faculty in all higher education
institutions by 2030. Further, a desirable studentteacher
ratio of not more than 30:1 must be ensured.
Optimal learning environment: The Committee
observed that the curricula remain rigid, narrow, and
archaic. Moreover, the faculty often lacks the
autonomy to design curricula, which negatively
impacts pedagogy. It recommends that all higher
education institutions must have complete autonomy
on curricular, pedagogical and resource-related
matters.
Education Governance
The Committee observed that there is a need to revisit
the existing system of governance in education, and
bring in synergy and coordination among the different
ministries, departments and agencies. In this context,
it recommends:
Creation of a National Education Commission or
Rashtriya Shiksha Aayog, as an apex body for
education, to be headed by the Prime Minister. This
body will be responsible for developing,
implementing, evaluating, and revising the vision of
education in the country on a continuous and
sustained basis. It will oversee the implementation
and functioning of several bodies including the
National Council of Educational Research and
Training (NCERT), the proposed National Higher
Education Regulatory Authority, and National
Research Foundation.
The Ministry of Human Resources and Development
must be renamed as the Ministry of Education in order
to bring focus back on education.
Financing Education
The Draft Policy reaffirmed the commitment of
spending 6% of GDP as public investment in
education. Note that the first National Education
Policy (NEP) 1968 had recommended public
expenditure in education must be 6% of GDP, which
was reiterated by the second NEP in 1986. In 2017-
18, public expenditure on education in India was 2.7%
of GDP.
Table 3: Total Public Investment in Education
Country Investment in 2017
(as % of GDP)
India 2.7
USA 5
UK 5.5
Brazil 6
The draft Policy seeks to double the public investment
in education from the current 10% of total public
expenditure to 20% in the next 10 years. Of the
additional 10% expenditure, 5% will be utilised for
universities and colleges (higher education), 2% will
be utilised for additional teacher costs or resources in
school education and 1.4% will be utilised for early
childhood care and education.
The Committee also observed operational problems
and leakages in disbursement of funds. For instance,
it observed that District Institutes of Education and
Training have about 45% vacancies which have led to
their allocations not being used or being used
ineffectively. It recommends optimal and timely
utilisation of funds through the institutional
development plans.
Technology in Education
The Committee observed that technology plays an
important role in: (a) improving the classroom process
of teaching, learning and evaluation, (b) aiding in
preparation of teachers and continuous professional
development of teachers, (c) improving access to
education in remote areas and for disadvantaged
groups, and (d) improving the overall planning,
administration and management of the entire
education system. It recommends focused
electrification of all educational institutions as
electricity is a pre-requisite for all technology-based
interventions. Further, it recommends:
National Mission on Education through
information and communication technology: The
Mission will encompass virtual laboratories that
provide remote access to laboratories in various
disciplines. A National Education Technology Forum
will also be setup under the Mission, as an
autonomous body, to facilitate decision making on the
4
induction, deployment and use of technology. This
Forum will provide evidence-based advice to central
and state-governments on technology-based
interventions.
National Repository on Educational Data: A
National Repository will be setup to maintain all
records related to institutions, teachers, and students in
digital form. Further, a single online digital repository
will be created where copyright-free educational
resources will be made available in multiple
languages.
Vocational Education
The Committee observed that less than 5% of the
workforce in the age-group of 19-24 receives
vocational education in India. This is in contrast to
52% in the USA, 75% in Germany and 96% in South
Korea. It recommends integrating vocational
educational programmes in all educational institutions
(schools, colleges and universities) in a phased
manner over a period of 10 years. Note that this is an
upward revision from the National Policy on Skills
Development and Entrepreneurship (2015) which
aimed at offering vocational education in 25% of
educational institutions. Key recommendations in this
regard include:
Vocational courses: All school students must receive
vocational education in at least one vocation in grades
nine to 12. The proposed school complexes must
build expertise in curriculum delivery that is aligned
to the competency levels under the existing National
Skills Qualifications Framework.
The proposed Higher Education Institutions must also
offer vocational courses that are integrated into the
undergraduate education programmes. The draft
Policy targets to offer vocational education to up to
50% of the total enrolment in higher education
institutions by 2025, up from the present level of
enrolment of well below 10% in these institutions.
National Committee for the Integration of
Vocational Education: The Committee will be set
up to work out the steps that need to be taken towards
achieving the above goals. A separate fund will be
setup for the integration of vocational education into
educational institutions. The Committee will work
out the modalities for the disbursement of these funds.
Adult Education
As per Census 2011, India still had over 3.26 crore
youth non-literates (15-24 years of age) and a total of
26.5 crore adult non-literates (15 years and above). In
this regard, the draft Policy recommends:
Establishing an autonomous Central Institute of Adult
Education, as a constituent unit of NCERT, which will
develop a National Curriculum Framework for adult
education. The Framework will cover five broad
areas: foundational literacy and numeracy, critical life
skills vocational skills development, basic education,
and continuing education.
Adult Education Centres will be included within the
proposed school complexes. Relevant courses for
youth and adults will be made available at the
National Institute of Open Schooling. A cadre of
adult education instructors and managers, as well as a
team of one-on-one tutors will be created through a
newly-established National Adult Tutors Programme.
Education and Indian Languages
The Committee observed that a large number of
students are falling behind since classes in schools are
being conducted in a language that they do not
understand. Therefore, it recommended that the
medium of instruction must either be the home
language/mother tongue/local language till grade five,
and preferable till grade eight, wherever possible.
Introduced by the first National Education Policy, the
three-language formula stated that state governments
should adopt and implement study of a modern Indian
language, preferably one of the southern languages,
apart from Hindi and English in the Hindi-speaking
states, and of Hindi along with the regional language
and English in the non-Hindi speaking states. The
draft Policy recommended that this three language
formula be continued and flexibility in the
implementation of the formula should be provided.
The Committee remarked that the implementation of
the formula needs to be strengthened, particularly in
Hindi-speaking states. Further, schools in Hindi
speaking areas should also teach Indian languages
from other parts of India for the purpose of national
integration. To provide flexibility in the choice of
language, students who wish to change one or more of
their three languages may do so in grade six or grade
seven, subjected to the condition that they are still
able to demonstrate proficiency in three languages in
their modular board examinations.
To promote Indian languages, a National Institute for
Pali, Persian and Prakrit will be set up. All higher
education institutes must recruit high quality faculty
for at least three Indian languages, in addition to the
local Indian language. Further, the mandate of the
Commission for Scientific and Technical Terminology
will be expanded to include all fields and disciplines
to strengthen vocabulary in Indian languages.
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