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55 Researching the Issues
Researching the Issues 2004 55 D ISTRICT I SIUE OF NSTITUTES E UAINAND DUCATION T RAINING : A C OMPARATIVE
DFID’s headquarters are located at: DISTRICT INSTITUTES OF DFID DFID 1 Palace Street Abercrombie House London SW1E 5HE Eaglesham Road S EDUCATION AND TRAINING:
United Kingdom East Kilbride IN TUDY Glasgow G75 8EA Tel: +44 (0) 20 7023 0000 United Kingdom Fax: +44 (0) 20 7023 0019 A COMPARATIVE STUDY IN
Website: www.dfid.gov.uk T
email: [email protected] HREE Public enquiry point: 0845 3004100 THREE INDIAN STATES From overseas: +44 1355 84 3132 I NDIAN by Caroline Dyer with Archana Choksi
08/04 2K Produced for DFID by Fuller-Davies Limited and Vinita Awasty, Uma Iyer, Renu Moyade, Neerja Nigam, S
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DISTRICT INSTITUTES OF EDUCATION AND TRAINING: A COMPARATIVE STUDY IN THREE INDIAN STATES
by Caroline Dyer with Archana Choksi and Vinita Awasty, Uma Iyer, Renu Moyade, Neerja Nigam, Neetu Purohit,
Swati Shah and Swati Sheth
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Educational Papers
Department for International Development: Educational Papers
This is one of a series of Education Papers issued by the Policy Division of the Department For International Development. Each paper represents a study or piece of commissioned research on some aspects of education and training in developing countries. Most of the studies were undertaken in order to provide informed judgements from which policy decisions could be drawn, but in each case it has become apparent that the material produced would be of interest to a wider audience, particularly those whose work focuses on developing countries.
Each paper is numbered serially, and further copies can be obtained through DFID Education Publication Despatch, PO Box 190, Sevenoaks, TN14 5EL, UK – subject to availability. A full list appears overleaf.
Although these papers are issued by DFID, the views expressed in them are entirely those of the authors and do not necessarily represent DFID’s own policies or views. Any discussion of their content should therefore be addressed to the authors and not to DFID.
Address for Correspondence
POLIS/Centre for Development Studies University of Leeds Leeds LS2 9JT UK
T +44 113 233 4393 E [email protected] F +44 113 343 4400 W www.leeds.ac.uk
© Caroline Dyer 2004
Front Cover Photograph: Archana Choksi
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Educational Papers
No.1 SCHOOL EFFECTIVENESS No. 7 PLANNING AND IN DEVELOPING FINANCING COUNTRIES: A SUMMARY SUSTAINABLE OF THE RESEARCH EDUCATION SYSTEMS IN EVIDENCE. SUB-SAHARAN AFRICA. D Pennycuick (1993) P Penrose (1993) ISBN: 0 90250 061 9 ISBN: 0 90250 067 8
No. 2 EDUCATIONAL COST- No. 8 Not allocated BENEFIT ANALYSIS. J Hough (1993) No. 9 FACTORS AFFECTING ISBN: 0 90250 062 7 FEMALE PARTICIPATION IN EDUCATION IN No.3 REDUCING THE COST SEVEN DEVELOPING OF TECHNICAL AND COUNTRIES. VOCATIONAL C Brock, N Cammish (1991) EDUCATION. (revised 1997). L Gray, M Fletcher, P Foster, M ISBN: 1 86192 065 2 King, A M Warrender (1993) ISBN: 0 90250 063 5 No.10 USING LITERACY: A NEW APPROACH TO POST- No. 4 REPORT ON READING IN LITERACY METHODS. ENGLISH IN PRIMARY A Rogers (1994) Out of Print SCHOOLS IN MALAWI. – Available on CD-ROM and E Williams (1993) Out of Print DFID website. Updated and – Available on CD-Rom and reissued as No 29. DFID website No.11 EDUCATION AND No. 5 REPORT ON READING IN TRAINING FOR THE ENGLISH IN PRIMARY INFORMAL SECTOR. SCHOOLS IN ZAMBIA. K King, S McGrath, F Leach, E Williams (1993) Out of Print R Carr-Hill (1995) – Available on CD-Rom and ISBN: 1 86192 090 3 DFID website No.12 MULTI-GRADE See also No. 24, which updates TEACHING: A REVIEW and synthesises No.s 4 and 5. OF RESEARCH AND PRACTICE. No. 6 EDUCATION AND A Little (1995) DEVELOPMENT: THE ISBN: 0 90250 058 9 ISSUES AND THE EVIDENCE. K Lewin (1993) ISBN: 0 90250 066 X
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Educational Papers
No.13 DISTANCE EDUCATION No.19 GENDER, EDUCATION IN ENGINEERING FOR AND DEVELOPMENT – DEVELOPING A PARTIALLY COUNTRIES. ANNOTATED AND T Bilham, R Gilmour (1995) SELECTIVE Out of Print – Available on CD- BIBLIOGRAPHY. ROM and DFID website. C Brock, N Cammish (1997) Out of Print – Available on CD- No.14 HEALTH & HIV/AIDS ROM and DFID website. EDUCATION IN PRIMARY & SECONDARY SCHOOLS No.20 CONTEXTUALISING IN AFRICA & ASIA. TEACHING AND E Barnett, K de Koning, LEARNING IN RURAL V Francis (1995) PRIMARY SCHOOLS: ISBN: 0 90250 069 4 USING AGRICULTURAL EXPERIENCE. No. 15 LABOUR MARKET P Taylor, A Mulhall (Vols 1 & 2) SIGNALS & INDICATORS. (1997) L Gray, AM Warrender, Vol 1 ISBN: 1 861920 45 8 P Davies, G Hurley, C Manton Vol 2 ISBN: 1 86192 050 4 (1996) Out of Print – Available on CD-ROM and DFID No.21 GENDER AND SCHOOL website. ACHIEVEMENT IN THE CARIBBEAN. No.16 IN-SERVICE SUPPORT P Kutnick, V Jules, A Layne FOR A TECHNOLOGICAL (1997) ISBN: 1 86192 080 6 APPROACH TO SCIENCE EDUCATION. No.22 SCHOOL-BASED F Lubben, R Campbell, UNDERSTANDING OF B Dlamini (1995) HUMAN RIGHTS IN ISBN: 0 90250 071 6 FOUR COUNTRIES: A COMMONWEALTH No.17 ACTION RESEARCH STUDY. REPORT ON “REFLECT” R Bourne, J Gundara, A Dev, D Archer, S Cottingham (1996) N Ratsoma, M Rukanda, ISBN: 0 90250 072 4 A Smith, U Birthistle (1997) ISBN: 1 86192 095 4 No.18 THE EDUCATION AND TRAINING OF ARTISANS No.23 GIRLS AND BASIC FOR THE INFORMAL EDUCATION: SECTOR IN TANZANIA. A CULTURAL D Kent, P Mushi (1995) ENQUIRY. ISBN: 0 90250 074 0 D Stephens (1998) ISBN: 1 86192 036 9
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No.24 INVESTIGATING No.30 IN SERVICE FOR BILINGUAL LITERACY: TEACHER EVIDENCE FROM DEVELOPMENT IN SUB- MALAWI AND ZAMBIA. SAHARAN AFRICA. E Williams (1998) M Monk (1999) ISBN: 1 86192 041 5No.25 ISBN: 1 86192 074 1
No.25 PROMOTING GIRLS’ No.31 LOCALLY GENERATED EDUCATION IN AFRICA. PRINTED MATERIALS IN N Swainson, S Bendera, AGRICULTURE: R Gordon, E Kadzamira (1998) EXPERIENCE FROM ISBN: 1 86192 046 6 UGANDA & GHANA I Carter (1999) No.26 GETTING BOOKS TO ISBN: 1 86192 079 2 SCHOOL PUPILS IN AFRICA. No.32 SECTOR WIDE D Rosenberg, W Amaral, APPROACHES TO C Odini, T Radebe, EDUCATION. A Sidibé (1998) M Ratcliffe, M Macrae (1999) ISBN: 1 86192 051 2 ISBN: 1 86192 131 4
No.27 COST SHARING IN No.33 DISTANCE EDUCATION EDUCATION. PRACTICE: TRAINING & P Penrose (1998) REWARDING AUTHORS. ISBN: 1 86192 056 3 H Perraton, C Creed (1999) ISBN: 1 86192 136 5 No.28 VOCATIONAL EDUCATION AND No.34 THE EFFECTIVENESS OF TRAINING IN TEACHER RESOURCE TANZANIA AND CENTRE STRATEGY. ZIMBABWE IN THE Ed. G Knamiller, (1999) CONTEXT OF ECONOMIC ISBN: 1 86192 141 1 REFORM. P Bennell (1999) No.35 EVALUATING IMPACT ISBN: 1 86192 061 X Ed. V McKay, C Treffgarne (1999) No.29 RE-DEFINING POST- ISBN: 1 86192 191 8 LITERACY IN A CHANGING WORLD. No.36 AFRICAN JOURNALS A Rogers, B Maddox, J Millican, A Alemna, V Chifwepa, K Newell Jones, U Papen, D Rosenberg (1999) A Robinson-Pant (1999) ISBN: 1 86192 157 8 ISBN: 1 86192 069 5
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No.37 MONITORING THE No.41 THE QUALITY OF PERFORMANCE OF LEARNING AND EDUCATIONAL TEACHING IN PROGRAMMES IN DEVELOPING DEVELOPING COUNTRIES: ASSESSING COUNTRIES. LITERACY AND R Carr-Hill, M Hopkins, NUMERACY IN MALAWI A Riddell, J Lintott (1999) AND SRI LANKA. ISBN: 1 86192 224 8No.38 D Johnson, J Hayter, P Broadfoot (2000) No.38 TOWARDS RESPONSIVE ISBN: 1 86192 313 9 SCHOOLS – SUPPORTING BETTER SCHOOLING No.42 LEARNING TO FOR DISADVANTAGED COMPETE: EDUCATION, CHILDREN TRAINING & (case studies from Save the ENTERPRISE IN GHANA, Children). M Molteno, KENYA & SOUTH AFRICA. K Ogadhoh, E Cain, D Afenyadu, K King, B Crumpton (2000) S McGrath, H Oketch, C Rogerson, K Visser (2001) No.39 PRELIMINARY ISBN: 1 86192 314 7 INVESTIGATION OF THE ABUSE OF GIRLS IN No.43 COMPUTERS IN ZIMBABWEAN JUNIOR SECONDARY SCHOOLS SECONDARY SCHOOLS. IN DEVELOPING F Leach, P Machankanja with COUNTRIES: COSTS AND J Mandoga (2000) OTHER ISSUES. ISBN: 1 86192 279 5 A Cawthera (2001) ISBN 1 86192 418 6 No.40 THE IMPACT OF TRAINING ON WOMEN’S No.44 THE IMPACT OF HIV/ MICRO-ENTERPRISE AIDS ON THE DEVELOPMENT UNIVERSITY OF F Leach, S Abdulla, BOTSWANA: DEVELOPING H Appleton, J el-Bushra, A COMPREHENSIVE N Cardenas, K Kebede, STRATEGIC RESPONSE. V Lewis, S Sitaram (2000) B Chilisa, P Bennell, K Hyde ISBN: 1 86192 284 1 (2001) ISBN: 1 86192 467 4
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No.45 THE IMPACT OF HIV/ No.49a MULTI - SITE TEACHER AIDS ON PRIMARY AND EDUCATION RESEARCH SECONDARY EDUCATION PROJECT (MUSTER) IN BOTSWANA: RESEARCHING TEACHER DEVELOPING A EDUCATION – NEW COMPREHENSIVE PERSPECTIVES ON STRATEGIC RESPONSE. PRACTICE, P Bennell, B Chilisa, K Hyde, PERFORMANCE AND A Makgothi, E Molobe, POLICY (Synthesis Report). L Mpotokwane (2001) K. M. Lewin and J. S. Stuart ISBN: 1 86192 468 2 (2003) ISBN: 1 86192 545 X No.46 EDUCATION FOR ALL: POLICY AND PLANNING No.49b TEACHER TRAINING IN – LESSONS FROM SRI GHANA – DOES IT LANKA. COUNT? A Little (2003) K. Akyeampong (2003) ISBN: 1 86192 552 0 ISBN: 1 86192 546 8
No.47 REACHING THE POOR – No.49c INITIAL PRIMARY THE 'COSTS' OF SENDING TEACHER EDUCATION CHILDREN TO SCHOOL. IN LESOTHO. S Boyle, A Brock, J Mace, K.Pulane Lefoka with E.Molapi M Sibbons (2003) Sebatane (2003) ISBN: 1 86192 361 9 ISBN: 1 86192 547 64
No.48 CHILD LABOUR AND ITS No.49d PRIMARY TEACHER IMPACT ON CHILDREN’S EDUCATION IN MALAWI: ACCESS TO AND INSIGHTS INTO PARTICIPATION IN PRACTICE AND POLICY. PRIMARY EDUCATION – D. Kunje with K. Lewin and A CASE STUDY FROM J. Stuart (2003) TANZANIA. ISBN: 1 86192 548 4 H.A Dachi and R.M Garrett (2003) ISBN: 1 86192 536 0
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No.49e AN ANALYSIS OF Other DFID Educational Studies PRIMARY TEACHER Also Available: EDUCATION IN TRINIDAD AND TOBAGO. REDRESSING GENDER J. George, L. Quamina-Alyejina INEQUALITIES IN EDUCATION. (2003) N Swainson (1995) ISBN: 1 86192 549 2 FACTORS AFFECTING GIRLS’ No.50 USING ICT TO INCREASE ACCESS TO SCHOOLING IN THE EFFECTIVENESS OF NIGER. S Wynd (1995) COMMUNITY-BASED, NON-FORMAL EDUCATION FOR EDUCATION FOR RURAL RECONSTRUCTION. PEOPLE IN SUB- D Phillips, N Arnhold, J Bekker, SAHARAN AFRICA N Kersh, E McLeish (1996) The CERP project (2003) ISBN: 1 86192 568 9 AFRICAN JOURNAL DISTRIBUTION PROGRAMME: No.51 GLOBALISATION AND EVALUATION OF 1994 PILOT SKILLS FOR PROJECT. D Rosenberg (1996) DEVELOPMENT IN RWANDA AND TANZANIA TEACHER JOB SATISFACTION L. Tikly, J. Lowe, M. Crossley, IN DEVELOPING COUNTRIES. H. Dachi, R. Garrett and R Garrett (1999) B.Mukabaranga (2003) ISBN: 1 86192 569 7 A MODEL OF BEST PRACTICE AT LORETO DAY SCHOOL, No.52 UNDERSTANDINGS OF SEALDAH, CALCUTTA. EDUCATION IN AN T Jessop (1998) AFRICAN VILLAGE: THE IMPACT OF LEARNING OPPORTUNITIES INFORMATION AND FOR ALL. COMMUNICATION DFID Policy Paper (1999) TECHNOLOGIES J. Pryor and J.G Ampiah (2003) THE CHALLENGE OF ISBN: 1 86192 570 0 UNIVERSAL PRIMARY EDUCATION. DFID Target Strategy Paper (2001) NOW AVAILABLE – CD-ROM containing full texts of Papers CHILDREN OUT OF SCHOOL. 1-42 DFID Issues Paper (2001)
All publications are available free of charge from DFID Education Publications Despatch, PO Box 190, Sevenoaks, TN14 5EL, or by email from [email protected]
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Acknowledgements
We are grateful to all those colleagues in DIETs, teachers and student teachers who engaged with this project and gave the research team the opportunities to work with them and discuss their practices. We are also indebted to the Directors and staff of GCERT, Gujarat, SIERT in Rajasthan, and SCERT in Madhya Pradesh; to staff at the Ministry of Human Resource Development in the Government of India; and to DPEP personnel for their support to this project.
Without the financial support of the UK’s Department for International Development this project could not have been undertaken. We are grateful for this, and also to several individuals within DFID for their support for, and interest in, this project.
At the University of Manchester, the support and advice of colleagues has been much appreciated. We also thank our families and friends for hearing our stories and offering support and encouragement along the way.
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Contents
Acknowledgments i 2.4 Summary 45 Contents ii 2.5 Policy issues 46 Abbreviations vi Executive Summary vii Chapter 3 Infrastructure, Staffing, Institutional Aims and 0.1 Introduction 1 Leadership 0.2 Sarva Shiksha Abhiyan 1 3.1 Introduction 49 0.3 Project intentions and 3.2 Relationships between DIETs methodology 2 and external intervention 0.4 Site selection 5 programmes 50 0.5 Research team 6 3.3 Physical infrastructure in the project DIETs 53 0.6 About this report 7 3.4 Staffing 55 3.5 Activities of the DIET 60 Chapter 1 3.6 Leadership in the DIET 65 Towards Quality 3.7 DIET staff ’s perceptions of constraints to effective Improvements for functioning 68 Teacher Education: Decentralising 3.8 Policy implications 69 the System 1.1 Introduction 11 Chapter 4 1.2 The professional development of teachers 11 Pre-Service Education 1.3 The organisation of teacher 4.1 Introduction 73 education 12 4.1 Student teacher intake 73 1.4 Reporting relationships 15 4.2 The pre-service course 74 1.5 Quality of the District Institutes 4.3 Summary 90 of Education and Training 17 4.4 Policy implications 91 1.6 Summary 18 1.7 Policy issue 19 Chapter 5 In-service Education for Chapter 2 Teachers Teachers and Teaching 5.1 Introduction 93 2.1 Introduction 21 5.2 In-service training programmes 93 2.2 School observations 22 5.3 The logistics of training 2.3 Teachers’ attitudes 41 programmes 100
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Contents - Continued
5.4 Training processes 101 8.3 Constraints to teaching 159 5.5 Teacher motivation 109 8.4 Approaches to teaching and learning literacy 163 5.6 The model of in-service teacher education 110 8.5 Limitations of current approaches 166 5.7 Policy implications 111 8.6 From reflection to input 167 8.7 Project termination 167 Chapter 6 8.8 Policy implications 168 The Diet and Decentralisation 6.1 Introduction 113 6.2 The DIET and the State 113 Chapter 9 6.3 The DIET in the District 117 Research into Action: The New Textbook Training 6.4 DIETs and the Resource Programmes in Gujarat Centres 124 9.1 Introduction 171 6.5 Policy implications 128 9.2 The new textbooks and the training programme 171 Chapter 7 9.3 Cascade training 172 Professional Development 9.4 From Palitana to the Districts 176 through Collaborative Action Research with DIETs 9.5 Year Two textbook training 180 7.1 Introduction 131 9.6 Improving cascade effectiveness 184 7.2 Professional development for DIET staff 131 9.7 Sustaining inputs from cascade training: the role of Cluster 7.3 The Action-Reflection cycle Resource Centres 185 with DIETs 134 9.8 Development of trainers 186 7.4 Processes and findings of the action research projects 138 9.8 Teacher motivation 188 7.5 Professional development 9.9 Policy implications 188 issues 147 7.6 Role of the process helpers 150 Chapter 10 7.7 Tensions for action-reflection 151 Summary of Main Findings 7.8 Policy implications 153 and Policy Implications 10.1 Introduction 191 Chapter 8 10.2 Summary of main findings 191 Action Research with Teachers 10.3 Ways forward 202 8.1 Introduction 155 References 213 8.2 Learning to reflect 155 Annexes 217
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Contents - Continued
Annex 1 5.1 Planning for MLL training, Expansion and new directions Masuda DIET, April 1999 96 in elementary education 217 5.2 10 desirable points for a Master Annex 2 Trainer, Masuda DIET 99 Reform of pre-service training 5.3 Lok Jumbish training, third day in Gujarat 221 6.7.99 Summary of maths Annex 3 session 107 Institutional reform in 6.1 Capacity development of BRC Madhya Pradesh 231 and CRCs, Santrampur 1998 127 7.1 Action research in cross- Boxes cultural transition 134 0.1 The District Primary Education 7.2 Understandings of research in Programme 7 Indore DIET 135 0.2 Lok Jumbish 9 7.3 Dhar teachers’ expectations of the DIET 143 1.1 Cluster and Block Resource Centres 15 7.4 Prompts for transmission loss diary 145 1.2 Madhya Pradesh State critique of teacher education 17 9.1 Good practices in training with video 178 1.3 Rajasthan State critique of teacher education 18 9.2 Good practices by MTs in Surat 183 2.1 Curriculum innovation: the competency-based approach 9.3 Trainer evaluation: some of Minimum Levels of preliminary steps 187 Learning 21 2.2 A code of conduct for teachers in Gujarat’s new Std. 1 Tables textbook 25 1.1 Suggested branches and staffing 2.3 The school day in Gaamru 23 of a DIET 14 3.1 If a teacher educator doesn’t 2.1 Gaamru school enrolment have the skills... 59 2000 23 4.1 The PRESET course and marks 3.1 Socio-educational profile of the in Rajasthan (up to 2001) 75 six project Districts 49 4.2 Hindi language teaching, first 3.2 Organisation of the Lok Jumbish year, Indore DIET 3.3.00 77 DIETs 51 4.3 English language teaching, first 3.3 Staffing across sample 1999- year, Indore DIET, 2000 56 26.2.2000 79 3.4 Qualifications and previous 4.4 Learning to be a teacher: practice employment of staff in Dhar lesson by a second year trainee to DIET in Madhya Pradesh 58 year 6 students, Santramapur 5.9.00 81
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Contents - Continued
7.2 Reflection on teacher 6.1 CRC concerns, Santrampur responses 150 District 126 8.1 Students enrolled, present, and 7.1 Discussing questionnaire design average working days in March 139 2000 160 7.2 A cascade training model, 8.2 Children’s literacy progress by Madhya Pradesh 144 March 2001 165 8.1 Action researchers discussing 9.1 Effective and ineffective training practices 158 practices 180 9.1 The cascade tiers, Std. 1 training 173 Figures 9.2 New textbook training at the 0.1 Situation analysis framework 5 Master Trainer level of the cascade 175 0.2 Site locations 8 9.3 Training by video 179 1.1 Relationships between the DIET, DPEP and Cluster Resource 9.4 Enriching the cascade by Centres 16 consolidation by Cluster Resource Centres 186 1.2 Children studying in Gaamru school 31 10.1 Matching people to posts: an application of the 1.3 Year One boy writing on competency wheel 204 blackboard, Gaamru school 31 10.2 A model for training 4.1 Practice teaching, Indore DIET consolidation at Cluster 84 Resource level 206 4.2 Revised practice teaching 10.3 A centralised model of evaluation plan, Santrampur management 209 DIET 87 10.4 A ‘responsive’ model of 5.1 The lecturing approach to management 209 INSET 104 10.5 DIET support for Whole 5.2 Generating teacher discourse School improvement 210 and participation 109
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Abbreviations
ADEI/SDI School inspector NCTE National Council for Teacher AS Alternative Schooling Education BTI Basic Training Institute NGO Non-Government Organisation BRC Block Resource Centre NIEPA National Institute for CMDE Curriculum and Materials Educational Planning and Development Administration CRC Cluster Resource Centre NPE National Policy on Education DIET District Institute of Officer in Charge Education and Training OIC PA C Programme Advisory DPEP District Primary Education Committee Programme P & M Planning and Management DRU District Resource Unit PhD Doctor of Philosophy EGS Education Guarantee Scheme PSTE Pre-service Teacher ET Educational Technology Education GCERT Gujarat Council of Primary Teacher Certificate Educational Research and PTC Training Pre-set Pre-service teacher education GPSC Gujarat Public Services OB Operation Blackboard Commission SCERT State Council of Educational GNP Gross National Product Research and Training (Madhya Pradesh) HSC Higher Secondary Certificate SIDA Swedish International IASE Institute for Advanced Study Development Agency in Education SIERT State Institute for IFIC In-service Programmes, Field Educational Research and Interaction and Innovation Training (Rajasthan) Co-ordination SOPT Special Orientation for INSET In-service Teacher Education Primary Teachers LJ Lok Jumbish SSA Sarva Shiksha Abhiyan MEd Master of Education SSC Secondary Schooling MHRD Ministry of Human Resource Certificate Development TLM Teaching Learning Materials MLL Minimum Level of Learning UEE Universal Elementary MP Madhya Pradesh Education NCERT National Council of WE Work Experience Educational Research and Training
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Executive Summary
Research for policy and practitioner development: key areas of this report District Institutes of Education and Training (DIETs), founded during the late 1980s and early 1990s, are expected to play a key role within India’s current drives to achieve Universal Elementary Education of quality. This research project focused on six DIETs, two each in the states of Gujarat, Madhya Pradesh and Rajasthan. In each state, one DIET was in a District where an external intervention was running (Lok Jumbish in Rajasthan and the District Primary Education Programme in the other two states).
The study adopted an ethnographic approach to data generation. This approach, by focusing on understanding realities as perceived by teachers, their educators, and educational officials and making connections between them, leads to grounded and contextualised findings. The report contributes to policy and practitioner development in four main areas: • It provides otherwise absent ethnographic detail about educational processes in DIETs and related schools, identifying links and gaps between teacher development programmes and teachers’ professional development needs • It considers how decentralisation has affected DIETs, and identifies areas of unresolved tensions in relation to power and autonomy that constrain effective functioning • It engages with the pressing question of teachers’ will to adopt change messages through a critique of the relevance of the transmission-based training model that dominates both pre- and in-service training • It explores an alternative approach to practitioner development, based on collaborative reflection and action, that stimulates engagement and contextualised actions
Aims and objectives of the study The study’s overall aim was: Through the use of participatory methods, to evaluate the functioning of selected DIETs within the decentralised framework of District Planning initiatives; and to initiate where necessary, and otherwise support, a process by which the capacity of these institutions to meet their objectives is enhanced through critical reflection and action. In order to achieve this aim, the objectives of the research were: 1 To appraise existing situations in selected elementary schools vis-à-vis physical conditions, clientele, availability of teaching-learning materials, teacher motivation, classroom management style, pedagogical approaches, administrative and pedagogical support, interaction with village communities, and so on. 2 To analyse each DIET’s contribution to the professional development of teachers by examining:
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a) the extent to which pre-service education prepares teachers for the circumstances in which they will find themselves once in post b) the quality of in-service inputs and delivery mechanisms, and fit between training programmes and teachers’ perceived needs c) the capacity of each DIET to engage in research that relates to their own and teachers’ needs. 3 To assess each DIET’s internal managerial capacity and its external relationships with institutions in the District and other levels of the administrative hierarchy, and review how they are integrated into the strategy of universalising elementary education. 4 To use research findings in a continuous process of providing support and initiative to assist the development of capacity in DIETs, and to use this research project to strengthen and expand that capacity through both participation and example, both at the District and other levels of the administration where stakeholders have been identified.
Findings Trends across the sample sites indicate a need for readjustment and focused development of DIETs in a process of institutional renewal if they are to be effective in systemic support for teacher development. The report raises four areas of key concern for policy and practitioner communities: • The need for a sharper conceptualisation of institutional purpose and the roles of DIET branches and DIET staff in relation to that institutional purpose • The need for a holistic rather than compartmentalised approach to teacher development through DIETs • The need to recognise the specialised nature of elementary teaching and teacher education and recruit DIET staff, as elementary teacher educators, accordingly • The need to provide for continuous professional growth of teacher educators to extend their understanding of, and engagement with, the field, for example through encouraging processes of reflection and action
A sharper conceptualisation of institutional purpose Processes of devolving power and autonomy for teacher development to DIETs remain, despite policy intentions, incomplete. Tensions of decentralisation hamper the DIET in emerging as an institute firmly embedded in, and serving, its District. In-service teacher education programmes are designed and funded at state level or above, and delivered at the District level, according to numerical targets. Although evaluation and follow-up of training impact in the field are rarely undertaken, DIET staff deliver programmes they sense are not meeting teachers’ needs. Current centralised arrangements fail to challenge their sense that it is their duty to deliver what they are given, rather than adapt materials to local conditions and
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requirements as the DIET mandate envisages. A further barrier to effective decentralisation lies in DIET staff ’s lack of the technical skills needed to assess teachers’ needs, and respond accordingly – which can serve as a justification for not challenging state-generated programmes. Decentralisation initiatives in Madhya Pradesh address some of these issues, but the need to support DIET staff in developing appropriate skills to work effectively in a decentralised context remains.
Not all staff members were aware of the functions of each of the DIET’s branches. Staff related easily to the ‘traditional’ occupations - pre-service and in-service training - but had less clear understandings of the role in elementary education of, for example, planning and management or curriculum development. Reflecting this, teachers saw the DIET as a training institute, rather than as the holistic teacher development institute policy envisaged.
The apex State level institute in each State, itself undergoing revitalisation under the same scheme that established DIETs, tended towards an evaluative rather than supportive role. The majority of sample DIETs would benefit from proactive support in forging a meaningful purpose and identity, and in resolution of the apex institute’s role vis-à-vis DIETs.
Within their District, two of the six sample DIETs had created their own niche through proactively developing a profile for the DIET. Through proactive leadership by its Principal, Surat DIET in Gujarat had become firmly established as a prime local educational resource. It was a hub of educational activity and had undertaken needs analyses, developed programmes with local relevance, and effectively mobilised local human and financial resources. Indore DIET was also establishing a similar identity. Both these DIETs also demonstrated not only the importance of partnerships with Cluster Resource Centres for effective outreach, but also the continuing relevance of the DIET idea.
With a network of support institutions for decentralised teacher education now in place, action is needed by each to ensure that they interact effectively with one another. Decentralisation requires the creation of meaningful of State-DIET- Cluster Resource Centre partnerships, where links and purposes in relation to teacher development are clearly defined. Proactive nurturing of new identities and capacity development is needed to assist in maximising the strategic position of each institution, and moving away from embedded centralised relations.
Towards holistic teacher development The model of teacher education adopted in both pre- and in-service training is a transmission approach to developing skills and knowledge. Development of skills
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follows the format of learning to deliver a model lesson; and knowledge relates to learning and/or reinforcing subject content. Many DIET staff are reluctant to model the approaches they lecture about.
Transferability of what is learned in training, from both pre- and in-service programmes, to multi-lingual, multi-ethnic, multi-ability and multi-grade primary classroom contexts remains problematic. Teachers report the lack of relevance of training and have often developed low expectations of its being able to make any difference. Another issue that is hampering quality improvements is the pattern of once-off, off- site training courses for teachers. The current approach to teacher development through DIETs is focused on the individual teacher, and short-term inputs of technical skilling. Training of this nature is not able to challenge teachers’ often negative assumptions about the intelligence and capacities of children from lower socio- economic strata, which create barriers to their will to change their practices. Training that comprises skilling and content reinforcement is failing to engage teachers with training ideas, and sees elementary teachers as mere ‘classroom technicians’. Further thought needs to be given to how training can work towards developing teachers’ potential as creative practitioners, and validate and extend their existing knowledge.
There is a pressing need to improve the ‘ecological validity’ of the training offered to teachers through DIETs, to improve its contextual relevance. The current model, even if improved significantly in quality, lacks the capacity to be contextually sensitive and thus has shortcomings in relation to the professed aims of establishing DIETs as responsive local institutions. However, to enhance the transferability of what is learned during in-service training under current arrangements, further thought must be given as to how inputs from DIET training courses articulate with opportunities for peer reflection offered at the Cluster Resource Centres. Effectiveness of DIET training would be enhanced by advance planning of how Cluster Resource Centres can assist in working with teachers on transferring training messages into practice by experimentation and discussion in a supportive peer group; and the DIET’s role in this process.
In the longer term, it is desirable that these structures shift towards providing support to a strategy of whole school, rather than individual teacher, development. Whole school development offers greater potential to address in a integrated way current concerns about enhancing community participation, embedding schools into their socio-economic context, and improving internal efficiency.
Recruitment of primary teacher educators Recruitment criteria for DIETs specified that staff should have two Master’s degrees and seven years of elementary teaching experience. Few elementary
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teachers have these academic qualifications, but as they have been prioritised over the practitioner experience criterion, DIETs have largely been staffed by ex-upper secondary teachers, who hold higher degrees but have no relevant practitioner experience. Many staff have been posted to DIETs by routine government transfer procedures, resulting in a widespread lack of enthusiasm for their new post. Short staffing of Principals was widely in evidence and had a detrimental effect on staff motivation and direction-setting for DIETs. Specific recruitment criteria developed by Lok Jumbish in Rajasthan brought interested elementary practitioners to the DIETs Lok Jumbish adopted, but despite official acknowledgement of this success, personalisation of recruitment criteria was seen to be too risky to be adopted for government recruitment across the State.
Once appointed, DIET staff in all three States judged induction processes to be inadequate. They left a significant proportion of staff unfamiliar with the role of the DIET itself, or of the branch within they worked. A posting to the DIET is a clear change of career direction, from being a teacher to a teacher educator. Elementary teacher educators who do not have relevant practitioner experience lack the pedagogical authority needed to support elementary teacher development. Current recruitment norms are not designed to assess the knowledge, skills and understandings required of a primary teacher educator. This study provides evidence of the desirability of revising those norms; and of the need to recognise the specialised nature and challenges of working as an elementary teacher educator and recruit accordingly.
Continuous professional development for teacher educators Professional development opportunities for DIET staff are very limited and appropriated by a handful of staff. In addition to the recommended review of recruitment procedures, there is a need to develop a policy strategy to address teacher educators’ ongoing professional development needs.
The study trialled collaborative action research as a means of developing DIET staff ’s research capacity and supporting systematic investigation of field realities. This reflection-on-action approach departed from the ‘expert’-led, transmission approach which dominates practitioner development initiatives. It aimed instead to stimulate critical reflection by teacher educators themselves, with project team members, by undertaking structured research activities that acted on concerns identified by DIET staff. Issues of accountability and autonomy were raised during this process, and proaction by DIET staff in generating their own research agenda to address their own concerns helped illustrate the possibilities for more autonomous action by DIET staff.
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The processes of action research project design, collection and analysis of data, assisted staff in reflecting on their own practices, and gaining clearer understandings of the issues teachers face, and of their own role in facilitating teacher development and engaging with issues. Stimulating this sense of engagement emerges as central to making processes of practitioner development meaningful enough to result in changes to practice.
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Introduction
0.1 Introduction
The voluminous literature about teacher development pays comparatively little attention to the people who teach teachers – teacher educators. This is a consistent, but rather surprising omission given that, as Avalos (1991: 52) points out The best intentions of reform within teacher education programmes can founder if attention is not given also to improving the quality of teacher trainers.
This report focuses on teacher educators in the context of a system of elementary education in India that has been decentralising and establishing a competency- based approach to teaching and learning since the early 1990s. Both were triggered by widespread concerns over unsatisfactory school enrolment and retention patterns, and underlying quality issues, that were leaving unfulfilled the constitutional pledge to provide all children with Universal Elementary Education. Much of the quality debate has focused on teachers, and the nature of their training and professional identity – all of which have generally attracted negative commentaries (e.g. NPE 1986 / 92; PROBE 1999, Raina 1995, NCTE 1998c, 1998d; UNICEF 1991, World Bank 1996).
Following a national policy directive in 1986, two key institutional innovations were introduced to augment the previously limited resources for teacher education. In almost all Districts across the country, a new structure at the District level was established – the District Institute of Education and Training (DIET) – which reports to the previously established nodal institution at the State level, the State Council for Educational Research and Training, or equivalent. In selected Districts only, under the District Primary Education Programme, Block and Cluster Resource Centres (BRCs and CRCs) were set up at the sub-District level. Cluster Resource Centres are now being rolled out across the system. These structural innovations offer considerable potential for continuing professional enrichment for elementary school teachers.
0.2 Sarva Shiksha Abhiyan
Over the years, several different schemes have been put in place to try and achieve Universal Elementary Education. Despite individual gains, this has contributed to a national scenario of fragmentation and overlap which is to be addressed through the creation of an overarching programme, the Sarva Shiksha Abhiyan. The Sarva Shiksha Abhiyan embraces almost all existing schemes in order to achieve convergence and coherence.
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Two of the external interventions that have provided a learning context for this project and which have now been subsumed into the Sarva Shiksha Abhiyan are the District Primary Education Programme (DPEP) and the Lok Jumbish project (see Boxes 0.1 and 0.2). The DPEP has for example encouraged decentralised, District- based planning; enhanced community participation in schooling; provided new and improved learning environments through extensive civil works programmes; improved the preparation, motivation and deployment of teachers through teacher training and teacher recruitment and deployment; strengthened management; and, through its textbook renewal programme, improved the quality of textbooks and teaching and learning materials. Lok Jumbish has also furnished many insights into the challenges of developing meaningful community participation; and both of these programmes also underline a continuing need to strive towards gender equality.
Challenges for the future under SSA are to draw the whole system into building on and consolidating from project gains – for example to improve planning so that is more holistic and locally consultative; to help teachers become better able to respond to multi-ethnic, multi-caste, multi-grade and multi-ability contexts; to improve the capacity of institutions that provide on-going technical and professional support to teachers – such as SCERTs, DIETs and Cluster Resource Centres – and to continue to improve management capacity.
DIETs are written large into the Sarva Shiksha Abhiyan framework, and many of its aspects require their involvement (DEEL 2002). This is an opportune moment to reflect on the performance of DIETs so far, and to identify ways in which they may be further strengthened and supported in pursuit of the many roles and responsibilities intended for them in future.
0.3 Project intentions and methodology
Earlier research (Dyer 1994, 1996, 2000) had identified several gaps between the expectations of teachers articulated in policy discourses, and the situations observed on the ground in schools. That teacher education is implicated in sustaining rather than closing such gaps is made clear in official commentaries, but there is little ethnographic description of processes of teacher education to draw on to explain from the (all too often neglected) practitioners’ points of view why this might be.
The main concerns of this research have been to inform and guide policy making and practitioner development by: • providing otherwise absent ethnographic detail about educational processes in DIETs and related schools
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• focusing on DIETs in relation to other educational institutions in a systemic context of decentralisation • engaging with the pressing question of teachers’ will to adopt change messages through a critique of the dominant training model, and exploration of a model based on collaborative practitioner reflection and action.
0.3.1 Research with a commitment to action A two month pilot project of one DIET in 1996, funded by the University of Manchester (Dyer and Choksi 1997) led to the DFID-funded study reported on here. The pilot project was invaluable in framing the substance and approach of the longer one that followed. Substantively, it provided themes, issues and concerns to follow up in a larger, longer and more in-depth project. The methodology of the larger project also grew from one key substantive finding of the pilot: a lack of professional development opportunities for DIET staff. We felt that a future project should attempt to respond to this gap, and wanted the larger project’s processes to be directed as much as possible by ‘research with’ which encouraged joint reflection and subsequent action in collaboration between DIETs and research team as a mode of professional development. Ethically, we wanted to make a commitment to action, expecting that research would be more likely to ‘make a difference’ if it draws people in as participants in shared research processes, rather than as subjects (or objects) of research carried out by outside ‘expert’ researchers. The intention was thus to engage through action with issues that emerged, rather than restrict the research project focus to observing and reporting.
0.3.2 Aims and objectives The project intended to provide a case study of policy innovation for teacher education (the innovation of DIETs) drawing on six sample Districts to identify and illustrate larger trends and issues. The overall aim of the research was: Through the use of participatory methods, to evaluate the functioning of selected DIETs within the decentralised framework of District Planning initiatives; and to initiate where necessary, and otherwise support, a process by which the capacity of these institutions to meet their objectives is enhanced through critical reflection and action.
In order to achieve this aim, the objectives of the research were: 1 To appraise existing situations in selected elementary schools vis-à-vis physical conditions, clientele, availability of teaching-learning materials, teacher motivation, classroom management style, pedagogical approaches, administrative and pedagogical support, interaction with village communities, and so on. 2 To analyse each DIET’s contribution to the professional development of teachers by examining:
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a) the extent to which pre-service education prepares teachers for the circumstances in which they will find themselves once in post b) the quality of in-service inputs and delivery mechanisms, and fit between training programmes and teachers’ perceived needs c) the capacity of each DIET to engage in research that relates to their own and teachers’ needs. 3 To assess each DIET’s internal managerial capacity and its external relationships with institutions in the District and other levels of the administrative hierarchy, in order to assess how well they are integrated into the strategy of universalising elementary education. 4 To use research findings in a continuous process of providing support and initiative to assist the development of capacity in DIETs, and to use this research project to strengthen and expand that capacity through both participation and example, both at the District and other levels of the administration where stakeholders have been identified.
These aims and objectives were conceptualised visually (Figure 0.1). This diagram served both as a comparative framework for a situation analysis across the sites, and as a reminder of the importance of relating the DIET to its surrounding context, rather than view it in isolation.
There were two interwoven strands of project activity. One was an ethnographic situation analysis of the DIET, structured round Figure 0.1 (reported on in chapters 1-6). The project team worked within the interpretive paradigm, using a range of qualitative methods such as interviews, participant observation (including longitudinal case studies of selected elementary schools), focus groups, open-ended questionnaires and document analysis. The second project strand broadly concerned professional development for DIET staff and took several forms: collaborative action research projects with staff which offered opportunities to reflect on working practices (chapter 7); an action research project with teachers to gain detailed insight into their developmental needs (chapter 8); and research commissioned by the Government of Gujarat into its cascade model of training, with a focus on future development of teacher educators (chapter 9).
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Figure 0.1: Situation analysis framework
Policy documents Calendar Action with CRC teachers, schools Activities NGOs BRC PRESET, DDO INSET, other Linkages branches DPEO outside Impact and DIET relevance for clients Professional Teachers Policy inputs Resource DIET Students inputs Human dependency SITUATION Schools ANALYSIS Village Financial communities Cluster/ Management Block Capacity Resource building Resources Internal Institutional Centres within DIET staffing Other Systemic Leadership institutions Physical Human Teamwork Financial Co-operation Values Planning Expertise
Assumptions Understandings
0.4 Site selection
Two DIETs each were selected from the States of Gujarat, Madhya Pradesh and Rajasthan, to gain a range of social and governmental contexts. An added dimension was the inclusion in each State of one DIET from a District where an external intervention was running (the District Primary Education Programme in Gujarat and Madhya Pradesh, see box 0.1) and the Lok Jumbish project in Rajasthan (see box 0.2). The other DIET in the State was internally resourced – a regular ‘government DIET’.
Sample DIETs were selected in consultation with each apex State body. No preference for a particular DIET was shown, although in Rajasthan, the then Chairman of Lok Jumbish encouraged the team to work with Masuda DIET (Ajmer District), which he considered the best developed of the three DIETs adopted by Lok Jumbish. Otherwise, it was acknowledged that the vast majority of DIETs were not meeting expectations, and the project was expected to shed light on reasons for this. State-level officials in all three States were supportive and available for discussion and feedback throughout. For DIETs participating in the project, this would be a first experience of a process-orientated research approach, and of a project that intended to provide developmental support according to their priorities. There was openness towards these ideas and widespread agreement of the need for support, although in practice the extent to
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which DIETs saw the project as an opportunity and were able to make use of it varied considerably.
The two sites in Rajasthan were Udaipur and Ajmer Districts. The situation analysis was completed in both these DIETs but professional development activities were somewhat constrained in both of them, for different reasons. In Madhya Pradesh, two DIETs in the west of the State were selected. Indore DIET is a large and well established DIET in a large city; Dhar DIET is in the neighbouring, predominately tribal, District. All proposed activities could be undertaken in both these DIETs. Unfortunately, the team was not able to continue work with the pilot project DIET in Gujarat, owing to a change in leadership. Full access to the second intended sample DIET in Gujarat was also problematic despite the support of State-level officials; the staff development strand of the project could not be initiated in that DIET although a situation analysis was completed. As a result, the team worked closely with the State government, and directly with teachers; towards the end of the project, the government invited the team to work in Surat DIET, which had begun to emerge as the State’s leading DIET, but there was insufficient time to embark on the collaborative professional development strand. Fig. 0.2 shows the site locations.
0.5 The research team
The research team consisted of six local researchers, coincidentally female and under 30, each of whom was attached to one DIET and came from the State in which she was employed; the Project Manager (Indian) and Director (British); and local support staff.
Most of the project researchers were new to qualitative research, so their ongoing professional development was an integral part of the project (a full reflection on this process is given in Dyer, Choksi et al 2002). The research team had an initial intensive week of training in qualitative methods and professional development was sustained by whole team workshops of 5-6 days every two months throughout the project term. Senior team members visited each site between workshops to provide support to the researcher and discuss findings, and to engage with DIET staff on professional development aspects.
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Box 0.1: The District Primary Education Programme The District Primary Education Programme (DPEP) was launched in 1994 with twin purposes: 1 to operationalise decentralized planning and management 2 to accelerate the pace of universalisation of primary education in the country. Consciously the districts where female literacy was lower than the national average and where the total literacy campaign had generated enough demand for the universalisation of elementary education were selected for the implementation of the programme. DPEP aims to reduce gender and social disparities that prevail in the existing system. Its specific objectives are: • To reduce differences in enrolment, dropout and learning achievement among gender and social groups [sic] to less than five percent; • To reduce overall primary dropout rate for all students to less than 10 percent; • To raise average achievement levels by at least 25 percent over measured baseline levels and ensuring achievement of basic literacy and numeracy competencies and a minimum of 40 percent achievement levels in other competencies by all primary school children; • To provide, according to national norms, access for all children to primary education classes (I-V), i.e. primary schooling wherever possible, or its equivalent non-formal education. [Source: DPEP Calling, Volume VI, No. 11, December 2000, Government of India, New Delhi http: www. arunmehta.freeyellow.com/bose1.htm downloaded 15.4.03]
0.6 About this report
The ‘data’ generated in this project take the form of words rather than numbers, and this report has been written to allow the views and voices of teachers, their educators, educational managers and members of the research team to be heard. The narrative develops accounts that are based on observations and interview, and excerpts from both are reproduced throughout. They are referenced in brackets, giving the State, District, designation and date. These data were generated over two years, and it would be invidious to attempt to enumerate the number of interviews with teacher educators and teachers held over that period: project researchers were in constant contact and conversation with both, and immersed themselves thoroughly in the DIETs’ activities during the whole time.
The report contains ten chapters. The first six reflect the ‘situation analysis’ strand although some of the data were generated through the professional development activities; chapters 7-9 report on professional development with DIET staff,
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teachers, and in collaboration with the Government of Gujarat. The final chapter summarises key findings and presents ‘learning for policy’ that may be useful in guiding further development in teacher education.
Figure 2: Site locations