Working Conditions of Teachers: State Report for Karnataka
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NUEPA Research Reports Publications Series Teachers in the Indian Education System Working Conditions of Teachers: State Report for Karnataka Jyotsna Jha Puja Minni Neha Ghatak Centre for Budget and Policy Studies (CBPS), Bangalore National University of Educational Planning and Administration New Delhi NRRPS/001(5/9)/2016 NRRPS/001(5/9)/2016 NUEPA Research Reports Publications Series Teachers in the Indian Education System Working Conditions of Teachers: State Report for Karnataka Jyotsna Jha Puja Minni Neha Ghatak Centre for Budget and Policy Studies (CBPS), Bangalore October 2016 National University of Educational Planning and Administration (NUEPA) New Delhi i © National University of Educational Planning and Administration, 2016 (Declared by Government of India under Section 3 of the UGC Act, 1956) October 2016 (PDF) Disclaimer: The research report has not been evaluated by any external expert, and also not edited by the PMU, NUEPA. The views and opinions expressed in the research report are those of the author(s)/editor(s) and should not be attributed to NUEPA. Disclaimer: This is a draft report and should not be referred without prior permission from Centre for Budget and Policy Studies (CBPS), Bangalore All rights reserved. No part of this publication may be reproduced stored in a retrieval system or transmitted in any form or by any means, electronics, magnetic tape, mechanical, photocopying, recording or otherwise, without permission in writing from NUEPA. ii Table of Contents Table of Contents iii List of Boxes, Figures and Tables v Abbreviations and Acronyms vii Chapter 1: Introduction 1 1.1 Introduction 1 1.2 National study on working conditions of teachers 3 1.3 Methods used for conducting the study 3 1.4 Structure of the report 5 Chapter 2: Profile of Teachers in Karnataka 6 2.1 Administrative and academic support structures for teachers in Karnataka 6 2.2 Elementary school teachers 7 2.3 Secondary school teachers 10 2.4 Physical working conditions of teachers 11 Chapter 3: Historical Context of Teacher Policy in Karnataka 13 3.1 Recruitment practices: Documenting the changes 13 3.2 Transfer and re-deployment: Rare and hardly accessible 15 3.3 Salary disbursement: From HM to BEO office 16 3.4 In-service training before SSA/DPEP 16 3.5 Promotion and performance appraisal: Almost same as current process 17 3.6 Non-teaching duties: Plethora of surveys 17 3.7 Grievance redressal: Absence of Shikshana Adalats prior to 2009 18 Chapter 4: Teacher Recruitment in Karnataka 19 4.1 Direct recruitment process 19 4.2 Indirect recruitment process 29 4.3 Review of recruitment process 30 Chapter 5: Transfers and Deployment of Teachers in Karnataka 33 5.1 Elementary and secondary school teachers 34 5.2 Aided-secondary school teachers 41 5.3 Review of transfer process 41 Chapter 6: Salary and Service Conditions of Teachers in Karnataka 43 6.1 Salary and other monetary allowances 43 6.2 Access to other benefits 46 6.3 Review of monetary and non-monetary benefits 51 iii Chapter 7: Duties and day-to-day Management 54 7.1 Role of teachers within school 54 7.2 Role and additional duties outside the school 56 7.3 Role and duties of HMs in elementary school 57 7.4 Review of duties and day-today management of teachers 58 Chapter 8: Career Progression and Performance Evaluation 60 8.1 In-service training for teachers 60 8.2 Promotion, appraisal, evaluation and monitoring 64 8.3 State Institute for School Leadership Educational Planning and 66 Management 8.4 Disciplinary action against teachers 67 8.5 Review of career progression and performance evaluation 68 Chapter 9: Rights of Teachers in Karnataka 71 9.1 Rights of the teacher to form associations 71 9.2 Grievance redressal rights of the teachers 72 9.3 Review of rights of the teachers 74 Chapter 10: Conclusion and Suggestions 75 Bibliography 80 Annexures 84 Annexure I: Organization chart of Department of Public Instruction 84 Annexure II: Some concepts explained 85 Annexure III: Key features of teacher software for transfer within the same 86 unit of seniority Annexure IV: Key features of teacher software for transfer outside the unit 91 of seniority Annexure V: Year-wise Activities for SISLEP 92 iv List of Boxes, Figures and Tables List Boxes Box 4.1 Schedule of the recruitment of high school teachers (grade 2) and 31 physical education teachers (grade 1) for the year 2013-14 Box 4.2 A case example of the degree of delay from competition exam to 32 final posting List of Figures Figure 4.1 Direct recruitment process for elementary and secondary school 20 teachers Figure 4.2a Reservation criterion for recruitment 23 Figure 4.2b Individual characteristic-wise reservation 23 Figure 4.3 Additional reservation for Gulburga division 24 Figure 4.4 Computerized counseling process for recruitment 25 Figure 5.1 Application process for transfers within same unit of seniority 36 Figure 5.2 Preparation of provisional and final list for transfers 37 Figure 5.3 Counseling process for transfer on request 38 Figure 5.4 Flowchart for the counseling process 38 Figure 5.5 Excess teacher transfer process 40 Figure 7.1 Various roles and duties of teachers 54 Figure 8.1 Type of professional development available to teachers 60 Figure 8.2 Cascade mode of in-service training 61 Figure 9.1 Organogram of KSPSTA 71 List of Tables Table 1.1 Synopsis of interviews conducted at state level 4 Table 1.2 Synopsis of interviews conducted at district level 5 Table 1.3 Details of FGDs conducted 5 Table 2.1 Political/local bodies, administrative and academic support structures 6 for Teachers Table 2.2 An overview of teachers and HMs in Karnataka 7 Table 2.3 Total number of elementary school teachers in Karnataka in 2011-12 8 Table 2.4 Sex-wise segregation of elementary school teachers in Karnataka in 8 2011-12 Table 2.5 Teachers by their educational qualifications (Elementary) in 2011-12 9 Table 2.6 Number of secondary school teaches as per education qualifications 10 v Table 2.7 Subject-wise secondary school teachers in government schools 11 Table 2.8 Proportion of schools covered by basic infrastructural facilities in 12 Karnataka Table 3.1 Comparing recruitment norms Pre and Post 2000-01 13 Table 3.2 Comparison between transfer norms Pre and Post 2000-01 15 Table 3.3 How was salary disbursed? 16 Table 3.4 Evolvement of professional development practices in Karnataka 16 Table 3.5 Career growth for teachers 17 Table 3.6 Comparing the workload with respect to non-educational duties 17 outside school Pre and Post 2009 Table 3.7 Grievance redressal mechanism Pre and Post 2009 18 Table 4.1 An overview of direct recruitment norms for teachers 20 Table 4.2 An overview of the indirect recruitment process 29 Table 5.1 Overview of transfer norms in Karnataka 33 Table 6.1 Salary and other monetary allowances 43 Table 6.2 Details of merit scholarships for children of teachers 48 Table 6.3 Comparative consolidated salaries of elementary school teachers 52 Table 6.4 Comparative consolidated salaries of secondary school teachers 53 Table 7.1 Percentage of teachers involved in non-teaching assignment in 55 elementary schools in Karnataka (year-wise) Table 7.2 Total number of elementary school teachers involved in non-teaching 56 assignment Table 8.1 In-service training plan for 2014-15 (SSA) 62 Table 8.2 Number of schools as per their Distance from CRC and number of 69 CRC visits received by them in 2011-12 Table 8.3 Number of schools as per their Distance from BRC and number of 69 BRC visits received by them in 2011-12 Table 8.4 Number of schools as per their Distance from CRC and number of 70 academic inspections received by them in 2011-12 Table 9.1 Details of teachers associations 71 Table 9.2 District-level Shikshana Adalats conducted between 6th November 73 2013 and 27th May 2014 Table 9.3 Block level Shikshana Adalats held in Davangere 73 vi Abbreviations and Acronyms BA Bachelors of Arts B.Ed Bachelor of Education BRC Block Resource Center BRP Block Resource Person B.Sc. Bachelor of Science CAC Centralised Admission Cell CCE Continuous Comprehensive Evaluation CEO Cluster Education Officer CET Common Entrance Test CL Casual Leave CPI Commissioner of Public Instruction CRC Cluster Resource Center CRP Cluster Resource Person DA Dearness Allowance DDPI Deputy Director of Public Instruction D.Ed Diploma in Education DEO District Education Officer DIET District Institute of Education and Training DISE District Information System for Education DPEP District Primary Education Programme DPI Department of Public Information DRC District Resource Center DSERT Department of School Education Research and Training ECO Education Coordinator ECS: Electronic Credit System EL Earned Leave ELDP Education Leadership Development Program FGD Focus Group Discussion GoI Government of India GoK Government of Karnataka HM Head Master/Mistress HPS Higher Primary School HRMS: Human Resource Management System HT Head Teacher JDPI Joint Director of Public Instruction KAT: Karnataka Administrative Tribunal KES Karnataka Education Service KGBV Kasturba Gandhi Balika Vidyalaya KGID Karnataka Government Insurance Department KPSC Karnataka Public Service Commission vii KSHSAMA Karnataka State High School Assistant Masters Association KSPSTA Karnataka State Primary School Teachers Association MA Masters of Arts MDM Mid-Day Meal MHRD Ministry of Human Resource Development MLA Member of Legislative Assembly NCTE National Council for Teacher Education NET National Eligibility Test NTSE National Talent Search Examination NUEPA: National University of Education