IGNOU,
RTI And The Distant Dream Of Women's Empowerment
By B Rahul
28 December, 2006
Countercurrents.org
Analysis
of the latest data made available by the Indira Gandhi National Open
University, New Delhi (IGNOU) in response to an application made under
the Right to Information Act reveals that the average number of female
students freshly enrolled each year in the Bachelor of Arts (BA) degree
programme in the seven years from 1996 to 2002 was 17146 which is 65%
of the total. Among these the average number from the Scheduled Castes
(SC) was 1903 (11.1%) and the average number from the Scheduled Tribes
(ST) was 831 (4.8%). The average number of female students per year
over the same period who had successfully completed the course and been
awarded the BA degree was a miniscule 440. Among these the average number
from the SC was only 64 and the average number from the ST was just
17. Even though the time schedule for completion of the course in the
distance education format is flexible and so it is not possible to directly
compare the enrolment and pass averages given above nevertheless it
can be roughly said that over the period under review on an average
about 2.6 % of the female students were successfully completing the
course every year while this statistic for the SC is 3.4 % and for the
ST it is 2 %.
The most striking feature
of this data is that of the considerably fewer number of female students
passing as compared to male students. Thus in 1996 even though females
constituted 67.1% of those enrolling their proportion in those passing
out was just 29.5%. Similarly in 2002 while females constituted 63.4%
of those enrolling their proportion in those passing out was just 31.6%.
Thus it is quite evident that IGNOU, which is the premier institute
of distance education in the country, has not quite lived up to its
self professed mission of " ....knowledge ... dissemination through
sustainable open and distance learning systems seamlessly accessible
to all, including the hitherto unreached, from among whom the leaders
and innovators of tomorrow will emerge."(Italics added for emphasis)
(IGNOU website - www.ignou.ac.in).
However, not being privy
to these dismal statistics in 1998, Subhadra Khaperde, impressed by
the mission statement of IGNOU, had then enrolled for the Bachelor's
Degree Programme of the university. She comes from an economically very
poor dalit marginal farmer family and had had to give up her education
after somehow passing the higher secondary examination in 1987 in the
third division and start work as an anganwadi worker. She progressed
to becoming a political activist involving herself in the many battles
that were fought over land, water and forest rights in Madhya Pradesh
before concentrating on securing the reproductive health and rights
of Bhil adivasi women in western Madhya Pradesh from 1995 onwards. After
a decade of grassroots mobilisation however she found that her initial
belief that the various enabling provisions of the Constitution and
many affirmative laws would be implemented if only the people got organised
and demanded their rights was very naive. She realised that the rule
of law promised in the Constitution was not only there only on paper
but also that the state would not tolerate organised attempts by the
masses to make it work on the ground. This made her feel that she must
read up on political theory and practice to properly understand this
sad conundrum of laws on paper that are never implemented. However,
the education she had received in school she found was wholly inadequate
for her to understand the various books that she was plied with by other
better read activists. So in 1997 she decided to start formal studies
again by doing a bachelor's degree in Political Science from IGNOU.
Subhadra soon found herself
all at sea in the deep waters of the IGNOU course material. The problem
was compounded by the fact that the texts had been originally written
in English by the leading Indian scholars in their fields and then translated
into Hindi. The normal practice for translation of arcane technical
terms is to break up the English word into its Latin or Greek roots
and then construct a Hindi word by combining the corresponding Sanskrit
roots. This artificially created term being a specialised one is not
found in any of the standard Hindi dictionaries. Moreover since the
main words are in Sanskrit the sentences constructed with these also
use a high Sanskritised Hindi, which has little relation to the colloquial
Hindi that is popularly spoken. Thus making sense of the IGNOU course
material for a graduate of the government school system is almost as
difficult an exercise as deciphering the Harappan script. Since this
was beyond her capacity Subhadra had to engage a tutor to assist her
in a big way not only in understanding the meaning of the texts but
also in doing the assignments which too had to be written in high quality
Sanskritised Hindi. The crunch came in the examinations. The papers
were set in such a way that they thoroughly tested whether the student
had read and assimilated the course material properly and wholly. A
study of past question papers revealed that there is no pattern discernible
in the questions asked. So it is very difficult to predict the possible
questions and prepare accordingly as is the custom in most universities
in this country. Nor are there any study guides as the student base
of IGNOU is too small to make their publication profitable.
The inevitable result of
all this was that in the initial stages Subhadra mostly passed her examinations
by the skin of her teeth or sometimes failed. Even though the tutor
prepared the answers for a wide range of questions it was just beyond
her capacity to cram all of them. So she had to write off the cuff answers
to questions for which she had not prepared and obviously she did not
have the proficiency to do so. Sometimes she was failed or given poor
marks despite writing good answers and there was no redressal even after
filing for review. The only saving grace is that a student could take
as many as eight years at that time to pass the three-year course and
so failed papers could be reappeared for or a lesser number of papers
could be taken per semester. She gradually passed her papers till only
one paper remained. This was the foundation course in English. She had
already failed in this once in the initial stages. She had to spend
a whole year learning only English and then somehow passed the paper
on the strength of an essay on a topic, which she had prepared before
hand that luckily came in the paper.
Once this IGNOU odyssey was
over Subhadra began wondering as to how many people actually passed
the BA examination of IGNOU given the toughness of the course and the
exacting examination standards. The BA being the most basic graduation
level course would be opted for mostly by people from a disadvantaged
background who had like her lost touch with education for a long time
and wanted to catch up on it. But the fact of the matter is that Subhadra
had been able to stay the course and become a graduate of IGNOU with
much difficulty only because she had engaged a tutor to help her throughout.
Not everyone is so lucky and so she surmised that very few people were
actually successfully completing the course. She asked around in her
own city Indore and found that all the people whom she traced had dropped
out of the course after enrolment having been frustrated by the toughness
of the course and the examinations. This prompted her to write to IGNOU
for statistics regarding the pass percentages disaggregated by caste
category in the BA course over the past decade. There was no reply.
The research section of IGNOU, which should be analysing the performance
of the students and evaluating the efficacy of the course, too said
that they had no data regarding the BA course. She then got some of
her journalist friends in Delhi to inquire about this and they too got
fobbed off with vague replies. She then wrote to the Principal Secretary
Higher Education of the Government of India who is an IAS officer from
the Madhya Pradesh cadre to get this information and once again drew
a blank.
Finally as a last resort
an application was filed with the Public Information Officer (PIO) of
IGNOU under the Right to Information Act 2005 for this information.
A subordinate of this officer replied and refused the information with
some vague excuse. A stern letter was then sent to the Vice Chancellor
who is the Designated Appellate Authority for IGNOU under the RTI Act,
pointing out that the Public Information Officer was liable for penal
action for having wilfully obstructed the furnishing of the information
that had been demanded. This had some effect and the officer sent the
data but it was complete only for seven years from 1996 to 2002. Repeated
reminders could not elicit the remaining information from 2003 to 2005
and so a second appeal was filed with the Central Information Commission
to direct IGNOU to furnish the data for the whole decade from 1996 to
2005. After a long wait of eight months the appeal finally came up for
hearing before the Commission on 18th of December. The Information Commissioner
instead of taking the IGNOU PIO to task for not supplying the complete
information and penalising him said that since he had given some information
the petitioner should not be intolerant and should sit with the PIO
and sort out the remaining differences. The petitioner's argument that
enrolment and pass statistics are basic information and that the Information
Commissioner should order IGNOU to put them up compulsorily on their
website so that they would have to sit up and do something to improve
their performance as a result of public scrutiny of such a dismal performance
cut no ice with the Information Commissioner who said that the staff
of IGNOU were over worked anyway. The petitioner finally left in disgust
leaving the IGNOU PIO and the Information Commissioner to their mutual
backslapping.
This whole sordid scenario
indicates that there are a lot of women like Subhadra with a poor schooling
background and unable to take admission in colleges which require regular
attendance who are enrolling in IGNOU in the fond hope that they will
get a BA degree. However, the toughness, nay inappropriateness of the
course material, the examination papers and their strict and even sadistic
evaluation coupled with inadequate coaching are putting paid to their
dreams leading to these women not being able to pass out. No wonder
then that these statistics regarding pass percentages, that are easily
made available by most universities, are such a closely guarded secret
in IGNOU and not readily disclosed to anyone. Not only has IGNOU failed
to help the underprivileged students who have taken admission in the
BA degree course to emerge as leaders and innovators of tomorrow but
it has instead severely dented their self respect by making them into
failures. This criminal negligence assumes an even more serious hue
when we consider the fact that an overwhelming two-thirds majority of
those aspiring and then failing to make something of themselves due
to this insensitivity of IGNOU are women. What is most galling is that
an institution that projects itself as the best distance learning university
in the world on the strength of the performance in its money spinning
elite professional courses like management, which are availed of by
students from a privileged background, does not have the honesty to
review the continually deteriorating performance of its most basic BA
degree programme. The attempt to bring some transparency into the operation
of IGNOU through the RTI Act too has proved futile given the tendency
of bureaucrats to shield each other. The net result is that the empowerment
of poor women is destined to remain a distant dream.
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