CONCEPT PAPER

Integrated Scheme for School Education: Merging the

Centrally Sponsored Schemes of SSA, RMSA &TE

1. Background

1.1 Education is the most important tool for social, economic and political
transformation and a key instrument for building an equitable society. A well-
educated population, equipped with the relevant knowledge, attitudes and skills is
essential for economic and social development in the twenty-first century. Education
also acts as an integrative force in society, imparting values that foster social cohesion
and national identity1. Before 1976, education was the exclusive responsibility of the
States. The Constitutional Amendment of 1976 included education in the Concurrent
List. While the role and responsibility of the States in education remained largely
unchanged, the Union Government accepted a larger responsibility of reinforcing the
national and integrated character of education, maintaining quality and standards
including those of the teaching profession at all levels, and the study and monitoring
of the educational requirements of the country.

1.2 With the formulation of National Policy on Education, 1986 India initiated a
wide range of programmes for achieving the goal of Universalisation of Elementary
Education (UEE).These efforts were intensified in the 1980s and 1990s through
several schematic and programme interventions, such as Operation Black Board
(OBB), Shiksha Karmi Project (SKP), Andhra Pradesh Primary Education Project
(APPEP), Bihar Education Project (BEP), U.P. Basic Education Project (UPBEP),
Mahila Samakhya (MS), Lok Jumbish Project (LJP), District Primary Education
Programme (DPEP) and the Sarva Shiksha Abhiyan(SSA) – the flagship Centrally
Sponsored Scheme in partnership with State Governments for UEE across the country.
This was further strengthened with the passage of the Right of Children to Free and
Compulsory Education (RTE) Act, 2009 which gave a legal mandate to provide free
and compulsory elementary education to every child in the age group of 6-14 years.

1.3 States and UTs are supported in the implementation of the RTE Act, 2009
through the Centrally Sponsored Scheme of SSA. The norms of the Scheme have been
aligned with the provisions of the Act vide approval of the Cabinet dated 9th
September, 2010. The estimate of funds required by all States and UTs under the SSA

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India, Planning Commission, Draft Twelfth Five Year Plan (2012-2017) Volume-III, p. 48
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for implementation of the RTE Act, 2009 is determined in the Annual Plans which are
prepared as per the programmatic and financial norms of the Scheme. These signify
the fund requirements for implementation of the norms and entitlements under the
RTE Act, 2009.

1.4 A successful programme of UEE is the precondition for taking the first reliable
step towards Universal Secondary Education. The NPE emphasised improving
equitable access to secondary education and the enrolment of girls, SCs and STs,
particularly in science, commerce and vocational streams (Para 5.13 of the NPE,
1986). The NPE and the Programme of Action (POA), 1992 while recognising
secondary education as a critical instrument for social change, called for its planned
expansion. The NPE, (as modified in 1992) specifically laid emphasis again on
increasing access to secondary education with particular focus on participation of
girls, SCs and STs; increased autonomy of Boards of Secondary Education to enhance
their ability to improve quality; introduction of ICT in school curriculum for coping
with globalisation; renewed emphasis on work ethos and values of a humane and
composite culture in the curricula; and vocationalisation through specialised
institutions or through the refashioning of secondary education to meet the manpower
requirements of the growing Indian economy (Para 5.13 to 5.15).The Rashtriya
Madhyamik Shiksha Abhiyan (RMSA) scheme initiated in 2009, demonstrated the
government’s ambition for a secondary education system that can support India’s
growth and development. In the year 2013-14, four other Centrally-sponsored
Schemes for secondary education viz., ICT in Schools, Girls’ Hostel,
Vocationalisation of Secondary and Higher Secondary Education and Inclusive
Education for Disabled at Secondary stage were subsumed under RMSA. This was
done to provide for convergence based implementation of different programmes for
secondary education with inclusion of aided schools for quality related interventions
and higher secondary segment for certain components.

1.5 The Centrally Sponsored Scheme of Restructuring and Reorganization of

Teacher Education (CSSTE) was initiated in 1987 pursuant to the formulation of the
National Policy on Education (NPE, 1986). The NPE stated that improvement in the
status and professional competence of teachers is the corner stone of educational
reconstruction and envisaged teacher education as a continuous process with pre-
service and in-service training being its inseparable components. District Institute of
Teacher Education (DIETs), Colleges of Teacher Education (CTEs), and Institutes of
Advanced Studies in Education (IASEs) were, therefore, established. Thus, the

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CSSTE Scheme aims to provide infrastructural and institutional support to
Government Teacher Education Institutions (TEIs).

2. Functionality, objectives, scope, coverage, funding and implementation

structure of SSA, RMSA and TE

2.1 The Sarva Shiksha Abhiyan (SSA), Rashtriya Madhyamik Shiksha Abhiyan
(RMSA) and Centrally Sponsored Scheme on Teacher Education (CSSTE) are the
three major flagship school education development programmes of the Ministry of
Human Resource development (MHRD), Government of India being implemented in
partnership with State/UTs. While the SSA covers the elementary level (grades I-
VIII), the RMSA covers grades IX-X (IX-XII for certain components). SSA has been
designated as the vehicle for implementation of the RTE Act, 2009. CSSTE aims to
provide infrastructural and institutional support to Government TEIs to enhance the
quality of teachers across classes I-X.

2.2 The common objectives of all the Schemes are to enhance access through the
expansion of quality school education; to promote equity through the inclusion of
disadvantaged groups and weaker sections, and to improve the quality of education for
all. Interventions in SSA and RMSA are directed towards ensuring minimum
standards in schooling provisions; creating equal opportunities for schooling by
removing gender, social, disability and other barriers; strengthening school based
management for school improvement; increasing the internal efficiency of schools by
improving grade progression and completion of students through demand-side
financing strategies and increasing the level of engagement of primary stakeholders at
the school level; building competencies of school heads, teachers, teacher educators
and administrators; and enhancing student outcomes. CSSTE is providing teachers’
education through proper institutional setup for both pre-service and in-service
training. Further, with the role of SCERT as an academic authority u/s 29(1) of the
RTE Act, the focus will be on strengthening of SCERTs and DIETs. This will also
create more opportunities for teachers as well as teacher educators through opening of
new avenues for in-service as well as pre-service teacher education. With the
persistent efforts of the Central and the State Governments, these schemes have
significantly addressed several major gaps in the school education system.

2.3 The Government has, till now, tried to adopt an integrated approach in the
implementation of the various Centrally Sponsored Schemes. A comparative
statement of objectives, scope, coverage, funding and implementation structure of
SSA, RMSA and CSSTE has been attempted at Annexure –I. However, overtime,
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parallel institutional arrangements at national, state, district and sub-district levels
with little convergence with mainstream school education administration have been
created for the planning and management of these Schemes.

2.4 Although, the Centrally Sponsored Schemes of SSA, RMSA and TE have
significantly contributed towards the government’s efforts to put in place an equitable
quality school education system in the country, their scope and coverage remain
segmented. The Schemes were often more concerned about providing requisite inputs
and delivering intermediate results/outputs rather than raising schooling outcomes.
These schemes seem to have little clarity on the learning outcomes to be ensured in
the school education sector. Recognising these limitations, recently, the MHRD, with
support from the NCERT, has gone for defining the grade specific expected learning
outcomes at the elementary level. In this regard, Learning Outcomes for each class in
Languages (Hindi, English and Urdu), Mathematics, Environmental Studies, Science
and Social Science up to the elementary stage have been developed. These are the
basic levels of learning that children should arrive at the end of each class.

2.5 Independent evaluations of the Schemes have suggested increased convergence

and integration between the Schemes through a single school education development
programme covering grades I-X/XII. This would help in instilling allocative
efficiency and optimal utilization of budgetary and human resources. Many States (18)
have already strived to attain convergence between the two Schemes by making one
State Project Director in-charge of the implementation of SSA and RMSA.
Recognising the potential gains from convergence, an advisory on integrating the
administrative structures at various levels created for SSA and RMSA in the
States to achieve productive synergies, better co-ordination and economies of
administrative costs has already been sent to all States and UTs on 16th
November, 2017 (Annexure –II).

2.6 These Schemes have been in operation since more than 15 years now except
for RMSA. They have helped in making considerable progress in achieving near
universal access at elementary level and enhancing the access at secondary level.
However, the major challenge is provision of quality of education. The focus of the
Central Government needs to be now on encouraging States to take steps for
improvement in quality of education.

2.7 It is in this context, that this concept note makes an attempt to create a single
scheme for School Education by merging the different Centrally Sponsored Schemes

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like the SSA, RMSA and CSSTE into an overarching programme with the broader
goal of improving school effectiveness measured in terms of equal opportunities for
schooling and equitable learning outcomes. A comparative mapping of the
interventions under SSA, RMSA and CSSTE has been done to design a new
programme/scheme for development of school education, which would be a common
sector-wide development programme for addressing the needs of the entire school
education sector rather than that of any programme or scheme like the SSA, RMSA or
CSSTE. This mapping is attached at Annexure-III. This sector-wide development
programme/scheme would also help harmonise the implementation mechanisms and
transaction costs at all levels, particularly in using state, district and sub-district level
systems and resources, besides envisaging one comprehensive strategic plan for
development of school education at the district level.

3. Achieving Synergy Between the Schemes

3.1 Given the shift in the approach to development of school education from input-
based to outcome based central sector interventions as envisaged in the document
entitled, India: Three-Year Action Agenda, 2017/18 to 2019/20 (NITI Aayog, 2017), a
‘paradigm shift’ is envisaged in the approach to central sector spending on school
education. A flagship programme in school education has been conceptualized
(designed and implemented jointly by the State and Central Governments) with the
overall developmental goal of raising the performance of the school education sector
following a strategy of supporting interventions for school effectiveness and
sustainable institutional capacity. The shift in the focus is from project objectives to
improving systems level performance and schooling outcomes. The emphasis of the
combined Scheme would be to incentivize States towards improving quality of
education.

3.2 Unified Administrative Structure and increased Programme Effectiveness:

It has been observed that separate schemes have created an artificial divide of levels
i.e., elementary and secondary within the “School Education Sector”. The Schemes
operate through separate State Implementation Societies with separate bank accounts,
separate project offices and separate project personnel usually under the
administrative control of Secretary, Education of a State. The institutional
arrangements including for planning, budgeting, training and monitoring and
evaluation are separate for both the schemes. This may have led to a duplication of
efforts and personnel towards implementing similar interventions and achieving
similar objectives. A single programme will lead to an optimal utilization of
budgetary allocations and effective use of human resources and institutional
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structures. Approaches to improve access, participation, student flow/internal
efficiency, equity and learning outcomes can be synergized as far as possible. A
school education sector-wide programme would not only minimise transaction costs
by making the programme to contribute towards system performance but also by
creating sustainable institutional capacity and accountability framework at all levels.

3.3 The Scheme for school education envisages the ‘school’ as a continuum from
primary, upper primary, secondary to higher secondary levels. This will smoothen the
transition rates across the various levels of school education and aid in promoting
universal access to children to complete school education. Moreover, the integration
of Teacher Education with the elementary and secondary schooling system would
facilitate effective convergence and linkages between different support structures in
school education through interventions such as a unified training calendar,
Innovations, Mentoring and Monitoring, etc.

3.4 Institutional capacity building: Improvement in quality requires a sustainable

support system of national state & district level institutes. Convergence of the
programmes will encourage major capacity building role for national, state and district
level institutions like NIEPA/NCERT/NCERT/SCERT/SIEMAT/DIET etc. This
single Scheme will enable the SCERT to become the nodal agency for conduct and
monitoring of all in-service training programmes leading to emphasize the integration
of in-service training structures in States through SCERTs to make it need-focused
and dynamic.

3.5 A combined approach to school education would enable exploration of new

digital initiatives for strengthening in-service and pre-service teacher training and
education with a focus on Creation of Digital Learning Material, Innovative Pedagogy
and Capacity Building, etc. This would strengthen the quality of teaching in schools
across levels. It would also enable reaping the benefits of technology and widening the
access of good quality education across all States and UTs and across all sections of
the Society.

4. Proposed Strategy for Implementation

4.1 The budget for all the three schemes will be merged into a single budget
provision. This will be the Central share to be provided to the States and UTs with the
existing fund sharing pattern of 60:40; 90:10 for North-Eastern states and 3
Himalayan States and 100% for Union Territories without Legislature. This will be
allocated amongst the States and UTs based on an index of requirements/ performance
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to be developed by the Department. The use of funds would be governed by approved
interventions within the ceilings decided by the empowered committee of the
department i.e., the Project Approval Board headed by Secretary, Department of
School Education & Literacy. A single Utilisation Certificate would be required from
the State streamlining the merged Schemes, along with component wise physical and
financial expenditure statement.

4.2 Under RMSA, the budgetary provision is being allocated among States and
UTs based on an objective and transparent criteria since last two years. It has an in-
built incentive for focussing on various policy interventions like Aadhar coverage in
SDMIS, rural transfer policy for teachers, school evaluation, separate cadre for
headmasters and outcomes such as performance on National Achievement Survey. It
adopts a gradual approach to fulfil the commitments towards teachers’ salary and
other committed liabilities. It is proposed to adopt this approach for the sector-wide
programme.

4.3 Keeping in view of the role of SCERT as an academic authority u/s 29(1) of
the RTE Act, 2009, the merger of the Teacher Education scheme with SSA and
RMSA will further facilitate the efforts being made by the Central Government to
meet the exceptional challenges for the Teacher Education System arising from the
massive spatial and numerical expansion of schooling facilities at the elementary and
secondary levels and corresponding increase in the demand for teachers. The Right of
Children to Free and Compulsory Education Act, 2009 and its subsequent
amendments, reinforced the importance of teacher training to ensure quality of
education. Thus, the integration of the three schemes would also emphasize the
integration of training structures in States and reiterate the academic position of
SCERTs/SIEs, as the nodal agency for conduct of Teacher Training.

4.4 The approach suggested for inter-state allocation of funds is as follows:

1. The total outlay will be estimated to be twice the total budget allocation
for the year, in view of the sharing pattern and phased releases in respect
of non-recurring works.
2. Committed recurring liabilities including teacher salary, recurring costs
of KGBVs, Girls Hostels, entitlements under RTE Act, 2009 of text
books, uniforms and reimbursement under Section 12(1)(c),
Programme Management, Monitoring Evaluation and Research
(MMER) will be estimated based on the actual requirements of the

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 States and UTs, and allocated proportionately upto a maximum of 60%
of the total budget.
3. Budget for Non recurring expenditure will be distributed among States
and UTs on the basis of data of enrolment and Aadhar coverage of
students submitted in Student Database Management Information
System (SDMIS), upto a maximum of 20% of the total budget.
4. 20% of the total budget would be focused on interventions related to
improvement in quality of education. This will be allocated on 2 criteria
i.e. (a) committed quality interventions like teacher training, school
grants, student assessments, leadership training, ICT, vocational
education etc. and (b) flexible funds for innovative quality interventions
which in-turn will be decided on the basis of performance (example as
evident from NAS result) and advocated policy interventions such as
rural transport policy, separate cadre for Head Masters, restructuring of
Teacher Education Institutions (TEIs) etc.
5. After working out the State allocations on the above formula, States will
be given flexibility to prioritise the components. Within this fund
allocation, States would have to prepare an Annual Plan under the broad
interventions. These will be appraised and approved by the Project
Approval Board of the Department.
6. The States would need to keep in mind the legal requirements of the
RTE Act, 2009, and the committed liabilities under the existing
schemes, before taking up new interventions.

4.4 The States would have to clearly articulate the outcomes and related key
performance indicators and set the annual mile stones. A common Framework for this
would be developed. A robust monitoring MIS system would be developed for
capturing physical and financial progress under various interventions. The financial
norms and the medium & long term monitorable targets/outcomes of the Schemes
would be harmonized to develop uniform interventions for schools.

5. Proposed Design of the Scheme

5.1 States would be expected to bring a single Plan for the entire school education
sector. The Central assistance would be provided at all levels uniformly treating a
school as a continuum. The thrust of the Scheme would be to support States to
improve the quality of school education. The Scheme would be in accordance with the
Sustainable Development Goal for Education (SDG-4) that is to ensure inclusive and
equitable quality education and promoting lifelong learning opportunities for all. The
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Goal SDG-4.1 states that “By 2030, ensure that all boys and girls complete free,
equitable and quality primary and secondary education leading to relevant and
effective learning outcomes”. Further the SDG 4.5 states that “By 2030, eliminate
gender disparities in education and ensure equal access to all levels of Education and
vocational training for the vulnerable, including persons with disabilities, indigenous
peoples and children in vulnerable situations”.

5.2 The aim of the Scheme, accordingly, would be to universalize quality school
education. It would endeavour to support States and UTs in effective implementation
of the RTE Act, 2009. The main outcomes of the Scheme are envisaged as Universal
Access, Equity and Quality including Vocational Education and strengthening of
SCERTs and TEIs. The major interventions proposed are:

I. Universal Access
(i) Sanction of new schools which would include new primary schools, up-
gradation of primary school to upper primary schools, up-gradation of
upper primary school to secondary schools and up-gradation of
secondary schools to higher secondary schools. This would also include
sanction of new composite schools i.e. from Classes-I to XII and
buildings for building less schools.
(ii) Residential Schools and Hostelsin inaccessible areas ranging from
Classes I-XII.
(iii) Strengthening of existing residential schools and facilities for classes I-
XII.
(iv) Transport and Escort facility to children in Classes I-XII in remote
habitations and for Children with Special Needs (CWSN).
(v) Strengthening of existing infrastructure and major & minor repair of
schools from classes I-XII.
(vi) Residential quarters for teachers, especially female teachers in
remote/difficult areas.
(vii) Support for out of school children
(viii) Open schooling system

II. Gender and Equity

(i) The existing Kasturba Gandhi Balika Vidyalayas (KGBVs) at upper
primary level and Girls Hostels at secondary level would be extended to
provide residential and schooling facilities upto Class-XII, so as to have

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 at-least one residential school for girls upto class XII in every
educationally backward block.
(ii) Physical/Self Defence Training for girls
(iii) Other interventions like Environment Building Programme, Inspiration/
Motivation Camp for SC/ST children, enrolment/retention drives etc. at
all levels in classes I-XII

III. Inclusive Education

(i) Supporting Children with Special Needs (CWSN) in schools at all levels
in Classes-I to XII.
(ii) Supporting home based education for CWSN who are unable to go to
schools. This will be for education in Classes-I to XII.
IV. Quality
(i) Teacher Training and professional development including in-service,
pre-service, induction and refresher training to be provided under the
aegis of SCERTs and DIETs etc.
(ii) Academic support of Block Resource Centres (BRC) and Cluster
Resource Centres (CRC) to schools at all levels.
(iii) Conduct student assessments at National or State level
(iv) Research studies on factors effecting access, equity and quality.
(v) Composite school grants including maintenance grant, school grant, and
library grant etc.
(vi) Project based proposals for quality improvement
(vii) Guidance and counselling
(viii) Learning Enhancement Programmes/remedial teaching programmes.
(ix) Leadership Training for Principals/Head Teachers
(x) Bridge courses for Out of School Children.
(xi) Support for Science, Technology, and Engineering and Mathematics
(STEM) education such as Rashtriya Avishkar Abhiyan.
(xii) Support for early reading initiative like Padhe Bharat Badhe Bharat.

V. Financial support for Teacher Salary

(i) Support for newly recruited teachers in newly upgraded schools.
(ii) Support for additional teachers to fulfil the norms of PTR at all levels
(iii) Support of special teachers in schools/clusters of schools.
(iv) Support for salary of Teacher Educators/ Academic Faculty working in
SCERTs, DIETs, BITEs, CTEs and IASEs

VI. Innovation
(i) Innovation for promoting access, equity, quality and gender equality.
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VII. Digital initiatives
(i) Sanction of new ICT projects in schools which would include
hardware/software support.
(ii) ICT in schools-strengthening of existing school in terms of hardware
and software support.
(iii) Development of E-content and teaching learning software.
(iv) Central initiatives to promote use of digital technology such as Shala
Kosh, Diksha etc.
(v) Creation of digital learning material, innovative pedagogy and capacity
building, etc.
(vi) Technology support to DIETs.

VIII. RTE Entitlements

(i) Free Uniforms.
(ii) Free Textbooks.
(iii) Re-imbursement towards expenditure incurred for 25% of admissions
under Section 12(1)(c) of the RTE Act, 2009.
(iv) Special training for age appropriate admission of out of school children.
(v) Community Mobilisation
(a) Section 21 of the RTE Act, 2009, provides for a School
Management Committee (SMC) in every school and envisages
dynamic role of the community in effective monitoring of
schools. As per the existing guidelines of RMSA every secondary
school has a School Development Management Committee
(SDMC). States and UTs have been advised to have a single
SMC in a composite school. This intervention will support
training of SDMC, SMC and PRI members for carrying out the
roles and responsibilities envisaged in the RTE Act, 2009.
(b) In addition activities for creating awareness about RTE Act, 2009
and strengthening the role of community and monitoring the
schools at all levels will also be supported.

IX. Strengthening of Teacher Education Institutions (TEIs)

(i) Strengthening of State Councils of Educational Research and
Training (SCERTs); District Institutes of Education and Training
(DIETs); Block Institutes of Teacher Education (BITEs);Colleges of
Teacher Education (CTEs) and Institutes of Advanced Studies in
Education (IASEs)

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 (ii) Support for Salary of Teacher Educators/ Academic Faculty working
in TEIs.
(iii) Support for Infrastructure Development
(iv) Faculty Development of Teacher Educators
(v) Programme and activities in Teacher Education Institutions (TEIs)
(vi) Establishment of Special Cells
(vii) Establishment of New DIETs in new districts as 31.03.2017.
(viii) Residential Training Programmes of Teacher Educators, DIET
Principals, Head Masters and Master Trainers
(ix) Orientation and Induction Training of Teacher Educators

X. Vocational Education
(i) Vocational Education as an integral part of general education at
Secondary and Higher Secondary level to enhance the employability
of youth.
(ii) Introduction of Vocational subjects at secondary level which would
include Tools, Equipment and manpower costs.

XI. Sports and Physical Education

(i) Increased convergence with Department of Sports.
(ii) Provision of sports and physical education facilities in schools.

XII. National Component (0.5% of total budget)

(i) Support to National Institutions like NIEPA, NCERT, NCPCR,
NCTE etc. for National level programmes related to quality of
education, assessments, data management, digital education.
(ii) Technical Support Group for monitoring of the Scheme

XIII. Infrastructure Development

(i) Construction of schools, additional classrooms, strengthening of
BRCs and CRCs, toilets and drinking water facilities, Science and
Math labs, major repairs to school buildings, etc.

XIV. Programme Management

5.3 The list of interventions proposed above is an indicative list and not an
exhaustive list. Any other interventions to promote the objectives of the Scheme and
improving learning outcomes can be taken-up.

5.4 The draft programmatic and financial norms are attached at Annexure IV.
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 Annexure-I
Table 1:Comparative statement of objectives, scope, coverage, funding and implementation structure of SSA, RMSA
and CSSTE
Areas SSA RMSA Teacher Education Opportunities and benefits of Convergence
Overall Objective To provide quality To quality secondary To provide • Formulating an overarching school education
elementary education education available, accessible infrastructural and development programme with an overall
for all and affordable for all institutional support to objective of making quality school education
Govt. Teacher available, accessible and affordable for all
Education institutions children in the age group 6-18.
(TEIs) • To provide infrastructural and institutional
support to Govt. TEIs
Target Group Children in 6-14 age Children in 14-18 age group Teacher Education • Children in age group 6-18, Teachers and
group Institutions, Teacher Educators can be covered together.
Educators, Teachers and
Student Teachers
Coverage of All government, All government All SCERTs, • Expanded coverage including all government
schools/Teacher government aided and secondary/higher secondary DIETs/DRCs, IASEs, and government aided primary upper primary,
Education private unaided schools with secondary CTEs, BITEs secondary and higher secondary schools.
Institutions sections, and partially • All SCERTs, DIETs and BITEs for stronger
government aided schools linkages with the Block/Cluster level resource
centres
Mode of Through Society Through Society formed by From State treasury to • A single implementation Society for
implementation formed by State State Government SCERT harmonization and reduced transaction costs
Government
School Based School Management School Management and - • SingleSMC/SMDC for all types of schools to
Management Committee (SMC) Development Committee strengthen school based management of
involved in the (SMDC) involved in development interventions. The school becomes
implementation and implementation and the unit for planning and management and not
monitoring monitoring interventions the SSA and RMSA.
interventions

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