Background

Villupuram TLC was sanctioned by NLMA on 6.3.96 at a cost of Rs. 3.55 crores for a target size of 5.40 lakhs non-literates in the 15-35 age group. NLM also released its first installment of Rs. 1,77,57,250 while the State Govt. released Rs. 25 lakhs, totaling Rs. 2,02,57,250.

The run up to the Teaching-Learning(T-L) phase appears noteworthy in many respects: (i) creating a literacy positive environment by the involvement of district administration, through mass contact programmes, in tandem with the kalajatha and non-kalajatha publicity drive; (ii) conducting a one-day Survey, identifying 4.08 lakhs learners, and 40,000 VTs; (iii) completing the multi-tier Training, down to the VTs(24,000 out of 40,000 VTs identified were trained) and commencing teaching-learning in April-May 97; (iv) the full timer structure and management-monitoring system being evolved and made functional at the time of commencement of the centres.

Out of 4.08 lakhs non-literates surveyed, just about half appeared to have been enrolled in 24,000 centres. One reason for this partial coverage seems to be the delay in the supply of Primers by the TN Text Book Corporation.

Concurrent Evaluation

An external agency conducting the Concurrent Evaluation around May-June found the situation quite disparate in respect of publicity, awareness, enrollment, VT training, VTs retention and number of functional centres, learning achievement of learners. Even as only a little more than half the number of centres were started, coming midway through the T-L phase, the Concurrent Evaluation noticed that in 15 out 24 blocks, only less than 40% of the centres were functional, while it was as high as 100% in some areas. However, the learning levels found by the Concurrent Evaluation deserves notice. Notwithstanding the significant differences in the levels of adequacy or effectiveness noticed in respect of publicity, awareness, enrollment, VT retention and functional centres, the learning levels corresponding to Primer I completion was found much better viz., more than 50% in all but just 3 blocks.

Present Position

Most of the learners enrolled in the first leg, are said to have completed Primer I. Primer II supply is awaited and meanwhile a Bridge Primer has been supplied to keep up the learning touch with the learners. With 9,500 more VTs trained in November, new centres were due to commence in Dec. 97.

Revised Action Calendar

Taking stock of the present trend of learning progress and Primer supply, a tentative new schedule has been drawn up, according to which all three Primers would be completed by March 1998. Unlikely as it seemed from the initial discussion with the district level coordinators and the Collector, this served as a reference point to assess the field situation, interaction with literacy workers and the final meeting with the EC of ZSS.

Review Visit

Villupuram TLC was visited during Dec. 3-6. After an initial meeting with the Collector on Dec. 3, we visited 6 blocks, 2 villages, besides the municipal areas in Villupuram. We met and interacted with Block and Sub-block literacy full timers in all the 6 blocks. We also had an occasion to meet the Panchayat Union Chairman of one block, and the BDOs of 4 blocks during our visit. Our visit to the villages were unannounced. Thus, our interaction with the learners, village people and village conveners, was valuable as it was of direct contact without any prompting or tutoring by officials or literacy workers. The Chief Project Coordinator remained with us all through the visit and other district level coordinators on the first and last day.

Between the first (Dec.3) and the last meeting(Dec.5), there was the news of Collector transfer. We shared our impressions with the Collector, still holding charge, and with the EC of ZSS on 6.12.97.

Impressions of Field Visits

Positive Features: The finding of Concurrent Evaluation, viz., just about half the centres functioning in May-June when the T-L was in full swing, could seem disconcerting. But in Dec. to hear and see that this has not declined but improved somewhat is significant. This position, considering the cut back on full timers, caused by full timers leaving for better jobs and the positions remaining vacant, and the consequent lack of visits to the centres, testifies to the tenacity of the VTs and literacy workers in the face of many odds.

The administration's support to the literacy programme is also partly responsible. Although not uniform, the involvement of the BDOs in the monitoring and review at block levels and by the Collector at the district level has helped to lend the TLC an image of partnership between literacy workers and administration, mainly the development wing.

As we ascertained in our field visits, in his weekly Mass Contact Programmes in different parts of the district, the Collector had made it a point to inquire first about literacy work from villagers, literacy workers and officials. Setting a personal example and a role model by the Collector, appears to be the key. BDOs commitment and involvement in literacy work, especially in the trying phase of T-L demands personal conviction and commitment. One may not find it equally with every one and thus the situation varies. But at least in 4 out of the 6 blocks HQs we visited, the BDOs were available to appraise us about TLC work in their blocks, and their cooperation was vouched by the full timers.

Even with all these, it would be incorrect to say that there is now an intense air of TLC. As compared to the EB build up during the preparatory phase, the T-L phase looks to be greatly subdued. But the literacy workers are battling it out amidst many odds, the most disheartening of which seems to be the learners disinterest and VTs' lack of motivation. This looks to be accentuated further partly by the partial coverage in staring the centres, the delay in the receipt and supply of Primer II and the slow pace of T-L.

Suggestions Shared With the EC

(i) Based on visits and interactions in 6 blocks, the full time workers, learners and village people, the suggestions we submitted to the EC are:

(i) inclusion in the VLC and selecting the most active as Village Convener, from among the ICDS Nutrition workers, Noon Meal Organizers, People Welfare Workers, and Panchayat Presidents and Secretaries, and involving them in learners participation in, and daily visit to, the learning centres;

(ii) some immediate arrangements to shift the load shedding timing to either before or after the evening class timings;

(iii) learner disinterest being a major problem, urgent steps to start formation of Literacy Women Groups, group learning and link-literacy activities, like health awareness etc., as an instrument of mobilization and participation by learners;

(iv) the present system of 3 visits for review to the Block HQ in a week by the full timers; this is a drain on their time and energy at the cost of the greatly needed attention at the field level and it needs to be reduced to one visit in a week;

(v) learner drop out and VT disinterest are correlated; to increase VT motivation, as most VTs seem to expect some returns for the voluntarism, it would be judicious to start some programmes for VT development. Certificates for voluntarism to TLC seems to hold good scope for VT motivation. Nothing seems wrong with it and Collelctor could announce this;

(vi) the cut back on full timers on account of learner dropout has adversely affected TLC in the T-L phase, when it is most needed; centres languishing without full timers visit was common refrain among VTs. Since 9000 new centres are on the anvil, it is necessary to quickly restore the full timers strength to ensure their frequent visits to the learning centres; this also affords opportunity to scale up the more deserving full timers from lower to middle and upper levels;

(vii) the fact that in a T-L phase, TLC air is missing is an organisational infirmity. TL centres should become the site of visits for all line functionaries; that alone would lend value for literacy in the eyes of the learners and the VTs; in the weekly review with the BDOs, the block officials of all line departments should be mandated to be present. The inclusion of the Union Panchayat Chairman in the weekly review Meeting would be very useful. Visits to the learning centres by line functionaries must be entered in the VT Register/Diary;

(viii) T-L pace is too slow; T-L started in April-May 97, but Primer II not started as yet; and at this rate, completing Primers II and III within another 3-4 months as proposed looks improbable. NLM has given complete authority to ZSS in matters of T-L material printing precisely to avoid delay. There is urgent need to rethink the primer printing arrangement so as not to jeopardize the T-L pace;

(ix) most important: TLC air is missing in the most crucial T-L phase. As of now, TLC looks to be the burden of full timers and some BDOs. Other wings of administration and civil society at large remain aloof. If TLC has to be completed without further drag, there is immediate need for TLC becoming a central agenda of district administration; a fresh EB, a system of frequent and direct contact between the Collector and senior officials with literacy workers down to the VTs, and such other steps are urgently needed; and

(x) literacy efforts in adverse circumstances are more testing and trying than in a place without such hurdles. The campaign may not be a run away hit but the efforts put in by the fulltimers in many cases, and the learners'response seen in some areas are exceptional. There is need to collect such notable/exceptional experiences in Villupuram TLC for dissemination. NLM would bless such ventures that could lead to a publication by the end of the campaign.

Financial position: Adjusting the Rs. 50 lakhs advanced for mobilization, NLM released the first installment of Rs. 1.77 crores in Aug. 1996 and the State Govt. also released Rs. 25 lakhs. The II installment or TLC balance is due both from NLM and the State Govt. With heavy financial commitments still ahead for Primer I for half the number of learners and Primers II and III for the whole of 4.08 lakhs surveyed learners, besides training and other expenses, Villupuram TLC has been very cautious in the matter of spending. Audited statement of TLC accounts for I installment is still to be submitted. Villupuram TLC is awaiting the II installment from NLM.

Conclusion

Prelaunch preparations started in 1995 and T-L in April-May 1996, Villupuram TLC is still mid-way through its T-L phase. The EB was massive, lending an image of a mass programme, the preparations were comprehensive, and the commencement of T-L was opportune, albeit with just half its coverage of the surveyed learners. But T-L phase tended to drag. One major problem appears to have been the delay in the supply of primers. Although an effective monitoring and campaign management system was evolved, it appeared confined to the full timers and development functionaries like the BDOs. The VLCs seemed to have been rather inactive. The case of broad-basing the committees and active involvement of govt., and semi-govt. functionaries of line departments as well as welfare and education departments seems urgently called for from village to district levels. If the revised POA, envisaging completion of T-L by March-April 1998, is to be completed, a fresh EB, invoking civil society's response as in the initial stage, and a tight leash on the T-L tempo are urgently needed.

The suggestions offered were endorsed and accepted by the Collector and the EC. Recognizing the lagging pace of TLC, the EC assured to quicken the pace of implementation. They also welcomed NLM's gesture of lending NLM Consultants for guidance and requested us to continue our association with Villupuram TLC.