UNIVERSALIZATION OF ELEMENTARY EDUCATION IN THE STATE OF SIKKIM

  1.      General Background of the State

The erstwhile kingdom ruled by the Chogyal dynasty was integrated into the Indian Union in 1975. Before its merger with India, Sikkim functioned as a Protectorate State under the Government of India. The population was sparsely distributed, and the kingdom remained largely isolated from the mainstream in many spheres of development. Following its merger with India in 1975, the tiny Himalayan state underwent a remarkable transformation and witnessed significant progress in demographic growth as well as in the development of infrastructure and public services.

Sikkim added another feather to its cap when it became the eighth constituent state of the North Eastern Council through the North Eastern Council (Amendment) Act, 2002 (Act No. 68 of 2002). Today, Sikkim is one of the member states of the North Eastern Council, alongside Arunachal Pradesh, Assam, Manipur, Meghalaya, Mizoram, Nagaland, and Tripura.

Sikkim is a small state located in the eastern Himalayas of India. Geographically, it is bounded by China (Tibet Autonomous Region) in the north, Bhutan in the east, the Darjeeling district of West Bengal in the south, and Nepal in the west. It lies between 27° and 28° North latitude and 88° and 89° East longitude. The capital of Sikkim is Gangtok.

The total geographical area of Sikkim is 7,096 square kilometres. The district-wise distribution of the area is presented in the table below.

District	East	West	North	South
Area%	13.44%	16.43%	59.56%	10.57

 

Sikkim is a mountainous state characterized by rugged terrain, rivers, lakes, streams, mountain passes, and valleys spread across varying elevations. Two of its most famous mountain passes, Nathula and Jelepla, are situated at an altitude of about 14,500 feet above sea level. Nathula, located approximately 50 kilometres from Gangtok, the state capital, is one of the most prominent tourist destinations in Sikkim. Visitors can witness Indian and Chinese soldiers stationed face-to-face across the international border. The picturesque Tsongmo (Changu) Lake and Memenchu Lake also attract thousands of tourists from India and abroad every year.

According to the 2001 Census, Sikkim had a population of 539,584, of which 251,885 were females. The population density was approximately 76 persons per square kilometre.

Before its merger with the Indian Union in 1975, Sikkim was sparsely populated. Following its integration as the 22nd state of India, the state experienced significant demographic growth and social transformation. The Lepchas are considered the original inhabitants of Sikkim. Over time, the state evolved into a multicultural society comprising four major communities: the Lepchas, the Bhutias, the Nepalis, and the business community.

For administrative purposes, the state has been divided into 607 revenue blocks and 909 ward panchayats. In line with the 73rd and 74th Constitutional Amendments, administrative powers have been progressively decentralized and delegated to Panchayati Raj Institutions.

The government school system has also been organized to support decentralized educational administration. The 782 government schools in the state have been grouped into 131 clusters, each supported by a Cluster Resource Group and headed by a Cluster Resource Coordinator, who is usually the Head Teacher of the lead school. At the grassroots level, School Management Committees (SMCs) play an important role in school governance, and every government school has its own SMC.

According to the household survey conducted in 2007, a total of 866 habitations were identified in the state. Of these, 97 were school-less habitations and were served through Education Guarantee Scheme (EGS) and Alternative and Innovative Education (AIE) Centres. Many of these habitations are located in geographically challenging and sparsely populated areas, making the provision of educational facilities a considerable challenge.

2.      Universalization of Elementary Education: The chasm between objectives and achievements

In simple terms, Universalization of Elementary Education refers to the provision of free and compulsory education to all children up to the age of 14 years, regardless of their caste, creed, colour, gender, religion, socio-economic background, or geographical location.

2.1.            Background: Universalization of Elementary Education in the context of Sikkim

Decadal Literacy Rate Census Year National Sikkim 1951 18.33 - 1961 28.31 - 1971 34.45 - 1981 43.67 34.05 1991 52.21 56.94 2001 65.38 69.68 Source: Census of India: 1981, 1991 & 2001

At the time of its merger with the Indian Union in 1975, the educational scenario in Sikkim was relatively underdeveloped due to a variety of socio-economic and socio-cultural factors. The establishment of schools had not been guided by systematic educational planning or school mapping. Instead, the influence of local communities often determined where schools were opened. Consequently, the uneven distribution of schools, inadequate infrastructure, shortage of qualified teachers, and the cost of schooling were among the major factors that limited children's access to education.

The process of universalizing elementary education in the state gained momentum when the Government of Sikkim introduced various incentive schemes to encourage school attendance. These initiatives led to a substantial increase in student enrolment across the state.

A significant expansion of educational facilities took place during the decade from 1975 to 1985, when approximately 42–43 per cent of the state's schools were established. The implementation of Operation Blackboard under the National Policy on Education (1986) further strengthened primary education by providing essential facilities to all primary schools in the state.

In addition, a range of incentives—including mid-day meals, free textbooks, exercise books, school uniforms, school bags, raincoats, tuition-free education, and other support measures—played a crucial role in advancing the goal of Universalization of Elementary Education in Sikkim.

To encourage academic excellence, the Education Department of the Government of Sikkim conducts an annual examination for students of Class VI to award Merit Scholarships. Students securing the first, second, and third positions at the district level are awarded scholarships of ₹1,200, ₹1,000, and ₹800 per annum, respectively.

Stage-wise Growth of Enrolment (1980-85 to 1991-92)

Stage of Education	Achievement in Enrolment				% age of Girls’ Enrolment in 1992-93
	1980-85	1985-90	1991-92	1992-93
Primary (Classes I-V)	60821	71515	73324	74497	46.9
Middle (Classes VI-VIII)	13423	14591	15998	18515	47.5

Source: Educational Administration in Sikkim, NIEPA, 1995

2.2.            Progress overview under Sarva Shiksha Abhiyan 

The holistic and convergent programme, Sarva Shiksha Abhiyan (SSA), was launched in Sikkim in 2001 as a mission-mode initiative with the objective of providing elementary education to all children in the state. The programme sought to achieve this goal by ensuring the availability of essential educational facilities, including classrooms, toilets, teachers, and teaching-learning materials.

Sarva Shiksha Abhiyan was initially implemented in West Sikkim District and was subsequently extended to the remaining three districts of the state. The programme achieved notable success in improving access, enrolment, and retention, enabling the state to gradually shift its focus towards enhancing the quality of education. From the outset, the state pursued the programme with great enthusiasm, aiming to bring all children in the 6–14 age group into the formal school system. Alongside the household survey, a survey of habitations lacking schooling facilities was also undertaken. Cluster Coordinators were instructed to prepare micro-plans, including detailed mapping of school-less habitations. 

The household surveys conducted during the pre-project phase in 2000 (in West Sikkim) and 2001 (in the other three districts) identified 15,033 out-of-school children in the state, representing approximately 13.7 per cent of the total population of children aged 6 to 14 years. The survey revealed that 21 per cent of these children were out of school due to lack of access to educational facilities, 32.5 per cent due to lack of interest, 19.4 per cent due to economic compulsions requiring them to work, 6 per cent due to household responsibilities, 7 per cent due to migration, 13 per cent due to failure and grade repetition under the then detention policy, and 1.1 per cent due to disabilities.

The findings indicated that the largest proportion of out-of-school children fell into the category of “lack of interest,” which emerged as a serious challenge to the universalization of elementary education in the state. Consequently, District Project Offices were directed to investigate the underlying reasons for children's disinterest in schooling. Several districts organized programmes using Participatory Learning and Action (PLA) techniques to gather children's perspectives. Some districts also undertook research studies on the issue.

The findings were both revealing and thought-provoking. Many children expressed dissatisfaction with the teaching-learning processes being adopted in schools. They felt that classroom instruction often treated them as passive recipients of information rather than active participants in learning. According to their perceptions, teachers frequently expected them to receive and reproduce information mechanically, with little opportunity for exploration, creativity, or meaningful engagement in the learning process.

The findings can be summarised as under:

ü  Teachers are fearsome

ü  Boring classrooms

ü  Boring teaching

ü  Teachers are not sensitive towards their students

ü  Teachers want the children to learn what and how they teach

ü  Students are forced to remain silent (patient) in the classroom

ü  Schools are not attractive

ü  Shortage of teachers (in difficult areas)

ü  Repeated failure (detention)

ü  Teachers don’t know about students’ families and backgrounds

ü  Teachers talk very little with students

ü  Teachers do not care about the 3 ‘Fs’ of students, i.e. Failure, Fun and Future

ü  There is no scope for a job in future (At least we can earn Rs. 15/- going for daily wage work), etc.

The findings emerging from the PLA exercises with children underscored the need for a deeper examination of school and teacher performance. Consequently, the State Project Office instructed the districts to undertake research studies to identify the factors contributing to the concerns expressed by children regarding their schooling experiences.

In this context, an Assessment Study on School Performance conducted by D. B. Subba, Assistant Director, South District, Sikkim, brought to light the following observations:

ü  Teachers are demotivated/uninterested

ü  Teachers are using traditional teaching methods

ü  Teachers are not following the medium of instruction during the teaching-learning process

ü  Teachers are not aware of developing and using the TLMs during the teaching-learning process

ü  Teachers are not using their ‘understanding of children’s background and academic level’ to identify the support levels/nature to be provided to the learners

ü  Teachers are input oriented (Input-Process-Output)

ü  80% of senior teachers who have a few years before retirement are reluctant in their duty and fall under the untrainable category

Based on the findings of the above research study, the state organized a number of initiatives, including teacher motivation camps at the cluster level, teachers' conferences at the constituency level, and monthly cluster-level meetings for sharing experiences, innovations, and best practices. Teachers and school heads were regularly reminded of the importance of achieving universal enrolment and retention through effective teaching and sound school management. Outstanding teachers were duly recognized and rewarded for their contributions.

In addition, the Chief Minister's Office issued a public appeal encouraging parents and communities to ensure the enrolment of all school-age children. These initiatives significantly strengthened the enrolment drive and helped bring many out-of-school children into the formal education system.

The state also made commendable efforts to promote professional development and a positive work culture among teachers. Teachers were sensitized to recent developments in pedagogy and the changing focus of classroom practices from teacher-centred instruction to learner-centred approaches. The District Institute of Education and Training (DIET) and the State Institute of Education (SIE) provided training to block and cluster coordinators in classroom observation and academic support. These coordinators were also oriented to their roles and responsibilities as educational leaders and mentors.

Following the training, the coordinators conducted regular meetings with teachers and guided school heads on various aspects of school improvement and classroom practices:

ü  To institutionalize various disciplines in the schools like punctuality, regularity, work culture, etc.

ü  To form core groups in the school to mentor, monitor and assist school heads in different activities of the school

ü  To develop serenity in and around the school campus

ü  To create a joyful and jubilant environment in the schools and

ü  To submit monthly/quarterly report on scholastic and non-scholastic activities conducted by the schools.

Access was another problem in the way of Universalization of Elementary Education in the State. Out of 866 habitations, 97 habitations were accessless at the time of inception of Sarva Shiksha Abhiyan in the State.

District	HHS during pre-project activities		HHS 2004		HHS 2007
	Accessless habitations	OoSC due to lack of access	Accessless habitations	OoSC due to lack of access	Accessless habitations	OoSC due to lack of access
East	40	445	40	165	24	0
West	16	1114	5	713	0*	226
North	11	550	3	0	3	23
South	30	1020	25	787	9	63
State	97	3129	73	1665	36	312

(*Three primary schools sanctioned AWP&B 2003-04 delayed to open due to land problem) Source: Districts’ Annual Plans & Reports

The process of mainstreaming out-of-school children during the initial phase of the project was slow, and the state realized that meaningful progress could not be achieved without creating awareness among parents and communities about the importance of education.

Accordingly, the state directed the SSA functionaries in all districts to convene meetings with Cluster Coordinators, school heads, Panchayati Raj representatives, local community leaders, non-governmental organizations (NGOs), Self-Help Groups (SHGs), and teachers. These meetings focused on issues related to universal enrolment and the development of locality-specific strategies to strengthen enrolment drives and bring out-of-school children into the formal education system.

The percentage of out-of-school children in the 6–14 age group who were mainstreamed during the first six years of the implementation of Sarva Shiksha Abhiyan in Sikkim is presented in the table below:

District	HHS during pre-project activities		HHS 2004		HHS 2007
	Total OoSC	Coverage %	Total OoSC	Coverage %	Total OoSC	Coverage %
East	7206	47.28	3407	33.52	1142	15.85
West	2651	55.75	1874	36.50	684	25.80
North	2526	44.62	1127	30.26	341	13.50
South	2650	(-)28.19	3397	30.53	1037	30.53
State	15033	65.22	9805	32.68	3204	21.31

Source: HHS 2001, 2004, 2007

At present, the number of out-of-school children in the state stands at 3,204, which constitutes 2.91 per cent of the total child population. This reflects an achievement of nearly 79 per cent coverage of out-of-school children, despite the challenges posed by the state's dispersed population and difficult mountainous terrain.

To enhance educational access, the state established new primary schools and upgraded existing primary schools to upper primary schools in accordance with local requirements. The district-wise distribution of habitations and their access to primary and upper primary education is presented in the following tables:

 Habitation and Access (Primary)

District	Total No. of habitations	Habitations covered by			Habitations not eligible for PS/EGS
		Primary Schools (State)	EGS	Primary Schools (SSA)
East	282	232	16	10	24
West	230	214	3	13	0
North	101	76	8	14	3
South	253	216	21	7	9
Total	866	738	48	44	36

Source: HHS 2001, 2004, 2007

Habitation and Access (Upper Primary)

District	Total No. of habitations	No. of habitations having UPS facility in 3km radius	No. of habitations without UPS facility in 3km radius	No. of schoolless habitations for UPS as per distance and population norms	No. of Pry schools	No. of U. Pry schools	Primary & Upper Primary ratio
East	282	96	0	0	242	96	2.5:1
West	230	62	0	0	227	62	3.7:1
North	101	30	0	0	90	30	3:1
South	253	84	0	0	223	84	2.6:1
State	866	272	0	0	782	272	2.9:1

Source: HHS 2001, 2004, 2007

Trends of Enrolment in the last three years:

2004-05			2005-06			2006-07
Boys	Girls	Total	Boys	Girls	Total	Boys	Girls	Total
57319	57910	115229	58211	59548	117759	58055	59667	117722

Source: DISE 2004, 2005 & 2006

2.3.            Out of School Children yet to bring in the School System

At present, the State has identified 3,204 out-of-school children and has initiated a range of interventions to bring them into the formal education system. Mainstreaming out-of-school children is a challenging task, as they often represent the most difficult-to-reach segment of the child population—the lost, least reached, and last children. Locating these children, engaging with their families, and ensuring their enrolment and retention in schools require sustained efforts and targeted strategies.

Nevertheless, the State has undertaken proactive measures to reach every identified child and family, motivate them towards education, and facilitate the children's return to the schooling system.

The following tables present the district-wise, gender-wise, age group-wise, and community-wise distribution of out-of-school children in the State.

 A.    Out-of-School Children (6-11 years age group)

District	All community			Scheduled Caste			Scheduled Tribe
East	158	155	313	24	25	49	55	51	106
West	214	167	381	68	61	129	69	49	118
North	77	88	165	2	2	4	51	55	106
South	203	145	348	21	11	32	85	67	152
State	652	555	1207	115	99	214	260	222	482

Source: Household Survey 2007

 

B.     Out-of-School Children (11-14 years age group)

District	All community			Scheduled Caste			Scheduled Tribe
East	417	412	829	28	28	56	62	59	121
West	178	125	303	49	25	74	71	50	121
North	107	69	176	7	0	7	72	48	120
South	410	279	689	40	15	55	161	110	271
State	1112	885	1997	124	68	192	366	267	633

Source: Household Survey 2007

The current status of out-of-school children in the State reveals that 41 per cent have never been enrolled in school, while 59 per cent are school dropouts. Among different social groups, Scheduled Castes record a comparatively higher proportion of both never-enrolled and dropout children in relation to their population in the 6–14 years age group, followed by Scheduled Tribes.

Despite these concerns, the overall proportion of out-of-school children in the State remains encouragingly low, reflecting the sustained efforts made towards achieving universal elementary education.

The table below presents the community-wise percentage of never-enrolled and dropout children in relation to the respective population of children aged 6–14 years.

Percentage of Never Enrolled Children			Percentage of Dropout Children			Percentage of Total Out-of-School Children
Total	SC	ST	Total	SC	ST	Total	SC	ST
1.20	3.60	1.98	1.70	2.53	2.37	2.91	6.14	4.37

Source: Household Survey 2007

The people of Sikkim have traditionally upheld the principle of gender equality, and this is reflected in the schooling of children across the State. The proportion of out-of-school girls is comparatively lower than that of boys, indicating that gender disparity in access to schooling is not a significant concern in Sikkim.

This positive trend is evident across all districts and social communities, with the exception of East District, where the percentage of out-of-school girls is higher than that of boys. The factors contributing to this anomaly warrant further investigation and research.

The following tables present the percentage of out-of-school children by district, age group, community, and gender in relation to their respective district-wise, age group-wise, community-wise, and gender-wise populations.

 A.    Out-of-School Children in the Age Group of 6-11 years

District	All community			Scheduled Caste			Scheduled Tribe
	Boys	Girls	Total	Boys	Girls	Total	Boys	Girls	Total
East	1.00	1.00	1.00	2.54	2.98	2.74	1.85	1.83	1.84
West	2.00	1.59	1.80	9.28	9.92	9.57	1.44	1.07	1.26
North	2.75	3.13	2.94	2.41	2.25	2.33	2.50	2.70	2.60
South	2.57	1.98	2.29	3.84	2.15	3.02	3.63	3.03	3.34
State	1.76	1.53	1.65	4.98	4.82	4.90	2.14	1.91	2,03

Source: Household Survey 2007

B. Out-of-School Children in the Age Group of 11-14 years

District	All community			Scheduled Caste			Scheduled Tribe
	Boys	Girls	Total	Boys	Girls	Total	Boys	Girls	Total
East	5.30	5.67	5.48	6.35	6.53	6.44	14.06	13.75	13.91
West	4.99	3.73	4.38	22.48	15.92	19.73	4.68	3.81	4.27
North	7.86	5.61	6.79	12.96	0.00	8.86	7.28	5.29	6.33
South	6.74	4.62	5.69	9.80	3.90	6.94	8.73	6.10	7.43
State	5.89	4.95	5.43	11.06	6.83	9.07	7.64	6.00	6.85

Source: Household Survey 2007

C. Total Out-of-School Children in the Age Group of 6-14 years

District	All community			Scheduled Caste			Scheduled Tribe
	Boys	Girls	Total	Boys	Girls	Total	Boys	Girls	Total
East	2.44	2.48	2.46	3.75	4.18	3.95	3.43	3.42	3.43
West	2.75	2.11	2.44	12.30	11.14	11.78	2.22	1.68	1.96
North	4.42	3.88	4.15	6.57	1.75	4.38	4.07	3.49	3.78
South	4.39	3.17	3.79	6.39	2.90	4.70	5.87	4.41	5.16
State	3.15	2.66	2.91	6.97	5.47	6.26	3.70	3.04	3.38

Source: Household Survey 2007

The factors contributing to children remaining out of school have already been discussed in the preceding section. The household survey revealed that North District has a comparatively higher proportion of out-of-school children due to socio-economic reasons, accounting for nearly 29 per cent of the district's total out-of-school children.

North District is predominantly inhabited by the indigenous tribal communities of the State, where certain traditional social practices and socio-economic challenges continue to impede the universalization of elementary education. The district covers the largest geographical area in Sikkim while having the smallest and most sparsely distributed population. Its terrain is exceptionally rugged, with elevations ranging from about 2,500 feet to over 27,000 feet above sea level, including extensive snow-covered mountain regions. These geographical and demographic conditions pose significant challenges to educational access and participation.

Another noteworthy finding of the household survey relates to East District, where a remarkably high proportion of out-of-school children were reported to have left school due to academic failure. This category accounts for as much as 44.40 per cent of the district's total out-of-school children. Such a high percentage warrants serious attention and calls for an in-depth study of school performance, learning outcomes, and institutional efficiency, similar to the research initiatives undertaken in South District.

The table below presents the reason-wise distribution of out-of-school children in the State.

Details	East	West	North	South	Total	Reason-wise %
Total number of OoSC	1142	684	341	1037	3204
Lack of interest	144	45	117	453	759	23.7
Lack of access	0	226	23	63	312	9.74
Household work	212	62	64	136	474	14.79
Migration	41	51	37	62	191	5.96
Earning compulsion	238	98	0	44	380	11.86
Failure	507	202	0	100	809	25.25
Socio-economic reason	0	0	100	17	117	3.65
Non-flexibility in school timing	0	0	0	23	23	0.72

Source: Household Survey 2007

The category “Others” in the above table includes out-of-school children whose circumstances do not fall under the reasons specifically listed. These include children with disabilities, children residing in isolated households that become inaccessible during the monsoon due to seasonal streams, and other similar situations that hinder their access to schooling.

The State has been implementing a dedicated programme for Children with Special Needs (CWSN) through the Integrated Education for Disabled Children (IEDC) scheme. The programme is administered under the supervision of an officer at the level of Joint Director. Recognizing the importance of ensuring educational access for all children, the State has also incorporated Inclusive Education as a key intervention under the Sarva Shiksha Abhiyan (SSA) Annual Work Plan and Budget (AWP&B) 2007–08, to advance the universalization of elementary education.

3.      Ownership and Governance of Schooling System

The schools catering to elementary education in Sikkim are of five types, which are –

a)      Lower Primary School caters from pre-primary to class III

b)      Primary School caters from Pre-primary to Class V

c)      Junior High School caters from Pre-primary to Class VIII

d)      Secondary School caters from Pre-primary to Class X, and

e)      Senior Secondary School caters from Pre-primary to Class XII

 This means that the schools in Sikkim are in a composite set-up.

The management structure and processes of standalone elementary schools (Lower Primary, Primary, and Junior High Schools) differ from those of secondary-level institutions (Secondary and Senior Secondary Schools). In accordance with the 73rd Amendment to the Constitution of India, the management of standalone elementary schools has been entrusted to the Panchayati Raj Institutions (PRIs). Consequently, these schools function through three parallel management channels: Local Bodies (PRIs), Administrative Line, and Academic Line.

Every Lower Primary and Primary School is governed by a School Managing Committee (SMC) chaired by the concerned Gram Panchayat Member or Pradhan (Panchayat President). Similarly, in the case of Junior High Schools, the SMC is chaired by the respective Zilla Panchayat Member. The Head Teacher of the school serves as the Member Secretary of the SMC.

The School Managing Committees are responsible for monitoring and supervising the functioning of schools and submitting reports to the administrative authorities for necessary action. They also assist schools in implementing civil works at the school level and ensure the effective utilization of resources received from various government programmes and agencies. However, Panchayati Raj Institutions and community representatives have not been vested with key administrative powers such as the transfer of teachers, preparation of confidential reports, or other personnel-related functions.

The administrative line of the Education Department comprises four Directorates: the Directorate of Academics and Administration, the Directorate of Technical Education, the Directorate of Vocational and Higher Education, and the Directorate of Elementary Education and Literacy.

The level-wise management structure of elementary education in Sikkim is presented in the table below.

Level	Political/Local Bodies	Administrative	Academic Support
State	Ministry of HRDD, Govt. of Sikkim	Secretariat/ Directorate of HRDD headed by the Secretary/Directors (Academics & Administration and Elementary Education & Literacy)	SIE headed by Director Academics & Administration
District	Zilla Panchayat	District HRDD Office headed by the Joint Directors	One DIET at State capital in East District headed by the Joint Director
Sub-Division	Zilla Panchayat	Sub-Divisional HRDD Office headed by the Assistant Directors	Block Resource Centres
Block Administrative Centre*	Zilla Panchayat	BAC level HRDD Office headed by the Assistant Directors	-
Cluster/Complex	Gram Panchayat, SMC	Complex Organizers	Cluster Resource Centres
Village	Gram Panchayat, SMC	Head teachers	CRC Coordinators and Teachers

* The Block Administrative Centre (BAC) is a newly established unit, and efforts are underway to develop academic support mechanisms at the BAC level.

The Directorates carry out both administrative and academic inspections of schools within their respective jurisdictions. The State's inspection system remains largely traditional, as it lacks clearly defined targets, systematic observation techniques, structured interactions, and comprehensive verification of school records. Nevertheless, the State has been making concerted efforts to strengthen and modernize the inspection process. One significant step in this direction has been the restructuring of the administrative setup by expanding the number of Directorates from two to four.

The rapid growth of private schools and the increasing preference of parents for private education have emerged as common trends across the North-Eastern States. According to DISE 2006, approximately 15 per cent of elementary school children in Sikkim were enrolled in private schools, representing a substantial increase over the previous year. This trend has been accompanied by a gradual decline in enrolment in government schools. Many parents perceive the teaching-learning process in private schools to be more effective than that in government schools. In addition, there is a widespread belief that parental concerns and opinions receive greater attention in the administration and management of private schools.

At the same time, it has been observed that some private schools, despite employing less-qualified and inadequately trained teachers, place a stronger emphasis on literacy and academic achievement, often focusing primarily on the cognitive development of children. Such an approach may overlook the holistic development of learners and could potentially contribute to the erosion of ethical and social values.

Providing educational facilities to small and scattered populations in remote habitations is a formidable challenge. In the hilly regions of the State, many settlements with only a few school-age children become isolated from the main village due to monsoon-fed streams, landslides, and difficult terrain. In such circumstances, Education Guarantee Scheme (EGS) centres have proved to be an effective alternative for ensuring access to elementary education.

Recognizing this need, the State Mission Authority of Sarva Shiksha Abhiyan decided in 2004 to engage Non-Governmental Organizations (NGOs) to operate EGS centres across the State. Advertisements were published in leading newspapers inviting eligible NGOs to participate. District Project Offices were instructed to receive applications from interested NGOs, verify the required formalities, and forward the applications to the State Project Office for final selection. At the beginning of the 2005 academic session, the following NGOs were selected to operate EGS centres in different districts:

District	Name & Address of NGOs
East	Bidya Bharati, HQ Gangtok, East Sikkim
West	Agrigaon Samaj, Gyalshing, West Sikkim
	Begha Samaj, Begha, West Sikkim
	Radhu Samaj, Radhu Khandu, West Sikkim
North	Muutanchi Lhom Aal Shezum, HQ Mangan, North Sikkim
South	Himalayan Educational Society, Temi Tarku, South Sikkim
	Teesta Tendong Club, Bermiok Tokal,  South Sikkim
	Milan Samaj Sewa Samiti, Mellidara,  South Sikkim

    

At present, the State operates 48 Education Guarantee Scheme (EGS) centres serving 1,233 children, which are managed by the eight NGOs mentioned above.

Community participation in school governance is also being strengthened through the training of School Management Committee (SMC) members and community leaders. In addition, Non-Governmental Organizations (NGOs) and Self-Help Groups (SHGs) are being actively involved in the academic and infrastructural development of schools. Recently, the State introduced the concept of Mother-Teacher Associations to monitor and ensure the quality of cooked mid-day meals served in schools.

4.      Issues in Planning for Universalization of Elementary Education

Planning under the Sarva Shiksha Abhiyan (SSA) follows a bottom-up approach, beginning at the lowest level of the education system—the school or habitation. As noted earlier, Sikkim has 782 government schools, and the catchment area of each school constitutes the basic planning unit under SSA.

Each school prepares a catchment area-level plan through the active involvement of the School Management Committee (SMC), Panchayati Raj Institutions (PRIs), parents, and local community members. These plans are submitted to the cluster level, where they are consolidated and forwarded to the respective blocks. The blocks, in turn, consolidate the cluster-level plans within their jurisdictions and submit them to the district authorities. The districts then forward the consolidated plans to the State Project Office. Finally, all district-level Elementary Education Plans are integrated at the State level, along with State-specific components, to formulate the overall State plan.

However, it has been observed that the plans originating from the school level are largely confined to the physical dimension of schooling, such as infrastructure and facilities. The cognitive, organizational, and social dimensions of school development often receive inadequate attention. To address this gap, the District Project Offices have been directed to organize extensive training programmes for SMC members and Panchayati Raj representatives to ensure that all dimensions of school development are adequately reflected in school-level planning.

With regard to fund flow, the State Project Office transfers funds to the districts, which subsequently release funds to the blocks under their jurisdiction. The blocks then transfer funds to the clusters, and finally to the schools for implementation of approved activities.

Broadly speaking, the population of Sikkim may be categorized into two socio-economic groups: (i) the educated, employed, and economically secure population, and (ii) the semi-literate and economically disadvantaged population. A similar pattern is visible in school enrolment. Children from economically better-off families are more likely to attend private schools, whereas children from economically weaker families predominantly attend government schools.

This situation has created a paradox in the education system: many teachers employed in government schools choose to enrol their own children in private schools. Consequently, teachers who serve in government schools often teach children from economically disadvantaged backgrounds, while their own children benefit from private schooling. This disconnect may reduce teachers' personal stake in the quality and effectiveness of government schools.

Furthermore, nearly 90 per cent of children enrolled in government schools are first-generation learners who receive little or no academic support at home. In such circumstances, the role of teachers in planning and implementing educational programmes at the school and catchment-area levels becomes crucial. However, when teachers' own children are not part of the government school system, their engagement in micro-level planning and programme implementation may be weakened, potentially leading to a degree of indifference towards grassroots educational initiatives.

In addition, many officials responsible for the planning, implementation, monitoring, and management of education in the government sector also do not have their children enrolled in government schools. This situation has, at times, led to gaps in identifying priorities and determining the areas that require greater attention and investment. However, those government employees who recognize that the quality of public education ultimately shapes the society in which their own children will live tend to demonstrate a greater commitment to educational improvement.

As mentioned earlier, there are 3,204 out-of-school children in the State in the 6–14 years age group. Of these, 59 per cent are school dropouts, and nearly 85 per cent of the dropout children are either unwilling to return to school or have left due to repeated academic failure. Over the past three years, the State has been designing and implementing various strategies to reintegrate these children into the schooling system.

A key strategy adopted for this purpose is the introduction of bridge courses tailored to the learner's academic competency, chronological age, and the grade level into which the child is expected to be mainstreamed. However, designing the curriculum for bridge courses, selecting appropriate learning materials, determining the duration of the courses, and developing implementation guidelines are highly specialized tasks requiring professional expertise.

Ideally, these responsibilities should be undertaken by State-level academic institutions such as the State Institute of Education (SIE) and the District Institutes of Education and Training (DIETs). However, due to a shortage of academic personnel, these institutions have been unable to fully undertake the assignment. To address this challenge, the State has proposed training academically competent officers from the districts to oversee the planning, implementation, and monitoring of bridge courses within their respective districts.

The challenges faced by children who remain out of school due to factors such as economic compulsion, seasonal migration, or household responsibilities can often be addressed through sustained motivation, counselling, and community engagement. Recognizing this, the State has incorporated locality-specific strategies and interventions in the Annual Work Plan and Budget (AWP&B) 2007–08 to facilitate the enrolment and retention of such children in the formal education system. 

5.      Teachers of Elementary Schools in Sikkim

It is worth noting that teaching is among the most respected and best-remunerated professions in the State. The social esteem enjoyed by teachers, however, often depends on the degree of professionalism, commitment, and dedication demonstrated by individual teachers. 

At the elementary level, the State has two categories of teachers: Primary Teachers and Graduate Teachers. Primary Teachers are responsible for teaching up to Class V, while Graduate Teachers teach at the upper primary level. In addition, separate teachers are appointed to teach pre-primary classes.

The following table presents the number of teachers, student enrolment, and the Teacher-Pupil Ratio (TPR) in government schools across the State.

District	Teachers			Enrolment			TPR
	Primary	U/Pry	Total	Primary	U/Pry	Total	Primary	U/Pry	Total
East	1362	621	1983	27449	11945	39394	1:20	1:19	1:20
West	1122	353	1475	17746	6068	23814	1:16	1:17	1:16
North	421	145	566	4822	1668	6490	1:12	1:12	1:12
South	1109	314	1423	18779	6712	25491	1:17	1:21	1:18
Total	4014	1433	5447	68796	26393	95189	1:17	1:18	1:17

Source: DISE 2006

It has been observed that schools in which teachers reside within the school's catchment area tend to perform better, and their teachers and school heads are often recommended for commendation and State Awards.

Trained/Untrained Teachers in Government Schools (Primary)

District	Trained			Untrained			Total
	Male	Female	Total	Male	Female	Total	Male	Female	Total
East	520	409	929	196	237	433	716	646	1362
West	541	291	832	137	153	290	678	444	1122
South	659	357	1016	78	15	93	737	372	1109
North	185	101	286	76	59	135	261	160	421
Total	1905	1158	3063	487	464	951	2392	1622	4014

Source: DISE 2006 

Trained/Untrained Teachers in Government Schools (Upper Primary)

District	Trained			Untrained			Total
	Male	Female	Total	Male	Female	Total	Male	Female	Total
East	193	162	355	167	99	266	360	261	621
West	125	93	218	76	59	135	201	152	353
South	96	50	146	71	97	168	167	147	314
North	34	19	53	60	32	92	94	51	145
Total	448	324	772	374	287	661	822	611	1433

Source: DISE 2006

Until recently, the minimum educational qualifications prescribed for appointment as Primary Teachers and Graduate Teachers in Sikkim were Class XII and a Bachelor's Degree, respectively. Professional teaching qualifications such as DIET, TTI, CPE, B.Ed., and M.Ed. were considered desirable rather than mandatory. As a result, the Education Department had a substantial number of untrained and inadequately prepared teachers.

Recognizing the importance of professional teacher preparation, the Department of Human Resource Development, Government of Sikkim, has recently introduced significant reforms. Possession of a professional teaching certificate from DIET, TTI, or CPE has been made mandatory for candidates applying for the post of Primary Teacher. Similarly, candidates appointed as Graduate Teachers are required to obtain a B.Ed. degree within five years of their appointment. These measures are expected to contribute significantly to improving the quality of education in the State.

The principal academic institutions responsible for teacher education and academic support in the State are the State Institute of Education (SIE) and the District Institute of Education and Training (DIET), both located in the State capital. However, these institutions face shortages of academic faculty and are therefore unable to provide the level of support and services expected of them.

With an average Teacher-Pupil Ratio (TPR) of 1:17 at the elementary level, the State has not found it necessary to appoint para-teachers.

Sikkim continues to make earnest efforts towards the universalization of elementary education. It is widely believed that uninspiring classroom practices and repeated academic failure have been major factors contributing to student dropout. Many schools have not been able to attract and retain children effectively, and a section of parents lacks confidence in government schools. In this context, strengthening teacher capacity through training in joyful, child-centred, and activity-based teaching-learning approaches is viewed as a key strategy for improving student engagement, retention, and learning outcomes.

The absence of District Institutes of Education and Training (DIETs) in the remaining three districts is a matter that is frequently brought to the attention of the State Project Office, particularly in discussions related to teacher training and professional development. Effective teacher training requires a systematic assessment of training needs and the design of programmes and modules based on the identified needs. At present, opportunities for refreshing teachers' knowledge of subject content and pedagogical practices are not always aligned with their actual professional requirements. Furthermore, orienting teachers to curricular revisions and educational reforms remains an important area of concern in the pursuit of quality education.

It has also been observed that teachers in government schools rarely develop subject-specific and competency-based Teaching-Learning Materials (TLMs) using locally available resources. Many teachers attribute this to the demands of a fixed, structured, and extensive syllabus, which leaves them with limited time to explore activity-based and competency-oriented teaching approaches. To address this issue, the State is considering specialized training programmes to equip teachers with the skills required to develop and effectively use low-cost, locally available TLMs in classroom instruction.

At the same time, efforts are being made to sensitize teachers to the fact that the effective use of TLMs can enhance classroom learning, reduce the time required for concept clarification, and facilitate more efficient curriculum transaction. District-level inspecting officers have been instructed to provide academic support to teachers during school visits by guiding them in the development and use of TLMs and by reinforcing their importance in promoting quality and competency-based education.

 

Written in August 2007

Note: This article was originally published in Elementary Education in India: Issues and Challenges (Governance Challenges Series, Volume I; ISBN: 8176580564) in 2009 under the joint auspices of the National Institute of Administrative Research (NIAR), the Lal Bahadur Shastri National Academy of Administration (LBSNAA), Mussoorie, and Uppal Publishing House. The volume was edited by Alok Kumar and A. P. Singh. The version reproduced here retains the original content and analysis, with only minor grammatical and stylistic revisions made to enhance clarity and readability.