Included by law, but little else
Children with disabilities are routinely edged out of an education system that's hesitant to acknowledge diversity. Inclusion may be the key word in India's current education policy, but there is a world of difference between the law and its implementation. Deepa A reports.
When Vincy D’Silva learnt her son had dyslexia, her first reaction was of disbelief. Though he lagged behind in academics, she had determinedly tutored him at home, hoping the next progress report would bring better marks and news. Acceptance came over time, as did knowledge - of the learning disability itself, and of the facilities her son could avail of to continue his studies. Ironically, it was then that the real struggle began.
Her son studied at a Mumbai school affiliated to the Indian School Certificate Examinations (ICSE) board, whose circulars spell out in no uncertain terms that children with disabilities should be given grace marks in tests and additional time to finish exam papers. The school authorities, however, weren’t interested in these ‘concessions’. Her son was detained in the sixth standard, though all that stood between him and a pass percentage was his rightful share of grace marks. D’Silva took her complaints to the principal and the higher-ups in the school management, but no solution was forthcoming. She was forced to file a petition in the Bombay High Court, where her case is now being heard. Her son, meanwhile, is repeating his sixth standard classes.
D’Silva’s story is probably not unique, in a country where children with disabilities are routinely edged out of an education system that’s hesitant to acknowledge - leave alone celebrate - diversity. Inclusion may well be the key word in India’s current education policy, but as D’Silva’s experience well demonstrates, there is a world of difference between the enactment of legislation and its implementation.
Of rules and regulations
If one were to go only by the laws and policies regarding inclusion formulated in this country, there is ample reason to be optimistic. Since the Seventies, various Central Government schemes - especially those for Universalisation of Elementary Education - have been advocating the inclusion of children with disabilities into the mainstream educational system. These include:
- The Integrated Education for Disabled Children Scheme, launched in 1974, to admit children with disabilities in regular schools;
- The District Primary Education Programme, 1985, which acknowledges the fact that universalisation of education is possible only if it includes children with disabilities;
- The National Policy on Education, 1986, which promotes the integration of children with mild disabilities into the mainstream;
- The Project Integrated Education for the Disabled, launched in 1987, which encourages all schools in a neighbourhood to enroll children with disabilities;
- The Persons with Disabilities (Equal Opportunities, Protection of Rights and Full Participation) Act, 1995, which recommends making changes in assessment and curriculum, and removing architectural barriers, to support inclusion. It also recommends providing free books and uniform for children with disabilities;
- The National Trust for the Welfare of Persons with Autism, Cerebral Retardation and Multiple Disability, 1999, which recommends promotion of inclusive education;
- The Sarva Shiksha Abhiyan (SSA, 2000), which pledges that the “SSA will ensure that every child with special needs, irrespective of the kind, category and degree of disability, is provided education in an appropriate environment”;
- The Amendment to the Constitution in 2001, to make education a fundamental right for those in the 6-14 age group, which covers children with disabilities;
- The draft National Policy for Persons with Disabilities, which has a section on education, stating, “There is a need for mainstreaming (sic) of the persons with disabilities in the general education system through inclusive education.” It also mentions that children “learn best in the company of their peers”;
- A Comprehensive Plan of Action for Children and Youth with Disabilities, presented by the minister for Human Resource Development, Arjun Singh, in March 2005. This Action Plan advocates inclusive education, and envisages making all schools “disabled-friendly” by 2020. In a statement to the Rajya Sabha in March 2005, Arjun Singh also said that selected schools will be converted into model inclusive schools, “in order to demonstrate what is necessary and possible; this exercise will then be extended to schools across the country”;
Legislation in favour of inclusion has also been supported by circulars issued by various state and central boards of education, such as the CBSE (Central Board of Secondary Education) and the ICSE. As psychiatrist Dr Harish Shetty points out, the circulars list various concessions that children with disabilities can avail of. In a circular issued in May 2005, the CBSE states that children with disabilities should have “barrier-free access to all educational facilities”, and that dyslexic students can study one language instead of two and any four of the subjects such as mathematics, science, social science, music and painting, among others. The ICSE provides extra time to students with disabilities to complete exams, as well as writers, if required. The children can also choose from a number of subjects such as yoga and physical training.
Several state governments have similar policies for their boards. The Maharashtra board, for instance, gives students with disabilities extra time during tests, concessions while learning mathematics and the option of studying one language less than what is otherwise mandatory.
Missing targets
The high number of policies in support of inclusion, unfortunately, is in no way indicative of the current situation in the country. Quoting the National Sample Survey Organisation’s 2002 report on ‘Disabled Persons in India’, the draft policy for persons with disabilities, prepared by the Ministry of Social Justice and Empowerment, states that 55 percent of those with disabilities are illiterate. This is a “very large and unacceptable percentage,” says the draft.
A study conducted by the National Centre for Promotion of Employment for Disabled People disclosed shocking facts of discrimination against those with disabilities. A survey of 89 schools across the country found that a mere 0.5 percent of the total number of students were those with disabilities, though the Persons with Disabilities Act recommends a reservation of three percent seats in institutions funded by the government. Eighteen of the schools surveyed acknowledged that they did not admit students with disabilities. Twenty percent of the schools polled were not aware of the 1995 Disability Act at all. While girls comprised 41.6 percent of the total student population, among children with disabilities, the percentage of girls was only 33.
Shayama Chona, Padmashree awardee and principal, Delhi Public School (DPS), RK Puram, says that children with disabilities are not accepted in many schools. Some schools, she adds, don’t even hesitate to make a fast buck out of parents - they charge higher fees to enroll students with disabilities. While legislation does provide for admission of students with disabilities, “Passing an Act is not the same as executing it,” she says.
While education comes under the Ministry of Human Resource Development, education for those with disabilities comes under the Ministry of Social Justice and Empowerment.
• Special or segregated? • Movement for inclusive education Annie Koshi, principal of St Mary’s School in Delhi, which practises inclusion just as DPS does, says that one reason why implementation is slack is because education of children with disabilities is still considered an act of charity. In her MA (Education) dissertation on The Role of Culture in the Management of Change: Why Inclusion, she notes that while education comes under the Ministry of Human Resource Development, education for those with disabilities comes under the Ministry of Social Justice and Empowerment. Nothing can be a “more telling statement of how disability is perceived in this country,” she writes. This attitude has to shift to a model based on rights and fairness, she adds.
Barriers to inclusion
If attitudes are a problem, so is the physical environment. Javed Abidi, executive director of the centre that conducted the survey on inclusion, says that at one point, special schools were thought to be the answer to those with disabilities. Due to this, “Over a period of time, schools and colleges were built in ways that could not be accessed by those with disabilities - not a single university in our country has a ramp,” he says. In fact, in the survey conducted by the centre, lack of trained staff and infrastructure were cited as the main reasons why school authorities were apprehensive about admitting students with disabilities.
In her dissertation, Koshi writes about asking other principals whether they would make structural changes to their building “to accommodate a challenged child”. The 10 private school principals to whom she put the question did reply in the affirmative, but at the same time added that there was no money or space for employing physiotherapists or setting up a language lab.
If lack of funding is publicly touted as an excuse, covert worries of school authorities usually centre on the performance of students with disabilities. In metros such as Mumbai, where competition to score high results in the tenth and twelfth standard exams is fierce, many principals believe that children with learning disabilities may pull down the school’s top scores. Therefore, they prefer to detain children with disabilities in lower classes. As Rajiv Kumar, a lawyer who is appearing for D’Silva as well as another parent of a child with learning disability, says, “Elite schools are programmed to produce results … and principals want credit for success.” While concessions seek to ensure that the child does not suffer from an inferiority complex because of failure in exams, principals negate this objective with their attitudes, he adds.
Dr Shetty feels that concessions are a way in which the system “apologises” to students with disabilities for not being able to assess or teach them the way it should be done. Despite that, school authorities view it as a way in which the children - the parents of the children, to be more exact - try to take advantage of the school.
There are hardly any avenues for parents who wish to fight against the school authorities. “Few stand up for fear of their child being victimised,” points out Kumar. Suzan Machado’s story is a case in point. The mother of a child with learning disabilities, Machado is now fighting a case in the Bombay High Court against her son’s school (in Mumbai) for not providing him the concessions that he’s eligible for and detaining him in the seventh standard. She says her son is now being confined to the backbenches, though he has difficulty seeing the board from there, and is often made to “sit with girls”, which he finds discomfiting.
For some good counsel
The lack of empathy among school authorities possibly stems from poor knowledge about children with disabilities. The Bachelor of Education (B. Ed.) syllabus itself lacks sufficient information on disabilities. “There is a section on special education, but nothing on inclusion,” says Koshi.
As a result, teachers are sometimes shockingly ignorant about children with disabilities. Says Machado, “There is no awareness among teachers about learning disabilities. Once, a teacher told me that though she had given my son extra time, he still wasn’t performing well in exams.” Neither did the school have facilities for holding remedial classes for those with learning disabilities. Machado’s son, therefore, has to attend classes organised by the Maharashtra Dyslexia Association, a body of teachers and parents that works towards creating awareness about dyslexia.
A majority of the schools don’t have special educators or counsellors, even if they have students with disabilities, though the Rehabilitation Council of India Act, 1992 says that children with disabilities have the right to be taught by a qualified teacher. In the survey conducted by the National Centre, 55 percent of the 89 schools were found to have admitted students with disabilities, but only 20 employed special educators while 12 provided training to teachers for working with students with disabilities. “In India, 99 per cent of the schools don’t have counsellors,” says Dr Shetty, who is also president, Counsellors Association of India.
Apart from creating insensitivity, the lack of knowledge among educators about disabilities results in poor methodology. Koshi recalls visiting schools in Tuticorin, Tamilnadu where a non-government organisation had convinced schools to enroll children with disabilities. However, the requisite curricular and assessment changes that should have accompanied this attempt at inclusion had not been done at the schools. “What is the point of the exercise then?” she wonders.
Enabling action
Inclusion is globally accepted as the best way to ensure the right to education for all. The UNESCO Salamanca Statement and Framework of Action on Special Needs Education, 1994, states that “Regular schools with an inclusive orientation are the most effective means of combating discriminatory attitudes, creating welcoming communities, building an inclusive community and achieving education for all.” Concurring with the statement, Medha Lotlikar, a Mumbai-based educator and trustee of the Saraswati Mandir Trust that runs two special schools, says that inclusion is the ultimate goal in countries such as Australia, Germany and the US. Shayama Chona adds that in the US, schools receive additional grants if they admit children with disabilities.
For inclusion to become a reality in India, there would have to be a movement to create awareness, says Chona, adding that the world over, such lobby groups had been formed by those with disabilities themselves or the parents of children with disabilities. Abidi adds that India needs a regulatory system, a watchdog to prompt people to act. The Human Resource Development ministry’s latest Action Plan holds the promise that the ministry will coordinate activities such as creating awareness and creating a barrier-free physical environment in schools. It remains to be seen whether the plan will indeed translate into some action.
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Cite this article
Deepa A (2006) ‘Included by law, but little else’, India Together, 7 January 2006. https://indiatogether.org/speced-education/
8 reader responses
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Meenakshi Srinivasan · 10 January 2006
Dear Deepa, I don't believe that the issues of education in India and US can be compared or replicated. Having experienced both these systems, I can clearly say that the costs involved in the "education" of a person with disabilities and the "community perceptions" of inclusion are 2 different entities. I have worked in the special education classrooms in the US and also in the regular ones. I have also worked with the deaf, blind and "Mentally retarded" as we call them in India (at least that's what they were called in the late 80s and early 90s). I do not believe severely disabled children should be included in the regular classroom. They do far better learning in their own pace and in an environment conducive to handle their special needs. Coming to "learning disabilites" such as dyslexia, Attention Defficiency, etc. these can be mainstreamed or have pull-out programs to get them up to grade level. I like the idea of neighbouring classrooms or 2 schools on the same campus that allow for much social interaction between these groups but I do not agree with inclusion in the classroom. The economics of such a model makes (sic) for much want of funds - this includes high level of training and competence of the classroom teacher, physical restructuring of school premises, quality of learning in the classroom - especially if it is on a "fast track". Ultimately, let us be real here - what do we want to achieve (apart from getting to be sainted) by mainstreaming these children? What is the harm in them learning trades and professions that do not make them have to learn calculus and write computer code or crunch data for a foreign bank? How do we envision them in the workforce? In the US, for all the "talk" of inclusion, we never see "disabled" people in offices and the general workplace. While I have met a blind attorney and a computer engineer who had a car redesigned to get his wheelchair in and out (he still needed his wife to drive him), most of the special education kids just dissapear after school. I have seen more blind people crossing the street in India in a day than I have in 10 years here. Even the "handicapped" parking slots in all parking garages are mostly empty. The few whom I have seen use them are ones with temporary handicap parking permits (due to surgery or something). I have a severely handicapped man in our neighbourhood. He is perfectly normal waist up. But he rarely leaves his house. His wife and brother take care of him and do all the work in and out. He handles their business answering calls etc. I have seen total acceptance of people in India. I dont think India has a problem accepting her "disabled". I think missionaries have to have a "cause" to "uplift" a group that is "marginalised". That is why we dont make a big fuss about them - they are part of our lives. And we are pragmatic enough to accept that the economics of "educating" them in the "traditional" way does not pay. It is far better to get them mainstreamed (as an earning member-if need be) by giving them a meaningful education- to them- not necessarily compete with the IIT crazy kids on the block- except of course a Stephen Hawking who will anyway ensure that he competes! Sincerely, Meenakshi
Padma Priya · 16 January 2006
Dear Deepa Thanks for writing this interesting and informative piece. I could relate to most of it, since being a student of law and having worked in the area of assessment of social legislations I can safely conclude that like most social legislations even the legislative protection given to people with disabilities has had little success. Secondly, I have very closely observed the bias that the present educational system has towards the disabled. My brother, who is deaf and dumb (profound), has with his own strength, courage and determination managed to do his schooling in a normal mainstream school. He has not availed the benefit of any quota till date. It was only during his 10th std board exams, and thereafter for an admission in 11th std, that I got a real taste of the insensitivity, indifference and ignorance of the persons involved in the educational machinery. Teachers suggested us to make him take "music" as an optional subject! I fail to undrestand if they think that every deaf and dumb person could be a 'Beethoven' some day. And the School principal refused to recognize his disbility saying that since he does not walk with crutches or with a stick, how could he be diabled. he also said that that the Goverment was doing all that it could and soon even his school would have ramps. And we should not ask for more. I wonder if anything could be worse than a Government school Principal saying this. He would not even recognize the third form of diability that is different from being blind or orthopaedically disabled. This however, does not dishearten me, my family or even my brother. But what bothers me is the condition of those who do not belong to the educationally and economically sound segment of the society. These people are neither aware of their right to education nor the benefits (if any in reality) that are available. The differently-abled childern do not need sympathy. But the least they can ask for is sensitivity. Education for them is a struggle for sure. All we can expect the system to do, is to make this struggle a little easy. Regards PadmaPriya
captain johann · 16 January 2006
What deepa has written looks pretty on paper while Meenakshi srinivasan has hit the nail on the head. What a perception! Everytime disability topic comes up, the disabled join the quorus of ACCESS. These only helped make all bangalore buildings with access wasting the disability budget but none uses these ramps as even normal young people cannot use Bangalore roads safely to reach these buildings. It only helped fatten the purse of some contractors. Disability has become a ruse for some people to stage ampiolympics so that officials of Ministry of Social Justice can wangle some foreign trips. Import lobby immediately jumps in with demands for voice activated public toilets and GPS equipped public transport without knowing its use.
Geeta Mondol · 5 February 2006
Dear Deepa, I commend your article. However, having worked in the disability sector for a while now, and as a parent I feel that inclusion is not something that should be entered into lightly. Laws do not change mindsets. Differently abled children do have their challenges just like anyone else. To ask them to sit in a class of 40 children and perform just like everyone else regardless of their disability is inhuman. To ask a mentally impaired child to do the same amount of work within the 30-40 minutes of a class period is not correct. Are our schools equipped for it? Inclusion includes sensitivity training for teachers (difficult for adults to change mindsets), modified syllabus, structural changes in the building, a teacher student ratio to be kept at 1:6 (1 teacher to 6 students max), modified syllabus, and staff who do NOT pity the differntly abled but help them be independent while working around their disability. It also includes staff not feeling too queasy if there is an 'accident' in the class, and for the continued commitment of administration and teachers to work towards change. And as for the fees, I, as a parent would be happier to pay a higher fees where my child learns something and a differnece is made than where he is put in a regular classroom and is looked upon as a nuisance, and no learning takes place because no one knows how to work with him.To break even when you have to have a 1:4 ratio, more investment in terms of furniture, equipment etc, and good salaries, more support staff requires money, if quality service is to be provided. But then, the law does not insist on quality service. Inclusion for the most part in our country is seen as building ramps and placing the differntly abled in a regular classroom. May we know better!!!
Pritha · 9 March 2006
Dear Deepa, Perhaps the D'Silva's should get in touch with Kate Currawalla in Bombay who set up the Maharashtra Dyslexia Association and also the one in Delhi. She has fought for and ensured legislation in Maharashtra to recognise the existence of the condition and issue certificates to affected children. Such certification then places the onus on the educational institution to assist the child in every possible way right from informed handling in the classroom to allowing them certain concessions during exams. Kate also runs several remedial programmes for schoolgoing children. She is now lobbying for the legislation in other states as well.
Siddhi · 22 June 2006
When i read the article i was expecting that there would be a lot of responses reaffirming the benifits of inclusion, but i was to be disappointed. Aside from the last response from Pritha all the feedback was negative. The amazing part though was the lack of understanding as to what is a Learning disability. Learning Disability is a Disability by which a child is unable to cope with the curriculum in normal way. A child with Learning disability has average IQ or more. Just that they have certain physiological or neurological problems due to which their sense are not perfoming well. They need some support. Putting children with mental retardation in that criteria is silly as the basic requirement of intelligence is absent. To be identified as Mentally retarted IQ has to be below that of a slow learner. Support can be easily given and is currently being given in quite a few school without any problem to the school faculty. All it requires is a Counsellor, Special educator and few open minded staff. (which is a requirement whether or not you have a special child)As a person who has been facilitating inclusion i am well aware of the hurdles but i believe the result are far better than the hurdles. As for India being emapthetic to disabled. I am in no position to respond as i have not seen all indians but letting a person stay at home is not support. Support is letting a person prosper to their limits. At the end i would like to make a point that for any good thing to happen we have to take efforts. For e.g. for a child to be born a mother has to make the efforts, bear the pain and the late nights etc. If each mother became selfish and refused to give birth due to it how many children would be born or survive?
mehnaz · 29 June 2006
I am a mother of a child who has learning disability. We are in kerala and are hunting for a good school where my son can be comfortable ... it took a year for us to know that he has learning problem. And I had a very bad experience with his headmistress regarding his learning side ... she was not even ready to listen to me. She was complaining that I am an irresponsible mother who does not take care of the child, I dont make him do his homework, etc etc.. I was trying to explain to her, but she was not listening and insulted me and I started crying. You know what she did? She called my son from his classroom and showed him "look your mamma is crying ... because you are not studying" ... and my son was also confused and he was upset because we never talk to him like that. We shifted from there and put him in a place where he felt comfortable and one year he just played, painted,did all sort of entertaining things with very little studies. Thanks to my friend Babitha he changed a lot character-wise. We want his personalitily also to be developed not only the learning part. We parents know small problems which are hard to explain to a teacher or doctor. Another thing i have noticed is that not only the learning, but also the child's character should be considered. These kids easily try to imitatate others, whether it is good or bad. Whatever they find easy they go that way. So it's very important to watch them, and always keep them in a good atmosphere. For that parents like us need good schools where they can get good facilities.
Geetha · 23 August 2006
Hi. I am amazed at the pessimism prevailing among the so called normal beings in our society against their differently abled fellow beings. Optimism and encouragement shown towards kids with specail needs goes a long way in helping them lead a normal life. How many of the normal beings go out of their way to say a few words of comfort /encouragement to the differently abled people they meet in their daily life ? We attach a stigma and stay away from them. Why are the so called disabled friendly structures not being used by the differently abled ? Because as normal people, we do not educate them on the existence and convenience of such facilities and encourage them to use the same. I married my husband about 17 years ago not out of sympathy but out of admiration for his optimism towards life and the never ending supply of energies he had. He was afflicted by polio soon after birth. His parents were not not deterred by the school or the society when he was operated a few months before his high school exams. He was a topper throughout. He was denied admissions in IITs and other leading engineering colleges because he was labelled 'disabled' and not fit for a professional course. He finally made it in one of the colleges and was the rank holder from that univ. He went on to do his MBA, topped again and is one of the most respected and sought after consultant in India and around the world. My second son is a child of special needs. We finally found a school which he is comfortable in and meets our objectives as well. We were appalled and walked out of the meeting when a principal of a prestigious school (Padmashri awardee) in Delhi asked us to take a posting to the US and educate him there. Now in his current school, he is treated as an equal and not as a mentally challenged. It does come at a high price though! What I wish to state that as parents of differently abled kids, we have to fight for their rights in every field. It is the school's responsibility to educate the normal kids and their parents about the special kids and ensure that they treat them with respect and kindness. These special kids only expect love and understanding. It is amazing to see how their social skills reach new heights once they are encouraged. The normal beings do not necessarily have to go through what we are going through in order to understand this. All I ask them is to listen to their heart and conscience before making such insensitive comments and remarks.