The School and the Community
Keynote Address by Prof. André Béteille

I have to being this address with an apology. I am not expert or a specialist in the field of elementary education. However, as a concerned citizen, I recognise its great value as an end in itself, and as a sociologist, its importance as a means to other ends, such as higher education and many forms of gainful employment.

Indian society is still a highly stratified society in which the channels of individual mobility are narrow and restricted. In the modern world this state of affairs is unhealthy from the economic as well as the political point of view, but it cannot be remedied without massive advances in education in both quantitative and qualitative terms. Elementary education must not only be made available to all, but its standard must be such that those who receive it are able to put it to some use in subsequent phases of their lives.

It is well to remember that the idea that all children, irrespective of class, community and gender, should go to school and spend a minimum period of time in it is a relatively new one, not only in India but in the world as whole. Even in countries such as England, France and Russia children of peasants and workers did not all go to school as recently as in the 19th century. One has only to read the novels of Dickens, Balzac and Tolstoy to realise how important socially, economically and politically the division was between the lettered and the unlettered. Effective participation of all members of society in civic and political life had to await the effacement of that division.

Universal elementary education does not do away with all inequalities, but it does undermine some of the most odious forms of social exclusion. While social stratification continues to exist in Britain, France and other western countries, the social and political significance of class division has been reduced through increased individual mobility across households and across communities. Inequalities in the distribution of life chances are a reality, but so are high rates of individual mobility. Universal elementary education is not a sufficient condition for the changes experienced by the advanced countries in the last hundred years, but it is a necessary condition for them. Without education, for which elementary education provides the base, the chances of individual mobility in a class divided society are severely limited.

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This essential condition for a society to take its place in the modern world remains unfulfilled in India even sixty years after independence. The continuing divide between those who enjoy the benefits of education and those who have little or no access to it is perhaps the most significant index of the backwardness of a nation in the 21st century. As I have just pointed out, that divide was common in many if not most countries of the world till the end of the 19th century. But other countries, including Japan and China, have moved ahead at an increasing pace whereas we have just managed to crawl along.

There are many factors responsible for out failure in the field of elementary education. Hierarchical values and attitudes have been more deeply entrenched and prevailed over a longer span of time in India than in any other country in the world. These values and attitudes have been particularly marked in the cultivation of learning which was made the exclusive preserve of a small number of communities. It was not simply a matter of there being not enough schools but of rooted belief that learning from books was meant only for a few and not for all. The conviction about their own superior aptitude of the few at the top was matched by the apathy and fatalism of the masses of people. Neither the sense of inborn superiority nor the apathy and fatalism have fully disappeared.

The hierarchical attitudes of the upper castes were carried over into the new middle class that began to emerge from the end of the 19th century. It was that class which was, and still is, responsible for the development of education in the country. While it paid up service to the principle of equality, it created and administered institutions for the education of it own children, leaving to their fate the vast masses of children from the submerged strata of society. The schools in the rural areas and even in the towns and cities were few and far between, and they were generally of poor and indifferent quality. The indifferent quality of such schools reinforced the apathy towards education of the disadvantaged classes and communities.

Despite the disappointingly slow pace of change, things have not stood still in the last sixty years. There have indeed been developments in the field of education, but those developments have been highly uneven. The literacy rate has risen, although the official reckoning of it in purely formal terms leaves much to be desired. Through all the disorder, inefficiency and venality of public life, new schools are being established and additional provisions for their funding made.

It is well to remember that the provision of free and compulsory education for all children upto the age of fourteen was made a directive principle of state policy in the Constitution of India in 1950. More recently, it has been decided to make it a fundamental right. This was done in response to the widespread expression of public concern over the poor state of education in the country. How far making what was a matter of policy into a matter of right will be itself change the horizon of opportunities and expectations is difficult to foretell. But there is undoubtedly greater awareness all around of the benefits of education and the need to make those benefits available to all irrespective of class, community and gender.

We are still in the early stages of building a secure and dependable system of universal elementary education in India. By a secure and dependable system of education I mean one that is attentive not only to the numbers of school entrants and school leavers but also to the kind of education the schools are able to provide. There is no doubt that the number of children in school is increasing and the financial outlay on elementary education is also rising. On the other hand, our knowledge of how elementary schools actually work in different social settings is both very sketchy and very patchy. I will later stress, at an appropriate place, the need to undertake more research, on a sustained basis, on the ways in which schools of different kind operate as social institutions.

Going just by numbers in matters relating to education, particularly in a society as highly differentiated and stratified as ours, can be deceptive and misleading. Indian society is divided into many classes and communities, and it will be unrealistic to presume that those divisions will not cast their shadows on the schools where elementary education is provided. There are elementary schools in the metropolitan cities to which the educated professional classes send their children with a strong sense of how well they can prepare them for their passage through secondary and higher education. Other schools are poorly or very poorly endowed with teachers who are ill-trained and frequently absent, and where very little teaching is done. In the broadest sense, stratification among schools reflects stratification in the wider society, and it is difficult to radically change the former without some change taking place in the latter.

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Education does not eliminate social inequality. It has not done so in any country, and it will be unrealistic to expect it to do so in India in the near or even the distant future. But it can and should eliminate the more extreme forms of it and reduce its rigours by enlarging the possibilities of individual mobility. A society that encourages and promotes individual mobility is not a society that has done away with social stratification, but it is closer to the ideals of democracy than one which is both hierarchical and resistant to individual mobility.

Modern education has a certain formal organization that cannot be wished away, no matter how greatly we deplore its excesses. A certain degree of formal organization became inescapable as the demand for education became more widespread, not to say universal. In the past and until quite recently, only a few went to school while the rest received such education as they could from the home or the community or some other agency. Now, what is true of every institution is that, while it provides certain facilities, it also imposes certain constraints, and the school as an institution is no exception to this rule.

As education became more institutionalized, it also became more rule bound. Such rules may be more rigid or more flexible, but in every case they must correspond to the aims and objectives of the institutions they seek to govern. It would be unreasonable to regulate a primary school by rules that may be appropriate to a secondary school, just as it would be inappropriate to regulate a university by rules for regulating the conduct of both teachers and students in a secondary school. The conditions of access to a primary school cannot be the same as those to a university. Those who point to the linkages between primary, secondary and higher education sometimes overlook the obvious fact that different educational institutions are entrusted with different tasks and, hence, they cannot all be regulated by a single set of rules.

In the modern world, elementary education is the point of entry into a vast and complex institutional system that has many grades and levels. It will be generally agreed that elementary education should be available to all, and that every child, boy or girl, should find a place in an elementary school. I must repeat that this is a modern viewpoint that has made its way into the world only since the middle or even the end of the 19th century. Even at the time of independence the majority of children in the relevant age group were out of school in India. We have made some progress since then but, given our material and intellectual resources, that progress leaves much to be desired.

We adopted the principle of universal elementary education at the time of independence and wrote it into the Constitution of India. As I have already noted, it is now not just a matter of policy but also a matter of right. Making admission to elementary school universal means that there should be no discrimination in the matter of admission on the basis of caste, creed or gender, or on the basis of ability or performance. It is generally acknowledged that tests of scholastic aptitude are inappropriate and should be dispensed within admissions to the first level of the educational system although such tests cannot be avoided for admission to college or a university.

Although the principle of universal elementary education was adopted at the time of independence, there were not enough schools in the country at that time to which all children could be admitted. This was true not only of the remote rural areas but also of many towns and cities. I do not wish to go into the story of our failure to build new schools on the scale required in the early years of independence. We left too much in the hands of the government, and the government did not do enough.

There has been a considerable increase in the number of elementary schools in the last couple of decades although there are not enough of them even now to provide for all. The increase in the number of schools has been accompanied by a differentiation of quality and standard. Official statistics dwell on the increase in numbers as, indeed, they should; they tell us very little about variations in what is taught and how it is taught even at the point of entry into the educational system. Yet a close examination of these variations is indispensable if we are to understand how disparities in ability and performance increase and intensify as students move upwards from one stage to the next in the educational system. Those whose education in elementary school has been deficient fare badly at higher levels of education where tests of ability and performance are indispensable. It is wrong to expect those who have been taught poorly, or not at all, in elementary school to perform adequately in tests of admission to the university, and then to attribute their failure to the social prejudices of the professors.

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Differentiation and stratification within the educational system are features of all large and complex modern societies. We know a great deal about the ways in which they operate in countries such as England, France and the United States (Devine 2004;Boudon 1974; Jencks et al 1979), but very little about their actual operation in India. One can say on the basis of a general understanding of human societies that they are likely to be more extreme in India then elsewhere. As I have said, ours is a highly stratified society marked by extremes of inequality in the distribution of life chances among individuals and households. It will be unrealistic to expect that educational institutions in India can be insulated from the inequalities that permeate the rest of society.

I would like to emphasize that differentiation and stratification in education are present at the very point of entry into the system, at the level of the primary school itself. Educated parents have become increasingly conscious of the need to monitor the school work of their children so that their passage through the successive levels of the system is smooth and easy. Educators may inveigle against applying pressure for scholastic achievement at such an early age, but middle-class parents often have other ideas for their children. In an increasing number of urban middle-class homes the grooming for scholastic success begins even before admission to primary school.

There is now large and expanding middle class not only in the major metropolitan cities but also in the smaller urban centres. There was a middle class even sixty years ago, but it was relatively small and its expansion slow. Things have changed substantially in the last couple of decades. A defining feature of the middle class today is its keen appreciation of the opportunities for upward mobility. It wants advancement for itself through education and professional employment, and it will pay any price to secure that advancement for its children. Anyone who has had anything to do with education will know that members of the emerging middle class are prepared to do to secure admission in a good school for their children right at the point of entry.

Until the time of independence there was perhaps less anxiety among parents over the education of their children, and it was confined to a small section of the middle class whose members belonged mainly to handful of upper castes. Today the education of children with a view to planning their future careers has become a concern with growing numbers of manual workers in the organized sector. Large public sector undertakings have schools for the children of their employees, and these schools act as important channels of upward mobility. Those who work in offices and factories want not only schools but good schools for their offspring. If a manual worker happens to work in the Bhilai Steel Plant or with a Reliance company, he may be able to secure better schooling for his children than a clerk or even a school teacher in a provincial town. By better schooling I mean here the kind of schooling that makes entry into the more coveted institutions of higher education relatively easy.

Not all manual workers are employed in the organized sector. In fact, the majority of them work outside that sector. There the prospects for the schooling of children are very different. For the vast masses of migrant workers and other workers in casual employment, living from hand to mouth and moving from one job to another, education in a good school or, for that matter, in any sort of school is not within easy reach. They lack not only the material resources but even the information and the aspiration that are spreading across all levels of the middle class and into the organized working class. Differences in resources, perceptions and aspirations correspond to unequal life chances among parents, and generate unequal life chances for their children.

There has been in increase in public concern over elementary education in the last ten or fifteen years. There is greater awareness of the price being paid for past neglect and gathering enthusiasm for doing what was not done in the early phase of independence. My sense is that the enthusiasm is driven by a certain measure of wishful thinking about what can be done to establish equality of opportunity in elementary education here and now, and in secondary and higher education in the short run. Our plans and projects are unlikely to bear fruit if we wish out of existence the reality and obduracy of social divisions in India and in particular the divisions of class based on wealth, employment, occupation, income and education.

How we address issues of social policy depends in some measure on how we look at social reality. There are two contrastive perspectives on society that are commonly encountered in our country. The first I will refer to as the ‘fatalistic’ and the second as the ‘utopian’ perspective. The fatalistic perspective is based on the presumption that things are as they are because that is how they have always been and that is how they will continue to be; the utopian perspective, on the other hand, presumes that any desirable state of affairs can be brought into being provided people with the necessary good will are prepared to bring it into being.

The utopian and the fatalistic orientations are not characteristic of two distinct and separate sets of persons. They are often found in alternate phases in one and the same individual. Where the utopian expectations are extravagant and unrealizable, they are likely to be frustrated and followed by a fatalistic turn of mind. In that sense there is a kind of natural affinity between the utopian and the fatalistic dispositions. In contrast with the fatalistic or the utopian orientation is the pragmatic orientation which does not accept the existing reality as unchangeable, but also does not pursue programmes of change that wish the constraints of the real world out of existence.

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The Idea that a school system can be designed in such a way that every school will have material, pedagogical and other resources to provide education of the same quality and standard to every pupil is not a workable one from the policy point of view in a country like India. A school system, if it is properly designed, can do something to reduce the inequalities of life chances among persons. It cannot dismantle at one stroke-or even through a succession of Five Year Plans – all the accumulated inequalities of a hierarchical society with which people have lived more or less comfortably for two thousand years.

It may be useful of consider very briefly what it takes to dismantle the entire structure of inequality in education and society. The Chinese example has some lessons for us in this regard. During the Great Proletarian Cultural Revolution of 1966-76, the Chinese did succeed to a large extent in dismantling the established hierarchies in education, but the success was achieved only by paying an enormous price in social dislocation and human suffering. Indians who look forward to the kind of revolutionary transformation the Chinese underwent do not ponder sufficiently on the costs that it entailed. And inequalities in the Chinese educational system did not disappear but only went underground to come out into the open once again.

Education can and should be put to the service of creating a better society, but our approach should be realistic. It undoubtedly contributes to the removal of many odious distinctions and it creates channels for individual mobility (Erickson and Glodthorpe 1993). But education also contributes to the reproduction of inequality, and that fact must not be lost to sight (Bourdieu and Passeron 1977). A great deal depends on the structure of the society and the political environment within which the educational system operates.

The first and most urgent priority should be to put every child of the appropriate age into elementary school and to provide for a sufficient number of elementary schools that will have the basic material, social and cultural resources required for decent education. This can be done without agonizing about the quality and standard of elementary education that rich and resourceful middle-class parents driven by the ambition for upward mobility are able to buy for them own children. In regard to both education and society, the issue is not of attaining equality in every respect but of eliminating extreme and egregious forms of material deprivation and social exclusion.

We are too easily diverted by the rhetoric of equality from solvable practical problems. Here I would like to make distinction between equality and universality, and make a strong case for the latter. Universality requires that certain basic facilities and capabilities be placed within the reach of every member of society without consideration of individual merit or need; in short, that they be made universally available. Obvious examples of what can and should be made universally available are elementary education and primary health care.

The educational system will generate its own inequalities in due course of time. We may succeed in regulating those inequalities up to a point, but we cannot eradicate them. This is particularly true in a world in which knowledge is advancing at an explosive rate. Even if we succeed in creating equality of opportunity in the school, the college or the university, we will fail to have equality of outcome. If we strive to maintain uniformity of outcome, we will only succeed in stifling effort, initiative and the pursuit of excellence. All we can aim to do is to see that social advantage does not translate too easily into scholastic advantage, and that is by no means an easy thing to do.

There is no educational system that is not embedded in a social system. In a society such as ours it is inevitable that different schools will be endowed with different, not to say unequal, material and pedagogic resources. It is the obligation of the state and other public bodies to see that no school falls below a certain level, to aid and support those that have fallen behind and not pull back those that are moving ahead. The philosophy of the Levellers is not a good philosophy on which to build and educational system.

It will be agreed by all that we need to provide elementary education for all, that our record in this respect has been rather poor so far, and that we must do a great deal more to catch up with the rest of the world. But who is to take the responsibility for doing what needs to be done, that schools meeting the basic minimum requirements of pedagogy are created and maintained? It is not simply a matter of putting more money into education, it is also a matter of creating functioning institutions in which teaching and learning can take place. The government can provide the funds, and the bureaucracy can see that the funds are properly accounted for. But can the government and its bureaucracy create and maintain the institutions that are indispensable for teaching and learning? I am not speaking now of good or bad schools from a scholastic point of view, but of the regularity and routine of the everyday activities which are essential to the life of any school as an institution.

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I cannot say much from personal knowledge or experience of the health of our elementary schools are institutions in which regular activities are performed according to the clock and the calendar. There will obviously be a great deal of variations across schools in different locations in the different parts of the country. But even where the problems of funding have been attended to, we cannot take the institutional health of the school for granted. What little experience I have had of higher education has made me realize that the institutional life of the college or the university is politically volatile but academically listless. In many such places very little goes on. Attendance is irregular, classes are not held according to the time table; examinations are delayed or disrupted; and there is a general atmosphere of apathy and indifference among both students and teachers.

We know next to nothing about the social atmosphere in different types of elementary schools, whether it is marked by good cheer, apathy, or sheer neglect all around. Does the school appear to its pupils as something to be enjoyed or merely endured? The statistics of teacher absenteeism provide little comfort although, here again, there are bound to be very large variations between schools of different types. Statistics do not, in any case, tell the whole story. Teachers may mark themselves present but actually do little for the care of those put in their charge. I am told that there are many schools, now even in semi-urban villages, where teachers do most of their teaching outside the school as private tutors or coaches for additional payment.

What the state and its agencies cannot be expected to do in terms of social participation or regulation can legitimately be expected of the community. Indeed, it is difficult to see how an effective system of elementary schools can be established and maintained without some involvement from the local community. Wherever elementary schools have worked well, they have done so because of the support of the community.

There has been a waxing of enthusiasm for the community in recent years, partly in response to the disenchantment with the state and its agencies. I do not wish to throw cold water on this enthusiasm, but we need to take a hard look at what we call the community in India. It may turn out that, instead of being the perfect solution, the community is part of the problem. Many well-informed and knowledgeable persons who are fully aware of the deep divisions and inequalities – of class, of caste and of gender-in Indian society as a whole, somehow manage to persuade themselves that the Indian community is free from those divisions and inequalities. This utopian vision of the community does not fit the actual reality of the Indian village very well.

Many of the leaders of the nationalist movement represented the Indian village as a ‘little republic’ and a haven of stability, order, harmony, self-sufficiency and self-governance. This is the representation of it that we find in the writings of Mahatma Gandhi and Jayaprakash Narayan. But it did not go unchallenged. It was clinically and mercilessly demolished in a celebrated speech made by Dr B R Ambedkar in the Constituent Assembly. “I hold that the village republics have been the ruination of India. I am therefore surprised that those who condemn provincialism and communalism should come forward as champions of the village. What is the village but a sink of localism, a den of ignorance, narrow-mindedness and communalism?’ (Constituent Assembly Debates 1989:39).

My own fieldwork in a south Indian village where I lived in 1961-62 (Beteille 1965) convinced me that Dr Ambedkar’s view of it was far closer to the reality than the view of it as a harmonious and unchanging little republic. Other community studies made by my colleagues and students in the 1960s and 1970s confirmed my belief that Dr Ambedkar’s view was substantially correct (Chakravarti 1975; Bliss and Stern 1982; Madan 2002). It is now nearly sixty years since Dr Ambedkar made his statement in the Constituent Assembly, and the Indian village has undergone many changes during this period, but it is doubtful that the divisions and inequalities of gender, caste and class have disappeared without leaving any trace.

It is far from my intention to suggest that we should turn our backs on the Indian village and proceed through some other avenue if we are to promote elementary education in the country. We cannot do it, and we should not try to do it. All I am saying is that if we are to succeed in our endeavours we must keep a close eye on the reality of the school and the community, and not allow social analysis to be displayed by ideology.

If the observations I have made appear somewhat vague and inconclusive, the fault does not lie entirely with me. In preparing this lecture, I have been handicapped by the lack of sustained critical discussion of the subject based on reliable empirical material. If such material exists, all I can say is that is not easily available. I am aware that there is a growing body of statistical material on elementary education. That material answers a number of important questions, but it does not answer the questions that I have raised which I believe are also important.

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We do not have much sustained research on the school as a social institution, as a field of social interaction with its internal strains and tensions; or of the school’s relationship with the community and the wider society within which it exists. The relationship between school and society is replete with ambiguities. It is a complex and difficult subject into which social science research in India has not entered very deeply. We do not have any satisfactory typology of schools beyond classifications made in purely formal terms such as size, material resources, and source and type of funding. It is difficult to see how we can have informed public discussion of elementary education in the absence of such research.

It is not easy to explain why research in the sociology of education, and particularly, on the social situation of the school has not received the serious attention it deserves. When sociological research began to expand in India fifty years ago, the small number of scholars who were entering the field devoted their attention to other areas of enquiry, and there were many of those to attract their attention to other areas of enquiry, and there were many of those to attract their attention. The modern school, including the elementary school, is an open and secular institution and, as such, is very different in its social texture from the traditional institutions based on kinship, caste and religion. The success of open and secular institutions in India will depend in no small measure on how well the school socializes its pupils for participation in forms of interaction that are very different from those to which their forefathers had been accustomed.

In the meantime, the orientation of research in sociology and related social science disciplines has changed from ‘delayed-return’ to ‘immediate-return’ research (Beteille 2006). The kind of research on the sociology of the school that I have in mind that will explore the nature of interactions within the school is ‘delayed-return research’, and it is no longer popular today.

Social scientists in the universities often complain that there is no money for social science research. This is not entirely true. There is more money for research now than there was fifty years ago, but most of it is for ‘immediate-return’ research. Funding agencies have become result oriented; they not only want results, they want quick, not to say immediate, results. The forms of research are maintained in terms of sample size, design of questionnaire, and so on, but the results are often trivial and lead to little new insight. This kind of research is being increasingly organized by agencies outside the universities which do not generally have a long term commitment to the accumulation of intellectual capital. Their main obligation they see as the submission of project reports to the funding agencies.

‘Delayed-return’ research is costly, not so much in terms of money as of effort and time. It aims at the accumulation of knowledge on a long-term basic; its course is uneven and its outcome not always guarantee. It cannot clearly anticipate its outcome in advance and say whether that outcome will be of immediate practical benefit of mainly of intellectual value, or neither.

I do wish to emphasize that serious research is costly in the sense that it does not always lead to a fruitful outcome. Where it comes to a subject of such immediate practical concern as elementary education, the funding tends to flow to agencies outside the universities, and the universities are generally out of funds. Hence research in the sociology of education leads to very little long-term accumulation of intellectual capital. Yet a deeper and more comprehensive understanding of education cannot come without a long-term investment in research, and without that understanding, public action will lack direction. The fact that research does not always lead to fruitful or practical outcomes cannot be an argument against supporting it on a long term basis.

Advance is being made in the spread of elementary education and various parties are contributing to the advance. Greater advance requires wider participation. There is no doubt that the advance need to be monitored through the collection and analysis of data on a more extensive basis. This kind of monitoring is necessary to enable people to know how well particular policies or programme are working. Funding agencies, whether within or outside the government, would naturally like to know whether the resources being put into education are producing the expected results. What I am asking for is something more than this, which is research that can tell us whether and to what extent long-term shifts are taking place in the relationship between the institutions of education and the communities in which they are embedded.

Long-term advances cannot take place without changes in the structure of communities and without the creation of curable institutions for learning and teaching. There are no recipes available either for changing the structure of communities or for creating durable institutions. But little progress will be made unless we get to know better how communities are organized today and how institutions actually operate within them.

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Reference
Béteille, andré. 1965. Caste, Class and Power. Berkeley: University of Califormia Press.
Béteille, André. 2006. ‘Sociology and Current Affairs’, Sociological Bulletin 55(2): 201-14.
Bliss, C, and N.Stern. 1982. Palanpur. Delhi:Oxford University Press
Boudon, Raymond. 1974. Education, Opportunity and Social Inequality. New York: John Wiley.
Bourdieu, Pierre and Jean-Claude Passeron. 1977. Reproduction in Education, Society and Culture, Beverley Hills: Sage.
Chakravarti, Anand. 1975. Contradiction and Change. Delhi : Oxford University Press.
Constituent Assembly Debates. 1989. Official Report. New Delhi : Lok Sabha Secretariat.
Devine, Fiona. 2004. Class Practices. Cambridge: Cambridge University Press.
Erikson, R. and J.H. Goldthorpe. 1993. The Constant Flux. Oxford : Clarendon Press.
Jencks, Christopher et al. 1979. Who Gets Ahead?. New York: Basic Books.
Madan, Vandana (ed). 2002. The Village in India. Delhi: Oxford University Press.

 

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