MINIMUM LEVELS OF LEARNING: AN INTRODUCTION

1. Background
1.1
In line with the commitment of the country to provide elementary education to all
children, educational facilities have got tremendously expanded during the post-independence
period. This is particularly true of facilities at the primary education stage. The number of
primary schools in the country has increased from 2.2 lakhs in 1950-51 to nearly 6.32 lakhs. In
addition, there are at present nearly 3 lakh non-formal education centres providing primary level
education to out-of-school children in the age group 9 to 14. This expansion has definitely helped
in making primary level education more easily accessible to a larger section of the population. In
fact, according to the All-India Educational Survey conducted by the NCERT in 1986, nearly 95
per cent of the population are served by a primary school within a walking distance of 1 km.
However, the large-scale expansion has resulted in the creation of educational facilities with
widely varying quality in terms of institutional infrastructure, teaching-learning processes as well
as the quality of students passing out of these institutions. The quality variations become more
pronounced in certain states, between schools of rural and urban areas, between schools managed
by government and non-government bodies, and so on. Recognizing the urgent need for
rectifying this anomalous situation with respect to quality, the National Policy on Education
1986 calls for paying immediate attention to (i) improving the unattractive school environment,
the unsatisfactory condition of buildings and inadequacy of instructional material; and (ii) laying
down minimum levels of learning that all children completing different stages of education
should achieve. Keeping this policy directive in view, the Report of the Working Group on Early
Childhood and Elementary Education Set up for Formulation of Eighth Five Year Plan states:
The targets need to be spelt out not only in terms of participation, but also in terms of quality and
outcomes. During the Eighth Plan, it should be our aim to bring about a substantial improvement
in quality of education through improved infrastructure, improved teacher education, and
substantial improvement in quality and quantity of learning materials. In terms of outcomes it
shall have to be ensured that minimum levels of learning are laid down with reference to the
conclusion of primary and upper primary stages and an appropriate evaluation system created to
ensure achievement at least of the prescribed levels of learning.
1.2
In fact, significant efforts towards specification of Minimum Levels of Learning (MLLs)
had already been made at the NCERT during 1978 in connection with the UNICEF-assisted
projects on 'Primary Education Curriculum Renewal' and 'Developmental Activities in
Community Education and Participation'. As part of these projects, a 'Minimum Learning
Continuum' was drawn indicating the learning outcomes expected to be achieved by all children
completing Classes II, III, IV and V. The Primary Education Curriculum Renewal Project was
evaluated in 1984 using a set of achievement tests developed for all the primary classes based on
the competencies specified in the Minimum Learning Continuum. Utilizing the empirical
evidences collected through this evaluation study and following the National Policy on
Education 1986, the NCERT prepared another document entitled, 'Minimum Levels of Learning
at the Primary Stage'.

1.3
In the context of these exercises and the specifications made by the Eighth Plan Working
Group, the Department of Education, Ministry of Human Resource Development organized a
seminar in December 1989 on the theme, 'Basic Learning Needs and Levels of Attainment'.
Various issues related to basic learning needs of the children at the primary stage, the need for
specifying minimum levels of learning and creation of appropriate mechanisms for assessment of
learner attainment were discussed during the seminar. On the issue of laying down minimum
levels of learning the seminar recommended for initiating concrete efforts at the national level.

2. Committee on MLL: Composition and Terms of Reference

Against this background, the Department of Education, Ministry of Human Resource
Development, Government of India set up the present committee vide order No. 74/3/89Desk(TE) dated 5 January 1990.

2.1 Terms of Reference

The terms of reference of the committee were as under:
1. Draw up minimum levels of learning for Classes III and V.
2. Recommend a procedure for comprehensive learner evaluation and assessment.
3. Look into the non-cognitive areas of learning and suggest concrete ways in which teaching in
these areas can be improved. The committee was further informed that the terms of reference
related to both formal and non-formal systems of education.

2.2 Members of the Committee

The committee consisted of the following members:
1. Dr R.H. Dave, Director (Retd.), Unesco Institute for Education, Walterstrasse 120,2000
Hamburg 61, Germany
2. Shri S.C. Behar, Principal Secretary and Chairman, Professional Education Board,
Government of Madhya Pradesh, Bhopal
3. Dr C.J. Daswani, Head, Department of Non-Formal Education and Education of SC/ST,
NCERT, New Delhi
4. Dr R. Govinda, Head, School and Non-Formal Education Unit, NIEPA, New Delhi
5. Dr John Kurrien, Director, Centre for Learning Resources, B-210, Gera Park, 15, Boat Club
Road, Pune
6. Professor J.S. Rajput, Joint Educational Adviser (EE), Ministry of HRD, Department of
Education, New Delhi
7. Smt Kiran Dhingra, Director (EE), Ministry of HRD, Department of Education, New Delhi
8. Dr J.N. Joshi, Professor, Department of Education, Punjab University, Chandigarh
9. Shri N.J. Bhatt, Gujarat State Council of Educational Research and Training, Ahmedabad
10. Smt Marwah, Teacher, N.D.M.C. School, New Delhi
11. Dr Pritam Singh, Professor and Head, Navodaya Vidyalaya Cell, NCERT, New Delhi,
Member Convener
In addition, the following persons were associated with the work of the committee and
participated in its deliberations:
1. Shri Prabhakar Singh (Retd. Field Adviser, NCERT), 574 Mumfordganj, Allahabad
2. Professor H.S. Srivastava, Head, DMES&DP, NCERT, New Delhi
3. Dr H.K. Dewan, Ekalavya, Bhopal

3. Procedures Followed by the Committee

3.1 The committee met five times for durations of one to five days between January and August
1990. It invited some more specialists to attend its first meeting and held a wide range of

discussions. The committee decided to follow the following broad parameters for work within
the framework provided by the terms of reference:
1. The committee will take an integrated view of primary level education being provided in the
country through formal as well as non-formal streams. Accordingly, the minimum levels of
learning to be specified by the committee will be applicable to primary level education, both in
the formal and the non-formal streams.
2. The committee recognized that the curriculum prescribed for primary level education consists
of a number of subject areas. It was decided that the committee will draw minimum levels of
learning only in respect of three subjects, namely, language (mother tongue), mathematics and
environmental studies.
3. Even though the terms of reference required the specification of Minimum Levels with respect
to Classes III and V only, the committee decided to carry out the exercise with respect to all the
five classes at the primary stage. This was considered necessary in order to ensure proper
progression of competencies within each class as well as across the five classes.
4. The committee recognized that consideration of non-cognitive aspects of learning is a wide
area and demands a separate exercise. Therefore, it was decided that the present exercise may not
deal with the psychomotor domain and even in the effective domain the committee would only
indicate the direction in which educational programmes be reoriented for imbibing a few basic
characteristics relevant to personal and social growth of the individual as well as national
development.
3.2 Following these basic clarifications regarding the terms of reference and the work of the
committee, specific tasks were taken up by the members and others associated with the work of
the committee. The draft material developed through this process was presented and discussed in
the subsequent meetings of the committee. The revised versions were provisionally adopted at
the fourth meeting of the committee held in June 1990. It was also decided to hold a wide range
of consultations with practising teachers from the formal as well as the non-formal streams
before finalizing the MLLs, the scheme of evaluation and suggestions for strengthening
instructional programmes in the non-cognitive areas of learning.
3.3 Accordingly, consultative meetings of teachers were held in seven States of Andhra Pradesh,
Bihar, Gujarat, Madhya Pradesh, Maharashtra, Rajasthan and Tamil Nadu with the help of the
concerned State Councils of Educational Research and Training and some voluntary agencies
involved in non-formal education programmes in these States. Each meeting was of five-day
duration and had 30 to 35 participants. In all, 227 primary school teachers and NFE instructors
were consulted through this process. The suggestions given by the participants of the meetings
were collated and placed before the committee in its fifth and final meeting in August 1990. In
the light of the reaction of the teachers/instructors, the earlier drafts were revised and rewritten.
The committee also drew up a plan of action for implementing the recommendations of the
committee.

MINIMUM LEVELS OF LEARNING: SOME IMPORTANT FEATURES

1.Introduction
1.1 The need to lay down Minimum Levels of Learning (MLL) emerges from the basic concern that irrespective of
caste, creed, location or sex, all children must be given access to education of a comparable standard. The major
focus of the policy formulation behind the MLL exercise is upon equity and reduction of existing disparities. The
effort is to combine quality concerns with concerns for equity keeping in view the developmental needs of children
from the disadvantaged and deprived sections of the society, the dropouts, working children, and girls, who
constitute the majority of school-going age population in this country, and to whom, in all likelihood, at least for
some time to come, primary education will he the only opportunity for structured learning. This basic concern
underscores the approach adopted by the committee in defining the minimum levels of learning.
1.2 Minimum levels of learning can, perhaps, be specified in a variety of ways. For instance, MLLs can be stated as
expected learning outcomes defined as observable terminal behaviours. One may also go for a taxonomic analysis of
learning objectives such as knowledge, comprehension, application, analysis, synthesis, evaluation and so on and
accordingly indicate the expected learning outcomes. One can also state the MLLs in terms of learning competencies
expected to be mastered by every child by the end of a particular class or stage of education. These different
approaches for stating the MLLs are not mutually exclusive. Of the various alternatives available, the committee has
chosen to state the MLLs in terms of terminal competencies. Each competency can be further delineated in terms of
sub-competencies while specifying the content inputs or while measures of learning.
1.3 It may be noted that the set of MLLs would actually represent the rational criteria adopted for judging the
adequacy of the curricular inputs provided and the learning outcomes to be expected. There can be no finality with
respect to any set of MLLs. This applies to the set of MLLs developed by the committee also. Two basic
considerations kept in view while formulating the MLLs are: (i) the cognitive capabilities of the children at different
classes or grades corresponding to different stage of development; and (ii) the empirical reality in terms of the
enabling environmental conditions that characterize the primary education programmes.
1.4 No attempt has been made by the committee to provide a technical analysis of the meaning of Minimum Levels
of Learning. The present section discusses some of the important operational features, which have guided the
committee in formulating the MLLs.

2. Specification of MLL: A Quality Issue

The emphasis on defining precisely what children should have learnt by the end of every stage of education stems
principally from three concerns:
2.1 Firstly, laying down of well-defined levels of learning Is expected to introduce a sense of direction and a greater
element of accountability in the system. It is often pointed out that neither teachers and pupils nor, as a consequence,
parents and educational planners seem to know where they are and where they ought to be. Without a clearly
defined sot of criteria for measuring student progress, it is not surprising that the teacher lose sight of their goals,
and it is far-fetched to presume that such measures as regular attendance and the completion of the syllabus in time
can effectively substitute measures of actual attainment of learning. As a natural consequence, the pupils also are
likely to lose a sense of purpose and motivation in their studies, and many parents may get to doubt the
worthwhileness of schooling rather than employing the children more usefully elsewhere. Stating precisely what the
objectives are and clearly defining the minimum levels of learning that all children must achieve at a given stage of
education, is thus seen as one of the important prerequisites for infusing a sense of direction to the system and
thereby paving the way for improving its accountability.
2.2 Secondly, it is expected that MLL will provide an effective tool for programme formulation for school
improvement. The quality of a school or educational system should, in the real sense, be defined in terms of the
performance capabilities of its students and graduates. Yet, in practice, since inputs into the teaching process are
generally easier to measure than education's multifaceted outputs, quality is often depicted in terms of the former
than the latter. However, at the present juncture, when the focus of school improvement programmes tends to be on
factors that are likely to multiply costs per capita, it is necessary to set up measures for judging the quality of
schools by what students are actually learning. What is it that makes a good school? Is it better buildings, more
equipment or better-qualified teachers? To what extent can we increase inputs to increase output in terms of pupil
achievements? What kinds of inputs yield better output? In order to find proper answers to these questions and

provide inputs selectively, we have to first define our measure of output in the form of expected standard of
achievement by practically all children.
2.3 Thirdly and fundamental to the issue, there is the widely held perception that in a vast majority of government
and municipal schools children can barely read their own textbooks even after spending as many as five years in
school, Considering that, to a large number of them, opportunity for education is not likely to be available beyond
the primary stage and what they learn here must sustain them throughout their lives, it becomes imperative that the
educational system makes sure that these precious school years of the children are not wasted, That all children,
irrespective of the conditions the come from and the condition of the schools they attend, reach a minimum level of
learning before they finish primary education that would eventually enable them to understand their world and
prepare them to function in it as permanently literate, socially useful and contributing adults.

3.Specification of MLL: A Curriculum Issue

3.1 Every curriculum, as it attempts to modify the cognitive as well as non-cognitive domains of development of the
learner, lays down specific educational objectives and the corresponding learning outcomes expected on the part of
the learners. Usually, these are defined with reference to targets of educational achievement under ideal conditions
of learning, enabling the learning to fully realize their inherent potential and engage in socially useful life. However,
the criticism levelled against the existing set of curricular prescriptions and the corresponding learning outcomes is
that they are only designed to prepare students for secondary and university education. Consequently, there is an
overload of content of facts and information that would have very little relevance to the life or needs of a majority of
students.
3.2 Also, it is often pointed out that the outcomes of learning expected do not seem to be based on the maturity level
of the learner especially during the initial years of elementary education. This ambitiousness in the primary level
syllabus is now increasingly recognized as counter-productive to excellence in learning and dangerous to the
concerns of equity. The syllabus load often compels the teacher to ignore altogether certain basic principles of the
teaching-learning process. The need to complete the syllabus seems to take precedence over the need to progress
according to the pace of learning of the whole class and teachers find themselves forced to ignore the strugglers,
forego attempts at remedial teaching or considerations for experimentation, exploration, observation or activitybased learning. The conventional textbook and lecture method of teaching, being the quickest way to complete the
syllabus, becomes the best option available, forcing upon the students a joyless rote memorization, an overemphasis
upon textbooks and in many cases, a reliance on help from outside the school. The disadvantage this builds into the
system for the already deprived needs no special elaboration-for those who have no support for learning at home or
outside the school, no proper textbooks and learning aids, and who consequently have a complete dependence on
schools for mastering their syllabus, it leaves little scope but for repetitions or dropping out. Even many of those
who manage to complete, despite these handicaps, attain at best an incomplete mastery of the basic skills.
3.3 Laying down minimum levels of learning should help to resolve some of these problems by identifying the
irrelevant and excessive learning load in the existing curriculum. The MLL exercise should, therefore, be viewed as
part of a larger curriculum reform endeavour attempting to move towards greater relevance and functionality in
primary education. The implications of this exercise are:
- lightening the curriculum of its textual load and also the burden of memorizing unnecessary and irrelevant
facts;
- leaving room for the teacher to relate textbook information and objective reality into a meaningful process of
understanding and application;
- ensuring the acquisition of basic competencies and skills to such a level where they are sustainable, and would
not easily allow for relapse into illiteracy;

permitting mastery learning not only by the brighter students in the class but also by
almost all children including the first generation learners.

4. Some Basic Features of MLL

Specification of MLLs should meet the purpose of increasing learning attainments and serve as performance goals
for the teacher and output indicators for the system. For this, the MLL must have, apart from relevance and
functionality, the attributes of achievability, understandability and evaluability.

4.1 Achievability
A basic characteristic that MLLs must satisfy is that they should correspond to learning objectives that are
achievable by all learners. This is so because of certain specific reasons:
(i) To serve as performance objectives and goals: it is generally observed that curriculum objectives are so remote
from the life situation of the child and the actual levels of achievement in the class that very few teachers feel the
assurance that they can help their pupils achieve the objectives. They tend, therefore, to implicitly formulate their
own objectives, either going through the motions of textbook lessons or just rote memorization. It is felt that the
teacher would teach to the prescribed curriculum objectives and accept them as goals only if he feels confident that
he can actually achieve them. Such a situation must be ensured in our educational institutions if the teachers have to
use learning objectives as performance goals and output measures.
(ii) To ensure learning up to mastery level by every child in the class: The present objectives, as achievement tests
reveal, are mastered by very few children in a class. The majority learns them inadequately, or incompletely, and
tend to easily forget them. The endeavour should, therefore, be to set MLLs closer to the realistic levels of
attainability so that the class as a whole works towards mastery of these MLLs. In operational terms, 80 per cent or
more of the children mastering at least 80 per cent of the prescribed learning levels should be the performance target
for the teacher henceforth.

(iii)
In a country in which achievement levels vary widely with regions, districts, school conditions,
socioeconomic profile and other diverse factors, setting realistic and achievable minimum levels necessarily
demands a great deal of flexibility in implementation. For example, what is easily achievable as mastery level
learning in municipal schools in Bombay at present may not be immediately feasible for panchayat schools in
Jaisalmer district in Rajasthan. It is, therefore, expected that each region, preferably district, will examine the MLLs
in relation to its own situation, and set intermediate targets which would permit within a reasonable expectation of
improvement in school conditions and a specified time frame, mastery level attainment by almost all children in
their schools. It is necessary that this exercise be preceded by a careful criterion-referenced assessment of the
existing levels of achievement. These intermediate stages may be set as time-bound targets to convey a sense of
urgency and serve as a reference against which indices of implementation and accomplishment can be compared.
The expectation will be that by improving inputs into the system, the levels of achievement in each school or region
are gradually raised till they reach the MLLs. Different regions, depending on their present levels of achievement
will take varying periods of time to reach the standards indicated by the MLLs. The endeavour will be to direct
greater resources where levels of learning are lower and to consciously accelerate the pace of development in the
needy regions, thereby reducing disparities and equalizing standards over the entire country in the shortest possible
time.

4.2 Communicability
It is not enough that MLLs are realistic and achievable. It is equally important to set them in a language and form
that are easily understandable to all the teachers, many of whom located in remote rural areas work in isolation
without any outside help or guidance. Apart from primary school teachers, the MLLs should also be understandable
to the NFE instructor, the parent, and the community. Thus, in order to function as achievement targets, the MLLs
must be spelt out simple enough terms so as to be understandable to all those concerned with the academic growth
of the children. Accordingly, an attempt has been made to prepare the Report of the Committee in a such a way that
it places in the hands of the primary school teacher and the NFE instructor a document that will serve as a statement
of expected competencies guiding their classroom teaching and evaluation procedures. This should also be equally
useful to curriculum developers, textbook writers and educational administrators.

4.3 Evaluability
The statement of MLLs should be such that they serve as an effective blue print for continuous and comprehensive
evaluation of learners and thereby streamline the processes involved. Presently, no systematic learner evaluation
procedures are adopted at the elementary stage in many of the schools. Most states follow a no-detention or
automatic promotion policy, according to which children am not to be detained in the same class to repeat the
course, since this has been identified as a main reason for dropping out without completing even the primary stage
of education. The no-detention policy presumes an intrinsic ability of all children to learn provided they are taught
well enough, and places the onus upon the teacher and the school to create conditions whereby leaning can
effectively take place. It is, however, observed that many teachers interpret 'no detention' as 'no testing' and have
altogether given up doing pupil evaluation, with the result that, very often, no one is fully swam of the learning

status of the children till they reach the terminal class of the elementary stage. Taking stock of this situation, the
Working Group for the Eighth Five Year Plan (1989) has recommended the introduction of a comprehensive
evaluation system: Students should have a well-defined goal of acquiring a mastery level, particularly in subjects
which serve as the basic tools of learning. Parents seem to feel dissatisfied with the levels of learning being achieved
in schools and would feel happier with a testing system introduced. Teachers too need to know more clearly about
the expected outcomes; in the courses they teach. Educational administrators would have in the system of tests of
learners, the instrumentality to appraise the performance of institutions and teachers.
For MLLs to provide this well-defined goal of acquiring a mastery level it is necessary that they must give a clearcut specification of expected learning outcomes, which would permit the construction of criterion-referenced tests
by the teachers. Results of such tests based an the MLLs should be such that the teacher can identify which specific
learning outcomes or competencies have not been mastered by the learner, help the learner to relearn the clusters of
competencies representing specific unit, as well as prepare corrective for remedial instruction quite precisely. Thus
MLLs stated in easily evaluable terms should help the learners achieve mastery levels as they move from one unit to
the next. The attempt has thus been to set the MLLs in such a way as to make assessment of learner attainment easy
for the teacher, whether it is done through written, oral or other types of tests.

4.4 Learning Continuum

The endeavour has been to set MLLs in as simple and comprehensible manner as possible, specifying the
competencies to be mastered under each learning unit from Class I through Class V. Learning has been seen as a
'continuum', in which the units are sequenced hierarchically so that the clusters of competencies in one unit build as
directly as possible on the competencies in the preceding unit. It is firmly believed that if the children progress
systematically through this continuum, mastering the concerned sets or competencies in each unit before they move
on to the next, learning each subsequent unit will be more enjoyable and meaningful, and the achievement of
minimum levels of learning will be facilitated.

5.Comparable Learning in NFE

5.1 Even though the MLLs are being specified in terms of five class wise stages, the underlying concept of 'learning
continuum' makes this division only indicative and not rigid. In practice, the pace of learning of the child will decide
how long it should take to reach the prescribed MLL, and age, earlier teaming experience, learning time within and
outside school are some of the factors that will decide the pace.
5.2 It is conceivable, therefore, to prescribe the same levels of learning for the NFE system, or any other alternative
system for primary education. Indeed, this exercise of laying down a level, of learning that has regard not to the
syllabus and contents of primary schools but specify expected learning outcomes in the form of functionally relevant
skills and competencies should help in answering in a convincing manner the questions regarding comparability of
learning standards between formal primary schools and alternative models. The question no longer remains one of
NFE conforming or not to the primary school norms, but becomes one of the viability of different models and
methodologies to attain prescribed levels of learning. From questioning the rationale of the NFE system, the concern
shifts to issues regarding the duration, quality and teaching processes of the various models and hence, logically to
the inputs required to ensure that the prescribed levels of learning are effectively reached by all learners.

6. Cognitive and Non-Cognitive Areas of Learning

According to the terms of reference of the committee, the present exercise of delineating MLLs is confined to the
curricular areas of - Language - Mathematics - Environmental Studies (including Social Studies and Science). While
these are very crucial subjects for primary education, subjects such as Physical Education, Work Experience and
Music & Art Education should not be excluded from the total curriculum plan. Similarly, the non-cognitive aspects
of the curriculum are as important, if not more, as cognitive areas. Not only that the non-cognitive learning
outcomes cut across different subjects of the curriculum mentioned above, but they also call for a variety of cocurricular activities organized within and outside the school. In view of the limited scope of this committee's work
and limitations of time, the committee has just briefly mentioned in this report certain key personal and social
qualities that load to character building. In brief, further work will be needed to develop specifications of MLL with
respect to those subjects that have not been dealt with in the report of this committee.

MINIMUM LEVELS OF LEARNING IN LANGUAGE

At the primary level, language occupies a pivotal place in the curriculum. The basic skills acquired through language
learning facilitate learning of concepts in other areas. Moreover, in the shaping of the personality of the child and in
all his/her effective transactions in the day-to-day life situations the nine basic language skills, namely, listening,
speaking, reading, writing, comprehension of ideas (through listening and reading), functional grammar, selflearning, language use, and vocabulary control play significant roles.

Objectives of Language Learning

At the primary stage, the main objectives of language learning are to: - be able to listen with understanding; - be able
to speak effectively in both informal and formal transactions; - be able to read with comprehension and enjoy
reading various kinds of instructional materials; - be able to write neatly, with logical sequence and creativity; - be
able to comprehend ideas through listening and reading; - be able to use grammar functionally in various contexts;

Gradation of Competencies for Different Classes

The minimum levels of learning have been stated in terms of competencies that every child should be able to
develop in the school or in the NFE centre. (The middle number in the numbering system used shows the year or the
class).
The competencies have been listed year-wise. However, the competencies of Class I are to be carried forward
through Classes II to V. Competencies listed under each class are the starting points for building these competencies.
These should be carried throughout till the end of primary schooling. (See, for example, competencies 4.1.1 to 4.5.1)

Inter-linkages between Competencies

The first four competencies (Listening, Speaking, Reading and Writing) relate to the four language skills that are
well known. These competencies are basic and have to be established in any effective language-learning context.
Although these competencies have been listed separately for convenience of specification of levels, the
competencies are naturally interlinked. This inter-linkage between four basic competencies is reflected in
Competency 5, which attempts to specify levels of comprehension of ideas in language through listening and
reading. It should be noted that just as listening and reading are interlinked so are reading and writing, and listening
and speaking. In the same way all the competencies listed here have linkages with each other. For effective
transactions of these competencies the teacher will have to provide interesting and dynamic linkages between the
various competencies.

Teaching-Learning Strategies
A variety of interesting activities in the form of narration of events, peer group discussions, story-telling, drama,
dialogue, question-answer, quiz competition, riddles, word-play, debates during school functions, and songs are to
be organized for making language learning a joyful activity. Self-learning skills and functional use of language are
also to be developed by encouraging the study of interesting children's books, picture dictionary and peer group
activities.

Pupil Evaluation
The MLLs are designed to assist the teacher (or NFE Instructor) to evaluate whether the learner is able to develop
these competencies through the teaching-learning strategies. In pupil evaluation the major emphasis should be on

creating informal social situations in the class. Functionality and creative use of language in day-to-day life
situations should be the other points in consideration. Besides textbooks, other materials like picture cards, word
cards, participation in social situations may also be utilized for assessing pupil's level of learning competencies in
language.

MINIMUM LEVELS OF LEARNING IN MATHEMATICS

Objectives of Primary Mathematics

One of the major objectives of teaching primary mathematics is to enable children to solve speedily and accurately
the numerical and spatial problems, which they encounter at home, in the school and in the community. Primary
mathematics should help children develop understanding of key mathematical concepts at each level through
appropriate experiences with things from the physical world and the immediate environment. It should help children
develop an understanding from the concrete to the abstract, from the specific to the general. The mathematics
curriculum at the primary stage should, therefore, be directed to achieve the following objectives:
Ability to
- perform computations, with speed and accuracy
- translate verbal statements (a) in mathematical form using appropriate symbols, and (b) diagramatically
- make reasonably good approximations and estimate measurements
- apply mathematical concepts and skills to solve simple problems of day-to-day life
- think logically
- recognize order and pattern.

Note to Minimum Learning Competencies

1. The key mathematical concepts for each class are not listed in order of instructional sequence but have been
classified under the following five areas of mathematical competencies:
(i) Understanding Whole Numbers and Numerals.
(ii) Ability to Add, Subtract, Multiply and Divide Whole Numbers.
(iii)Ability to use and solve simple problems of daily life relating to Units of Money, Length, Weight, Capacity,
Area and Time.
(iv)Ability to use Fractions, Decimals and Percentage.
(v) Understanding of Geometrical Shapes and Spatial Relationships.
2. There is a separate section entitled Readiness for Primary Mathematics which precedes the above five areas.
These are not to be viewed as experiences to be given only at the beginning of Class I, but rather spread over Class I
and Class II as developing readiness for the concepts and problem-solving which are to follow in Classes III-V.
3. The key mathematical competencies have been listed primarily to include for the most part concepts and
application of skills which will help all children acquire certain minimum levels of functional mathematics Mastery
of these competencies will help children at present and in their later life to apply mathematical concepts and skills to
solve problems relating to daily life. Therefore, these key mathematical competencies have included mental
mathematical skills, estimation skills and the understanding of shapes and spatial relationships.
4. Concrete objects and mathematical equipment need to be used throughout the primary stage in mathematics,
especially wherever new key concepts have to be gained. Though not always stated in conjunction with each
skill/concept in the minimum learning competencies, it is imperative that this approach should be consistently
followed. It has been stated in Class I as indicative and to highlight the significance of the experiential approach in
the teaching and learning of mathematics. Such experiential learning will also enable children to find pleasure and
excitement in the study of mathematics.
5. It should be noted that while it has not been stated, children need to revise the earlier stage of mathematical
concepts before proceedings further. This revision has not been indicated with each concept.

6. In a few cases, the same mathematical competency has been repeated in two classes. This implies that while
instruction and practice in the competency should be given in both classes, mastery should only be expected in the
higher class.

Readiness for Primary Mathematics

1. Arrange objects in order according to size, length, thickness, weight and volume and use vocabulary describing
the relationship, e.g. 'bigger than', 'smaller than', 'the same as', 'heavier', 'heaviest', etc.
2. Classify groups of objects according to various properties, e.g. size, Shape, length, etc.
3. Compare positions of things and persons in terms of the distance given point of reference and use vocabulary
describing the relationships, e.g. 'near', 'far', 'nearest', etc.
4. Perceive and reproduce simple patterns relating to shape, colour, position and quantity.

MINIMUM LEVELS OF LEARNING IN ENVIRONMENTAL STUDIES

1. Environment is generally taken to consist of two main aspects: natural and human, i.e. manmade or social. This division is often reflected in the curriculum of Environmental Studies (EVS)
where, traditionally, these have been labelled as Parts I and II separately, or Social Studies and
Science, respectively. In fact, the total environment should be viewed integratively as the product
of the interaction among the man, the natural environment and the social environment.
2. The proposed curriculum plan tries to include all these three dynamic and mutually interactive elements. It has
been built around 10 major competencies. The first one is concerned with one's well being in the context of natural
and social environment. The next five deal with the social aspects such as socio-civic environment, the world of
work, spatial relationship between man and his natural environment, man's past-present relationship, and some
common problems concerning environmental interaction. The last four major competencies relate to selected
components of natural environment pressing on the scientific aspect besides the personal and social ones, and
include the elements of health, living things, non-living things, and the earth and the sky.
3. The ten major competencies aimed at the cognitive, affective and psychomotor domains of development together
with the content elements associated with them are enumerated below:
The pupil

(i)
acquires awareness about one's well-being in the context of social and natural
environment.
(ii) Explores important aspects of one's socio-civic environment and comprehends their working.
(iii) Knows about various people at work and appreciates the importance about the 'world of work'.

(iv) Understands and interprets the spatial and interactive relationship between man and his
environment.
(v) begins to see the relationship between man's past and present, and to hold the past in its proper perspective.
(vi)Senses common but simple and easily observable socioeconomic situations and problems, analyses them
and seeks possible solutions at his level of experience.
(vii)Understands the factors contributing to the preservation of good health.
(viii)Develops skill in gathering and classifying information about living things from one's environment, and
drawing simple inferences.
(ix) Observes and examines some common characteristics of non- living things.
(x) Observes simple phenomena on the earth and in the sky and draws inferences.
4. It may be pointed out that the proposed scheme of MLLs avoids drawing any hard and fast dividing line between
various components of Environmental Studies and expects them to be treated in a correlated manner. In the ultimate
analysis, every child has to conduct himself/herself, as a socially responsible citizen as he/she grows, has to become
aware of environmental conditions and the need to protecting it, and has to broaden his/her socio-economic and
scientific outlook with the attainment of greater maturity. It is for the achievement of such broad life goals that the
competencies stated above have to be mastered during the initial stage of education.

5. In order to develop these major competencies grade by grade, they have been delineated into specific subcompetencies anchoring them with relevant content units, and have been presented as a flow chart in a sequential
and interconnected manner. The horizontal relationship of different competencies within a grade and vertical
articulation established across grades have to be kept in view in the process of teaching as well as evaluation.
Therefore, a particular numbering system is followed in presenting these competencies including pertinent content
elements. For example, the sub-competency numbered 5.4.2 means that it belongs to the fifth major competency, for
Class IV, and second competency in the study of Progress of Man from Early Times to the Present Age (see
Statement of MLLs).
6. Each competency or sub-competency represents a specific curricular objective describing expected learning
outcomes. Keeping these expected outcomes of learning in view, effective and attractive procedures of teaching and
learning should be followed. The competencies under EVS are such that the techniques of teaching can be
conveniently made activity-based. The child should, therefore, be given ample opportunities both individually and in
groups, as also within the classroom and outside to observe, explore, analyse, interpret and appreciate the natural
and social environment of which he/she is an integral part. The textbook and other aids should be used for
reinforcement of these processes.
7. Evaluation of learning outcomes should be integrated with the process of teaching and children's activities on a
continuous basis. In the first two classes it should be largely observational and oral. Written tests may be gradually
introduced from Class III but should be supplemented by other techniques. The capacity of understanding and
application of knowledge acquired rather than rote memorization should be particularly stressed in formal as well as
informal examinations.

NON-COGNITIVE AREAS OF LEARNING

1.Introduction
1.1 All-round development of the personality is the ultimate goal of education and, therefore, the learning
experiences provided in the school should contribute towards the achievement of this end. Accordingly the expected
outcomes of learning cannot be limited only to the cognitive domain; it is necessary to delineate learning outcomes
expected in the affective and the psychomotor domains also. In contrast to cognitive aspects, non-cognitive aspects
cannot be specified as tangible terminal behaviours, since they comprise elements of personality which manifest
themselves in interest, attitudes, personal and social behaviour and value systems. That these form integral part of
the set of outcomes expected to be acquired every individual completing the basic education programme is well
accepted. It is also recognized that unlike learning outcomes in the cognitive domain, those in the non-cognitive
domain, particularly the affective characteristics, cannot be specified in terms of minimum levels. Nevertheless, the
need to imbibe certain basic values as part of the process of growing and learning at the primary level of education
cannot be questioned. In fact, primary level education provides an ideal setting for this purpose as children at this
level are at a plastic age and the experience provided to them at this stage can have a more lasting impact in
moulding their personality.
1.2 Before embarking on the specification of non-cognitive aspects of human personality, which every child should
be facilitated to acquire through schooling, it is necessary to clarify two points. First, the exercise carried out here is
confined only to the affective domain, and the psychomotor domain has. Consciously been kept out of the purview.
It is considered that specification of psychomotor abilities are closely linked with such curricular components as
work experience and physical education, and demands more elaborate deliberations and independent treatment.
Secondly, the affective characteristics discussed in this report do not constitute a comprehensive list of all possible
learning outcomes in the affective domain. This delimitation is deliberate. The qualities, which are explicitly
mentioned here are only indicative of the areas, which require every school to make conscious efforts for organizing
relevant learning experiences. They suggest the essential aspects of personality development which need to be
consciously pursued as part of all educational programmes, formal as well as non-formal. It is presumed that the list
will be extended and adapted at the micro-level in a need-based manner.

2. Specification of Non-Cognitive Areas

2.1 All specifications of minimum or essential areas of learning have a normative basis. This is particularly the case
with respect to specification of outcomes in the affective domain. It is, therefore, necessary to identify the

appropriate normative base adopted here for deriving the specifications and adapting them in the empirical context
provided by daily life experiences and needs of the children. The NPE-1986 national values enshrined in the Indian
Constitution which have been further explicated in the National Policy on Education, 1986. The NPE-1986
specifically highlights the need for promotion of values such as India's common cultural heritage, egalitarianism,
democracy and secularism, equality of sexes, protection of the environment, removal of social barriers, observance
of the small family norm and inculcation of the scientific temper, The policy calls for strengthening a world view
which treats the whole world as one family by motivating the younger generation for international cooperation and
peaceful coexistence, education should foster an awareness of the equality of all by removing "prejudices and
complexes transmitted through the social environment and the accident of birth".
2.2 Keeping the above policy directive as the board guidelines the committee recommends that every school should
make conscious efforts to develop certain essential affective qualities in all the children, which are eventually below,
Those have been identified as the key qualities which would eventually contribute towards personal and social
growth as well as national development.
(i) Regularity and punctuality : These values manifest as appreciation for and sensitivity to the value of time and
time-bound commitments. Significance of this in every aspect of life and progress needs no special mention. For
instance, the children have to develop a habit or style of living where regularity in attending the school daily and on
time becomes a part of their natural course of action and are not carried out through external persuasion or coercion
of any kind.
(ii) Cleanliness : This refers to the basic attitude that an individual develops towards his or her environment. This
attitude manifests in terms of the child's personal habits of healthful living and keeping the personal self as well as
the immediate physical environment in a clean condition. This obviously is another key quality which has a direct
bearing on the learning experiences provided to the children during their early life at school and home.
(iii) Industriousness/diligence: This does not refer so much to the particular actions the children should do, as to the
value they should attach to achieving their goals through hard work and perseverance. It is the inculcation of this
quality which prepares the children to undertake goal-oriented tasks, pursue them with patience and complete them
in a time-bound fashion.
(iv) Sense of duty and service : These manifest as willingness to sacrifice self-interest for the welfare of others while
performing one's dudes without any feeling fear or favour. It is to create in the growing child a sense of empathy and
readiness to render help voluntarily to neighbours, peers, handicapped, old people, and so on.
(v) Equality: Acceptance of the proposition that all are equal irrespective of caste, creed, religion or sex requires
inculcating in the child a basic mental disposition to view the relationship of self and others in an egalitarian
framework. The school experiences should nurture such a view in every child so that he or she grows into an adult
carrying a sense of belongingness to a community of equals, each sharing a common set of rights, responsibilities
and obligations to the society. The ultimate goal is to help the children move towards a global perspective cutting
across the barriers of linguistic, racial, regional, cultural, religious, social and economic differences.
(vi) Cooperation: The value of working together to achieve common goals needs to be imbibed in all children
through appropriate experiences of working and living together inside and outside the school. The mutually
interdependent nature of human life at local, national, and internationals has to be brought home to the children so
that they realize the need for cooperative effort. This should of course be done in a careful manner so as not to
jeopardize the sense of independence, individuality and spirit of competition in the child which are equally
important.
(vii) Sense of responsibility: Developing a sense of responsibility can be seen as the readiness of the child to face
difficulties and problematic situations with commitment and conviction while performing various tasks. This
requires building in the children a positive self-image and confidence in their personal capabilities.
(viii) Truthfulness: A quality expected in every individual is the basic urge to be truthful in his or her dealings, in
every aspect of work and life. This value is so central in determining the behaviour of the child that it permeates all
actions giving them the stamp of legitimacy and authenticity. It is essential that in the school and at home children
are properly guided and enabled to develop the strength of mind to subject every idea and action of theirs to this
criterion.
(ix) National identity: Developing a sense of national identity should be a prolonged and consistent process of
inculcating in the minds of the children a sense of respect for the national symbols, and reverence and concern for
upholding the basic values enshrined in the constitution. This is not developing a blind loyalty to a set of

prescriptions but an enlightened understanding of the commonly accepted framework essential for national unity and
integration.

3.Development of Specified Qualities

3.1 Development of specific cognitive capabilities can largely be seen in correspondence with particular subjects of
study in the school curriculum. But this cannot be applied with regard to development of qualities in the noncognitive domain. Objectives in the non- cognitive domain do not lend themselves to be specifically attached to any
particular area or subject of learning; rather they are related directly or indirectly to every learning experience
provided in the school. Also, while the school will occupy a place of prime importance in developing these qualities,
family and community will continue to play significant roles in helping the children internalise these qualities and
making them a part of their personal life style. This makes the task of the school with respect to non-cognitive
domain a complex and difficult one. Some suggestions are placed here regarding the role to be played by the school,
and the parents and community in facilitating the children to acquire the key qualities when they undergo primary
schooling.

3.2 Role of the School

The school is the place where children are introduced to acting with understanding, where behaviour and knowledge
are integrated and reflected in their actions. It is the school, which in course of time moulds their attitudes, interests,
likes and dislike towards various objects, individuals, issues and problems they are likely to face in their life. Thus,
the characteristics of the child passing out of a school is moulded by the kind of curricular inputs prescribed and the
way they are transacted in the schools. Needless to say that the schools have to make a conscious effort to organize
the learning experiences in such a way that the children acquire desirable cognitive and non-cognitive characteristics
in a balanced fashion. As is often pointed out, cognitive objectives have come to dominate the activities in our
schools, invariably at the cost of non-cognitive objectives. It is essential that concerted and conscious efforts are
made to organize such learning experiences that develop in the children at least the minimum set of outcomes in the
non-cognitive domain.
With respect to the specific role to be played by the school in the process of developing the non-cognitive
characteristics four important aspects need to be highlighted.
(i) School organization: The qualities of punctuality, cleanliness, sense of service, cooperation and so on are, to a
considerable extent, absorbed by the students in an informal manner from the immediate environment provided in
the school. Therefore, it is essential that these factors are effectively reflected in the way the various activities and
the physical setting of the school are organized and maintained. For instance, if the school surroundings are kept
unclean, or the school activities are organized with a gender bias, it is most unlikely that children develop values of
Cleanliness and equality of sexes in their own lives. Thus, utmost attention is to be paid; for designing the
organizational structure, physical setting and learning processes in the school so that 'school' as a whole becomes a
powerful instrument facilitating the inculcation of various qualities in the non-cognitive domain.
(ii) Teacher: It is a well-established fact that a major means through which affective qualities are acquired by
children is 'observation and imitation' of adult behaviour. Teacher, willy-nilly, is a model that students in the early
stage of education tend to follow and, therefore, every teacher bears a great responsibility in his or her personal
presentation and external manifestations of attitudes, work habits and styles of living. Teacher should not be seen
only as a transmitter of knowledge and skill but also as a trend-setter for the youngsters through personal behaviour
inside and outside the classroom.
(iii) Curricular inputs: Even though, to a great extent, non- cognitive characteristics in the affective domain are
caught rather than taught, learning experiences in different subject areas have a significant role in shaping the
attitudes and interests of the children. It is necessary to have great care and caution in selecting appropriate
curricular inputs and properly transacting them in the classroom. For instance, wrongly chosen inputs in language
lessons may develop the requisite cognitive abilities but instil undesirable linguistic, regional or racial disposition in
the children. In appropriate choice and inept treatment of social studies content may, instead of developing a sense
of national identity, lead to divisive thinking in the children. Similarly, right kind of attitude towards environment
and personal hygiene are more likely to develop when supported by a proper knowledge base. Thus, curricular
experiences are to be selected with adequate attention to their potential for developing not only the cognitive
abilities but also various non- cognitive characteristics in the children.

(iv) Physical education, work experience and art education: While the prescribed curricular activities in scholastic
subject areas such as language mathematics, environmental studios may have the potential to develop outcomes in
the non-cognitive domain, the emphasis in these is more likely to be on the cognitive outcomes. In contrast, certain
areas of school activities such as physical education, work experience, and art education offer more flexibility,
freedom of organization and opportunities for natural and creative expression and thus hold greater potential for
moulding outcomes in the non-cognitive domain. These areas people the children with opportunities to more freely
explore, experience, and interact with their physical and social surroundings and help them realize the values of
natural respect and cooperation, dignity of labour, sense of achievement and identity, and so on. Unfortunately, with
increasing curricular load in scholastic subjects coupled with book-centred and examination- oriented teaching,
schools have been paying scant attention to learning experiences in these areas. It is necessary to reverse this trend
and ensure that these areas are given their legitimate place in the total scheme of activities in the school.
(v) Co-curricular activities: Apart from the various prescribed curricular activities, every educational programme at
the first level should have adequate scope for organizing several co-curricular activities and experiences. These
activities provide ample opportunity for inculcating various personal and social characteristics in a free and natural
context without the constraints of transacting prescribed curricular inputs. It is unfortunate that the potential of cocurricular activities for achieving all-round development of the personality of the children at the primary stage is
given very little importance.

3.3 Role of Parents and Community.

As has already been pointed out, learning outcomes in the affective domain cannot be directly related to any
particular set of curricular experiences provided through a formal process. Acquisition of these qualities continually
take place through informal experiences inside as well as outside the school. The role of parents at home and the
community in this process of informal learning is significant. In an ideal situation, the home, the community and the
school ought to play a complementary and mutually reinforcing role. But this does not always happen in actual
practice. It is not unusual to find parents and community members also equating schooling with cognitive learning
with least concern for a balanced personality development of the children. Further, it would be wrong to expect the
school to accomplish more than what it can, particularly with respect to development of non-cognitive outcomes.
There is no alternative but to view the task as a joint responsibility of school, home and community and it should be
our endeavour to facilitate greater interaction among them towards this purpose.
The school can seek active cooperation of parents and the community in promoting this aspect of learning. For
instance, Parent- Teacher Associations can play an important role in this regard. Periodic interaction among parents,
teachers and educational administrators of the area can go a long way in setting the tone of the educational
programmes to give due emphasis to non-cognitive aspects of learning. The efforts have to multi-prolonged which
should reinforce the efforts of the school in developing an ethos where a balanced emphasis on all aspects of
learning replaces the current practice of over-emphasizing cognitive outcomes.

4.Assessment of Identified Qualities

4.1 When conscious efforts are made by the school to inculcate certain qualities, it also becomes necessary to
evaluate the students and ensure that the students are actually acquiring these qualities. But this is complex task and
poses a number of questions, which cannot be answered with any finality. The school and in particular, the teachers
should be adequately made aware of these problems and equipped to tackle them tactfully.
4.2 Unlike the cognitive outcomes, affective qualities do not lend themselves to be effectively assessed through
paper-pencil tests. The teachers will have to depend greatly on personal observation of student behaviour and infer
about the satisfactory development of the qualities. Teachers need to be properly oriented to carry out such
observations. A related problem is that non-cognitive outcomes are not as tangible as cognitive outcomes are and
they are not to be measured with precision indicating the amount of the quality possessed by the children. This
makes the process of assessing the non-cognitive outcomes essentially judicious and to some extent even subjective.
This lays a high premium on the capability of the evaluators that evaluation of students is not influenced by their
own personal preferences and prejudices. Thirdly, non-cognitive outcomes can at no stage be considered as fully
developed and, therefore, they cannot be referred to as terminal outcomes at any point. They have always to be seen
in terms of 'degree of satisfaction' by the evaluator with respect to the manifestation of different qualifies in the
behaviour of the students. In a way, non-cognitive aspects of learning will perpetually remain as part of a process of

development and change in the students' personality rather than being the final product of specific inputs and
processes. Fourthly, the overt behaviour observed by the teacher is functional and contextual, and can, at times, be
misleading. For instance, a child may succumb under unwarranted pressure, and threat, and may behave against his
or her own will and conviction. Also emotional qualities are such that they are never manifested in isolation and it is
for the observer to discern the qualities and draw inferences. It is essential that evaluation of non-cognitive aspects is
a periodic and continuous affair as one time observations and references can lead to wrong judgement of students.
4.3 In order to systematize the assessment procedures, a few important points need special attention. A welldesigned proforma may be introduced in all schools which help the teachers to keep a record of their periodic
observations. It is essential to make the procedure simple enough so that all teachers can easily adopt them as part of
their regular work. Secondly, it should be noted that the procedure of assessment in non-cognitive areas demand the
use of a variety of evaluation techniques many of which our teachers are not familiar with. It is, therefore, a
precondition that proper retraining of teachers is taken up so that they acquire adequate proficiency in the use of
various evaluation techniques. Thirdly, evaluation of non- cognitive outcomes cannot be the responsibility of any
single teacher, however proficient he or she may be. It has to be a joint endeavour of all teachers in the school,
Appropriate organizational mechanisms need to be evolved to institutionalise such joint evaluation endeavours.
Lastly, as has been pointed out earlier inculcation of these qualities is a continuous process of development
involving not only the school but also parents and the community. Accordingly, it should be appropriate to solicit
the involvement of parents also in assessing non-cognitive aspects of learning.

TOWARDS A SCHEME OF LEARNER EVALUATION

1. MLLs and Evaluation
1.1 A sound evaluation programme, if carefully designed and effectively implemented as an integral part
of an overall educational programme, can be of immense value in maintaining and enhancing the quality
of learning. On the other hand, if learner evaluation is neglected or if a scheme of evaluation is rigid,
ritualistic and lopsided it can prove equally harmful and damaging to the very objective of ensuring the
quality of education. Under the MLL programme, therefore, it is one of the essential preconditions that a
comprehensive, illuminative and improvement-oriented evaluation plan is properly developed and
consistently practised.
1.2. While developing an effective evaluation system, the following issues, among others, may be paid
particular attention:
(a) Prerequisites for following the system of automatic promotion at the initial stage of learning
(b) The need for emphasizing mastery learning at the basic stage of education-the question of
quality coupled with equity
(c) A balanced view of learning and evaluation in respect of both cognitive and non-cognitive
aspects of development
(d) Accountability of the education system and its functionaries as reflected in the actual
achievement of learners.
1.3 The Dilemma of Automatic Promotion: Together with the introduction of a policy of non-detention or
automatic promotion in all or initial classes of primary education, a sound procedure of evaluation closely
integrated with the process of learning was also to be introduced. In fact, a continuous and formative
evaluation procedure is an essential and unavoidable prerequisite for successful implementation of the
policy of automatic promotion. It has, however, been observed that there are many instances where the
scheme of automatic promotion is uniformly practised but evaluation aimed at constant improvement of
learning is either totally neglected or paid inadequate attention. As a result, children often remain weak in
the basic skills of reading, writing and computation besides other aspects of achievement. Indeed, it is too
early to introduce formal examination at least in the first two classes of the primary stage. At the same
time it is essential to check from time to time in an informal but meticulous manner that all children learn
basic skills and other competencies which are the essence of primary education.

1.4 The Need to Emphasize Mastery Level of Learning: At the primary stage most essential core skills
and competencies are included in the curriculum. The MLL approach implies a calculated effort to
include those minimum, essential and common competencies that all children must master. But the
traditional concept of '35 per cent pass' prevalent at the middle and secondary stages of education
invariably prevails at the primary stage also, which indeed is an impediment in raising the standard of
learning. At least at the primary stage and in the context of MLLs it is absolutely essential that the
mastery level of learning is aimed at. Only when almost all children succeed well in achieving the basic
skills of reading, writing, computation, etc. as indicated in the MLL statements that one can be sure of
substantial improvement in quality without sacrificing equity. The traditional concept of low level of
expected achievement by the bulk of children should, therefore, be gradually given up and should be
replaced by the concept of mastery as the expected standard of attainment for all children. If minimum
essential facilities and help are given to schools and teachers, and if continuous feedback, academic
guidance and remedial work are given to the learners, it should be possible for most children to reach the
mastery level of achievement in basic competencies at the primary stage.
1.5 Cognitive and Non-cognitive Learning: Primary education should include not only the acquisition of
knowledge and mental skills but also health habits, work habits, cleanliness, cooperation and such other
personal and social qualifies that form character and personality. It is known that the cognitive elements
such as knowledge and mental skills are relatively easier to assess and, therefore, the non-cognitive
aspects are either altogether excluded from the evaluation process or they are not given adequate
attention. This imbalance should be eliminated. Simple and manageable means of assessment of noncognitive aspects of growth must be included in a comprehensive evaluation scheme. Much of this is
based on observation techniques aimed at helping children in acquiring valuable personal and social
behaviour and in cultivating healthy habits for their well-being.
1.6 Accountability of the Education System: The accountability of individual schools, school system and
their functionaries should depend on the ultimate criterion of education, namely, student achievement.
There is need to introduce summative evaluation, achievement surveys and other measures as part of an
overall, comprehensive scheme of evaluation to determine accountability and efficiency of institutions
and their functionaries, and to make other such decisions by administrators, planners and policy-makers
based on actual achievement data.
1.7. It may be emphasized at this stage that the competencies included in the MLLs become specific
educational objectives or minimum expected outcomes of learning in the context of evaluation. The
modality of formulating and presenting the minimum essential levels of learning adopted here is such that
it not only helps the primary school teacher and NFE instructor in anchoring the task of teaching to a
series of competencies in a progressive manner through various units of study within a grade as well as
across grades, but it also assists them and others concerned in conducting competency-based evaluation.
Each competency constitutes an expected performance target and each cluster of competencies lends itself
to unit testing and formative evaluation. Maximum advantage of this arrangement should be taken by
teachers, supervisors, evaluators, textbook writers and teacher-educators in instituting an integrative,
improvement-oriented and competency-based evaluation scheme as an inextricable part of a system of
basic education for all.

2.Some Operational Aspects

2.1 In the light of the above-mentioned analysis and observations, it is proposed that a competency-based
evaluation system be followed as part of the MLL approach to improving quality together with equity. As
MLLs are defined in terms of expected attainment of competencies, these competencies themselves
should become the basis of developing evaluation tools and techniques, analysis and interpretation of
evaluation data, and other such procedures. In brief, a competency becomes a criterion to organize
teaching and learning, and it is also used for conducting criterion-referenced evaluation.

2.2. Evaluation at the primary stage should be essentially used for two mutually reinforcing purposes:
(i) To improve students' learning through the diagnosis of their performance, identifying specific
inadequacies in mastering one or more competencies or sub-competencies and taking appropriate
remedial measures to enable all learners to reach the mastery level. This is a kind of formative or
supportive evaluation and is to be carried out by the teacher or NFE instructor as part of the process of
teaching and learning.
(ii) To carry out summative assessment for various other types of decision-making by policy-makers and
planners, administrators and community members besides teachers. These decisions may be related to
promotion; comparison of performance between schools, blocks, districts or states; maintaining or raising
the overall levels of learning, etc.
2.3. In view of these twin purposes, a sound evaluation programme should include, among other things,
the following common components as indicated earlier:
(i) Continuous informal evaluation integrated with teaching-learning process
(ii) Periodical evaluation through unit testing for academic monitoring and improvement of performance
to reach mastery
(iii) Periodical appraisal of non-cognitive aspects of development
(iv) Summative and comprehensive evaluation for checking the attainment of actual standards of
performance especially at the end of Classes HI and V through achievement surveys and other techniques
for various types of decision-making including quality, equity, accountability and efficiency.
(v) Pre-testing and post-testing in different classes during the period when the MLL approach is first
introduced and also when an intermediary level of learning is further raised to reach the minimum level
proposed.
3. Assisting Teachers and Supervisors in Strengthening Evaluation Procedures
3.1 Development and Supply of Test Items and Unit Tests to Teachers
Normally all teachers prepare their own tests and other evaluation instruments. However, under the MLL
programme it is suggested that they should be helped by supplying a pool of competency-based test items,
unit tests, observation criteria for non-cognitive aspects of evaluation, criterion-referenced tests and other
evaluation material in order to encourage them in practising an effective and comprehensive evaluation
system. For this purpose, an item bank may be created at the state or district level, either through SCERTs
or DIETs as appropriate, utilizing the services of experienced teachers, teacher-educators and evaluation
specialists. Teachers should also continue producing their own evaluation material to supplement the
common pool. What is equally important is that teachers should use individual test items for continuous
evaluation integrated with teaching besides using unit tests for diagnostic purposes. In addition, they may
compile summative tests as and when needed utilizing the item pool.
3.2. Supervisors and district-level personnel should also use item pools for academic monitoring during
their visits to schools and for constructing criterion-referenced tests or parallel tests for summative
evaluation in selected subjects at the end of Classes III and V. When an item pool is established and
extensively used, it is simultaneously necessary to introduce the practice of constructing parallel tests
based on a common blue-print. This is particularly needed for establishing comparability of results over
years as well as across districts or state level (when the time of testing is not the same).

3.3 School Clusters for Cooperating Work in Evaluation

Where feasible, school clusters or school complexes may be established to help teachers further by
creating conditions for them to work together on common issues relating to teaching as well as testing,
and sharing their evaluation materials, teaching-learning aids, remedial exercises, etc. There may be
micro-clusters of 4 to 8 schools for certain functions and also macro-level networks of all schools in a

block or neighbouring blocks for certain other functions such as conducting a common achievement test
at the end of Class V, or organizing large- scale inservice training programmes.
3.4. Districtwise and statewise achievement surveys may be conducted from time to time in different
subjects and for different classes. The evaluation results should be fed back to the teachers concerned so
that they can carry out necessary modifications in their instructional programmes with a view to
improving the performance of their respective schools and classes. When the National Evaluation
Organization is established such results should be made available to teachers for inter-state as well as
national comparisons. This should also help individual schools, districts and states to revise and raise
expected levels of achievement in relation to MLLs.
3.5. As a further support to teachers and learners, it is proposed that competency-based textual materials
be produced by integrating learning material with evaluation exercises, unit tests and comprehensive tests,
and supplied to teachers for their use in the classroom. This may be developed on the pattern of the IPCL
textbooks produced by State Resource Centres for adult literacy. The minimum learning competencies
given here for the subjects of language, mathematics and environmental studies are formulated in such a
way that they have horizontal sequencing within grade and vertical articulation across grades where
feasible. These competencies can be conveniently utilized for producing graded textbooks having
different types of evaluation exercises, remedial exercises, unit tests, etc. integrated with the text itself.
They can also promote a good deal of self-learning and self-evaluation in the upper classes of the primary
stage. There are other similar advantages offered by integrated and graded textbooks of the type stated
above. In brief, such teaching- learning material intertwined with evaluation material should provide
significant help to teachers and learners in reaching the mastery level of achievement

4.The Issue of Equivalence

4.1. For various practical reasons it appears inescapable that some basic equivalence will have to be
established between the products of formal primary schools and NFE centres. The stigma of treating the
non-formal mode of acquiring primary education as inferior to the formal one can be removed only when
the quality of education achieved through the former is highly comparable with that acquired through the
latter especially in key areas of learning. Such comparability will ensure the possibility of lateral as well
as vertical transfer of students particularly from non-formal to the formal system.
4.2. The equivalence issue should not be seen just as an administrative measure. While an administrative
equivalence will be necessary, what is more significant in terms of quality and equity is to establish
academic equivalence as well. The MLL statements provide the first major operational step in this
direction because they have been prepared by keeping both formal and nonformal learning systems in
view and by involving NFE instructors and other functionaries in non-formal primary education together
with teachers and others working in formal primary education.
4.3 Holding Achievement as Constant and Programme Parameters as Variable
For establishing equivalence between the products of formal and non- formal primary education and also
for raising the standard of non- formal education, it is proposed that the level of achievement of NFE
students should be expected at the mastery level in respect of MLL competencies and no compromise
should be made regarding the expected standard of attainment. The MLL statements suggest the
minimum competencies to be mastered by all learners, be they in the formal stream or the non-formal
one. Of course, one or more intermediate levels of achievement can be specified before finally reaching
MLL by both formal and non-formal systems in certain educationally backward areas as stated in Chapter
2 of this report. But mastery of the levels of achievement indicated by the MLL specification should be
the target to reach for ensuring equivalence. Accordingly, various programme parameters of non-formal
primary education should be examined and modified as necessary to achieve the target. These parameters
may include time and duration of study, nature and quality of learning materials, styles of teaching and
learning, competency and training of teachers, evaluation procedures and the like.

4.4. As regards time and duration of learning it is necessary to exercise the principle of flexibility. Time
and duration of learning being one of the major programme parameters, it should be allowed to vary
within a given range (which is feasible in the NFE system as well as in the formal one), while the level of
expected achievement should be held constant and should not be diluted. Also, a radical change will be
needed in the nature of learning materials and style of learning. For example, it is important to practise a
system of self- paced learning in the NFE programme. Towards this end, the textbooks and other
teaching-learning materials should undergo a radical change. Integrated textbooks having in them the
competency-based texts, competency-based and improvement-oriented evaluation exercises and unit tests,
and materials for self-learning to ensure mastery should be designed and provided to NFE learners and
instructors. The graded textbooks prepared under IPCL programme for adult literacy provides a good
example of a pattern along which effective and well-tested textbooks and supplementary learning
materials could be produced. Where feasible, the use of new educational technology should also be made
for both group learning and individualized learning in order to assist the students of NFE programme to
attain the desired level of mastery in the core competencies in language, mathematics and environmental
studies as indicated in MLL statements. Likewise, there is urgent need to raise the basic competence as
well as pedagogical proficiency of NFE instructors who are in essence required to follow multi-grade
teaching, self-paced learning and competency-based evaluation. Their recruitment, training and
emoluments should, therefore, be reviewed in the fight of their responsibilities and innovative and costeffective alternatives be thought out. Without having a cadre of professionally competent and dedicated
teachers, supervisors and other functionaries of the NFE programme, sufficient justice cannot be done to
the millions of out-of-school children who are deprived and disadvantaged and to whom this alternative
educational service is offered. These and other pertinent parameters of the NFE programmes should be
modified and strengthened with the goal of achieving mastery of MLLs which in turn will result in
genuine equivalence between the formal and non-formal streams of primary education. If this is
accomplished various technical issues such as holding common or parallel examinations at the end of the
primary stage for the students of the nonformal and formal streams, issuance of common certificates and
the admission and grade placement of students of the non-formal stream to the formal system would be
much easier to resolve.

ACTION PLAN FOR IMPLEMENTATION

1. Introduction of MLLs in primary schools and NFE centres in the country will require a carefully
worked out strategy with necessary phasing. The overall implementation plan may be divided into three
or more phases. In the first phase this curriculum plan may be introduced in only a few selected districts
or blocks in two or three states after making a thorough preparation. In this phase, a few innovative
centres and ongoing reform projects may also be encouraged to follow the MLL approach in order to raise
the standard of achievement. Even some individual specialists working in places like teachers' colleges
and universities may be encouraged by the Ministry of Human Resource Development to introduce MLLs
in selected schools and NFE centres.
2. The chief purpose of this phase should be to understand how the proposed MLLs function in both
formal and non-formal delivery systems, what kind of orientation and aids are needed for the teacher in
order to achieve the desired level of mastery by the students, what kind of modifications and adaptations
are needed in the existing textbooks, how exactly should the system of evaluation and monitoring be
evolved and made genuinely functional in different settings, and what other administrative and academic
measures would be required to succeed in attaining the ultimate goal of enhancing the quality of learner
achievement. The second and third phases should aim at further refinement of MLLs and other related
aspects, and systematic expansion of the implementation programme.
3. It is proposed that in the first phase the number of blocks of different districts and states be kept as
small as possible, say, about 4 to 6. However, all schools and NFE centres in the block concerned should
be selected for implementation. For comparison purposes, matching samples from neighbouring blocks or
districts may be taken. In any case, pre-testing must be carried out to establish benchmark data.
Appropriate preparatory steps for making this phase most effective should be taken with full participation

of local authorities including teachers, headmasters, supervisors and community members. The district
level authorities including the office of DEO, DIET (where established), and other concerned agencies
should take the responsibility of organizing, coordinating, implementing and evaluating the programme
together with local agencies in charge of both formal education and NFE centres. The district should
ultimately be treated as a unit of operation for this innovation and for carrying out various tasks involved
at the stages of preparation, implementation, monitoring, evaluation and further expansion in cooperation
with local authorities on the hand, and state agencies including SCERT and State Education Department
as well as national authorities on the other.
4. In the ultimate analysis, every district should ensure that the minimum essential standards of
achievement laid down at the national level in terms of MLLs as a basic and common criterion of
reference should be attained by all as early as possible and even go beyond. Different districts and schools
within them may need different time frame and resources for obvious reasons and may set their own
intermediate phases for moving towards the standards set by the MLLs. However, within the time span of
a few years, to be determined locally, all districts in a given state, and all states of the country must ensure
the achievement of at least the minimum levels of learning for almost all children. In certain special
programmes and projects such as those launched or being planned in Andhra Pradesh, Bihar, Orissa,
Rajasthan and Uttar Pradesh, entire districts may be selected to introduce the MLL approach and intensive
efforts be made to produce transactional and evaluation materials, etc. from the resources available for
these programmes.

5. In order to assist the teacher, who will play the most central role in this programme, it will be necessary
to prepare teachers' handbooks in different curriculum areas. The handbooks should provide all
explanatory notes and illustrative material relating to MLLs and their effective use in teaching and testing.
The handbooks should also indicate how existing textbooks could be used to achieve MLLs until such
time that the textbooks are revised, if necessary, in relation to this approach. Suggestions for the use of
supplementary textual materials, teaching-learning aids and activity-based methods should be made in the
handbooks such that student learning becomes meaningful, effective and cheerful. Besides the handbooks
for teachers of primary schools and instructors of NFE centres, those for supervisors and other local
functionaries should also be prepared to improve the efficiency of their respective tasks in the context of
the MLL approach.
6. While the draft MLLs are laid down nationally, they allow full flexibility for the use of local
illustrations, materials and environment for the purpose of establishing their relevance and functionality in
the local context. This particular aspect should be clearly shown in the handbooks so that the process of
decentralization operates maximally within the national curricular framework. Moreover, this aspect
should be sufficiently stressed in the training and retraining of teachers organized on the basis of MLLs.
In course of time, integrated instructional materials may be produced which would include textual
material, pupils, worksheets, unitwise evaluation exercises and reinforcement materials, on the basis of
specific competencies indicated in the MLLs. It should be worthwhile to examine, in this context, the
primers produced under the IPCL programme of adult education.
7. As proposed separately, a continuous and comprehensive scheme of evaluation should be made an
integral part of the MLL approach to quality control right from the first phase of implementation.
Teaching and evaluation should be intertwined in various ways including the incorporation of diagnostic
testing, remedial teaching, mastery learning and criterion-referenced evaluation including pre-testing and
post-testing for monitoring the progress. For these purposes, a large pool of test items, unit tests and other
evaluation instruments such as those for vocabulary tests, dictation exercises, mental mathematics and
application tests should be prepared and thereby teachers should be given further concrete help in making
her/his work optimally efficient and effective. Supervisors can also use this pool of test materials for spot
check of student achievement and district level agencies can utilize them for conducting criterionreferenced testing for the comparison of standards and other such purposes.
8. Based on MLLs handbooks, textual materials and item pools, appropriate orientation of teachers should
be organized before Phase I begins, and should likewise be repeated before launching Phases II and III

under the expansion programme. Similar orientation should be provided to supervisors and other
concerned personnel in relation to their respective responsibilities. For all these functionaries a systematic
plan of recurrent orientation during the entire implementation programme should be meticulously
followed. The recurrent training should be of short duration and should be functional and task-oriented.
9. Efforts should be made to involve the local community in a variety of ways. Where local education
committees exist, their cooperation and active participation should be sought, cooperation of those parents
(among others) whose children do not attend school regularly should be sought by establishing contact
with them and regular attendance of their children ascertained so that they do not lag behind in attaining
the expected mastery of MLLs. If there are voluntary agencies or individual volunteers in the community
or neighbouring communities who can provide guidance and support to the school especially in regard to
raising the quality of education, their involvement and participation should also be explored. Such
agencies and individuals may include, among others, retired educators or other professionals, personnel
from a primary or secondary training college nearby, and officials of health department and other such
agencies in a village who are motivated enough to extend a helping hand to the school or the NFE centre
from time to time. In brief, full utilization of human, physical and even financial resources available in the
local environment (whether village, town or city) should be made for effective implementation of MLLs.
10. Similarly, for the purposes of getting internal support and mutual reinforcement, networking of
neighbouring schools may be introduced where feasible. Such school-clusters or complexes, as proposed
by the Education Commission in the sixties, could work cooperatively for sharing experiences and
materials, solving certain problems of instruction, evaluation and monitoring among themselves, reducing
time and cost by producing tests, remedical materials, etc. cooperatively, and thus helping one another in
improving the quality of the learning process. If the networking or clustering approach is followed, it
should be seen that the size of these groups is kept manageable, say, clusters of some 5 to 10 schools in a
compact area within a block. Teachers and headmasters may form their councils to run the networks and
set agenda and targets for their cooperative work in the light of their felt needs.
11. The implementation strategy, to be effective, will need a sound monitoring system accompanied by a
resource support system. This should be established at the district level. Sufficient preparatory work
should be carried out at the initial stage, a detailed design of implementation charted out, and necessary
financial provision made so that the implementation programme once started moves further with full
steam and necessary help in the form of training, materials, evaluation instruments for pre-testing and
stagewise assessment surveys, etc., the motivation and enthusiasm of all concerned is sustained, and any
unforeseen obstacles and bottlenecks are removed in time. This system should also be responsible for the
review of MLLs, etc. at the end of Phase I of the implementation programme.
12. At the national level, the Department of Education of the Ministry of Human Resource Development
(MHRD), Government of India, should continue to play a leading role at the implementation stage
together with NCERT, NIEPA and NEO (National Evaluation Organisation, when established). It is
recommended that the MHRD may undertake the following responsibilities, among others :
(i) It should coordinate the task of ensuring quality with equity in close cooperation with the state and
district level authorities as part of the national programme of universalizing elementary education and
providing 'Basic Education for All'. The MHRD should mobilize resources in cooperation with various
agencies, motivate the people concerned and ensure political will for implementing the initial and
subsequent phases of MLLs in all primary schools and NFE centres in the country as a time-bound
programme.
(ii) It should periodically review and monitor progress of implementing this programme at the national
level and introduce modifications so that eventually the ultimate goal of quality education for an children
is accomplished. Towards this end, it should conduct achievement surveys, especially in the language,
mathematics and basic concepts of general or environmental studies (social, civic and scientific aspects)
and take follow-up action on their findings leading to a drastic reduction, if not elimination, of
unjustifiable disparities in the standard of achievement at the primary stage that exist between states,

among districts within states, between urban and rural areas, and between boys and girls. For carrying out
this work NEO may be established as early as possible.
(iii) Once the task of laying down MLLs for the primary stage takes shape, the MHRD should
immediately undertake a similar exercise for the upper primary stage comprising Classes VI to VIII
without which the work done for the first five classes will remain incomplete and will have less chances
of success. In fact, this exercise should be extended in course of time up to the end of general education
which includes Classes IX and X as well.
(iv) The NCERT, NIEPA and pertinent agencies in the states should be involved in the implementation of
MLLs while the MHRD should continue to play its vital role as an initiator, catalyst and cooperator with
regard to resource mobilization and monitoring of results. The NCERT may set up a special unit for
organizing different phases of implementation, for orienting teachers and other educators, for developing
handbooks and other instructional materials aligned with MLLs, for producing pools of test materials and
remedial exercises, and for several other such purposes. The task of achieving quality coupled with equity
for millions and millions of children who are expected to receive primary education through formal or
non-formal delivery systems is by no means easy. Keeping in view the magnitude and complexity of the
task, MLLs Implementation Unit should have a sufficient number of competent and dedicated people
representing subject specialities such as language, mathematics and general studies as well as pedagogical
specialities such as teacher training, preparation of handbooks and other materials, instructional
processes, evaluation and monitoring.
13. After examining the experience of Phase I and introducing necessary changes in MLLs and other
related aspects, Phase II may be launched to include the whole district or clusters of districts for
implementation of MLLs in selected places. If the experience is positive and resources are available, this
programme may be introduced in about 50 districts chosen from different states. All important steps such
as those indicated in the previous paragraphs of this chapter should be taken in order to ensure that the
ultimate goal of raising the quality of learning to the mastery level for practically all children in these
basic subjects of study is in no way compromised. Again, after analysing the experiences and outcomes of
the second phase and making necessary modifications in the MLLs as well as the implementation
strategy, Phase III may be launched to extend the programme to all districts in every state/UT in the
country. Needless to state that on the basis of the experience thus gained improving quality and enhancing
equity in primary education, further cycles of reform should be undertaken periodically in the light of new
needs and developments at the local, national and international levels.
14. A comparative analysis of competencies included in the curricula of literacy and post-literacy
programmes of adults may also be carried out to understand the extent to which basic parity exists
between different delivery modes all of which are aimed at basic education. Such an analysis may
ultimately lead to establishing a common or comparable set of minimum learning competencies for all
adults and children in the perspective of lifelong learning.