A distance education system bereft of direction

The Open Distance Learning (ODL) system, also known as Distance Education (DE) system, has evolved as one of the effective modes of education and training. The development of ODL system, from the stage of print material-oriented correspondence education to that of self-instructional packages with an integrated multi-media approach, and incorporation of interactive communication technologies, leading towards the building of virtual learning institutions is significant.

The first open university, Dr B R Ambedkar Open University, was started in 1982 at Hyderabad. Prior to it, the University of Delhi had, in 1963, started imparting education through distance mode. However, the creation of the Indira Gandhi National Open University (IGNOU) in 1985 resulted in distance education in India being brought under the umbrella of a Central university.

The Distance Education Council (DEC) under IGNOU was formed for the upkeep of the standard of education by distance mode, to act as a model for establishment of open universities in other states of the Union, sanction of grants for the same etc.

Through a Gazette Notification on March 1, 1995, it was stipulated that to consider the educational qualifications obtained through distance mode as the basic eligibility criteria for appointments in Central government organisations, recognition of such courses by DEC is essential, along with the approval/recognition by apex regulatory bodies like AICTE. It was only in 2004 that steps were initiated to process cases to accord recognition to ODL institutions.

In the beginning, the mode adopted was to visit universities and higher education establishments to accord recognition to the courses being run by them. But in later years, there was a big leap in the number of institutions that applied for recognition along with a phenomenal increase in the number of courses run by them.

The volume of course material submitted by these institutions was too large, making it impossible for DEC to cope with the task of carrying out quality checks. This in turn prompted DEC to accord institution-wise recognition in place of the extant practice of programme-wise recognition.

Thus, initially, all applicant institutions were accorded the same recognition for a period of one year on an ad hoc basis. The intent was to accord sanction to such institutions to conduct specific courses after scrutinising the course material submitted by them during the course of the year. Yet again, DEC could not accomplish the task in the stipulated time period. As a result, the ad hoc recognition accorded was extended to the date when the Expert Committee from DEC would visit the institution.

Under the name of “Institutional Recognition,” DEC had permitted conduct of courses as approved by the statutory bodies controlling the concerned institutions. Over time, this institutional recognition paved way for distance education in India becoming completely unregulated and a purely commercial pursuit. DEC, sooner than later, realised the ill-effects of the malaise. A re-thinking, thus, resulted in the restoration of programme-wise recognition in 2008.

Many universities and ODL institutions that had approached DEC for recognition in 2004 were actually conducting courses by distance mode even prior to it. Most of them could obtain approval of DEC, however, in 2007 only. The question, though, was whether or not the courses were duly recognised by DEC. In order to address the issue, DEC put forward the idea of according ex-post facto sanction.

Many affected institutions were thus given ex-post facto recognition – either from the date of the Gazette Notification of 1995 or from the period when such institutions started the course till obtaining provisional recognition. While this was only a one-time action, there still was intense criticism from many knowledgeable quarters – including allegations of corrupt practices – prompting DEC to dispose of with the system.

Based on the recommendations of the N R Madhava Menon Committee in 2013, the Ministry of Human Resource Development shifted all responsibilities of DEC to the University Grants Commission (UGC). In place of DEC, a wing of the IGNOU, the Distance Education Bureau (DEB) was established to function under the UGC. As on today, the DEB regulates distance education in India and is responsible to according recognition to the courses run on distance mode.

Driven by greed

As per UGC regulations, each university/ institution has its territory of operations and is required to start study centres in pla-ces located within its territorial jurisdiction. It was also stipulated that courses conducted off-campuses will have no recognition. However, certain universities continue with such activities in violation of the UGC stipulation, primarily driven by greed for profit with scant regard for quality education.

Such study centres attract students to join courses and permit mass-scale malpractices during examinations and assessments. Many have amassed crores of rupees and still continue with these money-making ventures in the name of education. Certain universities have even obtained stay orders from courts of law to restrain the decisions taken by DEB /UGC.

Several universities and educational institutions started online programmes as an add-on course, which were hijacked by private individuals who created their own websites to award certificates after collecting huge amounts as fee. Masters degree programmes, including in engineering, are being conducted online. People are pocketing online PG degrees certificates without even clearing plus two course or graduation.

The steps taken by DEB/UGC in the last couple of years to streamline distance education in the country are commendable. However, there is an urgent need to formulate a policy for the conduct of distance education which would also address the ills afflicting the domain. The call of the day is to enact a statute by Parliament, to put in place a strict and well coordinated regime to regulate distance education in India. 

(The writer is a research scholar in law, School of Law, IGNOU, New Delhi)