Pratham Mumbai Education
Initiative
(A Citizen’s Effort for Universalizing Primary Education in Mumbai)
An inquiry into the nature of a city-based venture seeking to ensure that
“Every school is beautiful, Every child is
in school, Every child is learning”
Case Study
Civil Society & Governance Project
February 2000
by
Vinita Tatke
GreenEarth Consulting
“Kalyan”, 32, Natraj Society, Karve Nagar, Pune 411 052.
Tel : 544 4663, 544 3134. e-mail : grnearth@vsnl.com, vinitat@vsnl.com
Declaration of Will of Greater Mumbai
Pratham - Mumbai Education Initiative - A Case Study
We, the people of Mumbai, on the eve of the 48th Republic Day, dedicate ourselves,
with a strong will, careful thought and vigor, to implement in spirit and in letter,
Article 45 of the Constitution of India, in every region, ward and community of
Mumbai, for children up to the age of 10 years, before January 25, 2000, the eve of
the 51st Republic Day.
In order to achieve the above, we shall ensure that the voluntary sector, institutions of
education, the corporate sector and the governmental bodies shall work together to
eliminate all hurdles in ensuring that every child has easy and safe access to a school,
that every child can attend the school regularly, and that every child masters the
prescribed minimum learning competencies through Joyful learning.
Signed1 on this 25th Day of January, 1997
Municipal Commissioner
Secretary, Education
Mayor of Mumbai
Chairperson, Pratham
Minister for Human Minister for Education Resource
Development
Leaders of the Opposition (MCGM2 / VIdhan Sabha3)
People coming together to solve their own problems or those of their fellow citizens is always an extremely
fascinating and profound phenomenon, and has invariably intrigued social scientists. In today’s world, when
democracy and human rights have been recognized as of being paramount value, when most of the countries have
signed various treaties committing themselves to ensure the dignity, liberty and equality and a minimum standard of
living for their citizenry, this phenomenon has assumed even greater importance.
The question of interest is whether this phenomenon helps to empower people, to strengthen their
ability to participate in processes which affect them and define their future.
This case study is an attempt to delve into how different people and institutions in Mumbai came together in
partnership to work for ensuring access to primary education for every child in the city, what strengthened this
partnership and to what extent and in what manner the partnership moved forward to achieve this goal. Most
importantly, it examines whether the poor, whose children this partnership was to benefit, were empowered to
participate and work for this goal.
Contents
Page No
1
The signing of this Declaration of Will was dropped by Pratham at the last minute, and the Will was not circulated. However,
on 28th May, a number of leading industrialists, led by Mr. Vaghul of ICICI, a leading financial institution, did sign a different
version of this draft, committing themselves to the goal of putting every child in Mumbai in school.
2 MCGM : Municipal Corporation of Greater Mumbai.
3 Vidhan Sabha : Assembly House of the elected representatives of the State Government.
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
Declaration of Will of Greater Mumbai
2
List of Abbreviations
List of Figures, Tables & Boxes
Acknowledgements
A Note on Research Methodology
4
4
5
6
Rafi Nagar
8
Mumbai - A City of Contrasts
9
Pratham in Making
10
Universalizing Primary Education in Mumbai
12
Approach
13
Programs
14
The Balwadi Model
16
Achievements
17
The Strategy for Achieving UPE
18
Pratham : The Organization
19
Ethos
19
Working Principles
20
Mandate
20
Organizational Structure and Decision-making
21
Working with the Government - Building Trust
22
Partnership with the Corporate Sector
25
Listening from the People
27
Sustainability
28
The Outcome : A Societal Mission ?
29
A Comment on ‘Civil Society’
30
Meaning of Governance
31
The Environment
32
Civil Society Initiatives
33
Impact on Governance
34
Conclusions
39
List of Abbreviations
Civil Society & Governance Project
3
Pratham - Mumbai Education Initiative - A Case Study
BCPT
BEI
CBO
CDO
CORO
EO
EP
ICICI
MCGM
MIS
MOU
NGO
NN
TISS
UDCT
UN
UNICEF
UPE
UPEFA
Bombay Community Public Trust
Bombay Education Initiative
Community Based Organization
Community Development Officer
Committee of Resource Organizations for Literacy
Education Officer
Education Post
Industrial Credit and Investment Corporation of India
Municipal Corporation of Greater Mumbai
Management Information System
Memorandum of Understanding
Non-Governmental Organization
Nirmala Niketan
Tata Institute of Social Sciences
University Department of Chemical Technology
United Nations
United Nations’ Children’s Fund
Universalization of Primary Education
Urban Primary Education for All
List of Figures, Tables & Boxes
Figure 1 The Organizational Structure for Balwadis .......................................................................................... 15
Figure 2 Pratham : Organogram .............................................................................................................................. 20
Table 1 Primary Education in Mumbai : MCGM’s Infrastructure .................................................................... 153
Box 1 The Concept of ‘Sociatal Mission’ ................................................................................................................. 9
Box 2 Lessons learned from earlier experiences ............................................................................................... 10
Box 3 Education Officer’s comments about the partnership with Pratham .................................................. 21
Box 4 Partnership with Government : Do’s and Don’ts ....................................................................................... 22
Acknowledgements
4
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
I wish to gratefully acknowledge the opportunity given to me by Dr. Madhav Chavan and PRIA to carry out this case
study on Pratham.
Through out the study, the entire Pratham team cooperated with me without holding any bars, gave me free access
to all records, allowed discussions and visits without withholding any information. I sincerely acknowledge this
transparency in the team, and hope that this documentation will do justice to their openness.
Dr. Chavan has been kind enough to share with me drafts of a book on Pratham he is in the process of writing. This
documentation, although in the early stages of writing, has been immensely helpful to me for gaining an initial
understanding of Pratham and for evolving a more in-depth line of inquiry.
Usha and Madhukar acted as sounding boards with whom I could confirm and cross-check my understanding about
various aspects of Pratham. Kirtee offered to facilitate my visits and gave me hints for spotting information. I am
grateful to all three of them.
I would also like to thank all those with whom it was possible to discuss various aspects of Pratham. A number of
these interactions were intense and are well remembered. It will be difficult to name everyone who participated in
these discussions.
I would also like to gratefully acknowledge the support given me by my colleagues in GreenEarth Consulting, the
numerous debates I have had with them and the critical comments they have been so happy to come up with.
Without this constructive criticism, this report would not have carried as much flavor.
This is not an evaluation, nor a statement about the successes and failures of Pratham. None of the
comments made in this document are intended in any way to undermine the sincerity, commitment
and subsequent effort of the Pratham team, as well as the genuineness of purpose, but rather to
examine Pratham within the defined framework of the subject under discussion. I hope that this
documentation will be taken in that spirit. This critical examination is only possible with the support
of the Pratham team, and I am confident that it will help not only them but others involved in similar
work to learn from the vast experience of Pratham.
Vinita Tatke,
GreenEarth Consulting,
Pune.
12th February, 2000.
A Note on Research Methodology
Civil Society & Governance Project
5
Pratham - Mumbai Education Initiative - A Case Study
At the onset of the study, certain key research questions were identified from the point of view of examining the
impact of Pratham’s work on governance. These were :
a. In what way has the relation between government (here, the Municipal Corporation of Mumbai) and Pratham
developed ? What are the areas of cooperation and consultation and of independent action ? What are the
strategies and the methodology used for developing this relationship ? To what extent and in what way are
people who are directly affected involved in this relationship with the government ?
b. What strategies have been used by Pratham to involve as many individuals and institutions as possible in this
mission ? What has been the result as regards governance ?
c. How has Pratham’s work affected the people ? Has it helped the people to carve out a space for themselves ?
Has it resulted in not only raising the hopes of the people, but also in developing their capacities to find
solutions for themselves ?
Keeping in mind these questions, the following methodology was worked out.
a. Continue to re-frame the key research questions.
b. Identify the civil society ‘actors’ in the Pratham story. Document the role played by these actors and the impact
they have had on governance.
c. Review of documents, background preparation for the research.
d. Select the centers to be visited, people to be interviewed.
e. Field visits and interviews followed by documentation, followed by visits and interviews again.
The areas to be visited and the persons to be interviewed were identified mostly after discussion with Pratham team.
The field visits were mostly for observation, and usually the staff was accompanied on their routine visits. The visits
were usually followed by discussions, individual as well as in a group, with the field staff. All discussions were
participatory.
A total of 25 days were spent on visits.
The individuals to be interviewed were selected so as to cover government officials at all levels, trustees, education
committee members, balwadi instructors and other local staff, Pratham staff and supporters, local people and
beneficiaries, direct and indirect. The interviews were conducted in an informal manner and were in the form of a
chat. Notes were taken during the chat, however.
Documents such as the trust deed, program notes, various brochures and folders printed by Pratham, reports etc.
were reviewed from Pratham’s earlier files. Academic literature on civil society and governance was also reviewed,
mostly from papers available on the web-sites of various organizations.
The following is a list of the centers visited, and people interviewed :
1. G (North) ward, covering slums from Labor Camp, Matunga to Transit Camp, Dharavi (Bridge Courses at
Shantinagar and Senapati Bapat Marg, balwadis and bridge courses in Dharavi, Urdu medium school in the
heart of Dharavi, discussions with EP In-Charge, TM, Bridge Course In-Charge and Bridge Course team, review
of files).
2. K (East) ward, covering Jogeshwari, Koliwada, Marol (8 schools, discussions with Pratham staff, teachers and
school heads, balsakhis and students of Nirmala Niketan).
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
Discussion with Dr. Madhav Chavan, Pratham trustee, in different slots.
Discussion with Usha Rane and C.V. Madhukar, members of Executive Committee, Pratham in different slots.
Discussion with Yuvashakti team.
Discussion with Superintendent, MCGM.
Interview of Mrs. Farida Lambay, Pratham trustee.
Interview of Meera Tendolkar, Production In-Charge.
Interview of Meenal Joshi and Kirtee Bhosekar, members, extended Executive Committee.
Interview of Suvarna Phadatare, Training Group.
Interview of Education Officer, MCGM.
Meeting with ex-additional Commissioner, MCGM.
Attended training of trainers, Mrs. Lambay’s lecture.
Mr. Vaghul’s address to a meeting of leading industrialists of Pune organized to launch Pratham, Pune.
Attended a 2-day workshop-meeting in Mumbai of senior IAS officers of the central government.
Apart from this list, there were small but numerous interactions with a wide range of Pratham staff and beneficiaries
and other individuals involved directly or indirectly with Pratham’s work, as well as distant observers of Pratham. It
will be difficult to list all of these.
The speed with which Pratham continues to evolve puts the researcher in a quandary as to the coverage of the
report. This problem has been solved by restricting the scope of inquiry to the city of Mumbai and by restricting the
period of coverage up to the end of September 1999. Efforts have been made to incorporate relevant and important
information and progress made by Pratham after this period, however. In spite of this, errors that may have been left
in the report are the researcher’s responsibility entirely.
Civil Society & Governance Project
7
Pratham - Mumbai Education Initiative - A Case Study
“Rafi Nagar. A very poor non-recognized slum on the edge of Mumbai's largest dumping ground in Gowandi. For
most of their lives, the children in Rafi Nagar have lived under plastic sheets in makeshift homes in the worst urban
slums in the city. Frequently, they go into the dumping ground, pick through garbage to find things to sell. In the
monsoon, water from the nearby sewage canal seeps into their homes. Often bulldozers demolish their homes, as
happened on the morning of 12th February. On this morning, the teacher, Farida was with the ‘bridge course’
children. She looked like a haunted soul, but she was trying to hide her own insecurity and sang songs with the
children. Outside, the bulldozer was wreaking havoc. People were scrambling to save whatever they could of their
meager belongings…. as a full demolition squad, accompanied by at least 50 policemen, stood ready with canes in
case anyone revolted.
Amidst this stood the balwadi4, where Farida was teaching. Amongst the muck, the slimy filth, the garbage and the
rubble. A simple, separate structure. Built by the joint efforts of the poorest of the poor and Pratham activists.
Clean and colorful, and visited daily by 120 happy, though grimy, children. The residents of the Rafi Nagar slum
on the dumping ground of the city saw it as a place to respect. A symbol of the hope that education holds…..of
welfare, of better times to come…..
Rukmini tried frantically on her mobile phone to reach out, buy time, revive the one-day old promise made by the
ward officer that the structure would not be demolished, but all was in vain. Even as we watched, stunned into
disbelief, the children were dragged out and materials thrown out. Every bit of the beautiful balwadi was ripped
apart and chopped down. Like an angry, hungry demon of destruction, the bulldozer then razed it to the ground
completely, leaving no sign of its existence.
Then the slum dwellers came to us. I would not have believed it if I had not heard it myself, but they said, ‘teacher,
aap paani pee lo, hum aap ke liye chay banate hain, aap baith jaao 5…’etc. On a day when they had lost their
homes, they were more concerned about us! And incredibly, several of them said, ‘hamare ghar toot gaye, koi baat
nahin, hamari balwadi nahin tootni thi!’ (our houses are demolished, that’s okay, but the balwadi should not have
been demolished) A little child, Arif, came running to Rukmini, saying, ‘teacher, ham balwadi phir se
banayenge!’(We will re-construct the balwadi).
The temporary structure was gone. But the value of education had been permanently established in the minds of
these slum-dwellers, children and adults alike. Probably strengthened because it could not be taken for granted.
Tragedy had struck. But turn the kid glove inside out. It was a triumph for education. 6”
This was the story narrated by Mushira and Rukmini, Pratham volunteers, who were visiting Rafi Nagar on that illfated day. On the background of the huge slum demolition drive taken up by the Shiv Sena - BJP Government and
the transformation of Mumbai into India’s Singapore, Pratham has constantly lobbied to ensure that children from
Rafi Nagar do not lose out on their primary education. As a result, a two storied building has been constructed by
Pratham at the cost of Rs. 20 lakh. The building was handed over to MCGM in a public ceremony on 12 th January,
2000.
Concerned about the poor levels of literacy and primary education in the society, Pratham - Mumbai Education
Initiative, was launched in 1995 to universalize primary education - to ensure that every child in the city is in school
and is learning. Not believing in working in a small pocket, Pratham targeted the entire city of Mumbai and took on
the great challenge of putting every child in the city in school, and learning, by December 2000.
How did this come about ? Who were these people who came together in Pratham and who felt
confident that such a target could be achieved ? Why did it happen in Mumbai ?
4
Kindergarten, or pre-school for children under 5 years of age.
Translated, it means “Have a drink of water, sit down, we will make tea for you…”
6 Adapted from “Pratham - person singular” Vol. 7 & 8, by Mushira Shamsi & Dr. Rukmini Banerji. “Pratham - person singular”
are a series of articles by Pratham activists and supporters, circulated widely among friends and donors in order to share
experiences of Pratham’s work.
5
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
Mumbai – A City of Contrasts
Greater Mumbai - the business capital of the country - is a metropolitan city with a huge population of 99.26 lakhs as
per the 1991 census, currently estimated at 1 crore 20 lakhs, with 60% of its population in the slums.
Administratively, Mumbai has been divided into a total of 23 municipal wards forming the city and the suburbs,
spread over an area of 603 sq. km. Earlier a group of seven islands off the Western coast, the city has grown as a
result of huge land reclamation carried out for expansion.
Mumbai has originally been the village of fishermen. The city saw tremendous growth in the 19th century, when
cotton was exported to America during the American Civil War. The textile industry experienced an economic boom,
and several industrial centers mushroomed to keep up with the demand.
Today, it is the financial capital of the country, epitomizing the peak of industrialized India, with every possible civic
amenity, the best developed airports, ports, communications and transportation systems, the hub of India's
commercial activity as possibly no other city in the country. The metro has a thick concentration of population within
its limits and huge slums, throbbing with life and struggling to survive.
The industry here alone employs nearly 20% of the total population in India's organized industry. Apart from being a
traditional textile center, Mumbai has also developed as a major export and import city. It houses the country's major
film industry as well as the head offices of the country's major financial institutions. That it is the commercial and
financial nerve center of the country can be well appreciated from the fact that it's people pay nearly 33% of the
country's income tax, 20% of central excise and 60% of all custom duties. The overall trade in the city is estimated to
be over Rs. 25,000 crores per annum.
It is a city of contrasts, with a upper class and higher upper class cosmopolitan population living in luxurious
residential places on one hand and a poverty-ridden populace in its slums, on the streets and along railway tracks.
The people in the slums are either the original residents of the city, or people who have migrated to the city from
literally all corners of the country in search of employment. For them, survival means a daily struggle, and one has
to be constantly alert. In their fight for survival, people have found the most innovative ways to do business and earn
a living. This permanent struggle has made the people extremely hard working, ambitious and competitive. Indeed,
without these characteristics, it would be difficult to survive in the city.
The people are always short of time, shuttling and bustling from one corner of the city to the other for work, and
tempers are short and inhumane at times. At other times, one would encounter the most friendly and helpful people,
sensitive to the least bit of suffering and injustice, promptly willing to do their bit. Examples of voluntarism abound,
and the moment a problem is identified, one can be sure of a voluntary group coming forward to deal with it, be it
garbage, help for senior citizens or the city's numerous street children.
This dense congregation of different communities like the Hindus of all castes, Muslims, Christians, Jews, Parsis,
Jains, Sikhs, Buddhists etc., and more than this, the volatile nature of society because of fierce competitiveness and
a struggle for survival, often leads to communal dissension, arguably politically motivated. Yet, the society is tightly
knit, with an inherent characteristic to find its own solutions. As a result, people and organizations are quick to
respond in an organized manner, benefiting from the resources that Mumbai has at its command.
It was therefore no wonder that the initiators of Pratham felt that the target of Universalization could be achieved in
this city of contrasts, and the city could set an example for the rest of the country.
Pratham in Making
Civil Society & Governance Project
9
Pratham - Mumbai Education Initiative - A Case Study
The idea of a Bombay Education Initiative (BEI - or Pratham - Mumbai Education Initiative) took shape in the minds
of UNICEF officials in Maharashtra in 1993, who felt that without a sound base in education among the masses, the
Box 1 The Concept of ‘Societal
country could not hope to withstand the economic liberalization process which
it had initiated. The BEI was thought
Mission’
of as a model program to be owned and run by the residents of Mumbai, the financial capital of the country, to
A 'societal
mission'
to
demonstrate and stress to the rest of the country the need forprimary
education
for allwas
andnecessary
how to achieve
it.
achieve
Universalisation
of
Primary
UNICEF was the facilitator, willing to contribute the initial expenses while the initiative took off, but expecting to be
Education (UPE) and to ensure that
independent of it soon. It was searching for an entity which would own the idea and make it a reality.
the program reaches all.
A 'societal mission' meant that the
A precursor to this was the program Urban Primary Education for Allresponsibility
(UPEFA) initiated
UNICEF
in Mumbai
in
of thebytask
should
be
1991, in collaboration with the Government of Maharashtra and the
Municipal by
Corporation
of Greater
shouldered
all sectors
of the Mumbai
(MCGM). The program failed to find roots and as a result, did not movesociety
forward.(individuals or institutions).
The objective of UPE should be
'owned'
these primary
sectionseducation
of the etc. in
There were a number of actors who were involved and active in the
area ofbyliteracy,
society.
Mumbai at the time. Among them were Mrs. Farida Lambay, then faculty and now Vice Principal of the Nirmala
Without
‘ownership’
of the idea
Niketan College of Social Work (NN) and Dr. Madhav Chavan, 
faculty
at thethe
University
Department
of Chemical
by members7 of society, UPE cannot
Technology (UDCT). As a part of the college's "Social Work in Schools" project , Mrs. Lambay had been closely
be achieved.
associated with the Education Department of MCGM since 1970andAwas
hence familiar with the problems facing
mass movement was needed to
the municipal schools and the education system as well as the needsmobilize
of the children
in these
Dr. Chavan
resources,
both schools.
human and
was the founder member of two initiatives set up to tackle the problemsfinancial,
of literacyand
in the
city, Committee
Resource
to drive
in the goalofof
Organizations for Literacy (CORO) and SAHAS - Saksharata Hakk Samiti
(Literacy Right Committee). He had been
Universalisation.

active in the area of literacy since he founded the Total Literacy Campaign in 1991 together with Mrs. Lambay and a
number of other NGOs.
Before the launch of BEI, UNICEF had organized a number of meetings to which active members and well-known
individuals of the society were invited. Out of these meetings emerged a small group of concerned citizens
interested in addressing the issue of primary education in the city. It was during this facilitating process initiated by
UNICEF that this duo, who were willing to lead the BEI program actively, were found.
Dr. Chavan and Mrs. Lambay were of the opinion that the failure of UPEFA was because it was not launched as a
‘societal mission’ (See Box 1). The two of them understood and appreciated the concept of 'societal mission' and
were willing to take up active responsibility of Universalisation of Primary Education (UPE), a program necessarily
focusing on the municipal schools.
“We are trying to build a societal mission and in the process we are also attempting to discover what it
is. Clearly, it should be the mission of the society as a whole. But what vehicle does the entire society use
to build and drive this mission ? Can it be a narrow project-based organization ? Can it be a
“movement” which does not have defined targets to achieve ? Or is it a combination of both ?
It is almost impossible that the entire population of the city will actively involve itself in a mission. But
perhaps, it is possible to have practically every citizen to consciously adopt a mind-set which accepts as
her or his own the goals of the mission. ……………Such a mind-set can be created by actually taking up
this task of solving the problem and by demonstrating that no great wealth is needed to make a parent
more responsible, that huge financial investments are not required to enthuse a teacher, that a
community can take initiatives to overcome problems arising out of shortage of resources. It is essential
that the demonstration is replicable, and not individual specific. It must have features which easily
convince large numbers of ordinary people, opinion-makers and policy-makers of its viability. The
solution must address problems on a large scale. This can be done through multi-angular partnerships
which create a foundation of a societal mission”
7
‘Social Work in Schools’ - Annual Report, College of Social Work, Nirmala Niketan, 1979-80 & 1980-81.
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
…Adapted from text under the title ‘Mission’ in Pratham’s web-site www.pratham.org.
Through their individual and collective experience for working in the field of education, Dr. Chavan and Mrs. Lambay
had formed an understanding of how such a task could be achieved. Dr. Chavan had considerable experience in
organizational work and was equipped with the skills and techniques essential for creating a mass movement. Mrs.
Lambay was well known to the municipal and the state government authorities, was closely acquainted with the
'system' and of the problems facing the education system (See Box 2). Together, they were a combination which
complemented each other's skills.
Box 2
Lessons learned from earlier experiences :
This duo was convinced and strongly believed that the target of UPE needed to be set and achieved in a given time
 and
Participation
of the
was
required
at a massive
scale toThey
achieve
frame
for the whole
of people
Mumbai,
and
that it could
be achieved.
alsoUPE.
believed that the necessary resources,

People
are
capable
and
willing
to
solve
their
problems,
and
it
is
usually
best to let
do so.
both human and capital, could be raised from within the city and a network to implement
thethem
activities
could also be
Instead
of
providing
solutions,
what
you
can
do
is
to
provide
them
with
the
means
(the
skills,
the
created across the city.
resources and the environment) to solve the problem.
The principle of ‘market economy’ pervades. People in the slums are usually willing to pay for
This attitude
has been crucial in laying the foundations of Pratham. The willingness to set a target to be achieved, in
the services they really want.
a given
time-frame
and that
toothe
forwhole-hearted
an entire cityparticipation
like Mumbai,ofwithout
an assurance
for the
resources required,
 However,
in order
to get
the people,
it is necessary
to convince
requiresthem
an immense
confidence
in
the
goal
and
one's
own
organizational
capacity
to
achieve
this
goal.or
that the services being provided are for their benefit only and that no third group
individual stands to benefit in any way (either financially or politically). This can only be done by
At this point,
there
a group
of open,
peopleand
committed
to an
theopen
ideaculture
of a 'societal
mission'
for UPE, and a commitment
keeping
the was
accounts
books
practicing
within the
organization.

Ultimately,
sensitivity
to
the
reality
on
hand
and
flexibility
of
approach
in
problem
are regarding
from UNICEF to provide the initial funds and cover the cost of the secretariat. There were asolving
few options
critical.
how to proceed further. Clearly, a trust was needed, and either a new trust could be set up, or help could be taken

from an existing one, at least for the purpose of providing the legal vehicle for the financial aspects. Human
resources were also needed. They could be either mobilized afresh or existing NGOs could be roped in.
An attempt to take the help of existing agencies was made with not much success. It became evident that the
necessary conviction to achieve UPE by covering entire Mumbai was lacking, and that a new 'vehicle' would be
needed.
The decision to form a new trust to shoulder the responsibilities of the BEI was taken in a meeting called by UNICEF
and MCGM and held at the Committee Halls of MCGM in December '93. The meeting was attended by the MCGM
Commissioner, state and national UNICEF officials, corporate representatives, senior and key government staff, the
Secretary of Education of the Government of Maharashtra, other senior personalities and socially conscious citizens
of Mumbai and social workers. In this meeting, key decisions were taken about the trustees and the functioning of
the trust. The MCGM Commissioner would be the ex-officio Vice Chairperson, as would be the Education Secretary,
Government of Maharashtra. Dr. Chavan and Mrs. Lambay were also to be trustees, and Dr. Chavan was appointed
the Executive Secretary. It was decided that the state representative of UNICEF would also be an ex-officio trustee,
and the Education Officer (EO) of MCGM would be an invitee member of the board.
The search for the other trustees was launched. It was thought that the trustees would bring with them their own
individual networks which would aid in the task of resource mobilization. Another consideration was that the trustees
should give credibility to the trust and endorse it by lending their name to it. Thus, respected and well known citizens
in Mumbai were contacted and taken aboard. The trust was finally registered and the formalities completed in
January 1995.
Universalizing Primary Education in Mumbai
A programmatic framework
Civil Society & Governance Project
11
Pratham - Mumbai Education Initiative - A Case Study
What exactly was implied by Universalization ? What was preventing the children in Mumbai from completing their
primary education ? Was it a difficulty in the enrollment procedure, or was it a difficulty in learning ? What were the
problems facing the municipal schools which hindered the delivery of quality education ?
While the trust was being registered, Dr. Chavan & Mrs. Lambay set about finding answers to these questions and
organizing a small team which would work for universalisation.
The following paragraphs describe the concept of UPE as understood by Pratham, the hurdles facing UPE, and the
programmatic framework adopted by the Pratham team to achieve the goal of UPE. This understanding was
developed from hands-on experience of the Pratham team and through discussions with UNICEF, MCGM officials
and a diverse group of individuals working in the field of education. A Rapid Appraisal carried out with the help of
UNICEF helped to identify specific problems.
Approach
Universalizing primary education basically meant that every single child in the city of Mumbai should be able to
complete primary school and achieve the minimum levels of learning as set out and accepted by the government
guidelines.
The objective of UPE was broken down into a three-pronged approach : a. Access, b. Attendance & c.
Achievement. First and foremost, it was necessary to ensure that every child in Mumbai had access to a primary
school, then to ensure that the child attended the school regularly and finally that the child actually ‘learnt’. Given the
diverse society in Mumbai, it was also necessary to focus attention on the most vulnerable population group. Thus,
the target group was identified as those children who had no access to private schools and therefore were solely
dependent on the municipal schools for their education.
Access For children in the slums of the city, it was a question of whether the school was within a walking distance
and whether the child could reach safely, whether the enrolment procedure was simple, and so on. Access
to a primary school was the most critical issue for the ‘high risk’ group of children, viz. the children of
pavement dwellers, street children, children of rag-pickers, beggars, children of construction workers,
working children and children of a migrating population.
Attendance
Unless a child liked the school and enjoyed being in school, (s)he will not be regular in the school.
Unless the child is regular, the child will not learn. If the child does not learn, then it is more likely that (s)he
will drop out of school, thus not completing even primary schooling. Thus, attendance was closely related
with whether the school was an enjoyable place and whether the child liked the teacher. The Pratham team
discovered that a very low percentage of children did not come to school because they were poor or
because they were working (Child Labor). The most common reason given for dropping out of school was
that the child shared in the household responsibilities.
Achievement For the parents to be committed to completing the child’s schooling, they must believe that the
school was useful and beneficial to the child and to themselves. ‘Learning’ must take place in the school. At
the very minimum, literacy and numeric skills must be achieved, followed by the various skills as per
government norms. Weak students must be helped to achieve these levels, and the school must be the
place which provides the child this help.
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Pratham - Mumbai Education Initiative - A Case Study
Thus, ‘access’ became the first and foremost priority, followed closely by ‘achievement’. The objectives for achieving
UPE were defined in the order of priority as follows :
1. To ensure that every single child in the city of Mumbai was enrolled in school.
2. To ensure that the child attended school regularly.
(This could be achieved by improving the school environment and improving the quality of teaching).
3. To ensure that the child achieved the minimum levels of learning.
It was also decided that less efforts would be made on developing an alternative pedagogy and going into the
theoretical aspects of education in the earlier period. This aspect would be dealt with in the later stages, after it was
ensured that every child was in school.
Programs
Although the Rapid Appraisal conducted earlier with the help of UNICEF helped to identify the problems, there was
no clear idea about the programs or activities which could be taken up to achieve these objectives. Correct
estimates of ‘out of school’ children or the drop-out rate were not known. In the process of exploration, it was
decided to undertake initial surveys to understand the exact nature of problems facing the municipal schools. One
such survey was conducted to look at the situation of health and hygiene in the municipal schools, and was
conducted by the doctors in the city. A small Pratham team assembled from among volunteers and staff of CORO
and the students of NN helped to organize the survey.
The survey helped to break the ice between MCGM and the Pratham team, and the EO asked Pratham to help in
conducting 300 Vasantik Vargas (summer classes, which served as school-preparatory classes) in addition to those
already being conducted by MCGM. The small Pratham team set about organizing these classes, and recruited and
trained teachers to conduct these classes. In the process, the team came to know about the efforts of the
Community Development Officers (CDO) to organize pre-schooling for children.
# Municipal Wards :
Total population :
Total Children (6 to 14 years) :
Population of out-of-school children :
# Education Posts :
# Primary Schools :
# School Buildings :
# Primary School Teachers :
# Children in Primary Schools :
MCGM Annual Budget for Education :
23
120 lakh (Approximately)
8 lakh (estimated)
30000 to 40000 (estimated)
450 (Each covering a population of
about 20000)
1234 (In 8 languages : Hindi, Marathi,
Telugu, Urdu, Gujrati, Tamil, Kannada
& English)
500 (approximately)
15788
678451
Rs.
410
Crores
(1999-2000)
(Approximately 90% of this is the salary
component)
Table 2 Primary Education in Mumbai : MCGM’s Infrastructure (Adapted from “Universal Primary
Education - A Primer”, by Pratham).
Civil Society & Governance Project
13
Pratham - Mumbai Education Initiative - A Case Study
It was at this time that the idea of Universalization of pre-schooling came forward. Education experts have
established the necessity of pre-schooling for a child, since it not only prepares the child for school, but provides
critical inputs essential for the future healthy growth of the child. MCGM had no provision for pre-schooling for the
children in Mumbai. The lack of pre-schooling of the children of the vulnerable population of Mumbai was identified
as a major lacuna in MCGM’s program for primary education, and since MCGM did not wish to take up this
responsibility (it did not feel responsible for children under 6 years, and it did not wish to risk the instructors asking
for payment as per MCGM standards and face additional financial burden), Pratham decided to take it up. To date,
running balwadis is one of the core activities of Pratham (See The Balwadi Model).
After successfully running the summer classes, a number of other activities were experimented with. In order to
establish credibility by the successful demonstration of a model for UPE, in the initial stages the Pratham team
decided to restrict its work to 6 municipal wards to which it was familiar with. In order to make classroom learning
interesting and to improve attendance and achievement standards, the concept of joyful learning and learning while
doing were also tried out in a number of ways. Programs like Shatak Zhep (Maths revolution - learning numeric skills
with the help of games), Gammat Jatra (introducing games for easy learning) were targeted towards motivating
teachers to use these methods and to make learning interesting to children. Bol Vachan, Shishu Vachan (reading
and story telling) were also tried out.
These attempts helped not only to develop an understanding of the obstacles in achieving UPE, but also to find out
specific activities which would supplement and enhance the efforts of MCGM. As the team grew in size and gained
confidence and experience, the work slowly spread to other wards. In 1998, Every child in school, every school
beautiful, every child learning became the slogan for the UPE program. December 2000 was set as the deadline by
which the Pratham team would try to cover the entire city of Mumbai and achieve universalization.
The program for achieving UPE, which is presently being implemented and which evolved after continuous
experimentation and research, is briefly presented below :
1. Make pre-schooling available for every single child in Mumbai through balwadis, which would be conducted
within the locality for not more than 20 children and by a local person who is known to the children and the
parents.
2. Run Remedial Classes for academically weak children. In these classes conducted within the school campus,
children identified on a three-point scale of achievement by the school teachers would be given special attention
by a Pratham staff (usually balsakhi).
3. Run School Readiness Classes for school drop-outs. These classes would be thus a stepping stone for those
children who had dropped out of school for a long period and who needed to be made familiar with the school
environment. It was expected that these children would subsequently be accepted by the school as regular
students.
4. Run Bridge Courses for those children who have never enrolled in school and for the high risk group. Street
children and working children would be prepared for the school in these classes and would subsequently enroll
in the school in the appropriate class.
5. Run Khelwadis (play groups) for children in extra difficult circumstances who have never entered a school. The
khelwadis would help to remove the fear which children in the high risk group felt for the school.
6. Provide support to the school administration for handling difficult and weak children and to conduct classes in
the absence of teachers with the help of a balsakhi. The balsakhi would work for 4 hours every day and focus
on improving the achievement levels of children who lag behind.
7. Initiate computer-aided learning centers for easy and joyful learning. Such centers, equipped with games for
children and targeted towards improving their language and numerical skills, would be opened in each ward.
8. Provide infrastructure support in the form of telephones, repairs, etc.
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
9. Provide support for administration and planning in municipal schools through Information Cells, a
computerized MIS. This would ultimately aid the decentralized planning necessary for improving the quality of
education at the level of Education Post (EP).
10. Activate the Education Advisory Committee, which would encourage and provide a forum for the involvement
of the parents and interested citizens, making the school accountable to the community thereby leading to the
improvement of the school itself and the quality of education provided in the school.
Thus, the program was directed at two levels : on one hand, at providing support and strengthening MCGM’s efforts,
and on the other hand, at filling the lacunae in MCGM’s work. The later involved undertaking the responsibility of
improving the status of academically weak children, reaching out to the children in difficult circumstances who did
not have access to primary schooling, and in particular, pre-schooling of all children. Universalization of preschooling emerged as a major program and the balwadi model evolved as a result of this.
The Balwadi Model
The discovery of the Balwadi model being implemented by the MCGM CDOs provided an opportunity for Pratham
not only to work for the universalization of pre-primary education, but also to create a wide network of individuals
who would spread the message of UPE in the city. It provided the impetus for Pratham to develop its own
organizational structure, and a replicable program which could be implemented on a mass scale in every corner of
the city, with demonstrable success. The financial requirements were also worked out so that it would be a
’marketable‘ program, relatively simple to understand and therefore, making it easy to mobilize finances for it on a
large scale (at a total cost of Rs. 6000 per balwadi, which includes the assistance given to the instructor, the cost of
the teaching aids, supervision, training and administrative cost).
The balwadi model was simple. A local
instructor would be identified. This
person may not be highly educated, but
would be trained by the Pratham team
in the basics of child psychology,
techniques of teaching at the pre-school
level, developing teaching aids suitable
for this age group and in maintaining an
environment to make the children
comfortable. The instructor would
Figure 1 The Organizational Structure8 for Balwadis (The numbers in identify each and every child in the age
group 3 to 5 years in the locality and
the brackets denote the staff managed.)
enroll them in the balwadi. Pratham staff
would help in procuring space for the balwadi. This would be the home of the instructor 50% of the times, a space
provided by the community (the office of a community group or a political party, a place of worship, regardless of the
religion) - 40% or a municipal school - 10%. It would be the responsibility of the community to provide the space, and
Pratham would not pay any rent.
The instructor was encouraged to charge fees, but could not refuse a child if the child could not afford to or did not
want to pay the fees. For this, Pratham contributed an amount of Rs. 200 towards the cost of the fees, apart from
providing the teaching material and other equipment. The strength of the balwadi would be ideally 20, but in reality, it
varied from 10 to 40. If the number of children were more, another instructor was found and encouraged to start a
new balwadi.
8
From Pratham’s web site www.pratham.org
Civil Society & Governance Project
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Pratham - Mumbai Education Initiative - A Case Study
Pratham’s approach was that there was a need for balwadis (as understood by the Pratham team), hence the
community should take the initiative in starting a balwadi. Pratham believes that the ownership of the balwadi should
be with the community. It was only then that the program would become sustainable. Encouraging the instructor to
charge fees and to obtain the space from the community were efforts in this direction. The balwadi instructor was the
first representative of the community and the ‘entrepreneur’ for making the balwadi popular. Another assumption was
that although people are not used to the concept of pre-schooling, when people develop a habit of leaving their
children in the balwadi, the ‘need’ for balwadis would grow and would be felt by the slum dwellers, who would then
take up the ownership of the balwadi and pay the necessary fees.
10 balwadi instructors would be managed by a Supervisor, who in turn would be managed by the Unit in Charge.
The Unit in Charge would have 30 supervisors under him / her (Refer Figure 1). On similar lines, the bridge course
instructors and other staff has been placed in a clearly defined hierarchical order.
Achievements
In 5 years’ time, a lot was achieved, especially in terms of the scale and spread. After a comparatively slow growth
phase in which a model program was successfully demonstrated, the expansion was exponential. By the end of
September 1999,










Pre-school education was being provided to approximately 50 thousand children in the 3-5 age group in over
50% of Mumbai through 2700 balwadis. To-date, most children in the 3-5 years age group in 10 out of 23 wards
in Mumbai have been covered. By the end of 1999, Pratham was expecting to ensure that every child in the city
is in a balwadi (about 75 thousand children in Pratham-run balwadis and another 100 thousand in private
balwadis, or those of other NGOs/ CBOs and aanganwadis).
A Balsakhi has been appointed in 900 schools to provide support to the school teachers and to engage the
children in the absence of a teacher.
380 Remedial Education Classes have been started for children lagging behind the others in Std. III & IV.
Approximately 7500 children are being covered through these classes. Games have been developed for joyful
learning and are being used in these classes.
More than 100 Bridge Courses have been started for drop-outs, to help them re-join the formal education
system.
A number of Khelwadis for children living in difficult circumstances have been started - a step before bringing
the child into the formal education system.
11 Computer Centers have been set up for children where the children play games in Indian languages and
learn basic skills. Through these centers, around 8 thousand students have access to computer-aided learning
for 2 hours every week, as a part of the curriculum.
At the beginning of the academic year, an enrolment drive is organized in support of the teachers in 6 wards to
ensure that each and every child is brought into school.
Attempts are being made to make the Education Advisory Committees in all municipal schools functional.
Infrastructure Support : Computers have been provided in a large number of schools for easier administration,
telephones provided to 473 schools have improved communication, school rooms have eased the overcrowding in some of the schools, and so on.
MCGM is supported by over 4500 grassroots activists of Pratham, who are involved in the mission of UPE as
balwadi instructors, volunteers, balsakhis, etc.
Today, Pratham has reached each and every MCGM school in Mumbai, and is working very closely with the school
administration and the education department of MCGM. For running such a huge program, it has been successful in
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
mobilizing financial resources from within the city of Mumbai and to pull together a huge team of more than 4000
people.
How has this growth been possible ? What strategies have been used ? How did Pratham cope with this growth ? In
what way has Pratham evolved to steer and manage this growth ? These are some of the questions that come to
mind as one thinks of the monumental work that has been achieved within a relatively short time span.
The following paragraphs attempt to find answers to these questions.
The Strategy for Achieving UPE
The evolution of Pratham to its present form was guided by the search for individuals who would undertake specific
tasks which would take the goal of UPE forward, the urgent need for developing a partnership with the government
and to mobilize urgently needed resources in order to cover the entire city of Mumbai. The pressing need was to
create a team which would spearhead the UPE mission and to establish an effective partnership with MCGM and
Mumbai’s corporate sector. Such a partnership would ensure the effective implementation of the program and would
take the responsibility of raising the required resources.
The small team which started work in 1994 was clear of the objectives to be achieved and was guided by a welldefined strategy, and the organization developed around this strategy. This key strategy was as follows 9:
1. The satyagraha of cooperation : Build partnerships with the government, corporate and voluntary sector by
involving more and more individuals who own the objectives - develop programs around individuals and by
assigning them specific tasks.
Pratham
has
insisted
on
working
with
the
government
and
trying
to
make
the government work with it. It has attempted to build a strong and trusting relationship with the municipal
corporation.
For the education of children of Mumbai, Pratham believes that resources should be primarily mobilized from
within Mumbai itself. In order to do this, representatives of donor agencies, mainly from the corporate sector
have been co-opted as permanent invitees in the mission.
The concept of triangular partnership between Pratham, MCGM and the corporate sector and how it evolved
has been dealt with in the following pages (Also See Pratham in Making). Pratham has been successful in
developing this partnership. However, it has been only marginally successful in developing linkages with other
NGOs and voluntary organizations in Mumbai. A few organizations in Mumbai have in fact preferred to keep
their distance from the effort, while others have joined in.
Attracting individuals who would own the idea and work for UPE has also been a part of this strategy. This has
resulted in a few well-educated professionals being associated with Pratham on an assignment basis. Some of
this work has been voluntary. In case of others, Pratham has endeavored successfully to raise sponsorship for
their time.
2. Create new community based network by setting up needed educational activities.
9
From “Pratham Mumbai Education Initiative - A City Mission”, a presentation by Dr. Madhav Chavan, 20 th May ‘99.
Civil Society & Governance Project
17
Pratham - Mumbai Education Initiative - A Case Study
The emphasis has been on creating a new network, rather than to make the network more community driven.
Certainly, individuals from the community are involved as staff. Decision-making is however in Pratham rather
than within the community.
3. Build systemic bridges between parents and teachers, communities and schools, administration and
people by setting up activity-based mechanisms of parental / community participation.
The direct involvement and participation of the community requires patient and persistent efforts. This has not
been possible within the time frame set by Pratham. Pratham has been an organization in an hurry to achieve
UPE, and the priority has been on putting every single child in school before December 2000 as against
procuring the whole-hearted involvement of the community, which is a slow process.
It was as a result of this strategy that a priority was given to developing the concept of triangular partnership and to
achieve universalisation of pre-schooling within a specified time frame. Pratham not only developed a trusting
relationship with the government, but it was able to rope in several leading corporate houses into the mission of
UPE. It was also successful in developing a replicable model of pre-schooling.
The following paragraphs seek to explain the growth of Pratham and its characteristics and to understand the pulse
of this giant organization.
Pratham : The Organization
With the limited resources at hand when Pratham started its work, the strategy was to identify the task that needed
to be done, look for the person who would do it, but until the person is found, essentially wait. Pratham as it exists
today is very much a result of this effortless growth, spreading as the process allowed it to. This strategy was very
necessary for developing a societal mission. For getting the involvement of people in actually ‘doing’, and not as
supporters and believers only, this strategy was imperative.
Setting a target to cover the entire city of Mumbai, which is to be achieved in a set time frame was itself a strong
motivation and a driving force. However, the challenges were many. The concept of a societal mission required that
UPE as a goal be taken up by the citizens of Mumbai. The principle that Pratham would play a catalytic role and
improve the services of MCGM rather than developing its own, independent program, also meant developing a
working relationship with the government, shaking it awake and moving with it at its own pace. The question of
resources, both human and financial, was also critical, having accepted that these would have to be raised from
within Mumbai.
Clearly, the initiators of Pratham would have to work on many fronts. Firstly, with the bureaucrats, to establish
credibility, a relationship of trust and to lobby for more effective ways of achieving UPE. Secondly, with the teachers,
to help them to carry out their duties and to improve their productivity without discrediting them. Thirdly, with the
parents and children, to convince them of the need for attending MCGM schools and to help the child to learn. Apart
from convincing the parents to put their children in the MCGM school, it would also be necessary to ensure their
involvement and participation in their child’s schooling. Fourthly, with the citizens of Mumbai, to convince them of the
need for UPE and to get them to act for achieving this goal.
Ethos
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
The Pratham team also had a very clear set of principles, and shared a certain mindset. The team’s ethos was
based on certain premises, and these were shared and strictly followed by every single individual in the entire
organization.
The team strongly believed that




providing primary education is the government’s job; Pratham’s role is to help.
primary education is to be provided to all, regardless of caste, religion, sex or political affiliations.
Pratham is not working for the underprivileged but for all children who are denied primary education.
education is neither charity nor social work. It is an investment in our future. Ensuring primary education for
all is a job that needs to be done.
Working Principles
The drive to achieve UPE within a set time frame and across a vast region such as the city of Mumbai reflected a
certain mindset, and a strong urge to succeed in the task. It has provided the driving force and has shaped
Pratham’s work. This mindset has been critical to the way Pratham evolved over the years. Some characteristics of
this mindset10 were :















The current situation is absolutely unacceptable.
It can be changed, it has to change, NOW.
The question is not what to do as much as how to do it.
Small is beautiful, but BIG is useful.
Do not create models which cannot be replicated.
Don’t talk about why it cannot be done or why it has not been done. Talk about how it can be done.
When a problem comes, find a solution.
Don’t bring political ideologies into this job, and don’t question anyone’s religion or caste.
Start with the easy, lay a strong foundation, and then reach for the difficult.
Don’t try to make a 5-year plan, but think only of today and tomorrow.
Have patience with the government structure.
Be flexible, and allow for experimentation.
If there is a person ready to do a job that needs to be done, then do it. Until then, find the person.
Don’t tolerate nonsense, but be practical.
Once a problem is identified and the solution clear, then don't wait for formalities, unless they present a real
problem.
Mandate
In December 1992, the Indian government signed the “Convention on the Rights of the Child” adopted by the
General Assembly of the United Nations (UN) in 1989. By virtue of this, it is responsible for ensuring that every
single child in the country has access to primary education and is therefore required to make primary education free
and compulsory for all. Thus, in the city of Mumbai, it is the responsibility of MCGM to make primary education
compulsory and provide it free of cost to all children in the city.
UNICEF, as the autonomous institution of the UN, is responsible for supporting the governments of developing
countries to achieve this goal, and it was thus in India, and particularly in Mumbai, that UNICEF sought to
10
Adapted from various presentations about Pratham given by Dr. Madhav Chavan, trustee of Pratham, and interview with C. V.
Madhukar, member, Executive Committee, Pratham.
Civil Society & Governance Project
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Pratham - Mumbai Education Initiative - A Case Study
demonstrate a model of universalisation of primary education. As has been explained earlier, UNICEF believed that
the local government institutions could not achieve this goal independently and that the active support of the society
would be needed.
The process of formation of Pratham has been dealt with in detail earlier. From this, it is clear that Pratham was
registered as a trust as a result of the facilitation of UNICEF and with initiative from MCGM. The goal of UPE was
clearly spelt out and detailed in the trust deed. Apart from helping MCGM to achieve UPE, Pratham was also given
the mandate to raise the necessary financial resources to support MCGM and to provide support from improving its
infrastructure. UNICEF and MCGM officials were appointed as ex-officio trustees, entrusted with the mission to raise
public support and create awareness for achieving UPE.
Thus, Pratham clearly derives its mandate from within the sphere of the government.
Organizational Structure and Decision-making
At the time the trust was registered, there were only two people who owned the mission of UPE : Dr. Chavan and
Mrs. Lambay. Pratham worked from Dr. Chavan’s cabin in the University campus, until Sharad Pawar, then Chief
Minister of the State, provided office space in the commercial center of Mumbai. Both Dr. Chavan and Mrs. Lambay
were able to bring with them a small team from CORO and NN for initiating Pratham’s program in 6 wards of
Mumbai. As Pratham established a model program, the word spread, and attracted a number of individuals, mostly
young social work graduates from NN, Tata Institute of Social Sciences (TISS) and other colleges and highly trained
and skilled professionals who were discontent with their jobs and were looking for something interesting to do.
Individuals joined Pratham, took on certain assignments or specific tasks, and then left. From among those who
continued to be with Pratham, emerged the present organizational structure. The team of Yuvashakti Pratishthan, an
NGO which was instrumental in reaching out to women from the poor communities and providing them with work,
joined forces with the Pratham team, adding a fresh dimension.
The core team of Pratham consisting of Dr. Chavan and Mrs. Lambay also grew, and took on the executive
responsibility of Pratham. This group came to be called the Executive Committee (or Executive Group), and it is this
group who owns the mission of UPE. The group remains at the steering-end of Pratham, making policy decisions
and directing the program ahead. Two members of this group are volunteers in the true sense, while the others have
been deputed by their respective companies to work for Pratham for a pre-defined period.
As the number of balwadis grew from 125 in 1994-95 to 250 in the next year, and increased exponentially until it
reached almost 4000 in the year
Figure 2 Pratham : Organogram11
1999-00, the need for an
organizational structure grew (Refer Figure 2). In the initial phase, Pratham appointed supervisors over a group of
balwadis. However, the need for training these instructors and supervisors also became urgent. Growing as per the
need every year, today it has assumed the structure of a separate Training and Monitoring Group, responsible for
the training of the balwadi instructors and other staff and volunteers of Pratham. At the same time, this group is also
responsible for monitoring the program and improving on its quality. A policy of payment on the basis of work done
(# balwadis initiated and monitored) is followed as motivation to identify every single child in the community who is
eligible for the balwadi and as incentive to ensure accountability.
In addition, there is the production team which continues to be involved with developing and producing teaching
aids, games etc. There is a tremendous overlap between the staff in terms of the functions performed. However,
these two groups constitute a large part of Pratham.
11
20
From Pratham’s website www.pratham.org
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
There is a clear hierarchy in the structure, which works almost in parallel with the top-down hierarchy in the
government machinery. The work environment is competitive, with rewards and growth for work well done and an
ouster for a poor, irresponsible job.
Pratham has followed the principle of developing independent groups for unrelated tasks. Thus, the Management
Information System (MIS) being developed for MCGM and the computer-aided learning centers are independently
run and managed by Pratham staff. Pratham has approximately 10 people in each EP, which constitutes the core
staff of Pratham.
Most of the running expenses and the salaries of the core staff are paid for directly by the parent organization, i.e.,
ICICI, and are not reflected in the financial statements of Pratham. Since ICICI has committed itself to the parental
role of Pratham, Pratham does not need to mobilize resources for this critical and core ‘venture12’ support at present.
Planning and implementation is decentralized and the concerned staff of Pratham is encouraged to adapt as per
need. Within the well-defined objectives of UPE, all major policy and administrative decisions are taken by the
Executive Group. The Resource Center Organizers are entrusted with making decisions within their geographical
ambit under the common guidelines provided by the Executive Group. However, administrative and accounting
procedures and standards of work are set by the Executive Group and strictly monitored by Pratham staff to the
extent of being regimental.
The leadership of Pratham vests with the Executive Group, and Dr. Chavan is the accepted leader of that group and
of Pratham. Within the corporate sector, ICICI is providing the leadership by setting an example, encouraging and
almost pushing other corporate houses to join in the mission and contribute their bit.
Working with the Government : Building Trust
Pratham’s relationship with the municipal corporation has been a crucial aspect of the efforts to achieve UPE.
Although this relationship was built as the program developed, there was a strong foundation of the earlier work of
one of the founder members which contributed towards building this relationship. The role of UNICEF in the
formation of Pratham and Mrs. Lambay’s association with MCGM in the capacity of program in-charge of Nirmala
Niketan’s program in schools were two of the critical factors.
In the initial stages, the initiative taken by UNICEF and its financial support caused Pratham to be perceived as
Box 3 Education
Officer’s
comments
about
the
UNICEF’s program for strengthening the education department.
Pratham
team thus gained a comfortable entry
partnershipThe
with
Pratham
in MCGM, and was welcomed by the senior officials. The fact that two of the senior officials of MCGM were trustees
possible
onlyBox
if NGOs
change
13 (See
of Pratham certainly enhanced this feeling“A
amongpartnership
the MCGMis staff
3). Apart
fromtheir
this,view
one of the
that government officials do not work”.
objectives in the trust deed was to raise funds in order to assist MCGM and the government to achieve UPE, even to
“An agreement between the NGO and the senior officials
the extent of generating resources for infrastructure
(for example, the MIS being developed by Pratham for MCGM).
helps. It is critical to a smooth relationship”.
Thus, it was not surprising that Pratham was
thought
partorganization.
of MCGM’s efforts
to improve
the of
education
“Prathamof as
is aour
We feel
confident
department of MCGM, although it cannot be saidrequesting
that this feeling
existed
among
all
MCGM
staff.
Pratham for help”.
“It is difficult to motivate government staff, while the NGO
Mrs. Lambay was well known to the MCGM officials
as aareresult
of her earlier work (of nearly 20 years). As an
volunteers
self-motivated”.
Box 4 Partnership with Government : Do’s and Don’ts
works
if pressurized.
helps toprogram
individual, she was well known and trusted“Government
by MCGM. The staff
Nirmala
Niketan
College ofPratham
Social Work’s
1."Social
Identify
to liaison
must
maintain
pressure”
Workainperson
Schools",
which with.
it has This
beenperson
running
sincehave
1970theunder the leadership of Mrs. Lambay, helped to lay
to take
decisions
which are
to your
the authority
foundations
for this
relationship.
Herrelevant
approach
that work.
the relationship with the government should be that of a
2.partnership
Approachand
with
help
and
supplement.
the strategies that she had developed over the years to build and strengthen this partnership
3.
Do something feasible which will help to establish the
person’s trust. Work on the relationship.
4. Keep the relationship informal and friendly.
5.12 Encouraging
Never put‘social
the person
on theto work
defensive.
Have
a positive
entrepreneurs’
out ideas
and establish
the feasibility of these ideas. For details, refer Partnership
withapproach.
the Corporate Sector.
6.13 Reference
Be constructive
: Interview
inwith
yourthecriticism.
present Education
Always suggest
Officer Shri
alternatives
Bhau Gawande
when criticizing.
7. Avoid negative media publicity about the state of affairs.
8. Never compromise on your principles.
Civil Society & Governance Project 21
9. Find the person’s area of discomfort and work on it.
10. Let the person feel that (s)he is in the driver’s seat.
Pratham - Mumbai Education Initiative - A Case Study
contributed tremendously to Pratham’s work (See Box 4). Her experience thus proved to be the critical deciding
factor and has ensured that this relationship would be that of a partnership.
An example of how this partnership was built and developed would give an idea of the process.
In the initial stages of the search for a program for achieving UPE, it was felt necessary to study the
facilities of the municipal schools from the health and hygiene point of view. The idea was in fact suggested
by the then Commissioner of MCGM in the first meeting of the trustees. The survey was carried out with the
help of the doctors from the Indian Medical Association, the Indian Pediatrics Association and the National
Integrated Medical Association.
This was probably the first test of trust which was to be built between MCGM and Pratham. The permission
to conduct such a survey was granted by the EO only after Pratham assured MCGM in writing that the
findings would not be made public, even by the doctors conducting the survey. The doctors were told that
conditions could not be improved by criticizing MCGM but by sharing the findings with MCGM and working
out the solutions together. This line was followed later by Pratham team, and formed the crucial approach
on which the relationship with MCGM was build.
The survey helped to boost the confidence of the MCGM staff in the Pratham team and established the
credibility of Pratham in the eyes of MCGM. Enthused by the manner in which the survey was conducted
and the results dealt with, the EO asked Pratham to help out with the summer classes run by MCGM.
This was the first instance where MCGM requested the Pratham team to help in a particular respect.
Another request made subsequently by MCGM was of financial assistance for improving the Class X
results.
Pratham has housed its offices in specially allocated rooms in almost every school building. In others, Pratham runs
various programs. Thus, Pratham’s presence is in every school. This has facilitated the daily and continuous
interaction of Pratham and MCGM staff at all levels. There is direct communication of Pratham staff with the entire
hierarchy of the education department of MCGM. Discussions range from the repair of a faulty water tap,
achievement levels of children to the work review of teachers and other staff, something which is usually done
informally. Pratham staff actually acts as a monitor of the school teachers, headmasters and sometimes even the
supervisors, and the senior officials are glad to receive this additional input from a third ‘uninterested’ party. Every
Pratham staff has access to the senior officials, and need-based meetings are also sought with the EO and the
MCGM Commissioner, apart from the weekly review meetings.
This naturally leads to friction. Teachers have to be more accountable, corruption is checked, giving cause to the
teachers to be up in arms against Pratham. The teachers cannot openly voice their feelings against Pratham since
Pratham is actually a part of MCGM and is accepted by the senior officials, however, there is an organized protest
from the teacher’s union against Pratham.
Teachers and headmasters who are sincere in their work appreciate Pratham’s support, and feel that
they have an ally to help them in their work. They feel comfortable to share their difficulties with
Pratham staff, and often make use of Pratham’s direct contact with the seniors MCGM officials to find
solutions to their difficulties.
Apart from this daily interaction, most of the decisions regarding Pratham’s activities are taken in meetings with the
senior bureaucrats. All activities to be carried out by Pratham are communicated to the school staff through an
official circular signed by the EO or the MCGM Commissioner, thus making it extremely difficult to refute or ignore
22
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
Pratham’s presence. These added instructions are often perceived as additional responsibility and an increase in an
already over-burdened workload. Since the teachers do not feel involved in the decision-making, there is a
detectable unwillingness among a part of the MCGM staff to participate actively in the programs in a spirit of
partnership.
There is another area where the MCGM staff feels justified in defending its position against Pratham. The MCGM
teachers are highly trained and well qualified to teach children, but the Pratham staff is not. The introduction of the
Balsakhi, who according to the them, is only an unqualified, not so highly educated volunteer, but yet is expected to
teach academically weak children and conduct classes in the absence of the school teacher was highly disliked by
the staff. As a result, there is a perception of threat to their job.
The strong teacher’s union has been more vocal in its protests against Pratham. This has been expressed through
articles in the print media, its own periodicals and through a stance of non-cooperation being adopted by some. As
of now, Pratham has been unable to overcome this opposition even though it has striven to minimize it. As long as
the opposition continues, the partnership cannot be termed as mature and complete.
It will thus not be incorrect to say that the feeling of partnership is genuine only among the senior MCGM staff and
other staff who are committed to their job and self-motivated. Senior officers are more easily convinced of the need
for a support organization like Pratham since they are aware of the role that highly motivated social workers in an
NGO can play in helping them to achieve their own objectives. NGOs are also flexible in nature, while there are
restrictions to the bureaucracy. Thus, there is a definite role for NGOs.
The exact nature of partnership and the areas of cooperation were worked out in a joint meeting between Dr.
Chavan, Mrs. Lambay, the EO and the MCGM Commissioner14. Although an MOU was never officially signed (it was
discussed, and probably the need to formalize the relationship was not as sharp as the relationship developed),
these discussions helped to crystallize the roles that Pratham and MCGM would play in achieving UPE. The role
played by UNICEF in the initial stages also contributed to clarifying this understanding.
UNICEF’s grant to Pratham was seen as a supportive grant to MCGM by the MCGM officials. To some extent, this
ensured that MCGM and Pratham would have a smooth relationship. In this period, the decision-making process
involved both the concerned MCGM staff and Pratham representatives. As the situation changed and Pratham
strengthened its relationship with the corporate sector, Pratham became an independent identity and the decisionmaking shifted to the Executive Committee of Pratham15.
The change of officials has been another factor in defining Pratham’s relationship with MCGM. The enthusiasm and
commitment of the individual in the position of MCGM Commissioner and the EO has influenced this relationship to
an extent.
Partnership with the Corporate Sector
In order to make UPE a societal mission, Pratham was convinced that the resources required to achieve UPE would
have to be raised from within Mumbai itself. This led to the involvement of various well known and respected citizens
as trustees of Pratham. At the time of formation of the Pratham trust, at least two of the trustees were leading
industrialists or leaders of major financing institutions.
The initial years were spent on developing and demonstrating successful programs on a small scale and
establishing the credibility of the Pratham team. UNICEF’s commitment to ensure financial assistance during these
14
15
Reference : Draft minutes of the meeting held on 4th November, 1997.
See Organizational Structure and Decision-making.
Civil Society & Governance Project
23
Pratham - Mumbai Education Initiative - A Case Study
years was crucial. In addition, Pratham approached local foundations and trusts to take care of the overheads, and
the Bombay Community Public Trust (BCPT) came forward with the extra assistance. This ‘venture funding’,
encouraging ‘social entrepreneurs’ to work out ideas and establish the feasibility of these ideas, helped to create a
launching pad for mobilizing further resources.
The universalization of pre-schooling, or the balwadi program proved useful in this respect. It was relatively easy to
establish an association of a donor with any number of balwadis supported by the donor by assigning the balwadis
to them, sending periodical reports with pictures and utilization statements and encouraging the donors or their
Box 5 Strategies used for Resource Mobilization:
representatives to visit and gain first-hand experience. Having senior corporate members as trustees also helped.
 The technique to involve institutions : Activate an
withindonors,
the institution
convince
him of of ICICI
In the second year, Pratham was able to involve 3individual
other corporate
including and
ICICI.
The involvement
your
cause.
The
individual
then
becomes
the
driving
was to prove crucial. Starting with adopting a ward to be covered under the balwadi scheme, ICICI soon became
force himself and the champion of the cause within the
deeply involved in Pratham. The Chairman of ICICI,
Mr. N. Vaghul, was a person known for his social commitment
institution.
and vision, and was quick to appreciate the importance of UPE and the vision defined by Pratham. He agreed to
 Need-based resource mobilization : Decide the activity
became a trustee, and became a true partner in the
movement.
agreed
first,
then raiseICICI
the funds
fortoit.take on the parental role of Pratham
from UNICEF, and itself became a champion of
the
cause.
 First establish the success of a model : The principle of
demonstrating a model plan by actually carrying it out
Pratham believed in motivating an individual within
institution
thata the
person
the champion
of the
andanthen
to use so
it as
show
case becomes
for generating
more
cause within the institution, and this strategy was used
very
successfully
in
the
case
of
Mr.
Vaghul,
as
can
be
seen.
fund, for expanding the scale of activities, is effective.
 Adopting a ward : Encourage corporate houses to
a ward.
resource
for a with
warddonors,
or for agiving out
Soon, there was a team within Pratham which‘adopt’
devoted
itself Mobilize
to maintaining
contact
few activities
in thefrom
ward.
information, organizing visits and encouraging more
participation
them in Pratham’s work. The number of
 and
Link
the donor
with the
beneficiaries
Give
the
corporate donors went up to 20 in the 4th year,
thisupmade
it possible
forfinal
Pratham
to widen: its
coverage
in the
donor
specific
information
about
how
the
donation
is
city. In the financial year 1997-98, Pratham was able to mobilize Rs. 1 crore from the corporate sector.
being used. Give photos of the particular balwadi / other
program being supported by the donor, provide names
th
On 28 May, 1999, four leading industrialists in and
the city,
namely Dr. A.S. Ganguly, Chairman, ICI India Limited,
other details. Encourage the donor to visit and
Ratan Tata, Chairman, Tata Sons Limited and Keshub
Mahindra,
Chairman, Mahindra & Mahindra Limited, under
understand for himself.
the leadership of Mr. Vaghul, signed an appeal
letter, askinginvolvement
corporate bodies
to come forward
and join in this
 Encourage
of individuals
: Encourage
mission. The appeal letter endorsed Pratham’s individuals
work and asked
join in in
thea triangular
within the
the corporate
institutionbodies
to get to
involved
partnership to achieve UPE.
personal capacity, doing what they can to advance the
goal of UPE.
On this day, over a cup of tea in a meeting hosted by ICICI at the Vista Hall, World Trade Center, corporate partners
of Pratham shared their experience with others in the corporate sector. This appeal not only opened up the
possibility of partnership with several other donors, but also encouraged employees to get individually involved in
Pratham’s work. Pratham encouraged such involvement, and contributions came forward in the form of small jobs
being taken care of, such as the Pratham web-site which was hosted and is being maintained by Tulip
Communications, and free consultations regarding the management of Pratham’s finance.
Pratham’s name also spread by the word of mouth. In fact, the personal and informal conversations which Mr.
Vaghul and others had with their colleagues helped to champion the cause and Pratham found growing number of
supporters among the business community. As this support grows, it is the intention of Pratham to move away from
depending on large support from a few organizations to small donations from a larger number of individuals and
smaller businesses.
A number of highly educated individuals from the corporate sector got ‘sucked’ into the net which Pratham drew
around them. These individuals were attracted by the well defined objectives of UPE to be achieved within a short
time frame and felt challenged and motivated by the daunting task of covering the entire city of Mumbai. The
professional environment in Pratham with built-in accountability compelled them to join in the mission. Pratham
actively sought the permission of the seniors of such individuals to allow them to work full-time for Pratham. Thus,
24
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
these individuals would work for Pratham while drawing their salaries from their respective companies. After UPE
was achieved, they could re-join their duties.
Thus, Pratham was also able to mobilize highly qualified human resource from the corporate sector. This was also
an interesting way for corporate houses to contribute their brain to Pratham.
Listening from the People
A ‘societal mission’ in the true sense would need to have a sound mechanism for understanding the pulse of the
people who stand to be affected, their aspirations and their priorities. Such a mechanism would ideally devolve the
decision-making and place the resources in the hands of these people, allowing them to plan their own program. At
the very least, it would need to ensure that they are not only heard but also taken seriously, and that their opinion
has a value. This is most critical.
People who stood to be most affected by the UPE mission and by Pratham’s work were the parents and the
community on one side and the teachers and school staff on the other side.
In the case of Pratham, attempts to involve the teachers and other MCGM staff in the UPE mission seem to have
been restricted to a number of workshops & seminars organized in the initial stages. These workshops, to which the
Superintendents and Beat Officers, or the teachers and head-masters would be invited, would discuss various
aspects of their work, analyze it and come up with ideas of improving it. The EO and other senior staff would also be
present and facilitate the discussion with the help of Pratham representatives.
A few programs like Gammat Jatra did emerge as a result of these workshops. However, the Gammat Jatra was
engineered and led to a large extent, by the Pratham team. As a result of these efforts, self-motivated teachers were
encouraged to implement new ideas. Such cases were almost marginal, and on the whole, the workshops failed to
close the distance between the teachers and Pratham or to improve the teaching-learning process in the classroom.
The parents and the community do not seem to have been involved in planning the mission of UPE. Most of the
information that has been gathered, including their opinions about various issues, has been with the help of surveys
carried out at various times. In the cases where the community has contributed space for the balwadi, it has done so
at the request made by Pratham’s representative in a meeting with the entire community or individually with the
community leaders. Extensive discussions, however, have been held with community-based organizations and local
people on the issue of ‘coverage’ (bringing every child to school), with the purpose of involving them in the UPE
drive.
The balwadi instructors, who have been motivated to actively participate in the universalization of pre-primary
education, and according to Pratham, are the representatives of the community, also form an important source of
information. To what extent they represent the community can be questioned. However, they are certainly the
interface between Pratham and the community.
One opportunity to encourage the involvement of the parents and the community was through the School
Committees or the Education Advisory Committees. Pratham tried to enlist the support of volunteers in the
neighborhood of the school who would participate in the committee’s work as members. One Pratham representative
was appointed as a member of the committee by a circular issued by MCGM. However, the reluctance of the head
masters to call these meetings and to derive any benefit from them could not be overcome. Efforts to muster the
support of the local corporator, who is the head of the Shala Sudhar Samiti (School Improvement Committee) and is
responsible for the care of the school building and other infrastructure-related matters, also did not bear fruit.
Civil Society & Governance Project
25
Pratham - Mumbai Education Initiative - A Case Study
Sustainability
In a letter dated 25th January, 1999, introducing Pratham to Mrs. Sadhana Mane, the President of Education
Committee and member of the Mayor-in-Council, Dr. Chavan explained that it is Pratham’s wish to become
redundant. If Pratham is able to create such a situation wherein, if a citizen of Mumbai finds a child who does not
attend school or who is not learning, then (s)he would take the necessary steps to take the child to the nearest EP
and to ensure that the situation is immediately remedied, then there will not be a need for a Pratham-like
organization. Pratham would continue to work as a catalyst until the teachers and MCGM staff would respond
quickly to such a situation and would take on the responsibility of solving the child’s problem, with the help of
citizens.
However, as the program evolved, Pratham has found several niches which support MCGM’s work and make it
more productive, and from which it will be difficult for Pratham to withdraw completely. The pre-school program is
one such area, the others being Information Cells, the MIS for decentralized planning of EPs, the production unit,
which develops games and teaching aids for joyful learning and the training and monitoring unit, which provides
training to the balwadi instructors, continuously up-dating their skills and monitoring their performance in order to
maintain quality.
Pratham believes that UPE can be achieved without spending large amounts of money. In order to ensure the
replicability of the model, Pratham decided to keep expenditure below 2% of the government expenditure on primary
education. It was a self-imposed restriction. By demonstrating to the government that UPE can be achieved and
sustained without spending large amounts of money, Pratham is seeking to convince the government of accepting
long term responsibility of sustaining or financially supporting the projects started by Pratham.
In the last couple of years, Pratham’s core team has been concerned about ensuring that these activities set up by
Pratham continue to run independently, are able to raise and manage their own funds and grow and evolve as per
need. The solution has been to set up independent institutions, either trusts or non-profit companies. Thus, the
balwadi instructors and supervisors were encouraged to organize themselves into Mahila Mandals (women’s
groups), which would mobilize their own grants, either from MCGM or from the public. These grants would be
supported by the nominal fees which the instructors would recover directly from the parents.
The Trainers-Monitors (TMs) would form a separate training-monitoring institute, and would charge fees for their
work. The formation of such an institute at the national level is being considered at present. The production unit,
which already has a huge capital in the form of computers, raised through grants, could form another such non-profit
company, charging fees for its work. It could supplement its income by running computer literacy classes for slum
youth at nominal fees during vacations and outside school hours, a practice which has already come into existence.
As this is being written, efforts are already on to institutionalize these efforts. Wide ranging discussions and debates
are on through the rank and file of Pratham, and it remains to be seen whether the strategy for sustainability is
successful.
The Outcome : A Societal Mission ?
An Analytical Comment
The question that needs to be asked is : How far ahead has Pratham moved in the achievement of UPE ? Has it
been successful in creating a ‘societal mission’ ?
26
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
In Indian society, children’s education has been traditionally a responsibility of the society. Not only in the limited
sense of inducting a child into the norms of the society, in order to perpetuate itself and to maintain order, but also to
provide an enabling situation which encourages the child to develop and grow at his or her own pace, giving space
for the child to discover his or her areas of interest and skills. This tradition is perhaps at its best in the Ghotul
system of the tribal people. In addition, several Indian social leaders and reformers have contributed to developing
and understanding the role of the society in the education of a child, Rabindranath Tagore, Gandhiji, J.
Krishnamurthy, to name but a few. Several experiments which are based on the principles put forward by these
people continue to flower and grow across the country.
In the vision that Pratham has placed before MCGM, it has put forward the concept of schools owned by the parents
rather than state-run schools. In today’s world, this may seem impractical, and a dream for the future. However,
creating citizens who are aware, conscious of their responsibility towards the education of the city’s children and are
willing and able to act for it, may be an achievable goal.
In this context, Pratham’s effort to ensure the access of education to each and every child in Mumbai is extremely
important. One of the arguments that has been used to stress the importance of UPE has been that it is critical to
ensure that every citizen is literate and has the basic education in order to ensure a whole society. Pratham’s
formation and its subsequent growth has been as a result of this recognition of it’s responsibility by members of civil
society.
The critical questions that need to be asked are :
In what way has the society interpreted this responsibility ? To what extent has this responsibility
been shouldered by citizens and the society ? What were the limiting factors which restricted the
society from taking up the responsibility, the obstacles which the society was unable to overcome ?
Was Pratham able, in any way, to empower and equip the society to take on this responsibility in a
better way ?
Before answering these questions and analyzing Pratham’s role in this respect, it would be interesting to look at the
concept of ‘civil society’ and ‘governance’.
A Comment on ‘Civil Society’
An Alternative Definition
The word ‘society’ is derived from ‘socius’ - meaning a companion. The Webster’s dictionary defines society as a
number of persons united together by common consent to debate, determine and act conjointly for some purpose or
objective. A ‘society’ is a state of living in association with other individuals or the set of customs and the
organization of an ordered community16. The Webster’s dictionary defines the word ‘civil’ to mean that relating to the
community or to the state policy and government and the rights of people.
A ‘civil society’ is thus a society which is reduced to order and rule and governed by a regular
administration.
16
Reader’s Digest Encyclopedia : The meaning of ‘society’.
Civil Society & Governance Project
27
Pratham - Mumbai Education Initiative - A Case Study
The concept of civil society can be more easily understood in the context of the manner in which society is ordered
for the benefit of its individual members and collectively. In prehistoric times, there were the savage tribes of
humans, followed by the agrarian society which was organized around agriculture. In modern times, society is
organized in an extremely complex manner. A particular civil society can be distinguished from other civil
societies by it’s sovereign ruler or it’s political head or by a set of governing system and rules under
which it is organized.
Thus, geographical distances or natural boundaries do not separate a civil society unless it is governed by a
different set of systems. It is a society which has accepted the sovereignty of a particular ruler or a form of
government and its members are bound by the rules and laws of this government, and have the rights and
responsibilities as are bestowed upon them by the particular system of governance.
Civil society is a congregation of different communities of different races, religion, and political affiliations. It is an
amalgamation of different diverse groups, sometimes working for a common purpose, sometimes at cross purposes
or for different interests. It is a collective of such institutions and organized groups all contributing to the growth or
otherwise of that civil society, in which different bodies are responsible for fulfilling various functions necessary for
the conduct of civil life. Civil society is dynamic and constantly changing, as a result of the evolving economic, social
and political aspects of life, influenced continuously by its various parts.
Thus, civil society can be studied by firstly understanding the conditions under which it is united and whole, the
forces or systems that introduce diversity, cause friction, make it cohesive or divide it and then by looking at its
various characteristic features such as the nature and system of governance, the rights granted to citizens, the kinds
of formal and informal organizations which exist within this whole and the purpose for which they work, the set of
values and cultural practices prominent within it and finally, the kind of growth potential for individuals as well as
collectively for the society that is available.
The ‘state’ and the nature of the particular government specifies the broad framework within which civil society
organizes itself. While the various components of civil society are bound by these rules, they themselves act on the
state, exerting influence to further their own goals. Thus, civil society is shaped by the extent and manner in which
the two exert and push against each other. These are the forces of change, and are what make civil society
dynamic.
Many social scientists have demarcated the state and the private sector as being two major components of civil
society which are separate from civil society itself17. While the state certainly needs to be thus separated, primarily
because it lays down the rules around which civil society is organized, it could be argued that the private sector is a
major component of civil society itself.
Apart from the broad framework defined by the governing system, a lot is to be said about the nature and character
of the other members of the society and their actions. Often, the space available for their independent action is
restricted by the framework; this notwithstanding, the use of this space is left to the creative imagination of the
various actors within civil society, which further shapes the whole.
It is this initiative of the various components of the civil society which has been of interest to the
social scientists. It is generally believed that the ability to improve its lot is inherent to civil society,
and this quality has been under keen observation and study by these scientists. In what manner do
various civil society actors come together, for what purpose, what is the impact on the lives of the
members of the civil society, does the system of governance improve and are the different elements
17 “Civil
28
Society in Canada: An Overview” - By Karen Sawatsky, on the Internet.
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
of civil society itself benefited from this effort and how are some of the questions to which such
studies seek answers to.
It is this background against which this particular case study has been carried out. It examines the effort of Pratham Mumbai Education Initiative, an organization which is working to universalize primary education in Mumbai, its
impact on governance and the manner in which this impact has been achieved.
The words ‘civil society organization’ are being used to indicate initiatives, formal or informal, taken by a one or
more of civil society ‘actors’ for the purpose of furthering the cause of certain sections of civil society itself or the
whole of it. For the purpose of this study, a civil society organization has been defined as “an intermediate realm
situated between state and household, populated by organized groups or associations which are separate from the
state, enjoy some autonomy in relations with the state, and are formed voluntarily by members of society to protect
or extend their interests, values or identities”.
Meaning of Governance
‘Governance’ has been understood for the purpose of this paper as a broad term, transcending ‘government’ and the
‘state’, and referring to the ability of the people to “articulate their interests, mediate their differences and exercise
their legal rights and obligations”18, and the complex mechanisms, processes and institutions through which people
do so.
“Good governance occurs when societal norms and practices empower and encourage people to take increasingly
greater control over their own development in a manner that does not impinge upon the accepted rights of others”19.
It is the ‘state’ that creates a conducive political and legal environment, while it is the ‘civil society’ which facilitates
political and social interaction, mobilizing groups to participate in economic, social and political activities.
Thus, while a democratic government may lay the foundation for good governance, it is a vigilant and active citizenry
which drives and sustains it. The onus is therefore on ‘civil society’ to have good governance, and while it is
expected that the ‘state’ will be responsive to its citizens, it is also expected that the citizens will keep themselves
better informed and be responsible citizens.
Some of the qualities of good governance are that :
a.
b.
c.
d.
e.
f.
it is participatory,
It is transparent,
It is accountable,
it is just and promotes an impartial rule of law,
it assures that social, political and economic priorities are based on broad consensus in society,
and that the poorest and the most vulnerable have a say in decision-making and in matters that affect
their lives and their interests are protected.
Before proceeding into the examination of the subject at hand, it would be useful to understand the environment in
which Pratham has been active.
18
19
From the UNDP Internet Conference Forum on “Public Private Interface in Urban Environmental Management”
Ibid
Civil Society & Governance Project
29
Pratham - Mumbai Education Initiative - A Case Study
The Environment
The Nature of Civil Society - A Contextual Framework
Civil Society in India, as it exists today, came into being when India gained her independence from British
colonialism in 1947. The leaders of the nation at the time ensured a very positive political environment for the growth
of civil society by the adoption of its constitution. The leaders of India who led the country to freedom believed in the
principles of equality and justice, in freedom of speech and the protection of human rights. It will not be an
exaggeration to say that the constitutional framework has not only protected the interests of the individual and of the
minority groups but has also provided a critical space for people’s action.
The President of India is the head of the state, the sovereign ruler, in whose name the elected representatives,
under the leadership of the Prime Minister and his/her cabinet, govern the country. The Constitution provides the
legal framework. They function under the parliamentary system of governance, which provides the space for debate
and discussion. The government is made accountable to the parliament, which is the decision-making body. The
people can directly participate only by voting for the elected representatives, who are thus made accountable to the
people. Thus, there is political democracy.
Dr. Babasaheb Ambedkar, the leader of the Constituent Assembly which drafted the constitution, has explained the
intention of the Constituent Assembly, nature of the Constitution and it’s key features when he presented it to the
parliament for adoption20. In his speech, he has made it clear that “the ‘State’ is for the individual, and not the
individual for the ‘State’”. Referring to the condition of society in the country, especially to the segregation of society
on the basis of caste and poverty, he said that by the adoption of the Constitution, “we have political democracy, but
we do not have social democracy nor economic democracy”. He goes on to explain the various provisions made in
the Constitution for the protection of the interests and rights of the marginalised in the country and the effort of the
Constituent Assembly to provide for every situation. The Constituent Assembly had not only underlined the need for
wider social and economic reforms before the rights provided for within the Constitution could be realized, but had
accepted that it would be possible only with the help of people’s initiatives. In his speech, Dr. Ambedkar went so far
as to appeal to the people to “hold ourselves true to constitutional means for achieving our social and economic
objectives and abandon satyagrah and civil disobedience”.
While Dr. Ambedkar’s speech could be interpreted in a number of ways, it is clearly indicative of the mindset of the
Constitution makers and our leaders at the time. With reference to the subject at hand, certain key points can be
highlighted :
a. The liberal approach in-built within the governing system.
b. An acceptance of the role and necessity of people’s initiatives and actions for the improvement of
governance.
c. A provision of a legal framework for redressal of problems and bringing about policy change.
d. Acceptance of the State’s role in protecting the interests of the marginalised (welfare state) and it’s
responsibility to ensure equal development for all.
The subsequent amendments to the constitution (the 73rd and 74th Amendments) have taken the concept of
participation of the people in governance even further.
Civil Society Initiatives
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“Motion for the adoption of the Constitution” : Speech by Dr. Babasaheb Ambedkar, as Chairman of the Constituent
Assembly, from the book ‘One Hundred Parliamentary Speeches’ - A compilation of the best speeches since independence.
Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
In the last 20 years or so, unsatisfied with the speed of development and with the government’s efforts, several
initiatives emerged, addressing a range of problems. Although some of the earlier such initiatives evolved out of a
disillusionment of the role of the state and its inability to care for the interests of the marginalised groups, it was not
long before these initiatives took on the role of the government themselves. From representing the interests of
minority groups, they became involved in delivery of essential services and in developmental work.
They formed themselves into institutions, and came to be known as voluntary organizations or non-governmental
organizations. Many were started as voluntary groups; however, they soon lost their voluntary nature and became
bread-earners for their members. The number and size of these organizations became significant enough for them
to emerge as a separate sector, with it’s own identity and distinct from other components of civil society.
These organizations grew in size mainly with the help of huge grants from the foreign agencies. More often than not,
they became the implementers of the agenda set by these aid agencies and as a result, much less responsive to the
immediate needs of the people. Some became service-oriented, restricting themselves to the professional delivery
of certain services. Others took on the task of development and economic progress at a micro level. Most of these
organizations became institutionalized, creating huge infrastructure for themselves and hired the services of
professional experts.
It is only in the last few years that the government has accepted the role of NGOs in the developmental process. The
Maharashtra state government has even been discussing a NGO policy, and the administration is increasingly being
asked to make an effort to forget the anti-government stance taken earlier by the NGOs and to extend a hand of
cooperation.
Apart from these NGOs who have become synonymous with civil society initiatives, a wide range of diverse
initiatives continue to flourish. These initiatives have been reviewed in the background paper prepared by PRIA for
this research21. Their diversity is evident in the issues they address, their formation and approach to problems, their
nature and membership, and in a number of other aspects.
The NGOs referred to earlier, because of their sheer size, eclipsed a number of smaller initiatives which continue to
flourish in the society even today. There is considerable difference not only in the agendas of the two types, but also
in the manner in which their members are actually motivated towards social service. In an attempt to understand the
impact made by an organization on governance, it is vital to examine it from this point of view also.
Another critical aspect to consider is the process of economic liberalization in the country and the introduction of
market economy. This has resulted in considerable fragmentation within the society, a highly educated, skilled and
well-paid elite at the one end and a large population without access to even basic facilities. With survival highly
dependent on education and sophisticated skills unavailable to the poor and marginalized in the country, it is likely
that this gap will be even further widened. It is indicative of a change in the role of the government, from a welfare
state to a merely administering state. The marginalized are thus left to the mercies of the market economy, and not
only deprived of the basic services but also the means to claim them.
The government’s fascination about NGOs is thus because it sees for itself a reduction in it’s role as a welfare state
and the NGOs taking up the delivery of basic services.
The state of Maharashtra has always been progressive. There exists in the state an atmosphere in which civil
society initiatives would find a friendly environment and where the state recognizes the importance of their role. If
“Civil Society and Governance - A Research Paper” - Society for Participatory Research in Asia (PRIA), New Delhi, Febryary
1999.
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Pratham - Mumbai Education Initiative - A Case Study
such is the case, there is greater space for civil society action. In this circumstance, what then, is the impact that
Pratham has made on civil society and governance issues ?
Impact on Governance
As has been mentioned earlier, primary education of children has been the responsibility of the society in traditional
Indian society. The case of Pratham is an example of the society taking on the responsibility of improving access of
the poor and vulnerable section of the city to primary education, and how it has interpreted this responsibility.
Has Pratham’s work brought the poor and vulnerable population in the city of Mumbai closer to being
in control of their lives, with better access to primary education ? Has the quality of service of MCGM
improved to the point of becoming more accountable to the poor ? Does this section of the population
have a say in the kind of education they want, the method by which they want it ? Has Pratham helped
in any way to develop the understanding of the society about its role in the education of its children ?
These questions can be answered by going back to the manner in which the problem of UPE was understood by
Pratham(See Universalizing Primary Education in Mumbai).
MCGM deals with the problem of access by undertaking enrollment drives at the start of the academic year. This
would entail that the school teachers would survey the community and enroll the names of the children who are
eligible. This practice is being followed all over the state. The children who escaped this net were usually those
belonging to the families who migrated often in search of livelihoods or as a result of demolitions, street children who
did not have an address, working children, children of pavement dwellers, beggars, rag-pickers and construction
laborers (the high risk group). Even if these children were enrolled, there was the risk that they would drop out at the
slightest cause. It is the duty of the teacher to follow up drop-outs with the help of CDOs.
According to a survey conducted by Pratham, migration and poor record keeping (such as incorrect address noted
by the teacher, or the child dropping out of one school to join another municipal school) were two major factors
(76%) contributing to the child dropping out of school. Loss of interest or a dull and boring atmosphere in the school
were some of the other reasons. Very few children were not in school because they were child laborers. According
to Pratham’s own estimates, the number of children who are out of primary school for various reasons is about
30,000.
It is believed that Pratham’s balwadis, where children are enrolled early at the age of 3 years and the habit of
attending school is inculcated in them, are helping to improve enrollment levels and attendance. Pratham’s staff and
the balwadi instructors help the teachers in the enrollment drive, and to this extent, there is community involvement.
However, the high risk group still continues to elude both Pratham and MCGM at present. The situation is similar in
the case of the balwadi, where Pratham is attempting universalization of pre-primary education, and it is not clear
whether Pratham is able to enroll every single child in the balwadi.
A report of the Chief Municipal Auditor22 which has been recently published has pointed out that 65,866 students
have dropped out of civic primary schools in the period 1993 to ’98. It also points out that only 4,472 children
enrolled in MCGM schools in the city in the current academic year as against the enrollment figure of 5,084 recorded
last year.
Quoted from “Attendance in municipal schools on the decline”, an article by Nauzer Bharucha in the Times of India dated 26 th
January ’00.
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Civil Society & Governance Project
Pratham - Mumbai Education Initiative - A Case Study
Thus, to what extent Pratham has succeeded in improving enrolment and attendance in MCGM schools is as yet
unclear. A study which will trace and follow the progress of children in Pratham-run balwadis has been initiated.
Whether Pratham has affected any significant improvement in the situation can only be established after the results
of this study are available.
A different approach, which emphasized a more direct involvement of the community and its
participation in the planning and decision-making would have helped to check and verify the extent
of progress being made in the UPE mission. The community’s participation and ownership of the UPE
mission would have ensured the easy and quick identification of ‘out of school’ children and made
the follow-up of school drop-outs simple.
Programs like bridge courses, khelwadis, school readiness classes, remedial classes and balsakhis are all attempts
at reaching out to this high risk group and improving attendance and achievement levels in schools. The
classification of children according to their skill levels is being followed under continuous pressure and monitoring by
Pratham. Attempts to improve the quality of teaching through the introduction of joyful learning techniques (programs
such as Gammat Jatra and Shatak Zep) have been temporary. Pratham has been unable to bring about any change
in the teaching-learning process in the schools.
Pratham’s most important contribution to governance is perhaps the empowerment of the huge force of about 5000
individuals which constitutes the Pratham team. This force, including balwadi and bridge course instructors, TMs
(Training & Monitoring persons) and balsakhis has been trained and motivated as a result of Pratham’s effort to
achieve UPE. All of these people are young, most below 35 years of age, and this group covers a wide cross-section
of the society. People from all castes and religion have come forward to work for the goal of UPE. A huge number of
these are girls and young women, who have seen this as an opportunity to step out of the house to do something
independent. Many of them have excelled in their work, and have been given the opportunity to grow.
Pratham has made critical impact on them, both in terms of motivating them towards the goal of UPE as well as for
their individual personal growth. It can be listed as follows :
a. This group has learned several skills, from presenting themselves, putting forward their views, and to
organizational and management skills like accounting, staff management etc. Working with Pratham has
provided them with an opportunity to learn on the job, and a work culture comparable to the best in the industry.
As such, a positive, fostering work environment which recognizes good work, allows for creativity and
innovation, has no gender bias and treats all castes and religion the same is a rarity in itself, and has helped to
highly motivate the Pratham staff.
b. This group has also been empowered with a purpose that all children must receive primary education, and a
direction as to how to go about it. This would go a long way towards creating responsible citizens, especially
women, a necessity for a civil society.
c. They have been gainfully employed. Although the balwadi instructors do not earn a substantial sum, with their
qualifications, they may not have been employed elsewhere. As such, Pratham offers an opportunity for upward
mobility regardless of your educational qualifications (a minimum qualification is, however, expected) provided
you show potential for growth and the capacity to handle responsibilities.
d. This group has learnt well how to deal with the local government staff (Teachers, Headmasters, Beat Officers,
Superintendents, up to the level of the Education Officer). They are also able to exercise their access to the
senior officers like the EO and the MCGM Commissioner, if need be.
e. This group has developed a good working knowledge of the system, which has been instilled into them through
a well-planned training schedule as well as through daily practical work.
This group is however still a long way from taking an independent leadership of the program. The balwadi instructors
and the instructors of the study classes are being seen as the first representative of the community and the media
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Pratham - Mumbai Education Initiative - A Case Study
for transferring the ownership of the balwadi to the community (See The Balwadi Model). By establishing Mahila
Mandals which would mobilize resources from the community or the government (See Sustainability), Pratham
seeks to make this a reality and devolve decision-making and ownership.
The involvement of the community in the UPE mission from the inception stage would have directly
ensured the community’s ownership of the balwadi. The community would then have also provided
the leadership to the program. It would also have been a strategy that would have increased the
confidence of the community in dealing directly with the government, ultimately leading to the
devolution of power to the people, and thus, improved governance.
In the community, Pratham has attempted to cross the boundaries of religion, caste and sex while identifying
children and at the time of recruiting staff. In the community, Pratham has been seen as a service provider, rather
than as a member and part of the community. It has, however, succeeded in creating an awareness in the
community about education, and in instilling a confidence that their children can go to school and learn. This has
meant an increase in their self-confidence, self-esteem and a hope for a better future.
As has been seen in the section Working with the Government - Building Trust, Pratham has been unable to avoid
friction between itself and the teachers. This friction was certainly unnecessary and unwanted. Since Pratham was
primarily set-up to help MCGM to achieve its own goal of UPE, it may even have been avoided by taking the
teachers into confidence. A policy of ‘placing the teachers at the helm of the mission to achieve UPE’ could
perhaps have succeeded better in gaining the confidence of the teachers and other staff. This strategy would also
have motivated the teachers to take initiative in achieving the goals of UPE.
Certainly, MCGM has become more accountable and transparent. Pratham staff has access to information within
MCGM to a great extent, and the MIS being developed by Pratham has demonstrated the trust and confidence
which MCGM has in Pratham. Corruption and inefficiency has been checked to an extent.
However, this process has not yet made MCGM more transparent and accountable to the people who
are directly concerned with this service. Pratham’s present efforts to activate the school committees
which provide a forum for the school to share its difficulties with the parents and the community and
to enlist their support, may however, change the situation and bring MCGM closer to being
accountable and transparent to the people.
The partnership between Pratham and MCGM has brought about a number of positive changes within MCGM.
MCGM has allowed its premises to be used for education-related purpose (running balwadis, bridge courses etc. in
the school buildings) and is willing to admit out-of-school children in the classrooms after they have completed a
remedial education course conducted by Pratham. MCGM has also agreed to and undertaken the reorganization of
the schools around ‘Education Posts (EP)’, which would aid decentralized planning and management. Thus, the
entire education department is currently being organized around 448 EPs, and Pratham is actively providing support.
These are important changes in the system brought about by Pratham.
The Pratham ‘model’ of involving the society in the achievement of the objectives of UPE has been accepted by the
Government of India and several other local governing bodies. Similar missions have been initiated in other cities
and in rural areas. The Government of India has chosen the ‘Pratham model’ as the norm by which funding will be
made available under the newly instituted scheme of Innovative and Alternative Schooling to all NGOs working in the
urban areas.
These are no doubt major contributions. Pratham has successfully demonstrated that the society can
be involved in a partnership with the government in achieving the objectives set up by the
government. Pratham has demonstrated an effective way of developing such a partnership with the
government and of creating a space for the participation of the society.
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Pratham - Mumbai Education Initiative - A Case Study
While elaborating on the concept of ‘societal mission’, Pratham has talked of individuals and various sections of the
society taking the responsibility of UPE. By these individuals and sections of the society Pratham has implied
corporate individuals and government officials who are leaders and opinion-makers in their own spheres. Pratham
has targeted the corporate sector as a key player in shaping the future of the society and has sought to involve this
sector in a mission for the benefit of the society.
With the excuse of mobilizing financial resources from the corporate sector, Pratham has initiated a dialogue with the
leaders of this sector regarding aspects which involve the vulnerable sections of the society. This has created an
awareness among them about the situation of the vulnerable sections of the society in the city of Mumbai, which
stands in contrast to the fast and sophisticated world of the corporate individual. By encouraging representatives of
the corporate houses to visit the balwadis supported by them and to participate actively in the UPE mission, Pratham
has brought two entirely different worlds face to face with each other. By advancing the cause of the weaker sections
of the society, Pratham has succeeded in mobilizing vast financial resources for the purpose of improving their
condition. This intellectual and financial resource tapped by Pratham from within the city is bound to set an example
not only for local resource mobilization by voluntary groups but also a practice of active giving in the corporate world.
This is one of the most important contributions of Pratham.
What has convinced these business houses and professionals to support Pratham ?
In the later half of 1999, several corporate houses were asked about this by two researchers interested in studying
this phenomenon. According to Radhika Piramal, one of the researchers from the Piramal Enterprises, most
corporate houses identified the need for literacy to be one of India’s most pressing needs, believing that better
citizens would lead to a better country, which would be more conducive to corporate activity. According to her,
however, it was enough that somebody in the industrial world had appealed on behalf of Pratham for them to donate
to Pratham. It was only ICICI, HSBC, the Piramal Enterprises Ltd. and British Airways, and possibly a few others,
who had put some thought behind Pratham and donated knowingly.
The other researcher, an American student by the name of Martha, found that there was definitely a conscious
awareness among the sponsors interviewed by her that :
a.
b.
c.
d.
education is vital and a worthy investment,
that there are many gaps within the system which need to be filled in,
that as companies who reap profits from the society, they have a ‘duty’ to give back, and
by contributing to an educational initiative, they are fostering corporate social responsibility.
Again, she too found that since Pratham was backed by well-known individuals in the industrial world and was seen
to be succeeding on a large scale, most of the businesses were eager to support and get involved in a ‘partnership’
on a longer term.
Certainly, it is only now that the relationship with the corporate sector is developing as a true partnership, with an
ownership of the program being shared and corporate houses coming forward to play a more active role in
Pratham’s work.
With the corporate sector financing a major part of the programs, it is slowly taking up the leadership of the UPE
mission, as was envisaged by the founders of Pratham. This has meant an active involvement of a number of
individuals from the corporate houses in decision-making and planning. In effect, another power structure has been
created, albeit one that is friendly and more sympathetic to the needs of the weaker sections of the society, but
which is equally distant and almost as unapproachable for the people it seeks to help as that of MCGM.
Participation of people in the very things that concern them is the soul of democracy. The ethos of good
governance implies that people are in control of their own development and can participate and take
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Pratham - Mumbai Education Initiative - A Case Study
decisions about everything that affects their lives. It means that the governing system is transparent
and accountable to the people for whom it is created.
Pratham needs to go one step forward and devolve the decision-making from the chambers of high
commerce to the crumbling balwadi in Rafi Nagar. As the interface between the intellectual and
economic ‘capital’ of the city and the city’s marginalized people, Pratham needs to affect a change in the
charitable and philanthropic approach of the corporate world to one where there is listening to the
voice of the marginalized. Only then will true partnership exist, and good governance take place.
In the above discussion, Pratham’s role in improving the access and accountability of the primary education being
provided by MCGM has been analyzed against each of these criteria. There are several learning points, and these
are summed up in the following paragraphs.
Conclusions
Pratham has been established to provide support to MCGM in the goal of universalization, to help improve the
efficiency and reach of MCGM primary schools and to strengthen the efforts of MCGM in this respect. For this
purpose, Pratham has been entrusted with the responsibility of creating a ‘societal mission’, thereby procuring the
help of the society in the UPE mission.
The extent to which Pratham has succeeded in improving access and attendance in MCGM schools is yet to be
established. Efforts to improve achievement levels of children with the help of the Balsakhi program have chafed the
teachers and created waves of resistance from them. The empowerment of a large group of women from the
community has been achieved and they have been charged with the purpose of achieving UPE. Efforts are under
way to establish independent structures which would implement these programs and would perhaps create
community ownership, perhaps lead to privatization.
While creating a ‘societal mission’, the involvement of those who stand to be most affected by it, namely the parents,
the community as a whole and the teachers, has not been sought or has not been accomplished. Pratham has
succeeded in creating a structure to which MCGM is more accountable, and having achieved this, Pratham now
needs to take steps whereby this accountability will be transferred to the parents and the community in general.
Thus, the mission of UPE is not being led by these people as of now, and the ‘societal’ nature of the mission is as
yet incomplete. Pratham’s efforts to activate the school education committees may correct this situation in the future.
By successfully demonstrating to the government that the people can be involved effectively in helping the
government has paved the way for a partnership with the government and has created a space for the participation
of the society in the government. Pratham has also demonstrated to the society how the society itself can work
effectively with the government.
Pratham has shown that the intellectual and economic ‘capital’ within the society can be harnessed successfully for
addressing the problems of the society and to bring about a change in the situation of the marginalized. Pratham’s
effort to mobilize this resource has created an environment in the city which encourages the corporate sector to be
more directly involved in community work. What remains to be done as yet is to bring about a direct dialogue
between these two communities at the two ends of the spectrum in such a way that there is free and open
discussion, effective listening and a feeling of friendship and concern for each other. It will be only then that the
concept of ‘societal mission’ will be a reality.
Unless the people are empowered and encouraged to take increasingly greater control over things that concern and
affect them, effective governance will not take place. Pratham is yet to make any impact in this critical sphere of
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Pratham - Mumbai Education Initiative - A Case Study
governance. However, Pratham continues to evolve and change, and in the years to come, this situation may
change.
The story of Pratham is not complete. A lot remains to be accomplished, a number of problems need to be
addressed. In its brief history, Pratham has demonstrated new ways of working, and it is these that provide
opportunities for learning. As the mission of UPE spreads to other states in the country, there is no doubt that
Pratham’s experience in Mumbai will show the direction.
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