1 REPORTABLE IN THE SUPREME COURT OF INDIA CIVIL ORIGINAL JURISDICTION WRIT PETITION (CIVIL) NO. 132 OF 2016 RAJNEESH KUMAR PANDEY & ORS.   …PETITIONER(S) VERSUS UNION OF INDIA & ORS.           …RESPONDENT(S) WITH WRIT PETITION (CIVIL) NO. 876 OF 2017 J U D G M E N T A.M. KHANWILKAR, J. 1. These   petitions   under   Article   32   of   the   Constitution   of   India are filed in representative capacity, to espouse the cause of teachers having   B.Ed.   (Special)   and   D.Ed.   (Special)   degree/diploma   courses and   fully   trained   to   cater   to   the   requirements   of   Children/Child with   Special   Needs 1   also   known   as   Divyang,   including   to   impart 1   for short, “CwSN” 2 them   education   and   make   them   independent.     The   thrust   of   the grievance   in   the   writ   petition(s)   is   about   the   illegality   being committed by the concerned State and its Authorities in employing them in recognised schools on contract basis without any certainty of tenure .   According to the petitioners, there is a need to appoint 73,888 special teachers on regular basis to teach 3,69,443 CwSN in the State of Uttar Pradesh and equally large number in the State of Punjab so as to fulfil the required pupil­teacher ratio i.e., 5:1. 2. It   is   urged   that   despite   knocking   doors   of   the   concerned Authorities   repeatedly,   no   heed   has   been   given   to   their   demands and   most   of   them   have   been   appointed   on   contractual   basis   in different   schools.     This   is   despite   the   obligation   of   the   State   to ensure   that   pupil­teacher   ratio   is   maintained   in   the   recognized schools,   by   appointing   adequate   number   of   trained   teachers   on regular   post.     The   principal   reliefs   prayed   in   Writ   Petition   (Civil) No.132 of 2016 are as follows: “(a)     Issue   a   writ,   order   or   direction   in   the   nature   of mandamus,   commanding   the   respondents   to   ensure   the   free and   compulsory   education   to   each   and   every   CWSN   (Child with   Special   Need)/Disabled   Children   as   per   the   Rules, 3 Regulation and Schemes stated above by initiating the process of   appointment   of   Special   Teachers   as   per   the   Teacher­Pupil ratio i.e. 1:5; and/or (b)     Issue   a   writ,   order   or   direction   in   the   nature   of Mandamus,   commanding   the   respondents   to   reserve   and create, at least (sic) two posts or minimum number of posts in each   and   every   schools   of   the   Country/State,   as   this   Hon’ble Court   may   deem   fit   in   the   interest   of   complete   justice   for CWSN (Child with Special Need)/Disabled Children; and/or (c)  Issue a writ, order or direction in the nature of Mandamus, commanding   the   respondents   to   reserve   a   minimum   number of   posts   which   this   Hon’ble   Court   may   deem   fit,   in   every pending   vacancy   and   future  vacancies   of   the   teachers,  in   the schools   of   aided   by   State   Government   as   well   as   Central Government; and/or, ..…” Similarly, the reliefs claimed in Writ Petition (Civil) No.876 of 2017, are as follows: “(a)   Issue   a   writ,   order   or   direction   in   the   nature   of mandamus, commanding the respondents to ensure the free and compulsory education to each and every CWSN   (Child   with   Special   Need)/Disabled   Children as   per   the   Rules,   Regulation   and   Schemes   stated above   by   initiating   the   process   of   appointment   of Special   Teachers   as   per   the   Teacher­Pupil   ratio   i.e. 1:5; and/or, (b)   Issue   a   writ,   order   or   direction   in   the   nature   of Mandamus, commanding the respondents to reserve and create, atleast two posts or minimum number of posts   in   each   and   every   schools   of   the Country/State,   as   this   Hon’ble   Court   may   deem   fit in   the   interest   of   complete   justice   for   CWSN   (Child with Special Need)/Disabled Children; and/or, (c)   Issue   a   writ,   order   or   direction   in   the   nature   of Mandamus, directing the respondents to  create and appoint   18053   Special   Teachers   for   class   I   to   V and   1478   Special   Teachers   for   class   IX   to   XII 4 immediately   as   they   are   required   to   teach disabled   children   in   the   Schools   of   Punjab particularly   under   the   circumstances,   till   date   not even   a   single   special   teacher   has   been   appointed   in the   schools   of   State   of   Punjab   to   teach   physically disabled children/Child with Special Need (CWSN). (d)     Issue   a   writ,   order   or   direction   in   the   nature   of Mandamus, commanding the respondents to reserve a   minimum   number   of   posts   which   this   Hon’ble Court   may   deem   fit,   in   every   pending   vacancy   and future   vacancies   of   the   teachers,   in   the   schools   of aided   by   State   Government   as   well   as   Central Government; and/or, (e)     Issue   an   interim   order   and   direction, commanding the Respondents to use and utilise the skill   and   eligibility   of   the   writ   petitioners,   having requisite   training   and   certificate   from   the Rehabilitation   Council   of   India,   in   the   welfare   and justice   of   enrolled   CWSN   (Child   with   Special Need)/Disabled Children, stated above, and/or; (f)     Grant   any   other   consequential   relief   admissible under   law,   in   the   facts   and   circumstances   of   the case and in the interest of justice.” (emphasis supplied) 3. This Court issued notice to the respondents on 8.3.2016 only in   reference   to   prayer   clauses   (a)   and   (b)   of   Writ   Petition   (Civil) No.132   of   2016,   reproduced   above.     As   the   matter   proceeded further, on 14.7.2017, the Court noted thus: “Mr. D.K. Singh, learned Additional Advocate General for the State of Uttar Pradesh prays for four weeks time to file the counter affidavit. At   this   juncture,   Mr.   K.   Parameshwar,   learned   counsel appearing for the petitioners submitted that it is the obligation of   the   State   to   conduct   a   survey   with   regard   to   the   children 5 with special needs. As we are granting time to the State to file the counter affidavit, it shall carry out the survey with regard to   the   children   with   special   needs   as   far   as   practicable   and put   forth   the   same   as   a   part   of   the   counter   affidavit.   To explicate, if the State is not in a position to do it for the entire State,   at   least   it   may   do   for   one   of   the   Commissionerate   to start with. Let the matter be listed on 21.8.2017.” 4. On the next date, i.e., 21.8.2017, on the basis of submissions made by the learned counsel for the parties, the Court noted thus: “It is submitted by the learned counsel for the respondent that to impart training to the children with special needs, the State   is   taking   steps   to   recruit   teachers   with   diploma   in special education who are eligible to teach the specially abled children.   Needless   to   say,   filling   up   the   posts   of   teachers   is one aspect. There are other aspects which are to be taken care of. Learned counsel for the State shall keep in view  the order dated   14.7.2017   which   mentions   with   regard   to   the   children with   special   needs   and   their   requirements.   Keeping   that   in view,   a   further   affidavit   be   filed   by   the   Secretary   of   the concerned Department within three weeks hence. List the matter after three weeks. Liberty to mention.” 5. Again   on   18.9.2017,   the   Court   noted   the   submissions   of   the learned counsel and observed thus: “It   is   submitted   by   Mr.D.K.Singh,   learned   Additional Advocate General for the State of U.P. that teachers in certain schools   meant   for   children   with   special   needs   and   in   certain normal  schools  where   the  children  of   that   category   can  come with the mainstream have not been appointed. In the course of hearing it is submitted that the selection process  for   more  than 1200  teachers  is in  progress  and  need 6 for   additional   schools   where   children   with   special   needs   and the   teachers   for   the   said   schools   and   also   for   normal   school children   can   fit   in   to   the   mainstream   is   a   categorical imperative.   The   Secretary,   Primary   Education,   shall   file   an affidavit in this regard within two weeks hence. The affidavit to be   brought   on   record   shall   indicate   the   nature   of advertisement   issued   for   appointment   and   also   the   list   of appointees, if any. List on 23rd October, 2017.” 6. As   the   matter   proceeded   further,   on   23.10.2017,   the   Court recorded the submissions of the parties and observed thus: “It   is   submitted   by   Ms.Aishwarya   Bhati,   learned Additional   Advocate   General   for   the   State   of   Uttar   Pradesh that   the   State   is   committed   to   impart   education   to   the children   with   special   needs.   On   the   previous   occasion,   a statement   was   made   that   the   State   had   already   commenced the procedure for engaging 12,000 teachers out of which some shall be the teachers for children with special needs. Having heard Mr.K.Parameshwar, learned counsel for the petitioner   and   Ms.Aishwarya   Bhati,   learned   Additional Advocate General for the State of Uttar Pradesh, we are of the prima   facie   view   that   the   children   with   special   needs   have   to be  imparted  education  not   only   by   special  teachers  but   there has   to   be   special   schools   for   them.   Access   to   education   has already   been   regarded   as   a   Fundamental  Right   as  per   Article 21A of the Constitution. There is a statutory obligation under the Rights of Children to Free and Compulsory Education Act, 2009.   It   is   impossible   to   think   that   the   children   who   are disabled   or   suffer   from   any   kind   of   disability   or   who   are mentally   challenged   can   be   included   in   the   mainstream schools  for   getting   education.   When   we  say   ‘disability’,   we   do not   mean   ‘disability’   as   has   been   defined   in   the   Rights   of Persons   with   Disabilities   Act,   2016.   The   Rights   of   Persons with   Disabilities   Act,   2016   includes   certain   physical disabilities which may not be a warrant for getting admission in   special   schools.   The   students   who   suffer   from   blindness, deafness   and   autism   or   such   types   of   disorder   may   be 7 required   to   have   separate   schools   with   distinctly   trained teachers. The   State   shall   file   an   affidavit   keeping   our   observations in   view   within   four   weeks.   Needless   to   say   that   the   affidavit shall   also   mention   when   the   State   is   going   to   meet   this obligation. List on 27.11.2017.” 7. Further, on 4.12.2017, the Court after referring to the affidavit filed   by   the   Special   Secretary,   Primary   Education,   Government   of Uttar   Pradesh   and   the   submissions   made   across   the   Bar,   noted thus: “In   pursuance   of   our   earlier   order,   an   affidavit   has   been filed by the Special Secretary Primary Education, Government of U.P., Lucknow. It is stated in the affidavit that  the State of U.P. is keen to have   special   schools   having   special   teachers   for   imparting education   to   the   disabled   children   who   cannot   be   imparted education   in   normal   schools.   Ms.   Aishwarya   Bhati,   learned Additional   Advocate   General   appearing   for   the   State   of   U.P. relying   on   the   affidavit   and   the   instructions   has   submitted that sixteen special schools have already been established and the   teachers   have   been   appointed   and   presently   the   schools are functional. The special schools are imparting education to visually   impaired,   hearing   and   speech   impaired,   mentally disabled   and   physically   disabled   children.   It   is   submitted   by her   that   the   schools   have   residential   facilities   and   they   also admit   students   who   belong   to   non­residential   category.   A chart has been filed indicating to the said effect. We   have   been   apprised   that   seven   schools   for   visually impaired   are   situated   in   Lucknow,   Gorakhpur,   Banda, Saharanpur   and   Meerut   and   five   schools   for   hearing   and speech   impaired   in   Gorakhpur,   Bareilly,   Agra,   Farukhabad and   Lucknow.   As   far   as   the   mental   disability   is   concerned, there   are   two   schools   which   are   running   at   Allahabad   and 8 Lucknow.   There   are   two   special   schools   for   the   physically disabled at Lucknow and Pratapgarh. That apart, submits Ms. Bhati that seventeen more schools are under construction. At   this   juncture,   learned   counsel   for   the   petitioners   have drawn   our   attention   to   Section   2(m)   of   the   Rights   of   Persons with Disabilities Act, 2016 (for short, ‘the 2016 Act’). The said provision   defines   “inclusive   education”,   which   reads   as follows:­  “‘inclusive   education’   means   a   system   of   education wherein   students   with   and   without   disability   learn together   and   the   system   of   teaching   and   learning   is suitably   adapted   to   meet   the   learning   needs   of   different types of students with disabilities”.  Learned   counsel   have   also   commended   us   to   Section   16, which reads as follows:­  “16.   Duty   of   educational   institutions .­   The   appropriate Government   and   the   local   authorities   shall   endeavour that   all  educational institutions  funded  or  recognised  by them   provide   inclusive   education   to   the   children   with disabilities and towards that end shall – (i)   admit   them   without   discrimination   and   provide education   and   opportunities   for   sports   and   recreation activities equally with others; (ii)   make   building,   campus   and   various   facilities accessible; (iii)   provide   reasonable   accommodation   according   to   the individual’s requirements;  (iv) provide necessary support individualised or otherwise in   environments   that   maximise   academic   and   social development consistent with the goal of full inclusion; (v) ensure that the education to persons who are blind or deaf   or   both   is   imparted   in   the   most   appropriate languages and modes and means of communication; (vi)   detect   specific   learning   disabilities   in   children   at   the earliest   and   take   suitable   pedagogical   and   other measures to overcome them; 9 (vii)   monitor   participation,   progress   in   terms   of attainment levels and completion of education in respect of every student with disability; (viii)  provide transportation facilities to  the  children with disabilities   and   also   the   attendant   of   the   children   with disabilities having high support needs.”  Stress is laid on Sections 16(i) and (iv). Section   17   of   the   2016   Act   provides   for   specific   measures for   promotion   and   facilitation   of   inclusive   education   so   that the   students   who   have   been   suffering   from   any   kind   of disability   are   not   kept   away   from   the   main   stream   of education.  Ms.   Aishwarya   Bhati   shall   apprise   this   Court   on   the   next date of hearing by way of an affidavit how the State is going to work   out   the   provisions   of   the   Act   by   providing   inclusive education   in   the   State.   The   affidavit   shall   be   filed   by   the Secretary,   Department  of  Education,   Government   of   U.P.   The said   authority   while   filing   the   affidavit   shall   keep   in   view   the language   employed   in   Section   3   of   the   Act   which   deals   with equality   and   non­discrimination.   The   affidavit   shall   also contain   the   number   of   disabled   children   in   the   State   of   U.P. and the categories of the disability. Though   an   affidavit   has   been   filed   with   regard   to   the establishment   and   imparting   of   education   to   the   disabled students   who   requires   special   teaching,   yet   we   think   it appropriate   to   get   the   same   verified   by   a   two   Member Committee and, accordingly, we nominate Mr. Rishi Malhotra and   Mr.   Gopal   Shankaranarayanan,   learned   counsel,   as   the members of the Committee, who shall visit the schools and file a report within six weeks hence. The State of U.P. shall make all arrangements for the visit and assessment by Committee. List the matter in the third week of January, 2018.” On   this   day,   the   Court   appointed   an   Amicus   Curiae   to   visit   the schools and file a report within six weeks.   Pursuant to that order, learned   Amicus   Curiae   submitted   a   detailed   report   on   the   basis   of 10 factual position noted during his visit to the concerned schools.  He also   handed   over   a   chart   highlighting   the   problems   or   deficiencies noticed by him in the respective schools concerning class strength, teachers’   ratio   and   other   facilities,   that   has   been   taken   note   of   by this Court in the order dated 7.3.2019, which reads thus: “Mr.   Rishi   Malhotra,  learned  Amicus  Curiae  has  handed  over a   chart   highlighting   the   problems   or   deficiencies   noticed   by him   in   the   respective   schools   concerning   the   Class   strength, teachers’ ratio and other facilities. The same reads thus: IN THE SUPREME COURT OF INDIA CIVIL ORIGINAL JURISDICTION RAJNEESH KUMAR PANDEY & ORS. Vs. UNION OF INDIA & ORS. WRIT PETITION (CIVIL) NO.132 OF 2016 CHART Sr. No . School Problem/  suggestion Class/strengt h Teacher’s  Ratio 1. Visually Impaired  School, Meerut  (Boys) 1.   No   Medical   Aid Room 2.   Not   a   single regular   computer Teacher 3.   Not   a   single Bus/Van 90   out   of   100 residential students studying   from Class I to Class XII 18   out   of 24 sanctioned Teachers 2. Visually Impaired  School, Saharanpur (Girls) 1.   No   Medical   Aid Room 2.   Not   a   single regular   computer Teacher 3.   No   chairs   and desks   for   studying in the classroom 4.   6   rooms   as classrooms,   6 rooms as residential rooms   and   6   rooms used   as   Kitchen, 25   out   of   75 residential students studying   from Class I to Class X 9 out of 24 sanctioned Teachers 11 store,   Mess, Principal   Office   and Music room 3. Hearing and Speech Impaired School,  Bareilly (Co­Ed.) 1.   No   separate Hostel   building   for girls students 2.   Inadequate Teaching Staff 3. No Medical Room 4. No Bus/Van 5.   No   Hostel Warden 6.   No   Hearing Impaired Specialized Teacher 7.   Demand   for   less­ cum­modified syllabus   8.   Only   4 classrooms   for   145 students 145   out   of   340 residential students studying   from Class I to Class VIII Only   3 Teachers available 4. Hearing & Speech  Impaired School,  Agra (Co­Ed.) 1. 156 students and only 2 teachers 2.   There   are   no classrooms   as   there is   no   schools   own building 3.   At   the   moment students   are studying   in adjoining   building of   skill   centre temporarily   which also   has   only   3 classrooms 4.   Requirement   for separate   Hostel building for girls 5. No Medical Room 6. No Bus/Van 7.   No   Hostel Warden 8.   No   Hearing Impaired specialized Teachers 9. No geysers 10.Need   for   less modified syllabus 156   out   of   150 residential students studying   from Nursery   to Class X Only   2 Teachers 5. Hearing & Speech  1.   94   students   and 94   out   of   100 Only   2 12 Impaired School,  Farukhabad (Co­ Ed.) only 2 teachers 2.   There   are   only   2 classrooms 3.   Requirement   for separate   Hostel building for girls 4. No Medical Room 5. No Bus/Van 6.   No   Hostel Warden 7.   No   Hearing Impaired specialized Teachers 8. No geysers residential students studying   from Nursery   to Class VIII Teachers 6. Hearing & Speech  Impaired School,  Lucknow (Boys) 1. 117 students and only 5 teachers 2. No Medical Room 3. No Bus/Van 4.   No   Hearing Impaired specialized Teachers 5.   Need   for   less modified syllabus 6.   Need   for Vocational   Training Courses 117   out   of   100 residential students studying  from   I to Class VIII Only   5 Teachers 7. Visually Impaired  School, Lucknow  (Girls) 1. No Medical Room 2. No Bus/Van 3.   No   Women Warden   in   the Hostel 4.   Not   a   single regular   Computer Teacher 5. Last maintenance of the building done in the year 2006 6.   Need   for   Plex Talk 7.   Demand   for increase   of   Braillers from 3 to 30 96   out   of   100 residential students studying  from   I to Class VIII 20   out   of 24 Teachers 8. Visually Impaired School, Lucknow  (Boys) 1. No Medical Room 2.   No   Hostel Warden 3.   Not   a   single regular   Computer Teacher 127   out   of   200 residential students studying  from   I to Class VIII 14   out   of 20 Teachers 13 4.   Need   for   Plex Talk 5.   Demand   for increase of Braillers 9. Mentally Challenge  School, Lucknow  (Girls) 1.   No   Education   set up 2.   Only   an Orphanage 3.   No   Schooling System 4.   No   Nurse­cum­ Doctor 5.   No   Psychiatrist available 6.   No Superintendent 7. No Bus/Van 8. No Building of its own 19   out   of   50 girls Only   2 Teachers 10. Physically Impaired  School, Lucknow  (Boys) 1.   No Physiotherapist 2. No Prosthetic Aid 3. No Artificial limbs 4. No Bus/Van 5. No Medical Room 6.   No   option   to study after class X 7.   No   Vocational Course available 8.   No   Computer Teacher 9.   No   Sports Teacher 38   out   of   50 residential students studying  from   I to Class X 4   out   of   8 sanctioned Teachers 11. Physically Impaired  School, Pratapgarh  (Boys) 1. No  Physiotherapist 2. No Prosthetic Aid 3. No Artificial limbs 4. No Bus/Van 5. No Medical Room 6.   No   option   to study after class X 7.   No   Vocational Course available  8.   No   Building   of school   (just   2   make shift   false   converted into classrooms) 24   out   of   50 residential students studying  from   I to Class X 3   out   of   6 sanctioned Teachers 14 8.   No   Computer Teacher 9.   No   Sports Teacher 12. Mentally Challenge School, Allahabad  (Boys) 1.   No   Education   set up 2.   Only   an Orphanage 3.   No   Schooling System 4.   No   Nurse­cum­ Doctor 5.   No   Psychiatrist available 6.   No Superintendent 7. No Bus/Van 20   out   of   50 Boys Only   1 Assistant Teacher,   1 P.T. Trainer,   1 Lab Assistant, 1 Pharmacis t and other Assistants totalling 10   in number 13. Hearing & Speech  Impaired School,  Gorakhpur (Co­Ed.) 1. 100 students and only 2 teachers 2. No Medical Room 3. No Bus/Van 4.   No   Hearing Impaired specialized Teachers 5.   Need   for   less modified syllabus 6.   Need   for Vocational   Training Courses 7.   Need   for   new building   as   the existing   one   in dilapidated condition 8.   No   education material 9.   only   4 classrooms 100   out   of   100 residential students studying  from   I to Class IX Only   2   out of   3 Teachers 14. Visually Impaired  School, Gorakhpur  (Girls) 1. No Medical Room 2.   No   Women Warden 3.   Need   for   20   Plex Talk 4.   Demand   for increase   of   30 Braillers 5. No Bus/Van 100   out   of   100 residential students studying  from   I to Class XII 16   out   of 31 Teachers 15 6.   Not   a   single Computer Teacher 15. Visually Impaired  School, Gorakhpur  (Boys) 1.   Not   a   single regular   Computer Teacher 2.   Need   for   10   Plex Talk 100   out   of   000 residential students studying  from   I to Class XII 20   out   of 27 Teachers Learned Additional Advocate General for the State of U.P., on   instructions,   submits   that   some   of   the   deficiencies   have already   been   cured   and   steps   are   being   taken   to   address   all other   problems   noted   in   this   Chart   and   including   other matters   for   strengthening   the   concerned   schools   for   specially abled students. She submits that some more time is required to   report   compliance   to   this   Court.   We   have   no   difficulty   in acceding   to   the   request   made   by   the   learned   counsel. However, we direct the Chief Secretary, State of U.P. to file an affidavit   providing   for   timelines   within   which   all   the deficiencies in the concerned sixteen special schools would be redressed.   The   timelines   should   be   realistic   and   ensure   that the schools are made fully functional in all respects before the next academic year. The affidavit be filed within three weeks. Needless   to   mention   that   the   essential   facilities   can   be put   in   place   only   if   adequate   fund   allocation   is   made   in   that regard.   Since   the   Chief  Secretary  has   been   directed  to  file   an affidavit   of   compliance   and   to   provide   timelines   within   which the deficiency will be cured, we have no manner of doubt that even   that   issue   will   be   addressed   by   the   Chief   Secretary appropriately. Besides   the   proposed   affidavit,   the   Chief   Secretary   must take   measures   to   set   up   a   nodal   authority   which   would continually supervise and monitor the progress of work within the   timelines   specified   in   the   affidavit.   The   nodal   authority may   consist   of   high   ranking   officials   of   the   concerned Departments   such   as   Finance   Department,   Education Department and Divyang Jan Sashaktikaran Department. List the matter on 03.04.2019.” 16 8. The Court had granted time to the respondent­State(s) to take corrective measures.   When the matter was notified on 4.4.2019, it was reported that substantial measures have been taken in terms of the   Scheme   of   Integrated   Education   for   the   Disabled   Children 1992 2 .  The order reads thus: “We have perused the affidavit dated 01.04.2019 filed by the   Chief   Secretary,   State   of   Uttar   Pradesh   in   pursuance   to our order dated 07.03.2019. We are happy to note that, effective measures have been provided   for   as   indicated   in   the   Scheme   of   Integrated Education   for   the   Disabled   Children   1992   and   the   plan   for implementation thereof. We   have   no   difficulty   in   giving   two   months’   time   to   the State   Government   to   comply   with   the   assurance   given   to   the Court   on   affidavit.   However,   we   expect   the   Chairman   of   the nodal Committee  to submit   periodical report   to this  Court  on monthly basis. List the matters on 10th July, 2019. We   are   conscious   of   the   fact   that   some   of   the   time­lines transcend   beyond   two   months   but   we   deem   it   appropriate   to list   the   matters   on   10th   July,   2019   as   the   progress   already done   can   be   reviewed   and   appropriate   directions   be   given,   if required.” 9. As   the   matter   proceeded   further,   on   4.10.2019,   learned Amicus Curiae   informed the Court about further steps taken by the Uttar   Pradesh   State   Government.     The   same   was   recorded   in   the following words: 2  for short, “ 1992 Scheme” 17 “Learned   counsel   for   the   State   has   tendered   compliance affidavit.   An   advance   copy   of   the   compliance   affidavit   was served on the learned Amicus Curiae. Learned   Amicus   Curiae   submits   that,   on   perusal   of   the compliance affidavit, it is evident that substantial compliance has   been   done   except   in   respect   of   two   schools   i.e.   Mentally Challenged   School   Girls,   Lucknow   and   Hearing   and   Speech Impaired   School   Gorakhpur.   Details   about   further   course   of action   with   regard   to   those   two   schools   has   not   been mentioned in the compliance affidavit. We expect the competent authority to place on record the follow   up  steps   taken   in  regard   to   the   two  schools   before   the next date. List the matter after four weeks.” 10. Another relevant order passed in the proceedings, which needs to be adverted to, is order dated 4.2.2021, the same reads thus: “Heard   learned   counsel   for   the   petitioner,   Mr.   Shoeb Alam and Mr. Rishi Malhotra, learned Amicus Curiae. Amongst   other   issues,   the   central   point   urged   by   the petitioners is about the obligation of the schools, including of the   concerned   State   Government   to   ensure   appointment   of duly qualified special teachers to impart quality training to the child   with   disability   in   the   ratio   enunciated   in   the   central enactments   as   also   the   schemes   propounded   by   the   Central Government from time to time and service conditions of such teachers. The   incidental   issue   that   needs   to   be   examined   is whether the central scheme(s) relied upon by the State can be taken   forward   if   the   same   is   not   in   consonance   with   the subsequent enactments in the form of the Right of Children to Free   and   Compulsory   Education   Act,   2009,   the   Rights   of Persons   with   Disability   Act,   2016   and   the   Rehabilitation Council of India Act, 1992. Needless   to   observe   that   the   interpretation   of   the provisions of the stated acts and of the central scheme(s) may 18 have bearing on dispensation to be provided by  all the States and the Union Territories. Resultantly, we deem it appropriate to issue notice to the learned Attorney General for India, returnable on 23.02.2021.” In  this  order,  the   Court  articulated  the  central  issue  that  needs  to be   addressed   at   the   outset.     The   arguments   made   by   the   learned counsel appearing for the parties were considered.   11. The   crucial   issue   is   about   the   extent   of   obligation   of   the recognized   schools   imparting   primary   and   secondary   level education   to   children   below   the   age   of   14   years,   and   CwSN   in particular   (including   in   the   special   schools   established   to   impart education and training to CwSN), in light of the central enactments and  the schemes governing  the  pupil­teacher  ratio, as propounded by the appropriate authority from time to time, for imparting quality education.   The standards to be observed by the schools imparting primary   and   secondary   level   education   are   governed   by   the municipal   regulations   and   were   essentially   a   State   subject.     They have been placed in the Concurrent List by the Constitution (Forty­ second Amendment) Act, 1976. 19 12. With   a   view   to   address   the   growing   concern   about   the disadvantages suffered by the handicapped persons in every walk of life   including   education,   the   Parliament   enacted   a   law   titled   “The Rehabilitation   Council   of   India   Act,   1992” 3   to   provide   for   the constitution   of   the   Rehabilitation   Council   of   India 4 ,   for   regulating and   monitoring   the   training   of   rehabilitation   professionals   and personnel;   promoting   research   in   rehabilitation   and   special education;   the   maintenance   of   a   Central   Rehabilitation   Register; and   for   matters   connected   therewith   or   incidental   thereto.     The expressions relevant for consideration of this case, as defined in the said Act when enacted, read thus: “ 2. Definitions .—(1) In this Act, unless the context otherwise requires, — (c) “handicapped” 5  means a person­ (i) visually handicapped; (ii) hearing handicapped; (iii) suffering from locomotor disability; or (iv) suffering from mental retardation; 3  f or short, “1992 Act” 4   for short, “Council” 5 Stands   substituted   by   Rehabilitation   Council   of   India   (Amendment)   Act   (38   of   2000),   S.   3 (Recd. President’s assent on 4­9­2000) to the following effect: ­ (c) “handicapped” means a person suffering from any disability referred to in   clause   (i)   of   section   2   of   the   Persons   With   Disabilities   (Equal   Opportunities, Protection of Rights and Full Participation) Act, 1995 (1 of 1996) 20 (d) “hearing   handicap” 6   means   deafness   with   hearing impairment of 70 decibels and above, in the better or total loss of hearing in both ears; (e) “locomotor   disability” 7   means   a   person’s   inability   to execute   distinctive   activities   associated   with   moving, both   himself   and   objects,   from   place   to   place   and such inability resulting from affliction of either bones, joints, muscles or nerves; (h) “mental retardation” means a condition of arrested or incomplete development of mind of a person which is specially   characterised   by   sub­normality   of intelligence; (k) “recognized rehabilitation qualification” means any of the qualifications included in the Schedule; (n) “rehabilitation professionals” means— (i) audiologists and speech therapists; (ii) clinical psychologists; (iii) hearing aid and ear mould technicians; (iv) rehabilitation engineers and technicians; (v) special   teachers   for   educating   and   training the handicapped ; (vi) vocational   counsellors,   employment   officers and   placement   officers   dealing   with handicapped; (vii) multi­purpose   rehabilitation   therapists, technicians; or  (viii) such   other   category   of   professionals   as   the Central   Government   may,   in   consultation   with the Council, notify from time to time; (o) “Visually   handicapped” 8   means   a   person   who   suffers from any of the following conditions, namely: — (i) total absence of sight; 6 Omitted by   Rehabilitation   Council   of   India   (Amendment)   Act   (38   of   2000),   S.   3   (Recd. President’s assent on 4­9­2000) 7 Omitted by   Rehabilitation   Council   of   India   (Amendment)   Act   (38   of   2000),   S.   3   (Recd. President’s assent on 4­9­2000) 8 Omitted by   Rehabilitation   Council   of   India   (Amendment)   Act   (38   of   2000),   S.   3   (Recd. President’s assent on 4­9­2000) 21 (ii) visual   acquity   (acuity)   not   exceeding   6/60   or 20/200   (snellen)   in   the   better   eye   with   the correcting lenses; or (iii) limitation   of   the   field   of   vision   subtending   and angle of degree or worse.” (emphasis supplied) 13. The   Council   established   under   the   1992   Act   has   been endowed   with   certain   functions   predicated   in   Chapter   III   under heading   ‘Functions   of   the   Council’.     Section   11   of   the   1992   Act deals   with   recognition   of   qualifications   granted   by   University,   etc., in   India   for   rehabilitation   professionals.     As   noted   earlier,   special teachers   for   educating   and   training   the   handicapped   form   part   of the   definition   of   “rehabilitation   professionals”   in   Section   2(1)(n) reproduced above. 14. Section 12 of the 1992 Act empowers the Council to recognize qualifications granted by institutions outside India.  What is crucial for our purpose is Section 13, which delineates the rights of persons possessing   qualifications   included   in   the   Schedule   to   be   enrolled and recognized by the Council.  The same reads thus: “ 13.   Rights   of   persons   possessing   qualifications   included in   the   Schedule   to   be   enrolled .—(1)   Subject   to   the   other provisions contained in this Act, any qualification included in 22 the Schedule shall be sufficient qualification for enrolment on the Register. (2)   No   person,   other   than   the   rehabilitation professional   who   possesses   a   recognised   rehabilitation qualification and is enrolled on the Register ,— ( a )   shall   hold   office   as   rehabilitation   professional   or   any such  office  (by  whatever   designation called) in Government or   in   any   institution   maintained   by   a   local   or   other authority; ( b )  shall practice as rehabilitation professional anywhere in India ; ( c )   shall   be   entitled   to   sign   or   authenticate   any   certificate required   by   any   law   to   be   signed   or   authenticated   by   a rehabilitation professional; ( d ) shall be entitled to give any evidence in any Court as an expert under section 45 of the Indian Evidence Act, 1872 of any matter relating to the handicapped: Provided   that   if   a   person   possesses   the   recognised rehabilitation   professional   qualifications   on   the   date   of commencement   of   this   Act,   he   shall   be   deemed   to   be   an enrolled  rehabilitation  professional for  a  period  of  six  months from   the   commencement,   and   if   he   has   made   an   application for enrolment on the Register within said period of six months, till such application is disposed of. (2A)   Notwithstanding   anything   contained   in   sub­section (2),   any   person   being   a   doctor   or   a   paramedic   in   the   field   of physical   medicine   and   rehabilitation,   orthopaedics,   ear,   nose or   throat   (ENT),   ophthalmology   or   psychiatry,   employed   or working in any hospital or establishment owned or controlled by   the   Central   Government   or   a   State   Government   or   any other body funded by  the Central or a State Government and notified   by   the   Central   Government,   may   discharge   the functions referred to in clauses (a) to (d) of that sub­section. (3)   Any   person   who   acts   in   contravention   of   any provision   of   sub­section   (2)   shall   be   punished   with imprisonment   for   a   term   which   may   extend   to   one   year, or with fine which may extend to one thousand rupees, or with both .” (emphasis supplied) 23 15. Two   aspects   emerge   from   this   provision.     The   first   is   that   a rehabilitation   professional   who   possesses   prescribed   qualification and is so recognized by and enrolled on the Register of the Council alone can practice as rehabilitation professional anywhere in India, including as a special teacher.   That is to say that no other person (not  possessing  such  recognition  and  not  being   registered with  the Council)   can   engage   himself   in   serving   the   handicapped   persons, CwSN in particular, or impart education to them, for that would be a   contravention   and   punishable   under   Section   13(3)   reproduced above.  Indeed, this enactment in a way is a general law, but would still   govern   the   special   teachers   engaged   by   any   school/institution for   imparting   education   and   training   to   CwSN.       They   must   fulfil this requirement over and above the qualifications prescribed under the   special   law   concerning   registration   and   recognition   of   schools and   maintaining   minimum   standards   for   imparting   quality education. 16. With   the   need   to   have   a   formalized   scheme   for   imparting quality   education   to   CwSN   in   absence   of   any   specific   law   on   that subject,   the   Union   framed   the   1992   Scheme.     The   recital   of   the 24 Scheme   itself   indicates   that   there   was   a   phenomenal   expansion   of educational   opportunities   in   the   post­independence   period,   yet   the children with disabilities were left out of that growth in educational facilities.   To include CwSN to achieve the goal of education for all, the   1992   Scheme   was   formulated   providing   for   educational opportunities   to   CwSN   in   general   schools   and   to   facilitate   their retention in the school system.  The Scheme further recognized that CwSN who were placed in special schools should also be integrated into   general   schools,   once   they   acquired   the   communication   and daily   living   skills   at   a   functional   level.     Indisputably,   concern   was felt as a substantial number of persons with disability in India were not   able   to   pursue   even   primary/secondary   level   education   much less   to   complete   their   basic   education   in   a   formal   school.     To encourage   them   and   to   facilitate   their   retention   in   the   school system,   the   1992   Scheme   was   propounded.     We   are   not   so   much concerned   with   the   other   features   of   the   Scheme   for   deciding   the matter   in   issue,   except   to   advert   to   the   regime   specified   regarding special   teachers   and   in   particular,   the   pupil­teacher   ratio   to   be 25 maintained   in   the   concerned   schools   and   their   qualifications   and training.  The same reads thus: “ 11. Special Teacher Support Except   for   children   with   locomotor   disabilities,   special education   teachers   may   be   appointed   in   schools   where   the scheme   is   in   operation   to   provide   specific   attention   to   the disabled children. 12.  Appointment of Special Teachers 12.1     The   teacher­pupil   ratio   for   special   education teachers   envisaged   under   the   scheme   is   1:8.   This ratio   will   be   the   same   for   normal   classes   as   well   as for   preparatory   pre­school   classes.   The   same teachers   will   provide   counselling   to   the   parents.   In accordance   with   this   ratio   the   requisite   number   of special   teachers   may  be   appointed   in   schools   (or   for a   cluster   of   schools)   for   children   requiring   special teacher support . 12.2   Qualifications Special   teachers   so   appointed   should   possess   the following qualifications:­ (a)   Primary   : Academic qualifications as prevalent in the States   and   Union   Territories   with   one   year   course, preferably   multi­category,   in   special   education   or   with specialization   in   teaching   any   type   of   disabled   children depending   upon   the   category   of   children   enrolled   in   the IEDC Units. Such teachers can be oriented subsequently in the education of other categories of disability. (b)   Secondary :   Graduates   with   B.   Ed.   (Special Education)   or   any   other   equivalent   professional   training in special education. Prescribed   qualifications   should   be   adhered   to.   In   case qualified   special   teachers   are   not   available,   teachers   with short   training   course   may   be   appointed   with   the   condition that   they   will   complete   the   full   course   within   three   years   of 26 appointment,   special   allowances   for   these   teachers   will   be admissible   only   after   completion   of   the   full   course.   Teachers with   single   disability   professional   courses   will   be   encouraged to   take   courses   in   other   disabilities   to   improve   viability   in rural areas. Since teachers with experience in Non­Formal Education (NFE)   and   Adult   Education   (AE)   are   likely   to   have   a   better understanding of local environment and need, they could also be   identified   for   training   under   the   scheme   and   appointed   as special teachers. 12.3   Scale of pay  : The same scales of pay as available to the teachers   of   the   corresponding   category   in   that   State/UT   will be   given   to   special   teachers.   Considering   the   special   type   of duties,   these   teachers   will   be   given   a   special   pay   of   Rs.   150 per   month   in   urban   areas   and   Rs.   200   per   month   in   rural areas.   The   State   Education   Department   may   recruit   such teachers   for   this   purpose   following   the   normal   recruitment procedures. 13. Training of Special Teachers The   facilities   for   the   training   of   special   teachers   are readily available in the Regional Colleges of Education (RCEs), Regional Training Centres being  run by the National Institute for   the   Handicapped,   Special   Education   Departments   in   the universities   and   selected   colleges   for   Education.   The   training facilities   are   being   further   expanded.   The   State   Government may   prepare   an   estimate   of   the   requirements   of   teachers under   each   category   of   disability   and   send   it   to   the   Regional Colleges   of     Education/District   Institutions   of   Education   and Training (DIETs), National Institutes for the Handicapped and the   University   Grants   Commission   under   intimation   to   the NCERT.   Since   the   appointment   of   fully   trained,   full­time resources   teachers   is   an   essential   input   for   the   successful implementation   of   the   Scheme,   the   State­Government/UT Administration must ensure appointment of such teachers on priority basis. Under   the   scheme,   grant   is   available   through   UGC   for instituting  full­time  training  courses for  special  teachers.  The university/training   institutes   are   expected   to   utilize   the existing   infrastructural   facilities   and   other   resources   to   the extent   possible.   The   cost   of   the   additional aids/equipment/space,   and   the   additional   faculty   members will  be   met   from  the   funds  under   this   scheme.   DIETs   should 27 organize   in­service   training   courses   for   general   teachers   and refresher courses for resource teachers.” (emphasis supplied) 17. On   similar   lines,   Centrally   Sponsored   Scheme   (CSS)   of ‘Inclusive   Education   of   the   Disabled   at   Secondary   Stage   (IEDSS)’ 9 came to be articulated during the same time. 18. The   Parliament   also   enacted   a   law   to   deal   with   persons   with disability titled “The Persons with Disabilities (Equal Opportunities, Protection   of   Rights   and   Full  Participation)   Act,   1995” 10 .     This   Act, however,   stood   repealed   by   the   Right   of   Persons   with   Disabilities Act,   2016 11 ,   which   was   enacted   as   a   comprehensive   legislation   to give   effect   to   the   United   Nations   Convention   on   the   Rights   of Persons   with   Disabilities   and   for   matters   connected   therewith   or incidental thereto. 19. The  Parliament  also  enacted the  National  Trust  for  Welfare of Persons   with   Autism,   Cerebral   Palsy,   Mental   Retardation   and Multiple Disabilities Act, 1999 12  for the constitution of a body at the national level for the welfare of persons with autism, cerebral palsy, mental   retardation   and   multiple   disabilities   and   for   matters 9   for short, “IEDSS Scheme” 10   for short, “1995 Act” 11   for short, “2016 Act” 12   for short, “1999 Act” 28 connected   therewith   or   incidental   thereto.     The   Statement   of Objects   and   Reasons   of   this   Act   mentions   that   the   Government   of India   has   become   increasingly   concerned   about   the   need   for affirmative action in favour  of persons with autism, cerebral  palsy, mental   retardation   and   multiple   disabilities   and   to   secure   their rights,   constituted   a   National   Trust   for   Welfare   of   Persons   with Autism,   Cerebral   Palsy,   Mental   Retardation   and   Multiple Disabilities 13 ,   to   discharge   the   role   as   promotive,   proactive   and protectionist   in   nature   so   as   to   uphold   the   rights,   promote   the development   and   safeguard   the   interests   of   specified   persons   and their families.  The expression “autism” has been defined in Section 2(a), “cerebral palsy” in Section 2(c), “mental retardation” in Section 2(g),   “multiple   disabilities”   in   Section   2(h),   “person   with   disability” in Section 2(j) and “severe disability” in Section 2(o).  The objects of the Trust are spelt out in Section 10, which read thus: “ CHAPTER III OBJECTS OF THE TRUST 10. Objects of Trust .—The objects of the Trust shall be— (a)   to   enable   and   empower   persons   with   disability   to   live   as independently   and   as  fully   as  possible  within  and  as  close  to the community to which they belong;  13   for short, “Trust” 29 (b)   to   strengthen   facilities   to   provide   support   to   persons   with disability to live within their own families; (c)   to   extend   support   to   registered   organisations   to   provide need based services during the period of crisis in the family of persons with disability; (d) to deal with problems of persons with disability who do not have family support; (e) to promote measures for the care and protection of persons with   disability   in   the   event   of   death   of   their   parent   or guardian; (f)   to   evolve   procedure   for   the   appointment   of   guardians   and trustees for persons with disability requiring such protection; (g)   to   facilitate   the   realisation   of   equal   opportunities, protection   of   rights   and   full   participation   of   persons   with disability; and (h)   to   do   any   other   act   which   is   incidental   to   the   aforesaid objects.” 20. The powers and duties of the Board of trustees, procedure for registration   of   any   association   of   persons   with   disability,   or   any association   of   parents   of   persons   with   disability   or   a   voluntary organisation   and   setting   up   of   local   level   committees   and   related matters,   have   been   spelt   out   in   the   1999   Act.     This   Act,   however, makes no provision regarding the pupil­teacher ratio to be observed by   the   schools   imparting   education   to   CwSN   in   particular. However, that gap has been filled up by the IEDSS Scheme.  Taking cue   from   the   National   Policy   on   Education   (NPE),   1986   and   the 30 Programme   of   Action   (1992),   this   Scheme   laid   down   a   basic   policy framework   for   education,   with   emphasis   on   correcting   the   existing inequalities.   This Scheme adverts to the fact that India has been a signatory   to   international   declarations   like   the   Salamanca Statement   and   Framework   for   Action   on   Special   Needs   Education (1994);   the   Biwako   Millennium   Framework   for   Action   (2002),   and the   United   Nations   Convention   on   the   Rights   of   Persons   with Disabilities, 2006 which emphasize upon the need for fundamental educational   policy   shifts   in   order   to   enable   general   schools   to include   children   with   disabilities.     The   1992   Scheme   stood subsumed in this Scheme (IEDSS). 21. The   IEDSS   Scheme   recognized   that   as   per   Census   of   2001 about 2 per cent of the total population of India constituted persons with disabilities.   Further, children with disabilities constituted one of   the   largest   groups   that   still   remained   outside   the   fold   of   the general education system.  In that backdrop, this Scheme sought to provide all students with disabilities who had completed eight years of   elementary   schooling,   an   opportunity   to   complete   four   years   of secondary schooling (classes IX to XII) in an inclusive and enabling 31 environment, and to provide educational opportunities and facilities to such students in the general education system at the secondary level.  The objectives of this Scheme were to ensure that: “2.   Aims and Objectives ….. The objectives of the scheme will be to ensure that ­ Every   child   with   disability   will   be   identified   at   the secondary level and his educational need assessed. ­ Every student in need of aids and appliances, assistive devices, will be provided the same. ­ All   architectural   barriers   in   schools   are   removed   so that   students   with   disability   have   access   to classrooms,   laboratories,   libraries   and   toilets   in   the school. ­ Each   student   with   disability   will   be   supplied   learning material as per his/her requirement ­ All   general   school   teachers   at   the   secondary   level   will be   provided   basic   training   to   teach   students   with disabilities within a period of three to five years. ­ Students   with   disabilities   will   have   access   to   support services   like   the   appointment   of   special   educators, establishment of resources rooms in every block. ­ Model schools are set up in every state to develop good replicable practices in inclusive education.” The Target Group identified in this Scheme have been noted thus: “3. Target Group The scheme will cover all children of age 14+ passing  out of   elementary   schools   and   studying   in   secondary   in Government,   local   body   and   Government­aided   schools, with one or more disabilities as defined under the Persons with   Disabilities   Act   (1995)   and   the   National   Trust   Act (1999)   in   the   age   group   14+   to   18+   (classes   IX   to   XII), namely  Blindness  Low vision  Leprosy cured  Hearing impairment  Locomotor disabilities 32  Mental retardation  Mental illness  Autism  Cerebral Palsy And   may   eventually   cover   (i)  Speech  impairment   and   (ii) Learning Disabilities, etc. Girls   with   disabilities   will   receive   special   focus   and   efforts would be made under the scheme to help them gain access to   secondary   schools,   as   also   to   information   and   guidance for developing their potential.” 22. The   IEDSS   Scheme,   inter   alia ,   adverts   to   the   training   to   be given   to   the   special   or   general   school   teachers   to   make   them capable   of   grooming   the   CwSN.     As   per   this   Scheme,   the   special teachers were to be trained through regular programmes run by the National   Institutes/Apex   Institutes   of   the   Council   or   under   any other   programmes   of   the   States.     Further,   in­service   training   for resource   teachers   to   equip   them   with   handling   of   other   disability area has been emphasized upon.  As regards the general teachers at the secondary level, they were to be trained in particular strategies like   making   educationally   useful   assessments,   planning   an individualized   and   need­specific   curriculum,   teaching   styles   which include   audiovisual   aids,   appropriate   instructional   strategies,   etc. The   appointment   of   special   educators   has   been   specifically mentioned in the IEDSS Scheme as follows: 33 “5.  Components of the Scheme 5.1  ….. 5.2.II   Costs   of   non­beneficiary­oriented   components   like teacher   training,   construction   and   equipping   of   resource rooms,   creating   model   schools,   research   and   monitoring,   etc. will   be   covered   separately.     These   components   would   be   as follows: (i) to (v) ….. (vi)     Appointment   of   Special   Educators:   Support   from special   educators   will   differ   at   the   secondary   level   from that   at   the   elementary   level.     Special   Educators   will   be appointed   in   the   ratio   1:5.   Ideally   every   school   where disabled children  are  enrolled should  have  the  services of at   least   one   special   teacher.     If   the   numbers   of   children are less,  this teacher could also work for other schools in the   cluster .     For   note   on   Appointment   of   Special Educators/Resource Teachers  see Appendix  III.   (Sr.No.II.1  of Appendix­I). …..” (emphasis supplied) 23. It   is   unnecessary   to   dilate   on   other   aspects   of   the   IEDSS Scheme, as the core issue to be answered by us for the time being is about   pupil­teacher   ratio   to   be   maintained   by   the   schools concerned. 24. The Ministry of Human Resource Development, Department of Elementary   Education   &   Literacy   also   formulated   a   separate scheme   for   universal   elementary   education   titled   “ Sarva   Shiksha Abhiyan   2004” 14 ,   to   address   the   specific   concern   of   CwSN   and   for encouraging them to take admission in primary schools.   The aims 14   for short, “SSA 2004” 34 and   objectives   of   this   Scheme   were   to   provide   useful   and   relevant elementary   education   for   all   children   in   the   6   to   14   age   group   by 2010, and to bridge social, regional and gender gaps through active participation   of   the   community   in   the   management   of   schools. Clause 4.4 of this Scheme specifically deals with education of CwSN to   accomplish   the   goals   set   out   therein.     Planners   checklist   has been   delineated   in   Clause   4.4.1   with   appraisers   checklist   for education   of   CwSN   in   Clause   4.4.2.     This   Scheme   has   been subsumed   in   the   subsequent   Scheme   propounded   for   mapping, improvement   of   infrastructure,   upgradation   of   human   resource, and management and facilitating good quality education to CwSN. 25. There   was   a   paradigm   shift   in   the   approach   of   imparting education to children between the age of 6 and 14 years consequent to   the   enactment   of   the   Right  of  Children   to  Free   and   Compulsory Education Act, 2009 15 .  This Act generally applies to all the schools, be it a general school or a special school.   Further, rights of all the children   between   the   age   of   6   and   14   years   are   governed   by   this enactment   irrespective   of   their   orientation.     This   Act   attempts   to universalise education and to open new vistas for providing free and 15   for short, “2009 Act” 35 compulsory   inclusive   elementary   education   to   all   and   more importantly quality education in the neighbourhood school.  That is the   responsibility   not   only   of   the   schools   run   or   supported   by   the appropriate   Government,   but   also   of   schools   which   are   not dependent on Government’s funds. 26. The   expression   “child”   has   been   defined   in   Section   2(c)   to mean   a   male   or   female   child   of   the   age   of   6   to   14   years.     The expression   “child   belonging   to   disadvantaged   group”   has   been defined in Section 2(d) as follows: “ 2.   Definitions.— In   this   Act,   unless   the   context   otherwise requires,— (d)   “child   belonging   to   disadvantaged   group”   means   a   child with   disability   or   a   child   belonging   to   the   Scheduled   Caste, the Scheduled Tribe, the socially  and educationally backward class or such other group having disadvantage owing to social, cultural,   economical,   geographical,   linguistic,   gender   or   such other   factor,   as   may   be   specified   by   the   appropriate Government, by notification;” (emphasis supplied) The expression “child belonging to weaker section” has been defined in Section 2(e) as under: “ 2.   Definitions.— In   this   Act,   unless   the   context   otherwise requires,— e) “child belonging to weaker section” means a child belonging to   such   parent   or   guardian   whose   annual   income   is   lower than   the   minimum   limit   specified   by   the   appropriate Government, by notification;” 36 Further,   the   expression   “child   with   disability”   has   been   defined   in Section 2(ee), which came into force with effect from 1.8.2012.  The same reads thus: “ 2.   Definitions.— In   this   Act,   unless   the   context   otherwise requires,— (ee) “ child with disability ” includes,— (A) a child with “disability” as defined in clause (i) of section 2   of   the   Persons   with   Disabilities   (Equal   Opportunities, Protection   of   Rights   and   Full   Participation)   Act,   1995   (1   of 1996); (B)   a   child,   being   a   person   with   disability   as   defined   in clause   (j)   of   section   2   of   the   National   Trust   for   Welfare   of Persons   with   Autism,   Cerebral   Palsy,   Mental   Retardation and Multiple Disabilities Act, 1999 (44 of 1999); (C) a child with “severe disability” as defined in clause (o) of section   2   of   the   National   Trust   for   Welfare   of   Persons   with Autism,   Cerebral   Palsy,   Mental   Retardation   and   Multiple Disabilities Act, 1999 (44 of 1999).” (emphasis supplied) 27. The 2009 Act guarantees right of child to free and compulsory education   in   a   neighbourhood   school   till   the   completion   of   his   or her elementary education between the age group of 6 and 14 years. Section 3 as amended vide Act 30 of 2012, reads thus: “ 3.   Right   of   child   to   free   and   compulsory   education. — (1) Every child of the age of six to fourteen years, including a   child   referred   to   in   clause   (d)   or   clause   (e)   of   section   2, shall  have   the  right   to  free  and  compulsory   education  in  a neighbourhood   school   till   the   completion   of   his   or   her elementary education. (2)   For   the   purpose   of   sub­section   (1),   no   child   shall   be liable   to   pay   any   kind   of   fee   or   charges   or   expenses   which may prevent  him or  her from  pursuing and completing the elementary education. 37 (3)   A   child   with   disability   referred   to   in   sub­clause   (A)   of clause   (ee)   of   section   2   shall,   without   prejudice   to   the provisions   of   the   Persons   with   Disabilities   (Equal Opportunities,   Protection   of   Rights   and   Full   Participation) Act, 1995 (1 of 1996), and a child referred to in sub­clauses (B) and (C) of clause (ee) of section 2,  have the same rights to   pursue   free   and   compulsory   elementary   education which   children   with   disabilities   have   under   the provisions of Chapter V of the Persons with Disabilities (Equal   Opportunities,   Protection   of   Rights   and   Full Participation) Act, 1995 (1 of 1996) : Provided   that   a   child   with   “multiple   disabilities” referred to in clause (h) and a child with “severe disability” referred to in clause (o) of section 2 of the National Trust for Welfare   of   Persons   with   Autism,   Cerebral   Palsy,   Mental Retardation and Multiple Disabilities Act, 1999 (44 of 1999) may   also   have   the   right   to   opt   for   home­based education. ” (emphasis supplied) 28. The extent of a school’s responsibility for free and compulsory education within the meaning of the 2009 Act has been spelt out in Section 12.   The crucial provision for dealing with the core issue is Section 19.  The same reads thus: “ 19. Norms and standards for school .— (1)   No school shall be   established,   or   recognized,   under   section   18,   unless   it fulfils the norms and standards specified in the Schedule . (2)   Where   a   school   established   before   the   commencement of   this  Act   does  not  fulfil  the  norms and standards  specified in the Schedule, it  shall take steps to fulfil such norms and standards   at   its   own   expenses,   within   a   period   of   three years from the date of such commencement . 38 (3)   Where   a   school   fails   to   fulfil   the   norms   and   standards within   the   period   specified   under   sub­section   (2),   the authority  prescribed under sub­section (1) of section 18  shall withdraw recognition granted to such school  in the manner specified under sub­section (3) thereof. (4)   With   effect   from   the   date   of   withdrawal   of   recognition under sub­section (3), no school shall continue to function. (5)   Any   person   who   continues   to   run   a   school   after   the recognition   is   withdrawn,   shall   be   liable   to   fine   which   may extend   to   one   lakh   rupees   and   in   case   of   continuing contraventions, to a fine of ten thousand rupees for  each day during which such contravention continues.” (emphasis supplied) 29. The Schedule referred to in Section 19 is part of the 2009 Act, which reads thus: “THE SCHEDULE ( See  Sections 19 and 25) NORMS AND STANDARDS FOR A SCHOOL Sl.No. Item Norms and Standards 1. Number of teachers: (a) For first class to  fifth class Admitted  children Number of  teachers Up to Sixty Two Between sixty­ one to ninety Three Between Ninety­ one to one  hundred and  twenty Four Between One  hundred and  twenty­one to  two hundred Five Above One  hundred and fifty Five   plus   one Head­teacher 39 children Above Two  hundred children Pupil­Teacher  Ratio (excluding  Head­teacher)  shall not exceed  forty. (b) For sixth class to  eighth class (1)   At   least   one   teacher   per   class   so that   there   shall   be   at   least   one teacher each for —     (i)   Science and Mathematics;     (ii)  Social Studies;     (iii) Languages. (2)   At   least   one   teacher   for   every thirty­five children (3)     Where   admission   of   children   is above one hundred —      (i)  a full time head­teacher;     (ii)  part time instructors for — (A) Art Education; (B) Health   and   Physical Education; (C) Work Education. 2. Building All­weather building consisting of— (i)   at   least   one   class­room   for   every teacher   and   an   office­cum­store­cum­ Head teacher’s room; (ii) barrier­free access; (iii) separate toilets for boys and girls; (iv)   safe   and   adequate   drinking   water facility to all children; (v)   a   kitchen   where   mid­day   meal   is cooked in the school; (vi) Playground; (vii)   arrangements   for   securing   the school   building   by   boundary   wall   or fencing 3. Minimum   number   of working days/instructional hours   in   an   academic year (i)   two   hundred   working   days   for   first class to fifth class; (ii)   two   hundred   and   twenty   working days for sixth class to eighth class; (iii)     eight   hundred   instructional   hours per academic year for first class to fifth class; (iv)   one   thousand   instructional   hours per   academic   year   for   sixth   class   to 40 eighth class. 4. Minimum   number   of working   hours   per week for the teacher forty­five   teaching   including preparation hours. 5. Teaching   learning equipment shall   be   provided   to   each   class   as required. 6. Library There   shall   be   a   library   in   each   school providing   newspaper,   magazines   and books   on   all   subjects,   including   story­ books. 7. Play   material,   games and sports equipment shall   be   provided   to   each   class   as required.” (emphasis supplied) 30. It may be useful to also advert to Sections 25, 27 and 28 of the 2009 Act, which read thus: “ 25. Pupil­Teacher Ratio .—(1)   Within three years from the date   of   commencement   of   this   Act,   the   appropriate Government  and  the  local  authority  shall  ensure  that the Pupil­Teacher   Ratio,   as   specified   in   the   Schedule,   is maintained in each school . (2)   For   the   purpose   of   maintaining   the   Pupil­Teacher   Ratio under   sub­section   (1),   no   teacher   posted   in   a   school   shall be made to serve in any other school or office or deployed for   any   non­educational   purpose,   other   than   those specified in section 27 . 27.   Prohibition   of   deployment   of   teachers   for   non­ educational   purposes .—   No   teacher   shall   be   deployed   for any   non­educational   purposes   other   than   the   decennial population census, disaster relief duties or duties relating to   elections   to   the   local   authority   or   the   State Legislatures or Parliament, as the case may be . 28.   Prohibition   of   private   tuition   by   teacher .—No   teacher shall   engage   himself   or   herself   in   private   tuition   or   private teaching activity.” (emphasis supplied) 41 31. In   the   context   of   obligation   of   schools   to   maintain   pupil­ teacher ratio, it may be apposite to advert to Rule 22 of the Right of Children   to   Free   and   Compulsory   Education   Rules,   2010 16 ,   which reads thus: “ 22.   Maintaining   pupil­teacher   ratio .—   (1)   The   sanctioned strength   of   teachers   in   a   school   shall   be   notified   by   the Central   Government,   appropriate   Government   or   the   local authority, as the case may be, within a period of three months of the appointed date: Provided   that   the   Central   Government,   appropriate Government or the local authority, as the case may be, shall, within three months of such notification, redeploy teachers of schools   having   strength   in   excess   of   the   sanctioned   strength prior to the notification referred to in sub­rule (1). (2)   If   any   person   of   the   Central   Government,   appropriate Government   or   the   local   authority   violates   the   provisions   of sub­section   (2)   of   section   25,   he   or   she   shall   be   personally liable for disciplinary action.” 32. Strikingly,   the   Schedule   has   not   been   amended   to   deal   with the   aspirations   and   special   needs   of   the   child   with   disability referred   to   in   Section   2(ee)   —   an   expression   which   came   to   be inserted   back   in   2012.     The   norms   and   standards   for   a   school specified   in   the   Schedule   do   not   specifically   refer   to   any   special arrangement regarding teachers, which are to be made for CwSN by the concerned schools.   In that sense, no specific provision dealing with schools and the norms and standards of the schools governed 16   for short, “2010 Rules” 42 by the 2009 Act in reference to CwSN has been made by the special law. 33. It is unnecessary to underscore that the pupil­teacher ratio to be   observed   as   a   minimum   norm   in   any   school   (be   it   a   general school   or   special   school)   for   imparting   quality   education   to   CwSN, ought   to   be   different   than   the   norms   and   standards   for   imparting education   to   general   children/child.       Had   the   2009   Act   made specific provisions while inserting expression “child with disability” as Section 2(ee), in regard to the norms and standards and the ratio of   admitted   CwSN   and   number   of   teachers,   that   ought   to   have prevailed.     In   absence   of   an   express   law   in   that   regard,   the provisions   of   the   special   law   governing   the   rights   of   persons   with disabilities   or   the   schemes   formulated   by   the   Executive,   in   that regard,   must   come   into   play;   and   despite   it   not   being   specified norms and standards in Section 3 of the 2009 Act, the school(s) will be obliged to fulfil such condition at the time of seeking recognition from the competent authority and for continuing the same. 34. In   light   of   the  above,   it   would   be   in  the   fitness  of  things   that the   Central  Government   itself,  in   exercise   of  powers  under  Section 43 20   of   the   2009   Act,   take   steps   to   issue   a   notification   to   suitably amend   the   Schedule   governing   the   norms   and   standards   so   as   to include the ratio for appointing  rehabilitation professionals/special teachers in every school admitting CwSN, be it a general school or a special school.  This is crucial because Section 25(2) of the 2009 Act postulates that no teacher posted in a school shall be made to serve in   any   other   school   or   office   or   deployed   for   any   non­educational purpose,  other   than   those  specified  in   Section   27.     Once  Schedule stands   amended,   the   schools   will   be   obliged   to   comply   with   the norms and standards to give effect to the intent of the 2009 Act and fill up vacancies of teachers in the manner specified in Section 26 of the 2009 Act, which reads thus: “ 26.   Filling   up   vacancies   of   teachers .—The   appointing authority,   in   relation   to   a   school   established,   owned, controlled or substantially financed by funds provided directly or   indirectly   by   the   appropriate   Government   or   by   a   local authority,   shall   ensure   that   vacancy   of   teacher   in   a   school under   its   control   shall   not   exceed   ten   per   cent.   of   the   total sanctioned strength.” 35. It   is   imperative   to   provide   for   an   express   norm   and   standard regarding   CwSN   ­   pupil   and   teacher   ratio   to   be   maintained   by   the schools concerned, so as to discharge the responsibility fastened in 44 terms of Section 29 regarding curriculum and evaluation procedure, in a holistic and effective manner. 36. Needless   to   observe   that   the   norms   and   standards,   in particular regarding pupil­teacher ratio, specified in the Schedule of the 2009 Act, are only to delineate the minimum benchmark.   It is open   to   the   State   Government,   being   the   appropriate   Government, to provide for a higher benchmark for ensuring imparting of quality education   by   the   schools   within   its   jurisdiction.     Further,   besides the   benchmark   specified   in   the   Schedule   or   by   the   appropriate Government,   as   the   case   may   be,   it   is   always   open   to   the   school management   to   appoint   more   teachers   on   their   own   than   the notified pupil­teacher ratio, if they so desire, for ensuring imparting of quality education to its students. 37. As   aforesaid,   until   the   Schedule   of   the   2009   Act   stands amended, pupil­teacher ratio specified in the enactments governing the   rights   of   the   persons   with   disabilities   or   the   schemes propounded   in   that   regard   by   the   Executive   for   full   participation and   inclusive   education   to   be   imparted   in   the   neighbourhood school, ought to be adhered to. 45 38. More or less on the same lines, a press release was issued by the   Ministry   of   Human   Resource   Development   on   9.9.2010,   which reads thus: “Press Information Bureau Government of India Ministry of Human Resource Development =================================================== 09­September­2010 13:13 IST Aligning Sarva Shiksha Abhiyan Norms with the Right of Children to Free and Compulsory Education Act, 2009 The   Cabinet   Committee   on   Economic   Affairs   today approved revision of the existing norms of the SSA programme to   conform   with   the   RTE   Act   (Right   of   Children   to   Free   and Compulsory Education Act). The   Sarva   Shiksha   Abhiyan   (SSA)   Programme,   a   major flagship programme of the Government of India to universalize elementary education in the country, will be the main vehicle for the implementation of the RTE Act. The revisions are as follows: (i) Revision of SSA norms, including provisions for teachers and   classrooms,   support   for   academic   supervision, research,   evaluation   and   monitoring,   opening   of   Kasturba Gandhi   Balika   Vidyalayas   (KGBVs)   to   bring   them   in conformity   with   the   provisions   of   the   RTE   Act   and implement the combined RTE­SSA programme. New norms under   SSA   for   uniforms,   transportation   costs   and residential   schools   to   implement   the   combined   RTE­SSA programme have also been included. (ii)   Revision   of   the   funding   pattern   for   the   combined   RTE­ SSA   programme   between   the   Centre   and   the   States   in   the ratio of 65:35 for all States/UTs; in the case of eight States of NER the existing sharing pattern of 90:10 would however be continue.” 46 39. Another  press release came to  be issued on 6.12.2010 by  the Ministry of Social Justice & Empowerment, which reads thus: “Press Information Bureau Government of India Ministry of Social Justice & Empowerment =================================================== 06­December­2010 15:53 IST Educational Rights of Children with Disabilities The   steps   taken   by   the   Government   of   India   for implementing   educational   rights   of   the   children   and   the disabled section of the society are as under­ The  Right   of   Children  to  Free  &  Compulsory   Education (RTE) Act, 2009 has come into force w.e.f. 1st April, 2010. The RTE Act provides for free & compulsory education to children in   the   age   group   of   6­14   years   at   elementary   level   in   a neighbourhood school. Government of India has since aligned the Sarva Shiksha Abhiyan (SSA) norms with the provisions of Right   of   Children   to   Free   and   Compulsory   Education   Act, 2009   and   has   committed   a   funding   of   Rs.   2,31,233   crore   for implementation   of   the   combined   RTE­SSA   programme   during the next five years in partnership with the States. SSA   ensures   that   every   child   with   special   needs, irrespective   of   the   kind,   category   and   degree   of   disability,   is provided   meaningful   and   quality   education.   Hence,   SSA   has adopted   a   zero   rejection   policy.   This   means   that   no   child having   special   needs   should   be   deprived   of   the   right   to education and taught in an environment, which is best, suited to his/her learning needs. SSA   provides   upto   Rs.   3000   per   child   for   the   inclusion of disabled children, as per specific proposal, per year. District plan   for   children   with   special   needs   is   formulated   within   the Rs. 3000 per child norm, with Rs. 1000 earmarked exclusively for  engagement of resource teachers. The interventions under SSA   for   inclusive   education   are   identification,   functional   and formal   assessment,   appropriate   educational   placement, 47 preparation   of   Individualised   Educational   Plan,   provision   of aids   and   appliances,   teacher   training,   resource   support, removal   of   architectural   barriers,   research,   monitoring   and evaluation and a special focus on girls with special needs. A   centrally   sponsored   scheme   of   “Inclusive   Education for   Disabled   at   Secondary   Stage”   (IEDSS)   has   been implemented   since   1­4­2009   in   place   of   CSS   of   Integrated Education   for   Disabled   Children   (IEDC).   The   objective   of   the IEDSS   scheme   is   to   enable   the   disabled   children   who   have completed   eight   years   of   elementary   education   to   continue their   education   at   the   secondary   stage   (class   IX   to   XII)   in   an inclusive environment in regular schools. This   information   was   given   by   Shri.   D.   Napoleon,   the Minister   of   State   for   Social   Justice   &   Empowerment,   in   a written reply to a question in the Lok Sabha today.” 40. This   is   significant   in   light   of   the   just   stand   taken   by   the Council   to   ensure   that   special   education   teachers   with   proper qualification,   as   approved   and   registered   by   the   Council,   are employed by the schools.  The communication issued on 11.1.2012 reinforces that assertion, which reads thus: “ REHABILITATION COUNCIL OF INDIA (A Statutory Body under the Ministry of Social Justice and Empowerment) =================================================== No.7­91/RCI­2011/ Date 11.01.2012 SPEED POST Address as list Sub: Minimum   requirement   of   RCI   approved qualification   for   appointment   of   Special Education Teachers: reg. 48 Madam/Sir, This   is   to   inform   you   that   the   Council   has   developed   the guidelines   for   minimum   requirement   of   RCI   approved qualification   for   appointment   of   Special   Education   Teachers (copy   enclosed).     These   guidelines   supercede   previous circulars/orders   issued   by   the   Council   and   shall   come   into force with immediate effect. Thanking you, Yours faithfully                                                                         Sd/­ (Dr. J.P. Singh) Member Secretary Encl as above” The above communication has appended guidelines as to minimum requirement   of   the   Council   approved   qualification   for   appointment of special education teachers, which need not be reproduced. 41. Just as the  2009 Act ushered in paradigm  shift in delivery  of right of children to free and compulsory education, the 2016 Act is a   comprehensive   Act   to   repeal   the   1995   Act   and   infuse   further vigour for  accomplishment of rights of persons with disabilities.   It takes   note   of   the   ratification   of   the   United   Nation’s   Convention   on the Rights of Persons with Disabilities (UNCRPD) by India in 2007, which   lays   down   certain   principles   to   be   followed   by   the   signatory 49 States for empowerment of persons with disabilities.  It requires the signatory   States   to   make   appropriate   changes   in   law,   as   well   as, policy   to   give   effect   to   the   principles   of   the   Convention.     The Statement   of   Objects   and   Reasons   for   introducing   the   law,   is   a testimony   of   the   commitment   of   our   country   to   follow   the   tenets enunciated   in   the   international   Convention   for   empowerment   of persons with disabilities.  The same reads thus: ­ “ STATEMENT OF OBJECTS AND REASONS The   Persons   with   Disabilities   (Equal   Opportunities, Protection of Rights and Full Participation) Act, 1995 was enacted   to   give   effect   to   the   Proclamation   on   the   Full Participation   and   Equality   of   the   People   with   Disabilities in the Asian and Pacific Region.   The Act defines Persons with   Disabilities   as   those   having   not   less   than   forty percent,   disability   and   identified   seven   categories   of disabilities,   namely,   blindness,   low   vision,   hearing impairment,   locomotor   disability,   mental   retardation, mental illness and leprosy­cured. 2. Over   a   period   of   time,   the   conceptual understanding   of   the   rights   of   persons   with disabilities has become more clear and there has been worldwide   change   in   approach   to   handle   the   issues concerning   persons   with   disabilities .     The   United Nations adopted its Convention all, the Rights of Persons 50 with Disabilities laying down the principles to be followed by   the   States   Parties   for   empowerment   of   persons   with disabilities.     India   signed   the   said   Convention   and subsequently ratified the same on the 1 st   day of October, 2007.    The  Convention  came  into  effect   on  the  3 rd   day  of May,   2008.     Being   a   signatory   to   the   Convention,   India has   an   international   obligation   to   comply   with   the provisions   of   the   said   Convention   which   required   an entirely new legislation. 3. In 2010, an Expert Committee constituted under the   chairmanship   of   Dr.   Sudha   Kaul,   Vice­Chairperson, Indian   Institute   of   Cerebral   Palsy,   Kolkata   submitted   its report   in   2011,   suggesting   a   Draft   Bill   relating   to   the Rights   of   Persons   with   Disabilities.     The   draft   Bill   was extensively debated upon at various levels involving State Governments   and   Union   territories   and   various stakeholders. 4. The salient features of the Rights of Persons with Disabilities Bill, 2014,  inter alia , are: (i) Nineteen   specified   disabilities   have   been defined ; (ii) the   persons   with   disabilities   enjoy   various rights   such   as   right   to   equality,   life   with dignity,   respect   for   his   or   her   integrity,   etc., equally with others ; (iii) duties   and   responsibilities   of   the   appropriate Government have been enumerated ; (iv) all   educational   institutions   funded   by appropriate   Government   shall   provide 51 inclusive   education   to   the   children   with disabilities ; (v) a   National   Fund   is   proposed   to   provide   financial support to persons with disabilities; (vi) stakeholders’   participation   in   the   policy   making through Central and State Advisory Boards; (vii) increase   in   reservation   in   posts   from   existing three percent, to five percent, in the vacancies for persons   or   class   of   persons   with   benchmark disabilities in every establishment and reservation of   seats   for   students   with   benchmark   disabilities in higher educational institutions; (viii) setting   up   of   National   Commission   and   State Commission   to   act   as   Grievance   Redressal Mechanism,   monitor   implementation   of   the proposed   legislation   replacing   the   Chief Commissioner   and   State   Commissioners   for persons with disabilities, respectively; (ix) guidelines   to   be   issued   by   the   Central Government   for   issuance   of   certificates   of specified disabilities; (x) penalties   for   offences   committed   against   persons with disabilities; and (xi) Court of Session to be designated as Special Court by   the   State   Government   in   every   district   to   try offences. 5. The Bill seeks to achieve the above objects.” (emphasis supplied) 52 One   of   the   salutary   provisions   of   the   2016   Act   which   may   have bearing   on   the   issue   under   consideration,   is   the   definition   clause. The   expression   “barrier”   is   defined   in   Section   2(c);   “care­giver”   in Section   2(d);   “discrimination”   in   Section   2(h);   “high   support”   in Section   2(l);   “inclusive   education”   in   Section   2(m);   “person   with benchmark disability” in Section 2(r); “person with disability having high   support   needs”   in   Section   2(t);   “public   facilities   and   services” in   Section   2(x);   “rehabilitation”   in   Section   2(za)   and   “specified disability” in Section 2(zc).  As regards the subject of education, the same   can   be   discerned   from   Chapter   III   under   the   heading “Education”.     Section   16   deals   with   “Duty   of   educational institutions”, which reads thus: ­ “ CHAPTER III EDUCATION 16.   Duty   of   educational   institutions.   —   The appropriate   Government   and   the   local   authorities   shall endeavour   that   all   educational   institutions   funded   or recognised   by   them   provide   inclusive   education   to   the children with disabilities and towards that end shall— (i) admit   them   without   discrimination   and provide   education   and   opportunities   for sports   and   recreation   activities   equally   with others; 53 (ii)  make building, campus and various facilities accessible; (iii)  provide   reasonable   accommodation according to the individual's requirements; (iv)  provide   necessary   support   individualised   or otherwise   in   environments   that   maximise academic   and   social   development   consistent with the goal of full inclusion; (v)  ensure that the education to persons who are   blind   or   deaf   or   both   is   imparted   in the   most   appropriate   languages   and modes and means of communication ; (vi)  detect   specific   learning   disabilities   in children   at   the   earliest   and   take   suitable pedagogical and other measures to overcome them; (vii)  monitor   participation,   progress   in   terms   of attainment   levels   and   completion   of education   in   respect   of   every   student   with disability;” (viii)  provide   transportation   facilities   to   the children   with   disabilities   and   also   the attendant   of   the   children   with   disabilities having high support needs.” (emphasis supplied) Section   17   envisages   specific   measures   to   promote   and   facilitate inclusive education, which reads thus: ­ “ 17.   Specific   measures   to   promote   and   facilitate inclusive education.—   The appropriate Government and the local authorities shall take the following measures for the purpose of section 16, namely:— 54 (a)  to   conduct   survey   of   school   going children   in   every   five   years   for identifying   children   with   disabilities, ascertaining   their   special   needs   and   the extent to which these are being met: Provided   that   the   first   survey   shall   be conducted   within   a   period   of   two   years from   the   date   of   commencement   of   this Act ; (b)  to   establish   adequate   number   of   teacher training institutions ; (c)  to   train   and   employ   teachers,   including teachers with disability who are qualified in   sign   language   and   Braille   and   also teachers   who   are   trained   in   teaching children with intellectual disability ; (d)  to   train   professionals   and   staff   to support   inclusive   education   at   all   levels of school education ; (e)  to establish adequate number of resource centres   to   support   educational institutions   at   all   levels   of   school education ; (f)  to   promote   the   use   of   appropriate augmentative   and   alternative   modes including   means   and   formats   of communication,   Braille   and   sign   language to   supplement   the   use   of   one's   own   speech to   fulfil   the   daily   communication   needs   of persons   with   speech,   communication   or language   disabilities   and   enables   them   to participate   and   contribute   to   their community and society; (g)  to   provide   books,   other   learning   materials and   appropriate   assistive   devices   to students with benchmark disabilities free of cost up to the age of eighteen years; 55 (h)  to provide scholarships in appropriate cases to students with benchmark disability; (i)  to   make   suitable   modifications   in   the curriculum and examination system to meet the needs of students with disabilities such as extra time for completion of examination paper,   facility   of   scribe   or   amanuensis, exemption   from   second   and   third   language courses; (j)  to   promote   research   to   improve   learning; and (k)  any other measures, as may be required.” (emphasis supplied) Section   18   casts   obligation   on   the   appropriate   Government   and local   authorities   to   make   arrangements   to   promote,   protect   and ensure participation  of  persons  with  disabilities  in  adult education and   continuing   education   programmes   equally   with   others. Chapter VI of the 2016 Act deals with special provisions for persons with   benchmark   disabilities.     Section   31   under   the   said   Chapter envisages   free   education   for   children   with   benchmark   disabilities. The same reads thus: ­ “ CHAPTER VI 56 SPECIAL PROVISIONS FOR PERSONS WITH BENCHMARK DISABIITIES 31.   Free   education   for   children   with   benchmark disabilities.—   (1)  Notwithstanding   anything  contained  in the Rights of Children to Free and Compulsory Education Act,   2009   (35   of   2009),   every   child   with   benchmark disability   between   the   age   of   six   to   eighteen   years   shall have   the   right   to   free   education   in   a   neighbourhood school, or in a special school, of his choice. (2)   The   appropriate   Government   and   local   authorities shall   ensure   that   every   child   with   benchmark   disability has   access   to   free   education   in   an   appropriate environment till he attains the age of eighteen years.” Another   significant   provision   is   reservation   of   seats   in   higher educational institutions being Section 32, which reads thus: ­ “ 32.   Reservation   in   higher   educational   institutions.— (1)   All   Government   institutions   of   higher   education   and other higher education institutions receiving aid from the Government   shall   reserve   not   less   than   five   per   cent. seats for persons with benchmark disabilities. (2) The persons with benchmark disabilities shall be given an   upper   age   relaxation   of   five   years   for   admission   in institutions of higher education.” To   ensure   that   the   concerned   authorities   discharge   their responsibilities   in   the   spirit   of   the   provisions   of   the   2016   Act, Section 74 provides for the appointment of Chief Commissioner and Commissioners   by   the   Central   Government,   and   Section   79 57 empowers the State Government to appoint State Commissioner in concerned   State.     The   functions   of   the   Chief   Commissioner   and State   Commissioners   are   more   or   less   similar.     For   the   sake   of convenience,   we   may   advert   to   Section   80   of   the   Act,   which   reads thus: ­ “ 80.   Functions   of   State   Commissioner.—   The   State Commissioner shall— (a)  identify,   suo   motu   or   otherwise,   provision of   any   law   or   policy,   programme   and procedures,   which   are   in   consistent   with this   Act,   and   recommend   necessary corrective steps ; (b)  inquire,   suo motu   or otherwise deprivation of   rights   of   persons   with   disabilities   and safeguards   available   to   them   in   respect   of matters for which the State Government is the   appropriate   Government   and   take   up the matter with appropriate authorities for corrective action ; (c)  review   the   safeguards   provided   by   or   under this Act or any other law for the time being in force   for   the   protection   of   rights   of   persons with   disabilities   and   recommend   measures for their effective implementation; (d)  review   the   factors   that   inhibit   the enjoyment   of   rights   of   persons   with disabilities   and   recommend   appropriate remedial measures ; (e)  undertake   and   promote   research   in   the   field of the rights of persons with disabilities; 58 (f)  promote   awareness   of   the   rights   of   persons with  disabilities  and  the  safeguards available for their protection; (g)  monitor   implementation   of   the   provisions   of this Act and schemes, programmes meant for persons with disabilities; (h)  monitor utilisation of funds disbursed by the State   Government  for   the  benefits   of  persons with disabilities; and (i)  perform   such   other   functions   as   the   State Government may assign.” (emphasis supplied) Section   81   is   another   significant   provision   which   implicitly mandates the State authority to take necessary action on the basis of   recommendation   made   by   the   State   Commissioner,   referred   to therein and to submit action taken report within three months from the   date   of   receipt   of   the   recommendation.     This   is   a   peremptory tenet   mandating   the   concerned   authority   to   give   effect   to   the recommendation   made   by   the   State   Commissioner   unless   it   does not   accept   it   for   reasons   to   be   so   recorded   and   conveyed   to   the State   Commissioner   for   Persons   with   Disabilities   within   three months and also informing the aggrieved person.   Section 81 reads thus: ­ 59 “ 81.   Action   by   appropriate   authorities   on recommendation   of   State   Commissioner.—   Whenever the   State   Commissioner   makes   a   recommendation   to   an authority   in   pursuance   of   clause   (b)   of   section   80,   that authority   shall   take   necessary   action   on   it,   and   inform the   State   Commissioner   of   the   action   taken   within   three months from the date of receipt of the recommendation: Provided   that   where   an   authority   does   not   accept   a recommendation,   it   shall   convey   reasons   for nonacceptance   to   the   State   Commissioner   for   Persons with   Disabilities   within   the   period   of   three   months,   and shall also inform the aggrieved person.” The   State   Commissioner   has   been   endowed   with   the   powers referred   to   in   Section   82   of   the   2016   Act   to   enable   him/her   to discharge the functions specified in Section 80 of the Act. 42. The 2016 Act, in a way, is a general enactment for giving effect to the rights of persons with disabilities which includes the CwSN. But, when it comes to subject of education, a separate Chapter has been   provided   for   fastening   responsibility   coupled   with   duty   upon the   appropriate   Government,   local   authorities   and   the   concerned educational   institutions   in   matters   specified   therein   (Sections   16 and   17).     The   purport   of   these   provisions   is   to   make   available   a 60 platform   to   the   CwSN   to   avail   the   rights   of   full   participation   by means   of   inclusive   and   quality   education   in   the   neighbourhood school.     For   giving   effect   to   this   mandate,   it   is   essential   for   the concerned authority and more particularly for the schools imparting education   to   CwSN,   to   ensure   that   a   just   pupil­teacher   ratio   is maintained without exception, including as specified under the law made by the Parliament or the scheme enunciated by the executive in that regard. 43. It has been noticed that to give effect to the spirit of the 2016 Act,   a   communication   bearing   No.   CBSE/AFF/Circular   13/2017 dated 13.6.2017, had been sent by the Deputy Secretary (Affiliation) of   the   Central   Board   of   Secondary   Education 17   to   all   concerned, directing   to   follow   the   provisions   of   the   2009   Act   by   appointing special   educators   to   ensure   quality   education   for   all   children including  CwSN.  The Circular reads thus: ­ “   CENTRAL BOARD OF SECONDARY EDUCATION No/CBSE/AFF/Circular 13/2017 17   for short, “CBSE” 61 Date: 13.06.2017 SUB: MANDATORY   APPOINTMENT   OF   SPECIAL EDUCATOR IN ALL SCHOOLS­ REG (Ref.­ Circular No. CBSE/ACAD/JS&IC(A&T)/2015: dated 25.06.2015) This   is   in   continuation   to   CBSE   circular   No. CBSE/ACAD/JS&IC(A&T)/2015   dated   25.06.2015.   As per   Rule   No.13.11   of   Affiliation   Bye­Laws   of   Board   in which direction was issued to all the  affiliated schools to mandatory   appoint   SPECIAL   EDUCATORS   to   ensure quality   education   for   all   children   including   children with  special  needs   as per  Section 3, 8(c) and 9(c) of the Right   to   Education   Act,   2009   to   facilitate   effective   and meaningful   inclusion   of   children   with   disabilities   in schools.  However,   it   has   been   observed   that   many   schools affiliated   with   CBSE   are   not   adhering   to   the   provision concerning   appointment   of   Special   Educators.   In   this connection,   your   attention   is   invited   to   Rule   13(11)   of Affiliation Byelaws which provides to promote inclusion of students   with   disabilities/special   needs   in   the   normal school   as   per   provisions   of   the   “Persons   with   disabilities Act   1995”   and   in   conformity   with   National   Policy   of Education.  In   view   of   above,   the   Management   and   the   Head   of the   CBSE   affiliated   schools   are   hereby   directed   to strictly   follow   the   above   provisions   and   make arrangement   immediately   to   appoint   special educators   in   their   respective   school(s) .   The   above provision   may   be   brought   to   the   knowledge   of   School Managing Committee for strict compliance.  (Jaiprakash Chaturvedi)  Deputy Secretary (Affiliation)” (emphasis supplied) 62 Even   the   Chief   Commissioner   for   Persons   with   Disabilities   had issued   similar   communication   to   all   concerned   on   25.10.2016 bearing F.No. 11­9/CCD/2016/R4755, which reads thus: ­ “ COURT OF CHIEF COMMISSIONER FOR PERSONS WITH DISABILITIES Department of Empowerment of Persons with Disabilities Ministry of Social Justice and Empowerment  Government of India F.No.11­9/CCD/2016/R4755 Dated 25.10.2016 To,  The Chief Secretary/Administrator,  All States/Union Territories (As per list) Sub: Practice   by  unqualified   person   in   the   field   of Disability rehabilitation­ reg. Sir,  A   representation   has   been   received   from   President, Orthotics   &   Prosthetic   Association   of   India   (OPAI) regarding   practice   by   unqualified   persons   in   the   field   of disability (photocopy enclosed).  2. It   is   to   apprise   that   programmes   in   the   field   of Prosthetic   &   Orthotics   such   as   Diploma,   Degree   and Masters   are   offered   by   the  institution  only   after   approval from   Rehabilitation   Council   of   India   (RCI).   After completion   of   RCI   approved   courses,   the   candidates   are registered in Central Rehabilitation Register  (CRR) of RCI which   authorizes   then   to   practice   in   the   relevant   field President.   OPAI   has   requested   the   Council   to   take appropriate   action   against   ineligible,   unqualified   persons practising   in   the   field   of   Prosthetic   and   Orthotics   and providing services to persons with disability.  63 3. It   is   to   bring   to   your   kind   notice   that   RCI   have   been allocated   16   Categories   of   professionals   under   Section 2(n)   of   RCI   Act   1992.   At   present   Council   has   54 programmes   from   certificate   to   Doctorate   level   are   being offered   at   RCI   approved   Institutes   throughout   the Country.   Some   of   the   programmes   such   as   Prosthetic   & Orthotics, Clinical Psychology, Speech & Hearing etc. are required   to   deliver   specialized   consultation   at   grass   root level.   If   the   Services   are   delivered   by   untrained   or unqualified   individuals  to  persons  with   disabilities,   it may   in   turn   harm   the   persons   with   disabilities. Hence,   there   is   urgent   need   to   take   action   against such   persons   so   that   practice   by unprofessional/unqualified persons may be restricted . 4. I   am   enclosing   a   list   of   54   Courses   approved   by Rehabilitation   Council   of   India   being   offered   in   16 categories   with   a   request   to   direct   Secretaries   and Commissioners   of   your   State/Union   Territory   to   take cognizance of such matter under Section 13 & Section 25 of   Rehabilitation  Council   of   India   Act,   1992;   and   Section 61   &   Section   62   of   the   Persons   with   Disabilities   (Equal Opportunities, Protection of Rights and Full Participation) Act,   1995   so   that   practice   by   unqualified   professionals may be curbed.  Yours faithfully, Sd/­ (Dr. Kamlesh Kr. Pandey) Chief Commissioner for Persons with Disabilities Encl: as above” (emphasis supplied) It is also significant to advert to the communication­cum­statutory warning   issued   by   the   Member   Secretary   of   the   Council   on 14.5.2019,   making   it   amply   clear   that   only   persons   (rehabilitation professionals/special   teachers)   duly   qualified,   recognised   and 64 registered   with   the   Council   be   allowed   to   impart   education   and training to CwSN keeping in mind the mandate of Section 13 of the 1992   Act,   breach   whereof   would   entail   in   criminal   action   and imprisonment   for   a   term   which   may   extend   to   one   year.     The   said communication reads thus: ­ “ REHABILITATION COUNCIL OF INDIA A Statutory Body under the Ministry of Social Justice and Empowerment Department of Empowerment of Persons with Disabilities (Divyangjan) STATUTORY WARNING Practicing without RCI Registration In Govt./Non Govt. Organization and by any Private Practitioner   is   an   offence   under   section   13(3)   of   RCI   Act No.34 of 1992. It   has   been   observed   by   the   Council   that   Children with Disabilities (Divyangjan) are being trained/served by   Quacks/Unqualified/Non­registered   Personnel/ Professionals.  If   anyone   found   serving   “Persons   with   Disabilities (Divyangjan)”,   without   having   RCI   Certification,   shall be   prosecuted   before   the   Court   of   Law   under   Section 13(3) of RCI Act, 1992  as under: “Any   person   who   acts   in   contravention   of   any provision   of   sub­section   (2)   shall   be   punished   with imprisonment   for   a   term   which   may   extend   to   one year,   or   with   fine   which   may   extend   to   one thousand rupees, or with both”.  General   Public   is   requested   to   report   such instances   to   the   Council   along   with   documentary 65 evidence   by   post/fax/email   to   enable   the   Council   to take   appropriate   action   such   as   filing   of   FIR   against such persons .  “This Statutory Warning is issued in public interest”.  (Dr. Subodh Kumar) Member Secretary           Dated: 14.05.2019” (emphasis supplied) 44. To   effectuate   the   above   objectives   of   imparting   free,   inclusive and   quality   education   in   the   neighbourhood   school   to   CwSN   in terms of the provisions of the 2009 Act read with the provisions of the   2016   Act,   a   rehabilitation   scheme   titled   “Deendayal   Disabled Rehabilitation   Scheme” 18   (revised   guidelines   with   effect   from 1.4.2018) has been articulated by the Department of Empowerment for Persons with Disabilities ( Divyangjan ), Ministry of Social Justice and   Empowerment,   Government   of   India 19 .     Taking   note   of   the severity   of   the   situation   revealed   by   the   Census   of   2011   which states   that   there   are   about   2.68   crore   persons   with   disabilities   in India,   constituting   2.21   per   cent   of   the   population   in   the   country requiring   special   education,   CwSN   in   particular,   this   scheme 18  f or short, “DDRS” 19   for short “DEPwD” 66 mentions the model projects to be undertaken for that purpose.   It is noted thus: ­ “3.3 MODEL PROJECTS 3.3.1 The   following   are   the   model   projects   to   be funded under the scheme I. Pre­Schools and Early Intervention and Training II. Special Schools for Children with Disabilities for  a. Intellectual Disability b. Hearing & Speech Disability c. Visual Disability III. Project for children with Cerebral Palsy IV. Rehabilitation of Leprosy Cured Person V. Half   Way   Home   for   Psycho­Social   Rehabilitation   of Treated and Controlled Mentally III persons VI. Home­Based Rehabilitation and Home Management.  VII. Community Based Rehabilitation Programme  VIII. Low Vision Centres IX. Human Resource Development” Part­B   of   the   DDRS   deals   with   the   “Model   Project   Profiles”.     The sub­categories   mentioned   thereunder   are   ­   “Project   for   Pre­School and   Early   Intervention   and   Training”   followed   by   “Special   Schools for   Children   with   Disabilities”,   and   its   sub­categories,   namely, “Special   School   for   the   Children   with   Intellectual   Disability”; “Special School for the Children with Hearing & Speech Disability”; and   “Special   Schools   for   the   Children   with   Visual   Disability”.     For 67 each   of   the   projects,   the   strength   of   each   school   has   been   noted, including   the   pupil­teacher   beneficiary   ratio   range   which   varies with  the  severity, in   cases  of  children  with  multiple  disabilities.    It recognises   the   fact   that   children   with   multiple   disability   may require   maximum   and   special   education   and   hence,   the   ratio   may be between 4:1 and 6:1. 45. Suffice   it   to   note   that   the   DDRS   has   delineated   the   ratio   for the   concerned   special   schools   and   it   may   be   commensurately replicated in the general schools corresponding with the number of CwSN admitted or required to be admitted in that school. 46. As   aforesaid,   the   2009   Act   merely   attempts   to   expressly include “child with disability” by inserting Section 2(ee) and Section 3(3)   vide   the   2012   amendment,   but   makes   no   corresponding changes to the “Norms and Standards for a School” specified in the Schedule   to   the   Act.     The   Central   Government   in   exercise   of   the enabling   power   in   Section   20,   by   now,   ought   to   have   provided 68 suitable norms and standards for a general school admitting CwSN for   providing   inclusive,   free,   and   compulsory   education   in   a neighbourhood   school,   and   separately   for   the   special   school   which also is covered within the expansive definition of schools in Section 2(n) of the 2009 Act. 47.   In   any   case,   until   such   notification   is   issued   by   the   Central Government   or   appropriate   Government,   as   the   case   may   be,   all concerned   are   under   bounden   duty   to   give   effect   to   the   norm regarding   pupil­teacher   ratio   specified   in   the   concerned   scheme   in vogue   including   the   DDRS   and   the   Samagra   Shiksha   —   an integrated Scheme for  School Education 20   issued by Department of School   Education   and   Literacy,   Ministry   of   Human   Resource Development 21 . 48. Chapter   2   of   the   SSS   gives   the   background   in   which   the scheme has been formulated to cover all children from the age of 4 20   for short, “SSS” 21   for short, “DSEL” 69 to   18   years   and   has   a   scope   across   all   levels   of   school   education from   pre­school   to   senior   secondary   on   universal   basis   to   ensure the education of all children.   Chapter IV of the scheme deals with the topic – “Inclusion of Children with Special Needs in Education” specifically.     The   relevant   extract   of   Chapter   IV   of   the   SSS   reads thus: ­ “ CHAPTER   4   –   INCLUSION   OF   CHILDREN   WITH SPECIAL NEEDS IN EDUCATION 4.1 Background and Rationale  4.1.1 The NPE, 1986 and POA, 1992 gives the basic policy framework   for   education,   emphasizing   on   correcting   the existing   inequalities,   it   stresses   on   reducing   dropout rates,   improving   learning   achievements   and   expanding access to students who have not had an easy opportunity to   be   a   part   of   the   general   system.   The   NPE,   1986 envisaged some measures for integrating of children with physical   and   mental   handicap   with   the   general community   as   equal   partners,   preparing   them   for   their normal   growth   and   development   and   enabling   them   to face life with courage and confidence.  4.1.2   India   has   also   been   signatory   to   international declarations   like   the   Salamanca   Statement   and framework   for   action   on   special   needs   education   (1994) and Biwako Millennium Framework for Action (2002) and the   UN   Convention   on   the   Rights   of   Persons   with Disabilities,   2006   that   emphasize   the   need   for fundamental   educational   policy   shifts   to   enable   general schools   to   include   children   with   disabilities.   The   NCF­ 2005   recommends   making   the   curriculum   flexible   and appropriate   to   accommodate   the   diversity   of   school children including those with disabilities in both cognitive and non­cognitive areas.  70 4.1.3   The   Centrally   Sponsored   Scheme   of   Integrated Education   for   the   Disabled   Children   was   introduced   in 1992   with   a   view   to   providing   educational   opportunities for   children   with   disabilities   in   general   schools,   to facilitate their retention in the schools system. It provided for   facilities   to   students   with   disabilities   including expenses on books and stationery, expenses on uniforms, transport   allowance,   reader   allowance,   escort   allowance, hostel   accommodation   and   actual   cost   for   equipments. The   scheme   also   supported   the   appointment   of   special teachers,   provision   for   resource   rooms   and   removal   of architectural barriers in schools.  4.1.4   The   Centrally   Sponsored   Scheme   of   SSA   of   2001 had set time­bound targets for  the achievements of UEE. With   “zero   rejection’   as   its   cornerstone,   the   programme provided   support   for   the   inclusion   of   children   with disabilities in general schools at the elementary level. The SSA   norms   were   further   strengthened   by   the   RTE   Act, 2009   which   talks   about   free   and   compulsory   elementary education   to   children   without   any   discrimination   on   the basis of caste, gender, disability etc.  4.1.5   While   the   RTE   Act   mandates   inclusion   of   CWSN, some   may   be   unable   to   attend   school   despite   specific interventions   designed   for   their   education.   The amendment   of   RTE   Act   (in   August   2012)   has   included CWSN   in   the   definition   of   disadvantaged   groups.   It includes   children   with   severe   ­   multiple   disabilities   with the   right   to   opt   for   Home   Based   Education   (HBE),   thus creating an enabling environment for all children.  4.1.7 As SSA supported inclusion of children with special needs   at   the   elementary   education   level,   a   need   was   felt for a scheme for the disabled children at secondary stage. The IEDSS scheme was, therefore implemented to enable all   children   and   young   persons   with   disabilities   to   have access   to   secondary   education   and   to   improve   their enrolment,   retention   and   achievement   in   the   general education   system.   Under   the   scheme   every   school   was proposed   to   be   made   disabled­friendly.   The   Centrally Sponsored IEDSS Scheme aimed at enabling all students with   disabilities   completing   eight   years   of   elementary schooling   an   opportunity   to   complete   four   years   of secondary schooling (classes IX to XII) in an inclusive and enabling   environment   and   provided   educational 71 opportunities and facilities to students with disabilities in the   general   education   system   at   the   secondary   level (classes IX to XII). 4.1.8  Samagra Shiksha aims to look at education of all children   including   CWSN   in   a   continuum   from   pre­ school to class XII. The scheme will cover all children with   special   needs   with   one   or   more   disabilities   as mentioned in the schedule of disabilities of the Right of   the   Persons   with   Disabilities   (RPwD)   Act,   2016 studying  in   Government,  Government­aided   and   local body schools . 4.1.9   The scheme stresses on working in convergence with all the line Departments/ Ministries and intends to   provide   relevant   holistic   support   for   effective   and appropriate services for education of CWSN . 4.1.10  The objectives of the scheme  are:  To   enable   all   children   and   young   persons   with disabilities to have access to inclusive education and   improve   their   enrolment,   retention   and achievement in the general education system.  Identification   of   children   with   disabilities   at   the school   level   and   assessment   of   her/his educational needs.  Provision   of   aids   and   appliance   and   assistive devices, to the children with special needs as per requirement.  Removal   of   architectural   barriers   in   schools   so that   students   with   disability   have   access   to classrooms,   laboratories,   libraries   and   toilets   in the school.  Supplying   appropriate   teaching   learning materials,   medical   facilities,   vocational training   support,   guidance   and   counselling services   and   therapeutic   services   to   children with   special   needs   as   per   their   requirement in convergence with line departments .  General   school   teachers   will   be   sensitized and   trained   to   teach   and   involve   children with   special   needs   in   the   general   classroom. 72 For   existing   special   educators,   capacity building programmes will be undertaken.  CWSN   will   have   access   to   support   services through   special   educators,   establishment   of resource   rooms,   vocational   education, therapeutic services and counselling . THE GAZETTE OF INDIA EXTRAORDINARY THE RIGHTS OF PERSONS WITH DISABILITIES ACT, 2016 CHAPTER III EDUCATION 16. 22 17. 23 4.2 Target Group 4.2.1   The   scheme   will   cover   all   children   from   pre­school to   senior   secondary   stage   studying   in   Government,   local body   and   Government­aided   schools,   with   one   or   more disabilities   as   defined   under   the   Rights   of   Persons   with Disabilities Act (2016) namely: 1. Blindness 2. Low­vision 3. Leprosy Cured persons 4. Hearing Impairment (deaf and hard of hearing) 5. Locomotor Disability 6. Dwarfism 7. Intellectual Disability 8. Mental Illness 9. Autism Spectrum Disorder 10. Cerebral Palsy 11. Muscular Dystrophy 22   Section 16 reproduced in paragraph 41 above. 23   Section 17 reproduced in paragraph 41 above 73 12. Chronic Neurological conditions 13. Specific Learning Disabilities 14. Multiple Sclerosis 15. Speech and Language disability 16. Thalassemia 17. Hemophilia 18. Sickle Cell disease 19. Multiple Disabilities including deaf blindness 20. Acid Attack victim 21. Parkinson's disease 4.2.2   Girls   with   disabilities   will   receive   special   focus and   efforts   would   be   made   under   the   scheme   to   help them   gain   access   to   schools,   as   also   to   provide motivation   and   guidance   for   developing   their potential . 4.2.3   All   the   enrolled   CWSN   will   be   covered   through UDISE/SDMIS   and   will   eventually   be   linked   with Aadhaar,   ultimately   facilitating   the   State/UT   to   track CWSN   of   both   systems   i.e.   those   that   are   in   school   and those with Home based. The UDISE will have the relevant details  of children.  Further  an  extensive  database  will be developed   which   will   cover   all   the   particulars   of   children including the type of disability, degree of severity, medical needs,   emergency   contacts   and   all   other   relevant   details that   will   help   the   School   management   to   cater   to   the needs of the CWSN. 4.3  Components of the Scheme The   Scheme   will   include   assistance   for   two   kinds   of components: 4.3.1  Student oriented component The   student   oriented   component   may   be   utilized   for specified items like:­ (i)   Identification   and   assessment   of   children with disabilities. 74 (ii)   Provision   of   aids   and   appliances,   medical services, diagnostic services etc.  (iii)   Access   to   and   development   of   teaching learning material as per requirement etc . (iv)   Provision   of   facilities   like   transport/escort facilities   for   children   with   severe   disabilities, hostel facilities, scholarship, assistive devices, support staff (readers, amanuensis) etc. (v)   Provision   of   large   print   text   book,   Braille books and uniform allowance. (vi)   Stipend   for   Girl   Students   @   Rs.   200   per month   for   10   months   to   encourage   their participation  in  the  school  system   for   all  girls with disabilities studying in Classes­I to XII. (vii) The use of ICT to increase access to a vast amount   of   information   not   otherwise available. (viii)   Awareness   and   motivation   camps   for increasing enrolment and retention. (ix)   Provision   of   Home   Based   Education   for children   with   severe   multiple   disabilities   with a   view   to   mainstream   them   in   the   general education system. 4.3.2  Resource support For providing resource support to CWSN, the existing human   resource   appointed   under   SSA   and   RMSA   will be   rationalized   and   the   remaining   vacancies   may   be filled   through   fresh   appointment   as   per   the   norms provided at Annexure­III. All special educators should be   registered   with   Rehabilitation   Council   of   India (RCI).   These   educators   should   mandatorily   be available   for   all   CWSN   including   the   children   with high   support   needs   as   well.   The   educators   may   be posted   at   the   block   or   cluster   level   or   as   per   the requirement   and   can   operate   in   an   itinerant   mode, 75 covering   a   group   of   schools   where   children   with special   needs   are   enrolled   so   that   each   child   with special need is adequately covered. 4.4  Key   areas   of   the   Inclusive   Education Component Education for CWSN involves multiple aspects above and beyond   the   financial   support.   Many   areas   have   to   be looked   upon   manifestly   that   will   ensure   proper implementation   and   effective   inclusion.   The   highlights   of the components are discussed below.  4.5  Education of teachers and other stakeholders Intensive   teacher   education   programme   will   be undertaken   to   sensitize   and   build   capacity   of   the regular   teachers   and   resource   teachers   on   meeting learning   needs   of   all   teachers   to   provide   quality education   to   CWSN   and   improve   their   learning outcomes.   This   teacher   education   programme   will   be recurrent   at   block/cluster   levels   and   integrated   with the   on­going   in­service   teacher   education/training schedules   in   DIETs   and   other   Institutions.   Teacher education   modules   at   SCERT,   DIET   and   BRC   level should   include   suitable   components   on   education   ofKey Are as Education of teachers and other stakehold ers Curricular access Building synergy with special schools Research & Developme nt Social Access to CWSN 76 children   with   special   needs.   Training   of   educational administrators   including   headmasters,   all   other   staff &   relevant   personnel   of   school   education   should   be regularly   organized.   Special   focus   should   be   given   on mechanisms   for   safety   and   security   of   children   with special needs . 4.6  Curricular access The   curriculum   must   be   inclusive   as  envisioned   in   NCF­ 2005.   It   should   ensure   that   the   same   curriculum   be followed for  children with and without special needs, but with   adaptations/modifications   if   required   in   learning content,   teaching   learning   processes,   teaching   learning materials/aids   and   in   evaluation,   etc.   Provision   will   be made  to provide  text  books  and  curriculum  in  accessible formats to CWSN.  Exam   reforms   need   to   be   made   by   Central   and   State Boards for conducting exams of CWSN. Guidelines issued in this regard by  the  Department  of  Disability  Affairs  are enclosed at  Annexure­IV . The modifications may be made disability   specific,   (for   example,   oral   exam   for   children with   specific   learning   disability,   extra   time   for   children with visual impairment, low vision and cerebral palsy etc). A regular audit of existing textbooks from CWSN lens will be a priority for an apt curriculum. 4.7  Individualized Educational Plan (IEP)  IEP   will   be   undertaken   in   context   of   the   RPwD   Act,   as “Individualized   Support”   (as   mentioned   in   Chapter   3   of RPwD   Act,   2016).   Its   implementation   will   be   monitored from   time   to   time.   The   Individualized   Support   should review   the   effectiveness   of   various   strategies   and support   services   used   by   children   with   special   needs periodically, after developing indicators . 4.8  Building synergy with special schools  77 4.8.1   In   case   of   non­availability   of   resources   required for   education   of   children   with   special   needs   and training   of   teachers   teaching   CWSN,   assistance   from special   schools   may   be   taken.   These   special   schools can   work   as   resource   centers   for   providing   resources like   development   of   curricular   materials   and   TLMs, providing   support   services   to   CWSN   and   training   of teachers etc . 4.8.2   In   some   cases,   special   schools   can   also   impart special   training   to   CWSN   for   facilitating   age appropriate   placement   in   the   classroom   for   a specified period of time . NGOs working on education of children   with   chronic   health   impairments   like   leukemia, heart diseases and cancer etc, may also provide resource support   for   pertinent   care   and   health   related   needs   and capacity building of teachers. 4.9  Research and Development The   Integrated   Scheme   will   encourage   research   and development activities in all areas of education of children with   special   needs   including   action   research,   researches to   improve   learning   of   CWSN,   especially   focusing   on children   with   high   support   needs   (Thalassemia, Hemophilia,  Sickle  Cell disease  and  Chronic  neurological conditions   etc),   eventually   leading   to   concrete   learning outcomes.   For   this,   convergence   with   different   Ministries like   Ministry   of   Health   and   Family   Welfare,   MoWCD, Ministry of Social Justice  and  Empowerment,  Ministry  of Sports   and   Youth   Affairs,   private   organizations   with Corporate Social Responsibility (CSR) funds etc. 4.10  Social Access to CWSN Ensuring social access to CWSN is a greater challenge as compared   to   providing   physical   access   as   it   requires   an in­depth   understanding   of   the  various   educational  needs of   CWSN.   A   very   important   dimension   of   social  access   is discrimination.   CWSN   are   subjected   to   many   forms   of discrimination. Teachers and peers have a very important 78 role   to   play   in   this   context.   Social   access   could   include the following: i.    Parental training ii.   Peer sensitization iii.  Awareness   building   of   different   stakeholders across all levels iv.  Special   emphasis   will   be   given   to   education   of girls with disability 4.11  Monitoring & Evaluation: On­going monitoring and evaluation should be carried out to   refine   the   programme   from   time   to   time.   For   this, appropriate   monitoring   mechanisms   and   tools   are   to   be devised at every level and field tested at regular intervals. ANNEXURE­III  GUIDELINES FOR APPOINTMENT OF SPECIAL EDUCATORS  1 .   Minimum   Educational   Qualifications   for   becoming an   Educator   for   Classes   preschool­V   (Pre   School   to Primary Stage) (a)  Classes   I­V:   Senior   Secondary   (or   its equivalent)   with   at   least   50%   marks   and   2­ year   Diploma   in   Education   (Special Education). (b)  Pass   in   the   Teacher   Eligibility   Test   (TET),   to be conducted by the appropriate Government in  accordance  with the  Guidelines  framed  by the NCTE for the purpose. 2.   Minimum   Qualifications   for   becoming   an   Educator for Classes VI­VIII (Elementary stage) 79 (a)  Graduation   with   at   least   50%   marks   and   1­ year B.Ed. (Special Education) 24 Or Graduation   with   at   least   50%   marks   and   2­ year B. Ed. (Special Education) 25 (b)  Pass   in   Teacher   Eligibility   Test   (TET),   to   be conducted  by  the appropriate Government  in accordance with the Guidelines framed by the NCTE for the purpose. 3.   Minimum   Qualifications   for   becoming   an   Educator for Classes IX­XII: (Secondary stage) • All Special Educators must be registered with the Rehabilitation Council of India (RCI). • Educators with Qualifications in single disability area   will   be   encouraged   to   specialize   in   other disability   areas   to   take   care   of   a   wide   range   of diversities in a general school. •   Relaxation   up   to   5%   in   the   qualifying   marks   in the   minimum   Educational   Qualification   for eligibility   shall   be   allowed   to   the   candidates belonging   to   reserved   categories,   such   as SC/ST/OBC/Differently abled. •   Training   to   be   undergone:   A   person   with   D.   Ed. (Special   Education)   or   B.   Ed.   (Special   Education) qualification   shall   undergo,   after   appointment   an NCTE   recognized   6­month   Special   Programme   in Elementary Education.” (emphasis supplied) 24  For candidates who have graduated in B.Ed. (Special Education) in/before 2015­16 i.e. the  1 year course. 25   For   candidates   who   have   graduated   in   B.Ed.   (Special   Education)   after   2015­16   i.e.   the   2 years course (in regular or distance mode). 80 49. Besides   the   above­mentioned   scheme,   the   Ministry   of Education   (formerly,   the   Ministry   of   Human   Resource Development),   Government   of   India   has   formulated   National Education   Policy,   2020   dealing   with   a   gamut   of   aspects   including the   strengthening   of   the   dispensation   to   deliver   free,   inclusive   and quality   education   in   the   neighbourhood   school   to   all   between   the age   group   of   4   to   18   years.     While   referring   to   the   teaching   for children with disabilities/ Divyang  in the middle and secondary level school, it is noted as follows: ­ “ Special educators 5.21.   There   is   an   urgent   need   for   additional   special educators for certain areas of school education. Some examples   of   such   specialist   requirements   include subject   teaching   for   children   with disabilities/ Divyang   children   at   the   Middle   and Secondary school level, including teaching for specific learning   disabilities.   Such   teachers   would   require   not only subject­teaching knowledge and understanding of subject­related   aims   of   education,   but   also   the relevant   skills   for   understanding   of   special requirements of children. Therefore, such areas could be   developed   as   secondary   specializations   for   subject teachers   or   generalist   teachers,   during   or   after   pre­ service   teacher   preparation .   They   will   be   offered   as certificate courses, in the pre­service as well as in­service mode,   either   full   time   or   as   part­time/blended   courses   ­ again,   necessarily,   at   multidisciplinary   colleges   or universities.   Greater   synergy   will   be   enabled   between the   course   curriculum   of   NCTE   and   RCI   to   ensure 81 adequate   availability   of   qualified   special   educators who can handle subject teaching as well .” (emphasis supplied) Another   relevant   portion   of   this   Scheme   is   clause   7,   dealing   with efficient   resourcing   and   effective   governance   through   school complexes/clusters.  The relevant portion thereof reads thus: ­ “ 7.   Efficient   Resourcing   and   Effective   Governance through School Complexes/Clusters  7.1.   While   the   establishment   of   primary   schools   in   every habitation   across   the   country­driven   by   the   Sarva Shiksha   Abhiyan   (SSA),   now   subsumed   under   the Samagra   Shiksha   Scheme   and   other   important   efforts across   the   States   ­   has   helped   to   ensure   near­universal access   to   primary   schools,   it   has   also   led   to   the development   of   numerous   very   small   schools.   According to   U­DISE   2016–17   data,   nearly   28%   of   India’s   public primary   schools   and   14.8%   of   India’s   upper   primary schools have less than 30 students. The average number of students per grade in the elementary schooling system (primary and upper primary, i.e., Grades 1–8) is about 14, with a notable proportion having below 6; during the year 2016–17, there were 1,08,017 single­teacher schools, the majority   of   them   (85743)   being   primary   schools   serving Grades 1–5.  7.2.   These   small   school   sizes   have   rendered   it economically   suboptimal   and   operationally   complex   to run   good   schools,   in   terms   of   deployment   of   teachers   as well   as   the   provision   of   critical   physical   resources. Teachers often teach multiple grades at a time, and teach multiple   subjects,   including   subjects   in   which   they   may have no prior background; key areas such as music, arts, and   sports   are  too   often   simply   not   taught;   and   physical 82 resources, such as lab and sports equipment  and library books, are simply not available across schools.  7.3.   The   isolation   of   small   schools   also   has   a   negative effect   on   education   and   the   teaching­learning   process. Teachers function best in communities and teams, and so do   students.   Small   schools   also   present   a   systemic challenge   for   governance   and   management.   The geographical   dispersion,   challenging   access   conditions, and the very large numbers of schools make it difficult to reach   all   schools   equally.   Administrative   structures   have not   been   aligned   with   the   increases   in   the   number   of school   or   with   the   unified   structure   of   the   Samagra Shiksha Scheme. 7.4.   Although   consolidation   of   schools   is   an   option that   is   often   discussed,   it   must   be   carried   out   very judiciously,  and   only when  it  is  ensured   that  there  is no   impact   on   access .   Such   measures   are   nevertheless likely   to   result   only   in   limited   consolidation,   and   would not   solve   the   overall   structural   problem   and   challenges presented by the large numbers of small schools.  7.5.   These   challenges   will,   by   2025,   be   addressed   by State/UT   governments   by   adopting   innovative mechanisms   to   group   or   rationalize   schools.   The objective behind this intervention would be to ensure that   every   school   has:   (a)   adequate   number   of counsellors/trained   social   workers   and   teachers (shared   or   otherwise)   for   teaching   all   subjects including   art,   music   science,   sports,   languages, vocational   subjects,   etc;   (b)   adequate   resources (shared   or   otherwise),   such   as   a   library,   science   labs, computer   labs,   skill   labs,   playgrounds,   sports equipment   and   facilities,   etc.;   (c)   a   sense   of community   is   built   to   overcome   the   isolation   of teachers,   students,   and   schools,   through   joint professional   development   programmes,   sharing   of teaching­learning content, joint content development, holding   joint   activities   such   as   art   and   science exhibitions,   sports   meets,   quizzes   and   debates,   and fairs;   (d)   cooperation   and   support   across   schools   for the   education   of   children   with   disabilities;   and   (e) improved   governance   of   the   schooling   system   by 83 devolving   all   finer   decisions,   to   Principals,   teachers, and   other   stakeholders   within   each   group   of   schools and   treating   such   a   group   of   schools,   which   range from   the   foundational   stage   through   the   secondary stage, as an integrated semi­autonomous unit .  7.6.   One   possible   mechanism   for   accomplishing   the above   would   be   the   establishment   of   a   grouping structure called the school complex, consisting of one secondary   school   together   with   all   other   schools offering   lower   grades   in   its   neighbourhood   including Anganwadis, in a radius of five to ten kilometers . This suggestion   was  first   made  by   the   Education  Commission (1964–66)   but   was   left   unimplemented.   This   Policy strongly   endorses   the   idea   of   the   school complex/cluster,   wherever   possible.   The   aim   of   the school   complex/cluster   will   be   greater   resource efficiency   and   more   effective   functioning, coordination,   leadership,   governance,   and management of schools in the cluster .  7.7.   The   establishment   of   school   complexes/clusters and   the   sharing   of   resources   across   complexes   will have   a   number   of   other   benefits   as   a   consequence, such   as   improved   support   for   children   with disabilities,   more   topic­centred   clubs   and academic/sports/arts/crafts   events   across   school complexes,   better   incorporation   of   art,   music, language, vocational subjects, physical education, and other subjects in the classroom through the sharing of teachers   in   these   subjects   including   use   of   ICT   tools to   conduct   virtual   classes,   better   student   support, enrolment,   attendance,   and   performance   through   the sharing of social workers and counsellors,  and School Complex   Management   Committees   (rather   than simply   School   Management   Committees)   for   more robust   and   improved   governance,   monitoring, oversight,   innovations,   and   initiatives   by   local stakeholders.   Building   such   larger   communities   of schools,   school   leaders,   teachers,   students, supporting   staff,   parents,   and   local   citizens   would 84 energize and empower the schooling system, and in a resource­efficient manner .” (emphasis supplied) 50. Be it noted that the ratio of pupil­teacher has been mentioned in the stated schemes besides the norms and standards specified in the Schedule to the 2009 Act.  Indeed, the Schedule to the 2009 Act makes  no   distinction  between   general   schools   and  special  schools, but   the   norms   and   standards   specified   for   general   schools   cannot be replicated for special schools, which are governed by special laws in   respect   of   rights   of   persons   with   disabilities   and   the   schemes framed therefor.  The 2009 Act does clarify the position that the Act applies   to   all   schools   including   the   schools   admitting   child   with disability   as   defined   in   Section   2(ee)   and   gives   equal   and   same rights   to   such   children   to   pursue   free,   quality   and   compulsory education in the neighbourhood school.  It further provides children with   multiple   disabilities   and   children   with   severe   disabilities   may opt   for   even   home­based   education.     The   fact   remains   that   for meaningful   and   effective   imparting   of   education   and   training   to CwSN, different norms and standards ought to be followed and for 85 that   purpose,   the   concerned   schools   are   obliged   to   create   posts   of rehabilitation   professionals/special   education   teachers commensurate to number of (CwSN) students in the given school. 51. Somewhat similar issue was pursued before the Court of State Commissioner   for   Persons   with   Disabilities,   National   Capital Territory   of   Delhi   in   the   case   of   Ms.   Reshma   Parveen   vs.   The Director, Directorate of Education 26 .  The said Forum established under   the   2016   Act   was   called   upon   to   consider   the   following   two questions: ­ “(i) What   should   be   the   basis   for   creating   the   posts   of Special   Education   Teachers   at   different   levels   namely   i.e. Pre­school/   Nursery   (For   children   in   the   age   group   4­6 years);   Primary   and   Upper   Primary   (For   Classes   I­VIII); Secondary/High   School   (For   Classes   IX­X)   and   Senior Secondary/Intermediate   (For   Classes   XIXII).   RCI   was   once again   advised   to   facilitate   and   suggest,   preferably   in consultation   with   RCI ‟ s   concerned   expert   committee members,   the   criteria   for   determining   the   category   and number of Special Education Teachers at different levels before   the  next   date  of   hearing.  DoE  and   other   respondents could also submit their suggestion.  (ii) The   strategy   for   deployment   of   Special   Education Teachers   of   different   categories   and   at   different   levels   as mentioned   in   sub   para   (i)   above,   so   that   the   children   with various   disabilities   get   the   services   of   Special   Education 26  Decided on 31.12.2019 in Case No. 824/1014/2019/04/9072­84 86 Teachers   in   whichever   school   they   may   be   as   it   was contended   that   it   may   not   be   possible   to   create   such   posts and appoint Special Education Teachers of different specialty in every school.” (emphasis supplied) After   analyzing   the   relevant   provisions   and   the   schemes,   the   State Commissioner made following recommendations: ­ “62.   After   going   through   the   submissions   of   the   parties, the   views   of   the   experts   and   based   on   my   interactions with   the   parents   of   children   with   disabilities   and   my experience   while   dealing   with   their   complaints,   the following recommendations are made:  i) As   an   immediate   measure,   Director,   DoE; Commissioner,   North   DMC;   Commissioner,   SDMC; Commissioner,   EDMC;   Chairman,   New   Delhi Municipal   Council   and   CEO,   Cantonment   Board should   create   at   least   two   posts   of   Special Education   Teachers   per   school   an   appropriate mix of various specialisations .   ii) Respondents   no.   1   to   6   should   make provision   for   appointment   of   Special   Education Teachers   in   Autism   Spectrum   Disorder, Intellectual Disability, Learning Disability, Deaf­ Blind,   Visual   Impairment,   Hearing   Impairment and   Cerebral   Palsy   which   are   RCI   approved Teacher Training Courses .  iii) Since   the   number   of   students   with different   disabilities   in   schools   is   dynamic, provision   of   Special   Education   Teachers   per school would not have any rationale to continue for   long   and   hence   will   not   be   a   reasonable criterion.   The   number   of   Special   Education 87 Teachers   in   a   particular   disability   should   be determined   based   on   the   generally   accepted pupil   teacher   ratio   of   1:8   for   children   with Cerebral   Palsy,   visual   impairment   and   hearing impairment,   1:5   for   children   with   intellectual disability, ASD and Specific learning disabilities; and 1:2 for Deaf­Blind and a combination of two or   more   of   the   seven   disabilities   mentioned above .  iv) Respondent   no.1   to   6   within   one   month   of receipt   of   this   order,   should   obtain   the   number   of children   with   different   disabilities   in   the   schools under   their   respective   jurisdictions   and   determine the number of Special Education Teachers required in   different   disciplines   based   on   the   criteria   at   (ii) above. They should also make an estimation of out of   school   children   with   disabilities,   which   was 28.07%   for   all   India   and   7.28%   for   Delhi   as   per National   Sample   Survey:   Estimation   of   Out­of­ School   Children   in   the   Age   6­13:   Social   &   Rural Research   Institute   &   Technical   Support   Group   for SSA,   Ed   CIL,   2014   and   54%   of   children   with multiple   disabilities   (CwMDs)   never   attended   an educational institution as per Census 2011.  v) After   determining   the   number   of   Special Educators   for   preprimary   level/primary   level, upper   primary   level,   secondary   and   Sr. Secondary   level,   respondents   no.   1   to   6   should initiate   action   to   create   or   convert  the   existing posts   of   general   teachers   into   the   required number   of   Special   Education   Teachers   of   the appropriate   specialities   at   different   levels including   at   primary   level.   The   minimum requirement   of   RCI   approved   qualification should   be   as   prescribed   by   RCI.   This   should   be done   within   3   months   from   the   date   of   receipt of   this   order.   It   should   be   noted   that   there cannot   be   different   criteria   for   the   schools   of DoE and that of the Corporations .  88 vi) Respondents   no.   1   to   6   should   either   set   up resource   centre   in   each   school   or   for   a   cluster   of closely   located   schools,   not   beyond   a   radius   of   2­3 KMs   where   all   teaching,   learning material/resources including the Special Education Teachers   of   different   speciality   should   be   available for deployment in the schools as per need to ensure that   every   child   with   any   disability   is   ensured quality   education   on   equal   basis   with   others. Equality as well as equity must be ensured.  vii) The   conditions   of   service   and   the Recruitment   Rules   for   Special   Education Teachers should also clearly prescribe that they may be required to teach not only children with disabilities   but   also   children   without   disability in mainstream schools so that full utilization of their   services   is   ensured.   NCTE   should   issue necessary   notification   about   their   eligibility   to teach   children   without   disabilities   at appropriate   level   as   per   their   qualification within three months from the date of receipt of this order. It should also be ensured that Special Education   Teachers   are   treated   at   par   with mainstream   teachers   in   terms   of   service conditions such as pay, etc .  viii) It   is   a   matter   of   concern   that   NCTE (respondent no. 8) neither responded nor submitted any   comments/advice   with   regard   to   the   eligibility of Special Education Teachers at secondary/ higher secondary   level.   NCTE   should   incorporate   in   the curriculum   of   teacher   training   programmes, mandatory   papers   on   handling   children   with disabilities,   basic   sign   language   and   Braille,   if not   already   done,   as   otherwise   children   with disabilities   will   be   deprived   of   their   right   to quality   education   on   equal   basis   with   other children   which   is   a   mandate   of   the   Rights   of Persons   with   Disabilities   Act,   2016   as   well   as RTE Act, 2009 as amended in 2012 .  89 ix) All   in­service   mainstream   teachers   at   all levels,   i.e.   Pre­Primary,   Upper   Primary, Secondary   and   Sr.   Secondary   Level   must   be exposed   to   the   needs   of   children   with   different disabilities   by   mandatory   training   of   a   given duration.   DoE   should   do   it   in   consultation   with RCI   within   three   months   from   the   date   of receipt   of   this   order   and   respondent   No1   to   6 should   plan   the   training   of   their   respective mainstream   teachers   in   a   time   bound   manner and   complete   the   training   within   a   reasonable period of time.  x) NCERT   should   include   a   compulsory module on  teaching of children with disabilities in   its   online   digital   platform   ‘Swayam ’   for training of In­service teachers . xi) DoE,   Govt.   NCT   of   Delhi   should   develop guidelines for the inclusive education and inclusive schools   in   NCT   of   Delhi   in   Govt.   as  well  as   Private Schools   in   consultation   with   the   experts   in   the field,   the   parents   of   children   with   disabilities belonging   to   different   strata   of   the   Society   and   put in   place   a   robust   mechanism   to   ensure   its implementation by all concerned.  xii) Ministry   of   HRD,   Govt   of   India   should   also issue   model   guidelines   and   the   quality   indicators for   inclusive   education   and   inclusive   schools   for adoption/adaptation   as   per   local   conditions   at   the earliest.” (emphasis supplied) 52. As   a   stopgap   arrangement   until   the   competent   authority formulates   a   comprehensive   action   plan   including   to   specify   the norms   and   standards   regarding   pupil­teacher   ratio   to   be 90 maintained by the concerned schools imparting education to CwSN, we   are   persuaded   to   adopt   the   pupil­teacher   ratio   ascertained   in this decision as 8:1 for children with cerebral palsy; 5:1 for children with   intellectual   disability,   ASD   and   specific   learning   disabilities; and   2:1   for   deaf­blind   and   a   combination   of   two   or   more   of   the seven   disabilities   mentioned   in   the   recommendation   No.   (iii)   noted above.     Indeed,   the   teachers   to   be   so   appointed   need   to   be   duly qualified,   recognized   and   registered   with   the   Council   in   light   of Section 13 of the 1992 Act. 53. As   regards   the   appointment   of   special   educators/special teachers/rehabilitation   professionals   on   itinerant   basis   under clause   4.3.2   of   the   SSS,   the   same   may   not   appear   to   be   in   strict conformity   with   Section   25(2)   of   the   2009   Act.     However,   such teachers are not to be posted in a school as such, but are to render their   services   in   a   cluster   of   schools,   which   is   permissible   in   the context   of   the   special   teachers   under   the   1992   Act   and   the   1999 Act.  The mandate is that CwSN must be educated and trained only by   special   teachers   being   rehabilitation   professionals,   duly 91 recognized and registered by the Council under the 1992 Act.   The operation   of   the   two   Acts   being   Union   enactments,   need   to   be harmonized.     Further,   the   schemes   formulated   for   strengthening the   mechanism   to   espouse   the   cause   of   CwSN   under   the   special legislations for persons with disabilities must prevail to the extent of special   arrangements   for   imparting   education   to   them   and   not constricted   by   the   general   enactment   of   2009   (the   2009   Act) regarding   right   of   children   to   free   and   compulsory   education. Indeed, a policy or a scheme cannot override the statutory mandate predicated in an Act made by the Parliament.  However, schemes for special   schools   and   in   respect   of   the   CwSN,   in   particular,   make special   provisions   and   in   reference   to   the   legislation   such   as   the 1992 Act and the 1999 Act including the 2016 Act.  Those schemes would prevail unless they are found to be in conflict with any of the express   provisions   of   that   very   special   legislation(s).     However,   the same   cannot   be   assailed   as   being   in   conflict   with   the   2009   Act, which   is   a   general   law   governing   the   norms   and   standards   to   be observed by the schools which indeed may include a special school. 92 54. As   a   matter   of   fact,   the   2009   Act   recognizes   the   special treatment needed for the child with disability/CwSN by insertion of Section  2(ee)  and  Section   3(3)  in  the  Act,  which  not  only  recognize the right of CwSN to get free, quality and compulsory education in neighbourhood   school   till   the   completion   of   their   elementary education, but also the right to opt for home­based education if the child is inflicted with multiple disabilities or severe disability, as the case may be.  What is absent in the 2009 Act is the modification of the   norms   and   standards   originally   specified   in   Schedule   I applicable   for   general   schools.     Though,   later   in   2012,   the Parliament   realized   the   need   to   amend   the   2009   Act   to   expressly include the CwSN, it should have also made corresponding changes in Schedule I to provide for suitable norms for CwSN, by providing distinct   dispensation   for   the   general   schools   admitting   CwSN   and the special schools catering only to CwSN.  That could still be done by the appropriate authority by amending the Schedule in exercise of power under Section 20 and enabling provisions in the 2009 Act. 93 55. Indisputably, the schools registered as special schools are also governed   by   special   legislation   and   the   schemes   framed   therefor and   would   come   under   the   DEPwD,   whereas   the   general   schools come   under   the   Ministry   of   Education   and   are   governed   by   the 2009 Act including by the SSS. 56. As of today, there is a dearth of rehabilitation professionals or special   teachers   recognized   and   registered   by   the   Council,   who alone can impart education and training to handicap person/CwSN. This disparity  will have to be addressed by the National Council of Teachers   Education 27   coming   under   a   different   department   i.e., DSEL.     It   is   for   the   NCTE   to   evolve   holistic   mechanism   in collaboration   with   the   Council   to   enhance   the   number   of   special teachers   to   overcome   the   deficit.     As   aforesaid,   the   persons   with disabilities   in   India   constitute   over   2.21   per   cent   of   the   total population   of   the   country,   as   per   the   census   figures   of   2011.     At present,   there   are   only   1,20,781   special   educators   registered   with the   Council.     As   per   the   available   data   with   the   Unified   District 27   for short, “NCTE” 94 Information System for Education, there are 22.5 lakh CwSN in the country.     Further,   only   4.33   lakh   general   teachers   have   been trained to teach CwSN in addition to teaching general children and only  28,535 special teachers are available for  children with  special needs/CwSN.     These   figures   are   stated   in   the   affidavit   of   Mr.   Anil Gairola,   Under   Secretary   in   the   Ministry   of   Education,   dated 12.7.2021.     The   State­wise   number   of   special   educators   has   been furnished   at   page   190   of   the   written   note   filed   on   behalf   of   the Union of India. The same reads thus: ­ State­wise number of Special Educators State/UT Special Teachers A & N ISLANDS 13 ANDHRA PRADESH 8101 ARUNACHAL PRADESH 215 ASSAM 413 BIHAR 2804 CHANDIGARH 396 CHHATTISGARH 888 DADRA & NAGAR HAVELI 10 DAMAN & DIU 2 DELHI 6741 GOA 723 GUJARAT 5596 HARYANA 4218 HIMACHAL PRADESH 1500 JAMMU & KASHMIR 143 JHARKHAND 940 KARNATAKA 2436 95 KERALA 8249 LAKSHADWEEP 33 MADHYA PRADESH 2877 MAHARASHTRA 17934 MANIPUR 394 MEGHALAYA 270 MIZORAM 96 NAGALAND 10 ORISSA 5966 PUDUCHERRY 110 PUNJAB 1880 RAJASTHAN 6126 SIKKIM 25 TAMIL NADU 8202 TELANGANA 2340 TRIPURA 250 UTTAR PRADESH 20173 UTTARAKHAND 637 WEST BENGAL 10070 TOTAL 120781 57. In   view   of   the   above,   a   multipronged   approach   needs   to   be adopted   by   the   concerned   Authorities   with   immediate   effect,   inter alia,  as follows: ­ A. The Central Government must forthwith notify the norms   and   standards   of   pupil­teacher   ratio   for special schools and also separate norms for special teachers   who   alone   can   impart   education   and training to CwSN in the general schools; and until such   time,   as   a   stopgap   arrangement   adopt   the recommendations   made   by   the   State Commissioner,   NCT   of   Delhi   in   the   case   of   Ms. 96 Reshma   Parveen 28   reproduced   in   paragraph   51 above; B. To   create   commensurate   permanent   posts   as   per the   just   ratio   to   be   specified   by   the   competent authority   for   the   rehabilitation professionals/special   teachers   who   can   cater   to the needs of CwSN;  C. To initiate appointment process to fill­in vacancies for   the   posts   so   created   for   rehabilitation professionals/special  teachers  for   being   appointed on   regular   basis.     The   same   shall   be   completed within   six   months   from   the   date   of   this   order   or before the commencement of academic year 2022­ 2023, whichever is earlier; D. To   overcome   the   shortage   of   resource   persons (rehabilitation   professionals/special   trained teachers),   the   training   schools/institutions   must take steps to augment the number whilst ensuring that the norms and standards specified under the governing   laws   and   regulations   including   that   of the   Council   for   grant   of   recognition   and registration are fulfilled; E. Until   sufficient   number   of   special   teachers becomes   available   for   general   schools   and   special 28  s upra at Footnote No. 28 97 schools,   the   services   of   special   trained   teachers can be availed as itinerant teachers as per the SSS within   the   school   block   (cluster   schools)   to optimize   the   resource   persons   and   as   a   stopgap arrangement; F. The other teachers and staff in the general schools be   given   compulsory   training   and   sensitized   to handle   the   CwSN   in   the   general   schools,   if admitted; and G. The authorities may  also  explore the  possibility   of merging   unviable   special   schools   with   relatively viable special schools in the neighbourhood, so as to   entail   in   consolidation   of   assets   and   resources for better delivery to the requirements of CwSN. 58. For  the  nature  of observations  made  and directions  issued, it is   not   limited   to   the   States   of   Uttar   Pradesh   and   Punjab,   but   will operate across the country (all States and Union Territories). 59. With   a   view   to   ensure   that   the   directions   are   effectively complied with, we direct the State Commissioners appointed under Section   79   of   the   2016   Act   in   the   concerned   States/Union 98 Territories   to   forthwith   initiate   suo   motu   enquiries   regarding compliance   and   then   make   recommendation   to   the   appropriate authority   (of   the   concerned   State/Union   Territory),   as   may   be necessary,   so   that   the   authority   will   be   obliged   to   submit compliance   report   to   the   State   Commissioner   within   three   months from   the   date   of   receipt   of   recommendation,   as   mandated   under Section   81   of   the   2016   Act.     The   respective   State   Commissioners may then submit report in respect of compliances/non­compliances within their concerned State/Union Territory to this Court by end of February,   2022,   so   that   further   directions,   as   may   be   necessary, can be issued by this Court State/Union Territory wise. 60. We are making it amply clear that we are not deciding on the working conditions of the special teachers and the class of persons represented by the petitioners before this Court. 61. Further,   we   deem   it   appropriate   to   presently   issue   directions to   the   State   Commissioner(s)   (which   includes   the   States   of   Uttar 99 Pradesh   and   Punjab),   who   would   be   in   a   better   position   to   ensure that   corrective   and   remedial   steps   are   taken   by   the   concerned State/Union Territory within the timeline specified in this order.   If that happens, the relief claimed by the petitioners before this Court would   substantially   stand   redressed.     However,   we   may   not   be understood to have expressed any final opinion in that regard. 62. The   matter   be   notified   in   the   first   week   of   March,   2022   on   a non­miscellaneous   day,   for   consideration   of   the   reports   received from   the   concerned   State   Commissioners.     The   Registry   shall provide   copy   of   the   reports   received   by   it   from   time   to   time   to   the learned  Amicus Curiae  Mr. Rishi Malhotra, Advocate­on­Record who may   prepare   appropriate   chart/table   to   be   presented   to   the   Court on the next date of hearing. 63. Copy of this order  be forwarded to the State Commissioner of all   the   States/Union   Territories   through   email   forthwith,   for information   and   necessary   action.     Copy   of   this   order   be   also forwarded   to   the   Chief   Secretary/Lieutenant 100 Governor/Administrator   of   the   States/Union   Territories   through email, for information and necessary action. 64. We   also   issue   notice   to   the   Secretary   of   Department   of Empowerment   of   Persons   with   Disabilities   (DEPwD)   –   Ministry   of Social   Justice   and   Empowerment;   and   Secretary,   Ministry   of Education, both Government of India, New Delhi, returnable in the first week of March 2022.  They are also expected to take necessary corrective and remedial steps in light of this decision, to the extent applicable,   including   to   issue   directions   to   all   concerned   for reporting compliance. ………………………………J.        (A.M. Khanwilkar) ………………………………J. (Dinesh Maheshwari) ………………………………J.        (C.T. Ravikumar) New Delhi; October 28, 2021.