Comments on New Policy on Distance Learning in Higher

Education as proposed by the MHRD

Points as given in the proposed policy
S No. Points as given in the
proposed policy
Background

(i)

Observations

1. Reference should be made of

establishment of the Distance
Education Council as a statutory
body created by the Indira
Gandhi National Open
University in 1991 for the
promotion, coordination and
maintenance of standard in the
Open and Distance Learning
System in the country.
2. The background note does not
reflect on the current scenario of
ODL system.
3. Instead of a standing
committee on Open and Distance
Education under the National
Commission for Higher
Education and Research
(NCHER), there should be an
autonomous statutory regulatory
apex body for Open and Distance
Education in the country under
the NCHER.
Only those programmes, 1. Programmes and extensive
which do not involve
practical work need to be
extensive practical course
specified.
work, shall be
2. If it means programmes in
permissible through the
Science and Technology, this
distance mode.
point is not justified. Many

distance education
institutions including open
universities, have been
offering programmes in these
areas for the last few decades,
and more recently
programmes in dietetics and
health education and
vocational education
involving skillbased/competency based
practicals and hands-on
training.
3. It is pertinent to mention that
the entire practical component
is delivered in a face-to-face
mode at the designated
education institutions
specifically identified for the
purpose that are wellequipped with specialised
laboratories/ skill
development centres/ work
centres etc., where the
practical component is being
transacted. Further, face-toface sessions are also
conducted for theory courses.
4. For example, health science
programmes offered by
IGNOU are meant for inservice medical and nursing
professionals for upgrading
their knowledge and skills. In
these programmes, about 50
% credit is devoted to handson skill training at specially

selected programme study

centres under the supervision
of qualified and experienced
faculty. The teacher-student
ratio is maintained at 1:5.
Further 50 % is the minimum
pass mark for both theory and
practical components.
However, a range of practices
to ensure hands-on practical
sessions is being followed by
different ODL providers in the
country. There is therefore a
need to develop standardised
norms for practical based
programmes and closer
monitoring of the same.
5. The graduates are well
accepted in the country and
even abroad. They are getting
admission through open
competition in Masters and
Research degree programmes
in universities and IITs, and
are also getting accepted in
the job market, which are
considered the benchmarks of
quality in the country.
6. Many Open Universities all
over the world are offering
Science and Technology
programmes through distance
mode. To cite a few, The
Open University of U.K.; The
Athabasca University,
Canada; Israel Open
University; German Open

University; Korean Open

University; S.T. Open
University, Thailand; Hong
Kong Open University;
CRTV University of Science,
Malaysia; Wawasan Open
University, Malaysia; and the
Sri Lanka Open University
are all offering programmes
in Science and Technology.
Even in our country, AMIE,
which is pursued through
distance mode only, is
recognised equivalent to
B,E./B. Tech.
7. Distance education has
tremendous potential in
providing an opportunity to a
large number of working
professionals to improve their
knowledge and skills, and
enhance their qualifications
for career advancement.
8. The ODL system is supposed
to cater to the needs of those
in-service and disadvantaged,
who need to upskill/upgrade/
retrain themselves and acquire
the competencies and skills
required in the world of work.
By excluding all practical
based programmes, how
would we fulfil this mandate?
9.Therefore, if an institution has
human resources and puts in
place infrastructure and
processes to ensure hands-on

practical training, there is no

reason why practical- based
programmes through distance
mode cannot be allowed.
(ii)

Universities / institutions
shall frame ordinances /
regulations/ rules, as the
case may be, spelling out
the outline of the
programmes to be offered
through the distance
mode, indicating the
number of required
credits, list of courses
with assigned credits,
reading references in
addition to self learning
material, hours of study,
contact classes at study
centres, assignments,
examination and
evaluation process,
grading etc.

Universities/ institutions shall

frame ordinances / regulations /
rules, as the case may be,
spelling out the outline of the
programmes to be offered
through the distance mode
indicating the number of required
credits, list of courses with
assigned credits, reading
references in addition to self
learning material, hours of study,
contact classes at study centres,
assignments,
examination and evaluation
process, grading etc. which
should be as per norms
prescribed by the Distance
Education Council (DEC).

(iii)

DEC of IGNOU shall

only assess the
competence of
university/institute in
respect of conducting
distance education
programmes by a team of
experts, whose report
shall be placed before the
Council of DEC for
consideration.

1. Word only has to be deleted.

Also It is not clear whether the
assessment is to be done
programme-wise or institutionwise.
2. DEC should be made a
statutory body for open and
distance education in the country,
and not merely a body to access
the competence of
university/institutions.

(iv)

(v)

(vi)

The approval shall be

given only after
consideration by the
Council of DEC and not
by Chairperson, DEC.
For the purpose, a
minimum number of
mandatory meetings of
DEC may be prescribed.
AICTE would be directed
under section 20 (1) of
the AICTE Act 1987 to
ensure accreditation of
the programmes in
Computer Sciences,
Information Technology
and Management
proposed to be offered by
an institute/university
through the distance
mode, by National Board
of Accreditation (NBA).
UGC and AICTE would
be directed under section
20 (1) of their respective
Acts to frame detailed
regulations prescribing
standards for various
programmes/ courses,
under their mandate,
offered through the
distance mode.

The phrase . and not by the

Chairperson DEC should be
deleted.

The accreditation should be done

by the DEC and not AICTE
alone. DEC may devise policy
guidelines and do accreditation
of ODL providers by involving
members drawn from respective
Councils as per requirement of
the programmes on offer. AICTE
as a body should not supersede
DEC as DEC is the agency
mandated to develop and
maintain standards for ODL.
The norms for various technical/
other programmes have already
been developed by DEC in
consultation with the respective
councils. In case the norms are to
be revisited, then it can only be
done with active involvement of
DEC.
In any case NBA can only
accredit technical programmes.
This situation would thus result
in an applicant institution to run
between different approval and
accreditation committees/bodies
for different programmes.

(vii)

No university/institute,
except the universities
established by or under
an Act of
Parliament/State
Legislature before 1985,
shall offer any
programme through the
distance mode,
henceforth, without
approval from DEC and
accreditation by NBA.
However, the
universities/ institutions
already offering
programmes in
Humanities, Commerce /
Business / Social
Sciences / Computer
Sciences and Information
Technology and
Management, may be
allowed to continue,
subject to the condition
to obtain fresh approval
from DEC and
accreditation from NBA
within one year, failing
which they shall have to
discontinue the
programme and the entire
onus with respect to the
academic career and

What about accreditation of

general programmes. Why has
this policy overlooked NAAC at
all places?
1. What is the basis for the cut
off date?
Rather it should be framed as ...
No university/ institute shall
offer programmes through
distance education mode,
henceforth without prior
approval of the DEC.
2. The restriction put on
universities/ institutions
established after 1985 is
absolutely arbitrary. This clause
is discriminatory to the
universities established after
1985. It also discriminates
against the universities that offer
certain programmes.

(viii)

(ix)

financial losses of the

students enrolled with
them, shall be on such
institutions / universities.
In light of observation of
Apex Court, ex post facto
approval granted by any
authority for distance
education shall not be
honoured and granted
henceforth. However, the
universities established
by or under an Act of
Parliament or State
Legislature before the
year 1985 and offering
distance education
programmes in the
streams of Humanities /
Commerce / Social
Sciences before the year
1991 shall be excluded
from this policy.
The students who have
been awarded degrees
through distance mode by
the universities without
taking prior approval of
DEC and other statutory
bodies, shall be given one
chance, provided they
fulfil the requirement of
minimum standards as
prescribed by the UGC,
AICTE or any other
relevant statutory
authority through

1. Looking at the hardship

imposed on the students who
have acquired degrees through
the distance mode, the DEC has
put in place a mechanism for post
facto approval. A definite cut off
date be fixed for institutions to
apply to DEC for the same.
2. This clause is discriminatory
to the Universities established
after 1985. It also discriminates
against the Universities that offer
programmes other than
humanities/ commerce/sciences.

It is not clear who the examining

agencies will be, when and where
would be examination conducted,
whether it would be a single
examination applicable to all, or
would different exams be
conducted for different
institutions.
Further, there are lacs of students
who have acquired their degrees/
diplomas/ certificates through
distance mode. How practical
will it be to examine the
competence of all these students?

regulation, to appear in
examinations in such
papers as decided by the
university designated to
conduct the examination.
If these students qualify
in this examination, the
university concerned
shall issue a certificate.
The degree, along with
the said qualifying
certificate, may be
recognised for the
purpose of employment/
promotion under the
Central Government
(x)
A clarification shall be
issued with reference to
Gazette Notification No.
44 dated 1.3.1995 that it
shall not be applicable to
the degrees/ diplomas
awarded by the
universities established
by or under an Act of
Parliament or State
Legislature before 1985,
in the streams of
Humanities / Commerce
and Social Sciences.
(xi)(a) The policy initiatives
spelt out in succeeding
paragraphs shall be
equally applicable to
institutions offering
distance
education/intending to

Is there a similar procedure to

examine the students who have
acquired their degrees/ diplomas/
certificates from conventional
universities/ institutions?

1. In the light of points raised

above, it will further complicate
the situation. There is no need for
a clarification. Rather the new
policy on distance education will
help to clarify things.
2. A highly discriminatory
clause; it seems this document
has been prepared to let a few
universities and courses out of
the scrutiny of the assessing
authorities.

(b)

( c)

offer distance education.

All universities and
institutions offering
programmes through the
distance mode shall need
to have prior
recognition/approval for
offering such
programmes and
accreditation from the
designated competent
authority, mandatory in
respect of the
programmes offered by
them. The violators of
this shall be liable for
appropriate penalty as
prescribed by law. The
universities/ institutions
offering education
through distance mode,
and found involved in
cheating of students/
people by giving
wrong/false information
or wilfully suppressing
information shall also be
dealt with strictly under
the penal provisions of
law.
The universities /
institutes shall have their
own study centres for
face-to-face counselling
and removal of
difficulties, as also to
seek other academic and

This point is in contradiction to

point (vii) above

The term own study centre needs

careful definition.

(d)

(e)

administrative assistance.
Franchising of distance
education by any
university/ institutions
whether public or private
shall not be allowed.
The universities/
institutions shall only
offer such programmes
through distance mode,
which are on offer on
their campuses through
conventional mode. In
case of open universities,
they shall necessarily
have the required
departments and faculties
prior to offering relevant
programmes through
distance mode.
It would be mandatory
for all universities and
education institutions
offering distance
education to use
Information and
Communication
Technology (ICT) in the
delivery of their
programmes,
management of the
student and university
affairs through a web
portal or any other such
platform. The said
platform shall invariably
display in the public

What about open universities,

which are single-mode
universities?

This is a good initiative reflected

in the policy.
The word mandatory should be
replaced by desirable in the
light of the ICT penetration and
access, especially among rural
and disadvantaged population.
Technology should facilitate and
not become a barrier to access for
such population.

(f)

(g)

domain, the information

about the statutory and
other approvals, along
with other necessary
information about the
programmes on offer
through distance mode,
their accreditation and
students enrolled, yearwise, etc. This may be
linked to a national
database, as and when
created, to facilitate the
stakeholders to take a
view on the recognition
of the degrees for the
purpose of academic
pursuit or employment
with/under them.
All universities/
education institutions
shall make optimal use of
e-learning contents for
delivery/ offering their
programmes through
distance mode. They
shall also be encouraged /
required to adopt
e-surveillance technology
for conduct of clean, fair
and transparent
examinations.
The focus of distance
education shall be to
provide opportunity of
education to people in
educationally

This is a good initiative in the

policy
Who will do it? And how will it
be done?

This is a good initiative in the

policy
Who will do it? And how will it
be done?

(h)

(i)

disadvantaged situations
such as living in remote
and rural areas, adults
with no or limited access
to education of their
choice etc.
In order to promote
flexible and need- based
learning, a choice-based
credit system shall be
promoted. All ODE
institutions shall be
encouraged to adopt this
system, and evolve a
mechanism for
acceptance and transfer
of credits of the courses
successfully completed
by students in the face-toface or distance mode.
For the purpose,
establishment of a credit
bank may be considered.
Similarly, conventional
universities offering faceto-face mode
programmes shall be
encouraged to accept the
credits earned by the
students through distance
mode. A switch over
from annual to semester
system shall be essential.
Convergence of the face-to-face
mode teaching departments of
conventional universities with
their distance education
directorates / correspondence

This is a good initiative in the

policy.
Who will do it? And how will it
be done?

This is a good initiative in the

policy.

course wings, as also with

(j)

(k)

(l)

open universities/
institutions offering
distance education, shall
be impressed upon to
bridge the gap in distance
and conventional face-toface mode of education.
Reputed
foreign
education providers, well
established, recognised
and
accredited
by
competent authority in
their country and willing
to offer their education
programmes in India,
shall be allowed, subject
to the fulfilment of the
legal requirement of the
country.
A National Information
and Communication
Technology infrastructure
for networking of ODE
institutions shall be
created under the
National Mission on
Education through
Information and
Communication
Technology.
Efforts would be made to
create a favourable
environment for research
in ther Open and
Distance Education
(ODE) system by setting

i) The policy should give more

emphasis on the guidelines to
evaluate/ recognise/ accredit/
manage the affairs of foreign
education providers.
ii) Foreign providers seeking
entry into Indian markets should
be required to go through the
same domestic approval/
accreditation process as the local
providers to ensure a level
playing field.
How? Who will do it?

Who will make the efforts?

MHRD/ UGC/ AICTE/ DEC?
And how?

(m)

(n)

(o)

(p)

up infrastructure like elibraries, digital database,

online journals, holding
regular workshops,
seminars etc.
Training and orientation
programmes for
educators and
administrators in the
ODE system with focus
on use of ICT and selflearning practice, shall be
encouraged.
ODE institutions shall be
encouraged to take care
of the educational needs
of learners with
disabilities and senior
citizens.
An official notification
clarifying the issue of
recognition of academic
qualifications earned
through distance model
for the purpose of
employment shall be
issued.
A mechanism shall be set
up for evaluation of
degrees of foreign
universities for the
purpose of academic
pursuit as well as for
employment under the
Central Government. This
may include t assessment
of the credentials of the

Who will do it? And how will it

be done? Simply listing here
wont work.

Who will do it? And how will it

be done? Simply listing here
wont work.

Who will do it?

Who will do it? And how will it

be done?

university concerned as
also to test the
competence of the degree
holder, if needed.
The policy document has not included the following important
and evolving requirement in the present day ODL environment:
Recognition of prior learning and assessment of due
credits to such experiences for academic study
programmes.
Recognition of work-based skills/learning and their
translation into equivalent credits for higher academic
study.
Recognition process institution-wise/ programme-wise
Types of institutions which can offer programmes.
Programmes that can be offered through distance mode.
Assessment and accreditation process, no mention of
accreditation of programmes other than professional
programmes.
Assessment and evaluation of students.
Networking and resource sharing.
Jurisdiction of Institutions.
Funding of ODL system.
Coordination and maintenance of standards of ODL who
will do it.
Quality assurance mechanisms.