Navigating course of education reforms in SL: Past challenges and future directions

by Prof. M.W. Amarasiri de Silva

The government has proposed abolishing the University Grants Commission (UGC) set up under the Universities Act No. 16 of 1978 and replacing it with an independent body called the “National Higher Education Commission.” This change is set to be enacted through new legislation. As the Chairman of the Select Committee, Minister Wijeyadasa Rajapakshe has recommended the National Higher Education Commission will consist of 11 members appointed by the President, subject to prior approval from the Constitutional Council. These members are expected to be eminent individuals in their respective fields, including academia, profession, and management. Accordingly, the proposed Commission will be organized into four sub-committees: the State University Committee, the Non-State University Committee, the Vocational Education Institutions Committee, and a sub-committee dedicated to quality assurance. Each sub-committee will focus on specific aspects of higher education in the country. Wijeyadasa Rajapakshe, PC, emphasized that opportunities for higher education should be expanded to match the labour market.

In implementing the proposed reforms, it is crucial to take into consideration the existence of various government-formed institutions that have been dealing with different aspects of education over the years. The new proposal, as published in the newspapers, lacks specific information on how these institutions will be addressed and what changes they might undergo. One important institution to consider is the National Institute of Education (NIE), which was established in 1985 through an Act of Parliament. The NIE was entrusted with the vital tasks of curriculum development and awarding degrees in education to support the professional development of teachers, principals, and educational administrators. However, the proposal does not clarify how the new curriculum development committee will impact the role and functions of the NIE.

Similarly, the formulation of the national education policy relies on the recommendations provided by the National Education Commission (NEC), which was established in 1991 through an Act of Parliament. The NEC holds a pivotal role in shaping the nation’s education policy. Yet, it remains uncertain how the proposed reforms will affect the NEC’s position and functions.

Another significant institution is the Curriculum Development Centre (CDC), established in the 1960s. Initially focused on developing curricula for science and mathematics, the CDC has evolved over time to encompass curricula development across all subjects and has contributed to teacher development efforts. It is essential to address the potential impact of the new proposals on the CDC and its continuing role in education reform.

To ensure the success of the proposed reforms, it is imperative that the fate and functions of these existing institutions are explicitly addressed and aligned with the broader vision of the educational changes being proposed. Clarity on their roles and potential restructuring will help in achieving a more cohesive and effective education system in the country.

Why can these changes not be implemented within the structure of the University Grant Commission and the institutions setup to deal with various aspects of education in the country? This article reviewing the history of education reforms in Sri Lanka tries to answer these questions.

Sri Lanka’s history of education reforms has been marked by the establishment of various committees and programs proposed by successive governments over the years. In 1975-76, the government made a significant effort to further strengthen its control over the universities through amendments to the University of Ceylon Act No. 1 of 1972. These proposed amendments aimed to increase the government’s authority over the universities, much like the recently proposed reforms by the Minister of Higher Education.

However, the introduction of these amendments faced opposition from the universities and students, who were concerned about the concentration of powers in the hands of the government. The proposed amendments had to be withdrawn in response to widespread trade union actions and dissent.

The political landscape shifted in 1997, with the opposition party winning the election. They made a crucial pledge to grant autonomy to individual universities, and this promise was championed by Ronnie de Mel and the United National Party (UNP).

These historical episodes illustrate the ongoing struggle to balance government influence and university autonomy in Sri Lanka’s higher education system. The currently proposed reforms should consider these past experiences to ensure a harmonious and practical approach to shaping the future of education in the country. Acknowledging the crucial role of education in the country’s development, the ministers of higher education have consistently sought to reshape the higher education landscape, even though the universities were considered autonomous institutions according to the Universities Act, No. 16 of 1978. This emphasis on education reform arises from the belief that a robust and dynamic education system, encompassing both school and university education, is indispensable for propelling the nation’s progress and prosperity. As such, it becomes the government’s prerogative to introduce changes to achieve this goal.

The most pivotal and ground-breaking reform that laid the foundation for Sri Lanka’s free education system was the comprehensive overhaul of the educational framework in 1945. This transformative reform was built upon the principles outlined in the Education Ordinance No. 31 of 1939, making it the foremost and all-encompassing reform ever undertaken in the country’s educational history. During this period, C.W.W. Kannangara, who held the education portfolio in the State Council from 1931 to 1947, played a crucial role with A. Ratnayake in revolutionizing the education system.

The education reforms of 1945 brought about significant changes—the reforms aimed to provide free education from kindergarten up to university level. Swabhasha (Sinhala and Tamil) was established as the primary medium of instruction in schools, while English continued to have its place as a language taught from Standard III onwards. This emphasis on both languages sought to strike a balance between preserving the country’s cultural identity and enabling students to engage with a globalised world.

Most significantly, these reforms opened opportunities for children from rural areas and less privileged backgrounds to access education. Central Colleges, established by the government, played a crucial role in this process by providing accessible education to village children, enabling them to climb the social ladder through learning and knowledge.

In contemporary times, the history of university education in Sri Lanka spans just over a few decades. From 1921 to 1959, the country had only one educational institution offering university-level education, University College (1921–1942), affiliated with the University of London. In 1942, following 21 years of agitation, the University of Ceylon was finally established at Peradeniya. Subsequently, in 1959, the education landscape underwent a significant transformation with the establishment of two additional universities – Vidyalankara and Vidyodaya- the two main centres of Buddhist learning in Ceylon were swiftly converted into universities. This expansion led to recognising the necessity for a coordinating body to oversee higher education activities. In 1966, the National Council of Higher Education (NCHE) was established as a part of a policy to increase government influence over universities.

In 1979, the University Grants Commission (UGC) was established, equipped with powers akin to the National Council of Higher Education (NCHE). However, the UGC’s authority extended even further, surpassing the scope enjoyed by the British UGC. Notably, Professor S. Kalpage, a highly experienced university teacher with a diverse academic background, was appointed as the inaugural chairman of the UGC. Interestingly, he also held the position of Secretary of the Ministry of Higher Education.

The appointment of Professor S. Kalpage as the first chairman of the UGC was a strategic decision by the government, aimed at avoiding potential conflicts between the Ministry of Higher Education and the newly formed UGC during its initial developmental years. This move demonstrated the government’s proactive approach to ensure a harmonious working relationship between these entities and facilitate a smooth and effective implementation of the UGC’s role in shaping higher education in the country.

In 2016, G.B. Gunawardene, the National Education Commission (NEC) chairman, pointed out that the 1939 Rathnayaka-Kannangara Education Ordinance (No. 31 of 1939) remains the foundational law of education in Sri Lanka. Despite several subsequent acts introduced for different aspects of education, there have been no meaningful amendments or changes to the core education law. Dr. Gunawardene emphasized the need for an education policy framework rather than new acts to address the challenges and requirements of the modern education system.

Regarding the possibility of a new act, it’s essential to clarify that introducing a new law does not necessarily mean the 1939 act would be annulled. The new act could be complementary, addressing specific areas or aspects of education that may require updated regulations. However, the 1939 act would remain the foundation and overarching framework for education in the country unless it is explicitly repealed or replaced.

The national university of Ceylon was started in 1942, and no particular administrative unit was within that ministry to deal with the university. The only formal link was provided by one of the officials of the ministry, the director of education, who was the principal administrative officer in control of primary and secondary education in the country’s state education sector, and an ex officio member of the council, the university’s governing body.

The significant shift and political interventions in university education occurred following the formation of the 1956 government and its political interventions. This period witnessed notable changes, including an increase in student enrolment, particularly in the arts and social sciences fields. Moreover, there was a shift in the medium of instruction from English to Sinhalese and Tamil, a move perceived as an apolitical endeavour for social justice.

However, this new approach diverged from the vision of the Kannangara-Ratnayake reforms, which aimed to strike a balance by using English as the language of instruction from the 3rd standard while promoting the use of swabhasha (Sinhala and Tamil) as the medium of instruction. The introduction of the new system marked a departure from the previous reform’s principles.

The historical context of education reforms in Sri Lanka dates to the era of IMRA Iriyagolla, during which the higher education system experienced significant upheaval. Although the specific details of the havoc caused during that time are not mentioned, it serves as a reminder that changes in the education sector have not always been smooth and have sometimes encountered challenges and controversies.

Subsequently, in response to the need for comprehensive administration and oversight of the country’s universities, the idea of establishing the University Grants Commission (UGC) emerged. The idea was mooted when Premadasa Udagama, Secretary of Education and the Director General of the Ministry of Education from 1970 to 1977. The UGC aimed to unify all universities under one administrative umbrella, streamlining processes and enhancing coordination among the higher education institutions. Establishing the UGC marked a significant step forward in Sri Lanka’s efforts to reform and improve the higher education system. This centralised approach sought to address various administrative and operational inefficiencies that might have hindered the optimal growth and development of universities. Through the UGC, the government aimed to ensure that universities received adequate funding, maintained high academic standards, and aligned their programmes with national development priorities. (To be continued)