Introduction

India’s linguistic diversity has always played a significant role in shaping its educational policies. One of the long-standing debates in Indian education revolves around the three-language formula, especially in states like Tamil Nadu, which have historically opposed its implementation. The recent tussle between the Union government and the Tamil Nadu government over this policy has once again brought language politics to the forefront. The issue has been further complicated by the delay in funds under the Samagra Shiksha Abhiyan, which Tamil Nadu perceives as pressure to comply with the National Education Policy (NEP) 2020.

Understanding the Three-Language Policy

The three-language formula was first introduced in the National Education Policy of 1968. It mandated that students in non-Hindi-speaking states should learn Hindi as one of their languages. However, this policy faced strong opposition in Tamil Nadu, which had witnessed protests against Hindi imposition even before independence. Consequently, Tamil Nadu steadfastly followed a two-language policy, teaching only Tamil and English in government schools.

The NEP 2020 has retained the three-language formula but with a crucial change—it does not impose any specific language on states. Instead, it allows states, regions, and students to choose the three languages, provided at least two of them are native to India. This flexibility aims to promote multilingualism while respecting regional linguistic preferences. However, Tamil Nadu remains skeptical and continues to resist any move that it perceives as an attempt to impose Hindi.

Why is Tamil Nadu Opposed to the Three-Language Policy?

Tamil Nadu has a long history of opposing Hindi imposition. The state has consistently argued that forcing students to learn Hindi would undermine Tamil, a classical language with a rich literary heritage.

1. Historical Resistance: The first major anti-Hindi agitation in Tamil Nadu took place in 1937 when the provincial government, under C. Rajagopalachari, tried to make Hindi compulsory in schools. This decision sparked widespread protests, and the move was eventually withdrawn. The opposition resurfaced in the 1960s, leading to mass agitations against the Centre’s attempts to make Hindi the sole official language. The intensity of these protests forced the government to enact the Official Languages Act, 1963, which allowed the continued use of English alongside Hindi for official purposes.

2. The Tamil Identity Factor: Tamil Nadu views the imposition of Hindi as a threat to its cultural and linguistic identity. Many in the state believe that learning Hindi provides no added advantage since English already serves as the language of business, technology, and global communication.

3. Skepticism Over the NEP 2020: While the new education policy claims not to impose Hindi, Tamil Nadu believes the three-language formula indirectly pressures states to introduce Hindi, especially since many central education schemes tie funding to compliance with national policies.

The Constitutional Perspective on Language

The Constitution of India lays down provisions regarding languages through various articles:

• Article 343 states that Hindi is the official language of the Union, but English was to continue as an official language for 15 years after independence. However, the Official Languages Act, 1963, ensured the indefinite use of English alongside Hindi.
• Article 345 allows state legislatures to adopt any language in use within the state or Hindi as the official language for state purposes.
• Article 351 directs the Union to promote the spread of Hindi to ensure it serves as a medium of expression for India’s composite culture. However, this provision has been a point of contention for non-Hindi-speaking states, which see it as official encouragement for Hindi domination.

Delays in Samagra Shiksha Abhiyan Funds

The Samagra Shiksha Abhiyan (SSA) is a flagship scheme of the Ministry of Education, aimed at improving school education across India. The Union government has reportedly delayed funds under this scheme for Tamil Nadu, citing non-compliance with the three-language formula. The Tamil Nadu government, however, views this as a political maneuver to pressure it into implementing Hindi in schools.

The funding structure of SSA reveals a critical imbalance:

• 85% of the revenue expenditure on elementary education is borne by state governments.
• The Centre contributes only 15% but exercises significant control over policy matters.

Given this financial reality, Tamil Nadu argues that the Centre should not dictate state education policies and that funding delays could severely impact students in government schools.

Challenges of a Third Language in Government Schools

Implementing a third language in government schools comes with several practical challenges:

1. Poor Learning Outcomes: Reports from the Annual Status of Education Research (ASER) by the Pratham NGO reveal serious learning deficiencies. The 2022 ASER report showed that:
   • 60% of Class V students could not read a Class II level text.
   • In 2023, 25% of students aged 14-18 could not read a Class II level text fluently in their regional language.
   • 40% of students in this age group struggled to read simple English sentences.
2. Given these poor learning outcomes, many educationists argue that introducing a third language would add an unnecessary burden on students who are already struggling with basic literacy and numeracy skills.
3. Resource Constraints: Government-run schools lack trained teachers and infrastructure to effectively teach a third language. If a third language is made compulsory, who will teach it? Will qualified teachers be recruited, or will existing teachers be overburdened?
4. Limited Proficiency Gains: Even in private schools, where a third language is taught until Class VIII, students rarely attain proficiency in that language. This raises questions about the effectiveness of compulsory third-language policies.

What the Census Data Tells Us About Multilingualism

The 2011 Census provides some insight into language proficiency in India:

• 26% of Indians are bilingual.
• 7% are trilingual.
• In urban areas, 44% are bilingual, and 15% are trilingual.
• In rural areas, the numbers drop to 22% and 5%, respectively.

With increasing urbanization and migration, the number of bilingual and trilingual Indians is expected to rise naturally. This suggests that people learn additional languages when needed without mandatory policies forcing them.

Way Forward: Balancing Language Learning with Practical Needs

Given India’s multilingual nature, learning more Indian languages is desirable. However, a forced approach could backfire, particularly in states that prioritize their regional languages over Hindi.

Recommendations for a Balanced Approach

1. Focus on Foundational Literacy: Before adding extra subjects, government schools must strengthen the teaching of the mother tongue/local language and English, along with foundational numeracy skills.
2. Flexibility in Language Policy: States should be given autonomy in deciding their language policies. A one-size-fits-all approach does not work in a country as diverse as India.
3. Incentivizing, Not Enforcing: Instead of compelling states to adopt a third language, the Centre could incentivize multilingual education by offering optional language learning programs.
4. Dialogue Between the Centre and Tamil Nadu: A constructive dialogue is necessary to ensure that funding for education is not delayed due to political disagreements.

Conclusion

While learning multiple languages is beneficial, the three-language formula should not be forced upon states. Given the historical, cultural, and practical challenges, states like Tamil Nadu should have the freedom to continue with their language policies. The focus should be on improving education quality rather than imposing language mandates. Only through a collaborative and flexible approach can India truly embrace its linguistic diversity while ensuring quality education for all.