Introduction

Education stands as the bedrock of human development, a force capable of unlocking individual potential and driving societal transformation. The words of Swami Vivekananda “Education is the manifestation of the perfection already in man” resonate with the belief that learning is not merely an external process but an awakening of innate capabilities. Mahatma Gandhi further expanded this vision, advocating for education to nurture the holistic development of a child’s physical, emotional, and intellectual faculties. Globally, the recognition of education as a fundamental human right has been enshrined in frameworks such as UNESCO’s Education for All (1990) and the United Nations’ Sustainable Development Goals (SDG 4), which emphasize inclusive, equitable, and quality learning opportunities for all. In India, constitutional mandates like Article 21-A and the Right to Education Act (2009) reflect the nation’s commitment to translating this vision into reality. Yet, decades after independence, the chasm between enrollment and learning outcomes persists, casting a shadow over the promise of education as a tool for empowerment.

By 2022, India had achieved near-universal enrollment at the elementary level, with 98.4% of children aged 6–14 attending school. However, this quantitative success masked a qualitative crisis. The Annual Status of Education Report (ASER) revealed stark realities: only 20.5% of Grade 3 students could read Grade 2-level text, and 25.9% struggled with basic subtraction. Similarly, the National Achievement Survey (NAS) highlighted declining proficiency in language and mathematics, with learning outcomes stagnating or regressing across grades. This paradox—children attending school but not learning—has been termed the “learning crisis,” a phenomenon exacerbated by the COVID-19 pandemic. Prolonged school closures disrupted education for over 250 million Indian children, disproportionately affecting marginalized communities and widening pre-existing inequities. The World Bank’s “learning poverty” metric, which estimates that 55% of Indian children cannot read and comprehend a simple text by age 10, underscores the urgency of addressing foundational skill gaps.

Foundational Literacy and Numeracy (FLN)—the ability to read, write, and perform basic arithmetic—forms the cornerstone of all future learning. Research in cognitive development underscores that 90% of brain growth occurs by age 5, making early childhood a critical window for skill acquisition. Children who fall behind in these formative years rarely catch up, trapped in a cycle of academic underachievement termed the “Mathew Effect.” The economic implications are profound: studies estimate that each cohort’s lack of FLN proficiency costs India up to 7.39% of potential GDP growth. Recognizing this, the National Education Policy (NEP) 2020 prioritized universal FLN proficiency by Grade 3, operationalized through the National Initiative for Proficiency in Reading with Understanding and Numeracy (NIPUN Bharat) in 2021.

Against this backdrop, Project PATHA (Problem Identification, Analysis and Diagnosis, Training of Stakeholders, Handholding in Remedial Phase, and Assessment of Impact) emerged as a pioneering intervention in Gujarat’s Mahesana district. Conceptualized by the district administration, the project aimed to bridge FLN gaps through a structured, five-pillar approach. It combined diagnostic assessments to identify learning levels, capacity-building workshops for teachers, contextually designed pedagogical materials, community engagement, and continuous monitoring. Implemented across 994 government schools, Project PATHA targeted 1.38 lakh students in Grades 3–8, with a focus on marginalized groups, including Scheduled Castes (SCs), Scheduled Tribes (STs), and girls. Its success in improving FLN outcomes earned it the Prime Minister’s Award for Excellence in Public Administration in 2022, positioning it as a model for scalable educational reform.

This study delved into the design, execution, and impact of Project PATHA, exploring its role as a microcosm of India’s broader FLN challenges and solutions. By examining its strategies—such as the use of grade-specific “assessment ladders,” teacher training modules, and community-driven accountability mechanisms—the research illuminated pathways to translate policy into practice. It also interrogated the systemic barriers to sustaining such initiatives, from resource constraints to pedagogical resistance, while highlighting the potential for replication in diverse socio-educational contexts. In doing so, the study contributed to global discourse on equitable education, offering lessons for policymakers striving to transform classrooms into spaces where every child could thrive.

Background

Project PATHA was initiated in the Mahesana District of Gujarat as a targeted response to the pressing need for improving foundational literacy and numeracy skills among students in government schools. Launched in September 2021, shortly after the introduction of the NIPUN Bharat Mission, the project aimed to address the significant learning gaps that emerged during the COVID-19 pandemic, which had disrupted traditional educational practices and adversely affected students' learning outcomes.

The project was structured around a comprehensive framework that included several key components:

1. Problem Identification: The first step involved conducting diagnostic assessments to ascertain the baseline FLN skills of students in grades 3 to 8. These assessments were designed to identify specific areas of weakness in reading, writing, and numeracy, allowing for targeted interventions.

2. Capacity Building: A Foundational Literacy and Numeracy Task Force was established, comprising expert teachers who were responsible for developing instructional materials, training educators, and providing ongoing support. This task force played a crucial role in ensuring that teachers were equipped with the necessary skills and resources to effectively teach FLN skills.

3. Implementation of Learning Materials: The project developed tailored learning materials, including worksheets and guidelines, specifically designed to enhance students' FLN skills. These materials were made available in both printed and digital formats, ensuring accessibility for all students.

4. Continuous Monitoring and Assessment: To track progress, regular assessments were conducted to evaluate students' improvement in FLN skills. The use of an assessment ladder allowed teachers to monitor each student's performance and identify those who required additional support.

5. Community Engagement: Recognizing the importance of community involvement, Project PATHA emphasized collaboration among educators, parents, and local self-governing institutions (LSGIs). This engagement was crucial for fostering a supportive learning environment and ensuring that parents were informed and involved in their children's education.

The implementation of Project PATHA was marked by a commitment to innovation and collaboration, resulting in significant improvements in students' FLN skills. The project not only aimed to enhance academic performance but also sought to instill a sense of ownership and responsibility among all stakeholders involved in the educational process.

Literature Review

The discourse surrounding foundational literacy and numeracy (FLN) is deeply rooted in global commitments to education as a fundamental human right. The Universal Declaration of Human Rights, adopted by the United Nations in 1948, recognized education as essential for the "full development of the human personality." This foundational vision was further operationalized at the World Conference on Education for All held in Jomtien, Thailand, in 1990. At this conference, UNESCO emphasized the importance of learning outcomes over mere enrollment figures, asserting that education must equip learners with "useful knowledge, reasoning ability, skills, and values" (UNESCO, 1990). This shift in focus laid the groundwork for subsequent global initiatives aimed at improving educational quality and access.

The Millennium Development Goals (MDGs), established in 2000, and later the Sustainable Development Goals (SDGs), adopted in 2015, reinforced the commitment to equitable and quality education. Specifically, SDG 4 prioritizes ensuring inclusive and equitable quality education and promoting lifelong learning opportunities for all. However, despite these global efforts, the World Development Report (World Bank, 2018) revealed persistent "learning poverty," with over 50% of children in low-income countries unable to read a basic text by age 10. This alarming statistic underscores the urgent need for effective educational interventions that address the foundational skills necessary for future learning.

In the Indian context, the Annual Status of Education Report (ASER), initiated by Pratham in 2005, has been instrumental in exposing systemic failures in translating enrollment into meaningful learning outcomes. The longitudinal data collected by ASER from 2007 to 2023 highlighted stagnant literacy and numeracy levels, a trend exacerbated by the COVID-19 pandemic. For instance, ASER 2022 reported that only 20.5% of Grade 3 students could read Grade 2-level text, marking a decline from pre-pandemic levels (ASER, 2023). Similarly, the National Achievement Survey (NAS) conducted by the National Council of Educational Research and Training (NCERT) revealed stagnant scores in mathematics and language, underscoring pedagogical inefficiencies and the need for targeted interventions.

A study by Kaffenberger, (2019) emphasized the significance of early childhood education, noting that 90% of brain development occurs by age five. This critical period is essential for establishing foundational skills, as early deficits in FLN create irreversible gaps in learning trajectories. The findings from various studies indicate that children who do not acquire these foundational skills are at a higher risk of falling behind, leading to long-term educational disadvantages.

In response to the educational crisis, the National Education Policy (NEP) 2020 prioritized FLN as an "urgent national mission," operationalized through the NIPUN Bharat Mission launched in 2021. The NIPUN Bharat framework drew on global evidence, such as Kenya’s Tusome programme, where Piper et al., (2018) demonstrated that scripted lessons and teacher coaching significantly improved reading outcomes. Similarly, Taylor’s, (2019) study of South Africa’s FundaWande highlighted the effectiveness of phonics-based instruction in multilingual contexts. These international examples provided valuable insights for India as it sought to enhance its educational practices.

State-led initiatives, such as Uttar Pradesh’s Mission Prerna and Haryana’s Saksham, aimed to integrate technology into teaching and learning processes. However, challenges related to scalability and sustainability were noted in the Central Square Foundation Report (2022), which identified teacher motivation and data-driven monitoring as critical success factors for these initiatives.

Project PATHA, implemented in Gujarat’s Mahesana district, emerged as a localized response to the challenges of improving FLN skills. The project was designed with a five-pillar strategy that included diagnostic assessments, teacher training, grade-specific "assessment ladders," community engagement, and continuous monitoring. This approach mirrored the Teaching at the Right Level (TaRL) methodology but innovated by integrating these elements district-wide. The FLN Task Force in Mahesana developed Gujarati-language materials and digitized training modules on the DIKSHA portal, ensuring scalability and accessibility.

By December 2022, the project reported that 73% of the district’s 1.38 lakh students showed improved FLN skills, with marginalized groups, including Scheduled Castes (SC), Scheduled Tribes (ST), and girls, registering significant gains. The success of Project PATHA was recognized through the PM Award for Excellence in Public Administration in 2022, underscoring its alignment with global best practices while addressing India’s unique socio-educational context.

Despite its achievements, challenges such as resource constraints and pedagogical resistance persisted during the implementation of Project PATHA. Studies by Hwa et al., (2020) and the Central Square Foundation, (2022) highlighted the need for ongoing support and training for educators to ensure the sustainability of the project’s impact. Nevertheless, the emphasis on inclusivity and the collaborative approach adopted by Project PATHA offer a replicable model for low-resource settings, bridging the gap between policy intent and grassroots impact.

In summary, the literature on foundational literacy and numeracy underscores the critical importance of early educational interventions in shaping children's learning trajectories. Project PATHA stands as a testament to the potential for innovative, community-driven approaches to improve educational outcomes, particularly for marginalized populations. As the study unfolded, it further explored the intricacies of Project PATHA, its implementation strategies, and the lessons learned that could inform future educational initiatives across India.

Objectives

The primary objective of this study was to evaluate the effectiveness of Project PATHA in improving foundational literacy and numeracy (FLN) skills among students in Mahesana District. The study aimed to identify the challenges faced during the implementation of Project PATHA and assess their impact on the project's outcomes. Additionally, it sought to explore the perspectives of various stakeholders, including teachers, parents, and representatives of Local Self-Governing Institutions (LSGIs), regarding the project's implementation and effectiveness.

Furthermore, the study aimed to analyze the scalability and replicability of Project PATHA in other districts across India, taking into account the unique socio-educational contexts. Finally, the research intended to provide recommendations for future educational initiatives aimed at enhancing FLN skills and promoting inclusive education.

The study sought to address the following major research questions:

• What are the principal strategies and main features of Project PATHA that contributed to its success?

• What challenges did the district administration face during the implementation of Project PATHA?

• What impact did Project PATHA have on the foundational literacy and numeracy outcomes of students in Mahesana District?

Methodology 

This study employed a mixed-methods research design to evaluate the effectiveness of Project PATHA in improving foundational literacy and numeracy (FLN) skills among students in Mahesana District. Quantitative data were collected through diagnostic assessments administered to approximately 1.38 lakh students in grades 3 to 8, measuring their reading, writing, and numeracy competencies, alongside structured surveys distributed to teachers, parents, and representatives of Local Self-Governing Institutions (LSGIs) to gather perceptions on the project's effectiveness. Qualitative data were obtained through semi-structured interviews with key stakeholders, including teachers and district officials, as well as focus group discussions with parents, providing deeper insights into the implementation strategies and challenges faced. A purposive sampling technique was utilized to select participants, and data were analyzed using descriptive statistics for quantitative data and thematic analysis for qualitative data. While the study aimed for comprehensive evaluation, limitations such as potential bias in self-reported data and the specific context of Mahesana District were acknowledged.

Findings

Data collected, from the office of the District Primary Education Officer (DPEO), Mahesana, and by two surveys to ascertain the efficacy of the multi-faced approach and the satisfaction level of stakeholders, has been analyzed. The succeeding paragraphs contain the findings drawn after analyzing the data.

One of the most important findings is that there is a significant improvement in student’s learning outcomes in foundational skills and marked improvement in overall performance across all sub-districts of Mahesana. Figure 1 shows the performance of children across various sub-districts of the Mahesana district. The learning profile witnessed steepening after planned interventions on the expected line as improvement in foundational skills enhances a child’s ability to learn at subsequent times. Improvements in the last 03 months are more than in the first 09 months. The stated fact is also proved by the results of the first semester exams held in Oct 2022 in Gujarat. The results of Mahesana district in all five FLN-related subjects (Hindi, English, Sanskrit, Gujarati, and Mathematics) were better than the state average in all the standards from 3 to 8.

The second important finding is that three sub-districts viz. Mahesana, Satlasana, and Unjha witnessed an increase, contrary to expectations, in the number of students scoring less than 40% marks after Sep 2021. This worrisome trend indicates that children, FLN teachers, and FLN headteachers in these sub-districts are yet to imbibe and internalize FLN skills. The number of Average students also traced an increasing trend in the Kadi, Visnagar, and Unjha sub-districts of Mahesana district. Even the sub-district of Unjha depicted yet niggling or incommodious declining trend in the numbers of ‘Good’ students These trends demand continuity of the project with renewed energy and focus in three sub-districts, particularly in the sub-district of Unjha (Figures 2, 3, and 4).

Figure 1: Overall Performance Improvement of Students across Sub-districts of Mahesana district from 2021 to 2022

Figure 2: Change in numbers of Students scoring less than 40% across various Sub- districts of Mahesana district (Dec 2021 to Dec 2022)

Figure 3- Change in number of students scoring between 40%-80% across various sub-districts of Mahesana district between Dec 2021- Dec 2022

Figure 4-Change in number of students scoring more than 80% across various sub-districts in Mahesana district between Dec 2021- Dec 2022

Qualitative Data Analysis

1. Effective Implementation Strategies

Stakeholders emphasized the importance of several strategies that contributed to the successful implementation of Project PATHA:

• Participants noted that the use of diagnostic assessments at the beginning of the project allowed for a clear understanding of students' baseline skills. This data-driven approach enabled teachers to tailor their instruction to meet the specific needs of their students.

• Teachers reported feeling more confident and equipped to teach foundational literacy and numeracy skills after receiving targeted training. The training sessions focused on practical teaching methods and included resources that teachers could use in the classroom.

2. Community Engagement

• Parents expressed appreciation for the increased communication from schools regarding their children's education. Many parents reported feeling more engaged and informed about the educational initiatives, which fostered a sense of ownership and responsibility for their children's learning.

• Representatives from LSGIs highlighted their role in supporting the project by facilitating community meetings and encouraging parental participation. This collaboration helped to create a supportive environment for students and teachers.

3. Challenges Faced

Despite the successes, stakeholders identified several challenges that impacted the implementation of Project PATHA:

• Resource Constraints: Many teachers mentioned a lack of adequate resources, such as teaching materials and classroom supplies, which hindered their ability to implement the new teaching strategies effectively.

• Resistance to Change: Some educators expressed resistance to adopting new teaching methods, preferring traditional approaches. This resistance posed a challenge to fully realizing the potential benefits of the project.

• Need for Ongoing Support: Stakeholders emphasized the importance of continuous professional development and support for teachers. Many felt that ongoing training and resources were necessary to sustain the improvements achieved through the project.

4. Impact on Marginalized Groups

The project had a notable impact on marginalized groups, including Scheduled Castes (SC), Scheduled Tribes (ST), and girls:

• Increased Access to Education: Focus group discussions revealed that the project helped to bridge the educational gap for marginalized students. Many parents reported that their children, particularly girls, were now more motivated to attend school and engage in learning.

• Improved Learning Outcomes: Stakeholders observed significant gains in foundational literacy and numeracy skills among marginalized groups. Teachers noted that targeted interventions and inclusive practices contributed to these improvements.

Recommendations

1. Targeted Interventions for Underperforming Sub-Districts: Sub-districts such as Unjha and Mahesana should be designated as FLN Priority Zones, where intensified monitoring, additional resources, and tailored remedial programmes will be provided. Underperforming schools should be paired with high-performing ones for peer learning and on-site coaching by master trainers. Awareness campaigns should be conducted to improve parental engagement and reduce absenteeism in lagging areas.

2. Institutionalization of Automated Tracking Systems: An Automated Student Tracking and Feedback System (ASTFS) should be developed to digitize assessments, learning ladders, and progress reports. AI-driven analytics should be integrated to identify gaps and recommend interventions, while parents should be given login access to track their child’s FLN progress, fostering accountability and enhancing home-school collaboration.

3. Strengthening of Teacher Capacity and Workload Management: The DIKSHA portal should be expanded with modules offering micro-credentials for FLN mastery, combining online courses with quarterly in-person workshops. Dedicated FLN hours should be allocated within school timetables to balance foundational skill development with curriculum demands.

4. Scaling of Playful Learning Pedagogies: State-funded playbooks featuring games, storytelling, and hands-on activities aligned with FLN competencies should be developed, including phonics games for literacy and number puzzles for numeracy. Cluster-level toy libraries should be established in rural areas to promote experiential learning.

5. Enhancement of Digital Infrastructure: Funds should be allocated to equip rural schools with tablets, projectors, and offline DIKSHA content for tech-enabled FLN delivery. Mobile vans with learning kits should be deployed to remote areas for summer and winter remedial camps.

6. Introduction of Competitive Accountability Mechanisms: Biannual standardized FLN assessments should be conducted at state and district levels, with sub-districts and schools publicly ranked to foster healthy competition. Top-performing schools should be rewarded with infrastructure grants, and career advancement opportunities should be provided for teachers.

7. Policy Integration and Funding: Dedicated FLN budgets should be mandated in state education plans to ensure sustained funding for teacher training, materials, and monitoring. The framework of Project PATHA should be aligned with NIPUN Bharat’s national guidelines to ensure seamless scalability.

Conclusion

The implementation of Project PATHA in Mahesana District has demonstrated a significant impact on improving foundational literacy and numeracy (FLN) skills among students. Through a comprehensive approach that included targeted interventions, community engagement, and robust teacher training, the project has successfully addressed the critical challenges faced in the educational landscape. The quantitative data revealed substantial improvements in student performance, with notable reductions in the percentage of students scoring below 40% in both reading and mathematics across various grades. Qualitative insights from stakeholders further highlighted the effectiveness of diagnostic assessments, the importance of parental involvement, and the need for ongoing support and resources.

Despite the successes, challenges such as resource constraints and resistance to change were identified, underscoring the necessity for continued efforts to sustain and enhance the gains achieved. The recommendations provided in this study aim to build on the foundation laid by Project PATHA, advocating for targeted interventions in underperforming sub-districts, the institutionalization of automated tracking systems, and the strengthening of teacher capacity. By fostering a culture of accountability and integrating playful learning pedagogies, the potential for further improvements in FLN outcomes can be realized.

Ultimately, the findings of this study contributed to the broader discourse on educational reform in India, emphasizing the importance of inclusive and equitable access to quality education. As Project PATHA aligns with national initiatives such as NIPUN Bharat, the lessons learned from this implementation can inform future educational policies and practices, ensuring that all children, regardless of their background, have the opportunity to achieve foundational literacy and numeracy skills essential for lifelong learning and success.

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