Closing The Gap

Full text of Amartya Sen's speech to the Commonwealth education conference, Edinburgh, on TuesdayOctober 28, 2003

It is a great privilege for me to have the opportunity of speaking at this meeting of Commonwealthcountries on education. I am also very happy that you have chosen Edinburgh as the venue of this importantconference. I am very proud of my own association with Edinburgh, through being an alumnus of two universitieshere, Edinburgh University and Heriot-Watt University (admittedly my connections are only through honorarydegrees but they generate a sense of closeness to the real students here), and also through belonging to theRoyal Society of Edinburgh and having other associations with this great city. So I welcome you to beautifulEdinburgh and to its wonderful intellectual community, of which I am privileged to be a nomadic member, assomething of an academic gypsy. But to this welcome I must add my belief that there could not be a betterplace for a meeting on "closing the gap" in education than the city of Adam Smith and David Hume,the earliest and greatest champions of education for all.

Why is it so important to close the educational gaps, and to remove the enormous disparities in educationalaccess, inclusion and achievement? One reason, among others, is the importance of this for making the worldmore secure as well as more fair. HG Wells was not exaggerating when he said, in his Outline of History:"human history becomes more and more a race between education and catastrophe." If we continue toleave vast sections of the people of the world outside the orbit of education, we make the world not only lessjust, but also less secure.

The precariousness of the world is now greater than it already was in HG Wells's time in early twentiethcentury. Indeed, since the terrible events of September 11, 2001 - and what followed after that - the worldhas been very aware of problems of physical insecurity. But human insecurity comes in many different ways -not just though terrorism and violence. Indeed, even on the very day of September 11, 2001, more people diedfrom Aids than from physical violence including the atrocity in New York. Human insecurity can develop in manydifferent ways, and physical violence is only one of them. While it is important to fight terrorism andgenocide (and in this too, education can have a big role, as I will presently discuss), we must also recognisethe plural nature of human insecurity and its diverse manifestations.

As it happens, widening the coverage and effectiveness of basic education can have a powerfully preventiverole in reducing human insecurity of nearly every kind. It is useful to consider briefly the different ways inwhich removing discrepancies and neglects in education can contribute to reducing human insecurity across theworld.

The most basic issue relates to the elementary fact that illiteracy and innumeracy are forms of insecurityin themselves. Not to be able to read or write or count or communicate is a tremendous deprivation. Theextreme case of insecurity is the certainty of deprivation, and the absence of any chance of avoiding thatfate. The first and most immediate contribution of successful school education is a direct reduction of thisbasic deprivation - this extreme insecurity - which continues to ruin the lives of a large part of the globalpopulation, not least in the Commonwealth.

The difference that basic education can make to human life is easy to see. It is also readily appreciatedeven by the poorest of families. Speaking personally, it has been wonderful for me to observe how easily theimportance of education is perceived even by the poorest and the most deprived of families. This emerges fromsome studies on primary education in India that we are currently undertaking (through the "PratichiTrust" - a trust aimed at basic education and gender equity that I have been privileged to set up inIndia and Bangladesh through using my Nobel Prize money from 1998). As the results of our studies come in, itis remarkable to find how the parents from even the poorest and most depressed families long to give basiceducation to their children, to make them grow up without the terrible handicaps from which they - the parents- had themselves suffered.

Indeed, contrary to claims often made, we have not observed any basic reluctance by parents to send theirchildren - daughters as well as boys - to school, provided affordable, effective and safe schoolingopportunities actually exist in their neighbourhood. Of course, there are many obstacles in giving shape tothe dreams of parents. The economic circumstances of the families often make it very hard for them to sendtheir children to school, particularly when there are fees to be paid.

The obstacle of unaffordability must be firmly removed across the Commonwealth - indeed the world. I am, ofcourse, aware that some champions of the market system want to leave school fees to the market forces. Butthis cannot but be a mistake given the social obligation to give the essential opportunity of schooling to allchildren. Indeed, Adam Smith, who provided the classic analysis of the power and reach of the market mechanismtwo and quarter centuries ago, wrote eloquently, sitting in Kirkcaldy (not far from here), why it would bewrong to leave this to the market:

For a very small expence the publick can facilitate, can encourage, and can even impose upon almost thewhole body of the people, the necessity of acquiring those most essential parts of education.

There are other obstacles too. Sometimes the schools are very thinly staffed (many primary schools indeveloping countries have only one teacher), and parents are often worried about the safety of children,especially girl children (particularly in case the teacher fails to turn up, which seems to happen oftenenough in many of the poorer countries). Quite often, the parents' reluctance has a rational basis, and thesegaps too need to be addressed.

There are other barriers as well. Very poor families often rely on labour contributions from everyone, eventhe children, and this can compete with the demands of schooling. This unfortunate practice, though generatedout of hardship, must also be removed, through regulation as well as by making the economic benefits ofschooling clearer to all. This brings us to the second issue in understanding the contribution of schooling inremoving human insecurity. Basic education can be very important in helping people to get jobs and gainfulemployment. This economic connection, while always present, is particularly critical in a rapidly globalisingworld in which quality control and production according to strict specification can be crucial.

Not surprisingly, all the cases of speedy use of the opportunities of global commerce for the reduction ofpoverty have drawn on help from basic education on a wide basis. For example, in Japan, already in themid-19th century the task was seen with remarkable clarity. The Fundamental Code of Education, issued in 1872(shortly after the Meiji restoration in 1868), expressed the public commitment to make sure that there must be"no community with an illiterate family, nor a family with an illiterate person". Thus - with theclosing of educational gaps - began Japan's remarkable history of rapid economic development. By 1910 Japanwas almost fully literate, at least for the young, and by 1913, though still very much poorer than Britain orAmerica, Japan was publishing more books than Britain and more than twice as many as the United States. Theconcentration on education determined, to a large extent, the nature and speed of Japan's economic and socialprogress.

Later on, particularly in the second half of the 20th century, South Korea, China, Taiwan, Hong Kong,Singapore, and other economies in East Asia followed similar routes and firmly focused on general expansion ofeducation. Widespread participation in a global economy would have been hard to accomplish if people could notread or write, or produce according to specifications or instructions, or to have quality control.

Third, when people are illiterate, their ability to understand and invoke their legal rights can be verylimited, and educational neglect can also lead to other kinds of deprivation. Indeed, this tends to be apersistent problem for people at the bottom of the ladder, whose rights are often effectively alienatedbecause of their inability to read and see what they are entitled to demand and how. The educational gapclearly has a class connection.

It also has a gender connection since it can be a very important issue for women's security. Women areoften deprived of their due, thanks to illiteracy. Not being able to read or write is a significant barrierfor underprivileged women, since this can lead to their failure to make use even of the rather limited rightsthey may legally have (say, to own land, or other property, or to appeal against unfair judgment and unjusttreatment). There are often legal rights in rulebooks that are not used because the aggrieved parties cannotread those rulebooks. Gaps in schooling can, thus, directly lead to insecurity by distancing the deprived fromthe ways and means of fighting against that deprivation.

Fourth, illiteracy can also muffle the political opportunities of the underdog, by reducing their abilityto participate in political arena and to express their demands effectively. This can contribute directly totheir insecurity, since the absence of voice in politics can entail a severe reduction of influence and thelikelihood of just treatment of those who are kept on the wrong side of the gap.

Fifth, basic education can play a major role in tackling health problems in general and epidemics inparticular. It is easy to see the importance of specialised health education (for example, on the wayinfections spread and how diseases can be prevented). But even general education can broaden a person's linesof thinking and generate social understanding in ways that may be extremely important in facingepidemiological problems. Indeed, some studies have suggested that general school education has a biggerimpact on health than specialised health education itself has.

Sixth, empirical work in recent years has brought out very clearly how the relative respect and regard forwomen's well-being is strongly influenced by women's literacy and educated participation in decisions withinand outside the family. Even the survival disadvantage of women compared with men in many developing countries(which leads to such terrible phenomenon as a hundred million of "missing women") seems to go downsharply - and may even get eliminated - with progress in women's empowerment, for which literacy is a basicingredient.

There is also considerable evidence that fertility rates tend to go down sharply with greater empowermentof women. This is not surprising, since the lives that are most battered by the frequent bearing and rearingof children are those of young women, and anything that enhances their decisional power and increases theattention that their interests receive tends, in general, to prevent over-frequent child bearing. For example,in a comparative study of the different districts within India, it has clearly emerged that women's educationand women's employment are the two most important influences in reducing fertility rates. In that extensivestudy, female education and employment are the only variables that have a statistically significant impact inexplaining variations in fertility rates across more than three hundred districts that make up India. Inunderstanding inter-regional differences, for example the fact the state of Kerala in India has a fertilityrate of only 1.7 (which can be roughly interpreted as 1.7 children on average per couple) in contrast withmany areas which have four children per couple (or even more), the level of female education provides the mosteffective explanation.

There is also much evidence that women's education and literacy tend to reduce the mortality rates ofchildren. These and other connections between basic education of women and the power of women's agency (andits extensive reach) indicate why the gender gap in education produces heavy social penalties.

I have so far concentrated on gaps in access, inclusion and achievement that differentiate one group ofpeople from another. But this is also a good occasion to reflect a little on the gaps - of a very differentkind - that exist in the coverage of the school curriculum. The nature of the curriculum is, of course, ofobvious relevance to the development of technical skills (such as computing) that facilitate participation inthe contemporary world. But there are also other issues involved, since schooling can be deeply influential inthe identity of a person and the way we see ourselves and each other.

This issue has received some attention recently in the special context of the role of fundamentalistreligious schools, and there is need to pay attention to the narrowing of horizons, especially of children,that illiberal and intolerant education can produce. It is also important to recognise that lack of publicfacilities for the schooling of children often contributes greatly to the appeal and popularity of religiousschools run by political militants.

Indeed, the nature of education is quite central to peace in the world. Recently the very deceptiveperspective of the so-called "clash of civilisations" (championed particularly by Samuel Huntington)has gained much currency. It is important to see that what is most immediately divisive in this kind oftheorising is not the silly idea of the inevitability of a clash (that too, but it comes later), but theequally shallow prior insistence on seeing human beings in terms of one dimension only, regarding them just asmembers of one civilisation or another (defined mostly in terms of religion), ignoring their otheraffiliations and involvements.

There are two mistakes here. First, the classification is very crude. For example, India is put in the boxof Hindu civilisation, even though with its 130 million Muslims (more than the entire British and Frenchpopulations put together), India has many more Muslims than most so-called "Muslim countries" in theworld. Huntington's classification gives comfort only to Hindu sectarians.

The second mistake is to assume that a person's religion defines him or her reasonably adequately. Butevery human being's identities have many different components, related to nationality, language, location,class, occupation, history, religion, political beliefs, and so on. A Bangladeshi Muslim is not only a Muslim,but also a Bengali and possibly quite proud of the richness of the Bengali literature and other culturalachievements. Similarly, the history of the Arab world with which an Arab child today can potentially relatedis not only the achievements of Islam (important as they are), but also the great secular accomplishments inmathematics, science and literature which are part and parcel of Arab history. Even today when a scientist in,say, the Imperial College uses an "algorithm," he or she unconsciously celebrates the innovativenessof the ninth-century Arab mathematician, Al-Khwarizmi, from whose name the term algorithm is derived (the term"algebra" comes from his book, "Al Jabr wa-al-Muqabilah").

To define people just in terms of religion-based classification of civilisations can itself contribute topolitical insecurity, since in this view people are seen as simply belonging to, say, "the Muslimworld," or "the Western world," or "the Hindu world," or "the Buddhistworld," and so on. To ignore everything other than religion in classifying people is to set people up inpotentially belligerent camps. I personally believe that even the UK government makes a mistake in expanding,rather than reducing faith-based state schools, adding for example Muslim schools, Hindu schools and Sikhschools to pre-existing Christian ones, especially when the new religious schools leave children very littleopportunity to cultivate reasoned choice and decide how the various components of their identities (relatedrespectively to language, literature, religion, ethnicity, cultural history, scientific interests, etc) shouldreceive attention. There is need not only to discuss the importance of our common humanity, but also to stressthe fact that our diversities can take many distinct forms and that we have to use our reasoning to decide howto see ourselves.

The importance of non-sectarian and non-parochial curricula that expand, rather than reduce, the reach ofreason can be hard to exaggerate. Shakespeare talked about the fact that "some men are born great, someachieve greatness, and some have greatness thrust upon them." In the schooling of children, we have tomake sure that we do not have smallness thrust upon the young.

The idea of the Commonwealth has something to offer on the philosophy behind such a broad approach. TheQueen herself, as the head of the Commonwealth, put the basic perspective with clarity and force half acentury ago, shortly after her coronation, in 1953:

The Commonwealth ... is an entirely new conception built on the highest qualities of the spirit of man:friendship, loyalty and the desire for freedom and peace.