National Education Policy (NEP2020) and its three-language formula have reignited a longstanding debate, particularly between the Centre and Tamil Nadu, which has its roots in the language controversy that dates back to the 1960s when the state opposed “imposition of Hindi” as a compulsory language. While the Centre asserts that the policy promotes multi-lingualism, TN argues that it pressures non-Hindi-speaking states. The Times of India examines the history of the three language formula and allegations of Hindi imposition.
Evolution of three-language formula
The formula was first proposed by the Education Commission (1964-66), officially known as the Kothari Commission, and officially adopted in the National Policy on Education (NPE) 1968 under then Prime Minister Indira Gandhi. It was reaffirmed in NPE 1986 under then PM Rajiv Gandhi and revised in 1992 by Narasimha Rao-led Congress govt to promote linguistic diversity and national unity.
The commission, chaired by physicist Dr Daulat Singh Kothari, recommended learning three languages:
- Mother tongue or regional language
- Official language of the Union
- A modern Indian or European language, other than the first two
NPE 1968 mandated: At the secondary stage, the state govts should adopt… which includes the study of a modern Indian language, preferably one of the southern languages, apart from Hindi and English in the Hindi-speaking states, and of Hindi along with the regional language and English in the non-Hindi-speaking states.
NPE 1986 and its 1992 revision reinforced this policy, emphasising for “A general consensus among the states about the use of Hindi as link language seems necessary. The effective implementation of the three-language formula is also necessary to promote adequate level of proficiency in the use of Hindi among people”.
The 1992 policy observed: “The implementation of this part (three-language) of the 1968 Policy has, however, been uneven. The Policy will be implemented more energetically and purposefully.”
NEP 2020: Is Hindi being imposed?
No. In fact, NEP 2020 allows more flexibility while ensuring no specific language is imposed. It states: “The three-language formula will continue to be implemented while keeping in mind the constitutional provisions, the need to promote multi-lingualism as well as promote national unity. However, there will be greater flexibility, and no language will be imposed on any state.”
NEP 2020 maintains that “the three languages learned by children will be the choices of states, regions, and ofcourse the students themselves, so long as at least two of the three languages are native to India”. This ensures state autonomy while promoting linguistic diversity and national unity.
Why the focus on learning in mother tongue?
NEP 2020 cites global experience to argue that native language instruction improves understanding, preserves culture, and helps students perform better. “Children learn and grasp non-trivial concepts more quickly in their home language/mother tongue”.
Unesco supports this, stating in ‘Education in a Multilingual World’: “Mother tongue instruction is essential for initial instruction and literacy and should be extended to as late a stage in education as possible.”
National Curriculum Framework and language education
NCF has consistently supported the three-language formula:
NCF 2023: “The three-language formula should continue to be implemented while keeping in mind constitutional provisions, multilingualism, and national unity.”
NCF 2005: “The multilingual cha racter of Indian society should be seen as a resource for the enrichment of school life.”
NCF 2000: “The three-language formula, which is an outcome of a national consensus, needs to be implemented in its true spirit promoting multilingualism and national harmony.”
TN’s rejection
The state has historically opposed thethree-language formula. In 1937, C Rajagopalachari’s Congress govt introduced compulsory Hindi in schools, sparking widespread protests led by the Justice Party and Dravidian leaders like Periyar. The policy was revoked in 1940, but anti-Hindi sentiments grew post-independence.
When the three-language formula was introduced in 1968, TN rejected it, viewing it as Hindi imposition. Under chief minister C N Annadurai, the state adopted a two-language policy (Tamil and English). TN remains the only state that has never implemented the three-language formula, preferring English over Indian languages — Hindi as well as regional ones.
Fresh trigger
TN’s refusal to implement important features the NEP, chiefly, the three-language formula, has resulted in the Centre withholding the release of Rs 573 crore of central assistance for education under the Samgra Shiksha Abhiyan. Rules requires states to comply with NEP guidelines in order to access SSA funding of which 60%, in case of a state like TN, comes from the Centre.
Launched in 2018, Samagra Shiksha Abhiyan has been strengthened under the NEP 2020 with an emphasis on experiential learning and foundational literacy.
The SSA funding structure varies based on the category of states and Union territories. For general states and UTs with legislatures, 60% of the funding is covered by the Centre. Northeastern and Himalayan states receive 90% central funding. UTs without legislatures receive full funding, with 100% covered by the Centre.
