Towards Inclusive Education— A Critical Examination of Inclusion of Transgender Children in School Education: Concerns and Roadmap

Abstract

Despite steady progress in educational reforms, the National Education Policy (NEP) 2020 acknowledges the persistent disparity in bridging the gender gap. It emphasises the necessity for gender sensitisation towards women and transgender individuals as a critical skill for both students and teachers. In this context, the National Council of Educational Research and Training (NCERT) published a manual, Inclusion of Transgender Children in School Education: Concerns and Roadmap (2021). It provided a legal, historical overview and the categorisation of the transgender identity within the present scenario. However, the removal of this text and the redrafting of a new manual a year later highlight the need to train teachers to enable a gender-sensitive school environment. This article attempts to understand the reconceptualisation of the word ‘manual’ by highlighting the inclusion of testimonials from the transgender community. Furthermore, the researchers aim to analyse how the inclusion of regional and English terminology challenges the binary understanding of gender for teachers. A textual analysis is conducted to examine the need for and concerns raised in the book. Additionally, the article also studies the ‘backlash’ it received, which forced the retraction of the book. Through this exploration, the article seeks to contribute to the ongoing discourse on gender inclusivity in education, advocating for systemic changes that support transgender students.

Introduction

The National Education Policy 2020 (NEP 2020) was approved by the Union Cabinet in 2020. ¹ It replaced the National Policy of Education (1986). ² The policy focused on bringing significant changes in the existing educational structure, encompassing school education, higher education and vocational education. The present article focuses on the measures taken by the NEP 2020 regarding inclusive education, specifically, transgender students. Before we assess the process of inclusion, as directed by the document, we need to understand who is considered transgender. According to the legal definition, as stated by The Transgender Persons (Protection of Rights) Act, 2019 defines ‘transgender person’ as a person whose gender does not match with the gender assigned to that person at birth and includes trans man or trans woman (whether or not such person has undergone Sex Reassignment Surgery or hormone therapy or laser therapy or such other therapy), person with intersex variations, genderqueer and person having such socio-cultural identities as kinner, hijra, aravani and jogta. ³ However, the legal recognition as a third gender does not stop the exclusion of the community from different spaces, specifically education. The NEP 2020 document clearly states that the marginalised sections are underrepresented within the domain of education. Section 6.2 of the NEP 2020 document categorises the socio-economically disadvantaged groups (SEDGs) into five sections based on their gender identities, socio-cultural identities, geographical identities, disabilities and socioeconomic identities. ¹ Of the five sections demarcated here, the article will engage with the first section. Under the section on gender identities, the document mentions two groups: female and transgender. It is the latter that the present article intends to focus on. As the document focuses on inclusive and equitable education, we must also accept the need to educate and equip teachers to develop a comprehensive approach.

It is in this regard that the National Council for Education Research and Training (NCERT) published a manual in 2021 for teachers titled Inclusion of Transgender Children in School Education: Concerns and Roadmap. ⁴ This manual is aimed at ‘sensitisation of teachers and teacher educators regarding aspects of gender diversity, keeping gender-nonconforming and transgender children at centre stage’. ⁴ However, the backlash it faced led to its removal. The concerns raised viewed it as a threat. This view was based on a misguided understanding of the objective behind the release of the manual. Furthermore, the discussion of the draft manual titled ‘Integrating Transgender Concerns in Schooling Processes’ highlights the need to focus on creating an inclusive school environment. As mentioned above, the present article intends to focus on the 2021 manual. The objective is to understand how the text transcended beyond its conventional understanding. Traditionally, a manual is expected to be an instructional guide for the reader. The reader is expected to get relevant information and apply it accordingly. The 2021 manual, while adhering to this objective, also brought in the historical, social and political perspective. The aim of sensitising the teachers and teacher educators, as discussed by the manual, is not done through a series of checklists. Rather, what is focused on is diversification. The inclusion of personal narratives, regional vocabulary and discussion of personal biases enables approaching the objective of inclusion from different vantage points. ⁴

Literature Review

Most recent developments indicate a significant shift in India’s legal approach to transgender rights. The proposed 2026 Amendment bill to The Transgender Persons (Protection of Rights) Act, 2019, moves away from the principle of self-perceived gender identity. ⁵ The proposed definition says transgender persons are people ‘having such socio-cultural identities as kinner, hijra, aravani and jogta or eunuch’, people with intersex variations, and people who have ‘congenital variations’ compared to the ‘male or female development’ in their ‘primary sexual characteristics, external genitalia, chromosomal patterns, gonadal development, endogenous hormone production or response or such other medical conditions’. ⁶ It has received strong resistance from activists as it seeks to narrow the identity of a trans individual. This proposition presupposes the trans identity as defined in medical or societal discourse. It ignores the individual’s autonomy to determine their own gender identity, even though the 2019 judgement clearly affirmed the right to self-perceived gender identity. In 2021, the teacher-training manual was developed by experts in Gender Studies and Education to sensitise teachers to the needs of transgender, gender non-conforming and gender non-binary students. It emphasised that all children, regardless of gender identity, have a constitutional right to education and a safe school environment. ⁴ Despite its progressive aim, the manual faced online backlash and pressure from the National Commission for Protection of Child Rights (NCPCR), leading to its removal from the NCERT website. ⁷ This broader pattern of contestation between inclusive frameworks and institutional pushback is also visible within the education sector. The transgender community has long faced social, cultural and legal exclusion in Indian society. Despite the legal recognition (NALSA v. Union of India, 2014) as a third gender, they remain at the periphery and, most importantly, are excluded from education. In certain contexts, attempts are made to create an inclusive space for transgender students in educational spaces; however, high dropout rates and low enrolment are common, as they face bullying, harassment and a lack of acceptance in schools. ⁸ Therefore, formal education for transgender people remains uncommon in India. ⁹ Garai Monojit highlights the challenges faced by the transgender community in accessing education, despite India’s legal frameworks supporting their right to education, as established by the Universal Declaration of Human Rights. ¹⁰ Administrative challenges also hinder the effective inclusion of transgender individuals in the Indian education system. Thachappilly emphasises the administrative hurdles and dropout rates faced by transgender students, citing the lack of gender-neutral facilities and supportive committees as major obstacles. ¹¹ Access to higher education for transgender students in educational institutions is another major concern. News18 reports on the absence of transgender students in central universities, despite enrolment in open universities like Indira Gandhi National Open University (IGNOU), emphasising the need for stronger institutional support and more sensitive policies. ¹² Similarly, Barman examines how societal stigmas and legal barriers deter transgender inclusion in higher education, calling for critical reforms to create a more supportive environment. ¹³ Transgender literacy is not only a legal issue but also a matter of societal preparedness and acceptance. The inclusion of transgender children in India’s school education system remains a complex issue, reflecting both policy challenges and societal attitudes. Following the 2014 Supreme Court recognition of transgender people as a third gender, the Central Board of Secondary Education (CBSE) and some state boards introduced a separate category for them, though many states still await formal requests from transgender individuals to implement this change. ¹⁴ Das highlights the historical neglect of transgender individuals, focusing on the educational barriers they face and the need for inclusive practices. ¹⁵ The NCERT’s new draft module proposes measures like gender-neutral uniforms but neglects broader intersectional issues. ¹⁶ The Wire also reported on the removal of a teacher-training manual aimed at fostering transgender-inclusive education, highlighting resistance from conservative groups and the NCPCR. ¹⁷ However, the removal of the NCERT teacher-training manual has significant implications for the well-being and educational experiences of transgender students in India. Schools may continue to lack proper sensitisation, discrimination, bullying and mental health issues for these students. It may lead to the violation of the constitutional right to education for all, raising concerns about the societal and institutional readiness to support transgender inclusivity in the Indian education system.

Methodology

The article employs a qualitative textual analysis of the NCERT manual. It engages with its content, structure, testimonials and the conceptualisation of gender inclusivity in teacher training. It also examines the public and institutional backlash against the withdrawal of the manual to understand how educational discourse on transgender inclusion is negotiated and reworked.

Research Objectives

1. To identify the ways in which the NCERT’s 2021 manual establishes the inclusion of transgender individuals within the context of school education and teacher sensitisation.

2. To identify the importance of testimonials and terminologies used in multiple languages to challenge the binary understanding of gender.

3. To understand the socio-political complexities of addressing the inclusion of transgender individuals.

Backlash

As discussed above, the publication of the manual in 2021 led to multiple backlashes, leading to its withdrawal. This section will specifically deal with the concerns raised and will also look at the new draft of the manual, Integrating Transgender Concerns in Schooling Processes, released in 2023. The points of concern raised in the 2021 manual ranged from the discussion of caste and patriarchy to the misinformation regarding the washrooms to the information on puberty blockers. Furthermore, the assumption that the manual was meant for the students added to the concerns raised. The backlash on the social media platform led to the revision of the manual; however, the revised document was criticised for providing a ‘sanitised’ understanding of the integration of transgender students. ¹⁸ As the original document clarifies, it is a training material intended to sensitise teachers, teacher trainers and textbook creators to gender diversity, specifically focusing on gender-nonconforming and transgender students. This statement makes it clear that the need to produce such a manual was to sensitise teachers. Therefore, at no point was it intended for students, as the backlash suggested. Furthermore, the discussion of caste and patriarchal structures was brought in to understand the existing power dynamics leading to the marginalisation of the transgender community. It helped historicise the community’s position and the subsequent changes in its status. It also highlighted the process of discrimination within the school system and how it could be connected to the treatment of transgender students who would be considered ‘peculiar’ within the existing hetero-normative paradigm. Therefore, a clear analysis of the influence of caste and patriarchy would enable one to bridge the gaps for the integration of transgender students. The next point of concern raised was regarding the infrastructure of the school, particularly the washroom. The manual points out that the school’s infrastructure reinforces the binary understanding of gender by separating washrooms based on it. As the manual points out, ‘children who face gender dysphoria feel conflict/dilemma while choosing the toilet that they feel comfortable. This is mainly because their self-concept and social expectations of their body do not coincide with each other’. ³ Therefore, the manual does not talk about the removal of the gender-segregated washrooms but adds ‘Gender Neutral’ within the purview of children with special needs (CWSN). This would allow non-conforming students to access facilities meant for CWSN.

The discussion on puberty blockers in the manual was meant to provide information for the teachers. It is first introduced in the context of gender affirming hormone therapy (GAHT) under Section 4.0, relevant terminology. The second instance is in the Annexure, within the context of class XI Health and Physical Education. It is meant for the teachers and textbook writers to ‘talk to students about puberty blockers (hormones) that delay certain development of the body. Convey that these are available and accessible for adolescents experiencing gender dysphoria, who may later identify as transgender persons’. ³ In both cases, the primary goal was to equip the teachers and the textbook writers with the required information. This information was intended to be disseminated only when needed. As discussed, the criticism garnered led to the recall of the manual. While the backlash continued, there was also support for the text. The Wire noted how both doctors and teachers advocated for the manual. It cited bodies like the Association for Transgender Health in India (ATHI), a group of medical professionals working towards transgender-inclusive healthcare and spoke to L. Ramakrishna, Vice President, Solidarity and Action Against The HIV Infection in India (SAATHII), who was also part of the project team involved in the publication of the manual. ¹⁹ Additionally, it also spoke to individuals like Fathima, a transgender woman and a teacher. The parents of queer- and/or trans identifying children also supported the manual and wrote to NCPCR and NCERT. A letter in support was also published by The Life of Science, a multiform diary of experiences of women and minorities in science. ²⁰ With the NCPCR ordering the NCERT to ‘take appropriate action in rectifying the anomalies present in the document’, the document underwent a series of changes. ⁴ A new draft was released in 2023, which faced severe criticism for erasing the nuanced stand taken by its predecessor. The concerns raised by the members of the LGBTQIA+ activists discuss how the diversity present within the spectrum is not acknowledged by the new manual. The activists further added that ‘the foreword by the NCERT Director even introduces the term “transgender person by birth.” These are two different concepts’. ⁷ The conflation of these identities was seen as detrimental, as it could impede the process of integration. It would also place considerable pressure on the student, who risked being identified primarily in terms of ‘deformed genitalia’. Moreover, the interchangeable use of terms like biological sex, gender identity, gender expression and sexual orientation added to this skewed understanding. The erasure of the term gender dysphoria, which was discussed in detail in the previous version, would severely restrict the understanding of the teacher. This lack of understanding is further highlighted in the suggestion made by the document that the teacher should discuss with the family of the student facing gender-related concerns. Activists point out that it may lead to harm to the, student as, in many cases, the violence begins at home. While both documents suggest separate washrooms for gender-nonconforming and transgender students, the former 2021 version cites earmarking it with the CWSN. The latter makes no such suggestion but specifies segregation. It was seen as a concern as it may lead to the labelling of students who do not wish to be outed. The new draft manual also adds to the stereotyping of trans individuals by including problematic role-play scenarios for teachers to bring into class. Other points of concern raised include the use of insensitive language, with wrong pronouns being used, miscommunication with regard to terms associated and the risk of isolating transgender children by creating ‘alternative and innovative education centres’. ⁷ The objective of both manuals was to integrate transgender students by establishing a safe environment in schools. The process of sensitisation was tackled from both quantitative (research-based data) and qualitative (personal history) data in the 2021 manual. The criticism raised against it was based on a misunderstanding of the intent and the intended readership by those outside of the discourse. The 2023 manual, with its glaring gaps in understanding the concerns of transgender students, raises a poignant question. While the need for such a manual is crucial, the concern is who is drafting it. As Vignesh Dhananjayan, a trans non-binary medical student, states, ‘the people preparing such a document should have a basic understanding of queer identities. This is highly insensitive and triggering’. ¹⁹

Reconceptualisation of the Word ‘Manual’

According to Human Science Co., Ltd., ‘A manual is a document that outlines the procedures, instructions and knowledge necessary to correctly and efficiently carry out a certain activity or process’. ²⁰ A manual is an essential tool that serves as a foundation for any institution and its members to adapt to changing environments. Therefore, it is crucial that manuals are accurate, clear and easy to understand, while meeting objectives and addressing stakeholders’ concerns. The 2021 NCERT manual, adhering to the elements discussed above, offers a diverse understanding of the idea of the manual. First, the manual provides a historical and cultural understanding of the terms, in English and regional languages, used for transgender people. Second, testimonials from transgender individuals personalise the experiences. This provides a shift from the mechanical and operational discourse of the manual. The narratives of discrimination provided by these individuals help provide authenticity to the experiences. It also allows the intended readers (teachers, teacher educators and textbook creators) to understand the physical and mental trauma these individuals have undergone. The positioning of the subjective ‘I’ through these narratives enables the reader to understand the ‘other’ life history as opposed to the instructional mode taken up by the structure of the manual. ³ To understand certain topics, especially the concept of gender, the inclusion of gender terminology in the NCERT 2021 manual is critical. It helps in shaping how gender identities are understood, represented and respected in educational spaces. The manual highlights the use of gender-specific regional and English terminologies as a crucial part of encouraging inclusivity and diversity in school environments.

It is important to distinguish gender identity, bodily sex, gender expression and sexual orientation. The interrelatedness and differences among these concepts, along with local identities in the Indian sub-continent, are also important from the point of view of designing strategies to integrate all transgender children into the mainstream. ³

The manual emphasises that educators, especially teachers, must be knowledgeable about the existing gender vocabulary and be prepared to critically reflect on how these terms are used in various documents, media and other platforms. Understanding and applying these terms appropriately is essential to avoid offending or marginalising individuals from the transgender community. This aspect of terminology and its appropriate use occupies a significant place in the training material, underscoring its importance in creating a more inclusive approach and educational environment.

Types of Terminologies and Diversity

The 2021 manual, while discussing global English terminologies such as cisgender, transgender, agender, gender fluid, trans man, trans woman and so on, emphasises the importance of using inclusive and diverse terminologies that cater to regional linguistic variations. ³ This attempt appears significant as the regional terms (identities) associated with transgender communities in the Indian sub-continent reflect cultural and local understandings of gender diversity. For example, the term Babubhai means a traditional socio-cultural trans masculine in the state of Gujarat, and Kinnar is the popular term used by transgender persons in north India as well as in Maharashtra. Similarly, the term Jogappa stands for a sub-community of trans feminine persons in north Karnataka, parts of Andhra Pradesh and Maharashtra. ³ This dual approach ensures that the language used is both accessible and reflective of (trans)students’ varied backgrounds. For instance, terms like hijra, aravani, shiva-shakti, thirunangai and kothi in regional languages are culturally rooted, while terms like transgender, non-binary and genderqueer in English offer global perspectives on gender diversity. Therefore, schools, particularly in multilingual settings, should ensure that teachers are aware of both regional and English terminologies. It may also be incorporated into educational content, allowing teachers (and students) to engage with the subject in a linguistically inclusive manner.

Challenging the Binary Understanding of Gender for Teachers

One of the key problems is the binary understanding of gender among educators, which is deeply ingrained in Indian educational institutions. According to the 2021 manual, ‘The binary model of gender and sex functions with recognition of only two categories; male and female, thus neglecting those who are on the transgender spectrum’. ³ Consequently, children are socialised into categories of ‘boys’ and ‘girls’ with the expectation to grow into gender categories, ‘masculine man’ and ‘feminine woman’, respectively. The manual highlights various gendered structures that exist in the educational spaces, such as uniforms, seating arrangements in classrooms, assembly and school functions, play areas, common rooms, sports teams, choice of characters in school functions (e.g., drama), choice of hairstyle, etc. Children are socialised into stereotypical binary gender roles through family, social processes and school culture. Textbooks and hidden curriculum also play a role, which will be discussed in more detail in a separate section. ³ The manual addresses this binary understanding of gender and suggests that teachers must be provided with adequate training to challenge and move beyond the conventional male-female binary, recognising a spectrum of gender identities. Introducing diverse terminologies, both regional and English, helps educators understand that gender is not a rigid binary but rather a fluid concept. Teachers play a critical role in shaping students’ understanding of gender, and by embracing non-binary and transgender terminologies, they can foster an environment where gender diversity is acknowledged and respected. Thus, it is crucial that, as primary influences around children, teachers make themselves aware of the issues that transgender children face. Only by being aware can teachers facilitate acceptance of non-stereotypical gestures inside the school premises to create an inclusive environment which affirms their perceived gender identity. It is argued that teachers need to provide the space for children to learn adequately as they build self-concept, even when in conflict. When some particular processes in school are found to reinforce rigid gender norms of behaviour, expression, body type, clothes, other choices and so on, schools, along with parents, can take the initiative to discontinue those practices and introduce new ones which are gender inclusive. So, in this section, we take a deeper look at the challenges that children face while in schools so that children who do not conform to the birth-assigned gender can have an inclusive and safe environment in schools. Furthermore, workshops and sensitisation programmes are recommended to equip teachers with the language and tools needed to discuss and practice gender in a more inclusive way, ensuring that they can support transgender and non-binary students effectively while dealing with the stigma attached to these identities.

Inclusion and Representation

The manual also highlights the importance of inclusion and representation in school curricula and everyday interactions. The inclusion of regional and English terminologies ensures that transgender identities are not marginalised but are instead part of the mainstream conversation. Using appropriate terms allows transgender students to feel recognised and respected, promoting a sense of belonging. Furthermore, inclusive terminology helps combat stigmatisation by normalising discussions around gender diversity. Representation in textbooks, classroom discussions and school policies should reflect this diversity, ensuring that transgender and non-binary students see themselves reflected in the educational materials and spaces they navigate.

By integrating a diverse set of terminologies that both honour local linguistic traditions and incorporate global understandings of gender, schools can create more inclusive environments. The manual strongly advocates for a language of inclusion as a fundamental step in promoting gender equity and ensuring that transgender children can thrive in schools without facing linguistic or cultural erasure.

Future Discussions

This article offers scope for examining how educational materials on gender inclusion are not only a product of policy and its frameworks but also a result of social resistance and ideological contestation. Future studies can examine how teachers receive these manuals, the use of regional languages in gender sensitisation, and how policy reversals impact the inclusion of transgender students in school spaces.

Conclusion

One of the core needs for the structure of a manual is to be instructional. Therefore, one can agree that the 2021 manual, designed primarily for teachers rather than students, went beyond the instructional-informative paradigm. The manual extensively discusses the community’s historical and cultural roots. It also allows the individual to ‘speak’ by including personal narratives and lived realities from the community, thereby authenticating the information. The edited and republished draft manual in 2023 emphasises the importance of acknowledging the concerns of transgender students. However, the errors cited by different individuals and organisations are so grave that they completely detract from the original objective. It is with this in mind that the article focused on the 2021 manual.

With the contentious 2026 amendment put forth by the Ministry of Social Justice and Empowerment, the definition of a transgender person has become dubious. In this light, the 2021 manual becomes a landmark text. It provided a narrative about a community whose identity remains not only marginalised but also uncertain. Therefore, its recurring significance lies in its continued relevance as a resource that documents lived realities, affirms identities and preserves community voices.