Madrasa Boards Under Scrutiny: Balancing Tradition, Regulation, and Modernity

– Dr. M. Iqbal Siddiqui

Madrasas, vital institutions of Islamic scholarship in India, have preserved religious and cultural heritage for centuries, even as they grapple with the demands of modern education. Regulated by state-level Madrasa Boards, these bodies strive to standardise curricula, blending Islamic teachings with contemporary subjects to ensure relevance in a dynamic world. However, madrasas face formidable challenges – legal ambiguities, political scrutiny, communal biases, and internal resistance to reform – that threaten their autonomy and existence.

Historical Roots of Madrasas

Madrasas, originating from the Arabic word for educational institutions, trace their roots to the time of Prophet Muhammad ﷺ, who emphasised knowledge as central to Islamic faith, encouraging both religious and mundane learning. In India, madrasas emerged during the Delhi Sultanate (12th century), becoming key centres for Islamic theology, law, and literature across cities like Delhi and Bengal. Significant patronage continued through the Mughal era, with figures such as Maham Anga and Jahanara Begum founding madrasas that promoted Arabic, Persian, and Islamic studies, including education for women. Notable institutions like the madrasa near Ajmeri Gate, established by Ghaziuddin Khan, evolved with time to incorporate English education.

The 18th-century Madrasa-e-Rahimiyah became a hub for Islamic reform, influencing later institutions such as Darul Uloom Deoband, founded in 1866 to revive Islamic education amid British colonial disruptions. While the Kolkata Madrasah (1780), founded under Warren Hastings, trained Muslims for administrative roles, institutions like Darul Uloom blended tradition with modern needs, preserving madrasas as vital centres of faith and learning within India’s Muslim community.

Core Objectives of Madrasas

Madrasas aim to preserve Islamic identity while fostering ethical and intellectual growth:

1. Imparting Religious Education: Teaching the Quran, Hadith, Fiqh, and Arabic to instil spiritual and moral values.
2. Preserving Islamic Heritage: Safeguarding theological and cultural traditions in a diverse nation.
3. Building an Ethical Society: Nurturing compassionate, responsible Muslims who contribute to social harmony.

Madrasa Boards

Post-independence, efforts to integrate madrasas with modern education led to the formation of state Madrasa Boards, beginning with the Uttar Pradesh Board under the U.P. Board of Madarsa Education Act, 2004. As per the Ministry of Minority Affairs (2018-19), over 24,000 madrasas operate across 20+ states – 19,132 recognised and 4,878 unrecognised. Many now issue certifications aligned with mainstream qualifications through the Council of Boards of School Education in India (COBSE).

Main functions of the Madrasa Boards include:

1. Curriculum Oversight: Boards prescribe curricula blending Islamic studies with secular subjects like mathematics, science, and languages. The Uttar Pradesh Board, for example, uses NCERT textbooks.
2. Examinations and Certification: Some boards conduct exams for courses like Maulvi (Class 10 equivalent), Alim (Class 12), Kamil (graduation), and Fazil (post-graduation). In 2023, 93,156 students passed UP Board exams with an 81% pass rate.
3. Recognition and Funding: Recognised madrasas receive state funding with oversight, while unrecognised ones face regulatory challenges.
4. Teacher Training and Infrastructure: Through schemes like the Scheme for Providing Quality Education in Madrasas (SPQEM), boards support training and infrastructure upgrades.
5. Mainstream Integration: Boards align madrasas with the Right to Education (RTE) Act, 2009, enabling transitions to mainstream education.
6. Regulatory Compliance: Boards ensure madrasas maintain their religious ethos while meeting state standards, fostering Indian Muslim identity.

Current Challenges

Madrasa Boards operate in over 20 states, with Uttar Pradesh (11,621 recognised, 2,907 unrecognised madrasas), Rajasthan (2,464 recognised), West Bengal, and Bihar hosting the largest numbers. Progress is evident in Kerala, where madrasas integrate vernacular instruction and professional leadership, and through initiatives like SPQEM and Uttar Pradesh’s madrasa mobile app. However, significant challenges persist:

1. Old Curricula: Many madrasas rely on centuries-old syllabi, limiting modern subjects like science or computers, hindering student preparedness.
2. Limited Modern Education: Graduates often lack skills for competitive exams or job markets, perpetuating socio-economic marginalisation. Only AMU, Jamia, and BHU recognise madrasa degrees, though AMU’s bridge courses help.
3. Poor Infrastructure and Funding: Unrecognised madrasas face inadequate facilities and reliance on community donations or Zakat, sometimes marred by misuse.
4. Employment Barriers: Limited academic exposure restricts access to higher education or professional opportunities.
5. Resistance to Change: Some Ulama resist modernisation, fearing dilution of Islamic teachings.
6. Regulatory Loopholes: Fund mismanagement and lack of transparency undermine credibility.
7. Legal and Political Scrutiny: The Allahabad High Court’s 2024 ruling deemed the UP Madrasa Act unconstitutional, citing secularism and Article 14 violations. However, the Supreme Court stayed this in April 2024, reserving judgment in October 2024. Madhya Pradesh derecognised 61 madrasas in 2023, and Assam reclassified 1,281 madrasas as general schools, raising autonomy concerns.

Victimisation and False Allegations

Madrasas face systemic victimisation, amplified by anxieties within the Muslim community:

1. Government Overreach:
2. Intrusive surveys in states like Uttar Pradesh and Uttarakhand (e.g., 20 unrecognised madrasas flagged in Prayagraj) spark closure fears, often labelling unrecognised madrasas as “illegal” despite their protection under Article 30. Madhya Pradesh’s derecognition lacked community consultation.
3. The National Commission for Protection of Child Rights (NCPCR), in its 2021 report, advocated defunding madrasas, alleging RTE violations and substandard living conditions, outdated syllabi (“Aurangzeb’s time”), and funding from “secret sources.”).

• Frequent internet shutdowns, exceeding 100 instances in 2023 and continuing into 2024, often during communal unrest in states like Haryana and Manipur, disrupt madrasa operations and access to education, fostering fear among Muslim communities.

1. Punitive demolitions targeting Muslim properties, such as in Haryana’s Nuh district (2023) following communal violence, and the Uttar Pradesh government’s 2025 campaign, which razed over 225 madrasas near the India-Nepal border citing illegal encroachments, escalate perceptions of targeted action. Despite court orders halting some demolitions in Shravasti and protests from Muslim organisations alleging constitutional rights violations, these actions undermine trust in due process.
2. Communal Propaganda: Right-wing nationalist groups, often aligned with the BJP, portray madrasas as extremism hubs, amplified during the 2002 Gujarat riots or 2020 Delhi riots.
3. False Allegations: Claims of radicalisation often emerge which lack evidence, as studies (e.g., Sanchita Bhattacharya) show no links at all to terrorism. Accusations of anti-nationalism ignore madrasas’ civic education, while charges of “inferior” education overlook progressive models like Kerala’s.

Government assertions that madrasas hamper Article 21A (education for all) misrepresent their role.

These factors erode trust, discourage modernisation, and push some madrasas towards unregistered status.

Legal Ambiguities

Legal ambiguities threaten madrasas, such as:

1. Secularism Ambiguity: There is legal ambiguity around the terms ‘religious education’ – which is permitted – and ‘religious instruction,’ which Article 28(1) prohibits in state-funded institutions. The Allahabad High Court’s 2024 ruling conflated these, under Supreme Court review, while the Gauhati High Court (2021) dismissed a challenge to Assam’s Repealing Act on Article 28(1) and locus standi grounds (WP(C) 3038/2021).
2. RTE Act Conflicts: NCPCR’s 2021 report claims RTE exemptions (Section 12(1)(C)) violate Articles 15(5) and 21A, arguing madrasa students lack facilities. Undefined “quality” standards fuel criticism, ignoring religious context. MTB-APCR (Markazi Talimi Board-Association for Protection of Civil Rights) propose studying RTE exemptions’ rationale and potential partial application (e.g., infrastructure, EWS reservations).
3. UGC Act Misalignment: Madrasa degrees (Kamil, Fazil) lack universal recognition, impacting 15,000–25,000 students after the Supreme Court’s November 2024 ruling.
4. Unrecognised Madrasas: Labelled “illegal” despite Article 30 protections, they face risks of closure. The distinction between unrecognised and illegal requires legal clarity, as does the procedure for obtaining minority status, which varies by state.
5. Lack of National Framework: Inconsistent state policies, as seen in Assam’s board dissolution, underscore the need for a Central Madrasa Board. MTB-APCR suggest researching Constituent Assembly debates and National Commission for Minority Educational Institutions (NCMEI)’s role to clarify “establishment” and “autonomy” under Articles 29-30.

Roles and Responsibilities

The Muslim community (14.2% of India’s population, 2011 Census):

1. Embrace Modernisation: Advocate for curricula blending Quranic studies with modern subjects, to prepare students for diverse careers. Introduce modern techniques and equipment for better teaching.
2. Shed Conservative Mindsets: Address Ulama’s resistance through dialogue, promoting modernisation as empowerment.
3. Strengthen Governance: Ensure transparent fund management (e.g., Zakat) and register unrecognised madrasas for legal protections.
4. Advocacy and Alliances: Engage policymakers and mainstream institutions for partnerships and leverage alumni to counter stereotypes.
5. Promote Inclusive Education: Encourage interfaith participation by integrating secular curricula in madrasas, fostering diversity, ensuring accessibility for students of all religions.
6. Public Awareness: Use media to highlight madrasas’ contributions, dispelling myths of radicalisation.

Government’s Constitutional Duty (Articles 25-30):

1. Clarify Legal Frameworks: Define “religious education” vs. “instruction” under Article 28 and amend the RTE Act to accommodate madrasas.
2. Align with UGC: Recognise madrasa degrees to ensure student mobility.
3. Transparent Regulation: Conduct surveys with community involvement and consider a Central Madrasa Board.
4. Counter Communal Narratives: Launch campaigns to affirm madrasas’ role and apply preventive laws fairly.
5. Enhance Funding: Expand SPQEM for infrastructure and training, supporting unrecognised madrasas.

Reforming Madrasas: Survival and Empowerment

Madrasas face an existential crisis, with survival hinging on reforms to address legal battles, derecognition, and communal polarisation. MTB-APCR’s 2022 research guides these recommendations to modernise madrasas, ensure autonomy, and empower Muslims under Articles 29 and 30:

1. Modernise Curricula: Blend Quranic studies with NCERT science, mathematics, and IT, following Kerala’s model to enhance employability.
2. Secure Autonomy: Align with RTE and UGC Acts for degree recognition; a Central Madrasa Board could standardise education, per MTB-APCR’s NCMEI focus.
3. Improve Training and Infrastructure: Offer teacher training and digital tools, using SPQEM funding to fix resource gaps.
4. Ensure Transparent Governance: Oversee Zakat to counter mismanagement claims.
5. Foster Inclusion: include secular curricula to attract diverse students from all religions, aligning with Article 14.
6. Strengthen Legal Protections: Study Supreme Court rulings and Constituent Assembly debates to clarify Article 28 and protect rights.
7. Mobilise Advocacy: Use MTB-APCR-led media campaigns to dispel radicalisation myths.

These steps ensure madrasas remain vibrant centres of learning, strengthening India’s pluralistic fabric.

Revitalising Madrasas: From Tradition to Transformation

Madrasas, pillars of India’s Muslim heritage, now face urgent challenges – from outdated curricula to legal and social pressures – that threaten their future. Meaningful reform, led by the community and supported by the state, is essential to empower students, protect rights, and bridge divides. The Supreme Court’s verdict on the UP Madrasa Act may be crucial, but lasting impact requires unity and trust to keep madrasas vibrant centres of knowledge and coexistence.