New Delhi: The government-appointed panel on exam reforms has recommended a comprehensive restructuring of the National Testing Agency (NTA), keeping the focus on conducting entrance examinations.
The panel advocates transitioning to online exams, introducing multi-level testing for large candidate pools exceeding two lakh, and developing a testing centre allocation policy. Additionally, it suggests launching a ‘Digi Exam’ system to prevent impersonation.
The seven-member panel, led by Indian Space Research Organisation (ISRO) former chairman K. Radhakrishnan, was formed in June this year following allegations of irregularities in the National Eligibility cum Entrance Test (Undergraduate) or NEET-UG exam. The medical entrance exam was marred by allegations of paper leak and cheating, delaying the counselling process by nearly two months.
The panel’s report was released Tuesday.
ThePrint earlier reported that the panel submitted the report to the Union education ministry in October this year. The panel then received 37,144 responses from stakeholders, including parents, students, teachers and others.
Union Education Minister Dharmendra Pradhan shared the report’s details Tuesday and announced that from 2025, the National Testing Agency will not conduct any recruitment exams.
“NTA will only focus on conducting entrance exams for higher education and will not conduct any recruitment exams from next year,” Dharmendra Pradhan said.
Currently, the NTA also conducts recruitment exams for various universities and higher education bodies.
Pradhan said the implementation of the panel’s recommendations is underway.
Restructuring of NTA
The panel recommended restructuring the National Testing Agency (NTA) for improved governance and efficiency. It proposed creating an empowered governing body, supported by three sub-committees to focus on test audit, ethics and transparency, and stakeholder relationships.
“The NTA should focus primarily on conducting entrance examinations, with the possibility of expanding its scope to other exams considered, only after its capacity is strengthened,” the report stated.
Additionally, the panel recommended the position of the head of the agency — currently called Director-General (DG) — not be held by a person below the rank of additional secretary in the central staffing scheme of the Government of India. The DG, it said, should be a dedicated leadership position, free from external influence, to ensure smooth and continuous operation.
The panel also recommended that the NTA establish key functional verticals, each led by qualified individuals. These include divisions for digital infrastructure and technology, testing centre infrastructure, research and development, and communication & coordination.
Additionally, it suggested units for international collaboration, information security, and test security, focusing on robust data protection and real-time monitoring. The NTA must also address finance, HR, capacity building, and legal & compliance.
“Each vertical should be well-managed, with clear roles and responsibilities to ensure efficiency and accountability,” it stated.
Besides, it recommended that the NTA hire permanent staff.
The panel also suggested that the NTA establish ties with state/district authorities for secure test administration, forming district-level committees led by district magistrates. The key and high-stakes exams — similar to elections — should be held in collaboration with state governments. Additionally, it advised close surveillance to monitor and prevent interference from malicious entities, with support from district-level committees and local authorities.
The NTA, the panel further stated, should work in tandem with the Test Indenting Agencies (TIA), including the University Grants Commission (UGC) and Council of Scientific and Industrial Research (CSIR), during the entire life cycle of testing.
Multi-session testing, transition to online
The panel recommended three policy interventions. Firstly, multi-session testing for large-scale exams, particularly when participant numbers exceed two lakh.
“The normalisation process is crucial for multi-session testing. It is a statistical procedure, and its parameters and methodology should be clearly defined, documented, and communicated for each test,” it stated.
Secondly, it recommended the exploration of the multi-stage testing for NEET-UG. Third, it proposed streamlining the wide range of subject streams for CUET admission into more focused clusters of related subjects.
The panel also recommended a gradual transition from Paper-and-Pencil Testing (PPT) to Computer-Based Testing (CBT), while the associated challenges — especially in reaching underserved and remote areas — are resolved.
It suggested “mobile test centres” or MTCs to help overcome the barriers to accessing the most remote and hard-to-reach locations, including the Northeast, the North Himalayan states, and the Andaman and Nicobar Islands.
Giving examples of MTCs, the panel recommended buses equipped with seating for 40-50 candidates and featuring individual workstations, sufficient power supply, and stable internet connectivity with booster antennas.
It further recommended the adoption of a “hybrid process” for computer-assisted secure testing, combining both computer-based testing (CBT) and paper-and-pencil testing (PPT) methods.
In this hybrid approach, CBT will be used to deliver encrypted question papers, which will then securely be transmitted to the centralised servers of the testing centres. Subsequently, the printed question papers will be distributed to candidates at the testing centres using high-speed printers, ensuring confidentiality. This process aims to reduce potential security risks during the PPT printing, storage, and transportation phases.
The panel also recommended an alternative model involving CBT for the distribution of question papers directly to candidates, with optical mark recognition (OMR) sheets used for answer collection. “This model is expected to streamline the process, enhance security, and reduce vulnerability associated with both CBT and PPT methods,” the report stated.
Testing centre allocation policy
The panel envisioned a testing centre allocation policy to ensure that candidates have a choice of testing centres within their district of residence or one nearby — suitable for study or work commitments, as indicated in their application. This approach aims to provide flexibility while minimising travel burdens for candidates.
To address any irregularities in the selection of testing centres, the panel recommended using data analytics to identify unusual patterns or outliers in the choices made by candidates.
“Any discrepancies should be corrected before the test. Additionally, specific requirements for centre selection, such as proximity or other logistical considerations, could be incorporated into the application form to ensure that candidates are allocated to centres that best match their needs and intentions,” the report stated.
The panel also recommended setting up a secured testing centre in each district. Across the country, the National Testing Agency, in a phased approach, should aim to establish at least 1,000 secure testing centres, prioritising reputable government institutions.
“The location and accessibility of these centres should be strategically planned to ensure easy access for all candidates, including those in remote areas, with strong connectivity to public transport,” the report stated.
For setting up examination centres, the panel suggested collaboration with the Kendriya Vidyalayas (KVs) and Navodaya Vidyalayas to establish CBT centres nationwide. This partnership would enable these institutions to develop advanced digital infrastructure, transforming them into secure CBT testing centres for various examination agencies. It would create a mutually beneficial situation while paving the way for the seamless introduction of computer-adaptive testing methods from the high school level to entrance exams.
Another viable option the panel recommended was collaboration with central and state universities or credible private universities and research institutes to establish purpose-built testing centres.
Also Read: UGC suggests recognition of informal experience in higher education for a ‘more skilled workforce’
‘Digi Exam’ system
According to the panel, currently, candidates are required to upload their data each time they wish to take an exam. “Verifying this information during the application process is insufficient, as NTA caters to numerous TIAs — which can create communication gaps between the candidate and the academic programme they are joining. This may lead to discrepancies between the candidate appearing for the exam and the person enrolled in the course,” it stated.
Therefore, the panel recommended implementing a ‘Digi Exam’ system — similar to ‘Digi Yatra’ — to ensure that the candidate sitting for the exam is the same person who registered for it. This system will involve Aadhaar, biometric verification, and AI-based data analytics to authenticate the candidate’s identity at various stages of the exam process.
The first step at the testing centre would be to verify the candidate’s identity by cross-checking the details on the admit card with a valid government-issued ID, the panel stated. Before the exam, the panel recommended capturing the candidate’s biometric data, such as fingerprints or facial images, to confirm the identity.
The panel also suggested continuous CCTV surveillance to monitor all candidates and secure storage of the footage on the cloud and comparing the captured images and the candidate application data, ensuring consistency and verification that the individual appearing for the test was the same as the one who registered after the exam. In cases where discrepancies arise, the candidature should be marked as provisional, followed by appropriate actions for further verification.
Printing of question papers
The panel recommended that the printing press undergo pre-approval verification and continuous monitoring throughout printing, packaging, and transportation.
Only authorised personnel should have access, with staff carrying IDs to prevent unauthorised entry. Senior representatives of National Testing Agency and Test Indenting Agencies must oversee all operations to ensure security. Strict controls should be in place to prevent unauthorised material movement. No visitors or conflicting interests should be allowed, and mobile phones or cameras must be prohibited. CCTV must be installed, regularly audited, and the footage stored for at least one year. Question papers and OMR sheets should be uniquely coded and audited. Any misprinted copies must be securely handled and destroyed by NTA with proper documentation.
Transportation of question papers
The panel recommended that question papers be transported exclusively through secure courier services under strict protocols. Authorised officials must handle and seal all materials, ensuring their security throughout transportation. National Testing Agency should validate and check all materials before dispatching them.
It further recommended that the transport containers must be securely locked and monitored during transit. Upon arrival at testing centres, the papers should be handed over to the designated head under the supervision of the NTA officials, with CCTV surveillance in place.
Strict protocols must govern the distribution process, overseen by NTA personnel and key representatives from the NTA and the testing centre present to ensure proper handling and accountability.
The panel also recommended that NTA establish a comprehensive security protocol focused on confidentiality and integrity to ensure secure delivery. In-house security analysts should regularly review and update these protocols to address emerging risks.
The panel, considering computer-based exams rely heavily on internet-based data exchange, said that the NTA should set up a dedicated research unit to enhance network security. This unit should develop secure VPNs, ensure the authenticity of data packets, and implement safeguards to prevent cheating through network breaches.
Another suggestion was real-time monitoring of candidate screens and network traffic to detect and prevent any anomalies or malicious activities. “NTA should conduct continuous security audits, including vulnerability and penetration testing, to identify and mitigate potential risks,” the report stated.
(Edited by Madhurita Goswami)
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