National Education Policy 2009 66nj

POLICY BRIEF

Brief No: 01 December 2009

THE NATIONAL EDUCATION POLICY 2009

Introduction

Contents Introduction

01

Overview of the National Education Policy

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Challenges and Deficiencies

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The Commitment Gap

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The Implementation Gap

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Islamic Education

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Broadening the Base and Achieving Access

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Early Childhood Education (3-5 years of age)

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Elementary/Primary Education (6-10 years of age)

03

Secondary/Higher Education

03

Literacy

03

Emergencies

03

Quality in Education

03

Teacher Quality

03

Curriculum Reform

04

Texts and Materials

04

Improving Student Assessment

04

Standards in Learning Environments

04

Matching Education to the Needs of the Labour Market

04

Skills Development and Innovation

04

Higher Education

05

Implementation

05

Conclusion and Comment

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ed by

No. 7, 9th Avenue, F-8/1, Islamabad, Pakistan; Tel: (+92-51) 111-123-345; Fax: (+92-51) 226-3078 E-mail: [email protected]; Website: www.pildat.org

T

he Government of Pakistan finalised its National Education Policy on August 1, 2009 and the policy was approved by the federal cabinet on September 9, 2009. Provincial Chief Ministers also participated in the federal cabinet meeting that approved the Education Policy.. Two representatives of Youth Parliament Pakistan also presented their input in the policy in the federal cabinet meeting on special invitation of the Prime Minister of Pakistan. The Education Policy consists of 71 pages and is divided into 9 chapters. Appendix I contains the table of contents of the policy. This document sets out the future vision for Pakistan's educational system and the shifts that are seen to be necessary for Pakistan to be able to progress successfully and to meet the economic and social demands of the future. Pakistan has made a number of international commitments in relation to education in recent years. In particular Pakistan is committed to the Millennium Development Goals (MDGs) and the implementation of the World Education Forum Dakar Framework for Action 2000. This framework sets out six (6) major goals to be achieved by 2015: · · · · · ·

Expansion of early childhood care and education Universal, free and compulsory primary education Learning opportunities for young people and adults 50% improvements in literacy levels Gender equality and Improvements in the quality of education

Following the Framework, Pakistan adopted a national plan of action 2001-2015, committing Pakistan to a number of goals. However, as at 2009, Pakistan appears to be missing most of these goals as Pakistan rates 136 on the Human Development Index, has a literacy rate of 54 % and spends a mere 2.1 % of its GDP on education. Female literacy rates are at 44 % and 64 % of women and girls in rural areas have never attended school. Pakistan's educational system faces considerable challenges. There are currently approximately 30 % of children outside the education system and the drop-out rates are high. Only 67% of children reach class 5 and only 13 % matriculation. Infrastructure problems remain significant, with 70 % of primary schools being two-room constructions. Political interference in policies and appointments of staff remains a significant issue. The adoption of a national policy on education is to be welcomed. The policy itself is ambitious. Implementation will however be the key to future success and careful monitoring, especially by the Parliament and Parliamentary Committees on Education, will be required.

PILDAT POLICY BRIEF

THE NATIONAL EDUCATION POLICY 2009

Overview of the National Education Policy 2009 The policy seeks to be a broad-ranging, comprehensive document, ensuring clear aims and demarcations of responsibility. The policy stresses the need for coherent federal and provincial action and for a holistic approach, across different age ranges and educational areas. The policy identifies the major deficiencies and gaps in the current system. In particular it identifies what are termed the “commitment gap' and “implementation gap.” The commitment gap covers issues such as the values, priorities and resources of the state. The implementation gap refers to issues surrounding governance within the education sector. The policy seeks to set a number of aims, values and priorities to shape the system, alongside a commitment to allocate increased resources to the education sector. It also seeks to introduce and ensure principles and standards of good governance. The policy then sets out a number of specific goals dealing with each tier of education, from early childhood to higher education. Within each tier, the policy lays down the need for curriculum development, a learning materials policy and infrastructure development, to provide missing facilities. Finally the policy maps out an implementation framework in order to ensure that the policy is translated into practice. A summary of the main policy specifics is given in the following sections.

Challenges and Deficiencies

implementation plans:

The policy document identifies a number of clear shortcomings in Pakistan's existing educational system. Whilst stressing both the need for uniformity in standards and the requirement to cater for diversity on ethnic, social, religious, economic and political grounds, the policy identifies the need to improve access, quality, affordability and relevance within education.

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The policy sets out that a paradigmatic shift is required, changing the whole focus of education to ensure that the system of education serves the interests of students rather than the interests of the istration itself.

The Commitment Gap The policy draws attention to the disadvantageous effects of the parallel systems of English-medium private, public and madrassah educational systems. Attention is also drawn to the divide between educational provision for boys and girls and between urban and rural communities. The policy stresses the challenge of providing universal primary education by 2015 and sets out the following policy aims: -

Revitalising the educational system Preserving ideals Enhancing unity and nationhood, and Respecting diversity

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A commitment to dedicate 7 % of GDP to education by 2015 The establishment of a National Authority for Standards in Education, to set and monitor standards Provincial monitoring of standards and the drafting of provincial education plans The establishment of public/private partnerships

The Implementation Gap In order to address the problems of implementation the policy puts forward a “whole sector” approach, covering early childhood to tertiary education, coherence with other areas of government policy and a clear mapping of federal and provincial responsibilities. In particular, the policy stresses: - The need to bridge the divide between public and private education, in of resources, curriculum and access - The need to introduce formal subjects and ability into the madrassah system - The implementation of an English language policy in all schools - Capacity building in both teaching and education policy making - The establishment of a National Standards and Certification Agency, and - The need to end political interference in education.

In order to achieve these aims the policy sets out the following

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PILDAT POLICY BRIEF

THE NATIONAL EDUCATION POLICY 2009

Islamic Education

and amongst adults. The policy aims to:

The policy sets out the specifications for the teaching of Islam in schools and the requirement for ethical/moral education for non-Muslims. Emphasis is placed on the mainstreaming of madrassahs by the introduction of contemporary subjects and the establishment of a Madrassah Education Authority established by the Ministry of the Interior.

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Broadening the Base and Achieving Access The policy then sets out policy aims and implementation measures for each tier of the education system. The main provisions for each tier are summarised below. Early Childhood Education (3-5 years of age) The policy aims here are to achieve wider participation, better quality and improved governance. The main policy goals are: -

Universal access within 10 years Emphasis on play rather than rote learning The training of specialist teachers

Elementary/Primary Education (6-10 years of age) Here the main policy goals are: -

Universal access by 2015 Reduction of drop-out rates Unique ID numbers for students to aid tracking through the education system The establishment of international development partnerships with donors

Secondary/Higher Education The main policy goals within this tier are: -

The introduction of student-centred learning The expansion of girls' schools and schools in rural areas The introduction of life skills education and counselling A school ranking system, measuring results A national merit programme, rewarding bright students

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Emergencies The policy aims to cover both education about emergencies and emergency planning, as well as education in emergency situations. The National Disaster Management Authority is to plan for pre/post emergency teaching and to set a code for suitable infrastructure, in particular the adoption of international standards in infrastructure construction.

Quality in Education A significant proportion of the policy is based upon increasing standards and governance across the educational system. The main areas of focus are teacher quality, curriculum reform, texts and learning materials, improving student assessment, standards in learning environments and matching education to the needs of the labour market. Teacher Quality The policy places emphasis on the need for adequately qualified and skilled teaching staff and their availability in schools, along with continuing education and in service training. In particular: -

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Literacy

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The policy aims to increase literacy levels across the population, including amongst those in non-formal education

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Increase literacy levels to 86 % by 2015 Allocate 3 % of the education budget to literacy programmes Establish a national literacy curriculum and minimum standards Establish adult literacy programmes Mainstream non-formal programmes, such as literacy for child labourers Utilise school buildings outside normal hours to facilitate non-formal literacy education

Minimum qualification levels for teaching staff (Bachelors degree and B.Ed at elementary level and masters degree and B.Ed at secondary and higher levels by 2018); Teacher education programme to focus upon studentcentred learning and the standardisation of training, accreditation and certification of teaching staff A specialised cadre of teacher trainers Appointment of teaching staff on merit Emphasis on practical reasoning skills, particularly amongst maths and science teachers Career development and in service training for teaching staff Planning of teacher allocation and monitoring of attendance, absenteeism and multiple job holding

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THE NATIONAL EDUCATION POLICY 2009

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Upgrading of teacher morale and salaries Incentives for teaching staff in rural areas The waiving of age restrictions for female teachers Public private partnerships and the involvement of international donor partnerships

Curriculum Reform A programme of curriculum reform began in 2005 and revised curricula were issued for 25 core subjects in 2007. The process of reform is due to be completed for all subjects by December 2009. Emphasis is to be placed on learning outcomes and critical thinking, in an attempt to move away from rote learning methods. Additionally, topics such as human rights, health, peace and interfaith issues and child abuse are to be incorporated into existing subject curricula. Texts and Materials A committee to advise on texts and materials was constituted by the Ministry of Education and led to the National Textbook and Materials Policy and Plan of Action 2007. The policy seeks to continue the aims of the policy, in of quality, competition and choice by: - Introducing a system of regulated publishing - Establishing provincial/area committees to select appropriate textbooks and an inter-provincial standing committee to monitor implementation - Transforming Textbook Boards into regulatory bodies capable of capacity building in the publishing market - The establishment of a National Library Foundation - Increased investment in library facilities, library staff and an upgrading of library facilities Improving Student Assessment The policy stresses the need to move away from traditional emphasis on rote learning and the need to emphasise and assess analytical and critical thinking in order to produce students who are internationally competitive and equipped for the realities of working life. The policy therefore requires: - International level assessments by 2015 - Multiple assessment tools in addition to traditional examination methods - National standards and uniformity in assessment processes and a reduction in the number of examination boards - Capacity building amongst examiners - A strategy to prevent cheating Standards in Learning Environments The policy stresses the need to improve learning environments

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for students, which may at present involve lengthy travel, basic or no facilities and fear of corporal punishment at the hands of staff. The policy sets out the need for: - A basic framework for school facilities and materials by 2012 - An increase in federal resources to meet gaps in provision - Standardised and rationalised student/teacher ratios - The elimination, where possible, of multi-grade teaching/classes - An anti-corporal punishment campaign and ability for violence by teachers - A code of conduct for student unions Matching Education to the Needs of the Labour Market The policy requires a review of educational courses to ensure relevance to the needs of the labour market and a study to evaluate and improve technical and vocational training. The idea of a “window to the world of work” and job shadowing are introduced as policy objectives and emphasis is placed on the need for career guidance and counselling.

Skills Development and Innovation The policy examines the low skill level amongst the Pakistani population and the resulting damage to economic growth. Improvements in the skills base are identified as methods of improving competitiveness, attracting inward investment and facilitating increased remittances from workers abroad. Formal technical and vocational education is identified as a key weakness. The policy seeks to address this weakness by: - Restructuring technical and vocational education to take of the views and needs of stakeholders in business/industry/agriculture - Developing a standardised, modular curriculum, which is adaptable to local market needs - Evaluating existing technical and vocational education at school level - Addressing the social taboos around technical and vocational work and emphasising the need for dignity at work A National Vocational and Technical Education Commission is already in place and has prepared various strategies, which include: -

A national qualifications framework Industry involvement and public/private partnerships A national university of technology Coordination between the schools, university, vocational and technology sectors

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PILDAT POLICY BRIEF

THE NATIONAL EDUCATION POLICY 2009

Higher Education The policy recognises higher education as the most important component in creating a tolerant, cohesive, knowledge-based society. The Higher Education Commission is already in place in order to oversee and direct policy, standards and funding. However, poor access and low expenditure are identified as inhibitors of success. The policy lays out a strategic vision for the transformation of higher education. This strategy focuses on the importance of: - Well qualified and developed faculty - Learning outcomes, as opposed to rote learning, to produce articulate, flexible and employable graduates - Quality and the need to meet international standards - Economic relevance and linkages with industry - Research, innovation and the role of university education as a catalyst for wealth creation - Equitable access and the bolstering of existing infrastructure

sets out what should be done; provinces and districts will decide how, when and by whom it will be done. However, in order to facilitate the development of plans, an implementation framework is set out. This framework sets out a monitoring and process to track progress on implementation. The framework involves: - Meetings of the Inter-provincial Education Ministers (IPEM) Committee, providing oversight and monitoring - Provincial action plans, with autonomy and ownership at provincial level - The involvement of development partners The process will be cyclical, with the IPEM reviewing the policy, plans of action being prepared and implementation being carried out by provinces, the provinces identifying new issues and feeding back to IPEM for further review.

In order to meet the requirements of the strategy, the policy sets out: - The need for increased enrolment, from the current 4.7 % to 10 % by 2015 and 15 % by 2020 - Commitment of 20 % of the education budget to higher education - Emphasis on research and development, through capacity building, commercialisation, grants, scholarships and collaboration - Career development, specialisation and tenure tracks for academic staff - Ranking systems for universities, peer review and the involvement of international expertise - Broad based four year bachelors courses, with social science elements to instil cultural and civic values - Accreditation of courses by accreditation councils and the setting of minimum standards of quality - National centres and international collaboration on educational standards and delivery - The need for adequate information technology and library facilities to students

Implementation The policy stresses that the development of detailed implementation plans, priorities and strategies are the exclusive task of provincial and district government. Essentially the policy

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PILDAT POLICY BRIEF

THE NATIONAL EDUCATION POLICY 2009

Conclusion and Comment Pakistan's current level of educational achievement is poor. Pakistani society continues to reflect considerable social and financial disparities, which affect the educational opportunities and potentials of a significant section of the population. The marked disparities between provinces, urban and rural education and the opportunities available to boys and girls continue to hamper the life choices of individuals and Pakistan's economic potential as a nation. If Pakistan is to properly serve its citizens and to be equipped to operate in the global economy, significant reform and improvement is required. The National Education Policy 2009 sets, for Pakistan, ambitious objectives and targets at all levels of education. The realisation of these targets will be dependent upon the delivery of financial commitments at federal level and effective implementation at provincial level. The policy aims to significantly increase the state's spending on education. The federal government must ensure that the promised increase in percentage GDP of 7 % is delivered. Without such delivery the proposed improvements in infrastructure and delivery of educational services can not be achieved. Equally, Pakistan's federal structure will present challenges to effective and uniform realisation and delivery. Previous policies have delivered poorly in practice. Provinces must be proactive and responsive in planning and timetabling reform. The inter-provincial Education Ministers will be required to demonstrate leadership and dynamism if the oversight mechanism is to be successful. Good governance and the elimination of corruption and political interference in education policy delivery will be vital to effective implementation and improvements on the ground. Pakistan's ability to meet the goals of the Dakar framework by 2015 will be an important indicator of progress and commitment towards a better educated and internationally competitive Pakistan.

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THE NATIONAL EDUCATION POLICY 2009

Appendix-I NATIONAL EDUCATION POLICY 2009: Contents INTRODUCTION

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CHAPTER 1

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NATIONAL EDUCATION POLICY: OVERARCHING CHALLENGES & DEFICIENCIES: THEIR CAUSES AND THE WAY FORWARD 1.1 Background 1.2 The Demographic Transition 1.3 Uniformity and Confidence in Public Education System 1.4 Globalization and Competitiveness 1.5 Social Exclusion and Social Cohesion 1.6 Setting Standards for Education 1.7 Dovetailing Government Initiatives 1.8 Leveraging International Development Partnerships 1.9 MAJOR DEFICINCIES 1.10 Understanding System Deficiencies 1.10.1 The Commitment Gap 1.10.2 The Implementation Gap 1.11 The Way Forward: A Paradigmatic Shift

9 9 9 10 11 12 12 13 13 13 14 14 15 15

CHAPTER 2

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FILLING THE COMMITMENT GAP: SYSTEM VALUES, PRIORITIES AND RESOURCES

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2.1 2.2 2.3 2.4 2.5

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Educational Vision and Performance A Reaffirmation of Educational Vision Aims And Objectives Overarching Priorities: Widening Access and Raising Quality Mobilising Resources for Education

CHAPTER 3

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FILLING THE IMPLEMENTATION GAP: ENSURING GOOD GOVERNANCE 3.1 Developing a Whole-of-Sector View 3.2 Ensuring Policy Coherence 3.3 Overcoming Fragmented Governance 3.4 Bridging the Public-Private Divide 3.5 Overcoming Structural Divides 3.6 Building Management and Planning Capacity 3.7 Getting Stakeholders Involved

22 22 22 23 25 27 28 30

CHAPTER 4

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ISLAMIC EDUCATION 4.1 Islamic Education: Duty of The Society and the State

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Appendix-I

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CHAPTER 5

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BROADENING THE BASE AND ACHIEVING ACCESS 5.1 Early Childhood Education (ECE) 5.2 Elementary Education 5.3 Secondary and Higher Secondary Education 5.4 Literacy and Non-Formal Learning 5.5 Education in Emergencies

35 35 36 37 38 40

CHAPTER 6

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RAISING THE QUALITY OF EDUCATION 6.1 Improving Teacher Quality 6.2 Curriculum Reform 6.3 Quality in Textbooks and Learning Materials 6.4 Improving Student Assessment 6.5 Attaining Standards in the Learning Environment 6.6 Matching with the Labour Market

42 42 44 46 47 48 50

CHAPTER 7

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STRENGTHENING SKILL DEVELOPMENT AND INNOVATION 7.1 Technical Education and Vocational Training 7.2 Possible Strategies

51 51 53

CHAPTER 8

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HIGHER EDUCATION 8.1 Challenges 8.2 Strategic Vision

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CHAPTER 9

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IMPLEMENTATION FRAMEWORK 9.1 Objective 9.2 Policy As a Living Adaptable Document 9.3 IPEM To Oversee Progress 9.4 Provincial Autonomy and Ownership 9.5 Role of Development Partners

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ANNEX: I THE STATE OF PAKISTAN'S EDUCATION A. Access to Educational Opportunities B. Equity in Education B1. The Gender Dimension B2. The Rural-Urban Divide B3. Provincial and Area Disparities C. Quality of Provision D. The Resource Commitment E. Structure of Education: Public-Private Provision

65 65 65 66 66 67 68 68 70 70 December 2009