Ministry of Education and Sports Concept Paper on
SCHOOL SECTOR APPROACH October 18, 2006
Table of Contents 1. 2. 3. 4. 5. 6. 7.
Introduction.......................................................................................................................... 2 Rationale .............................................................................................................................. 3 Objectives ............................................................................................................................ 5 Policy Directions.................................................................................................................. 5 Structural and Functional Adjustments................................................................................ 9 Resourcing ......................................................................................................................... 10 SSA Milestones.................................................................................................................. 11
Ministry of Education and Sports
Concept Paper on SCHOOL SECTOR APPROACH October 18, 2006 1. INTRODUCTION The concept of an integrated grades 1 to 12 school system has been under consideration in Nepal for at least a decade; the process of developing and implementing this school system was initiated as early as 1994 with the establishment of the Higher Secondary Education Board. The need for structural adjustment to the integrated school system was further emphasised by the Basic and Primary Education Master Plan (1997). Since the 1990s, Nepal’s education sector has witnessed a gradual shift from project to programme to sector-wide approaches, including a shift in funding modalities from bilateral to pooled to budgetary support. These processes take into account everything that has been learned from implementing various projects and programmes. The Education For All National Plan of Action (EFA/NPA, 2001-2015) emphasises the need for harmonizing school education by integrating grades 1 to 12 school system. The Tenth Plan (2002-07) recognizes the centrality of schools in developing human potentials and reducing poverty. The Plan also articulates the need for adopting a holistic approach to the school sector. As a preparation for an integrated School Sector Approach (SSA)1, this concept paper provides: a) policy directions on structural and functional adjustments for grades 1-8 basic education and grades 9-12 secondary education, and b) a basis for the preparation of the Core Document for SSA implementation. 1.1 Current Context Encouraged by the gains Nepal has made in implementing the EFA sub-sector approach and the Secondary Education Support Programme (SESP), the Government of Nepal has demonstrated its commitment to embarking on an integrated grades 1 to 12 SSA in a phased manner from 2009/2010 onwards. Inspired by the Popular Movement of 2006, people voiced their aspirations for change in the education system: from dependency to autonomy, from exclusion to inclusion, and from didactic to participatory. The people demonstrated their concerns about educational delivery with particular reference to equity and quality of education. The Government responded by initiating an education sector reform that also addresses the demand for economic and social development such as expanding science and technology as well as sharing the benefits of development more equitably. 1
SSA refers to the overall school system reform and restructuring
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Recognizing the importance of the sector-wide approach in school education, the development partners have recognised the Government initiatives towards the implementation of the grades 1 to 12 integrated school system. For example, the joint Aide Memoires of the EFA and SESP Review Missions held in June 2006 reiterated the support of all development partners for the full-fledged implementation of the school sector approach in education, including SSA preparation milestones. 1.2 Concept Paper Preparation Process The Ministry of Education and Sports (MOES), with the backing of the Education Policy Committee (EPC), has prepared this Concept Paper (CP) on policy directions for a 1 to 12 grades school sector. The MOES formed a Core Team with representatives from central level agencies. The Core Team is, convened by the Joint Secretary, Planning Division and reports to the Secretary, MOES. In order to broaden the base for the Core Team, MOES formed thematic groups, with members from academia, development partners, I/NGOs, teachers’ unions, public and private schools, and civil society. The thematic groups prepared background papers and held a series of consultations, seminars, and workshops to elicit feedback from stakeholders at the district, regional, and national levels. Inputs from these consultations were incorporated into the CP. This CP provides directions for the integrated school sector core document. The thematic groups will continue to provide input during the Core Document preparation. 2. RATIONALE The SSA has visible management benefits in terms of enhancing the schools’ systemic capabilities to efficiently use human and material resources. The SSA also instigates institutional and individual accountability at all levels of education for both learning and inclusion. By adopting an autonomous and flexible approach to school education, the local communities will benefit from SSA implementation. It will magnify the roles of local community in governance, management, resourcing, and quality assurance in school education in their community. SSA harmonizes educational choices in terms of relevance, appropriateness, and value orientations. With a view to meeting the demands of development, the SSA will provide children with greater opportunities to attain desired knowledge, attitudes, and skills development. Education is both a basic human right and a development tool. The rationale for grades 1 to 8, 9 to 12 system is grounded in education’s intrinsic worth as well as its instrumental value. In addition, there are managerial and pedagogic advantages to planning, operating, and financing a 1-12 system. The reform programme is equally important for the transformation of schools into knowledge centres, and for developing a culture of learning across the continuum. The present ten years of schooling, including five years of primary education, is inadequate to keep abreast of emerging, new knowledge and skills needed in the contemporary context of a global society.
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The rationale for basic education (1 to 8) and secondary education (9 to 12) is discussed in the following paragraphs. 2.1 Basic Education The rights-based rationale: The GoN has long taken the position that every child has the right to receive quality, basic education. The proposed policy direction defines grade 8 as the end of basic education. The development rationale: Five years of schooling is not sufficient given the global and regional norms as well as rising national expectations. Eight years of schooling is considered the minimum time required to diligently perform civic duties and also to engage productively in an occupation. Under the principles and guidelines of good governance, the Government believes that citizens receive at least eight years of schooling in order to fully express their voice and dutifully exercise their civic responsibilities. The technical rationale: Expanding primary facilities to grade 8 results in a more efficient use of expensive resources such as qualified teachers, head teachers, libraries, and laboratories. The quality improvement rationale: The structural integration of 1 to 5 with 6 to 8 schools improves students’ performance by easing curricular integration and consolidating the competency-based learning program. Consolidation also helps make teacher, head teacher, and School Management Committee (SMC) training more efficient. A 1 to 8 basic education structure will additionally have a positive impact on teacher management and development. 2.2 Secondary Education The development rationale: Secondary education with integrated grades 9 to 12 not only helps prepare eligible candidates for the current job market as skilled workers but it also enhances their level of learning and develops their technical know-how, making them competitive in the national and international contexts. The efficiency rationale: School system with 9 to 12 grades increases management efficiency by integrating a fragmented school structure into a coherent system. The system also lowers the unit costs and eases out school planning, resourcing, supervision, and monitoring functions. It also makes extra-curricular activities—such as sports, cultural activities, music, and civic development programs—available to students. The quality improvement rationale: The structural integration of grades 9 to 12 improves students’ performance and creates a better learning environment. As with basic education, structural integration eases curricular integration and consolidation. The new structure will have a positive impact on the supply of competent, qualified, and trained secondary school teachers. The integrated 9 to 12 school system provides a foundation for tertiary education. In terms of the learning environment, the 9 to 12 structure provides more effective use of expensive inputs such as laboratories, libraries, computers, and extra curricular activities.
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The access rationale: The 9 to 12 structure will provide more students with the opportunity to complete twelve years of schooling rather than ten. The new structure will allow more students to continue beyond secondary education. It also opens the channels for secondary students to enter into non-formal, vocational, and open learning streams. By providing opportunities to secondary students in remote locations, the new structure addresses MOES’ equity agenda. 2.3 Assumptions In order to implement the SSA it is assumed that the following conditions are met: 1. Political stability: The representative system of the Government will emerge from the current political situation. 2. Peace: Nepal observes stable peace in the country. 3. Degree of decentralization: The district and sub-district levels elected bodies will be in place and a clear demarcation between the functions, authorities, and responsibilities of central and local bodies will be determined in a timely manner. 4. Economic growth: There will be reasonable economic growth to support and sustain the education reform and restructuring. 3. OBJECTIVES The government has made the school system’s structural and functional transformation a priority in order to make school education effective, inclusive, equitable, pro-poor, and rights based. The major objectives of the school sector approach are as follows: a) To provide a policy framework to facilitate the reform process for an integrated school sector, b) To enhance all aspects of quality education to meet the needs and aspirations of the people, c) To hold the Government, local bodies, schools, and stakeholders (e.g. SMC, teachers, parents, and local body) accountable for student learning. 4. POLICY DIRECTIONS The following policy directions are under considerations for SSA implementation in a phased manner: 4.1 School Structure The structure of school education will comprise grades one to twelve, basic education running between grades one and eight, and secondary from nine to twelve. The vocational education stream will begin at grade nine. After completing their three years, vocational stream students will be given opportunities to enter tertiary education by completing an additional one-year bridge course.
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Non-formal students can be mainstreamed through school tests. Open and formal schooling will be made compatible to permit students to complete their education through either system. 4.2 Management Structure Within the education sector, the relationships of authority, accountability, and responsibility between the national, sub-national, and local levels will be fully aligned with any general restructuring of governance systems. 4.3 School Operation Schools for basic education (1 to 8) and secondary education (9 to 12) will be encouraged to operate as separate entities in terms of their management, administration, and financing. Schools will exclusively operate basic and/or secondary grades; tertiary education programs will be discouraged from sharing school facilities. Provisions of alternative programs—such as out-of-school, school outreach, flexible learning, and open/distance learning—will cater to the needs of a diverse population of learners. These alternatives will provide access to school education to a wider population. For example, street children and mobile/migratory communities will be served through mobile/home-based schools. 4.4 Entitlements The basic education will be free and compulsory for children between the ages of six and fourteen. Children currently enrolled in schools will continue to receive the entitlement. Free education will include cost-free services for the basics such as admission, textbooks, tuition, and examinations. Secondary education will be provided on a cost sharing basis. However, adequate arrangements will be made to ensure free secondary education to children from economically disadvantaged community and physically disabled children. 4.5 Decentralization Schools will be managed through a decentralized framework of operation. The emphasis will be placed on school-based management which will be accountable to a local body. The schools’ accountability and autonomy will be ensured in terms of school governance, management, resourcing, and quality assurance. Schools will follow a transparent model of operation and will adopt a mechanism for social auditing for financial transactions and programme performance. Local bodies, such as Village Development Committees (VDCs)/ Municipalities, will be responsible for the planning and management of basic education; District Development Committees (DDCs)/Municipalities will be responsible for the planning and management of secondary education. Planning and management activities will include school clustering, coordination, resourcing, and developing operational guidelines including setting their own targets for quality education in their respective jurisdictions. The SMC will be responsible for the management and operation of the school.
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4.6 Social Inclusion Inclusion will be the overarching strategy for SSA implementation. Special attention will be paid towards increasing participation of women, dalits, ethnic minorities, disabled, and marginalized groups in the governance and management of schools. Provisions will be developed to increase the number of teachers from these populations. 4.7 Instructional Arrangement Teaching modalities, such as grade and multi-grade teaching, will be determined by the school management in consultation with the local body and within the nationally defined operational modality. 4.8 Medium of Instruction A child’s mother tongue will be employed as the medium of instruction up to grade three. To ensure that children learn in their mother tongue, the SMC will determine the language(s) of instruction in consultation with the local body. Grades four and five can follow a transition from the mother-tongue medium of instruction to the Nepali medium of instruction. From grades six to eight the medium of instruction will be fully in Nepali. English will be taught as a subject from grade four onwards. In secondary education the medium of instruction will either be in Nepali or English as determined by the SMC in consultation with the DDC/ Municipality through the DEO. 4.9 Teachers SMCs will recruit teachers from among the licensees based on the guidelines provided by the MOES. SMCs will adopt competitive and transparent selection procedures to recruit teachers. Directives for teachers’ service conditions will be issued by the MOES. Priority will be given to recruiting females, dalits, and other disadvantaged groups when filling teacher positions, particularly in basic education. The minimum qualification for teachers of basic education will be the Higher Secondary Education or Intermediate Level. During the interim phase, candidates with School Leaving Certificates (SLC) will be considered on a case by case basis. New entrants in secondary education teaching must have attained a Master’s degree or equivalent qualifications. However, candidates with B.Ed. degrees will also be eligible for teaching in early two grades of secondary education. Teachers currently working in the primary schools with SLC qualification and in secondary schools with a Bachelor's (except B.Ed.) qualification will be provided with training opportunities to meet the basic requirements. After the interim phase, incentive packages for voluntary retirement will be provided for teachers who do not meet the new, basic requirements. Provisions will be made to prepare a separate cadre of teachers who specialize in multi-grade teaching. Specific terms and conditions for multi-grade teachers will be developed. 7
Two separate professional career development paths will be offered: one for basic and one for secondary teachers. Teachers’ qualifications and performance will be linked with their career development, including their salary structure. 4.10 Head Teacher A separate position for head teacher (HT) will be created in full-fledged schools such as 1 to 8, 9 to 12 and 1 to 12. However, in 1 to 12 schools, the HT will be assisted by separate incharge in both basic and secondary level. Basic and secondary level in-charge will be designated from among the teachers. The head teacher's job will be technical, managerial, and administrative in nature. SMCs will appoint head teachers on a contractual basis. The terms and conditions of the HT will be determined by the MoES. 4.11 Private Public Partnerships Basic education provisions will be the responsibility of the state. The role of community and the local body in basic education will be maximised. Provisions will be made to maximise partnerships of private and public sector in secondary education, ensuring adequate access to disadvantaged populations. Community-operated institutional schools (trust schools) will be encouraged to provide free basic education, ensuring adequate access to disadvantaged populations in secondary education. It will be ensured that the facilities provided by the private schools are commensurate with the facilities provided to the students. 4.12 Quality and Accountability The Government will develop a national framework of norms and standards for quality education. The school community will, within the national framework, define its own targets addressing the local needs and conditions. For basic education, schools will be accountable for the students’ learning, parents and guardians will be accountable for their child’s regular attendance, and lastly, the state will be accountable for providing the minimum enabling conditions—including an environment for equitable participation, appropriate classrooms, instructional materials, and teachers. 4.13 Student Evaluation A liberal promotion policy will be adopted with no retention up to grade seven in a phased manner. Schools will be supported in developing and adopting a continuous assessment system to ensure students achieve grade-wise minimum learning competencies with the provision of remedial support. The District Level Examinations will be held at grade eight and will be managed at the district level. Technical backstopping for strengthening the examination systems will be provided in each district. The present SLC Board and the Higher Secondary Education Board will be transformed into the National Examination Board (NEB) with functional autonomy. Grade ten examinations will be conducted at the regional level with certification through NEB. Grade twelve examinations will be managed and conducted by the NEB itself. 8
4.14 Linkage School education will be linked with non-formal/ open learning, technical education, vocational training, as well as university education. Government will encourage NGO/INGOs, local body and private sector partnerships to expand provisions of non-formal/ open learning, technical education, and vocational training. In view of the contributions of ECD in access and quality of basic education, the program will be expanded both in schools and communities in partnership with community based NGOs. 4.15 School Financing Financing policy will be aimed at increasing school autonomy. Multiple financing modalities— such as block and earmarked grants as well as needs- and results-based financing—will be employed to ensure flexibility and accountability. There will be a gradual increase of funding or support targeted towards disadvantaged areas and groups to redress past imbalances. The state will not reduce its current level of funding to schools. School finances will be provided by both central and local level agencies. The share and contribution of local bodies—including VDC, municipality, and DDC—will be defined by the state. Mechanisms will be installed for the effective use of resources in schools. Accountability and transparency will be fundamental features in school financing. 4.16 Donor Financing SSA implementation will encourage a pooled financing modality that uses Governments’ financial management system. 4.17 Monitoring and Supervision In order to continuously improve quality, MOES will develop a system of monitoring and supervision based on national standards and targeted at school performance. This system will be intensively mobilized for teacher support activities and for improving school performance.
5. STRUCTURAL AND FUNCTIONAL ADJUSTMENTS 5.1 Function Allocation and Accountability The Ministry of Education and Sports will be accountable for policy formulation, follow-up, coordination, and review and monitoring. The Central level agencies will be responsible for the facilitation of the programme implementation and coordination. The Regional Education Directorates will be made responsible for the conduct of the regional level grade ten examinations and will provide support for the grade twelve School Leaving Examinations. The regional offices will also be involved in the Teacher Service Commission activities. The District Education Offices will be responsible for making logistical arrangements for school governance, management, planning, financing, quality assurance, and Education Management Information System (EMIS). The sub-district level mechanism will be made responsible for teacher support and quality enhancement. 9
School finances will be provided by both central and local level agencies. The state will define the share and contribution of local bodies, including VDC, municipality, and DDC. Mechanisms will be installed for the effective use of resources in schools. Accountability and transparency will be fundamental features for school financing. The SMC will be responsible for teacher management, financing, planning, target setting, and for ensuring student learning. The PTA will be responsible for providing feedback to teachers to assist them in improving their students’ learning. Parents will be responsible for providing support and a home environment conducive to their child’s learning. 5.2 School Performance Review Mechanism In order to enhance the quality of learning in schools, it is necessary to regularly review their performance. The review will serve as a basis for providing feedback and rewards to the school system in the pursuit of attaining academic excellence. The review mechanism will not only pave the way for improving the students’ learning but will help monitor the school’s progress over a period of time. More importantly, the review will contribute to establishing a system of accountability and transparency in the school. This review process will encourage the school system to adopt a policy of more targeted and need-based interventions. The Review Office will be an independent body formed under the Education Policy Committee of the MOES. As an extension of the Review Office, District Level Review Panels will work in collaboration with teacher unions, SMCs, Parent Teacher Associations (PTA), reputed teachers, and professionals. The Resource Centre system will provide backstopping to the schools that need special attention in terms of technical support and resourcing to enhance their capability; this will also help raise their level of performance and standards in line with the district level benchmarks and national standards. 5.3 Changes to Laws and Regulations A legislative and regulatory framework will be developed for structural and functional adjustments in the MOES system. Provisions for free and compulsory basic education will be made in the law. Accordingly, necessary changes and amendments will be made in the Education Act, Regulations and by-laws, and guidelines to harmonize the process and fulfil the enabling conditions for SSA implementation.
6. RESOURCING The Government of Nepal is committed to implementing a 1 to 12 school sector programme. The 10th Plan, NPA, Medium Term Expenditure Framework, and Education Sector Business Plan have stipulated that the 1 to 12 school sector will receive resources required for its implementation. Commitments from the donor community have been reflected in the Nepal Development Forum 2004. The EFA and SESP Aide Memoires of Education Mission held in June 2005 have clearly demonstrated interest and strong support from development partners for the school sector programme implementation. Local bodies, including DDCs, municipalities, and VDC, have made provisions for school education development. Provisions will be made for flexible financing in education.
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7. SSA MILESTONES In order to ensure the gradual transition of the SSA process, the following milestones have been employed: a. Policy Formulation, Coordination and Follow-up • Policy Committee formed (June 2006) • Technical Secretariat established (June 2006) • Technical Secretariat strengthened (July 2006 and on-going) • Policy Committee working procedures approved (June 2006) • Technical Secretariat terms of references finalized (July 2006) b. Preparation for the School Sector Approach • 1st Draft Concept Paper Prepared (July 2006) • Concept Paper (CP) disseminated in the MOES (July - August 2006) • CP disseminated at the regional level (August - September 2006) • CP disseminated at the district and local levels (August 2006 and on-going) • TOR for CD prepared (October 2006) • Core Team and Thematic Groups formed for Core Document (CD) preparation (October, 2006) • CD work-plan prepared (October-November 2006) • Consultations with stakeholders and development partners (On-going) • Draft CD (including strategy for transition) approved by Policy Committee (January - February 2007) • A SSA Transition plan is prepared (Frebruary-March, 2007) • Core Document approved by NPC and MoF (June 2007) • Core Document finalised and ready for Appraisal (December 2007)
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