THE NATIONAL EDUCATION POLICY 2009

Introduction
Overview of the National Education Policy
Challenges and Deficiencies
The Commitment Gap
The Implementation Gap
Islamic Education
Broadening the Base and Achieving Access
Early Childhood Education (3-5 years of age)
Elementary/Primary Education (6-10 years of age)
Secondary/Higher Education
Literacy
Emergencies
Quality in Education
Teacher Quality
Curriculum Reform
Texts and Materials
Improving Student Assessment
Standards in Learning Environments
Matching Education to the Needs of the Labour Market
Skills Development and Innovation
Higher Education
Implementation
Conclusion and Comment
he Government of Pakistan finalised its National Education Policy on August 1, 2009 and
Tthe 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 % pass 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.
Introduction
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Brief No: 01
December 2009
Contents
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Challenges and Deficiencies
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.
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 administration 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
In order to achieve these aims the policy sets out the following
Overview of the National Education Policy 2009
implementation plans:
- 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 terms of resources, curriculum and access
- The need to introduce formal subjects and accountability 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.
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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.
03 December 2009
Islamic Education
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.
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 i ntroducti on of l i fe ski l l s educati on and
counselling
- A school ranking system, measuring results
- A national merit programme, rewarding bright
students
Literacy
The policy aims to increase literacy levels across the
population, including amongst those in non-formal education
and amongst adults. The policy aims to:
- 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
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:
- 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 student-
centred 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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- 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 terms 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
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 accountability
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
account 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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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 members
- 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
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 support 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
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 feedback 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.
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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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INTRODUCTION 7
CHAPTER 1 9
NATIONAL EDUCATION POLICY: OVERARCHING CHALLENGES & DEFICIENCIES:
THEIR CAUSES AND THE WAY FORWARD 9
1.1 Background 9
1.2 The Demographic Transition 9
1.3 Uniformity and Confidence in Public Education System 10
1.4 Globalization and Competitiveness 11
1.5 Social Exclusion and Social Cohesion 12
1.6 Setting Standards for Education 12
1.7 Dovetailing Government Initiatives 13
1.8 Leveraging International Development Partnerships 13
1.9 MAJOR DEFICINCIES 13
1.10 Understanding System Deficiencies 14
1.10.1 The Commitment Gap 14
1.10.2 The Implementation Gap 15
1.11 The Way Forward: A Paradigmatic Shift 15
CHAPTER 2 16
FILLING THE COMMITMENT GAP: SYSTEM VALUES, PRIORITIES AND RESOURCES 16
2.1 Educational Vision and Performance 16
2.2 A Reaffirmation of Educational Vision 16
2.3 Aims And Objectives 17
2.4 Overarching Priorities: Widening Access and Raising Quality 19
2.5 Mobilising Resources for Education 20
CHAPTER 3 22
FILLING THE IMPLEMENTATION GAP: ENSURING GOOD GOVERNANCE 22
3.1 Developing a Whole-of-Sector View 22
3.2 Ensuring Policy Coherence 22
3.3 Overcoming Fragmented Governance 23
3.4 Bridging the Public-Private Divide 25
3.5 Overcoming Structural Divides 27
3.6 Building Management and Planning Capacity 28
3.7 Getting Stakeholders Involved 30
CHAPTER 4 31
ISLAMIC EDUCATION 31
4.1 Islamic Education: Duty of The Society and the State 31
Appendix-I
NATIONAL EDUCATION POLICY 2009: Contents
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CHAPTER 5 35
BROADENING THE BASE AND ACHIEVING ACCESS 35
5.1 Early Childhood Education (ECE) 35
5.2 Elementary Education 36
5.3 Secondary and Higher Secondary Education 37
5.4 Literacy and Non-Formal Learning 38
5.5 Education in Emergencies 40
CHAPTER 6 42
RAISING THE QUALITY OF EDUCATION 42
6.1 Improving Teacher Quality 42
6.2 Curriculum Reform 44
6.3 Quality in Textbooks and Learning Materials 46
6.4 Improving Student Assessment 47
6.5 Attaining Standards in the Learning Environment 48
6.6 Matching with the Labour Market 50
CHAPTER 7 51
STRENGTHENING SKILL DEVELOPMENT AND INNOVATION 51
7.1 Technical Education and Vocational Training 51
7.2 Possible Strategies 53
CHAPTER 8 55
HIGHER EDUCATION 55
8.1 Challenges 55
8.2 Strategic Vision 56
CHAPTER 9 61
IMPLEMENTATION FRAMEWORK 61
9.1 Objective 61
9.2 Policy As a Living Adaptable Document 62
9.3 IPEM To Oversee Progress 63
9.4 Provincial Autonomy and Ownership 63
9.5 Role of Development Partners 63
ANNEX: I 65
THE STATE OF PAKISTAN'S EDUCATION 65
A. Access to Educational Opportunities 65
B. Equity in Education 66
B1. The Gender Dimension 66
B2. The Rural-Urban Divide 67
B3. Provincial and Area Disparities 68
C. Quality of Provision 68
D. The Resource Commitment 70
E. Structure of Education: Public-Private Provision 70
Appendix-I
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