38 June Financing Quality Basic Education For All in Pakistan

Transcription

1 38 Financing Quality Basic Education For All in Pakistan

2 38 Financing Quality Basic Education For All in Pakistan

3 PILDAT is an independent, non-partisan and not-for-profit indigenous research and training institution with the mission to strengthen democracy and democratic institutions in Pakistan. PILDAT is a registered non-profit entity under the Societies Registration Act XXI of 1860, Pakistan. Copyright Pakistan Institute of Legislative Development And Transparency PILDAT All Rights Reserved Printed in Pakistan Published: May 2010 ISBN: Any part of this publication can be used or cited with a clear reference to PILDAT. This Briefing Paper is produced with the support of Published by Head Office: No. 7, 9th Avenue, F-8/1 Islamabad Pakistan Registered Office: 172-M, DHA, Lahore, Pakistan Ph: (+92-51) Fax: (+92-51) info@pildat.org Web:

4 CONTENTS Foreword Education and Development Right to Education Pakistan s Commitments to Education Six EFA Goals National Education Policy (2009) Status of EFA Indicators in Pakistan: A Comparative View Major issues and Challenges of Education in Pakistan Will Pakistan achieve EFA Goals? Financing of Education in Pakistan How much is needed? Budget Requirements for EFA Role of Parliamentarians for achievement of EFA Goals The Way Forward Tables Table 1: Literacy Rate and Primary Level Enrolment (NER) in Pakistan ( ) Table 2: Human Development in South and West Asia Table 3: Class Rooms and Missing Facilities in Govt. Primary Schools ( ) Table 4: Numbers of Illiterates are Rising in Pakistan Table 5: Projected Rate of Literacy and Net Enrolment Rate NER (Primary) by 2015 Table 6: Financing of Education in Pakistan ( to ) Table 7: Trends in Education Expenditure as Percentage of GDP and GNP Table 8: Resource Requirement to meet EFA Targets by 2015/16 Table 9: Resource Requirement to meet EFA Targets by 2015/16 (Rs. M) Table 10: Projections of Key Education Indicators for NEP Target of 7% GDP for Education Graphs Graph 1: public expenditure on education as % of GNP in Pakistan since 1995 Graph 2: Comparison: Education Budget per GDP and Government Expeniture 12 12

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6 Foreword In the year 2000, the Government of Pakistan ratified two major frameworks of action, namely the Education for All charter of objectives at the Dakar (Senegal) World Education Forum and the Millennium Development Goals at the United Nations Millennium Summit in New York. Pakistan has, therefore, committed to undertake necessary steps in the achievement of targets set in the two international frameworks such as universal basic education and literacy, expansion of Early Childhood Education and Care (ECCE) facilities, provision of free and compulsory quality primary education for all children, reduction of gender inequalities in education, and enhancement of quality of primary education by the year Despite these multiple international commitments, Pakistan, unfortunately, is one of the six countries regarded as being far from the EFA goals. In view of the critical importance of education for long-term security, stability and prosperity of Pakistan, it is important to highlight the importance of achieving the promised EFA goals and involve a broad range of stakeholders such as parliamentarians, senior officials, media and citizens in the effort to make the state institutions to seriously move forward on achieving these goals. The will and plicy of the government to achieve these goals should manifest in the allocation of adequate financial resources for quality basic education. This briefing paper on Financing Quality Basic Education for All in Pakistan has been specially commissioned by PILDAT to review the past and present financial allocations for basic education in Pakistan and compare with the allocations made in some other comparable countries. The paper is meant to give the background and current status of education in Pakistan with an aim to brief Parliamentarians and Provincial Legislators on this important subject to monitor progress towards achieving the MDGs both at the federal and provincial level. PILDAT endeavors to enhance the awareness of elected legislators to enhance decisions and policy making to promote increased education investments at the national and provincial levels and to monitor the effectiveness and progress of EFA in their constituencies and raise concerns with the local administration or in the parliament. This paper has been produced as PILDAT is organizing a series of roundtable discussions for parliamentarians and provincial legislators to underscore the importance of their pro-active stand both within and outside the legislatures for adequate allocation of financial resources for quality basic education. We hope that this paper and the roundtables are able to revive and sustain an informed discourse at different forums and in the media about this critical issue concerning our future as a country. Acknowledgements PILDAT wishes to gratefully acknowledge the support and contributions provided by United Nations Educational, Scientific and Cultural Organization (UNESCO), Islamabad in making of this briefing paper. Disclaimer PILDAT and its team of researchers have made effort to ensure the accuracy of the contents of this paper and do not accept responsibility for any omission and error, as it is not deliberate. Islamabad;

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8 Education and Development The concept of development has transformed and extended from the traditional indicators of economic growth, GDP, or per capita income of a country to cover human resource development as an ultimate objective. Education is a vital investment for human or socio-economic development. Human Development Index (HDI) is based on numerous key indicators, including literacy rate, and enrolment rates at primary, secondary and tertiary education. Since 1990s, UN is ranking human development in countries of the world based on HDI. Unfortunately, Pakistan has not been able to improve its HDI ranking. Its present ranking is 141 out of 206 countries. If we trace back and analyze the factors which accelerated development process in the countries which are now leading economic powers of the world, we will find education as the most common and major catalyst. Most of the countries today enjoying economic power, political stability and military dominance have first attained higher levels of education for their people, which helped them to achieve development goals. World map of poverty and illiteracy largely coincides. There can be no economic progress without education. Economic growth requires trained human resources. Sustainable economic growth in a county needs peaceful environment, merit, social justice and most importantly political stability. Political stability, based on democracy and participation of masses in decision making, can not be achieved when majority of the voters are illiterate. Hence, education and developed are inter linked and inter dependent. Right to Education Access to free and compulsory elementary education has been globally recognized a fundamental right of all human beings. It is the responsibility of the state and society to ensure provision of free and compulsory elementary education to all children, irrespective of their gender, race, ethnicity, religion, or economic status of their parents. The Article 26 of the Universal Declaration of Human Rights (1948) granted this right 62 years back. Right to free elementary education has now been guaranteed by the Constitution of Pakistan under: Everyone has the right to education. Education shall be free, at least in the elementary and fundamental stages. Elementary education shall be compulsory. Technical and professional education shall be made generally available and higher education shall be equally accessible to all on the basis of merit. Article 26, Universal Declaration of Human Rights (1948) The state shall provide free and compulsory education to all children of the age of five to sixteen years in such manner as may be determined by law. th Article 25 A. (18 Amendment) The right granted in the above referred global charter and constitutional provision can not be given to the children of this country unless government makes necessary legislation and ensures provision of education budget to the level it is needed to meet this obligation. Pakistan's Commitments to Education The Govt. of Pakistan has declared education in general and Education for All (EFA) in particular, its top priority. Human development through education and training forms key pillars of Pakistan's strategy for poverty reduction. Pakistan is also a signatory to international commitments like The Millennium Development Goals (MDGs) signed by the world leaders in the year 2000, and the Dakar Framework of Action for Education For All (April 2000). Six Goals of EFA Education Ministers and representatives from 166 countries of the world, including Pakistan committed in April 2000 to achieve following Six Goals of EFA by Early Childhood Care and Education (ECCE): Expanding and improving comprehensive early childhood care and education, especially for the most vulnerable disadvantaged children; 2. Universal Primary Education (UPE): Ensuring that by 2015 all children with special emphasis on girls and children in difficult circumstances have access to and complete free and compulsory primary 07

9 education of good quality; 3. Meeting Learning Needs of Young and Adults: Ensuring that the learning needs of all young people and adults are met through equitable access to appropriate learning, life skills and citizenship programs; 4. Improving Literacy Rate: Achieve a 50% improvement in levels of adult literacy by 2015, especially for women and equitable access to basic and continuing education for all adults; 5. Gender Equality in Education: Eliminating gender disparities in primary and secondary education by 2005, and achieving gender equality in education by 2015, with a focus on ensuring girls' full and equal access to and achievement in basic education of good quality; and 6. Quality of Education: Improving all aspects of the quality of education and ensuring excellence of all so that recognized and measurable learning outcomes are achieved by all, especially in literacy, numeracy and essential life skills. Also the challenges triggered by globalization and nation's quest for becoming a knowledge society in the wake of compelling domestic pressures like devolution and demographic transformations have necessitated a renewed commitment to proliferate quality education for all. National Education Policy (2009) In the new National Education Policy, approved by the Federal Cabinet on 09 September 2009, following key targets have been envisaged: Achieving universal and free primary education by 2015 Achieving EFA Goals and MDGs Achieving 86% Literacy rate by 2015 Increasing allocations for education up to 7% of GDP by 2015 Provincial and district governments shall allocate a minimum of 4% of education budget for literacy and Non-formal basic education (NFBE) Food based incentives shall be introduced to increase enrolment improve retention and completion rates, especially for girls. Now the planners, parliamentarians, media, and civil society organizations need to assess the pace of progress of the Govt. of Pakistan, including provincial governments towards achievement of targets and commitments of Pakistan listed above. Status of EFA Indicators in Pakistan: A Comparative View Pakistan's commitment to universal primary education by 2015 under EFA Framework appears elusive on current performance, as participation is low and dropout rates continue to be high. There are persistent gender and rural urban disparities. Girls continue to remain underrepresented in the education system, both public and private. The rural - urban divide is stark on most indicators of school provision and participation, which becomes particularly attenuated in some Provinces and Areas. Reforms and priorities will need to be planned in detail at various levels of government. Government spending has declined during recent years. The following table indicates overall status of literacy and elementary education in Pakistan. All children, boys and girls, shall be brought inside school by the year 2015 Achieving universal and free secondary education by

10 Table 1: Literacy Rate and Primary Level Enrolment (NER) in Pakistan ( ) Indicator/Area Total Rural Areas Female Literacy Rate (10+) 57 % 48 % 45 % Net Enrolment Rate (Primary) 57 % 53 % 54 % Source: PSLM Survey ( ), Economic Survey, Govt. of Pakistan, 2010 Above statistics, released by the Govt. of Pakistan indicates that about 43% people in Pakistan are illiterate, and only 57% children of age 5-9 are enrolled in primary schools. Situation is alarming if we study the rates for rural areas and females. In Sindh about 80% rural women are illiterate, and in Balochistan only 16% rural women can read and write. PSLM ( ) has revealed that 42% people in Pakistan have never gone to any school. These figures point out towards harsh reality that Pakistan has failed to invest on education of its masses. The following table shows our comparative position in South and West Asia. Table 2: Human Development in South and West Asia Country HDI Ranking Public expenditure on Education as % of GDP Literacy Rate % (15+ Years) India Iran Pakistan Sri Lanka Maldives Nepal Bangladesh (Source: Human Development Report 2009, and UNESCO EFA Global Monitoring Report 2010) Major issues and Challenges of Education in Pakistan A number of factors have affected educational development in Pakistan. Number of illiterates in Pakistan has doubled during last 50 years in Pakistan. At present, one third school aged children are not enrolled in schools. Drop out rate is high and quality of education is poor in public sector schools. The state of Pakistan has failed to expand educational opportunities in accordance with the needs emerging as a result of population growth and those who could not cross threshold of a primary school due to poverty or distance location of school. With respect to achievement of EFA Goals and MDGs, education sector in Pakistan is facing following challenges: i. Commitment Gap: Political leadership and planners in Pakistan could not accord due priority to education of masses. Education remained low on the ladder of priorities. Education is a long term investment and its benefits emerge over generations. Parliamentarians and political parties focused their attention on projects with more visible and short term returns. ii. Poor financing of education: Education budget is the vital input for expansion of access and improvement in quality of education. Education 09

11 sector in Pakistan has been facing shortage of financial resources. On average, not more than 2% of GDP was allocated for education sector, and 90% of this amount was meant to meet recurring expenditure of the existing schools, and about 10% annual budget was available for development purposes. This has resulted in slow pace of growth in educational opportunities for a society where population was increasing at the iii. highest rate. Disparity in need and actual facilities or their intake capacity led to a backlog of illiterate youth and out of school children. Missing facilities: Leaning conditions at public sector schools are poor. According to latest data of EMIS, about 70% Govt. Primary Schools have only 2-Room buildings for five classes. Table 3: Class Rooms and Missing Facilities in Govt. Primary Schools ( ) 1-Room Schools 2-Room Schools Without Electricity Without Drinking Water Without Latrine for Students 15 % 52 % 67 % 39 % 41 % Source: Academy of Educational Planning and Management, Ministry of Education, Islamabad (Pakistan Education Statistics ). More than half of the schools do not have without electricity. Although 59% Govt. Primary Schools have toilets for students but half of these are not operational. 67% Schools are without electricity. Absence of conducive environment negatively affects the attention of children in the class room and compels many of them to drop out or leave the school before completion of primary level education or Grade 5. iv. Rising population of illiterates: Since formal school system has not been able to reach out or enroll all the children, therefore missed out and dropped out children add up annually to the existing lot of illiterates. Illiterate population in Pakistan has doubled during last 50 years. Table 4: Numbers of Illiterates are Rising in Pakistan Year Pop 10 + (Millions) Literacy Rate (10+) Illiterate Pop (10+) in Millions (estimated) Source: Population Census Reports. Projections for based on past trends. 10

12 Above table indicates gradual and consistent increase in illiterate population. If today over 50 million Pakistanis illiterate, it is due to the hard fact that past governments did not pay due attention to bring all children into school and ensure their retention. A strong and well organized country wide literacy programme has so far not been launched to tackle the problem of illiteracy and transform Pakistani nation into a literate society. v. Political interference and Educational Governance: It is generally perceived that decisions about appointments and transfer of teachers and postings of education managers are made on political basis. This deteriorates educational governance and gives birth to corruption, teacher absenteeism, slow pace of implementation of development schemes, and consequently it also affects quality of learning in class rooms. vi. Parallel system of education: To promote social justice and equality in the society, it is imperative that education system is based on equal and uniform curriculum. Unfortunately, this has not been happening in Pakistan. There exist parallel systems of education consisting of high quality private sector English medium schools for the rich, Urdu medium Govt. Schools for children of ordinary citizens, and Madrassas for the poor. Prevalence of parallel systems of education is breeding disparities and strengthening stratification and tensions in the society. The Govt. of Pakistan, particularly the provinces need to plan their future development projects and reforms keeping in view the challenges listed above. Will Pakistan achieve EFA Goals by 2015? Every year, UNESCO reviews progress of various countries with respect to achievement of EFA Goals. Data and analysis on monitoring of EFA is published in its annual publication titled EFA Global Monitoring Report (or GMR). According to GMR 2009, Pakistan includes among 29 countries which are not likely to achieve EFA Goals by If we see pace of progress in the area of literacy and Primary Education during last few years, we can project Pakistan's position by 2015 as well. The following table, using data published by Govt. of Pakistan in latest Economic Survey, projects future scenario based on past trends. Table 5: Projected Rate of Literacy and Net Enrolment Rate NER (Primary) by 2015 Indicators/Year Rates as per PSLM Survey (Pakistan Economic Survey ) Average Annual Growth Rate Projected Rate by Literacy Rate (10+) % 64 Net Enrolment Rate (Primary) Above table indicates that Pakistan may need another 15 years to achieve 86% literacy rate and 38 years to achieve universal primary education (UPE) or 100% NER. This means EFA Goals will not be achieved before 2048, if present trend continues and special initiatives are not launched by the Federal and Provincial Governments. Financing of Education in Pakistan Financing of education in general, and especially in the context of the six goals of EFA has emerged as a key area, which needs urgent attention. Unfortunately, Pakistan has not been spending enough on education. Following table shows low priority accorded to education in terms of budget. 11

13 Table 6: Financing of Education in Pakistan ( to ) Year % of GDP Year % of GDP (Source: Economic Survey , , 2009 and 2010) It is evident from the above Graph that Pakistan is spending less compared with other countries in the region with similar economic status or common social scenario. Educational opportunities can not be expanded without increasing education budget. Similarly, low quality of education in Govt. Schools can not enhanced without construction of more rooms and provision of missing facilities, provision of food and other incentives to students, stipend to girls, better training of teachers, supply of textbooks which are relevant to the needs of society as well as economy, efficient monitoring of schools and accountability of their performance from various angles. Present budget of 2% GDP is not enough to scale up educational facilities and improve quality of education in the public sector. Slow and static trend of financing of education in Pakistan observed during last 14 years is shown in the below Graph. Graph 1: Public expenditure on Education as % of GNP in Pakistan since 1995 The following Graph compares education budget in Pakistan with other countries of South and West Asia. Graph 2:Comparisons: Education Budget per GDP and Government Expenditure Education for All Global Monitoring Report 2010 % Education for All Global Monitoring Report 2010 (Source: Economic Survey ( ) Finance Division Government of Pakistan, Page 167, Table 11.5 and Economic Surve y of Pakistan , and EFA Global Monitoring Report 2008) 12

14 Table 7: Trends in Education Expenditure as Percentage of GDP and GNP Education Expenditure (Rs m) 2000/ / / / / / / / / GDP (Rs m) Educ. Exp. as % of GDP 1.34% 1.49% 1.61% 1.73% 1.80% 1.86% 1.87% 1.78% 1.51% GNP (Rs m) Educ. Exp. as % of GNP 1.36% 1.48% 1.56% 1.69% 1.76% 1.82% 1.84% 1.74% 1.45% Projections of the financial resources available to meet EFA targets in the three themes, i.e., primary education, adult literacy, and early childhood education for the thirteen years show that the total budgetary resources available by 2015/16 should be Rs. 786,005 million. Given the financial requirements of Rs. 1,212,097 million, the resulting financing gap is to the tune of Rs. 426,092 million. It may be highlighted that these estimates include an annual average additional cost of achieving UPE by 2015/16 of US $495 million. However, if a more idealistic approach based on good quality i.e., five-classroom in urban and twoclassroom in rural model schools, is considered, the financing gap is considerably higher and expected to exceed Rs. 2,031,292 million. How much is needed? Budget Requirements for achievement of EFA Goals The total estimated public sector financial requirement to meet EFA targets in the three themes i.e., primary education, adult literacy and early childhood education by 2015/16 is Rs. 1,212,097 million, spread over three phases. This requirement is based on a less- idealistic/more realistic approach of estimation. The development and recurring funds requirement in the three areas is as follows: Table 8: Resource Requirement to meet EFA Targets by 2015/16 13

15 Considering the estimated financial requirement of Rs. 1,212,097 billion to meet EFA targets by 2015/16 and the projected budgetary resources which should be available to the three EFA themes, i.e., primary education, adult literacy, and early childhood education. At that time, anticipating adequate growth in education budget by the Federal and Provincial Governments, a financing gap of over Rs. 426 billion has been calculated. Table 9: Resource Requirement to meet EFA Targets by 2015/16 (Rs. M) 14

16 Keeping in view the past trends and progress so far, it is felt that a financing strategy based on a strong funding support to public sector education will be the only option to bring out of school children into the school and make millions of illiterate Pakistanis literate. The major issue in education finance in Pakistan is the low public sector investment. Although government claims that education enjoys the highest priority on the social sector agenda, yet practically, allocations remain low and relatively modest. Federal Govt. and Provinces need to gradually but consistently enhance their education budgets during next 5 years, as per table given below, if they are serious to achieve the target of 7% GDP for education sector. Table 10: Projections of Key Education Indicators for NEP Target of 7% GDP for Education # % Educ Expenditure/GDP* GDP (Rs b)** *** Educ Expenditure (Rs.b)**** Government Total Expenditure (R b)***** Educ Expenditure in Total Govt. Expenditure (%) on National Education Policy projection that allocation to education will be 7% of GDP in # All values for 2007/08 are actual values*based on values derived on the basis of exponential (assuming that the increase would be relatively higher in later years) function in Graph 1, using actual value for 2007/008, and limiting the value at 7% in See Graph 1. ** Source: GDP 2007/ : PRSP II *** : GDP projected on the basis of growth rate of 12.5% **** Educ Expenditure: actual value for 2007/08; but calculated on the basis of estimated percentage of educ expenditure per GDP ***** Source: 2007/08: Govt. Total Expenditure 2007/ /13: PRSP-II; for and , projected on the basis of 19.5% of GDP 15 It is, therefore, recommended that all efforts should be made to enhance the budgetary allocation to education up to 7% of GDP, as suggested in the National Education Policy (2009). In addition, innovative approaches should be designed to generate additional resources for increasing funding for the education sector, especially to primary education, adult literacy and early childhood education, if Dakar targets are to be achieved by Role of Parliamentarians for achievement of EFA Goals The whole Society, various organs of the state, including the parliamentarians are responsible for ensuring the provision of right of free and compulsory elementary education for all children. A committed leadership of Parliamentarians can add to the steps towards achieving the targets set in the

17 Dakar Declaration as they too can strongly advocate on the issues at the highest level, allocate adequate resources for taking the EFA forward, and legislate to ensure universal access to resources necessary to implement the EFA plan effectively. Recently, parliamentarians have played a pivotal role by approving free and compulsory elementary education as a fundamental right. Insertion of Article 25-A in Chapter No 1 (Fundamental Rights) has paved the way for a historic journey towards Education For All. Now the next step is to pass legislation which can help enforce Article 25 A. Parliamentarians can positively influence national policy by supporting provision of increased financial resources for the education sector. They can also provide leadership to the EFA movement which has so far been lacking. Parliamentarians may undertake following tasks: Legislation: Immediate legislation for enforcement of Article 25-A, by setting standards and passing various Acts and laws to elaborate roles and responsibilities of various stakeholders. Leadership: Creating an enabling environment by personally leading EFA movement in their constituencies. Per child education budget: Advocacy and resolutions in the parliament for ensuring equitable distribution of financial resources to districts/areas, proportionate to the population of out of school children and illiterates. Road map up to 2015: Year wise targets for raising education budget up to 7% of GDP by 2015 as per target envisaged in the National Education Policy The elected representatives can play a very effective role in the specific context of promoting EFA programme. They can highlight administrative lapses, lethargy and lack of effectiveness in the local administration about EFA in the legislature or the elected bodies and demand improvements. They can make use of evidence to enhance decisions and policy making to promote increased education investments at the national and provincial levels. They can monitor the effectiveness and progress of EFA in their constituencies and raise concerns with the local administration or in the parliament. They should show a strong will to ensure that political influences don't hamper the basic objectives of EFA. They should monitor progress towards achieving the MDGs both at the federal/provincial level and also within their own constituencies. They can help raise awareness by participating in media talk-shows and media events. They can try to enhance the budget allocated for EFA targets and they can question the government about the effectiveness of the measures that the Government is taking to implement EFA goals. Way Forward The only way forward to achieve EFA Goals is to increase the budgetary allocation to education up to 7% of GDP, as suggested in the National Education Policy (2009). In addition, innovative approaches should be designed to generate additional resources for increased financial resources for the education sector, especially to primary education, adult literacy and early childhood education, if Dakar targets are to be achieved by Parliamentarians should join hands, beyond party lines, in the interest of next generations, to create a literate society and to bring Pakistan on the road towards sustainable development, political stability, and positive social change. Parliamentary Sub Committee on Literacy: Putting literacy and NFBE on agenda of Parliamentary Committees on Education, and constituting a permanent Sub Committee on Adult Literacy and Non-formal Basic Education, to ensure adequate debate and priority to this neglected sub sector of education. Budget for Literacy: Legislation for allocation of at least 5% of education budget for NFBE programmes for out of school youth and adult illiterates. 16

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