Sub-Sector Study Report on Lifelong Education. Mongolia

Ministry of Education, Culture, Science and Sports Asian Development Bank

SUB-SECTOR STUDY REPORT ON LIFELONG EDUCATION

Project name and reference #: ADB TA MON 9376: SUPPORTING AN EDUCATION SECTOR DEVELOPMENT OF MONGOLIA (51103-001)

Report content: Development trend of life-long education sub-sector in Mongolian, its scope and coverage, preliminary results and outputs of studies, relevant studies and reports, workshop, meeting and training presentations and materials

Report prepared by: . Yo. Batchuluun

April 2019

CONTENT List of Tables ...... Error! Bookmark not defined. List of Figures ...... 5 List of abbreviations ...... 7 Key words ...... 8 Foreword ...... 9 Summary ...... 10 CHAPTER ONE: LIFELONG EDUCATION SUB-SECTOR PROFILE ...... …11 1.1. Global perspectives on the life-long education development ...... 12 1.2. Demographic indicators and need for lifelong learning education ...... 16 1.3. Current state of lifelong education sub-sector and policy planning ...... 29 1.4. Conclusions ...... 36 CHAPTER: LIFE-LONG EDUCATION SUB-SECTOR ACCESS AND EQUALITY……. ... ……....38 2.1. Lifelong education accessibility ...... 38 2.2. Equality in the access to lifelong education ...... 47 2.3. Demand and need for lifelong education ...... 51 2.5. Conclusions ...... Error! Bookmark not defined.54 CHAPTER THREE: LIFELONG EDUCATION QUALITY, EFFICIENCY AND SYSTEMATIC CAPABILITY ...... 57 3.1. Evaluation of the trainees ...... 57 3.2. Teacher’s capacity and management ...... 57 3.3. Capacity and management of other sources ...... 59 3.4. Conclusion ...... Error! Bookmark not defined. CHAPTER FOUR: SUB-SECTOR PROBLEMS, CAUSES AND FACTORS……… ...... … 74

4.1. Problems ...... Error! Bookmark not defined. 4.2. Possible solutions ...... 75

CHAPTER FIVE: POLICY PRIORITY, MID – TERM EXPENDITURE FRAMEWORK ...... 77 5.1. Proposal on policy priority ...... 77 5.2. Mid-term expenditure framework ...... 80 REFERENCE MATERIALS ...... ……82 ANNEX 1. GLOSSARY ...... 85 ANNEX 2. INFORMATION ON LLE TEACHERS AND HUMAN RESOURCES IN AIMAG, DISTRICTS ...... 86 ANNEX 3. IMPLEMENTED PROJECTS /1997-2018 / ...... 88

ANNEX 4. POLICY MATRIX AIMED AT ESTABLISHING THE LEGAL ENVIRONMENT FOR THE NON-FORMAL AND LIFELONG EDUCATION ...... 95 ANNEX 5. POLICY MATRIX AIMED AT ESTABLISHING THE NFE and LIFELONG EDUCATION ...... 97 ANNEX 6. IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (1994-1998)...... 101 ANNEX 7. ANNEX 7. IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (2000-2005) ...... 103 ANNEX 8. “IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (2006-2015)...... 108 ANNEX 9. CAPACITY BUILDING TRAININGS FOR TEACHERS OF LIFE-LONG EDUCATION (2014-2018)...... 111

List of Tables

TABLE 1. Five dimension analysis for education policy ...... 16 TABLE 2. Demographic Indicators ...... 19 TABLE 3. Average life expectancy of population and change in the number of economically inactive population, comparison of 2010 and 2018 data ...... 21 TABLE 4. Education level of population age group 10 and older, by age group, 2010 ...... 21 TABLE 5. Education level of population age of 10 and older, 2000 and 2010 data based on Population and Housing Censuses ...... 24 TABLE 6. Unemployment and changes in selected economic indicators ...... 27 TABLE 7. Dynamic Changes in the level of population employment (Comparision between 2010 and 2011-2018 data) ...... 27 TABLE 8. Migration trend of the population of the capital city (2004-2018) ...... 27 TABLE 9. Number of out-migration by each aimag and regions (2010-2018)...... 28 TABLE 10. Number of school drop-out children ...... 31 TABLE 11. Legal provisions related to the lifelong education in Mongolian law on Education ...... 31 TABLE 12. Number of attendees in equivalncy program, by region ...... 41 TABLE 13. Age of the trainees ni primary educatio equivalency program ……………………………...42 TABLE 14. Number of trainees in equivalncy training, by proportation in total population (2017 ) ..... 43 TABLE 15. Number of LE Trainings and trainees, by aimags, districts) ...... 46 TABLE 16. People with disabilities by gender and location, 2018 ...... 4847 TABLE 17. Number of children with severe disabilit, by capital city and aimags ...... 48 TABLE 18. LE sector human resources (2014-2019) ...... 57 TABLE 19. LE teachers and staff, years of employment ...... 58 TABLE 20. Implemented programs in LE sub-sector ...... 59 TABLE 21. Lifelong education training materials supply 2019 ...... 61 TABLE 22. LE center accommodation types in aimags and districts 62 TABLE 23. Aimag and district LE center`s material bases study ...... 63 TABLE 24. LE funding, 1997-2017 ...... 63 TABLE 25. Expenditure on LE in national level (2002-2012) ...... 65 TABLE 26. National Center for LE and its financing (2006-2018) ...... 67 TABLE 27. NCLE Employee`s salary fund, 2019 ...... 68 TABLE 28.LE Sector`s current and pressing issues, further actions, recommendations ...... 74 TABLE 29. Results of education quality study ...... 79 TABLE 30. Medium-term expenditure analysis of LE sector 2018-2023 ...... 80 TABLE 31. LE sector`s future expenditure estimate,( 2024-2030 он) ...... 81

List of Figures

Figure 1. Life-long education opportunities for all, ISCED ...... 13 Figure 2. Beneficiaries of the life-long education services ...... 17 Figure 3. Dynamic changes occurred in the birth special coefficient of Mongolian population ...... 19 Figure 4. Future trend of population growth among 60 years old and older (Mongolia) ...... 19 Figure 5. Projection of life expectancy of Mongolian population ...... 21 Figure 6. Population life expectancy and change in the number of economically inactive population, Comparison of 2010 and 2018 data ...... 21 Figure 7. Number of population age of 10 and older, by age group and education level (2010 ...... 23 Figure 8. Education level of population age of 10 and older, national, provincial and rural area level, percentage, 2010 ...... 24 Figure 9. Education level of population age of 10 and older, by sex, percentage, 2000, 2010 ...... 24 Figure 10. Number of unemployed population aged 15 and over, by literacy rate and sex, percentage, 2000, 2010 он...... 26 Figure 11.Number of unemployed and uneducated population aged 15 and over, by literacy rate and sex, percentage, 2010 ...... 26 Figure 12. Number of unemployed population aged 15 and over, by education level, sex and percentage, 2010 ...... 26 Figure 13. Population migration in the capital city (2010-2018) ...... 2928 Figure14. Changes in the number of migrants coming to Ulaanbaatar (а) and some aimags (б) (2010- 2018) ...... 29 Figure 15. School drop-out rate (1991-2003) ...... 31 Figure16. Education policy and sector development ...... 35 Figure 17. Development stages of life-long education system ...... 36 Figure 18. Organizational structure of the lifelong education sub-sectort………………………………. 36 Figure 19. Basic roles and responsibilities of the lifelong education organizations ...... 37 Figure 20. Number of people attended literary training (2007-2018) ...... 38 Figure 21. Results of the literacy training, by number of learners (2007-2018) ...... 39 Figure 22. Participant`s age in the literacy training (2010-2012) ...... 39 Figure 23. Number of trainees in equivalncy training (1997-2018) ...... 40 Figure 24. Results of equivalncy program training (2007-2017) ...... 42 Figure 25. Number of enrolled and educated trainees in equivalency training (2014/15-2018/19) ...... 43 Figure 26 Education status of the trainees, by equivalency curriculum ...... 43 Figure 27. Age differences of the trainees in the equivalncy program ...... 44 Figure 28. Type of the equivalency training ………………………………………………………………….45 Figure 29. Drop-out cases of trainees in equivalency program ...... 45 Figure 30. LE trainings and trainees (2007-2018) ...... 46 Figure 31. Number of trainees by each type of trainings, last 5 years ...... 45

Figure 32. Number of children with disabilities who have attended equivalency training, by education level 2017/2018-2018/2019) ...... 49 Figure 33. Number of children with disabilities who have attended equivalency training, by age group(2018) ...... 49 Figure 34. Child monks enrollment status in schools ...... 51 Figure 35. Number of trainees in monasteries and status of of the education level …………………….51 Figure 36. Lifelong education need of people in UB (NCLE, 2014) ...... 53 Figure 37. Lifelong education need in rural areas (NCLE, 2016) ...... 53 Figure 38. LE sector human resource and structure ...... 57 Figure 39. LE sector human resources by employment year, 2019 ...... 57 Figure 40. Comparison of financing of NCLE and nationwide LE sector (2004-2017) ...... 646 Зураг 41. Financing of the equivalency training (million MNT) ...... 67 Figure 42. NCLE Financing (2006-2018) ...... 68 Figure 43. UNICEF Funding (2006-2018 ) ...... 69

List of abbreviations LLL Life long learning NCLLL National Center for life long learning ADB Asian Development Banк IDC International Education Classification TPDI Teacher`s Professional Development Insitute DEC Department of Education and Culture MECSS Ministry of Education, Culture, Science and Sport GREA Global Report on Education Analysis PSS Primary and Secondary school EU European Union TVET Technical and Vocational education training center MNEU Mongolian National University of Education ICT Information Communication Technology LLE Life long education NCLLL National Center for life long learning LLL Life Long learning AE Adult education IO International organization SDG Sustainable Development Goals SDE Sustainable Development Education ESD Education for Sustainable Development HDI Human Development Index MOLSP Ministry of Labor and Social Protection OECD Organization of Economic Cooperation and Development

KEY WORDS

Албан бус боловсрол Non formal education Амьдрах орчноос суралцах боловсрол Informal education Амьдрах ухааны сургалт Life skills training Бичиг үсгийн дараах сургалт Post literacy Education Бичиг үсгийн үндэсний хөтөлбөр National programme on literacy education Бичиг үсгийн чадвар Literacy skills Бичиг үсэг Literacy Бичиг үсэг үл мэдэгч Illiterate Бичиг үсэгт тайлагдалтын түвшин Literacy rate Бичиг үсэгт тайлагдалтын түвшин Literacy rate Бичигтэн/бичиг үсэг мэддэг хүн Literate Дүйцсэн хөтөлбөр Equivalency programme Зайн сургалт Distance education Зайны сургалтын үндэсний хөтөлбөр National programme on distance education Насан туршийн боловсрол Life long education Насан туршийн боловсролын төв Lifelong education centre Насан туршдаа суралцахуй Life long learning Насанд хүрэгчдийн бичиг үсгийн боловсролын Adult literacy rate түвшин Насанд хүрэгчдийн боловсрол Adult education Насанд хүрэгчдийн сургалт Adult learning насанд хүрэгчдийн тасралтгүй боловсрол continuing education for adults Нээлттэй боловсрол Open education Сургууль завсардалт School drop out Сургууль завсардалтын түвшин School drop out rate Сургуульд хамрагдаагүй хүүхдүүд/сургуулийн Out-of-school children гадна буй хүүхэд Тасралтгүй боловсрол Continuing education Функциональ бичигтэн Functional literate Холимог бүлгийн сургалт Multi-grade teaching Боловсролын олон улсын ангилал International Standard Classification of Education (ISCED) Боловсролын дүн шинжилгээний дэлхийн тайлан Global education monitoring report (GEM Report)

FOREWORD

This study has been conducted within the framework of the sector studies dedicated for the development of an Education Sector Master Plan of Mongolia by the Ministry of Education, Culture, Science and Sports, with an aim to identify the current state of the life-long education sub-sector of Mongolia, The study attempts to cover the following main indicators that has developed a system of life-long education sub-sector development, the policy and legal framework, current status, access and quality, quality and efficiency.

In particular, the study aimed to explore the impact of the implementation of education policy and legal documents that resulted the system establishment of life-long education system as an education sub- sector, in addition to this, service accesibility, quality and efficiency of the lifelong educaton sub-sector has been analyzed, key issues and challenges, priority policy areas and recommendations are identified and proposed.

In this study, policy documents related to lifelong education sub-sector, national programs and their implementation reports, Human Development Report of Mongolia, reports and studies conducted by the government agencies, NGOs and civil society organizations in this sub-sector, as well as information and statistics compiled at the National Center for Lifelong Education has been used. Moreover, some relevant reference materials from the “Education Policy Review – Country Background Report” conducted by the UNESCO and the Education Research Institute has been used.

This study aimed to explore and identify key achievements and success achieved in lifelong education sub-sector in the past several decades, to diagnose key issues and challenges faced in this sector, priority areas for further developments of lifelong education sub-sector. In addition, a detailed study on the policy and legal environment of lifelong education in selected countries, their implementation mechanisms were carried out as part of the study.

I would like to thank you for the officials of the MECSS and National Center for Lifelong Education, team of consultants of ADB TA9376: Supporting a development of an ESMP of Mongolia for their clear guidance, efficient coordination and conitues support for this lifelong educatio sub-sector study.

Lifelong Education Expert Yo.Batchuluun

SUMMARY

In Mongolia, the lifelong education was triggered by strong socioeconomic demands and established in the 1990's. Policies to promote lifelong education were put forward through the “Law on Education” in 1991, which legalized lifelong education as an education sub-sEctor and number of national programs and education sector master plans have emphasized the importance of non-formal education since that period. Both at national and local level, center for Lifelong education has been established, international and non-governmental organizations have provided significantly supported the development of lifelong education in terms of expanding and updating its curriculum and teaching methodology and lifelong education sub-sector and compared to the initial efforts and attempts made in 20 years ago to include legal provisions to official establish non-formal education in national laws and policy documents in earlier years, the level of achievements and milestones reached today in life-long education sub-sector in Mongolia, shall be considered as a success, given the tangible results such as accessible, open and flexible courses and trainings suitable for all age groups, regardless of their residential location and time limitations which allows all citizens to constantly develop and increase their skills and knowledge in their interested area. However, there are some persistent challenges and pressing issues up to date.

There is a lack of coordination mechanism and efficient collaboration between governmental and non- governmental organizations, companies and individuals conducting lifelong education activities. Due to this, activities of lifelong education centers are limited only by education services for drop-out school children and vulnerable groups, which lead them to laziness and inactivity. There is a need for expanding education and training activities provided by lifelong education centers, in line with population growth and changes in population dynamics such as average age of Mongolian citizens, employment status etc. In particular, new education and training activities shall be introduced that meets with current needs and demands of the adult population, for instance legal and health education, household economy for adults. However, current capacity of the lifelong education services provided in Mongolia is not able able to respond to these emerging needs and demands.

As of today, there are 354 lifelong education centers providing lifelong education services but 90 percent of them do not possess any building but renting, there is no sufficient training tools and materials that meets with local requirements and context (sewing machinery, kitchen utilities etc. For many years, learning materials were not sufficient enough for the students, there is no budget for publishing learning materials. On the other hand, the management system of the lifelong education sub-sector is not efficient, there is only one staff at the MECSS responsible for lifelong education, 10 staff members at the National Center for Lifelong Education and there is no financial support or rights granted for the MECSS to be spend on lifelong education activities.

One of the lifelong education types is the equivalent education and training activity, people with disabilities and Buddhist monks at Buddhist temples are receiveing basic education through eqvialant program and this program plays an important role for providing equal access of basic education for marginalized groups. However, due to lack of professional knowledge and skills of teachers at Lifelong learning centers, there is no opportunity to provide classes on specific topics and professions. In this manner, there is a need for improving linkage between formal and non-formal education activities, cooperation between schools and lifelong education centers, to increase awareness and understanding of general public and decision makers on the importance of lifelong education. In order to solve these pressing issues and seek possible solutions, there is an urgent need to establish legal environment that enables an independent financial and management system for lifelong education sub-sector. For instance,

to develop and implement a National Program on Lifelong Education, to specifically include financial details in the national program, and in order to ensure its sustainable development, to approve stand-alone law on Lifelong Education, which are standard practice in developed countries.

CHAPTER ONE: CURRENT STATE OF THE LIFE-LONG EDUCATION SUB-SECTOR 1.1. Global perspectives on the life-long education sector development

Life-long education and life – long learning.Global trends on the development of life-long education is being explored and reviewed based on UNESCO, OECD1 and European Union`s basic and policy documents on life-long education and detailed analysis on the policy and concept on life-long education has been drafted. The concept of life-long education has been explained in the UNESCO publication “Leaning to be - the World of education today and tomorrow” by Edgar Faure in 1972 (Faure, E., et al., 1972). At later stage, in 1996, in the UN publication on “Learning: The Treasure within ” by Jacques Delors (Delors Report, 1996) the four key pillars the life-long education has been determined. In OECD report published in 1996 on “Life-long education for all” it was recommended that in order to tackle issues and challenges faced in the social, economic, cultural and environmental spheres, education for all shall be in consideration. In 2000, the European Union has issued a Memorandum of Understanding on Life-long education, in 2002, European Council has issued a special decision on life-long learning as well, in 2006, European Parliament has approved a program on supporting a Life-long learning education from 2007-2013 (European Commission, 2015).

According to the “Global Report on Adult Learning and Education”2 by the UNESCO Institute of Lifelong education3(UIL, 2009, page13)and“Education Monitoring Report -2016”4,“Lifelong learning comprises all learning activitiesundertaken throughout life with the aim of improvingknowledge, skills and competencies, within personal,civic, social and employment-related perspectives” (UNESCO, 2016, page 8). In the first report two concepts or definitions on “lifelong education”, “lifelong learning” are both used while in the latter report, the concept of definition on “lifelong learning” is more frrequently used. The latter definition or conception thus sees learning as a an essential part of the concept. Because the use of definion or concept of “lifelong education” is largely changed and tend to be replaced with the term “lifelong learning”The conception “Learning” is less focused on structure and institutions and sees learning as the functional process and put individuals as the center of the learning and education process. Therefore, in various policy documents developed by UNESCO, the conception “lifelong learning” is commonly used. One of the clear example is that the concept has been used for the definition of Sustainable Development Goals Target 4. (UN, 2015).

Acording to “International Standard Classification of Education”5(UNESCO, 2016), there are three main lifelong learning opportunities which are formal, non-formal, informal. (Figure 1).In other words , lifelong learning compromises all learning activities undertaken throughout life with three different ways which are explained in detailed in below figure. Namely:

Figure 1.Lifelong learning opportunities, ISCED (UNESCO, 2016, page 8)

1 OECD-Organization of Economical Cooperation and Development 2 GRALE-Global Report on Adult Learning and Education 3UNESCO Institute for Lifelong Learning [UIL]-In 1950, it was established as the UNESCO Education Institute and restructured as the Institute for Lifelong Leaning in 2006. 4 Global Education Monitoring Report- GEM Report 5 ISCED-International Standard Classification of Education

- Formal lifelong learning leads to a recognized award, diploma or certificate from education insititutions that are registered at relevant authorieis.(starting from primary school to vocational or higher education institutions). - Non-formal lifelong learningleads to a nonformal certifcate or none at all however suitable for all age, more open and flexible, voluntary based. These learning opportunities may base on community organizations in the type of course, day class, clubs or training centers. In the era of ICT developed society, open and online training and learning opportunities are also new type of non-formal learning opportunities. - Informal lifelong learningis more based on people`s day to day life, family based activities and no award is granted. Communicating with other people, to receive new information through newspaper, radio or social networks, reading books, going to the theater or movie, to go for touristic areas, to travel around the country, these activities are informal lifelong learning activities that develop individuals “unintentionally”. This is part of the informal lifelong learning that has occurred during person`s lifetime. “Open education resource” is one of the excellent examples for life long learning opportunities.Open Education Resource-OER).

UNESCO Institute for Lifelong Learning is more focused on lifelong learning-oriented education systems)” approach(UIL, 2016).

EU Commisson has approved a policy in the field of adult learning in 2000 and according to EU “ Adult learning referes to a range of formal and informal learning activities both general and vocational, undertaken by adults after leaving initial education and trainings” “EU policy in the field of adult learning”-(Commission of the European Communities, 2000).

In 2006, European Parliament has approved a program on supporting a Life-long learning education from 2007-2013. The key elements of the Lisbon Strategy (2006) was “a stable macro-economic frawework and policies for the informtion society”. In 2001 EU commission has approved another important documentn on lifelong learning (Commission of the European Communities, 2001) and in this document the concept that says “Adult learning referes to a range of formal and informal learning activities both

general and vocational, undertaken by adults after leaving initial education and trainings” was introduced. “The strategic framework for European cooperation in education and training(ET2020)” is also based on adult learning or lifelong learning principles. Lifelong learning programme approved by the European Commision in 2009 aims to support education and trining opportunities, and enables people at all stagas of their lices to take part in stimulating learning experiences, as well as helping to develop the education and training sector across Europe.

In terms of OECD, the concept of lifelong education dates back to 1970s. in 1996, OECD has approved policy document on lifelonng educatio which later regulated and coordinated cooperation of members countries in the field of education. (OECD, 2001).

In 2009, during the 6th UNESCO conference on Lifelong learning, it was determined that the Lifelong learning isa process, one thatbegins at birth andcarries through all Stages of life6(UNESCO, 2009).

Lifelong learning policy and strategies. The UNESCO Institute for Lifelong learning has established an online database of policy and strategic documents issued or approved by the governments of member states.(UIL, 2019). In this database, there are number of policy and strategic documents both national and local level of more than 60 member states, in particular 18 national laws on Lifelong learning approved by national authories of countries such as Japan, more than 20 national strategies on lifelong learning, appoved by countries such as Austria, Norway, Denmark, Estonia etc. For instance: Austrian strategy for lifelong learning is based on key principles of UNESCO and OECD policy documents on lifelong learning, starting from preschool education.

Austria: “Strategy for Lifelong Learning” (LLL: 2020) Main targets

1. Adopting a national legal framework for pre-school education 2. Reducing by half the number of pupils at risk of illiteracy; 3. Reducing elementary school dropout rates; 4. Increasing the proportion of apprentices who gain a university entrance qualification; 5. Reducing the rate of youth unemployment (15–24 years); 6. Increasing the rate of employment among elderly persons (55–64 years); 7. Increasing participation rates in non-formal continuing education in rural areas; 8. Enhancing participation in continuing education for low-qualified employees; 9. Increasing the number of higher education graduates; 10. Increasing general participation in continuing education; 11. Establishing quality standards for educational programs targeting retired persons;

Based on above information, It can be concluded that the definition or concept of the lifelong learning is different across the countries but the key pillars are based on formal, non-formal and informal lifelong learning opportunities. In EU countries, namely, Bulgaria, Hungary, Latvia and Slovakia has developed and implemeintg their national policies on lifelong learning that will contribute to the full implementatin of EU policy in the field of adult learning (2000).

In terms of Asia-Pacific region and countries, attention is being paid on formulating and implementing national policy or strategic documents in the field of lifelong education, more attention on the skills

62010 онд АББЗСҮТ-өөс хэвлэн гаргасан албан бус орчуулгаас авав.

development of adult population, accepting and encouraging non-formal and informal education initiatives at policy level. For instance, in India, “National initiative on skills development” focused more on lifelong education with employment skills, in Malaysia, “National plan for lifelong learning culture for the period of 2011-2020” is approved and the plan aims to increase adult`s education and work skills.

UNESCO Institute of Lifelong learning has proposed five key dimensions to its member states, when analyising the national policy documents and strategies for lifelong learning (UIL, 2016a) namely 1) educatio framework (level of education, target group type and content), 2) goals and targets of learning (humanitarian, transitional, economic or adaptation), 3) learning opportunities and types, 4) accepting and accrediting all type of learning, 5) stakeholder participation(TABLE 1).

TABLE 1. Five dimension analysis on education policy

Dimensions Education policy Comment/Description characteristics 1) Frame Integrated approach All learning activities are considered as lifelong learning, including formal educatio system activities Sector approach Certain type or level of education activities are considered as lifelong learning. 2) Direction Humanitarian General education target to support individual, certain community, society and democracy. Economic An education that is aimed at a daptation of knowledge based economy, creating human capital with necessary profession and skills. Formal Lifelong learning is consisted of three types and all types of lifelong learning activities are tend to be accepted. 3) Type Informal Informal A system that will accept and accredit all type of learning from 4) Accepting and accrediting all informal environment type of learning

• Public private partnership, civil society and non-governmental organizations 5) stakeholder participation • Financial policy targeting bond, education oriented enterpreunership etc.

Lifelong education sub-sector directions. Lifelong education sub-sector has following two directions: Humanitarian and economic. The policy to develop humanitarian lifelong education policy is more focused on the individual or community development while lifelong education with economic basis is focused on the use of lifelong education as an efficient tool to establish knowledge economy. ТБ нь хүмүүнлэгийн болон эдийн засгийн гэсэн 2 үндсэн чиглэлтэй байна. For instance, in Norway, lifelong education is regarded as the opportunity to continuous learning regardless of the condition or status of the individuals. Therefore it can be identifedas more humanitarian - oriented lifelong education activity. The UNESCO and many other international organizations has a concept of lifelong education and earning in a comprehensive manner, while some countries are implementing lifelong education policy or program that is only focused on certain sector. For instance, some countries implement lifelong learning policy or program only focused on certain social groups such as adults, which are more common in Asian and African countries.

Adult education.The concept of lifelong learning is based on adult education concept. (Milana, 2012). In UNESCO and many other countries, especially European countries, an adult education is the major part

of the lifelong education. Starting from 1949, UNESCO started to organize an international conference on Lifelong education” (CONFINTEA)7and in1972 it was determined that “adult education is the one of the important parts of the lifelong education and lifelong learning (UNESCO, 1976, p 2).

In 2015, Recommendation on lifelong learning and education has been developed (UIL, 2016b, p. 6) and according to this recommendation, lifelong learning and lifelong education shall have following five key directions 1) Policy, 2) Governance, 3) Financing, 4) Participation and equal access, 5) Quality (UIL, 2016b). The concept of an adult education adopted by different countries are analyzed as below:

- In EU countries, adult education is one of the important component of the lifelong learning. For instance, at the first stage (high school and college) they obtain professional knowledge and skills and focused more on individual development, and as part of adult education, they receive education on life skills including tax reporting, to understand false information, to participate in the election etc which are more focused on economic resilience skills. (European Commission, 2019b):

- In OECD countries, it is recommended to its members countries to pay special attention on the population under age group 25-64 and implement policy actions to improve their life skills (OECD, 2019a).In particular 1) Finding ways to improve skills development for adults, 2) Individual consultative and faciliation services 3) Demand based trainings 4) Accrediation of the aquired knowledge 5) to support module training types, 6) to provide off-days from work for trainings , 7) To provide financial support etc. (OECD, 2019d). - As mentioned in the UNESCO Global Report on Adult education8 lifelong education covers all level and groups of the society, which clearly shows the overall framework of the lifelong education sub- sector. (Figure 2).

Figure 2.Beneficiaries of the lifelong education services

Ганц бие эцэг эх 3% Өндөр настан, тэтгэврийнхэн 9% Эцэг эх, гэр бүл 11% Хөгжлийн бэрхшээлтэй насанд хүрэгч 17% Шилжин ирэгч, дүрвэгчид 17% Цөөнх (үндэсний, хэлний, шашны) 18% Шилжилтийн дунд насныхан 27% Удаан хугацаагаар ажилгүй байгаа хүмүүс 28% Гадуурхагдсан давхаргынхан (орон гэргүйчүүд, ялтан) 29% Хөдөө болон хүн цөөн газар оршин суугчид 31% Өмнө сурсанаа баталгаажуулах хүсэлтэй 31% Цалин ба чадвар муутай хүмүүс 34% Өөрийгээ хөгжүүлэх, мэдлэгээ нэмэхийг хүссэн 45% Ажилдаа тохирсон мэдлэг чадвар дээшлүүлэхийг … 48% Боловсролгүй, ажилгүй залуус 59% Бичиг үсгийн суурь түвшин, чадвар доогуур 81% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90%

(Source: UNESCO, 2016. ILU Global Report on Adult Education)

7CONFINTEA- 1972-Japan, Tokyo, 1985-France, Paris, 1997-German, Hamburg, 2009-Brazil, Bilem 8GRALE-Global Report on Adult Learning and Education-2016

Accrediation and acceptance. In the area of information communication development, regardless of your location, age, sex, social status, occupation and religoun, people are now able to receive an education at their desired level and type. Therefore, accepting and accrediting the education obtained through non- formal education activities has become key issues in education sector of many countries. Countries such as India, Chili, Denmark, evaluating, accepting and accreditation of the education not only acquired through non-formal education services but also obtained during life experiences has been reflected in policy documents, while in Finland and Norway, favorable legal environment to evaluate skills of the individuals, regardless of the location, timeline and type of education services. In South Korea, similar system is introduced; credits of lifelong education services can be accepted at the universities and will assist the individual to obtain professional degree and necessary standard skills.

Distance learning and open education. In 1992, with the support of the UNESCO “Women in Gobi” has been successfully implemented and starting from 1997, as part of the project named “Living by learning”, the very first radio classes were initiated and successfully implemented. These two initiatives were the basis of distance learning in Mongolia. Starting from late XX century, computer, internet and other ICT tools have been widely used for distance learning and in 1969; the first Open University was established in the UK. This university is now well recognized university worldwide with more than 250,000 local and international students and ranked at 47 among top universities around the world.9 Indre Grande Open University in India is one of the top universities10 more than 4 million students. Moreover, number of open universities in developing countries are increasing in last decades for instance, National Open University in the South Korea, Arabas Open University, Australian Open University, Open University in Malaya, other open universities in Nepal, Bangladesh, African countries such as Zambia, Zimbabwe and Ghana.11

As of 2017, in Mongolia, 74 percent of total population we’re using internet, 94 percent of the total adult population has a Facebook account. Nationwide, there are more than 100 websites, 127 TV is operating. There are 16 to channels broadcasting nationwide, 47 TV is broadcasting in Ulaanbaatar. (Хэвлэлийн хүрээлэн, 2018). These ICT opportunities and media infrastructure shows that the basis to establish Open University already created in Mongolia.

1.1. Demographic indicators and needs for life-long education

Number of population and growth. As of 2018, total population of Mongolia has reached at 3.2 million and compared to previous year, total population has been increased by 1.9 percent and 61.6 thousand. 53.4 of total population is living in urban areas, 46.6 percent of them are living in rural areas. 49.6 percent of total population is male and 50.4 percent of total population is female population. 32.6 percent of total population is children up to 15 years old, 63.9 percent of total population is under age group 15-64, 3.5 percent of them are population over 65 years old. 63.77 percent of total population is relatively younger population which are under 35 years old. As of 2018, life expectancy was 69.8 years old (for female 75.4 and for male 65.8 years old (ҮСХ, 2018).

9Open University UK ranking: https://cwur.org/2016/Open-University-(UK).php 10 Indira Gandhi National Open University 11 List of Open Universities: https://en.wikipedia.org/wiki/List_of_open_universities

In Mongolia, despite the decrease in birth general coefficient12 that has occurred for the period from 1990 until 1998, special coefficient of birth 13 is tend to be decreasing starting from 1998 (Figure 3).

Figure 2. Dynamic changes of birth special coefficient

300 200

100

0 15-19 20-24 25-29 30-34 35-39 40-44 45-49

female populationfemale Age group of female population birth rate per 1000perbirthrate

1990 он 1998 он 2006 он 2010 он 2018 он

Source: Integrated database of National Statistical office, 2019

An increased rate of birth by teenage girls negatively impacted the sender inequality index. Average rate of birth by teenage girls in Mongolia is higher than the average rate in Asia Pacific region countries, in 2003, there were 19 birth per 1000 teenage girls aged 15-19 while this number has increased in 2013 and reached at 29 birth per 1000 teenage girls. Based on this statistics, it can be concluded that there is a need for lifelong education services or open education opportunities that targets those young female population – economically active population who are at home and babysitting.

TABLE 2. Some demographic indicators

2011 2012 2013 2014 2015 2016 2017 2018 Population 2,811.6 2,867.7 2,930.2 2,995.9 3,057.7 3119.9 3,177.8 3,238.4 number, millions Net growth 18.2 19.7 21.6 22.4 21.3 20.1 18.4 18.9 Birth total 2.6 2.7 3.0 3.1 3.0 3.0 2.8 2.9 coefficient

Source: Integrated database of National Statistical office, 2019

According to UN Population Division14, it is projected that number of population aged over 60 in Mongolia will be significantly increased starting from 2020 (compared to previous years) (Figure 4). This clearly shows the necessity to expand lifelong learning and education activities by new type of educational services.

Figure 3. Projected growth of population over 60 years old in Mongolia

12Birth general coefficient -BGC-number of birth per thousand live birth 13 Birth special coefficient – BSC - number of birth per thousand live birth on that particular 14 United Nations Population Division

Source: United Nations Population Division: https://population.un.org/wpp/Graphs/DemographicProfiles/

Activities of the Lifelong learning centers shall be coordinated and estimated based on the population size and administrative units, nationwide. As of 2019, Mongolia is administratively divided into 21 provinces, 330 soums, 9 districts, 152 khoroos, 1575 baghs. 51.7 percent of total soums are relatively small in terms of size of population, which are less than 3000 people, 30.1 percent of total soums have population up to 3000-5000 people, 8.5 percent of them have population up to 5001-7000, 9.7 percent of total soums have more than 7001 population. In rural areas, in total 1588.9 thousand people living and 483.0 thousands are living in aimag centers, 438.7 thousands are living in soum centers, 667.1 thousands are living in remote rural areas. At the beginning of 2018, 67.2 percent of total population was living in urban areas and total population of UB city has reached at 1,417.0 thousand in 2017. These statistics clearly show us the vast differences between UB city and aimag, soum centers in terms of density and emphasize the urgent need to expand activities of the Lifelong education centers operating in UB along with its human and financial resources.

Social status, health status of population and life expectancy. In 2017, Mongolia was ranked at 92th place with 0.741 points, among 189 countries around the world by its human development index. (NSO, 2018). This index is increased by 28 percent compared to 1990 which was 0.579 and the world average is 0.728.15

During 2000-2014, human development index has been in constant increase. According to UN estimates, life expectancy of Mongolian population tends to be higher in coming years and will be at similar level of life expectancy of developed countries. (Figure 5).

Figure 4. Projection of life expectancy of Mongolian population

15 http://hdr.undp.org/en/2018-update

Source: United Nations Population Division: https://population.un.org/wpp/Graphs/DemographicProfiles/

Despite the increased level of average life expectancy, average life expectancy among youth aged 15-24 has been only increased by one year, while there is no change in life expectancy of adults aged 25-34 years old. The process of increased life expectancy among youth has been slowed down, mortality rate among young population tend to be increasing starting from 2010 on each age group. Mortality rate of male population is 2-3 times higher than mortality rate among all age groups of female population. 80 percent of total mortality is associated with the non-communicable diseases and this increase is triggered by risky behaviours such as accidents and injuries, poisoning, excessive use of alcoholic beverages, smoking and lack of physical activity, overweight problem especially among younger population. Therefore, simple and practical classes to train adults from above mentioned risky behaviors shall be organized and delivered through lifelong education centers as well as on – the – job trainings, mass media outlets, with specific focus on male population.

TABLE 1. Population life expectancy and changes in the number of economically inactive population, comparison of 2010 and 2018 data.

Year Total Male Female

Life expectancy

2010 68.05 64.93 72.26

2018 70.19 66.11 75.78 Economically inactive population 2010 716,237 295,653 420,584 2018 867,959 320,685 547,274 Source: (NSO, 2019)

Figure 5. Population life expectancy and dynamic changes in the number of economically inactive population, comparison of 2010 and 2018 data (NSO, 2019)

Life expectancy Economically inactive population 80 1,000,000 75 800,000 70 600,000 65 400,000 60 200,000 55 0 Нийт Эрэгтэй Эмэгтэй Бүгд Эрэгтэй Эмэгтэй

2010 2018 2010 он 2018 он

Risky sexual behaviors and sexually transmitted infections are key issues of the public health sector. 20 percent of total registered cases of HIV/AIDS are registered among youth under age group 15-24 years old. In 2015, 41.2 percent of total registered cases of HIV/AIDS were youth up to 30 years old, which 54 percent of them were female. (MOH,, 2015). These statistics shows us that the health education delivered at secondary schools are not sufficient and Lifelong education centers shall also provide health education, awareness raising activities and trainings on preventing from HIV/AIDs.

Education level of population. In 2010, 15.8 percent of total population under the age group 10 and older has obtained primary education,17.9 percent of them have obtained incomplete secondary education, 32.0 percent of them obtained complete secondary education, 2.8 percent of them completed technical education, 5.7 percent of them completed vocational education and remaining 18.3 percent of them completed higher education.16

162010 оны хүн амын тооллогоор тухайн шатны “боловсрол”-д албан бус боловсролын дүйцсэн хөтөлбөрийн сургалтад хамрагдаж төгссөн хүнийг оруулж тооцсон.

During the Population and Housing Census of Mongolia which was conducted in 2010, following definitions and concepts on literate, illiterate and no education were used (NSO, 2011). Namely: - Literate:A person who is able to read, understand and write a simple and short sentence about daily life in any language (not depending on the types of the script) and this ability is kept after a certain period of time.. - Illiterate:A person who is not able to read, understand and write a simple and short sentence about daily life in any language (not depending the types of the script) and the ability is lost after a certain period of time. - No education: A person who did not complete 3rd grade (during 1975-1996), or 4th grade (until 1975, or during 1997-2004), or 5th grade (after 2005) of secondary school. Also, children who are currently attending in 1-5th grade of secondary school in 2010 or those who dropped out of school will be considered as having no education. - Primary education: A person who graduated 3rd grade (during 1975-1996), 4th grade (until1975, or during 1997-2004), 5th grade (after 2005) of secondary school. Also, the person who participated and graduated from an informal and distance learning programme.. - “Literacy rate of adult population”is the sum of population who responded as having primary, secondary and higher education and who reported as literate and it is presented in percentage. Literacy rate success index of an adult population has been estimated by the number obtained through dividing this percentage by 100.

National Statistical office of Mongolia, 2011. Population and Housing Census of Mongolia, 2010: Education and Literacy.

Percentage share of the age groups with different level of education is shown in table 4. If these numbers are projected to be stable in coming years, need for education services for adolts, younger adults might be increased in the future.

Table 2. Education level of population under age group 10 and older, by age group, education level, 2010 Age group Not Primary Incomplete Complete Technical Special Higher educated secondary secondary and occupation education vocational Total Бүгд 7.5 15.8 17.9 32 2.8 5.7 18.3 10-14 33.0 59.8 7.2 - - - - 15-19 3.4 12.8 41.0 39.4 1.8 1.0 0.6 20-24 4.0 5.7 9.7 51.3 2.8 2.7 23.8 25-29 6.1 10.2 13.0 31.1 1.5 2.2 36.1 30-34 3.7 10.1 19.6 34.9 1.5 3.0 27.3 35-39 2.1 4.0 20.3 40.3 4.4 7.4 21.5 40-44 2.5 4.5 18.2 39.4 5.9 11.7 17.9 45-49 3.1 6.5 18.3 33.9 5.6 12.7 19.8 50-54 3.1 11.2 19.7 27.1 5.0 13.9 20.0 55-59 3.7 16.8 17.2 23.8 4.1 15.1 19.4 60+ 11.7 30.6 11.5 15.7 2.2 11.0 17.2 Source: National Statistical Office. (2010). Population and housing census 2010. Education and Literacy: Analysis based on the 2010 census. Ulaanbaatar

Figure 7. Number of population under age group 10 years old and older: by Age group, Education level (2010)

120

Дээд 100 1.80.61 17.9 17.2 23.8 21.5 19.8 20 19.4 27.3 Тусгай 80 36.1 39.4 11 мэргэжлийн дунд 2.7 7.4 11.7 12.7 2.8 3 13.9 15.1 2.2 1.5 4.4 5.9 Техникийн болон 5.6 5 4.1 60 1.52.2 15.7 мэргэжлийн 34.9 27.1 23.8 11.5 Бүрэн дунд 51.3 31.1 40.3 39.4 33.9 40 41 Суурь 7.2 17.2 30.6 13 19.6 19.7 20 18.3 20.3 18.2 Бага 59.8 9.7 16.8 12.8 10.2 10.1 11.2 5.7 4.5 6.5 11.7 3.4 4 6.1 3.7 4 3.1 3.1 3.7 0 2.1 2.5 Боловсролгүй 33 15-19 20-24 25-29 30-34 35-39 40-44 45-49 50-54 55-59 60+

Source: National Statistical Office. (2010). Population and housing census 2010. Education and Literacy: Analysis based on the 2010 census. Ulaanbaatar

According to 2000 Population Census data, percentage share of illiterate population was 2.2 percent in 2010 while this rate was decreased to 1.7 percent in 2010. (TABLE 5).

TABLE 5. Education level of population under age group 10 years old and older, comparison of 2000 and 2010 Population census data Illiterate Literate Primary Incomplete Complete Technical Specialized Higher secondary secondary Vocational vocational educatio n 2000 Total 2.2 97.8 23.4 25.1 21.0 3.6 7.6 7.6 Male 2.0 23.8 28.3 19.1 3.9 5.7 7.6 Female 2.5 23.1 22.1 22.8 3.4 9.4 7.7 2010 Total 1.7 98.3 15.8 17.9 32.0 2.8 5.7 18.3 Male 16.6 20.3 32.2 3.1 4.6 15.4 Female 15.0 15.6 31.9 2.6 6.9 21.2 Эх сурвалж: National Statistical Office. (2010). Population and housing census 2010. Education and Literacy: Analysis based on the 2010 census. Ulaanbaatar.

Urban and rural differences. The difference between urban and rural population in terms of education level is more pronounced when the level of education is higher. According to 2010 Population and Housing Census data, the percentage share of illiterate and non-education population in rural areas is 2.7 times higher than urban areas. On the contrary, the percentage share of population with higher education living in urban areas is 3.3 times higher than that population living in rural areas. The percentage share of rural female population with higher education and vocational education was higher than rural male

population, percentage share of rural male with primary and incomplete secondary education is higher than rural female population. It shows that rural female population is more educated than rural male population. (ҮСХ, 2018).

Figure 8. Education level of population under age group 10 and older by aimag, rural and urban 2010

Дээд Source: NSO, 2011. 2010 Тусгай мэргэжлийн дунд Population and housing Техник болон мэргэжлийн census, Monograph on Бүрэн дунд Education and Literacy

Бүрэн бус дунд

Бага Children enrolled at 0 5 10 15 20 25 30 35 40 school in 2014 will be able to study for 14.6 Хөдөө Хот Нийт years (UNDP, 2016) and this indicator is above the average of developed countries. Despite the high enrollment rate, access and opportunity to obtain all level of education is different among youth due to their sex, residential location, livelihood level. For instance, the enrollment rate of rural boys at secondary school is lower than other demographic groups.

Educational level and literacy rate of unemployed population is shown by their residence as following: 25.0% percent of unemployed population with higher education lives in Ulaanbaatar, 21.6% in Orkhon, 18.4% in Darkhan-Uul, 16.4% in Bayan-Ulgii, 9.0% in Dundgobi, 9.6 % in Dornod aimag. A percentage share of unemployed population with complete secondary education is higher in urban area and aimag centers, about 30.5-49.4 percent. Urban population and youth, children from wealthy family have more opportunity to obtain quality education.

Population age and sex differences. During the period of 2000-2010, total population of Mongolia has increased by 16.1 percent and average annual population growth was 1.5 percent. On the other hand, the number of elderly population has been increased by 22 percent and average annual growth of elder population was 1.8 percent. The percentage share of elder population in the total population of Mongolia was the lowest during 1990-2000s while this rate was increased 2.2 times higher in 2010 and this number tend to be increasing in the near future. Population aged 60-64 years old have recently granted their rights to receive however, according to the recent update on the law of Mongolia on civil servant, civil servants are subject to employment until the age of 65. (NSO, 2019).

Population under age group 65-74 years old are able to continue their employment by using their education, experience and professional knowledge, especially in the field of education, science and management sectors. (NSO, 2019). This age structure is associated with the lifelong learning education in two aspects. At first, it clearly shows that there is a need to extend the coverage and access of lifelong education services for elderly population, secondly, to use and benefit from accumulated experiences and professional knowledge of elderly population. In particular, those elderly who have extensive work experience and wealthy background, tend to work at museums or libraries on voluntary basis.

2010 Population and Housing Census result shows that the number of population with higher education in Mongolia has been sharply increased, especially in last 10 years (Figure 9); it has increased by 2.8

times than 2000 and reached 252.4 thousands /Figure 3.1.1/. During this period, the classification by age group shows continuous increase in number of population with higher education where number of female population aged 10 and above was increased to reach 21.2 percent and is by 5.8 points higher than male population which was increased to reach 15.4 percent, while these indicators were 7.6 percent for males and 7.7 percent for females in 2000.

Эмэгтэй

Дээд 21.2 7.7 6.9 Тусгай мэргэжлийн дунд 9.4 Техник болон мэргэжлийн 2.63.4 Figure 6. Education level Бүрэн дунд 31.9 of population under 10 22.8 years old and older, by Бүрэн бус дунд 15.6 22.1 sex 2000 and 2010 data Бага 15 23.1

2010 2000

Source: NSO, 2011. 2010 Population and housing Эрэгтэй census, Monograph on Education and Literacy

Дээд 7.6 15.4 Employment and Тусгай мэргэжлийн дунд 4.65.7 education level of Техник болон мэргэжлийн 3.13.9 population. 60 percent Бүрэн дунд 32.2 19.1 of total population of Бүрэн бус дунд 20.3 28.3 Mongolia is under labor Бага 16.6 23.8 age Share of population

2010 2000 with complete secondary education at all economic activities is 17.2-49.3 which is relatively high. However, a share of the population with higher education and employed at agricultural sector and forestry is lower, but share of the population employed at these sectors with incomplete and primary education share is 26.4-33.4, which is relatively high, also 11.2 percent of population employed at agricultural sector are non-educated, which also shows that majority of nomadic population engaged with farming is non – educated.

68.4 67.2 62.7 61 Figure 7. Literacy rate of population under age group 10 and older who are not educated but employed, by sex, 2000, 2010 37.3 38.9 data 31.6 32.8

Source: NSO, 2011. 2010 Population and housing census, Monograph on Education and Literacy 2000, эр 2010, эр 2000, эм 2010, эм Бичиг үсэг мэддэг The rate of registered unemployment is relatively low while Бичиг үсэг мэддэггүй number of employed population at non-formal employment is higher, which clearly shows us that there is a strong need to conduct short-term trainings to grant initial labor skills and professional development trainings. A

number of unemployed population is higher in Dundgobi, Uvurkhangai, Sukhbaatar, Uvs, Dornod, Khovd aimags, while this number is relatively low in Ulaanbaatar, Darkhan-Uul, Uvurkhangai and Orkhon aimags. (NSO, 2019).

As of 2010 Population and Housing Census, 52.2 percent of resident population aged 15 and above are unemployed, out of these 12.7 percent were population with higher education, 5.6 percent were population with specialized vocational and non-degree tertiary education, 2.7 percent of them were population with technical vocational education, 40.2 percent were population with complete secondary education, 22.0 percent were population with basic education, 11.8 percent were population with primary education and 9.5 percent were non-educated population. 67.6 percent of non-educated and unemployed population was literate, while 32.4 percent of them were illiterate. (NSO, 2011)(Figure 10).

Figure 8. literacy rate of non-educated and unemployed population under age group 10 years old and older, by sex, by percentage, 2010

Source: NSO, 2011. 2010 Эмэгтэй 53.7 46.3 Population and housing census, Monograph on Эрэгтэй 53.7 46.3 Education and Literacy, Page. 49 Бичиг үсэг мэддэг Бичиг үсэг мэддэггүй

Figure 9. Education level of unemployed population age of 15 and older, by sex and percentage, 2010

10.4 Дээд 14.5 4.5 Тусгай мэргэжлийн дунд 6.4 Техник болон мэргэжлийн 2.53 Бүрэн дунд 40.140.3 Бүрэн бус дунд 19.4 25.3 Бага 11.711.9

Эрэгтэй Эмэгтэй (Source: NSO, 2011. 2010 Population and housing census, Monograph on Education and Literacy)

Table 3. Unemployment and selected dynamic changes of economics 1995 2011 2012 2013 2014 2015 2016 2017 2018 2019 Economic growth (%) 6.3 17.3 12.3 11.6 7.9 2.3 1.3 2.3 3.4 4.1 Inflation rate (%) 53.1 8.9 14 12.5 10.4 1.9 1.3 6.4 8.1 6.7 1 USD = MNT 473.6 1397 1392 1654 1888 1996 2490 2427.1 2644 2631.9 Unemployment (%) 5.5 7.7 8.2 7.9 7.9 7.5 10 8.8 7.8 6.6 Source: 1. NSO. www.1212.mn . 2. Mongol bank. www.mongolbank.mn

TABLE 4. Dynamic changes in the population employment indicators (2011-2018 data compared with 2010 data) (NSO, 2019)

Indicators 2000 2011 2012 2013 2014 2015 2016 2017 2018 Population of labor 1,347.4 1,798.3 1,812.0 1,937.0 1,941.1 2,022.8 2,106.9 2,220.3 2,226.5 age Economically active 847.6 1,124.7 1,151.1 1,198.3 1,206.5 1,243.8 1,275.6 1,357.4 1,358.6 population Out of this: Employed 809.0 1,037.6 1,056.4 1,103.6 1,110.6 1,151.2 1,147.8 1,238.3 1,253.0 Registered 38.6 57.1 35.7 42.7 36.9 32.7 34.4 25.4 24.9 unemployed population Labor Force 62.9 62.5 63.5 61.9 62.1 61.5 60.5 61.1 61.0 participation rate % Employment rate % 60.0 57.7 58.3 57.0 57.2 56.9 54.5 55.8 56.3 Unemployment 4.6 7.7 8.2 7.9 7.9 7.5 10.0 8.8 7.8 rate %

As of 2019, total number of unemployed population was 88,907 and 62.1 percent of them were male and 37.9 percent of them were male population. (NSO, 2019).

Employment rate of population is different depending on the residential area and age groups. As of 2010, 39.2 percent of total urban youth is employed while only 22.2 percent of youth living in rural areas are employed. Starting from 2000, the number of population employed at service sector has been increased by more than 40 percent and younger population is more employed in this growing sector. However, these are mostly temporary employment which does not guarantee sustainable income. 80 percent of total population with disabilities is economically inactive population (UNDP, 2016). There is a wage gap between male and female employees, male employees are subject to 1.4 times higher salary than salary of female employee employed at the same position. Unemployment rate of population with higher education and technical vocational education is higher than those unemployed population with lower level of education, this is a clear indication that there is a need for new and up-to-date lifelong education services. For instance, there is a need for distance learning or online learning services that will provide additional skills for unemployed but educated youth. Moreover, constant increase of the unemployment rates clearly shows that there is a need for extending the coverage of lifelong education services provided by lifelong education centers, to increase their technical and professional capacity.

Population migration. One of the key factors of expanding the coverage of lifelong education activities is the population migration. In 2010, according to 2010 PHC data, 17 percent of total population has migrated in other provinces in their lifetime, while 21 percent of them are lignin in other provinces than their birthplace. Due to migration, number of challenges faced in education sector, especially urban areas such as Ulaanbaatar, the number of population that needs a lifelong education service has been increased. This increase shall be taken into account when planning education sector policy and programs. On the other words, there are number of vulnerable groups that need a lifelong education service, demographic groups that have dropped out from schools due to various factors such as unemployment and poverty. For example, in Ulaanbaatar, Songinokhairkhan district, during 2001-2003, there were 2417 migrant children

but only 782 children were covered by preschool and primary education, which means 67 percent of them were excluded from formal education services.17 In general, better educated people who intend to continue their education are most likely to be involved in migration. According to the 2000 census, livestock breeders who have lower education involved in migration into Ulaanbaatar, after facing insecurity and vulnerability, mainly due to loss of livestock. According to the 2010 census, the percentage of one-year in-migrants for non-educated persons was 2.4 percent while the percentage of one-year in-migrants for total population was 4.3 percent18. This shows that non-educated persons are less likely to be involved in migration compared to more educated persons . Among non-educated persons, illiterate persons are less likely to be participated in migration than literate persons. Literate males (2.9 percent) are more tend to involve in migration than literate females 2.1 percent in the past one year19.

Lifetime in-migration is high in Bulgan (20.6 percent), Umnugobi (23.8 percent) and Dornogobi (26.9 percent) aimags. In 2010, compared with 2000, lifetime in-migration increased slightly in Bulgan (6.5 point) and Dornogobi (6.9 point) aimags while it is increased significantly In Umnugobi aimags (18.8 point). Bulgan and Dornogobi aimags were traditionally attractive places for migrants while migration to Umnugobi aimag is a newly emerged flow of migration from the 2010 census. Migration to Umnugobi aimag is associated with development of mining and quarrying sector.(NSO, 2011).

The percentage of one-year in-migrants in population aged 15 and above of Ulaanbaatar is 5.9 percent while in-migration of economically inactive population was 7.3 percent, (Table 7)is slightly greate. It is related with the fact that young people are more migrating to Ulaanbaatar to continue their education. On the other hand, among economically active population in Ulaanbaatar, migration is highest for unemployed persons (7.0 percent). This shows that people migrate to Ulaanbaatar to search for job opportunities . This is mainly associated with the education migration by youth. Dynamic changes in the number of migrants coming to Ulaanbaatar city is shown in Table 7 with comparison of 2010 and 2004 data, and the number of in-migrant and out-migrant is shown in Figure 13.

TABLE 5. Migration of UB city population (2004-2018) Source: (NSO, 2019)

2004 2010 2011 2012 2013 2014 2015 2016 2017 2018 Out- 14,547 8,502 11,856 10,671 10,009 11,702 14,342 11,431 6,328 migrant In- 41,592 39,701 28,593 22,502 30,127 31,356 30,297 25,196 10,335 6,568 migrant

17UNICEF, NCLLE (2017). Baseline survey on students participating equivalent curriculum at lifelong education centers 18 Internal migration and urbanization in Mongolia: Study based on 2000 PHC data, Ulaanbaatar, 2002, page 38 19 NSO of Mongolia, 2011. 2010 PHC: Migration and urbanization, page 40

45,000 40,000 Figure 10. Migration of UB city population (2010-2018) Source: (NSO, 2019) 35,000 30,000 25,000 20,000 15,000

10,000 5,000 0 2010 2011 2012 2013 2014 2015 2016 2017 2018

Шилжин явсан Шилжин ирсэн

TABLE 6. Number of migrants going out, by aimag and regions (2010-2018) (NSO, 2019)

2010 2011 2012 2013 2014 2015 2016 2017 2018 Western region 18,127 10,767 5,049 8,051 7,948 8,329 8,985 3,587 2,443 Bayan-Uglier 2,721 1,383 292 615 695 1,328 2,570 353 199 Govi-altia 2,410 1,763 879 1,632 1,637 1,423 1,146 604 468 Zavkhan 5,473 2,931 1,332 1,891 2,073 2,073 1,579 918 678 Uvs 3,367 2,270 1,329 1,973 1,754 1,799 1,826 1,009 472 Khovd 4,156 2,420 1,217 1,940 1,789 1,706 1,864 703 626 Khangai region 16,063 13,712 8,690 15,479 15,854 13,038 11,509 6,954 6,557 Archangel 3,218 2,360 1,260 1,706 2,337 1,706 1,226 744 767 Bayanhongor 2,214 1,686 1,055 1,723 1,922 1,614 1,444 663 591 Bulgan 1,881 1,380 1,143 1,866 1,831 1,800 1,663 1,383 1,039 Orkhon 2,949 3,932 2,301 4,705 4,285 3,263 2,989 2,009 2,396 Ovorkhangai 2,937 2,405 1,493 3,365 3,121 2,639 2,316 1,053 784 Khovsgol 2,864 1,949 1,438 2,114 2,358 2,016 1,871 1,102 980 Central region 15,726 13,713 9,418 16,578 16,873 15,905 13,469 8,759 11,616 Govisumber 720 584 440 714 748 677 687 489 547 Darkhan-uul 4,073 3,434 2,133 3,948 3,963 3,677 3,147 1,931 2,702 Dornogobi 1,523 1,328 1,071 1,554 1,590 1,912 1,547 1,224 1,688 Dundgobi 2,594 1,942 922 1,629 1,450 792 1,155 593 595 Umnugobi 589 530 709 1,191 1,277 1,369 1,129 784 2,009 Selenge 2,911 2,730 2,310 3,843 4,219 3,900 2,999 2,181 2,071 Tuv 3,316 3,165 1,833 3,699 3,626 3,578 2,805 1,557 2,004 Eastern region 6,129 4,546 2,849 5,231 5,180 4,710 3,884 2,075 2,866 Dornod 2,526 1,743 931 1,790 1,992 891 1,016 683 981 Sukhbaatar 1,420 1,168 593 1,113 1,082 900 961 464 608 Khentii 2,183 1,635 1,325 2,328 2,106 2,919 1,907 928 1,277 Ulaanbaatar 14,547 8,502 11,856 10,671 10,009 11,702 14,342 11,431 6,328

Education level of the migrant population. No necessary attention is paid for the education of the children of migrant families. For example, surveillance survey on the drop-out rate, education level and

literacy of the migrant population of 4 khoroos of Bayanzurkh district (9, 21, 23, 24th khoroo) has been conducted by covering 11466 households. (According to statistics, there should be 13310 households residing in these four khoroos but there were additional 1844 households with no registration).

Figure 11. Changes in the number of (а) migrant population (б) in Ulaanbaatar and and other aimags (2010-2018) There were 96 children under school Ulaanbaatar age but dropped out from school 20 24 (25%) of them never enrolled at school, 50,000 64 (66, 7%) of them were dropped out 40,000 school, (8 children-8.3% did not respond); 63.7 percent of them were 30,000 boys and 36.5 percent of them were 20,000 girls. Out of this 96, there were 26 21 10,000 children with disabilities . Based on these statistics, it can be concluded that 0 male migrants are negatively affected 2010 2011 2012 2013 2014 2015 2016 2017 2018 more than female population and their education level is relatively lower than the female migrant population. 5000

4000 34.4 percent of total children covered by this survey have replied that they 3000 had to leave school due to following

2000 reasons: “gave a birth to a child”, “become Buddhist monk”, “no 1000 document”, “doesn’t like to study”, “had to babysit”, “lack of attention 0 2010 2011 2012 2013 2014 2015 2016 2017 2018 from parents and household members”. Баян-Өлгий Ховд Архангай Some respondents have replied that they had to leave school because of Орхон Дархан-Уул Сэлэнгэ migration, health condition, disability and livelihood condition. (UNICEF, NCLLE, 2018).

1.2. Current state of the lifelong education sub-sector and policy planning Key factors of the establishment of Lifelong education sub-sector. In Mongolia the state centralized formal education system was dominated and in the1990s when the country has changed its social system. In 1992, for instance, when economic growth rate was -9.5% and inflation rate reached at 325.5 percent, due to school drop-out rate between 1990-1995, education index was decreased down by 12.0 percent. For instance, during academic year of 1992-1993, school drop-out rate was reached at 8.8 percent. (Figure 15, Table 9). Compared to this period, education index have been increased by 1.6 percent in 2017. (NSO, 2018). Figure 12. School drop-out rate (1991-2003)

20Сургуулийн гадна буй хүүхэд- Out-of-school children 21UNICEF, NCLLE, 2017.

10 8.8 9 8.1 8 7 6.2 6 5 4.3 3.5 3.8 3.4 3.4 4 2.9 2.8 3 2.2 2.1 2 1 0 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003

TABLE 7. Number of children dropped out of school Year Number Year Number Year Number Year Number 1995 34408 2000 18273 2006 6223 2012 5463 1996 28865 2001 14287 2007 5386 2013 10600 1997 37723 2002 16229 2008 4250 2014 9871 1998 28932 2003 31787 2009 7805 2015 5817 1999 24148 2004 15560 2010 5136 2016 3355 2005 19403 2011 4265 2017 3169 Source: World Bank statistics: https://data.worldbank.org/indicator/SE.PRM.UNER?locations=MN&name_desc=false&view=chart

National development policy and education law provisions. Policies to promote Non-Foral Eeducation were put forward through the “Law on Education”(1991) (which legalized NFE as an education subsystem), the “Education” (1993), the “Government Policy on Education” (1995), the “National Program on Non-Formal Education” (1997-2004) and the “Master Plan to Develop Education of Mongolia, 2006-2016. Starting from 1992, with the support of UNESCO, Non-formal education for herder women in gobi” project was commenced which served as the basis of non-formal education system.

The amendment made in 2002 on the Law of Mongolia on Education has highlighted that the education system of Mongolia shall consist of formal and non-formal education activities and.” Non-formal education means” means an organized educational activity aimed to provide educational services to students, apart from official educational system.

Starting from 2007, upon amendments in the Education Law (2006) which legalized the possibility of obtaining a primary, lower secondary and upper secondary education certificate through the Equivalency Program and allocated a normative expenditure per learner for Equivalency Program training.

In 2010, the MECSS has approved a policy on “Non-formal education”. In 2016 the law of Mongolia on Education was amended with legal provision that defines the lifelong education as “Lifelong education” is the set of continues activities to gain education on moral, aestethic, civic education, family, science and other practical knowledge through formal and informal educational format (amended on December 18, 2016, revised on November 2, 2018).

TABLE 8. Provisions of the Law of Mongolian on Education that are relevant to lifelong education Year Amended provisions 1991 The first legal basis of the Informal Education was introduced in the law of Mongolia on Education

“The education system of Mongolia shall comprise informal and formal education, including 1995 preschool, elementary, secondary and higher education (Amendment made in 1995 to the law of Mongolia on Education ” Informal education means” means an organized educational activity aimed to provide educational 2002 services to students, apart from official educational system; Primary, basic, and upper secondary education can be obtained through equivalency programme of non-formal education for retraining a certain term education, selflearning, and learning skills for employment. (8.2); Fixed expenditures of the universities, institutes and 2006 colleges, total expenditures ofdormitories, and normative expenditures per capita/student of formal and non-formalschooling, and normative expenditures per capita/student in spite of the form ofownership of kindergartens and general education schools shall also be financed from the state budget. (40.2) 3.1.20Lifelong education” is the set of continues activities to gain education on moral, aestethic, civic education, family, science and other practical knowledge through formal and informal educational 2016 format, (5.1.3) Methods and types of educational activities shall be responsive to learner`s needs demands and shall be free and accessible, it may have various variables that fits to the personal and development characteristics of the learners Teachers of lifelong education are now entitled to receive incentive that is equal to the total amount 2018 of 6 months’ salary, every five year.

In 2008, in the Comprehensive National Development Strategy, there certain provisions with strategic objectives on Education sector such as supporting re-training, achieve gender balance in student; raise the literacy rate up to 99.0 percent by 2010. (CNDS Provision 4.4)

Education Sector Master Plans and national programs. In Education policy background study conducted in 1993, it was recommended to develop non-formal educatio sub-sector (MECS 1993)) (БСШУЯ, 1993), the first Education Sector Master Plan (1993-2000) also highlighted that there is a need to provide education service for those children and youth who have dropped out of school, to identify vision, goals, priority areas, structure, roles and responsibilities of parties involved in non-formal education activities. (МУГЗ, БСШУЯ, 1994). As a result of this recommendation stated in the plan, in 1995, the legal provision that serve as the basis of non-formal education as part of the education system of Mongolia was included in the Law of Mongolia on Education.

In “Education Sector Master Plan” (2006-2015)-нд (МУЗГ, 2006)the non-formal and adult education was studies in detail highlighted in a separate chapter with specific goals and objectives in regard to access, quality and management:

- Match non-formal educationservices to the needs of therecipients of these services; - Develop favorable learningenvironment, improve quality andcapacity of resources at all levelsof non-formal education; - Improve policy and strategies of - non-formal educational sector andestablish information and financialinfrastructure; - literacy rate will be increased from 97.7% to 99.0% by 2008; - 40% of dropouts from general secondary schools will be provided with equivalence and nonformaleducation training; - Funding for national center for non-formal and distance education, and enlightenment, nonformaleducation centers in soums and districts will be increased by 8% annually; - Expenses for re-training teachers of non-formal education will be allocated by Governmentcentralized expenses for re-training annually; - A national system of monitoring and evaluation for non-formal education will be established In order to support the lifelong education sub-sector development, to create efficient structure and system of lifelong education, the Government of Mongolia has approved and introduced number of national programs For instance, National programme on basic education provision for all (1995-2005) with government resolution number 19, with the mission to set up an appropriate form of non-formal education and to set policy basis of main directions.

In 1997, National Programmed on Non-Formal education was approved by the resolution 116, for the period of 1997-2004 that has played an important role to set up the non-formal education system and define the training content, form and material basis. In 2002, National Programme on Distance Education (2002-2010) was approved by the government resolution 14 and as a result of this program, the capacity of non-formal education center was expanded and 13 different audio classes, 39 video classes and 50 TV classes were produced and number of projects funded by UNESCO and UNICEF was implemented in the non-formal education sub-sector.

According to the “Main directions to ensure full access for children to complete secondary education for all” approved by the MECSS in 2008: “In case of school – drop out of children caused by their disabilities or livelihood condition, non-formal education service shall be provided that fits in their condition, to provide complete secondary education for those children engaged with intolerable employment and to gradually end the employment of children by providing education service” was highlighted.

Development of lifelong education sub-sector was specifically highlighted in number of policy documents and action plans of the government of Mongolia. For instance in 2004, a goal to “expand vocational trainings, distance and online trainings, to support the initiatives and activities of civil society organizations ensuring re-trainings and providing basic education services for children who are dropped out from school, to support students engaged with any type of employment and study at the same time” was set forth in the policy document. In 2017, parliament resolution on "Some measures to implement the law of Mongolian on rights of people with disabilities" with reference number 46 was approved and according to provision 1.4 of this provision "through the MECSS and lifelong education center, it was planned that primary and secondary education service delivery shall be provided to those people at bed- rest, people with severe disabilities starting from 2017-2018 academic year. It has also included specific provisions to provide necessary tools and equipment and suitable learning tools for children with disabilities, for distance learning and necessary budget for teacher`s salary etc.

At the central administrative body responsible for education. At the MECSS level, there are number of

National programs on Lifelong learning 1995 “The first main policy document adopted by the Government that provided direction for NFE was the National Program of Non-Formal Education was implemented from 1995 to 2005 which was approved by the Govenrment Resolution 19. 2002 “The National Program for Distance Education” (2002-2012) 2004 “National program on literacy education (2004-2012)” (Government of Mongolia, 2004) . policy documents, regulations on lifelong education sub-sector has been approved. In particular, by the Minister`s order dated 2003, with reference number 169, “Job description of the teacher at lifelong learning”, “Sample rules for the Enlighten Center of lifelong center” at aiming, capital city, sound and district level”, “Job description of the methodologist at the non-formal education center and distance learning center”, “Job description of the teachers at the non-formal and distance learning education center” has been approved and in force up to date. In 2007, in order to ensure the implementation of the Law of Mongolia on Education, “Rule for primary, incomplete and complete secondary education equivalent program” (MECS, 2007). “Non-formal education training curriculum” which was approved in 2010 by the Minister`s order with reference number 556 is still in force and used in lifelong education services. Policy and legal documents have been regulating the implementation above mentioned rules and procedures during lifelong education sub-sector development stages. (Figure 16).

Figure 13. Education policy and sector development

II phase: 2002-2012 I phase: 1991-2002 Policy and legal III phase: 2012 and up to Establishment of lifelong environment strenghtened, date education system curriculum content and New era of Lifelong methodology improved education that is open, with alternative service •1991: NFE included in Education law •2002: National Program on •2013: With Minister`s •1993: NFE was included in distance learning approved. order structure of lifelong the ESMP; •2003: Job description is education service approved; •1995: National program on approved, necessary budget basic education for all, has was approved; •2016: In the education law, highlighted the non-formal •2004: National program on lifelong education service education as one way to literacy education was was included , private and obtain secondary education; approved. sector development •2006: Separate chapter on indicators are open with •1995: Non-formal education many alternative; was reflected in the law as one NFE is included in the of the component of education Education Sector master •2018: Social protection of system; plan teachers at lifelong education center is •1997: National program on •2006: provision on equivalent program was reflected in the Education developing NFE was law (43.1.7); approved. included in the Education •2002: Clear definitoin of NFE law; was included in the Education •2010: Training curriculums approved; law

Since the establishment of lifelong education sub-sector, in total 12 documents on legal environment for lifelong education, 23 documents on lifelong education activities and services has been formulated.

Figure14. Development stages of Lifelong Educaton system 1991 1997 2002 2012 •Established a unit • NFE center under • NFE and distance learning • NCLLE responsible for non- MECSS center under MECS • National Program on established formal education at • National programm Distance learning (2002- under MECSS the Education on NFE 2010) Research Institute •(1997-2004) • National program on • Direction on literacy program (2004- 2012) lifelong education until 2013

Organizational structure of the lifelong education sub-sector. Provision 17.1 of the law of Mongolia on Education clearly states that “Lifelong education, research and methodological institution shall provide institutions at local level with an integrated policy coordination and professional methodological instruction, to organizational professional trainings for those teachers engaged with informal lifelong educational activities”. Organizational structure of the lifelong education sub-sector is shown in Figure 18.

According to the Appendix 1 of the Minister`s order dated 2013 with reference number A/242, organizational structure of the lifelong education shall be under the MECSS and National Council for Lifelong Education, the council may have sub-council, but up to date, the roles and responsibilities, activities to be undertaken by this council is still unclear. Therefore, in terms of coordinating lifelong education services, the NCLLE is acting responsible for the coordination but in legal terms, there is no power to lead these activities directly. Especially in aimag and sound center, the umbrella organization of the lifelong education is not clear, therefore, it is not possible to allocate necessary budget and investment.

Figure 18. Organizational structure of the lifelong education sub-sector

Source: Appendix 1 of the Minister`s order dated 2013 with reference number A/242,

Roles and responsibilities of the National Center for Lifelong Education. NCLE functions to to provide national level management for all centers for delivering trainings and conducting research, coordinate policy implementation and deliver in-service training to center teachers and staff. Key responsibilities include: delivering capacity building training, conduct research in needs assessment, human resource, students including adults who learn in lifelong centers, develop training program/curriculum in family education, citizen, moral education, aesthetics education and life skill education for learners, provide primary and secondary education to out-of-school children and adults, Deliver literacy training through life-skill education (Figure 18).

Secretariat of the Center for Life-Learning Education has 13 staff members. NCLLE has a radio and TV, audio and video recording tools, radio and TV classes, as well as fully-equipped printing machinery /FJ56 / and able to publish their training materials and other printed publications.

At aimag and local level, lifelong education activities are under the responsibility of the aimag, UB city and district governor`s office. Lifelong education centers are responsible for organization and conduct of trainings for individual development. As of today, there are 354 lifelong education centers providing lifelong education services and 8 in districts, 19 in aimag centers and 327 centers are operating at sound level. (Figure 16) There is no lifelong education center in Dornogobi, Dundgobi, Govisumber, Zavkhan, Uvs, Khovsgol, Bayankhongor aimags.

Basic responsibilities of lifelong education institutions are shown in details (Figure 19).

Figure15. Basic responsibilities of lifelong education institutions National level: Provincial level: Primary level: Lifleong MECSS/NCLLE Department of Education education center at and Culture soum and district

• Policy and decision making • Policy and decision • Төрөл бүрийн • Conduct research implementation сургалт явуулах: • Conduct trainings • Data collection and бичиг үсгийн, • Provide methodological data preparation боловсрол нөхөн guidance • Conducting trainings олгох, мэргэжлийн • To establish database • Recommendation and чиг баримжаа • To establish international methodological олгох, орлого partnership support нэмэгдүүлэх • To earn financial resource • Иргэдийн хэрэгцээг судлах

• To eradicate illiteracy rate • To increase education level of population • To provide life skills • To increase population income and reduce poverty

нэмэгдүүлэх, ядуурлыг бууруулах

1.3. Conclusion Advantages and disadvantages

Based on demographic analysis, it can be concluded that human development index of Mongolia has been increased and now above the world average, which is mostly associated with the increased level of education of population.

Despite the rapid urbanization and due to various “push factors”22, migration from rural areas to urban areas is now relatively stabilized.

The number of elderly population aged 60 and over has been increased, as a result of increased livelihood; the percentage share of educated elderly people has been increased as well. However, there is no proper mechanism to benefit from those elderly who have wide experiences and knowledge on various sector, more activities and measures need to be organized to focus more on re-train those experienced human resource. For example, in European and Northern American countries, experienced elderly tend to work at museums or libraries on voluntary basis. This experience can be adopted in Mongolia since we are lack of experienced human resource in lifelong education sub-sector.

Compared to the initial efforts and attempts made in 20 years ago to include legal provisions to official establish non-formal education in national laws and policy documents in earlier years, the level of achievements and milestones reached today in life-long education sub-sector in Mongolia, shall be considered as a success, given the tangible results such as accessible, open and flexible courses and trainings suitable for all age groups, regardless of their residential location and time limitations which allows all citizens to constantly develop and increase their skills and knowledge in their interested area.

In total, there are more than 20 policy documents to support legal environment of Lifelong education sub- sector in Mongolia, initiatives to develop lifelong education sub-sector has been always reflected in state policy on eduction, national programs and education sector master plans.

National system of lifelong education sub-sector has been established. Organizational structure of the lifelong education center has following three levels: national, provincial level and local level. In addition to the National Center for Lifelong Education, lifelong education units at local level are providing lifelong education services. However, administration and coordination authorities of these units are not clear; no umbrella organization is available at higher level.

Issues and challenges

Despite the economic growth and positive changes in the labor market, there is no significant and sustainable improvement in providing productive and stable work place or employment for youth. Due to slow growth of mining sector, employment opportunities at relevant sectors are also decreased. There are number of policy and legal documents pertaining the relations and measures to be undertaken in the field of life-long education in Mongolia, however it efficient and smooth implementation is always questionable, especially at the grass root level, there is no proper mechanism to implement these policy and legal documents at local level. For instance, national programs and plans that are being developed and approved at the government cabinet, does not have clear guidance and financial arrangements of these planned activities. It only says the necessary budget will be covered by state budget. It does not include detailed roadmap or clear provision. One example is the Minister`s order A/242 dated 2013.

22 Push factors

Lifelong centers at local level is not operating efficiently as center for continues education delivery centers that fits with local context. Roles and responsibilities of local governors, local authorities for providing education service for out-of-school children is legalized in the Law of Mongolia on Education through several provisions, implementation of these legal provisions are not as expected.

Political instability in the country is negatively impacting the lifelong education sub-sector service and activities. For instance, “Lifelong education” curriculum package in key five directions are drafted and evaluated by the Education Research Institute and submitted to the MECSS, however, not approved up to date.

Conclusion on the comparison of international experiences

In UNESCO and other countries, adult education is one of the important parts of the lifelong education and special attention is made on the adult education. Mongolia has included following information to the Global Education Report 2016, “there is no clear and officially accepted definition on adult education, and therefore it is difficult to evaluate its outputs”. This information clearly shows us that there is a need for including adult education to lifelong education policy documents.

In some countries, in particular, European countries, non-formal education and lifelong education is evaluated and well accepted, accredited by relevant organizations and supported at policy level. (Odd Bjørn Ure). We shall carefully study these experiences and seek opportunities to evaluate and accredited the lifelong skills and non-formal education, and reflect these actions into policy documents.

Lifelong learning is often considered as an adult education in many countries and most of the lifelong learning services are focused on the needs of adult population. However, lifelong learning and education shall not be under the responsibility of one sector, or organization, there must be multi-lateral communication and partnership in order to realistically support lifelong educaiton sub-sector with more practical results. Lifelong education sub-sector therefore, is the matter of intersectoral cooperation and that requires an integrated policy coordination and an effective institutionalized system which will enable continuous learning process starting from preschool education level.

CHAPTER TWO: LIFELONG EDUCATION SUBSECTOR ACCESSIBILITY AND EQUILITY

2.1. Lifelong education accessibility LE sector service accessibility will be considered in following areas 1) Literacy programs, 2) Equivalent program training, 3) Life skills and other areas (family education, civil education, ethical education, aesthetics education).

Literacy program. According to the literacy rate of non-educated and unemployed population aged 15, 57.4 percent of 51.5 thousand people were literate and 42.6 percent were illiterate. However in 2010, 53.5 percent of 49.5 thousand non-employed people were literate, and 46.3 percent were illiterate23. This shows that the level of literacy rate of the non-employed population has not improved, reflecting the current needs of this training.

Literacy programs applies "Literacy program based on Life Skills" approved in the Appendix 2 of decree number 556 by Minister of Education, Culture and Science of 2010. The aims of this program are to: Encourage illiterate adults to become literate, especially to increase the literacy rate of ethnic minorities; improve the literacy skills by raising the ability to read, write and calculate minor literate people; learning life skills through post literacy training, thereby increasing household income and improving quality of life; increasing literacy education for adults, especially those from remote areas and ethnic minorities, will enable all populations to become functional literates; as well.

Figure 16. Number of people who have attended literacy training (2007-2018)

10181 10225 10256

9718

9631 9359

4342 3413

3228

2819 2680 2597

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Total 78.449 participants

Source: NCLE data, 2019

During 1997-2018, 174,342 people participated in literacy trainings organized in LE centers. The number of learners increased from 6895 in 1997 to 13691 in 1999, reflecting the early results of the social and economic situation and policies of LE. This data witnessed the start of involvement of drop-out children to the trainings (Figure 20, 21).

23 National Statistical Office of Mongolia, 2011. National Population and Housing Census 2010: Education and literacy level. Page. 46.

Figure 17. Results of the literacy training, by number of learners (2007-2018)

609 2018 2597 1276 2017 2680 890 2016 2819 1554 2015 4342 932 2014 3228 3413 2013 3413 3322 2012 10225 3311 2011 10574 3772 2010 9359 9632 2009 9632 10181 2008 10181 2007 9718 9718 Literate Involvement

Source: NCLE data, 2019 Since 2000, even though number participants in literacy trainings has started falling down, during the "National Program of Literacy Education" (2004-2012) involvement has increased over time and 83,123 people (in overlapped number) have been trained in classroom and non-classroom forms.

Since the completion of the program, literacy training learners has fallen dramatically from 10225 to 3413 and is expected to decline furthermore. This is due to the improvement of the capacity of illiterate and minority populations and decrease in the need for training. This is the result of the LE sector service and in 2010 “Population and Housing Census” literacy rate reached to 98.3%.

Participant’s age in the literacy training changed significantly compared to early 2000. For example, most of the participants were children over 15 years old and adults which constitutes more than 80.0% (Figure 22). On the other hand, among children less than 15 years, the majority is disabled. This suggests that school enrollment has improved and the number of adults in the LE services has increased.

Figure 18. Participant’s age in the literacy training (2010-2012)

Source: NCLE data, 2019

Equivalency training program. In “National program to develop informal education” (1997) equivalency training program had become one of the core components in LE service by reflecting provision of re- education for drop outs and children out of the school. The program has played an important role in the implementation of the Education Law on the provision of universal access to general education and the provision of "universal access to basic education" for the children who have never attended school and dropped out of school.

The training follows the "Elementary, Basic, and Secondary Education Equivalency Curriculum" which was developed in conformity with the "standard requirements" for formal and non-formal education process and results. The content of the curriculum provides equivalent education flexibly with the maturity of the complexity of communication, learning and living and civilization, which encompasses qualitative qualifications such as increasing the enrollment, organizing training based on the feature and needs of learners.

In 1997-2018, a total of 193,589 people enrolled in equivalency programs and 65.1% were (126,105) in 2007-2018 (Figure 23).

Figure 19. Number of trainees in equivalency training (1997-2018)

12496 11636

11668

12024

12200

10398

10312

10019

10156

9291

8609 7296

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018

Total 126.105 attendees

Source: NCLE data, 2019

Total population of our country is 3 119 935 in 2017 and 0.29% are attending equivalency trainings. Following shows the number of trainees in the equivalency program compared to total population by region:

TABLE 9. Number of attendees in equivalency program, by region № Region Total Trainees in Representing Enrolment percentage of population the percentage the equivalency training equivalency training 1 Western 393 069 2936 0.75 31.7 2 Khangai 582 873 2673 0.46 28.8 3 Central 492 494 1510 0.31 16.2 4 Eastern 211 052 1075 0.51 11.5 5 Total aimags 1 679 488 8194 0.49 88.1 6 Ulaanbaatar 1 429 697 1097 0.08 11.9 7 National 3 109 185 9291 0.30 100 Source: UNICEF. NCLE (2017). National Center for Lifelong education, base study of the trainees of the unit equivalency curriculum training

Getting certificate for the completion of the equivalency training is optional for the trainees, however results of the training has been measured by the certification. Getting certificate is not the purpose of the training, but raising education level is. During the 11-year period between 2007 and 2018, the number of people involved in the program ranged from 8500 to 13,000 per year, and the number of certified trainees is approximately one-third of the figure (Figure 24). For example, in 2015, 24.0; 39.9 in 2016; In 2017, 30.3 percent received the appropriate level education certificate.

Figure 20. Results of the equivalency program training (2007-2017)

2017 2612 8609 2016 3713 9291 2015 3076 10312 2014 3066 10156 2013 2087 10019 2012 3100 11636 2011 3777 12200 2010 3840 12024 2009 3120 11668 2008 3990 12496 2007 3560 10398 Certification received Total attendees

Source: NCLE data, 2019

According to the last 5 years data, number of total and certified trainees has not changed significantly, but there has been a slight decline (Figure 24).

Figure 21. Number of enrolled and educated trainees in the equivalency training (2014/15-2018/19)

Source: NCLE data, 2019

In terms of the education, most of them have basic and secondary education. For example: In academic year of 2017-2018, 476 completed primary education, 976 basic and 1162 secondary educations. (Figure 25).

In terms of the age, most trainees in the equivalency training are over 18 years old. For example: in the 2014- 2015 academic year, 66% of total 10156 trainees was over 18 years old and in 2017-2018 academic year 67% of total 8609 trainees was over 18 years old (Figure 26). As for the primary education equivalency program, most of the trainees were over 10 years old (Figure 12). Since 2015, proportion of the trainees aged 9-10 has increased due to inclusion of the disabled children who cannot attend school into equivalency program.

Figure 22 Education status of the trainees by the equivalency curriculum Source: NCLE data, 2019 Overall, the number of equivalency program trainees is decreasing year by year, but the age of the learners is likely to increase. This is not because of decreased availability of educational services, but due to increased level of education in the population, decreased school drop outs and increased need for adult learning.

Table 10. Age of the trainees in the primary education equivalency program

Academic Number of trainees in the 9-10 years old year primary education Тоо Хувь 2014-2015 3213 263 8.2 2015-2016 2710 321 11.8 2016-2017 2205 296 13.4 2017-2018 1708 306 17.9 Source: NCLE data, 2019

Figure 23. Age difference of the trainees in the equivalency program

18 хүртэл Бага боловсролд суралцагчийн тоо 18-аас дээш Үүнээс 9-10 настай

6775 3213 6049 5846 2710 5068 4263 4223 2205 3381 2763 1708

263 321 296 306 2014-2015 2015-2016 2016-2017 2017-2018 2014-2015 2015-2016 2016-2017 2017-2018 According to the “Baseline Study of Students enrolled in the Equivalency Program Training Program” by NCLE (2017), a total of 9192 people are enrolled in equivalency training at the national level, and more in Bayankhongor, Uvurkhangai, Selenge, Sukhbaatar and Uvs aimags. However, number is less in the most populated capital city districts; it shows that the LE service is not reaching its target group (Table 13).

Table 11. Number of trainees in equivalency training, proportion in total population (as of 2017)

№ Aimag Total Number of trainees in the Percent population equivalency program age 1 Archangel 93135 428 4.6 2 Bayan-Uglier 100172 359 3.9 3 Bayankhongor 84807 842 9.1 4 Bulgan 60603 371 4.0 5 Govi-Altai 56587 486 5.2 6 Govisumber 16926 56 0.6 7 Darkhan-Uul 101876 244 2.6 8 Dornogovi 66450 50 0.5 9 Dornod 77579 129 1.4 10 Dundgovi 44762 95 1.0 11 Zavkhan 70546 462 5.0 12 Orkhon 101789 67 0.7 13 Uvurkhangai 113157 613 6.6 14 Umnugovi 63307 104 1.1 15 Sukhbaatar 59810 506 5.4 16 Selenge 107513 480 5.2 17 Tuv 91660 481 5.2 18 Uvs 81278 973 10.5 19 Khovd 84486 656 7.1

20 Khuvsgul 129382 352 3.8 21 Khentii 73663 440 4.7 22 Baganuur district 35649 44 0.5 23 Bayangol district 220950 126 1.4 24 Bayanzurkh district 333751 194 2.1 25 Nalaikh district 43052 172 1.9 26 Songinokhairkhan district 322248 181 1.9 27 Sukhbaatar district 143246 126 1.4 28 Chingeltei district 164656 215 2.3 29 Khan-Uul district 166145 39 0.4 Total 3109185 9291 100 Source: UNICEF. NCLE (2017). National Center of Lifelong Education, Base study of the trainees attending in the unit equivalency training

Figure 24. Type of the equivalency training

Танхим Танхимын бус 6775 6049 5846 5068 4263 4223 3381 2763

2014-2015 2015-2016 2016-2017 2017-2018

Source: NCLE data, 2019 Non-classroom training dominates for the last 5 years since 2014 in the equivalency curriculum training (Figure 28).

There are many causes for the drop out in the trainees of the equivalency program. According to a sample survey conducted by NCLE with UNICEF, the causes include following, school is too far (3.3%), living standard low (18.3%), no national identification document (2,8%), over school starting age (6, 1%), disabilities (13.2%), as well as migration, health, unpleasant communication with the teachers, bullying, employment, peer pressure and discrimination (56.4%). (Figure 29).

Figure 25. Drop out causes of trainees in the equivalency program

Other causes 5237 Disabilities 1225 Over school starting age 563

No documentation 257

Living standard low 1704 School is too far 305 0 1000 2000 3000 4000 5000 6000

Resource: UNICEF. NCLE (2017). National Center of Lifelong Education, Base study of the trainees attending in the unit equivalency training

Other types of LE training. On top of those two mentioned before, there are many trainings, such as sustainable development, environment, increasing income, health and financing, organized in the LE center and due to the diversity of the duration and trainees, it is impossible to calculate the benefits. Some take less than an hour, while others take 1 or 2 days or more. Figure 30 shows number of trainings and trainees (давхардсан тоогоор) (NCLE, 2018).

Figure 26. LE trainings and trainees24 (2007-2018)

Сургалтын тоо Суралцагчдын тоо 14000 350000 311589 11942 282730 12000 300000 261298 10000 250000 218044 188489 8000 200000 6290 5332 150000 6000 4458 100000 4000 2404 2000 50000 0 0 2014 он 2015 он 2016 он 2017 он 2018 он 2014 он 2015 он 2016 он 2017 он 2018 он

TABLE 12. Number of LE trainings and trainees (by capital districts and aimags)

Life skills Aesthetic Family education Civil education Ethical education education education

Year

Trainee Training Aimag District Aimag District Aimag District Aimag District Aimag District

2014 2,404 188,489 31,360 8,130 19,362 4,044 50,965 4,292 49,140 6,389 12,528 2,279 2015 6,290 282,730 41,274 11,359 65,443 4,560 76,287 9,668 35,104 11,218 24,001 3,394 2016 5,332 261,298 48,477 10,132 37,071 10,055 46,552 16,770 40,882 22,938 21,345 7,076 2017 4,458 218,044 63,895 8,935 29,291 8,935 49,343 8,974 23,750 6,370 12,914 5,599 2018 11,942 311,589 62,347 14,873 57,685 10,206 57,685 7,255 55,557 6,910 31,862 7,710 Source: NCLE unified data, 2019

Figure 27. Trainee numbers in each type of trainings for last 5 years

Амьдрах ухааны чиглэл Гэр бүлийн боловсролын чиглэл

2018 он 77220 2018 он 67891

2017 он 72830 2017 он 38226 2016 он 58609 2016 он 47126 2015 он 52633 2015 он 70003

2014 он 39490 2014 он 23406

Иргэний боловсролын чиглэл Ёс суртахуун төлөвшлийн 24 Based on the data from 2014 давхардсан боловсрол

2018 он 64940 2018 он 62467 45

2017 он 58317 2017 он 30120

2016 он 63322 2016 он 63820

By the end of 2018, 11,942 training took place at national level, which was 7484 or 62.6 percent higher than the previous year and 311,589 trainees have been attended (Table 14, Figure 30, 31). In terms of the Sustainable Development, Green Development and SDE trainings from 2014 to 2018, 36 training sessions were organized for 1033 LE teachers and 30426 people in double counting in the local LE training centers.

2.2. Equality in the accessibility of the lifelong education

Educational needs of people with disabilities. According to the 2010 census, Mongolia has 103.0 thousand people with disabilities aged 10 and over, of whom 80.4 thousand or 78.0 percent have completed any level of education, 22.6 thousand or 22.0 percent have no education (NSO, 2011)

7.6 thousand Or 33.7 percent of the population with disabilities with no education is literate, 15.0 thousand or 66.3 percent are illiterate (NSO, 2011). As of 2010, 85.4 percent of the population aged 10 or over was literate. This is 12.9 percent lower than the literacy level of our country. In 2010, in terms of gender of disabled people education and literacy level, 78.9 percent of men and 76.8 percent of women were educated, 21.1 percent of men and 23.2 percent of women had no education. According to the Human Development Report of Mongolia (2016), only 60 percent of children and young people with disabilities are studying in general education schools.

34.7 percent of men without and 32.6 percent of women without education are literate, while 65.3 percent of men and 67.4 percent of women are illiterate. In the people with disabilities, the proportion of educated men is 2.1 percent higher than that of women, while the proportion of non-illiterate women is 2.1 percent higher than that of men. The proportion of illiterate people with disabilities aged ten and over was 86.3% for males and 84.4% for females.

Percentage of people with disabilities and uneducated by age group was 54.8 percent or 10-14 years old, 10.3 percent for people younger than 50-54 years old and 16.9 percent for people aged 55 years and over. In terms of educational level of disabled people by region, educated population consisted of 87.5% in the age group of 10 and older in Ulaanbaatar, 85.8 percent in Darkhan-Uul, 85.3 percent in Torchon and 62.8- 80.3 percent in other images. The proportion of disabled people without education is high in following images, such as in Us 37.2, in Dundovic 36.6, Sukhbaatar 34.9, 33.3 percent in Archangel, while some images are lower than other images, for example 12.5 percent in Ulaanbaatar, 14.2 percent in Darkhan- Uul and 14.7 percent in Orkhon, (NSO, 2018).

Percentage of disabled people with higher education in Ulaanbaatar and Orkhon was higher than other aimags, showing 13.8 percent and 8.7 percent respectively. Percentage of disabled people with secondary and vocational education in Ulaanbaatar was higher than other aimags, being 44.5 percent, Orkhon 43.1 percent and Darkhan-Uul 41.9 percent respectively. However, primary education percentage is higher, constituting 10.9 percentages in Ulaanbaatar, 10.9 percent in Orkhon, 12.8 percent in Darkhan-Uul, while it is lower with 24.7 percent in Uvurkhangai and 26 percent in Huvsgul and 24 percent in Bayan-Uglier (NSO, 2018). This shows that the level of education for people with disabilities is low in rural areas.

Despite the increase in enrollment at all levels, the opportunities for education are not equal to everyone. There is still limited access to education for young people with disabilities; only 66.2 percent of children with disabilities in the secondary school age are attending school. Nearly half of the total number of congenital disabled youths is illiterate or uneducated (UNDP, 2016). (НҮБХХ, 2016). These young people are faced with significant barriers as teachers and trainers are not adequately trained and do not have the necessary infrastructure. Such a situation can exacerbate discrimination among people with disabilities.

Citizens or groups covered by LE service are children, youth, adults, housewives, unemployed, migrants, pre-kindergartens, their parents, vulnerable groups, and disabled people who have dropped out and are out-of-school. However, in reality, illiterate and drop outs, especially those who are over 15 years of age, are among the majority of learners.

Based on the trainings, the trainee structure and needs of primary care units, the LE service group can be classified in two different ways: basic and specific targeted.

Accessibility to people with disabilities. As of 2018, there are 105,730 disabled people, of which 33.7 percent lives in Ulaanbaatar (TABLE 15). In any place majority of the disabled people is men due to the factors such as gender feature, ability to do heavy labor, employment, education level and involvement.

TABLE 13. People with disabilities by gender and location, 2018 (NSO, 2019) (ҮСХ, 2019)

Number Male Female Total 105,730 59,691 46,039 Ulaanbaatar 35,589 19,728 15,861 Bayan-Uglier 4,168 2,080 2,088 Govi-Altai 2,789 1,604 1,185 Zavkhan 3,696 2,048 1,648 Uvs 4,556 2,593 1,963 Khovd 2,639 1,544 1,095 Archangel 3,523 2,072 1,451 Bayankhongor 3,322 1,835 1,487 Bulgan 2,056 1,199 857 Orkhon 4,315 2,352 1,963 Uvurkhangai 4,103 2,353 1,750 Khuvsgul 5,616 3,122 2,494 Govisumber 729 421 308 Darkhan-Uul 4,262 2,398 1,864 Dornogovi 2,598 1,595 1,003 Dundgovi 1,826 1,056 770 Umnugovi 1,985 1,086 899 Selenge 4,616 2,655 1,961 Tuv 3,211 1,936 1,275 Dornod 4,328 2,505 1,823 Sukhbaatar 2,603 1,492 1,111 Khentii 3,200 2,017 1,183

The proportion of children with disabilities in the LE trainees is dominant. In order to implement the Resolution # 46 on the Law on the Rights of Persons with Disabilities in 2017, from2018, and training for children with disabilities in LE centers was started. According to the NCLE report, 7296 people enrolled in equivalency training at the national level during the 2018-2019 academic years, of which 12.8% or 933 are disabled. 42.1 percent or 393 of the total number of trainees with disabilities is studying

in primary education, 47.2 percent or 440 in basic education, 10.7 percent or 100 in secondary education (Figure 32).

Figure 28. Number of people with disabilities who have attended equivalency training: by education level (2017/2018-2018/2019) 600 525 500 460 440 393 400 300 200 87 100 100 0 Бага боловсрол Суурь боловсрол Бүрэн дунд боловсрол 2017-2018 525 460 87 2018-2019 393 440 100

Source: NCLE data, 2019

Figure 29. Proportion of children with disabilities who have attended in the equivalency training: by age (2018)

11% 24% 8 наснаас доош 8-10 нас 30% 10-14 нас 15-18 нас 35%

Source: NCLE data, 2019

TABLE 14. Number of children with severe disability, by capital city and aimag Children with severe disability № Capital city and aimag Number Percentage 1 Archangel 140 4.2 % 2 Bayankhongor 307 9.1 % 3 Bayan-Uglier 77 2.3 % 4 Bulgan 62 1.8 % 5 Govi-Altai 197 5.8 % 6 Govisumber 22 0.7 % 7 Darkhan-Uul 22 0.7 % 8 Dornod 131 3.9 % 9 Dornogovi 70 2.1 % 10 Dundgovi 30 0.9 % 11 Zavkhan 16 0.5 % 12 Uvs 133 3.9 %

13 Orkhon 261 7.7 % 14 Uvurkhangai 114 3.4 % 15 Umnugovi 227 6.7 % 16 Selenge 50 1.5 % 17 Sukhbaatar 55 1.6 % 18 Tuv 36 1.1 % 19 Khentii 122 3.6 % 20 Khuvsgul 82 2.4 % 21 Khovd 36 1.1 % Subtotal 2190 65 % 22 Baganuur 42 1.2 % 23 Bayangol 49 1.5 % 24 Bayanzurkh 246 7.3 % 25 Nalaikh 60 1.8 % 26 Sukhbaatar 288 8.5 % 27 Songinokhairkhan 134 4 % 28 Khan-Uul 280 8.3 % 29 Chingeltei 83 2.5 % Subtotal 1182 35 % Total 3372 100 % Source: NCLE, 2018

In terms of the age of the trainees with disabilities, 59 percent is 10 years old or more and 15-18 aged constitutes 24% meaning in this target group majority is adults or people more than 15 years old (Figure 33).

According to the NCLE study in 2018, there are 3372 children with severe disabilities nationwide, of which 1182 or 35.06 percent were in Ulaanbaatar, which is almost same with the results from the 2010 census (TABLE 16).

Home-based training for children with severe disabilities and bedridden is being organized by LE centers at national level in 8 aimags and 2 districts. Of the 131 children involved in the training, 55 percent or 72 are male, 45 percent or 59 are female. The United Nations Children's Fund supported the capacity building of LE teachers working with children with disabilities and total 66 teachers were trained by 2018.

Involvement of monks in monasteries. As Mongolia moved into a market economy, many monasteries were established, and boys started to practice there. As of 2018, there are 1,552 monks and priests in total 196 Christian churches, 134 Buddhist churches, 24 Muslim and 10 other religious temples. Of these, 1321 monks (NSO, 2019) (ҮСХ, 2019) are in Buddhist temples, including those who are school-age children, especially those who have less, middle and upper secondary education, especially in smaller rural monasteries. The survey on education status and school enrollment of monks in 2016 included 51 small monasteries in 21 provinces and 9 districts of Ulaanbaatar. Of these, there are 160 (48%) children in 14 (27%) monasteries in the city, 176 (52%) children in rural 37 (73%) monasteries, 248 out of 336 children were attending any level of school. Of the 52 children who did not attend school, 42 (77 percent) had dropped out of the primary school while the rest dropped out of the middle class (Figure 34).

Figure 30. Child monks enrolment status in schools

Хот Хөдөө 149 135

42 10

Суралцдаг Суралцдаггүй 284 -52

Source: NCLE data, 2019

Since 2010, with the support of the UNFPA, the National Center for Informal Education and Distance learning has implemented a project to train monk children in equivalency programs. For example, in 2014-2016 this training was held in Gandantegchilen, Getsogdarjaalan of Darkhan-Uul Aimag, Bat- Erdenezuu, Shankh West Khuree and Bal saja bal niguusel of Kharkhorin sound, Amarbayasgalant of Selenge aimag, Erdenemandal of Sukhbaatar Aimag, and Gandanpuntsoglin of Uvurkhangai Aimag and 558 monk children were trained and spent 45,173,600.00 tugrug were spent from the project. In the 2015- 2016 school year, 213 monks were involved in the training (71 in primary education, 56 in basic education, 56 in the secondary education program), and some obtained appropriate level education and certification (Figure 35). Due to shortage of funding and LE human resource, the training had been held inconsistently and stopped from 2016.

Figure 31. Number of trainees in monasteries and status of the acquired education (percentage)

86 71 56 Бүрэн Бага 33% 36 дунд 25% 17 22

Бага Суурь Бүрэн дунд Суурь 42% Суралцсан Боловсрол эзэмшсэн

Source: NCLE data, 2019

The service for the national minorities. Some curricula and training materials used for Kazak citizens for LE services have been translated into Kazakh language. Specifically, life skills-based literacy program with its 8 set of 31 types of manuals, 1000 literacy training "Wisdom eyes-1" textbooks, 500-1000 copies of equivalency training natural science and social science textbooks, 20 modules, 15,000 copies of equivalency training primary education books, 60 types of videos for livelihood and life-skills training books were translated (NCLEDL, 2014) (АББЗСҮТ, 2014)

2.3 Demand and need of lifelong education Diversity of the LE demand and need. LE target group includes illiterate, and elementary and primary education seekers who are under the age of 15 or basically children, but for the special group consists of mostly adults. For rural areas, education service is provided for the people with education lower than incomplete secondary level, also vulnerable group people are commonly involved in the trainings to improve income funded by the projects.

According to the analysis in the first chapter, which includes age structure and employment, demand and need for the LE service is likely to change. For example, it is necessary to consider the educational needs of elderly people which have never spoken before. The proportion of elderly people increases with the improvement of the quality of life and increased life expectancy. The number of elderly people living in urban areas increased by 12.7 percent in 1989-2000 and by 57.8 percent in 2000-2010 (NSO, 2019), and expected to grow further. In the era of rapid development of information communication technology, the growing demand for the elderly is a new necessity to adapt to the current times independent of their educational level. One of the leading ICT provider Japan is the example of this phenomenon to the fact that there is regular training for senior citizens in LE center named Kominka to meet these needs. As life expectancy increases, educational needs for elders to spent to be spend during leisure time emerged. Training courses such as cooking, health care, foreign language, and preparation for trips are part of LE services.

An online and open distribution system has been created for books and textbooks to improve the accessability of LE to meet the learning needs of the population. NCIEDL website gave an opportunity to public to distribute news and information, and download training documents. So far over 50 training documents of life skills and literacy training, 134 modules of equivalency training have been uploaded and they are downloaded for 32,000 times25 (NCIEDT,2014).

LE service and training types have been based on trainees’ demand and need survey. For example, literacy level test is available from the website which anyone can test his/her level. (NCIEDT,2014).

The needs of urban and rural populations are different according to the random sample study of 35,315 people in Ulaanbaatar and 53,400 people in 20 aimags in rural areas (NCLE, 2016). From this study, the topics of health care (48.4%) and legal (40.7%) trainings are most needed in urban areas, however literacy skills (9.8%), wood crafts (5.0%) and crafts (4.9%) were not so needed as such (Figure 36).

Figure 32. LE need of people of Ulaanbaatar (NCLE, 2014)

25 Not working due to technical renewal

However, in the rural areas, the knowledge of legal (32.3%), traditional customs (29.8%) and financial expenditure (26.3%) knowledge is the most needed in rural areas (Figure 37).

Figure 33. LE need in rural area (NCLE, 2016)

Source: NCLE data, 2019

Interestingly, urban people have been increasingly aware of health education, while in rural areas this is ranked after literacy (17.3%). This is likely to have two sides. First, rural living conditions are healthy, illness is relatively uncommon, and secondly, urban residents are more concerned with health issues than in rural areas and they have good information about them. In general, it appears that there is a need to improve the legal, financial and health knowledge. On the other hand, the need for LE services in the rural population is much higher than the urban population, which shows the need to increase the capacity of rural LE centers, capacity building of teachers, diversification of training varieties and training materials.

2.4 Lifelong Education service monitoring and analysis MECS and NCLE are monitoring and evaluating LE center activities based on data and reports of the trainings organized in rural areas. LE center in the soum collects information and sends it to aimag level with word or excel file, then from aimags it is sent to NCLE, NCLE further sends information to MECS. Information on employees of NCLE center, type of trainings organized by the Center and the number of trainees were provided to the Department of Information, Monitoring and Evaluation Department with the Administrative statistics information form. On the one hand, there is a need for more detailed information on the direction of the training, reporting to higher authorities, and the formulation of LE operational programs, plans and projects, and further it is insufficient to control over the implementation of CBN activities. On the other hand, there are difficulties, such as indicators from local area is not fully developed, information collected in different time period is different and unrealistic in each level. Therefore, UNICEF has developed a database of the NFE (formerly) integrated database in 2009 and used software to register 10 batches of data in Mongolian and English, which was then transferred to the Integrated Fund of the Ministry of Education, Culture and Science.

2.5 Conclusion Advantages and disadvantages

With the creation of the LE system, new forms of education services have established for people outside of the school and "abandoned communities", and adults who couldn’t finish school at school age, others who would like to level up their education without leaving workplace or home. New way of education services has opened for adults to meet their education need without going to school in their spare time. NFE's Enlightenment Centers (formerly) training played an important role to decrease drop-outs and illiterates rate which are caused by 1990s economical crisis.

Collaboration and partnerships between citizens and organizations at international and national levels: Improved access to LE, staffing and resource-building are the results of the collaboration of UNESCO, UNICEF, ILO and other international organizations in the CTO.

The teacher and student communication has developed into new level. The benefits of LE services gave opportunity to "learn without a teacher", learn by self, and use the knowledge in their real life setting. For instance, livelihood-based programs play an important role in raising their level of education by increasing their income and establishing a small business, as well as training their own health and improving their legal knowledge.

Problems

Training of literacy and primary and upper secondary education equivalency programs were more focused on LE activities, and Master Plan targets, such as other services for the 15 year old and above were been left out. In other words, the basic target group of LE training should be non-school-aged children, but adults aged 15 and over, and LE service should focus on adult learning.

Accessibility and organization of the adult literacy training is inadequate and funding is unclear. On the other hand, decision-makers and schools and local authorities are less focused on adult literacy. We have been adhered to the literacy census (97.8 percent) of the population based on the 2000 census and it led to an ease of the attention to the area.

The equivalency program of primary, basic and upper secondary education remains open to anyone who wishes to reimburse the level of education, but society still considers equivalency training as a training for only drop outs and disabled. Examples of this is: Government Resolution # 4 of 2017 states that education delivery to children with disability and severe disabilities is provided through NCLE but there is no mechanism for coordinating and managing them, financial resourcing is still unclear, therefore the implementation of the resolution is impossible.

LE services are mainly targeted at urban dwellers and can not reach rural populations living in remote areas. This is a sign of poor management and coordination. Because of the lack of educational services based on local and trainees’ needs, the centers can’t disseminate information, helping people, and continuing education environments as much.

In the 1990s, school drop-outs were now adults who had been active in social life, but the education level was low, affecting their lives and affecting their children. Furthermore, the education level of young men, who should have become an age to have already established social and economic status, is still low in people who have transferred and lower living standards. This is one of the reasons for focusing LE services to adult education.

Conclusion with the international countries

Adult education-oriented lifelong educational services is taking a lot of attention in developed countries. For example, Korea established the "National Institute for Lifelong Education26" in 2008, and it has been implementing programs such as literacy, multiculturalism, parent education, and "city with the knowledge".

Japanese lifelong education service is a comprehensive educational activity under the name of "Social Education"27. These are non-formal education services and are also part of the local administrative sub- offices called "Cominaken", which include voluntary activities covering public libraries, museums, various groups, bands and clubs. These are the same environments as schools with the classroom teaching, and teacher training, as well as other forms of schooling such as teaching to each others.

Participants in this form of education vary in age (children, youth, adults and the elderly), mixed groups (children and adults) (Arai, Yo & Fusa, T, 2009). Social education is linked to home education and schools. Therefore, it is important to study the activities and target groups of Japan and Korea and focus

26 National Institute for Lifelong Learning-NILE: http://eng.nile.or.kr/eng/ 27 Social Education

on improving access to this subsystem, which are largely based on good practice in the LE sector of Korea and Japan.

Because of the trend of rising birth rate in Mongolia, economically active women are likely to get distant from school and work, so there is a need for an open training system to increase the variety of lifelong education services (online etc.) for them .

In international practice, the level of literacy is not just about writing, reading, and counting but how to apply these skills in their lives and decisions. Therefore, the census of 2020 requires the establishment of a literacy level not by "oral responses" rather by "international standards" and should be specifically tailored to national specifics.

CHAPTER THREE: LIFELONG EDUCATION QUALITY, EFFICIENCY AND SYSTEMATIC CAPABILITY

3.1. Evaluation of the trainees In the scope of equivalency trainings in elementary, basic and complete secondary education of LE, the evaluation of the trainee is assessed by whether the trainee has studied through the curriculum and met the standard requirement. In other words, the number of students who have received primary, basic, and secondary education certificates and advanced to the next level classes is the achievement of their achievement. However, it may seem to unrealistic to evaluate the achievement of the trainees for improving general education by the impact on the student's life and the level of satisfaction, but at present it is not possible to choose a different assessment method. On the other hand, short-term training can not be assessed as a long-term education special education standard. Some special features which can affect the evaluation of the quality of the LE include: (а) attendance purpose is not only getting the certificate; (б) LE target group is people who have been away from school education for long term; (в) duration of the training is short. In order to improve LE service quality in the future, it is necessary to improve training environment, service accessibility and human resource capacity at all levels of LE.

3.2. Teacher’s capacity and management Teacher, human resource, education level. As of 2018, 630 people work in 354 centers in the country, of which 488 are women and 142 are male. Of these, 499 are teachers and administration have 59 staff (of whom 23 are directors, 22 are training managers, 14 are social workers) and 72 are others (Figure 38). Of the 494 teachers, 98.9% have a university degree, 1 doctorate, 77 master's degree, 478 bachelor's degree, and 30 teachers have diploma degree (NCLE, 2018).

TABLE 15. LE sector human resource (2014-2019) Total End of the Management Багш Бусад numbe year r Aimag District Aimag District Aimag District 2014 561 36 28 372 72 21 32 2015 569 36 26 376 76 20 35 2016 585 34 27 391 72 18 33 2017 605 34 28 405 73 25 40 2018 630 34 26 423 76 24 47

Source: NCLE data, 2019

Figure 34. NCLE sector human resource structure

Teacher 72 23 Others 59 Director 22 499 Training manager 14 Social worker

Resource: NCLE data, 2019

Since 2013, MNUE has opened the "Teacher, lifelong education" program and 6 teachers have graduated in 2018 with a professional diploma. As of the 2018-2019 academic year, there are 45 students studying in this program 3 classes. By looking at the following data, 131 (38%) of the 342 Enlightenment centers in the country in 2004, and 220 (58.69%) out of 375 centers in 2008 had full-time teachers, it can be concluded that human resources in the LE sector have improved. However, "NFE teacher's job descriptions", which was approved in 2003, is still been used in the job description of LE teacher.

Teacher’s salary and social security. LE education teacher’s salary is generally the same as those of secondary school teachers depending on the employment years, but there are no incentives such as class teacher and marking of students’ notebook. According to the Order of the Minister of Labor and Social Welfare in 2018, "Change of Classification of Occupation and Definition No 08" (MLSP, 2018), the term "Lifelong Education Teacher, Social Worker, Manager and Director" has included in the state service salary system and it improved social issues of the LE teachers. However, as of 2018, 66.8% of the 630 people working in LE sector are working for 1-5 years, 20.1% for 6-10 years, and only 8.8% has worked for more than 11 years (Table 18, Figure 39).

TABLE 16. LE teachers and staff years of work in LE sector

years years

years

year

years years years years years years years years

15 15 20 25

1 1

- - -

2 2 3 4 5 6 7 8 9

10 10

More than

11 16 21 Director 7 2 2 5 1 2 - - - - - 4 - - Training manager 4 2 1 2 2 1 - 2 2 1 3 2 - - Social worker 4 3 3 2 1 1 ------Teacher 116 76 63 63 42 23 28 23 14 15 29 6 1 - Total 131 83 69 72 46 27 28 25 16 16 32 12 1 - Source: NCLE, 2019

As a result, the stability of LE teachers is insufficient. This is due to many factors, such as working conditions (environment, material base, vehicles for transportation to home trainings, etc.), social welfare, management, public assistance and weak support.

Figure 35. LE sector human resource, by employment years, 2019

421

127 38 23 16 2 3

First 1-5 6-10 11-15 16-20 21-25 More year years years years years years than 26 years

Source: NCLE data, 2019

Teacher preparation, re-preparation and improvement system. Teachers of the 1, 5, and 10th year of working at the LE Center are currently undergoing professional development training. If it is not counted, there is no specific system for profesional development trainings for LE teachers in Mongolia. In other words, the budget for education of LE teachers has not been allocated yet. The NCLE provides short-term training for LE center teachers with the support of variety of projects and programs. In total, 2402 teachers have been trained in LE Basic programs, Equivalency Programs, Equalization and Human Resource Capacity Building in 2014-2018 (Appendix 9) (NCLE, 2019).

3.3. Capacity and management of other sources LE training curriculum. In 2001, MECS developed "Elementary and Basic Education Equivalency Program", and in the scope of "Elementary and Basic Education Standards Development Project" in 2001- 2003, development of "Elementary and Basic Education Equivalency Standards" has become normative document in providing reimbursement education and it has been a great boost to the next step. Within the framework of this program, 7 sets of textbooks for the Equivalency Program's of General Education schools (Natural Sciences, Social Sciences, Mongolian Language, Foreign Languages (Russian, English), Drawings, Technical Work) have developed and tested in 2001. Then these textbooks were printed 1000 copies each with the financial support of ILO’s IPEC program and distributed to “Enlightenment” centers throughout the country and have been used in trainings.

TABLE 17. Implemented programs in LE subsectors

№ Year Program name Approvals Primary, basic and complete Attachment 1 of Order 387 of Minister of Education, 1 2005 secondary education equivalency Culture and Science, Dated 08 December 2005 training program Literacy training program based on Attachment 3 of Order 556 of Minister of Education, 2 2010 life skills Culture and Science, Dated 10 December 2010 3 2010 Mixed group training program Attachment 3 of Order 556 of Minister of Education, Culture and Science, Dated 10 December 2010 Non-formal education life skills Attachment 4 of Order 556 of Minister of Education, 4 2010 training program Culture and Science, Dated 10 December 2010 Non-formal education health Attachment 5 of Order 556 of Minister of Education, 5 2010 training program Culture and Science, Dated 10 December 2010 Non-formal education and adult Attachment 6 of Order 556 of Minister of Education, 6 2010 education teacher preparation Culture and Science, Dated 10 December 2010 program “Lifelong education” training batch 5 mainstreams of the program have been developed by 7 2014 Institute of Education and sent to MECS. However it program hasn’t been approved yet.

For implementation of the objectives of the Education Sector Master Plan (2006-2015), “Primary, Basic and Secondary Education Equivalency training curriculum” is developed by National Center for Non- formal Education and Distance Learning and approved by the Minister of Education, Culture and Science in the Order #387 dated in 2005. Unlike previous programs, it is 1) based on comprehensive competence in education standards; 2) has modular structure based on the Asia-Pacific region experience of the Philippines; (3) added “complete secondary education” level according to the increased age of the enrollment in the equivalency program; And 4) the development of methodology based on the every day life needs of the learners. For example, the topic of the program is based on the methodology that

distinguishes from the secondary education and attracts learner’s needs such as "Business calculations" (providing mathematical and financial education) and "Character of the Sky" (weather).

In 2010, the Minister of Education, Culture and Science issued a number of training programs (life skills based literacy training, mixed group training, NFE life skills training, NFE health education, NFE and adult education trainer training) and they are still valid (TABLE 19).

These programs are being used for various training based on the needs of the learners, educational level, age characteristics, training institutions and local resources, but evaluation of the training quality is unavailable, as well as funding, local and administrative support are still uneven and questionable.

In 2013, Order A / 242 of the Ministry of Education, Culture and Science approved the five areas of LE 5 (family, civic, moral maturity, life science, and aesthetic education) and formulated the content as follows:

- Family education: This is directed for everyone to plan a family, keeping their children’s physical and mental health, to create a safe environment for their children, to rationalize the problems of the family, to keep their gene pools clean, and to fulfill the duties in front of their relatives and their families. - Civil education: Each person is equally able to combine traditional and civil society values, participate in diverse social relations with equal rights, and to acquire the necessary capacity to live independently and dependently in the scope of ecology, economics, politics and law. - Ethical education: Each individual needs to be able to identify the meaning of life, in order to define future life goals and improve quality of life, they should develop talents, choose profession, cultivate health, communicate, moral maturity, avoid being misbehaved, have a solid standing in society. - Life skill education: This area focuses on each individual’s skills to keep a pace with social development, development of physical, intellectual status and talent, continuous career development, acquiring literacy and other vocation professionalism through equivalency training, day-to-day skills to improve financial conditions. - Esthetic education: Each person should be well-acquainted with the nature and society connection and beauty, reflects on this imagination and feeling in human-environmental and human-social relations and through the use of any artistic works to share the value and worth of human existence. But curriculum of these studies weren’t approved, so “Life skill training curriculum” approved in 2010 is still in use.

Training materials, need and supply. Unlike secondary schools, different types of teaching materials can be used in the LE sector and should be adapted and open to the needs of the students. There are three main types of training materials available in LE centers, including (A) primary and intermediate level 3 literary textbooks (Bilgiin nud-Talent eyes 1, 2, 3); more than 10 literacy books which can be used after literacy trainings b) 150 modules of 3 levels of education under the "Primary, Basic, and Complete Secondary Education Equivalency Program" approved in 2007; 3) Guidebooks and materials on health, sustainable development, environment and household income improvement generated by the "Lifelong Training Curriculum" (approved in 2010).

Table 18. Lifelong education training material supply, 2019 № Area Types

1 Literacy and post literacy 140 2 Equivalency program 157 3 Theory and methodology 41 4 Research, report and pamphlet 16 5 Video, CD, DVD material 19 Total 373

Figure 36. Training resources, supply of the materials in LE centers Type of training materials developed and used by the NCLE is as follows: - Theory, methodology textbooks and manuals -16 - Guidelines for research – 13 - Literacy and post-literacy, distance learning manuals and textbooks – 118 - Equivalency training textbooks – 9; Equivalency training modules – 138 - Audio lessons (14 types, serial lessons) -1398 min, Video lessons (39 types) - 944 min, Distance learning tele classes (50 types) – 1430 min - Documentaries (7) – 158 min CD, DVD (Literacy 4 textbooks, post-literacy 8 manuals, life skills 5 manuals, distance learning 17 textbooks, life skills 5 videos and equivalency training 5 videos, health 5 manuals, life skill manuals 6) – 5 - Literacy beginner’s, intermediate and advanced level textbooks (Bilgiin nud-Talent eyes 1, 2, 3) and post-literacy 14 serial manuals (Life needs - Healthy foods are important than medicine - Your mind – Look from yourself instead of asking others - You're your lawyer – The better the herder, the healthier the herd – (“Uur bieiig” ... - The benefits of the birds – Pieced item - The bird-cherry tree is blooming - The Wool is white gold- Wool Crafting – Grant confidence to your child - Your meal)

As of 2019, lifelong education 354 centers across the country use 90,414 pieces of 373 types of 5 course training materials. Of these, the dominant component is the training module for the equivalency program (42%), beginners, intermediate and advanced level literacy training materials (38%) and video, DVD, and DVD materials are inadequate and are constituting only 5% (Table 20, Figure 40).

One example of inadequate supply and delivery of training materials in the LE sector is that the equivalency training module per center is only 1-2 pieces meaning 15-25 learners will use 1 module. Moreover, the textbooks and modules most widely distributed during 2007-2011 and there has been no supply of training material except for a limited number of modules published since then.

Training materials are developed and used according to the specific needs of aimag and local status. As of 2014, over 200 materials were produced in the provinces and provinces. Examples include "Buryat boots" at Dornod aimag, "Wooden crafts" in Selenge aimag, "Stitched felt rug", "Crooked boots" at Sukhbaatar aimag, "Wood carvings" at Orkhon aimag, and those all published according to the trainees’ needs (NCNFEDL, 2014) (АББЗСҮТ, 2014).

Training environment and accommodation conditions. LE centers are located in various places, such as the Education and Cultural Department, the soum governor's office, and the general education school. In the early 1990s, due to increased drop-out and illiteracy rate, NFE's Enlightenment Centers were established and 87.5 percent were based on schools. It was a good idea to organize literacy and education re-training, it provided some advantages including funding of the teacher’s salaries from state, involvement of secondary school teachers in equivalency trainings, use of school classrooms, trainng

students in school environment. However, due to the changes in the target group and the social mentality, this form was not appropriate and there was a need to have separate accommodation.

As of 2018, there are total 29 centers in Ulaanbaatar and aimag centers, 4 have their own buildings (3 in Ulaanbaatar, 1 in rural areas), 6 rents premises, 11 are located in school buildings, 4 in Education, Culture and Art department, and 4 in other premises which is not adequate indicator (TABLE 21).

TABLE 19. LE center accomodation types located in Aimag centers and districts of Ulaanbaatar

№ Aimag center and Own Doesn’t have own building Others districts building Rental Located at Located at school ECAC 1 Baganuur - Welfare office 2 Bayangol 1 3 Bayanzurkh - 1 4 Chilgeltei 1 5 Khan-Uul - Landscaping service company 6 Nalaikh - 1 7 Songinokhairkhan - 1 8 Sukhbaatar 1 Subtotal 3 1 2 0 2 9 Arkhangai 1 10 Bayankhongor - 1 11 Bayan-Ulgii - Governor’s office 12 Bulgan - 1 13 Darkhan-Uul - Old building of Labor and Welfare Service 14 Dornod - 1 15 Dornogovi - 1 16 Dundgovi - 1 17 Govi-Altai - 1 - 18 Govisumber - 1 19 Khentii - 1 - 20 Khovd - 1 21 Khuvsgul - 1 22 Orkhon - 1 - 23 Selenge - 1 24 Sukhbaatar - 1 25 Tuv - 1 26 Umnugovi - 1 27 Uvs - 1 28 Uvurkhangai - 1 29 Zavkhan - 1 Subtotal 1 5 9 4 2 Total 4 6 11 4 4 *Source: NCLE report 2018

Four of the local LE centers have their own buildings, others are renting and at the School and the ECA offices (NCLE, 2018) (NCLE, 2018). According to this, LE centers can not afford to have multiple

courses, and more than 60 percent of accommodations do not meet hygienic requirements, desk chairs are insufficient, non-standard and non-ergonomic to learner's body and adult age. The capacity of the training room is 20 persons per person, which is reasonable for the soum center, but there is a need to increase the availability of classroom facilities in crowded settlements.

Training materials and classrooms. As of 2018, 354 centers use 208 laptops, 239 computer desktops, color printers 63, black printers 102, 32 televisions, 80 cameras, 3 video players, 3 projectors and sewing machines 25 and unequal distribution is influenced by local government support, understanding and stability (TABLE 22). It is clear from this that LE centers are not equipped to meet the learning needs of different age groups and different target groups. For example, equipment for leather wool crafting in rural area and cooking and baking in urban area is not available in LE centers which affects quality of the services.

In the regulation for equivalency training, it is set that classroom training should accommodate more than 15, home-based training should accommodate more than 10 trainees. Looking at the student number in one classroom, it is 15-20 in rural areas and 20-25 in urban areas. Even though it seems the burden of LE teaching is relatively simple compared to the secondary school. However in reality, there is a mix of students with different levels of education, age, and mentality, and therefore it requires a unique methodology and specific approach for the teacher to each student.

TABLE 20. Aimag, district LE center’s material base study

№ Aimag and district Computer Printer

Sewing

Camera

machine

Color

Projector

Black

Laptop Desktop Video player 1 Baganuur 7 15 1 5 1 5 2 2 Bayangol 3 8 1 4 2 3 2 2 3 Bayanzurkh 1 3 1 4 Chingeltei 1 10 2 1 1 2 5 Khan-Uul 6 26 4 2 2 6 Nalaikh 7 15 1 5 2 14 4 7 Songinokhairkhan 12 12 3 4 1 2 2 8 Sukhbaatar 4 4 1 2 1 2 Subtotal 41 93 11 24 8 24 3 17 9 Arkhangai 21 9 5 5 2 2 10 Bayankhongor 3 2 3 2 11 Bayan-Ulgii 2 4 4 2 1 2 12 Bulgan 16 4 2 1 13 Darkhan-Uul 6 5 2 4 2 10 1 2 14 Dornod 8 5 3 15 Dornogovi 2 5 5 1 16 Dundgovi 10 7 5 4 1 1 17 Govi-Altai 1 18 Govisumber 1 19 Khentii 3 3 1 1 20 Khovd 22 13 1 6 4 5 8 5 21 Khuvsgul 24 24 24 24 22 Orkhon 7 19 1 8 2 3 7

23 Selenge 24 7 6 15 8 1 5 1 24 Sukhbaatar 3 7 1 2 1 2 25 Tuv 26 Umnugovi 18 4 1 2 1 3 1 27 Uvs 3 1 1 1 1 28 Uvurkhangai 4 3 3 1 29 Zavkhan 18 10 10 1 1 10 7 Subtotal 167 146 52 78 24 56 38 25 TOTAL 208 239 63 102 32 80 3 55 25 Source: NCLE report 2018

LE sector funding. From the establishment of the LE system in 2003, the sector was funded primarily by UNESCO's "Learning for Life" project. In 2003, the definition of a LE job vacancy was granted by the state budget, but it was not enough. According to the 2006 amendments to the Education Law, the variable costs paid for the equivalency program in 2007 were spent on teacher salaries and social insurance taxes. This is a very low amount compared to 2006 Education Sector Master Plan which stated to increase the funding of NCNFEDL and local LE Enlightenment Centers by 8% annually.

TABLE 21. LE funding, 1997-2017 State budget (mil tug) International projects and Year National center programs funding (mil Total (mil tug) LE local centers of LE tug)

1997 30.0 - - 30.0 1998 58.0 - - 58.0 1999 111.0 - - 111.0 2000 103.0 - - 103.0 2001 146.0 - - 146.0 2002 190.0 - - 190.0 2003 219.0 - - 219.0 2004 152.8 21.6 5.5 179.9 2005 306.7 40.9 48.0 395.6 2006 290.7 57.9 80.0 428.6 2007 1,900.9 47.9 83.5 2,032.3 2008 1,301.6 78.0 43.4 1,423.0 2009 1,909.2 70.0 286.1 2,265.3 2010 2,501.4 105.0 236.9 2,843.3 2011 3,365.7 96.6 324.8 3,787.1 2012 3,480.5 124.6 140.6 3,745.7 2013 3,412.1 129.9 108.4 3,650.4 2014 3,777.0 167.6 193.3 4,137.9 2015 3,361.2 146.0 177.4 3,684.6 2016 4,110.8 142.5 467.0 4,720.3 2017 3,393.2 180.3 68.6 3,642.1 Нийт 34,120.8 1,408.8 2,263.5 37,793.1 Source: NCLE data, 2019

"The Education and Training Strategy for the Non-formal and Adult Education" section of the Education Sector Master Plan describes financial activities, such as defining financial policy, monitoring

expenditure and results, as a way and a strategy to implement objectives. According to this section and as defined in the Law on Education, the government will allocate variable costs for the equivalency program to elementary and secondary education, and furthermore the norms for calculating the variable cost of the trainee will be determined by Government Resolution 294, and Joint Order No. 307/236 dated in 2007 of Minister of Education, Culture and Science, and Minister of Finance . The variable cost coefficient of salary and social insurance premiums to train students is 0.7 and other variable cost coefficients are 0.5. In addition to the equivalency program costs, NCLE expenditure is included in the cost of centralized education in the education sector.

According to Article 39.6 of the “Law on Education”, it is stated that the provision of primary, basic and complete secondary education by evening, correspondence and non-formal way shall be financed by the state and local government, as well as it is stated in the contact for supple between aimag and capital Governors and Minister of Education, Culture and Science. However, in reality, spending on non-formal education services has not been common in the local budget.

In total, 13,145.2 mln tugrugs were spent on LE sector between the years of 2002 and 2007 and the cost of the equivalency program (9,495.7 mln.tog) was comprised most of the expenditure (TABLE 24). But this is not spent for the sector activities, but only for the employees' salaries.

TABLE 22. Expenditure on LE in national level (2002-2012) Capital expenditure (mln tug) State budget National Activity Center for Academic Variable costs expenditure Non formal Projects and year of Total Literacy on Non- education, programs equivalency Formal distance program education learning expenditure 2002-2003 0 0 52,8 22 8,5 83,3 2004-2005 0 0 52,8 16 24 92,8 2005-2006 0 0 273,75 25 110 408,75 2006-2007 0 0 262,5 25 72 359,5 2007-2008 1, 599,7 53 248,25 479 116,7 2496,65 2008-2009 1, 204,9 0 96,7 75,7 65 1442,3 2009-2010 1, 590,9 0 318,3 51 55 2015,2 2010-2011 2, 118,8 34,6 348 84,5 50 2635,9 2011-2012 2, 981,4 43,1 341,2 90,3 207,6 3663,6 Total 9, 495,7 130,7 1, 941,5 868,5 708,8 13, 145,2 Source: NCLE data, 2019

The state budget financing accounted for 81-98 percent of the total expenditure spent since 2004 for the development of the LE system in Mongolia (Figure 40).

Figure 37. Comparison of financing of NCLE and nationwide LE sector (2004-2017)

5000 142.5 4500 467 167.6 4000 96.6 124.6 193.3 129.9 146 180.3 140.6 3500 324.8 108.4 177.4 68.6 3000

2500 70 105 47.9 286.1

2000 83.5 236.9

4110.8 3777

millioin millioin MNT 78

3480.5 3412.1

1500 3393.2 3365.7 43.4 3361.2

1000

1909.2 1909.2 500 40.9 57.9 1900.9 21.6 48 80 1301.6

5.5 306.7

0 290.7 52.8 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

НТБҮТ-ийн Улсын төсвийн санхүүжилт /сая,төг/ ОУБ-ын төсөл, хөтөлбөрийн санхүүжилт /сая, төг/ Үндэсний хэмжээнд Насан туршийн боловсролд зориулсан төсөв /сая, төг/

Source: NCLE data, 2019

There is no significant change in the amount of money allocated to the equivalency program, which is the main source of financing for LE, and it is an average of 3.0-3.5 billion MNT per year (Figure 41).

4500

4000 Figure 38. Financing of the 3500 equivalency training (mln tug 3000

2500 National Center 2000 for LE financing. 1500 Financing of the 1000 NCLE consists of funding from the 500 state budget, the 0 projects and 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 programs. State budget is spent on fixed and variable costs of an organization, so they do not provide operating expenses, such as training materials. Therefore, developing human resources capacity, developing handbooks, textbooks, audio and video materials is done through the implementation of projects and programs supported by international organizations.

The proportion of state budget financing for NCLE is continously increasing, however inconsistent funding of international projects and program is due to the center’s project development to UNESCO, UNICEF, United Nations Population Agencies, and whether the project is approved (Figure 43). From

this point it is clear that the center's operations are in risk if not implementing foreign and domestic projects and programs.

TABLE 23. National Center for LE financing (2006-2018)

Percentage of From state Financing from Percentage of increase increase or decrease Year budget international projects and or decrease compared compared to the (mln tug) programs (mil tug) to the previous year previous year 2006 76.4 100.0 80.0 100.0 2007 50.0 -34.6 83.5 4.4 2008 112.3 124.6 43.4 -48.0 2009 73.9 -34.2 286.1 559.2 2010 119.1 61.1 236.9 -17.2 2011 137.5 15.4 324.8 37.1 2012 170.8 24.2 140.6 -56.7 2013 173.4 1.5 108.4 -22.9 2014 194.5 12.1 193.3 78.3 2015 187.2 -3.8 177.4 -8.2 2016 189.2 1.0 467.0 163.2 2017 180.4 -4.7 132.6 -252.1 2018 187.2 3.7 60.2 -120.2

Figure 39. NCLE financing (2006-2018)

500

450

400 350 300 250

Сая Сая төг 200 150 100 50 0 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 он Source: NCLE data, Улсын төсөв ОУБ-ын төсөл, хөтөлбөр 2019

TABLE 24. NCLE employee’s salary fund, as of 2019

Incentive Positi Yearly Position for Transportatio Monthly № Position on Base salary Incentive amount of number double n and meal amount level 2019 position

1 Director 1 ТҮ-12 84,000 922,058 184,412 1,190,470 14,285,635

2 Accountant 1 ТҮ-8 84,000 738,589 110,788 933,377 11,200,528

3 Specialists 8 ТҮ-8 84,000 738,589 110,788 7,467,019 89,604,226 Publication 4 1 ТҮ-7 84,000 technician 709,704 106,456 900,160 10,801,915

5 Studio director 1 ТҮ-7 84,000 709,704 106,456 900,160 10,801,915 Human resource 6 1 ТҮ-7 96,293 84,000 and clerk 641,951 256,780 1,079,024 12,948,284

Total 13 1,092,000 12,470,20 9,457,408 221,576 475,646 149,642,503 9 Source: NCLE data, 2019

Financing from international projects and programs. Financing for LE service and International Development Agencies is funded through a program of cooperation between Representative Offices in Mongolia, the Government of Mongolia and UN agencies, and all of which are non-repayable grants. Since 2004, a total of 2,263.9 million MNT projects have been implemented by the LE Center in collaboration with international organizations and funding has largely spent on developing and distributing training materials and capacity building for the sector.

In particular, the monk children, vulnerable groups and drop out herder children trainings were funded which contributed to equility and non-discrimination. More than 30 projects have been implemented over 20 years, of which four are from the STF28, others were from UNESCO, UNFPA, UNFPA, and IEC and IPEC programs, including Asia-Pacific Cultural Center for UNESCO (ACCU) and Japan Child Protection Fund and joint projects of World Vision International Representative Office in Mongolia. For example, the UNICEF funded 1,334,701,855.9 MNT during 2008-2018, and most of them were spent on equivalency trainings for school age monks in churches (Figure 44).

Figure 40. UNICEF funding (2006-2018) 300,000,000.0

250,000,000.0

200,000,000.0

150,000,000.0

100,000,000.0

Mongolian Mongolian Tugrik 50,000,000.0

- 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 он

Source: NCLE data, 2019

28 ШУТС-ийн төслүүд: Насанд хүрэгчдийн боловсролыг дээшлүүлэхэд зайны сургалтыг ашиглах онол, арга зүй (1998-1999), Нээлттэй сургалтын онол, арга зүй (2002), Албан ба АББ-д зайны сургалтыг хэрэглэх туршилт-судалгаа (2003-2004),

Since 2013, projects aimed at integrating the concept of sustainable development into a LE framework have been implemented with the support from the Swiss Agency for Development and The Luxemburg Government . Within the national organizations, the Bank of Mongolia and the Ministry of Finance are implementing a series of public financial education programs and published manuals. In conclusion, the above mentioned projects and programs have played a key role in the development of human resource and training resources in NFE and LE sectors. For more information about the projects implemented during 1997-2018, please see Appendix 3.

3.4. Conclusion Advantages and disadvantages

At the national and local levels, adequate personnel are trained which affected improvement of human resource capacity. As of 2018, there are 630 people in the LE sector, 23 directors, 23 training managers, 14 social workers, 499 teachers and 71 assistants. Starting from 2015, MNUE opens "Teacher - Lifelong Education" course with 6 students and in 2018, there are 45 students studying 1-3 courses. However, this does not necessarily mean that the specific training for LE staff preparation has not been fully formed, and currently there are over 500 faculty members in the industry who have been involved in various training courses and many years of experience in this area. It can be assumed that the capacity building system is commenced.

Compared to the Asia-Pacific countries, the standard of education of Mongolian LE sector teacher’s education is higher and is the same as those of high school teachers. However, there are no specialized selections for the LE Center teachers, and it has been employing only after considering general capacity and school completion.

The start of distance learning and open education. The introduction of audio and video lessons into non- formal training has changed the old concept of radio and television as only media. Internet-based and online trainings are still missing in this field, but printed and audio, video and CD training materials have been introduced and been in use.

The content of the training have started forming and kept improving: it is evident from the establishment of many new programs, such as literacy and post literacy, equivalency training programs, life skills training, health education, sustainable development education, and mixed group training. These programs are a guiding example of training organized by the LE Center.

There are many different approaches to LE teaching methodology, but the mixed group methodology that began in 2004 is common and unique in this field. Manuals and materials for LE mixed group trainers have been developed and more than 60 percent of them have obtained a certificate of this type of training.

The training materials and manuals supplies have been improved and a training base was developed to match the needs of different age groups and different groups. As of 2018, 200 national books, manuals and training materials are used in LE centers.

Steps to link governmental and non-governmental organizations: Non-governmental organizations in the LE area are working with NCLE and local LE centers, training their teachers in the national level capacity- builduing trainings, and using literacy, equivalency, life-skill, health non-formal training materials.

Impact on improving educational application level. NFE training materials are more focused on providing competency-based and capacity-building capabilities, trainees can choose based on the needs, so that knowledge and capacity application level are improved. Training materials and facilities can be chosen by the trainees based on their needs, which enables an opportunity not only obtain theoretical knowledge, but also use the knowledge in the real life. which can be used to tailor the needs of learners to increasing levels of knowledge and skills.

The financial environment has been properly established: The funding from the state budget to the LE sector is still less than 0.5 percent of the education expenditure, but it is significant improvement compared to the early periods which there was no support from international organizations. Since 2003, the LE teacher salaries have been allocated. In 2008, not only the trainees’ variable costs were paid for the equivalency program by law, but also budget for other LE sector activities has been allocated.

The database work has started: Data related to the LE training and coverage is included in the official statistics of MECS since 2005, as well as the NCNFEDL (formerly) database is transferred to the ministry database.

Difficulties

Due to LE poor value, understanding, working conditions and training environment, teachers stability in the sector is negatively affected. For instance, 81.7 percent of 500 faculty teachers in LE education sector have worked for 2-5 years, but only 12 of them have been working for more than 15 years. This has led to the reputation of the industry, implying that anyone can work in the industry easily, and affecting the quality of service. In one hand, teachers in LE sector aren’t prepared specifically for the sector and they haven’t trained in adult education methodology, as well as teachers graduated with other subjects usually work temporarily due to no vacant position in secondary schools. In another hand, lack of public awareness about LE sector and assumption of LE as training for disabled or disadvantaged people negatively affect stability of the teachers, even some teachers who had re-trained are constantly changing.

There is almost no mentioning of LE except few topics in the professional teaching curriculum. Capacity- building trainings are organized by NCLE however it is hugely dependent on foreign organization financing, which shows that it is not proper way to continue.

Misunderstandings about LE sector are common, for examples understanding of LE sector as short-term, only for implementation of some projects and programs, and inconsistent activity, assuming NFE teachers as project staff, considering normative expenditures in equivalency training as basic financing of the sector and teachers’ salary. It can be concluded that this attitude has been a barrier for LE sector to become fully independent and institutionalized in structure and financing like pre-school, primary, secondary, vocational and higher education institutions.

Some LE training programs are outdated and quality training materials are rare, as well as programs and curriculum are not compliant with employers' requirements, limited practice opportunity through LE training and limited employment opportunity for graduates. Knowledge, skills and services that meet the needs of the labor market and the benefits of the service today are weak.

Supply for supporting population livelihoods and increasing income LE training is not enough and have not been delivered in recent years. Because of the lack of funding from the state budget for training and

preparation of LE training materials, the above-mentioned equivalency training modules and other training materials were only limited by the support of international projects, and the Ministry of Education, Culture and Science (MECS) pays attention to secondary school textbooks, and LE sector has not been their focus sector. This situation can be changed if training materials and equipment are supplied to the LE centers, and improvement of the teachers’ capacity for preparation of the training materials adapted to the needs of the population. For example, training materials designed to increase household income, through animal wool product making and canning of the vegetables, can be developed and used for female housekeeping training.

There is a need to increase the availability and types of LE training and supply of various training materials. For example, training programs and materials for health education are intended to promote healthy lifestyle habits, which can reduce the risk, prevent illness, and create healthy living conditions.

The LE information system is not yet fully developed and the methodology for obtaining information is not clear, from the primary unit to the upper management haven’t learned methodology for collecting,processing of data, and incorporating them into future operations. According to this study, only information collected by the LE teachers is the source of information and data. Therefore, it is necessary to establish an accurate information system to improve management, plan, organize and execute activities.

If we consider supply of enough textbooks and training materials is one of the key pillars to increase the quality of education and learning outcomes, we could conclude that the quality of LE training is insufficient.

On the other hand, depending on age and needs of learners, different types and forms of textbooks and manuals are required. Teachers develop manuals and training materials at the local level accordingly, but they lack of equipment, lack of human resources and lack of funding for preparation of the training materials. Therefore, there is a need to strengthen the capacity of teachers in addition to funding.

There is inadequate linkages between formal and non-formal education, and they evaluate LE success only by completion of basic and complete secondary education exams with equivalency training, suggesting system of evaluation of LE system is still immature.

It is possible to solve the incompleteness of premises, human and material base through cross-sectoral coordination. For example, integrating independent facilities, such as the Cultural Center, the Youth Development Center and the Elders' Development Center, under one management, and using museums and libraries as LE service provider could be the ways to solve.

The book "Informal and Adult Education: Theory and Methodology" was published in 2010 by the National Center for Non-Formal Education and Distant Learning and there is only one chapter about andrology or adult education methodology. Despite this, there has been no methodology study in the LE sector, no mechanism to widen and support research on the characteristics of adult learning and andrology.

At any level of LE, no operational expenditure is allocated to the budget; there are no financial mechanisms to support training other than the variable costs of equivalence programs, with the support of international projects and programs. It is relevant from the allocation of budget to LE sector which is less than 0.5% of the total education sector budget.

Currently, only literacy and equivalency programs have been assessed by the secondary school evaluation system, and activities are limited to transferring pupils to schools, and having them tested in the graduation tests. same kind of schooling as the school's average, and is only limited to the transfer of school-aged children to school or to completing graduation examinations in basic and upper secondary education but CBT quality training , there is no system to assess the success of the learners and the curriculum's suitability. But system for evaluating LE training quality, trainee’s success, comformity of training curriculum is still not developed.

Conclusion of comparison with international countries

The 2019 World Education Review reports that education services for migrants, refugees, socially isolated persons and prisoners29 are part of lifelong education (UNESCO , 2019). This also applies to Mongolia, and it will need to be regulated by the law to increase accessibility to LE services for different groups of people, adults, people living abroad and their children.

The government and other stakeholders should be involved in addressing issues such as developing mechanism of equal learning opportunities in order to develop the capacity of non-skilled people, young people who are in the majority of the population, especially those who doesn’t have any profession, especially those with disabilities and low incomes.

Because LE sector is understood as non-formal education for general public, changing the name into “Non-formal and adult education” as identified in Education Sector Master Plan would bring the understanding into the UNESCO, OECD and EU level.

There are other experiences in the use of secondary school for LE services if classrooms and training equipment are not sufficient. For example, schools and laboratories are used for foreign labor migrant adult education services to enable them to continue their study in Norway (EAEA, 2011). It is also possible to disseminate the experience of using a computer-based education for the elderly by using the secondary school computer laboratory.

29 Prison education

CHAPTER FOUR: SUBSECTOR PROBLEMS, CAUSES AND FACTORS

4.1. Problems Problems related to socio-economic, demographic characteristics, individual learning needs and social needs can be summarized as follows:

- About 80 percent of people with disabilities (including youth) are economically inactive and the majority of the economically active population is self-employed, indicating that there are significant barriers to employment with persons with disabilities.

- Even though women are more likely to be enrolled in higher education and postgraduate training, but these advantages can’t become leverage for employment and better job opportunity. Many of the young women who have married before employment are more likely to find difficulty findin a job or return to work, therefore they often have a long period of unemployed time (НҮБХХ, 2016).

- The preparation, re-training, and qualification of LE center teachers are not only irregular, but also the budget availability is affecting the quality of service

- Due to the growing needs of the LE and the changes in the population structure, NCLE and its’ 8 experts working are not able to lead the sub-system at the national level and there is no legal basis for this. In addition, only a single specialist at the state central administrative body in charge of education matters is solely responsible for the whole sub-sector or someone in another position does it as a side job, and the person is always changing which are the most challenging issues in the industry.

- As of 2018, life expectancy at birth was 70.19 (male 66.11, female 72.26) and economically inactive population increased compared to the 2010 Census (Table 26 and Figure 45). However, in Mongolia, LE service is still lasking for unemployed and uneducated adults and elders.

Based on the findings of the sector, the current pressing issues of the LE sector and the future actions and proposals are summarized as follows (Table 28).

TABLE 25. LE sector current pressing issues, further actions, recommendations and opinions

№ Current pressing issues Further action, opinion and Explanation recommendation 1 Policy and strategy 1.1 New policies and regulations aimed Although there are several There are substantial legal and at coordinating LE and adult provisions in the Law on regulatory documents relevant to education issues is required. Education, there is no the LE sector, although their accompanying procedure for enforcement is not sufficiently in implementing this in rural place, especially at the local areas (Except regulation on level. the Organization of equivalency training (2007)

1.2 In other countries, it is common Previously, this issue has There is no national program or practice to have policies and been regulated under several strategy to support the LE sector strategies solely forecasting on LE. national programs such as and to coordinate funding and Therefor it is necessary to develop a NFE, Distance Learning, other issues. new national LE program. Literacy Education, but there weren’t any new steps in the policy and legal environment since 2014.

1.3 Therefore, adult education law In addition to the aging of the One of the core components of needs to be developed and population, and the need for LE services is adult education, implemented. new education will emerge, but there isn’t legal environment and we will need to regulate to regulating it in Mongolia. this by law.

2 Management structure, type and location

2.1 The roles and responsibilities of It is possible to resolve this issue by It is difficult to determine local and school management in establishing and enforcing laws and which organization should LE activities are insufficient. regulations that clearly define the the LE centers belong to, roles and responsibilities of local and it also depends on the authorities and schools. management of that stage.

2.2 The sector is always placed It is important to create a training The issue can be solved by "second" because of the environment that is appropriate for establishing LE department insufficient support from the different needs of populations, to or division under MECS or decision makers, school advertise to the public and to create expanding or upgrading management and public. a mechanism to support the current NCLE sector level. system from the state. It is also governed by the policy solutions described above. 2.3 There is no system to approve It is necessary to create a system to It needs to be incorporated and acknowledge the skills acknowledge the knowledge and into the new legal document. acquired by LE or NFE. skills gained through trainings at LE centers.

2.4 The LE sector is under the LE services are a cross-sectoral For example, training, jurisdiction of the Ministry of issue, and the coordination between teaching materials, and Education, Culture and Science, other ministries needs to be teacher training need to be but the problem is that financial improved. solved by the cooperation authority is not included in the between the Ministry of minister’s portfolio. Education and the Ministry of Labor. 3 Accessibility 3.1 LE services are often limited to It is necessary to amplify the types According to the survey of literacy and equivalency of training that meet the needs of needs of urban and rural programs. growing population. In order to do populations, the demand for so, other issues, such as preparation legal and health education of teachers and development of the was the highest. This textbooks, should be taken into suggests that the availability account. of LE does not meet current needs.

3.2 There is a widespread It can be solved by expanding LE It is open to anyone who understanding that equivalency centers in aimags, districts and wants to educate at that level, programs for primary, basic and soums by providing independent, especially for those who are upper secondary education is non-school accommodation, by below the education level. only for drop-outs which expanding educational services negatively affects the based on the needs of the population, accessibility. such as lower education and unemployed people. 3.3 Because of the lack of The problem can be solved by There was a practice of educational services based on improving the learning environment preparing training materials local needs and the needs of the of LE center, developing local suitable for the needs of local trainees, the centers can’t learning materials and preparing residents and residents become educational teachers. For example, wild leek before. For example, the environment which provides conserving training for the Gobi National Literacy Program information and helps people. people and rubarb jam preparation Report (2013) outlines this in training for taiga region people to detail. improve household income. 3.4 The services of LE are almost This service can be directed From the demographic unaccessible for adult and primarily to the individual needs of perspective, the unemployed elderly education needs. the specific adult groups such as and elders have the right to unemployed, housewife or learn, and they can also househusband, and retired elders, volunteer. also we can use their knowledge, experience and skills.

4 Quality 4.1. It is common for staff to work The problem can be solved by LE teachers need more temporary. addressing issues on preparation of knowledge and skills than teachers, improving professional the general secondary school development system, allocation of teachers. At present, there is funding, improving LE teachers no category of teacher curriculum, the problem can be training for teachers in the solved. LE training program. 4.2 The curriculum of five core To extend the scope of LE services, LE curriculum has not been stream has not yet been modify the five areas that are reformed since 2010, the approved and it is hindering the currently being identified, and current curriculum is not process. develop a curriculum tailored to the approved. needs of the population.

4.3 There is a lack of training The development of training Currently funding of LE materials to support the materials in different LE directions training materials is livelihood of the population and can be solved by considering and temporary, and is usually to increase the household funding the LE textbooks as the under the scope of income, which is part of LE same level of textbooks for the international programs and services, and also the teacher's general education system. projects. capability is poor. 5 Equility 5.1 Inadequate service provision for It is also important to develop and For example, a government non-school aged disabled follow the rules of LE service, to decree is issued to provide populations and lack of funding provide funding and prepare education to bedridden and regulation mechanisms. teachers for adults with disabilities. children and children with severe disabilities, but there is no regulatory mechanism and funding.

5.2 There is insufficient educational One part of the LE to be directed to The results of the training for provision for people in prison, this target group, but it should be school-aged monks which vulnerable group and school-age legalized. have been funded by monks in the churches. UNICEF illustrate the need for such services. 7 Internal and external benefits

There is a shortage of premises For example, some countries, such At present, only 4 of the 354 7.1 and equipments in LE centers. as Japan, allocate resources from the centers operating in the state budget to provide LE centers country have separate for separate accommodation and accommodation. provision of necessary equipment.

4.2. Possible solutions Let’s consider the possible solutions to the problems and other issues that may arise. For example, depending on the household's living standards, there is a difference in acquiring higher education in young people. Also, increase in housing prices and living costs in capital city Ulaanbaatar, where most universities and colleges are located, makes harder for rural people to have tertiary education. Therefore, meeting the needs of their education by establishing an open university will meet the needs of the individual, as well as the society’s.

LE services have a cross-sectoral nature. In other words, "Lifelong education" should not be part of an education policy but should be part of all sectors, including labor, health, environment, manufacturing and agriculture. That's why Japan has "lifelong education" policy in almost all ministries, and local governments have also included lifelong education in their policy planning (Arai, Yo & Fusa, T, 2009).

In our country, however, there is a need for integrated coordination and management of education from early childhood education to continuing education for adults, policy coordination, institutionalization and increasing the capacity of the existing system are required.

To improve the learning environment for LE sector, libraries, the media, evening schools, welfare centers should perform public awareness open activities, trainings and advertisement, and improve impact of hobbies, so that people have an opportunity for life long education

It is required to have a LE department (at least a division) in the State Administrative Authority in charge of Education in order to improve LE subsector into appropriate level, to provide the population with appropriate, flexible, open education services and to improve coordination. Also, few solutions for the above problems include expanding NCLE, which is operating at the national level, and it’s capacity and empowering staff. Currently the center is in MNUE adjacent to students’ classrooms, there is a need to extend the operation by providing separate accommodation.

CHAPTER FIVE: POLICY PRIORITY, MID - TERM EXPENDITURE FRAMEWORK

5.1. Proposal on policy priority Based on this survey on LE and recommendations and suggestions about LE subsector to include Master plan from the rapid surveillance Survey conducted by the Asian Development Bank project from teachers and managers of schools and some pre-schools in rural area including Dornod, Dornogovi, Tuv, Khovd,

Khuvsgul, and urban area including Nalaikh Golomt complex, Buyant Ukhaa Complex school, Khan-Uul district (see Table 29), the priority areas of the sector are as follows:

1. Developing and implementing LE education National program: Under the previous Master Plan, a number of national programs have been established in the LE sector and have been successful. For example, the National Program on NFE Development, the National Program of Distance Learning, the National Program of Literacy Education etc. However, no national policy document has been issued since 2013 when the name of the sector has changed to LE, which does not support the availability, funding, and management of the sector. Therefore, it is impossible to solve the problems faced by this sector without developing "National Program of Lifelong Learning" and defining specific goals and activities and financial support to implement.

2. The adoption of the Law on Adult Education: There are two main justifications: First, the life expectancy of the population is increasing. Lifelong learning and learning generally starts from preschool and it continues throughtout life. However, for our country, this situation has not been policy- oriented and the legal succession is lost. For example, in Mongolia, all levels of education, such as the Pre-schools, Primary, Secondary, Higher Education, Vocational education and all levels of education are regulated by law, yet for population outside of these education services constitutes majority of the people and there is no law for supporting lifelong education on these people which shows that our country practice is behind in other countries. Therefore, in the Master Plan "Adult Education Law" development and implementation should be stated as a specific purpose. By doing so, the above problems can be solved.

3. Create an equitable recognition system for formal, non-formal and education acquired from living environments; Lifelong learning also encompasses formal education, non-formal and education acquired from living environment (learning at work, from public, and during leisure time) forms, accepting, recognizing, validating and verifying these skills become a major component of the lifelong educational system. It consists of formulating national standards, establishing national qualification framework which includes learning outcomes in non-formal and living environments.

4. Strengthen organizations at all levels and improve the human and material capacity of the LE: It is necessary to build "LE center" in the capital city districts, major cities and aimag centers where population is large. The center will have its’ own building and equipment which meet the requirements of the trainings and will work the same as Japan's Komikan (or Lifelong Learning Center).

5. New identification of LE target group: In the context of social development, target groups of LE services are those who are retired, elderly, uneducated and unemployed, unemployed, housewives and women who are taking care of their children, citizens who want to learn new technology, and who couldn’t or are unable to study (ie, bedridden). It is necessary to study their needs and provide them with appropriate services to everyone.

6. Expand LE services framework and improve accessibility: To do so, 5 major directions of the sector needs to be changed and redefined for expansion. In particular, in order to change the LE services to achieve objectives set out in the SDG, there is a need to develop training programs and materials aimed at climate change, water issues, poverty reduction, banking and financial education, energy saving, health and family life quality

7. Establishing an open educational system and establishing an open university: There are open universities in many parts of the world, and education trends have changed in the modern digital era. For example: Indra Gandhi's open university, founded in 1961, is the world's largest open university. Establishing such a school can not be solved solely by the current LE system. Cross-sectoral planning and prioritization is required. Furthermore OER, MOOC, online content preparation, and infrastructure development are needed.

TABLE 26. Results of education micro study 1. Most importantly to improve the policy and legal documents of the LE sector 2. To strengthen the responsibilities of bag governors and soum governors regarding the involvement of children outside the school in educational services 3. Considering LE sector has multi-sectoral quality, establishing and maintaining a national integrated policy, coordination and management which cover pre-school education to adult lifelong education is required 4. Improve the training methodology of teaching to increase the income of the population, which is a part of the LE services, to create a legal and financial condition for cooperating in various fields with employers 5. Establish a system for LE teachers salaries, pensions, allowances and social issues, which is equivalent to other state education organizations 6. Creation of financial and economic incentives to improve the reputation of LE staff, improve the quality of work, and maintain steady employment 7. To facilitate foreign and domestic investments in the provision of electronic education services and training environments for LE center and creation of favorable classrooms and laboratories. 8. Change that LE is only limited to literacy training and equivalency programs 9. Establish and support a modern, open and remote electronic system for elementary, basic, and secondary, TVET and some tertiary education programs. 10. To manage and organize national level activities in LE sector, expand NCLE, clarify current status, strengthen the capacity to provide training, consulting service and e-learning TV and Radio training centers and publishing facilities. 11. By involving LE teacher and staff into national and international trainings, create modern LE sub-sector 12. Establish a system for comprehensive innovative open education that most organizations operating in the LE limits their work only focusing on drop-out children 13. Establish a system for delivery of LE services to rural dwellers, which now mostly focus on rural populations. 14. Improve financial and economic mechanisms for re-educating bedridden children and children with severe forms of disability and to implement effectively through NCLE. 15. Establish LE centers, open education tv, radio national centers, environment and condition for cooperation with other formal, general education, civil and professional organizations, a national CBC, open house television and radio training center, and create conditions and environment for collaboration with formal education institutions and the general education, civil and professional organizations. 16. Create specialized policies, incentives and environments that promote adult education 17. In addition to raising the state budget to support multilateral activities of all levels of LE, it is also necessary to create a system to support, evaluate and summarize foreign and domestic investment 18. Validate, follow and implement the curriculum within the 5 core LE areas 19. Build open complex education centers in regionalized from and equip fully and provide professional teachers, researchers and professional staff. 20. Expand the roles and participation of local and school management in LE activities 21. Create coordination and coordination mechanisms among governmental and non-governmental organizations, enterprises and individuals operating in LE sector

5.2. Medium-term expenditure framework

According to UNESCO, the medium-term expenditure framework for LE sector considers 1) Literacy education; 2) Equivalency Program (drop-outs and youths re-studying); And 3) other NFE programs, which are consistent with the scope of this study and the scope. In each of these three sections have A) Coverage, B) Teacher and non-teaching staff, B) Training materials, and D) Infrastructure and equipment parts. Therefore, some indicators that are based on 2018-2019 are not duplicated and divided evenly. For example, by 2019, 630 people working in the sector, including 499 teachers, were divided into approximately three separate programs and expenditures are estimated in three programs.

The number of learners in each of the three programs was gendered and the baseline data for the 2018- 2019 academic year were taken as the basis. The classification of adult literacy programs in grade 1 (grade 130) and grade 2 (grade 2) indicates the number of primary and post-literate literacy classes for each gender. As for teachers, these two levels are also considered.

For each level of equivalency training, by 2030, we estimated that for primary education (grade 1) trainings will involve 50% of the people needed, for basic education (grade 2) 60% and for complete secondary education (grade 3) 70%.

The mid-term estimation of the training materials for the LE was 15 to 20 pages as the "one book". This means that the 4-5 module is considered as one book according to the current equivalency training module. Because one module is 32-40 pages on average. At present, there is no formal registration of private LE centers, so "private" was left out.

In the medium-term expenditure and the expenditure up to 2030, building cost accounts the most (Table 30, 31). It is assumed that 1-2 centers will be built annually until 2030, and one center budget is estimated to cost about 6.0 billion MNT.

TABLE 27. Medium-term expenditure analysis of LE sector, 2018-2023 (М.Мend-Amar, 2019)

2018 2019 2020 2021 2022 2023 Population age between 0-18 1182138 1215817 1251954 1289767 1327646 1364868 Population age 19 - 2056341 2088125 2118238 2147107 2173131 2196384

Total 3238479 3303942 3370192 3436874 3500777 3561252 Adults to enroll at literacy centres 2597 2637 2675 2712 2744 2774 Enrolments at Reintegration NFE 8609 8854 9117 9393 9669 9940 programmes Enrollments in other programs 312090 316914 321484 325866 329815 333344 Teachers 499 509 519 530 539 549 Other staffs 131 134 136 139 142 144 GDP (in USD) 13038000000 14159268000 15376965048 16699384042 18135531070 19695186742 GDP per capita (in USD) 4026.0 4285.6 4562.6 4858.9 5180.4 5530.4

Number of new NFE centers to 0 1 1 1 2 2 build

30 Grade 1,2 is included

Student support cost (in USD) 946990.0 973970.0 1002918.6 1033209.5 1063554.2 1093372.0 Total Salary Cost (in USD) 2350277.3 2552401.1 2771907.6 3010291.7 3269176.8 3550326.0

Construction and Investments 0 2264000 2264000 2264000 4528000 4528000

3297267.3 5790371.1 6038826.2 6307501.2 8860731.0 9171698.0

TABLE 28. LE sector future expenditure estimate, 2024-2030 (М.Мэнд-Амар, 2019)

2024 2025 2026 2027 2028 2029 2030

Population age between 0-18 1400365 1431940 1454338 1469612 1479591 1496683 1506029 Population age 19 - 2218735 2239653 2274346 2316725 2365829 2430174 2464341

Total 3619101 3671594 3728685 3786337 3845420 3926856 3970371 Adults to enroll at literacy 2802 2829 2872 2926 2988 3069 3112 centres Enrolments at Reintegration 10198 10428 10591 10703 10775 10900 10968 NFE programmes Enrollments in other programs 336736 339911 345177 351608 359061 368826 374012 Teachers 558 566 575 583 593 605 612 Other staffs 146 149 151 153 156 159 161 GDP (in USD) 21388972802 23228424462 25226068966 27395510897 29751524835 32310155970 35088829384 GDP per capita (in USD) 5910.0 6326.5 6765.4 7235.4 7736.9 8228.0 8837.7

Number of new NFE centers to 2 2 2 2 2 1 1 build

Student support cost (in USD) 1121808.2 1147102.3 1165044.8 1177280.1 1185274.1 1198966.1 1206453.8 Total Salary Cost (in USD) 3855654.0 4187240.3 4547342.9 4938414.4 5363118.0 5824346.2 6325240.0

Construction and Investments 4528000 4528000 4528000 4528000 4528000 2264000 2264000 9505462.2 9862342.6 10240387.7 10643694.5 11076392.2 9287312.3 9795693.7

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Commission of the European Communities. (2000). A memorandum on lifelong learning. Commission staff working document accompanying the document. Brussels: European Commission, SEC (2000)1832 ﬁnal. Retrieved from http://arhiv.acs.si/dokumenti/Memorandum_on_Lifelong_Learning.pdf Commission of the European Communities. (2001). Making European area of lifelong learning a reality. Brussels: Commission of the European Communities. Retrieved from: http://www.europarl.europa.eu/meetdocs/committees/cult/20020122/com(2001)678_en.pdf European Commission. (2019a). European policy cooperation (ET 2020 framework). Retrieved from https://ec.europa.eu/education/policies/european-policy-cooperation/et2020-framework_en European Commission. (2019b). EU policy in the field of adult learning. Retrieved from https://ec.europa.eu/education/policies/eu-policy-in-the-field-of-adult-learning_en Organization for Economic Cooperation and Development [OECD]. (1996). Lifelong learning for all. France: OECD. Retrieved from https://www.voced.edu.au/content/ngv%3A25305 OECD. (2001). Lifelong learning for all: Policy directions. France: OECD. Retrieved from http://www.oecd.org/officialdocuments/publicdisplaydocumentpdf/?cote=DEELSA/ED/CERI/ CD(2000)12/PART1/REV2&docLanguage=En OECD. (2019a). Adult education and learning. Retrieved from https://stats.oecd.org/Index.aspx?DataSetCode=EAG_AL OECD. (2019b). Dashboard on priorities of adult learning. Retrieved from http://www.oecd.org/els/emp/skills-and-work/adult-learning/dashboard.htm OECD. (2019c). Getting skills right: Future-ready adult learning systems. Paris: OECD. Retrieved from https://read.oecd-ilibrary.org/education/getting-skills-right-future-ready- adult-learning-systems_9789264311756-en#page4 OECD. (2019d). Getting skills right: Engaging low skills adults in learning. Paris: OECD. Retrieved from http://www.oecd.org/els/emp/engaging-low-skilled-adults-2019.pdf Milana, M. (2012). Political globalization and the shift from adult education to lifelong learning. European Journal for Research on the Education and Learning of Adults, 3(2). 103-117. Retrieved from

https://www.pedocs.de/volltexte/2012/6740/pdf/RELA_2012_2_Milana_Political_globalization _and_the_shift.pdf UNESCO-Institute of Education (1997). The Hamburg declaration on adult learning. Hamburg: UNESCO-Institute of Education. Retrieved from https://unesdoc.unesco.org/ark:/48223/pf0000116114 UNESCO. (1976). Recommendation of the development of adult education. Nairobi: General conference. Retrieved from http://www.unesco.org/education/pdf/NAIROB_E.PDF UNESCO Institute for Lifelong learning [UIL]. (2009). Global report on adult learning and education. Hamburg: UIL. Retrieved from http://uil.unesco.org/global-report-adult-learning-and-education- 2009 United Nations [UN]. (2015). Sustanaible develoment goals. Retrieved from https://sustainabledevelopment.un.org/sdg4. UIL. (2016a). Conceptions and lifelong learning realities (Background paper prepared for the 2016 global education monitoring report). Hamburg: UIL. Retrieved from https://unesdoc.unesco.org/ark:/48223/pf0000245626 UIL. (2016b). Recommendation on adult learning and education. Hamburg: UIL. Retrieved from http://uil.unesco.org/adult-education/unesco-recommendation/unesco-recommendation- adult-learning-and-education-2015 UIL. (2019). Lifelong learning policies of the different countries. Retrieved from http://uil.unesco.org/lifelong-learning/lifelong-learning-policies

ANNEX 1. GLOSSARY

Non-formal education: Organized activity to provide training services to citizen outside the official education and training system Non-formal education facilitator: A person with adequate education who involves in providing teaching, supporting and organizing non-formal education activities. Literacy education: A person with no education, have ability to read and write with understanding a simple statement related to one’s native language shall be deemed as with literacy education. A person with any education level shall be deemed as with literacy. By the literacy level it is categorized as four levels as Basic literacy, Functional literacy, Proficient literacy and Advanced literacy. Post literacy Education: is a non-formal education training activity that organized for learners who have elementary literacy education but have not set as skills yet, aiming at improving the literacy education level, livelihood level in compliance with their life and employment, also at providing professional habits for employment . Lifelong learning centre: Life-long education center which implements the lifelong education information, training and coordination activities at the sum, district administrative level. Used to call “Gegeerel center” before 2015. Equivalency programme: non-formal educatopn curriculum aimed at providing elementary and incomplete secondary education for uneducated children, school dropouts or adults within the scope of non-formal education. Distance education: Training arrangements that provides training content imparted at a distance through information and communication technlolgy, using the independent study materials without involving teachers and students. Adult: Population aged 15 or above Adult education: Training activity organized within the scope of non-formal education for adult population to improve their knowledge, skills, occupation and profession. Adult literacy rate: The proportion of adult population who are uneducated and answered they can read and write which compared with the total adult population with education. School drop out: School age children who has been studying in the general education school but left without completing the training curriculum Out of school children: School age children who belong to the category of school age but not attending any formal education and school.

ANNEX 2. INFORMATION ON TEACHERS AND HUMAN RESOURCES OF AIMAG, DISTRICT’S LLE (Source: Data of NCLLE 2019) Number of years Types of position Gender Age

worked in the LLEC

№ Aimag, districts Total years

Male Female

24 24 years 34 years 44 years 54 years 15 years

5 years

10years

- - - - -

Teacher

Director

Above 55

Archieve

Accountant

20 25 35 45 11

Chansellary

Bookkeeper

Service staff

Social Worker

Above 15 Traningmanager AIMAG 1 Arkhangai 26 1 1 24 6 20 1 15 2 3 5 20 6 2 Bayankhongor 32 20 12 11 21 13 10 7 2 12 12 8 3 Bayan-Ulgii 19 1 1 2 15 5 14 12 6 1 10 7 2 4 Bulgan 20 1 1 18 3 17 7 5 7 1 18 2 5 Darkhan-Uul 20 1 1 1 1 1 11 4 7 13 1 8 5 5 1 13 3 4 6 Dornod 18 1 17 3 15 1 8 4 4 1 15 2 1 7 Dornogobi 16 16 5 11 1 5 3 3 4 12 2 2 8 Dundgobi 15 15 4 11 9 2 4 11 2 1 1 9 Gobi-Altai 27 1 1 1 1 1 22 11 16 1 14 4 6 2 20 6 1 10 Gobisumber 2 2 0 2 1 1 2 11 Zavkhan 25 25 8 17 17 5 2 1 8 16 1 12 Orkhon 19 1 1 1 1 11 4 3 16 7 5 7 6 5 6 2 13 Umnugobi 24 24 5 19 1 6 5 7 5 20 4 14 Uvurkhangai 25 1 2 1 21 7 18 2 11 8 3 1 15 6 4 15 Sukhbaatar 23 1 1 1 1 1 18 10 13 12 6 4 1 15 6 1 1 16 Selenge 26 1 1 23 1 4 22 11 6 8 1 15 4 4 3 17 Tuv 33 1 1 1 30 9 24 2 11 6 9 5 26 6 1 18 Uvs 26 1 24 1 10 16 8 5 11 2 13 9 3 1 19 Khovd 28 1 1 1 24 1 7 21 1 16 5 4 2 17 11 20 Khubsgul 28 1 27 8 20 1 12 7 7 1 14 12 2 21 Khentii 31 1 1 1 1 1 25 1 12 19 3 7 9 7 5 29 2 Sub-total 483 13 31 0 6 12 5 404 12 138 345 15 210 109 108 41 311 121 43 8 DISTRICT 1 Baganuur 19 1 1 1 1 2 1 8 4 4 15 3 7 1 7 1 18 1 84

2 Bayangol 20 1 1 1 1 1 1 10 4 4 16 5 6 8 1 8 8 3 1 3 Bayanzurkh 20 1 2 1 1 1 14 20 2 7 6 5 11 5 2 2 4 Nalaikh 13 1 1 1 1 1 7 1 5 8 6 5 1 1 7 6 5 Songinokhairkhan 20 1 2 1 1 14 1 1 19 9 8 2 1 5 9 6 6 Sukhbaatar 16 1 1 1 1 1 1 6 4 6 10 6 5 3 2 10 6 7 Chingeltei 23 1 1 1 1 1 1 13 4 9 14 7 11 4 1 15 4 4 8 Khan-uul 16 1 1 1 1 11 1 16 1 3 6 5 1 13 2 1 Sub-total 147 8 10 6 7 9 5 83 19 29 118 6 50 48 35 8 87 41 15 4 Grand total 630 21 41 6 13 21 10 487 31 167 463 21 260 157 143 49 398 162 58 12

ANNEX 3. IMPLEMENTED PROJECTS /1997-2018/

№ Year Investor Project name Covered area Reached result 1 1998 Government Bichigten At the national level for all - Overall about 15,000 pupils have participated and of which 10,000 pupils have of Mongolia school age children literacy . сургуулийн насны бичиг үсэг үл мэдэгч хүүхдүүд 2 1998- STFund Theory and At the national level - A one version, one content publication on improving adult education through 1999 methodology on distance learning issued distance learning to improve adult education 3 1997- UNESCO Live by learning At the national level - Over 30 books, guidelines, 42 radio lessons were prepared and issued. 2001 - Over 37,000 household members have participated in NFE and improved their living quality. - FM radio station established in 8 aimags. 4 1999 UNICEF Broadening public 8 sums from each aimag - 6-8 types of textbook with content of elementary education were developed. involvement in elementary education 5 1999 Erel LLC Gegeerel For non-literate population - Developed 5 textbooks to provide literacy education. at the national level 6 1999- UNESCO Local citizen 4 aimags - 7 local citizen development centers in Uvurkhangai and 1 in Zavkhan, Bulgan, 2001 development centers Gobi-Altai aimags was established respectively. 7 2000 STFund Open training theory At the national level - Developed a publication and training material for open training theory and and methodology methodology for people who wants to pilot the open training. 8 2001 UNESCO NFE for school drop - At the national level - Developed a textbook and the manual for learners. out children 9 2001- UNESCO Improving the 2 aimags, 3 districts - Delivered necessary information to over 4000 youth and their over 15000 2004 livelihood of youth - Arkhangai- 5 sums parents through television and radio. - Khuvsgul- 6 sums - 5 tele lessons “Children’s future-profession choice”, “You can do this”, - Bayanzurkh, Chingeltei, “Meaning of wise living”, “Pathway from decision punishment”, “Payway to Songinokhairkhan reach your dream” were prepared. districts - Also prepared tele programs on addressing the challenges of youth such as “Becoming a good person starts at young age”, “Bully”, “Friendship”, “School

dropout”, “Leisure time”, “Difficulties of being different from others”, “Longliness” 10 2002- UNESCO Distance learning for 21 aimags 9 districts - 272 pupils of 6th grade in General Education Schools, and 12 teachers have 2003 GES pupils participated in the training and improved their knowledge and skills. 11 2003 UNESCO NFE of girls and At the national level - Developed and disseminated “Bilgiin nud-1” handbook for adult literacy women education. 12 2003 UNESCO Multi-grade teaching At the national level - Developed book, recommendations and training module for multi-grade and NFE teaching. - Organized trainings for teachers and school drop out children. 13 2003- UNESCO Improving the 21 aimags, 9 districts - Developed “Methodology Handbook” 12,37 pages of pf manual and 40 2004 knowledge of English minutes of video lessons. teachers through - 80 teachers have participated in training and exchanged experience. distance training 14 2003- ILO, IPEC Improving the quality At the national level - Issued 5400 copies of set of textbook on re-providing basic education and 2004 program and availability of provided to 8000 school dropout children and 400 teachers have participated general education in trainings. provision through Equivalency program. 15 2004 STFund Pilot survey on At the national level - Prepared, published a survey book and distance training materials. utilizing distance learning in formal and non-formal education 16 2005- UNESCO Providing literacy 29 sums of 6 aimags, 4 - Needs assessment to identify the adult literacy level of was conducted among 2006 education through districts of the Capital city among 1110 respondents including sum governors, chairman of Citizen’s distance learning - Bayankhongor- Bayan- representative khurals, school directors, teachers of Gegeerel NFE center and Ovoo, Bayankhongor, citizens of 31 sums of 6 Gobi-Altai, Dornogobi, Dundgobi, Umnugobi, Tuv Jinst, Shargaljuut, Ulziit, and Khentii aimags 31 using questionnaire, interview, SWOT and Matrix Erdenetsogt methods. - Bayan-Ulgii- Altantsugts, - There are 3460 people from 31 sums of 6 aimags participated in the training Bayannuur, Ulgii, and at the end of the training 1446 people or 41,8 percent were literate, and Tsagaannuur, Nogoonnuur 2014 or 57,9 percent have improved the literacy skills. - Zavkhan- Aldarkhaan, - Bilgiin nud-1 used for elementary and intermediate level trainings, Uliastai, equivalency program of Mongolian language, Mathematics used for Tsagaankhairkhan, elementay education and 8 series of mannual for the post literacy was used for Tsagaanchuluut advanced level training, and additional training aids were used upon the interest and need of the participants.

- Sukhbaatar- Asgat, Bayandelger, Baruun-Urt, Sukhbaatar - Khovd- Buyant, Darvi, Durgun, Mankhan, Jargalant - Uvs- Davst, Tarialan, Sagil, Turgen, Ulaangom - Ulaanbaatar- Bayanzurkh, Songinokhairkhan, Khan- uul, Chingeltei 17 2006- UNESCO Providing literacy 31 sums of 6 aimags - Survey to identify literacy rate of 929 people of 29 sums of 6 aimags 2007 education through - Gobi-Altai- Bayantooroi, including Bayankhongor, Bayan-Ulgii, Zavkhan, Sukhnaatar, Khovd, Uvs distance (II phase) Bayan-Uul, Sharga, and 4 districts of the capital city using questionnaire, interview, observation Khaliun, Tsogt methods. - Dornogobi- Airag, - Teachers from 29 sums of 6 aimags participated in training on organizing Altanshiree, Dalanjargalan elementary and post-literacy distance learning trainings at the local level, Даланжаргалан, utilizing the methods of training tools and elementary knowledge of computer Delgerekh, Ikh khet use. Overall 115 teachers participated in the training. - Dundgobi- Adaatsag, Delgertsogt, Deren, Luus, Saikhan-Ovoo - Umnugobi- Bayan-Ovoo, Nongon, Khanbogd, Khurmen, Dalanzadgad - Tuv- Bayanchandmani, Ugtaal, Lun, Erdenesant, Zaamar, Zuunmod - Khentii- Batnorov, Dadal, Umnudelger, Murun, Norovlin 18 2006- UNESCO- Sustainable 21 aimags, 8 districts of the - Overall 21.6 pages of published training materials including 8 types of 2009 Asia and development education capital city handbook, 6 types of posters and1 unofficial translation Pacific - 500 copies of “Mother earch-1,3” training package consists of teachers recommendation-1, Handbook for learners-2, Posters-2, video lessons-2; Cultural - Published “Mother earth-4” training package consists of teacher’s Center recommendation, 3 handbooks for learners, 2 posters, 3 video lessons and disseminated through the Gegeerel NFECenter.

19 2006- UNICEF, Life skills based health 21 aimags, 9 districts of the - Developed overall 68 pages of publication with 2 training curriculums of Life 2010 Global fund education capital city skill based health education, 1 teacher’s handbook, 5 Handbooks for learners. - Also prepared 3 posters contained information on ho to prevent from HIV/AIDS, 15 minutes of video lessons on “Let’s live away from bad habits”, 15 minutes of video lessons on “Sexually transmitting infection” 20 2006- UNICEF Non formal education 21 aimags, 9 districts of the Within the scope of this project, organized training for 847 teachers and 497 2010 capital city local administrative staff. In particular: - Multi-grade teaching was organized among 410 teachers of 7 regions - Competition, experience exchange meeting of NFE teachers organized among 167 teachers - 270 teachers in Life skill training - 353 people in training on “Participation of local authority and schools in NFE” - 12.5 pages of Life skill training curricula, 35.5 pages of 10 series of handbook - 47 and 42 pages of Mathematics and Mongolian Language’s training material for equilance training - 5 types of teacher’s handbook for mixed training with 94,75 pages - 70 modules with 315 pages for equilance training for elementary, basic and complete secondary - Modular recommendation for equilance training (Mongolian language, Mathematic) 15 pages 21 2008- UNESCO Non-formal and adult Arkhangai, Dornod, Khovd, - Collected survey from 365 students 30 teachers of phsycology, education 2009 education MNUT study, professional didactics. - Involved 404 students in 16 hours of lecture, 32 hours of seminar. 22 2008- “World Distance training for 5 aimags 23 sums - Involved 1686 people in 4 trainings related to animal husbandry, agriculture, 2010 vision” herder’s children - Bayan-Ulgii- business and lifeskills. international Bayannuur, Bulgan, - Prepared 12 editions of “Life university” newspaper and published 7500 copies and 90000 copies in total, 52 scenes of “Life university” movie organization’s Deluun, Tsengel, Ulgii - Dornod- Bayandun, lessons-920, Video lessons “Future is near”-2300, 280 episodes of TV serial representative Bayan-uul, Bulgan, “University of young herders” and produced about 3500 copies audio and in Mongolia Khalkh gol, Kherlen video lessons used for distrance trainings. - Uvs- Baruunturuun, Naranbulag, Undurkhangai, Ulaangom - Khuvsgul- Jargalant, Chandmani-Undur, Erdenebulgan, Murun

- Khentii- Batshireet, Binder, Dadal, Tsenkhermandal, Kherlen 23 2008- “World Literacy education 5 aimag’s 23 sums - Involved 783 school drop-out children and youth aged up to 18 who are 2010 vision” - Bayan-Ulgii- Baganuur, illiterate or with basic literacy moderate. international Bulgan, Deluun, - Developed textbooks for 3 levels including elementary, intermediate and advanced literacy and published 500 copies each, 21 types of handbooks 100- organization’s Tsengel, Ulgii - Dornod- Bayandun, 700 copies each, in total published 137,5 pages of training material and representative Bayan-Uul, Bulgan, disseminated. in Mongolia Khalkh gol, Kherlen - Organized 5 times of social activities and involved 14118 people. төлөөлөгчийн - Uvs- Baruunturuun, газар Naranbulag, Undurkhangai, Ulaangom - Khuvsgul- Jargalant, Chandmani-Undur, Erdenebulgan, Murun - Khentii- Batshireet, Binder, Dadal, Tsenhermandal, Kherlen 24 2009- UN Providing complex 5 aimag’s 20 sums - Training environment of NFE improved and example Gegeerel center 2012 UNESCO social service to - Bayan-Ulgii- received home school. guarantee the life of Bayannuur, Buyant, - Professional skills and methodology of NFE teachers have improved. - Activeness and participation of students have improved. Mongolian rural Tolbo, Ulaankhus - Dornod- Dayandun, - Citizens earned income and improved their livelihood. population Bayan-Uul, Dashbalbar, - Citizen have positive attitude towards the Gegeerel center. Khulunbuir - Cooperation and communication of public and private organizations have - Uvs- Davst, Zuungobi, improved. Tes, Hyargas - Baseline needs assessment was conducted among the project implementing 5 - Khovd- Altai, Dorgon, aimags and determined the need of training curriculum, content of a Duut, Khovd handbook. Consolidated the assessment report (12 pages) and printed in - Khuvsgul- English and Mongolian language. Renchinlkhumbe, - Developed “Life skill based literacy training curriculum” (8 pages) which Ulaan_Uul, approved by the order 556 of the MECS in December 2010 which applies at Tsagaannuur, Tsagaan- the national level. Printed the curriculum 450 copies in Mongolian language, Uul and 50 copies in Kazakh language.

- Developed 8 pages of training materials including 31 handbooks for literacy, life skill (110 pages), 6 video lessons (140 minutes), 1 content 7 series of audio lesson (130 minutes) and translated into Kazakh language. - 4 times of literacy and life skill trainings were organized, and within the scope of the project it was targeted to involve 4000 citizens of 20 sums but involved overall 7000 adults. 25 2012- Save the Improving the impact 4 aimag’s 30 sums - Developed and disseminated students book, parent’s book and teacher’s 2016 Children, of elementary - Arkhangai handbook for target group of elementary education in the area of mathemartic Japan education of children - Uvurkhangai and Mongolian language. - Equipments and training aids necessary for trainings were provided to the of herder living in rural - Dornod - Sukhbaatar LLECs of project target aimags and improved their technical capacity. areaр - Organized a seminar for local administration, Head of ECD, directors of aimag’s LLEC on “Duties and involvement of local authority in providing elementary education”. 26 2013- Swiss Youth development 11 aimags, 3 districts of the - Trained 25 trainers to provide “Life skill education” at the national level. 2017 Development capital city - The trained 25 trainers have organized a training on “Life skill education” Agency, The - Bayan-Ulgii, Uvs, among 325 teachers of non-formal life long education centers, universities and primary schools of 11 aimags. Goverbment Khovd, - Established 20 life skills centers under non-formal life long education center of Luxenburg, Bayankhongor, Gobi-Altai, -11, Primary schools -5, Universities-4 and supplied training aids, UNFPA Zavkhan, Dornod, equipments worth of 126 million MNTs. Orkhon, - Printed 6000 copies of 15 types of handbooks and training materials related Dornogobi, to life skill with 77.9 pages and disseminated. Umnugobi, - Established Regional Methodological Centers under the Life skills Room of Darkhan-Uul Life long education centers of Darkhan-Uul, Gobi-Altai, Umnugobi aimags. - Bayangol, - With duplicated numbers, organized life skill trainings for 50484 citizens at Chingeltei, Khan- the national level through these rooms. Uul 27 2015- UNIVEF Providing education to Lama children study in - Provided education to about 410 lama children (wih duplicated number) who 2016 lama children temples of UB city, and 4 study in Gandadegchilen temple of UB, Sukhbaatar aimag’s Erdenemandal, aimags Uvurkhangai aimag’s Erdenezuu, Selenge aimag’s Amarbayasgalant, Darkha-Uul aimags Getsogdarjaalan through equilance program. - Gandantegchilen, - 50 percent of children study in Gandandegchilen temple improved their Erdenezuu temple education level and 8 children from Sukhbaatar aimag Erdenemandal temple Amarbayasgalant received basic education certificate. Darkhan-Uul - Opportunities have created for those children to study further and to obtain Getsogdarjaalan, general education through Non-formal education centers while study in the Sukhbaatar temple. Erdenemandal

28 2015- GIZ, Swiss Sustainable At the national level - Overall 25 teachers of the National center for life-long education, and Life- 2017 Development development education long education center of Dundgobi, Zavkhan, Orkhon, Khovd, Uvurkhangai, Agency Sukhbaatar, Selenge aimags also Chingeltei, Sukhbaatar district of UB city were trained as trained through 3 levels of training. - Prepared recommendation on “Reflecting the concept of modules in the equivalency program of the elementary, basic and complete secondary education. - Organized 36 trainings at the local level regarding and involved 1033 lifelong education teachers with duplicated number. - Developed “Mannual for Pre-school education teachers”, “Sustainable development education manural”. - 42 teachers of life-long education centers of 21 aimags were trained as national trainer. - Developed electronic sustainable development education manual. - Developed handbook for Mathematic and Mongolian language of elementary education equilance program. 29 2015- Save the Socializing youth and 4 districts of the capital city - 30 teachers and social workers of LLECernters of 6 districts /Bayangol, 2018 Children, children through circus - Sukhbaatar Bayanzurkh, Songinokhairkhan, Sukhbaatar, Khan-Uul, Chingeltei/ were Japan - Songinokhairkhan trained to be a socializing circus trainer. - Bayangol - Involved 97 students /dublicated number/ who are are participating in the - Khan-Uul equilance program of Life-long education centers of Sukhbaatar, Bayangol, Songinokhairkhan and Khan-Uul districts in the “Socializing circus” program. 30 2016- Mongol bank Program to improve At the national level - Developed 11 series of handbook related to financial education. 2018 and Ministry public financial - Trained 25 national trainers in the area of finance. of Finance education - Trained 278 teachers of LLEC and units of 8 distrticts in the capital city, Bayan-Ulgii, Uvs, Khovd, Bayankhongor, Gobi-Altai, Dornod, Sukhbaatar, Kgentii, Orkhon, Bulgan, Selenge, Darkhan-Uul were trained as financial education trainers.

ANNEX 4. POLICY MATRIX AIMED AT ESTABLISHING THE LEGAL ENVIRONMENT FOR THE NON-FORMAL AND LIFE-LONG EDUCATION SERVICE № Name of Policy and Decision level (Date) program Main objectives Strategy, activity Reached results and impact (term) 1 Everyone has right to study, the State Constitution of - To ensure possibility for people to study 1992.01.13 to provide general education to - Mongolia public free of charge. at any age in any form 2 - Legalized the legal environment of - To increase the understanding and to legalize Non-Formal Education as NFE part of education system, to make highlight the position of NFE in the Law on Education The Parliament Recognized the NFE system at the other policies and programs become - education system 2002.05.03 policy level the legal basis to the working - Made clear of the status of the NFE - To create the NFE system and create the environment NFE facilities approach and institutions understanding and concept 3 To provide literacy to public, to Equivalence program Order of the Minister of To create the legal environment to - - To create opportunities to provide organize trainings to provide of Elementary Education, Culture and provide elementary education elementary education through the literacy for school drop-out education Science 159 issued in 2001 through the Equivalence program Equivalence program children 4 Order of the Minister of To provide education within the - To provide education certificate Equivalence program - To create opportunities to provide basic Education, Culture and basic education standard, prepare for which met the basic education of basic education education through equivalence program Science 283 issued in 2001 life and next level education standard. 5 - To define administration, management, Order of the Minister of - Administration and management Example rule of To coordinate the function of rights and responsibilities, status of Education, Culture and - Accountability Gegeerel center Gegeerel NFE Center Gegeerel center Science 169 issued in 2003 - Reflected the financial resources - To regulate the function of the center 6 Job description of - Job duties, requirements and Order of the Minister of Requirements, job description of the distance learning conditions Education, Culture and methodologists of the NFE and - To define accountability and rights methodologists of the Science 169 issued in 2003 coordinate the functions - Reflected the characteristics of the NFE jobs 7 - Job duties, requirements and Job description of the Order of the Minister of Requirements for the teachers of conditions teachers of Gegeerel Education, Culture and Gegeerel NFE center and job - To define accountability and rights NFE center Science 169 issued in 2003 description - Reflected the characteristics of the jobs

8 Equivalence program of elementary, basic - - and complete secondary education

ANNEX 5. POLICY MATRIX AIMED AT ESTABLISHING THE NON-FORMAL AND LIFE-LONG EDUCATION ACTIVITY AND SERVICE Name of Policy and Decision program level (Date) Main objectives Strategy, activity Reached results and impact (term) - To establish a NFE system which improves To define suitable approaches of education of adults and rural population - Improve availability of basic National program on The Government providing NFE, and to define the - To provide education to school drop-outs education, create possibilities to 1 providing basic resolution 19 directions to provide education - To provide education to school drop-outs provide education through non- education to public approved in 1995 through NFE, create training and illiterate adults formal education besides formal (1995-2005) system - To issue NFE training curriculum and education textbooks Regulation to - To open up opportunities for The Government - Define the target group of trainings for coordinate the To coordinate functions related teachers and methodologists of resolution 55 people without basic education, and 2 trainings for citizens to trainings for citizens without NFE approved in 1995 regulate the coordination regarding the without basic basic education trainings - To define the management education approaches of NFE trainings. - To define priorities of NFE National Program on To establish the NFE system, to - Defined the directions to develop NFE service Development of The Government determine the training content - Determine the content and approaches of 3 NFE resolution 116 - To create management, and approaches, material NF training approved in 1997 coordination and operational resources and types - To prepare the human resources (1997-2004) environment to deliver NFE at all levels - To create policy coordination and The Government management structure - To introduce distance learning in National program on resolution 14 To establish national system for - To create service, operation mechanism formal and non-formal learning 4 distance learning approved in 2002 distance learning and information technology and provide support, also to create (2002-2010) - To develop and implement accurate open and aaccessible education content, approaches and methodology - To provide good quality education that - Improve accountability and Mongolian aimed at reducing poverty, improve human To have environment friendly, importance of education for Sustainable Government development and quality of life 5 sustainable economy and to sustainable development development program resolution of 1998 - To learn life skills that meets the need develop all together sustainably - Improve public opinion on for 21 century МХ-21 - To improve the value and evaluation of education value education 95

The Government of Create a new education system Mongolia mid-term which fulfill the need of the whole - To support open and flexible 6 - strategy population, and introduce in the educational environment (1998-2000) training program and operation - To create system of NEF and build Improve capacity of NFE Centers capacity Action program of the in aimags in order to provide - To organize literacy training - To implement international Government of short-term literacy trainings, - To provide career guidance projects and programs in the area 7 Mongolia career guidance and lifelong education to the whole population - To implement projects and programs of of NFE (2000-2004) based on international NFE - To provide education service to organization’s cooperation the population through the NFE and distance learning Action program of the To support initiatives of civil - To develop professional and night class and Government of - To utilize distance system society organizations operating to distance learning 8 Mongolia To support participation of civil provide education to school drop- - - To support opportunities to study while out children and adults society organizations (2004-2008) employed - To define ways to create favorable To improve education quality business environment and To create system to ensure - To build management capacity Promote economic improve market accessibility, accessible education service at - To reduce school dropouts growth, poverty defined the policy priorities that 9 Government 2003 To support all measures to provide literacy reduction strategic rural and local level - promote sustainable human document To build the capacity of education and profession development, determined the management in education - to build skill of teachers policy objectives of education institutions sector - Provide family education and NFE National program on The Government Ensure equal participation in - To provide support to create environment - To reduce school drop-outs 10 Gender Equality resolution 274 development, to improve quality for male and female to equally receive - To create environment to promote 2003-2015 approved in 2002 of life information education and improve their boys education professions National program on The Government To disseminate information on - To deliver information on reproductive “Reproductive - To determine the service 11 resolution 288 reproductive health and improve health, advice and service to school health” delivering approaches approved in 2001 the health education level (2002-2006) dropouts

- To develop and implement the promotion strategy of reproductive health - To create the legal environment which promoted the reproductive health - To promote all forms of delivering - To create all environment to education to school dropout children promote all forms of children’s National program to To create environment for - To operate independent channel on distance education improve children’s children to develop themselves, to Resolution 245 learning, - To promote all forms of providing 12 development and work, to acquire profession and approved in 2002 - To increase the outside school training, education to school dropout protection (2002- education required for living , to identify the directions and create a favorable children 2010) improve the livelihood environment - To promote trainings out of - To train in life skill school To broaden the accessibility, - Common responsibilities improve the efficiency of literacy - Comprehensive development policy - To accelerate the state policy National Program on The Government education, to eliminate the planning towards literacy education 13 Literacy education Resolution 244 illiterate, improve the use of - To ensure equal opportunity and rights, - Improve the adult literacy level, 2004-2012 approved in 2004 capacity, to promote possibilities based on public participation and support, and to eliminate illiteracy of continuous learning and information and communication technology development and international cooperation - To organize trainings outside the school - To utilize distance learning and non-formal National Program on The Government forms for improving the teacher’s - To legal environment to promite 14 English Resolution 260 To create favorable environment proffesions the English education of the whole 2002-2005 approved in 2001 for citizens to learn English - To create favorable environment for to population improve the English language education of the whole population - To broaden the service to deliver National program on - To broaden the service to acquire ecological To create a new operational ecological education “Ecology education of The Government education mechanism to improve public - To train and re-train the NFE 15 public” Resolution 255, - To develop training content and education of ecology through teachers approved in 1997 methodology to prepare the human formal and NFE approaches, - To build capacity of staff of the (1998-2005) resources NFE organizations 97

- To improve participation of citizen and organizations

ANNEX 6. IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (1994-1998)

№ Goal Set objectives Results achieved (proof source)31 Reasons for no results

1 To improve 1.1 To identify the needs and - The Mongolian Law on Education approved in 1995 specified that the literacy, utilize the source education system will consists of formal and non-formal sub system. calculation and - In 1997, NCNFE under the MoECS was established life skills of youth - Gegeerel non-formal education center in each sum and district was and adults established 1.2 To develop program for - The Government Resolution 19 was approved in 1995 “National program youth and adults on providing basic education to the whole population” (1995-2005), - “National program to develop NFE” approved in 1997 (1997-2004) specifies 6 main directions to develop non-formal education (literacy, general level for education, re-providing education, providing profession, to provide professional skills, to support creative activities, to assist in self-study). 1.3 To improve the interest of A new form of service to deliver education to children out of formal education youth to study in school system, adults who have not acquire education, and people who wants to improve general education level without leaving the workplace or home has created 1.4 To prepare training “Gobi’s women” project implemented in 1992-1996 by UNESCO, and “Learn and materials to train teachers live” project implemented in 1997-2001 by UNESCO invested in 1.7 million USD and established Gegeerel NFE Centers in sums, districts, covered teacher’s salary, published over 30 books, manuals and involved 37,000 people in trainings. 1.5 To start trainings 1. In 1997, 6895 citizens participated in the literacy training and 3982 citizens become literate, in 1998 12931 citizens participated and 7066 citizens became literate. 2. For trainings to re-provide education, 3540 citizens participated in 1997 and 1479 citizens received education certificate, 4577 citizens participated in 1998 and 1728 of them received their education certificate. 3. In 1997, 992 core trainings of NFE organized for 47177 citizens, and 80259 citizens have participated in 1534 trainings in 1998. 1.6 To pilot in local sums for 2 Piloted this activity under the scope of “Gobi’s women” project implemented in years before replicating at 1992-1996 by UNESCO, and “Learn and live” project implemented in 1997-2001 the national level by UNESCO, and Gegererel centers have established starte functioning based on this project result.

31 Source: Directions, results and impact assessment on foreign aid and loans provided in education sector of Mongolia, and survey reports of the NCLLE 99

2 To provide 1.7 To establish national center By the order ot the Minister of Education (former name) 238 approved in the information on for non-formal education National Center for Non-formal education was established. social issues 1.8 To create a distance - FM radio stations were created in 5 aimags under the“ Learn and Live” through non- learning institution which formal education will link Mongolia to an and distance institution with better learning resource. 1.9 To train distance learning - One content one alternative literate on improving adult education through staff distance learning published. 1.10 To implement pilot distance - FM radio stations were created in 5 aimags under the“ Learn and Live” learning program: prepared and aired 42 radio lessons. Classroom anchor, instructor, and teacher’s training, program on agriculture, health and citizen’s education 1.11 Assess the expenditure and 1.7 million USD investment of “Learn and live” project implemented in 1997-2001 efficiency of the piloting by UNESCO program

100

ANNEX 7. IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (2000-2005) № Goal Set objectives Reached results (proof source)32 Reasons for no results

1 Strengthen 1.1 Training to build the As of 2006, life skill training designed for teachers of NFE, training for NFE, training for the central capacity of education the methodologists of NFE, 3 types of training 11 trainings for teachers of multi-grade and rural sector human resource, to teaching and 282 teachers and methodologists have participated.33 non- conduct survey to formal identify the needed education equipment, training centers materials 1.2 Provide necessary Studied experience of Philippines on equivalency program, module development, training equipment and training forms and methodology. As the result developed 138 modules of equivalency program of materials, retrain the staff elementary, basic and complete secondary education. and build capacity During 2003-2008, International development agency and NGOs have spent 602.8 thousand USD regarding the NFE, of which 202.4 thousand USD or 33.6 percent were for building capacity, 251.3 thousand or 41.6 percent for developing, publishing and disseminating of training materials, remaining 149.1 thousand USD or 24.7 percent utilized for conducting studies and monitoring and supplying tools and equipment.34 1.3 Prepare staff of urban and Participated in 7 international meeting, seminar, experience exchange workshops. rural NFE and retrain 282 teachers were retrained in 11 main trainings throughout 2005-2006 academic year.35 1.4 Organize seminar and Developed the program for concept, need, goal, objectives, content, structure of national program “Equivalency program of elementary and basic education” and organized an introductory regarding non-formal meeting for 30 members of implementing team, education 30 people participated in a discussion meeting on ‘how to deliver knowledge, skills and habits to prevent from HIV/AIDS based on life skills for out of school children, youth and adults, and on how the training materials, content, form and design should be’. Organized a mini conference on “Online training for development of the country”. 1.5 Will implement non As the result of many projects implemented during 2004-2008 by UNESCO such as formal education and “Providing literacy through distance training”, “Promoting life-long learning through distance training project

32 Source: Directions, results and impact assessment on foreign aid and loans provided in education sector of Mongolia, and survey reports of the NCLLE 33 Annual operational report of the NCLLE 2006 20 years of NCLLE anniversary book 34 Report of the National program on Literacy education 2004-2012 35 Annual operational report of the NCLLE 2006 20 years of NCLLE anniversary book

101

with support of equivalency program”, the reserve of current training materials have been created (Annex diversified and bi-partite 6). agencies. 2 Organize 2.1 Define content and In 2006, based on indicator of low literacy level and high school drop-outs, 933 people from training to methodology based on 30 sums of 6 aimags involved in a need assessment to “Identify the adult literacy level”. 31 develop NFE in particular age of the survey participants were local authority and directors of high schools, 46 were NFE curriculum difference (children, teachers and 856 were adults. Out of these people 20,9% did not attend any school at all, and adults etc), sex and and 45% were dropped out of school from the elementary school36. methodolo education status(school gy drop-out, graduation), to carry out study to define the current situation and future tendency 2.2 Pilot and implement Implemented the 2nd phase of “the National program of distance training”, and 1st phase of In 2008, independent “Education content and methodology “the National program on Literacy education”, also developed and approved the channel” was established aired “Equivalency training program for elementary, basic and incomplete secondary education”. several hours of lessons on education Within the scope of this work, prepared modules, organized activity to disseminate to local channel during the incidence of H1N1 level and pilot. Also, with support of UNICEF “NFE/ multi-grade teaching” project was virus in 2009, the work was organized implemented. by the National center for NFE and Distance learning. The main goal of the TV is to deliver education service through distance training throughout the country, but the TV transferred under ownership of private property, the main direction of TV has changed. “Piloting a new approach of distance training using technology development” project started. It was aimed at conducting distance training by combining 3 type of technology TV, Internet, and mobile phones. But the national center of NFE and DT did not implement this project, transferred to different organization as result of tender.

36 Report of the National program on Literacy education 2004-2012 102

3 To create 3.1 To study and assess the As the result of program implemented by the Government such as “Online Mongolia”, any distance environment to conduct educational institutions and schools in our country have supplied with necessary equipment training distance training in as computers and projectors, also connected with one of the most important communication network Mongolia /this tool the internet network and accelerating the use of the internet in trainings. information will be used to develop national The MoECS have established classrooms in 12 aimags which aret fully equipped with tools policy/ needed for distance training and it had big influence on forming the current system of distance learning. As the result, possibilities to improve the knowledge and skills of doctors and teachers without removing from the workplaces, as well as to organize video lesson at the national level on cross cutting issues. As of 2006, all the aimags have connected to the distance training system, and became possible to organize post diploma training on integrated network, and to conduct teleconference on social and economic challenging issues of the country.

During 2005-2010, a set of equipment and materials were supplied to Gegeerel non-formal education centers of 13 sums and 1 district from NCNFEDE under the MoECS also computer, printer, TV were supplied to 29 sums and 6 districts with support of foreign project and programs (Report of National program on Distance training, 2002-2010), as the result, it was possible to prepare and copy necessary training materials for distance training at the local level. The Government of Mongolia has implemented a project “Providing comprehensive social service to Mongolian rural population” and strengthened the technical base for Gegeerel centers of 20 sums in Bayan-Ulgii, Dornod, Uvs, Khovd, Khuvsgul aimags. Technical environment have been created by operating the website of NCNFEDT and domain address “nfde” at the aimag and district level. The website contains various of information, reports, manuals, audio and video lessons regarding the non-formal education which are openly accessible to public. This created opportunities for open distance learning system. Also, specialists responsible for non-formal education at aimags and districts have “nfde” mail address which allowed them to communicate the central organizations of profession and methodology and to exchange their experiences.

Besides improving the existing technical environment and training equipment for distance learning, organizing trainings through radio and TV channel. In particular, aired 10-20 minutes of radio program per week on regular In Khentii aimag, Teachers of Teacher’s college joined the computer and TV distance training team in Dornod aimag. Organized distance training on health, ecology and law in Gobisumber aimag. Prepared 30 minutes of TV program and organized distance training on regular basis on local TV in Bayankhongor aimag, 2 hours of training hour per week in the local radio of Umnugobi aimag, Munkhnaran. TV program to improve citizen’s education was prepared and aired

103

every 7-14 days since 2005 in Tumentsogt, Khalzan, Naran, Baruun urt sums of Sukhbaatar aimag. Report of National program on Distance training, 2002-2010. 14 In particular, “Meaning of Positive living” life skill radio training was conducted in Orkhon aimag, involved 1000 people, also FM-107.6 operated under the Education and Culture department of the aimag and prepared and aired training program called “Contribution to the development of Khangai region, Erdenet. Prepared 60 hours of radio lessons on “Food hygiene, consumer for your education” with cooperation of “Bayanbuural” local market of Bayankhongor aimag, also aired a radio lesson on child labour for parents together with the FM radio of the aimag. Established “Education” studio under the Education and culture department of aimag and operating open elementary school In Darkhan-Uul aimag. In particular, developed 16 electronic lessons with objective to develop teachers without diverting from their work by organizing tele lesson, interview, exchange information through online with Education studio which equipped with modern technique and tools. Improved the capacity of 68 English language teachers through “Arkhangai express” newspaper which issued by the Peace corps in Arkhangai aimag. In Uvurkhangai aimag, organized a radio lessons for 278 herders children aged 5-6 who do not attend kindergarten. In addition, every year a progress made in improving the technique environment of distance training. However, technical environment for providing non-formal education through distance learning is not create sufficiently. 3.2 To solve and coordinate Ensured the 2nd stage of implementation of “the National program on Distance training”. the cooperation and equipment of distance training at national, regional and local level 3.3 To incorporate the National program on Distance training 2002-2010 national infrastructure development plan with distance training policy 3.4 To create distance A new form of service to deliver education to children out of formal education system, training network which adults who have not acquire education, and people who wants to improve general education covers broader range of level without leaving the workplace or home has created; Mongolian Distance training form, methodology, training aids using the radio, TV, Internet has been communication, national created;37 and local radio, TV and other media

37 Summary of final report of 2014 on “Impact assessment, foreign loans and assistances provided to Mongolia in education sector, 104

3.5 Receive loan and grant Funding from International organization’s project and program 80,0 (million Tug)38 from International donor organizations

Education sector planning fund during 2000-2005: - For strengthening the capacity of non-formal education center of local and the center – 695,000$ - For development of training curriculum, methodology and trainings – 700,000$

38 20 years of anniversary book of NCLLE 105

ANNEX 8. “IMPLEMENTATION AND RESULT OF THE EDUCATION SECTOR MASTER PLAN (2006-2015) Financing of non-formal education, national center for distance learning, sums, district’s non-formal education center will be increased by 8 percent every year. Cost for improving the capacity of non-formal education teachers will be reflected in the integrated in the professional upgrading cost and will be financed every year.

Indica Goal Set objectives Reached results (proof source) Reasons for no tor reasons achieved

1. Improve 1.1. Improve the literacy As the integrated result of the “Population and household census” 2010, 159726 or accessibility of rate up to 97.7-99.0 7.45 percent of the population with age of 10 and above were uneducated, of which adult education percent in 2009. 36519 or 22.8% were illiterate. Comparing to the census of 2000, the number of service and NFE illiterate population increased by 2508 people (number of illiterate people were which provide 34011 in 2000) which is not bad indicator and it means it is a increase comparing to continious the population growth. In particular, population has increased by about 380 thousand education service people since 2000 and the number of uneducated people in 2000 were taking up

that meets the need 11,6% of the total population, while in 2010 this indicator decreased down to 7,5%.

of living and Literacy rate of population aged 15 and above was 97,8% in 2000, but increased up studying of to 98,3 in 2010. In other word, illiterate population with age of 15 or above was population taking 2.2% of that age population, in 2010 decreased down to 1,7%39. Literacy rate is 98.46%.40 1.2..Increase the number of According to the UNESCO statistics, literacy rate of women at the national level illiterate female who 98.91%, male literacy rate 98.2%.41 participate in non- 232 printed materials, handbook, 102 types of 3803 minutes audio and video lesson formal education, developed for the post literact stage.

COVERED TRAINING Gegeerel development centers by 75.2 percent 1400 teachers were trained as national trainer for literacy and 2873 teachers at aimag reach 99.0, and and district level, overall 4273 teachers participated in profession upgrading percentage of male training.42 illiterate by 59.5 and 7379 people in 2006 , 9718 people in 2007, 10181 people in 2008, 9631 people 2009, reach 99.0. 9359 people in 2010, 10574 people in 2011, 10225 in 2012, 3413 people in 2013, 3228 people in 2014, 4342 people in 2015 and 3381 people have participated in literacy education training the in the academic year of 2015-201643. Overall 78040 people have participated in literacy training and of which approximately 62% were

39 www.nso.mn, Result of Population and household census 2010 40 UNESCO statistical information 41 http://www.mn.undp.org/content/mongolia/en/home/countryinfo.html 42 National program on literacy education (2004-2012) 43 20 years of anniversary book of NCLLE 106

male and 38% were female. /Survey by the gender is not conducted In other countries, only on average female and male participants were surveyd in 2013,2014/. As of January 2015, it is 2.5 percent of the total population comparing with Mongolian population is reached 3 millions and remaining 97,4% were literate population which is close to statistical information of UNESCO. 1.3. Provide education 12343 children in 2006, 8775 in 2007, 5360 in 2008, 4373 in 2009， 3248 in 2010 , Besides school age through non-formal 2749 in 2011, 2332 in 2012 and no dat in 2013, 1169 in 2014, 612 children in 2015 children also adults education and equivalency or approximately 40961 children dropped out of school in these years.44 participate in EPT program to 40 percent of 8672 students in 2006, 10398 in 2007, 12496 in 2008, 11668 in 2009, 12024 in 2010, and there is no survey General school dropouts. 12200 in 2011, 11636 in 2012, 10019 in 2013, 10156 in 2014, 10427 in 2015 and conducted that overall 100316 students have participated in EPT. classified the adults According to the survey conducted in 2017-2018, 7947 citizens have participated in and school age EPT and of which 4003 citizens or 50,3% were children below 18, and remaining children who 3944 or 49,7% were adultsi. According to the survey of 2018-2019, 7296 citizens participated in the have participated and of which 3964 citizens or 54,3% were below children 18 years EPT during 2006- and remaining 2324 or 45,7% were adults. This shows that about 50% of EPT 2015. participants were school age children and if approximately 100316 students involved in EPT during this period and of which 50% were school age, which means trained school drop-out children 100%. 1. Improve training 2..1. Increase the financing Variable cost of EPT has been provided since 2007 and it was 1,900.9 million This reason for quality and of National center for tugrugs. Since then has been increasing slightly provided ,110.87 million tugrugs objective did not environment all all non-formal education from state fund in 2016 which took about 0.04% of the state revenue; and 0.38% of achieve is that level of NFE, and and distance training the education sector revenue. Annual funding of NCLLE is 189,52 million MNT and understanding about improve the and gegeerel which took about 0.02% of education sector. LLE was poor at all capacity of human development, non- Source: State revenue funding of 201645 level and the sectoral resource formal education ministry has been center of sums and only paying attention districts will be to formal education, increased by 8 percent poor intersectoral QUALITY every year. coordination, unstable administration and management. 2.2. Profession upgrading Teachers of LLE centers are specialized in certain professions and they have to No system cost for the non-formal upgrade according to the main profession, the budget sets in the Teachers’s established for education teachers will professional upgrading fund. upgrading profession

44 Statistical data of MoECS 45 Financial report of every year 107

be included in the Under the activities carried out by UNICEF, UNESCO, WVI, MAD project, through LLE, no integrated expenditure International Labour Organization, UNFPA, Japan Save the children, Sustainable expenditure set in the of profesion upgrading development education, there were 2755 teachers participated in 41 trainings by budget to upgrade and will finance every dublicated number, 1124 teachers have participated in 14 times of profession profession besides the year. upgrading trainings and imporved their knowlede. main profession. Therefore, teachers of LLE cenetrs participate in capacity building trainings organized by international projects and programs which is not organized on regular basis.

2.3 Will create Organize activities to get acquinted with the function of LLE centers in aimags and methodology, criteria districts, to carry out monitoring and evaluation on equivalency program training, for information, and provide consultancy for literacy and LLE trainings and activities.46 monitoring and evaluation. 2. Modify policy and 3.1. National system for The work to create online database of National center for NFEDL started However, since 2016 strategy of NFE information, implementing since 2007 and updated the Engine Education V1.0 database software the Education sector and create monitoring and in 2009, and established a working group to registed the data of LLE. Software of Training Database information and evaluation for non- the database was developed with 16 types of 154 data and integrated data on under the MoCS financing system formal education will trainings of LLE, students, sectoral teachers and staff. For example: 2014 report started to enter data of be established. study form of Educational global monitoring and evaluation was filled out and LLE and the database uploaded in the https://www.surveymonkey.com/s/EFAReport_English site.47 update at the center In 2015 collaborated with Innovation and high technology department under the have stopped. MoCS, “Erden net, “Linking Engine” LLC, and introduced the intergrated database

MANAGEMENT registration software of LLE centers of 21 aimags and 9 districts with support of UNICEF and the centers entered the data themselves and creaded the database of LLE.

46 Annual report on operation of the NCLLE 47 Implementation report of National program of Literacy education (As of the end of 2014) 108

ANNEX 9. CAPACITY BUILDING TRAININGS FOR TEACHERS OF LIFE-LONG EDUCATION (2014-2018)

Aimag Capital city Directions Capacity building trainings for teachers of LLE Year Number of teachers

1 Providing lifeskills education“ training under the ”Youth development“ project 85 - 2015 2 Capacity building trainings for teachers of life skill rooms 25 - Capacty building training for staff of “Regional methodological centers” which established under the “Life 3 2016 15 - skills room” Lifeskill 4 Health, reproductive health and sex education - 8 education 2017 5 Training for trainers who will provide financial education to local citizens 142 -

6 Training for trainers who will provide financial education to local citizens 221 - 2018 7 Aging education and need and features of education for elderly 50 15 Total – 565 538 27 1 Capacity building training for teachers of LLE centers on family education 2015 - 100 2 Training on “Providing skills to give phsycological advise to family and children” - 3 Family education 2016 3 Training on “Methodology to work with family” - 10 4 Methodological training on “Developing family education training curriculum” 2018 19 8 Total – 140 19 121 1 3 stages of training “Sustainable development education” to prepare national trainers 2015 25 - Citizen’ 2 Training to prepare national trainers of sustainable development education 42 - education 2016 3 Training for directors of aimags and districts under the SDE project 22 8 Total - 97 89 8 Training to prepare “Trainer of socializing circus” Esthetics 1 2015 - 30 education 2 “Training to prepare “Trainer of socializing circus” 2018 - 20 Total – 50 - 50 “Role of local authority in re-providing Elementary education” training and seminar Equivalency 1 - 50 2015 program 2 Training on “planning the unit lesson of mixed group” - 13

109

Methodological training on developing training curriculum of “multi-grade teaching of Japan and planning 3 - 29 of the unit lesson” 4 Capacity building training for local techers of LLE 2016 33 - 5 Methodological training of multi-grade teaching 2017 198 - Regional training on “Methodology to organize equivalency program training of elementary, basic and 6 2018 391 - incomplete secondary education by mixed group” Total – 714 622 92 1 Training on “Education of mentally disabled children 2016 - 3 2 “Training on “Building capacity to work with children with disability” 2017 25 - Equal education “Training on “Building capacity to work with children with disability” involvement 3 - 50 2018 4 Methodology to organize equivalency program training for special need children by multi-grade teaching 22 - Total – 139 47 53 Training and seminar on “Providing support in improving education service for local citizens to study 1 2014 - 90 continuously, improve public perception and understanding on implementing child protection policy 2 Experience exchange training on “Lifelong education tendency” 257 - Other 3 Training on “Lifelong education database” 2015 - 30 4 Training on improving the information and technology knowledge of teachers in LLE of the capital city - 46 5 Training on upgrading the knowledge and improving the skills 19 - 2017 6 Methodological training on conducting studies and processing 21 8 Main areas 1 Regional training on “Current situation of life long education and future tendency 2015 236 - Total - 707 533 174

Total – 2404 1848 525

Legal basis for non-formal education sector 110

Legislative basis of LLE sector Directly implement in LLE service Not-directly related to LLE service - Mongolian Constitution - Law on Education 1. Policy direction - Mongolian Sustainable - Master plan to develop Education sector of - National Policy on Ecology” (1997) development program of 21st Mongolia 2006-2015 - Green development policy century МХ-21 - National Program to provide basic education to (2014-2030) - MDGs based Comprehensive public (1995-2005) - Guideline to involve children at age of basic education in National Strategy, 2007 - National program to “Develop non-formal education service (2008) - Mid-term strategy of the education” (1997-2004) 2. National Program Government of Mongolia (1998- - National program of Distance training (2002- - Public education on ecology (1998-2005) 2000) 2010) - National program on preparing elementary and secondary - The Action program of the - National Program on Literacy education (2004- education teachers and specializing (2001-2010) Government of Mongolia (2004- 2012) - National program on improving child development and 2008) - National program on education (2010-2021) protection (2002-2010) - Strategic document on promoting - Sample rule of Gegeerel center - National Program on ensuring gender equality (2003-2015) economic growth and poverty (2003, 2010) - National program on Morin khuur, long folk (2005-2014) reduction (2003) - Sample job description of the director or - National Program on promoting youth development (2007- - Elementary, secondary education Gegeerel center (2007, 2010) 2015) standard 2004 - Job description of NFE teachers (2003, 2007, - Program on promoting teacher’s development, Government - Implementation plan of the Action 2010) (2008) program of the Government of - Job description of NFE methodologist (2003) - National Program on Mongolian Script II (2008-2015) Mongolia 2012-2016 - Equivalent program of elementary, basic and - Program on Mongolian traditional Bi Biylgee (2009-2014) - Basic Guidelines for 2014 Socio- complete secondary education (2005) - National Program on English Language Education (2009-2020) Economic Development - Regulation on equivalent program of - National Program on preventing from accidents and violence - State Policy on Education (2014- elementary, basic and complete secondary (2010-2016) 2024) education - National program on Promoting Household Development - Mongolian Sustainable (2007, 2018) (2012-2015) Development Vision -2030 - Guidelines to plan, assess and evaluate the - Teacher development program (2012-2016) - Implementation plan of the Action work of non-formal education teachers (2009) program of the Government of - Policy on non-formal training (2010) - National program on eliminating worst forms of child labour Mongolia 2016-2020 - Example plan of non-formal education (2010) (2012-2016) - Parliament Resolution # 46 on - Training curriculum /Life skill based literacy - National program on “Employed Mongolian with income” (2013- “Some measures to implement training, multi-grade teaching, non-formal 2016) the Law on Rights of People with education life skill training, non-formal - Right Mongolian Children National program (2013-2016) disability” education health training, training to prepare - Program to improve basic financial knowledge of public (2016- non-formal and adult education teachers / 2021) (2010) - National program on Biology species (2016-2025) - Guideline to operate a Hall which designed for - National program on child development and protection (2017- life skill based health education (2015) 2021) - National program on Gender equality (2017-2021) 111

- The Rule of NCLLE, directions for LLE, - National program on Sustainable development education structure and management of NCLLE, and job (2018-2022) description of the director for NCLLE. Order of - National program to improve public legal education (2018-2023) the Minister of Education, Culture and Science 3. Regulation #A/242 approved on 19th of June 2013. - Regulation on organizing alternative training of pre-school education, literacy and citizen education training at bag level (2008) - Regulation to assess and evaluate the work of teachers of general education school (2013) - Regulation on evaluating the students and training quality of general school education (2018) - Regulation on involving the children who became victim of domestic violence in continuous basic education service (2018)

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