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Bangladesh Primary Education Bangladesh Primary Education Stipends A Qualitative Assessment iii Government of the People's Republic of Bangladesh Directorate of Primary Education Bangladesh Primary Education Stipends A Qualitative Assessment Bangladesh Primary Education Stipends : A Qualitative Assessment First Published : November 2013 © Directorate of Primary Education (DPE), Power and Participation Research Centre (PPRC), and UNICEF Bangladesh, November 2013 All rights reserved. No part of this report may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage or retrieval system, without permission in writing from the publishers. Directorate of Primary Education (DPE) Mirpur-2, Dhaka-1216, Dhaka, Bangladesh Telephone: +880-2-8057877 Fax: +880-2-8016499 Email: [email protected] Website: www.dpe.gov.bd Power and Participation Research Centre House 77A, Road 12A, Dhanmondi R/A Dhaka 1209, Bangladesh Tel. +880-2-8119207, 9118880 Fax: +880-2-8144379 Email: [email protected] Website: http://www.pprcbd.org/new/ UNICEF Bangladesh BSL Office Complex, 1 Minto Road, Dhaka-1000 Telephone: +880-2-9336701-10 Email: [email protected] Website: www.unicef.org.bd This publication is available in the websites of DPE < www.dpe.gov.bd >, PPRC <[email protected]>, and UNICEF Bangladesh <www.unicef.org.bd> ISBN: 978-984-8969-16-8 Cover design : Khondoker Shakhawat Ali Cover Photo: UNICEF/Siddique Inner design : ShikkhaBichitra, 196/3, Shantibag, Malibag, Dhaka-1217, Acknowledgements The study was undertaken collaboratively and the report was jointly produced by the Directorate of Primary Education, the Ministry of Primary and Mass Education, the Power and Participation Research Centre and UNICEF Bangladesh. The purpose of the study was to assist appropriate programme and policy reforms in the primary education stipend programme for the new phase of the sector-wide Third Primary Education Development Programme (PEDP3). Contributions in conceptualization, analysis and report preparation were received from the following officials and experts: Directorate of Primary Education and Ministry of Primary and Mass Education S.M. Ashraful Islam, Additional Secretary; Md. Serajul Huq Khan, Additional Secretary; Irtiza Ahmed Chowdhury, Project Director, Primary Education Stipend Programme (PESP); and Imtiaz Mahmud, Deputy Chief, Planning. Power and Participation Research Centre (PPRC) Hossain Zillur Rahman, Executive Chairman; Liaquat Ali Choudhury, Senior Research Fellow; Syed Ziauddin Ahmed, Director, Resource Planning and Khondaker Shakhawat Ali, Research Fellow. UNICEF Bangladesh Isa Achoba, Chief, Social Policy, Monitoring and Evaluation; Mohammed Shafiqul Islam, Social Policy Specialist; and Shantanu Gupta, Monitoring and Evaluation Specialist. Special thanks are also due to Billal Hossain, Masudul Huq, M. Billah Faruqi, Nurul Momen. Mohidur Rahman Khan, Nurul Anwar, Subodh Chandra Sarker and Iftekhar Ahmed of PPRC for facilitating data collection, data processing and data management. Foreword Inclusive primary education has been a policy priority of all governments of Bangladesh since independence. The Primary Education Stipend Programme (PESP) has been one of the key instruments to advance the causes of this national policy goal. The PESP has evolved in targeting and scope over the past decade, currently reaching 7.8 million children per annum, drawn largely from poor households with cash incentives to reduce schooling cost. Various studies during the preceding decade underscored the PESP's important role in increasing enrolment and reducing, albeit slowly, the drop-out rate, which remains a critical challenge in primary education. Poised to complete its second five-year phase and as the primary education sector as a whole embarks on a new round of reforms and targets through the Third Primary Education Development Programme (PEDP3), it is timely that an in-depth analysis of the PESP be undertaken jointly by the Directorate of Primary Education (DPE), the Ministry of Primary and Mass Education (MoPME), Power and Participation Research Centre (PPRC) and UNICEF. Going beyond the limits of usual impact analysis, this study has utilized a variety of qualitative research instruments to establish the ground realities vis-à-vis PESP operation and has engaged the critical range of stakeholders composed of key duty bearers and rights holders to assess strengths and weaknesses and identify the reform priorities that can further enhance the role of PESP in accelerating inclusive primary education. It is indeed a matter of concern that rising costs of schooling are impacting on the ability of poorer families to avail themselves of the opportunities of primary education. The opportunity cost of schooling is particularly significant for the students of the higher grades of 4 and 5 and their families. While Bangladesh does not charge tuition fees for primary schooling, the entrenched problem of drop-out is a consequence of user costs among several other barriers. A particular strength of this study has been to provide innovative and credible analysis of these and related factors and to indicate where reform actions may bear the optimal dividend for Bangladesh's inclusive growth. viiiviii BangladeshBangglladdeesh PrimaryPrimarryy EducationEEdducation StipendsStiippenddss : A QualitativeQualittaative AssessmentAssessment TheThe partnershippartnership thatthaatt ledled toto thisthis studystuddyy andaannd itsits ensuingensuing findingsffiindings aan andnd rrecommendations,ecommendaattions, i iff i implemented,mplemented, d demonstrateemonstrate t thehe v valuealue o off a s socialocial eector-ledctor-led aap approachpproach toto c child-sensitivehild-sensitive s socialocial p protectionrotection i inn thethe c country'souunntrryy's mmoveove t too m middleiddle i incomencome s status,tatus, w withith e equityqquuity i inn e educationalducaattional o opportunitiespportuunnities ffoforor a allll c childrenhildren i inn B Bangladesh.aanngladesh. WWee h hopeope t thishis r reporteport w willill b bee aan n i importantmportaannt a additionddition t too t thehe r richich b bodyoddyy o off aanalysisnalysis ffo focusedocused o onn P PESPESP a andnd t thehe t themeheme o off i inclusivenclusive p primaryrimary eeducationducation aan andnd b bee usefuluseffuul toto p policyolicy m makers,aakkers, a agenciesgencies aan andnd a academia.cademia. MMostost i importantly,mportaanntly, w wee h hopeope t thathaatt t thehe aan analysisnalysis a andnd r recommendationsecommendations eemergingmerging ffr fromrom t thehe s studytudy w willill spurspur ffr fruitfulruitffuul a actionsctions t too consolidateconsolidate aan andnd ffufurtherurther s strengthentrengthen t thehe i importantmportaannt r roleole ofof P PESPESP i inn t thehe p promotionromotion o off iinclusivenclusive primaryprimaarrryy e educationdduucaattion t thathaatt h hasas b broughtrought B Bangladeshangladesh j justifiableustiffiiaabble ggloballobal r renown.enown. Shyamal Kanti Ghoshh HossainHossaiain ZillurZillur RahmanRahman PascalP Villeneuve DirectorDirector GeneralGeneral ExecutiveExecutive ChairmanChairmaann RepresentativeRepresentative DirectorateDirectoraatte ofof PrimaryPrimaarry PowerPower andaannd ParticipationParticipaattion UNICEFUNICEF BangladeshBangladesh EducationEducation ResearchResearch CentreCennttre Contents Acknowledgements v Foreword vii List of Tables xi List of Figures xi Abbreviations xiii 1 Introduction 1 1.1 Inclusive primary education: A policy priority 1 1.2 Mixed balance sheet on achievements 2 1.3 Distinguishing features of PESP 3 2 Rationale of study, scope and research strategy 5 2.1 Rationale of study 5 2.2 Scope 6 2.3 Research strategy and methodology 6 3 PESP in operation: A reality check 11 3.1 Success in coverage and geographic targeting 11 3.2 Selection: Low inclusion error 12 3.3 Disbursement: Low leakage but transaction burdens 12 3.4 Changes in the real value of the stipend 14 3.5 Stipend spent on student, not family 16 3.6 Stipend, opportunity cost of schooling and drop-out dynamics 17 4 What has the stipend achieved? 23 4.1 A branding success 23 4.2 Impact 25 4.3 Spillover effects 29 4.4 Is the stipend adequate? 31 5 Conclusion 37 References 41 Annex-1 43 List of Tables Table 1 : Primary school completion rate, 1991 and 2010, Bangladesh 3 Table 2 : Bangladesh PESP school survey: Sampled area location 7 Table 3 : Scope of FGDs in school survey, Bangladesh 2013 8 Table 4 : Scope of interviews and case studies in school survey Bangladesh 2013 9 Table 5 : Primary stipend coverage in 2011 and 2013, Bangladesh 11 Table 6 : Changing value of primary stipend 2003-2012, Bangladesh 15 Table 7 : Items on which stipend is utilized, Bangladesh 2013 16 Table 8 : Opportunity cost of schooling: Average child wages in typical rural Occupations insights from FGDs, Bangladesh 2013 18 Table 9 : Drop-out dynamics: Two case scenarios, Bangladesh 2013 20 Table 10 : Parental aspiration on children's education, Bangladesh 2013 24 Table 11 : Perceptions on outcome impact of stipend programme: Insights from triangular FGDs, Bangladesh 2013 26 Table 12 : Average annual cost of primary education: Findings from student FGDs, Bangladesh 2013 32 Table 13 : Rural average annual cost of primary education: Findings from student case studies, Bangladesh 2013 32 Table 14 : Average annual household costs of primary education (grade 4 & 5), Bangladesh 2013 33 Table 15 : Options of adjusting primary stipend, Bangladesh 2013 35 List of Figures Figure 1: Trends
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