Fostering Inclusive Education in Pakistan: Access and Quality in Primary Education Through Community School Networks

Home , Academy, Disability in Pakistan, Education in Pakistan, Primary education, Primary school

WORKING PAPER 6

NOVEMBER 2012

GLOBAL SCHOLARS PROGRAM WORKING PAPER SERIES

Fostering Inclusive Education in Pakistan: Access and Quality in Primary Education through Community School Networks

Khadim Hussain GLOBAL SCHOLARS Khadim Hussain is a guest scholar of the Center for PROGRAM WORKING Universal Education at The Brookings Institution. PAPER SERIES

This working paper series focuses on education policies and programs in developing countries, featuring research conducted by guest scholars at the Center for Universal Education at Brookings. CUE develops and disseminates effective solutions to the challenges of achieving universal quality educa- ACKNOWLEDGEMENTS tion. Through the Global Scholars Program, I would like to graciously thank Rebecca Winthrop guest scholars from developing countries and her dedicated team, Xanthe S, Ackerman, Robin join CUE for six months to pursue research Forner, Jenny Alexander, Lauren Greubel, Kate An- derson Simons, Vidya Putcha and Elena Matsui at the on global education issues. We are delight- Center for Universal Education at The Brookings In- ed to share their work through this series. stitution, for the opportunity to work in a friendly and inclusive environment while conducting this research on fostering inclusive education in Pakistan. I would also like to thank Elena Anderson-De Lay and Laura Mooney at Brookings for their kind support as well as my fellow guest scholars, Abraha Asfaw and Urvashi Sahni, for the guidance they have provided during this program. Additionally, I wish to thank my friend, Lauren Salathiel, for her online assistance as I conducted my research.

To my team at GRACE Association, Pakistan, I extend special thanks to Saba Quadir, Shamshad Hussain, Muhammad Qasim, and Nisar Hussain as well as my colleague, Imran Nazir Rana from Pakistan, for their support and input.

Last but not least, I want to acknowledge the precious time and feedback of many great people I met with during networking meetings in Washington, D.C. and New York. Though it is not possible to incorporate all of their feedback into this paper, I must acknowledge and appreciate everyone’s generosity and eagerness to further education around the globe, especially for marginalized people. CONTENTS

Introduction ...... 1 The Issue ...... 2 Case Study: A Success Story from Gilgit-Baltistan ...... 5 What Is Needed ...... 8 Conclusion ...... 16 References ...... 17 Endnotes ...... 19

FIGURES

Figure 1: The Governance Structure of Community School Networks ...... 13

Fostering Inclusive Education in Pakistan: Access and Quality in Primary Education through Community School Networks

Khadim Hussain

INTRODUCTION differences must be incorporated into the Education is the most important factor in national education goals through inclusive any country’s social and economic develop- education. No country can reach econom- ment. It builds human capital by producing ic success and prosperity when excluding informed and productive citizens. Education over half its population. creates opportunities for marginalized and socioeconomically disadvantaged communi- It has become increasingly evident that schools ties to escape poverty. A well-educated com- and communities must work in collaboration munity promotes peace and leads towards to achieve their mutual objective of a high- prosperity. It is critical that countries estab- quality education for all. This paper shares the lish, and work toward, national and inter- success story of the grassroots community or- national educational goals to educate their ganization GRACE Association, which works youth with the knowledge, attitudes, skills to educate girls and children with disabilities in and competencies they need — free of dis- northern Pakistan. GRACE Association makes crimination based on gender or ability — to the case that in order to foster inclusive edu- contribute socially and economically to the cation in low-income developing countries like nation’s well-being. Pakistan, there is a need for community school networks (CSNs) in order to improve school Women and people with disabilities are quality and accessibility for all children. still at a severe disadvantage in many parts of the world, especially in Pakistan. There- Research shows that the CSN model is a fore, gender disparities and sociocultural catalyst to address factors that prevent girls

Global Scholars Program Working Paper Series 1 and children with disabilities from access- read letters words and sentences of their text ing their fundamental right to public educa- books.3 The 2011 study in found that half tion. This paper outlines how CSNs create of grade 5 students were not able to read a collaborative structure that decentralizes a story and only 37 percent of grade 3 stu- power and increases community participa- dents were able to read a sentence.4 tion by distributing resources and enhancing schools’ capacity to enroll all children Girls’ opportunities for education are grim and improve learning outcomes. in Gilgit-Baltistan. Girls account for 57 percent of children excluded from primary THE ISSUE education.5 Girls from remote rural villages Educating Girls and Children with in the mountainous region face significant Disabilities in Gilgit-Baltistan: The barriers due to patriarchal beliefs, poverty, State of Inclusive Education inadequate government policies, poor- quality education in both public and private Pakistan — the world’s sixth largest country, primary schools, bureaucratic attitudes, with a population of more than 180 mil- widespread hierarchy in education systems lion — has 7.3 million primary school-age and a lack of facilities. children out of school, more than any other country in the region. A 2011 UNICEF re- In many rural villages of Pakistan, girls are ports states that “if progress is not acceler- often not allowed to attend schools due to ated, even more children will be out of school male-dominant environments and cultural by 2015.” Due to widespread illiteracy — just sensitivities that support the misconception 56 percent of the population can read — that education is not beneficial for women. In Pakistan is not able to fully leverage its hu- remote villages, where subsistence farming is man capital.1 Pakistan’s government expen- usually the only means of survival, families of- diture on education, 2 percent of its gross ten can only afford to send one child to school, domestic product, is among the lowest in the and thus typically send the boy because he is world.2 Corruption, a lack of political will, a considered the future breadwinner. Girls’ con- centralized governance system, poverty and tribution to the household is seen as “running civic unrest have resulted in a Pakistani com- the stove.” Furthermore, families commonly munity that does not participate in, nor feel believe that daughters are others’ property any sense of ownership over, programs and since they will marry out of the family and end projects related to their children’s education. up contributing their future husband’s household. Thus, girls’ education is seen as an in- A survey report launched by South Asia Fo- vestment in someone else’s family. rum for Education Development found that the majority of primary school children as- Misinterpretation of Islam, which actually sessed in Gilgit-Baltistan could not even places equal importance on education of

Fostering Inclusive Education in Pakistan: 2 Access and Quality in Primary Education through Community School Networks both males and females, also hinders girls’ Inclusive education is based on the notion access to education. In some villages, com- that all children — regardless of their gen- munities oppose education for their girls der, ability, ethnicity, language, religion, based on the belief that it is “sinful.” Ex- nationality, social origin or economic con- tremists bombed a girls’ school in Chilas, dition — should have access to “quality Gilgit-Baltistan Province, in 2011 because education that meets basic learning needs the school was seen as “haram” (sinful). It and enriches lives.”9 This goes beyond sim- had no boundary wall to protect it from the ply ensuring that children who are already eyes of male passers-by.6 Even in commu- able to access schools can do so. It is also nities where families are willing to enroll about governments, organizations, and their girls in school, attendance and reten- communities working to identify the barriers tion rates suffer if schools are located far that prevent would-be students from access- from girls’ homes because commuting time ing opportunities for quality education and could be otherwise dedicated to domestic removing obstacles that lead to exclusion. duties.7 Most villages have no schools for Girls and children with disabilities are at a girls, while they often have one or more particular disadvantage. In rural areas girls schools for boys. are responsible for household chores and caring for siblings. Early marriage is com- Government funds are not allocated to ad- mon, which also prohibits a girl’s education. dress girls’ issues, such as the need for sepa- rate toilets, boundary walls and female teach- The situation is particularly dire for the ers. The recent Pakistan Social and Living most marginalized — girls and children Standards Measurement Survey revealed that with disabilities — in the Gilgit Baltistan 40 percent of schools in Pakistan are without Province. Pakistan ratified the UN Con- boundary walls, 36 percent without drinking ventions on the Rights of People with Dis- water facilities, 61 percent without electricity, abilities and has included the right to free 39 percent without sanitary facilities and 6 basic education for all children in Article percent without any buildings. There is gen- 25a of the country’s constitution.10 Howev- erally a shortage of desks and chairs, and er, without the political will, a comprehen- some schools do not even have mats where sive action plan, effective implementation students may sit. Furthermore, the condition and community awareness of the right to of most coeducational primary level schools — and importance of — education for all is poor and most rural school buildings con- children, these documents fail to have any sist of a mixture of mud and wood.8 Schools real impact on the lives of those they were focusing specifically on special education are designed to benefit. found only in major cities. Inclusive education is a new concept to public and private Children with disabilities are the most seri- schools in rural areas. ously disadvantaged in terms of accessing

Global Scholars Program Working Paper Series 3 education. Parents and communities writ large with disabilities were less likely to enroll in often consider children with disabilities to be school than boys. incapable or unworthy of any education in the first place. Discriminatory social attitudes The Government of Pakistan is making ini- attribute shame, humiliation or disgrace to tial efforts to promote inclusion, such as a children with disabilities and their families. A fifty per cent discount for public transpor- child’s disability is perceived to be God’s pun- tation for people with disabilities. The gov- ishment for a parent’s sin. Children with dis- ernments at federal and provincial level are abilities are seen as better off at home than also encouraging international organiza- at school. These opinions are reinforced by tions to develop inclusive model schools in the poor quality of education offered at most the capital cities, but these efforts need to be schools for girls and children with disabilities. scaled up throughout the country. Furthermore, children with disabilities have needs which are not addressed in schools or Some of the main challenges to inclusive edu- elsewhere because of the shortage of skilled cation programs in Pakistan are the following: teachers and specialists and because of poor 1. Negative attitudes of parents, teachers, poli- 11 pediatric health services. ticians, services providers and community members towards children with disabilities; The lack of available data on prevalence of 2. Lack of parental awareness about chil- disability in Pakistan is a serious problem. dren with disabilities and their potential; No scientific study or survey has been done at the national or provincial level to com- 3. Accessibility of school buildings, class- prehensively assess the problem. The avail- rooms toilets, playground and transport; able data shows that people with disabilities 4. Biases in the curriculum, assessment, comprise at least 15 percent of Pakistan’s and examination system; population,12 but they are mostly unseen, 5. Limited financial resources; unheard, and fail to be considered in the 6. Inadequate support system including in country’s development and planning proj- sufficient trained and qualified profes- ects.13 According to the director-general for sionals, medical and paramedical staff; special education in the Ministry of Social Welfare and Special Education, there are 7. The need for continuous follow-up and 43,122 disabled children in special educa- monitoring of activities; and tion schools in the country, constituting only 8. The need for all stakeholders to share 4 percent of the total population of children experiences and provide support for with disabilities, as estimated in the 1998 implementation of inclusive education in national census.14 Research shows that girls letter and spirit.

Fostering Inclusive Education in Pakistan: 4 Access and Quality in Primary Education through Community School Networks CASE STUDY: conflict over the use of scarce natural resources is routine. A Success Story from Gilgit-Baltistan Citizens in the region face extreme inaccessi- bility to education, health and other social ser- Geographically remote Gilgit-Baltistan is situ- vices. The social status of women is extremely ated in the shadows of three of the world’s low; they are treated as servants, bearing mightiest mountain ranges — the Karakorams, the full burden of productive and reproduc- the Hindukush and the Himalayas. The entire tive responsibilities. Education is not a priority, region is known as “heaven on the earth” by especially for girls, and the few elite families climbers, trekkers, hikers and anglers,15 how- — those with exposure to other communities ever, its political status is still shrouded in uncer- — mostly choose to educate their sons. On the tainty due to the dispute over Kashmir between whole, communities are not aware of the con- India and Pakistan. The Pakistani government cept of “rights,” let alone the rights of women granted some “controlled” autonomy to the and other vulnerable groups, including girls. region as a semiprovince in 2009.16 Gilgit- As recently as 1992, it was considered sinful Baltistan’s population is currently estimated to educate girls in my 10,000-resident village at about 2 million people,17 scattered over an of Muntazarabad Kwardu. area of 72,496 square kilometers.18 Access to most communities is difficult due to the re- Growing up, six classmates and I attended gion’s terrain, which is comprised of towering school by traversing six kilometers every day. snow-capped mountains, rivers and streams, Due to my post-polio paralysis, my friends coupled with harsh climatic conditions and an carried me in a pushcart to school. My class- underdeveloped communications infrastruc- mates and I were aggrieved by the limited ture. This region is considered to be one of the number of children enrolled in the school least developed in Pakistan. and devised a plan to motivate parents to place greater value on education and literacy Villagers in Skardu, a district in Gilgit- and to send their children to school. We em- Baltistan, have lived in isolation from the barked upon an educational campaign, go- rest of the world, dedicating their indi- ing door-to-door to talk with parents about vidual and collective efforts to immedi- the importance of educating their children. ate survival, without the means to achieve We faced criticism and humiliation from sev- socioeconomic improvement or develop- eral influential citizens, notably the clergy ment. Subsistence agriculture accounts for who opposed the campaign. the livelihoods of most in the village. Crop production is limited by water shortages, The results of our campaign did not appear disease and inefficient farming practices promising at first, but our determined ef- for harvesting and processing. Meanwhile, forts worked over time and the number of

Global Scholars Program Working Paper Series 5 school-going children rose from seven to 40 We entered into a dialogue with community in one year alone. This achievement encour- members, youth, elders and other influential aged more parents to enroll their children, citizens. The community’s eager involvement especially their boys. With more students en- in the initiative created a need to establish a rolled, I helped establish a student organiza- community-based organization to formalize tion to inculcate the importance and need for decisionmaking and community ownership education among the community and youth. over the initiative. The student organization We undertook actions to enhance access to morphed into a large community organi- education, with girls’ rights to education as zation, Waliul Asr Falahi Anjuman (WAFA), the primary focus. In 1993, we established a which means “a community organization girls’ school, Al-Zehra Girls School Kwardu, under the supervision of our spiritual imam in a small room of a community member’s (leader) for welfare and development.” Un- house. It was the first public action by any der the umbrella of WAFA, the community group in the history of the town to make ba- donated land for the construction of a school sic education accessible to girls. In the first building. This was the first milestone in mo- year, only two girls enrolled. The entire com- bilizing the community to undertake a de- munity, particularly the community elders, re- velopment initiative. MARAFI provided PKR sisted the change. In spite of their hostility, we 350,000 (approximately U.S. $7,000) for continued our mission, and in the third year the construction of the school. The cost sav- 22 girls enrolled. ing from the voluntary labor provided by the community was invested in the construction We established a book bank and collected of an irrigation channel to transport natural textbooks from students as they graduated to spring water to the community to address wa- higher classes, then redistributed the books to ter shortage problems. This was recognized needy students. We also introduced a model as a major achievement for children by the of cooperative learning, in which the students elders and all other community members. of higher grades were responsible for teaching the students in lower grades. In 1995, In subsequent years, WAFA succeeded in mo- our efforts were transformed into a commu- tivating the community to participate in vil- nity welfare and development initiative. lage welfare activities such as the construction of a mother and child health care center With the number of students enrolled in- and a community development center, the creasing at Al-Zehra Girls School, the space establishment of the Al-Muntazar Academy became insufficient. My team contacted the building (a coeducation English medium pri- MARAFI Foundation Baltistan, a trust spon- mary school), a water supply and sanitation sored by a wealthy family from Kuwait. Our project in Muntazarabad, the construction application was considered on the condi- of pipe irrigation water channel, the estab- tion that the community donates the land. lishment of fruit and forest nurseries and a

Fostering Inclusive Education in Pakistan: 6 Access and Quality in Primary Education through Community School Networks women’s literacy center. The organization promoting gender equality and development. also started seeking outside support for new BNN played a vital role in activating CBOs educational initiatives to fulfill the increasing in the region by launching capacity-building demands of the community. For the first time, training workshops, networking conferences, this community had a local forum continu- advocacy campaigns and a gender equality ously working to improve its welfare. Com- resource center in Skardu, Baltistan. munity mobilization has been the corner- stone for all achievements and guaranteed In 2006, I organized a meeting of like- the sustainability of the initiatives. minded community development volunteers to reflect on our successes and failures. The Apart from working for the welfare of the meeting focused on identifying pragmatic villagers, WAFA started developing linkages approaches to addressing the root causes and partnerships with various development and effects of poverty, environmental deg- organizations, including the Aga Khan Edu- radation, conflict, socioeconomic discrimi- cation Services Program and Aga Khan Rural nation and social exclusion. The outcome of Support Program, and the Water and Sani- the meeting was the formation of a nonprofit tation Extension Program. WAFA networked organization, GRACE Association Pakistan, with public sector departments at the region- dedicated to making a significant contribu- al level, advocating for the socioeconomic tion to alleviating the social conditions of rights of marginalized community members. vulnerable communities living in the least developed parts of the country. GRACE Asso- In 2000, I was named chief organizer of the ciation’s first initiative was the establishment Kwardu Development Union (KDU), an ad- of GRACE Public School Skardu, the first in- vocacy and lobbying forum for the valley, clusive school in Skardu city. Fourteen per- working to mobilize additional public sector cent of its students are children with physical, resources for grassroots community develop- hearing and speech impairments, 60 percent ment. WAFA’s approach to community mo- are female and 26 percent are male.19 The bilization became a key approach that was main beneficiaries of GRACE Public School also adopted by the KDU to complement and are populations displaced from the Pakistan- support enhanced development. To date, this India border area by conflict. GRACE also has been the organization’s principal meth- supports rural communities in Layyah by od for working in partnership with other de- promoting inclusive education through the velopment agencies. In 2001, WAFA played GRACE-INDUS Public School Bhagal Layyah a key role in collaboration with a few other in the Southern Punjab Province of Pakistan. community based organizations and formed the Baltistan NGOs Network (BNN), a collec- GRACE Association has launched a micro- tive advocacy initiative with the shared ob- scholarship program for 14 to 18 year-old jectives of networking, capacity building and adolescents from socioeconomically disad-

Global Scholars Program Working Paper Series 7 vantaged families in the Baltistan region. Burma, India, Nigeria, Papua New Guinea, This program offers after-school English- South Africa and Zimbabwe and the Phil- language learning opportunities for boys ippines, Thailand and Sri Lanka.22 How- and girls, with priority given to children from ever, literature review shows no evidence of the poorest families. This program has cre- school networks system in Pakistan. ated change in the parents’ and community’s attitudes toward gender equality. Today, In the context of this study, a Community the villagers and communities served by School Network (CSN) is a group of mem- GRACE Association are operating and sup- ber schools initiated and driven by local porting their own schools successfully. There communities to achieve common objectives. are more than 700 children enrolled — 70 Schools participating in CSNs can include percent of whom are girls and 5 percent of government, semi-government, private and whom are children with disabilities. GRACE community primary schools. A standard educational and community development CSN is made up of 20 to 30 primary schools initiatives in Baltistan have demonstrated within a geographic area. CSNs establish a that comprehensive community-school part- resource center as a meeting space, ideally nerships can be successful interventions to located at a community development cen- address barriers to accessing education for ter run by a civil society organization where all children.20 other social and commercial services are also available. When there is more than one WHAT IS NEEDED CSN in a geographic area, there should be Community School Networks: A Dem- a central district resource center to facilitate ocratic Solution and Effective Ap- collaboration. CSN members agree to share proach to Promoting Inclusive Qual- human, financial and material resources to ensure access to education for all children ity Primary Education and promote quality, equity and efficiency in School networks were established in the all member schools. United Kingdom and India as early as the 1940s to enable rural schools to pool to- Why Community School Networks? gether resources for education. This model Pakistan’s Ministry of Education stated in the involves grouping several schools together 2009 National Education Policy that govern- to form a cluster or network.21 School clus- ment education systems have failed in de- ters have been particularly popular in Latin livering meaningful education. The national America (including Bolivia, Colombia, Ec policy document states that Pakistan has uador, Guatemala, Honduras, Nicaragua, made progress on a number of education Panama, and Peru), and increasingly promi- indicators in recent years, but admits that nent on other continents. In Asia and Africa, education in Pakistan suffers from two key the system has been popular in countries like deficiencies: (1) at all levels, access to edu-

Fostering Inclusive Education in Pakistan: 8 Access and Quality in Primary Education through Community School Networks cational opportunities remains low; and (2) mindset to address the lack of commitment the quality of education is weak, not only in in policy implementation to achieve universal relation to Pakistan’s goals but also in inter- primary education. Pakistan requires com- national comparisons. On the Education De- munity involvement in the school system and velopment Index, Pakistan ranks at the bot- CSNs may be one of the best solutions. The tom, along with Bangladesh and Sri Lanka.23 fundamental goals of CSNs are to improve the quality of teaching and learning. By em- The 2009 National Education Policy argues bracing a participatory approach to edu- that the two fundamental causes of a weak cational development, CSNs play an active education sector are (1) a lack of commitment role in raising awareness of the importance to education, and (2) an implementation gap of education, especially for girls and children that has thwarted the application of policies. with disabilities. Improving the physical ac- The commitment gap is a result of two fac- cessibility of schools is high on the agenda of tors, a lack of belief in education’s value for CSNs, which they address by raising funds to socioeconomic and human development, modify existing government and private pri- and a lack of belief in the fundamental goals mary school buildings to include ramps and of education. The policy implementation gap handicap accessible restrooms and building is believed to be more pervasive because it is school boundary walls to ensure security for affected by multiple aspects of government, female students. such as the allocation and use of resources that often remain unspent. Often, the edu- Greater participation from parents and other cational allocations are diverted for personal community members can support inclusive reasons. Political influence and favoritism schools’ capacity to enroll all children and interfere with the allocation of resources for deliver a high-quality education address- schools, recruitment, training and posting of ing the needs of children with special needs. teachers and the results of examinations and Compounding the barriers to education assessments. The Pakistani government real- for girls and children with disabilities is the izes that a fundamental change in the think- lack of community participation in Pakistan. ing that informs education policy at all levels Schools perform better when they are an in- is needed so that the objectives of educa- tegral and positive part of a community and tion policy serve the interests of students and benefit from community resources includ- learners rather than of those who develop ing involvement by parents, local education policy or implement programs.24 leaders, community activists, businesses, phi- lanthropists, religious institutions, public and Pakistan’s likelihood of achieving universal private agencies, community-based organi- primary education by 2015 is poor. In sup- zations, civil society groups, local govern- port of its “Vision 2030,” the Planning Com- ments, volunteers, and parks and recreation mission of Pakistan argues for a change in staff members. While the government of

Global Scholars Program Working Paper Series 9 Pakistan recognizes that education is a pub- also open opportunities for other actors, lic function, is also welcomes public-private including local government, philanthro- partnerships, and there is a role for this type pists, religious figures, academics, civil of partnership within CSNs. society organizations, and local, national and international volunteers. CSNs contribute to government efforts to 2. Access: CSNs promote access to the fun- raise awareness and funds, advocate for the damental rights of education for all children rights of marginalized groups, identify school by addressing both the attitudinal and the level issues, build educational leadership ca- physical barriers that prevent girls and chil- pacity, train primary school teachers through dren with disabilities from going to school. networking, put appropriate pressure on CSNs can play a vital role in ensuring ac- teachers for better performance and improve cess to education for all children in primary learning outcomes for all students. CSNs are schools in remote mountainous villages by a strong approach to enhancing schools ef- undertaking campaigns for sensitization, fectiveness by providing a comprehensive, awareness and rights-based advocacy. At multifaceted and integrated continuum of in- the same time, CSNs may sensitize and terventions to support girls, and children with raise awareness among parents and com- disabilities, and their families. munity members regarding the rights of children and women. This is critical, given CSNs work toward four goals: that the majority of people with disabilities 1. Community Participation: The spe- do not know about their rights. cific difference between CSNs and other 3. Equity: One of the principal goals of school clusters or networks is community CSNs is to ensure transparent and equal participation. Research shows that donor- allocation of educational resources to all driven school clusters or networks are schools, whether located in rural or urban mainly run by the Ministry of Education. areas. CSNs contribute to greater equity However, the CSN model is not only con- by investing in schools to provide access, ceived by the community but also driven accommodation and special training for by the community with minimal funding teachers to address children’s special needs. This model can be replicated in learning needs. CSNs would also ensure any school community with modifications fair and optimal use of resources to im- to local needs. Sustainability and scalabil- prove educational quality in schools. ity through local resource mobilization are 4. Quality: The major barrier to the enroll- crosscutting themes of this model. CSNs ment and retention of children in schools in not only encourage parents, students and Pakistan are low learning outcomes in pri- other community members in the society mary schools. Parents do not want to waste to participate in school improvement but time by sending their children to low-quali-

Fostering Inclusive Education in Pakistan: 10 Access and Quality in Primary Education through Community School Networks ty schools. The most important determinant Given that this kind of the institutional ar- of school quality is that teachers are skilled rangement of the extreme model is not pro- and well prepared. CSNs address this is- vided for under Pakistani law, this model is sue by providing an opportunity for teach- not currently feasible. The most appropriate ers from different schools to meet in subject CSN model for Pakistan to start with is the groups and share best practices for lesson least extreme model, since the CSNs will not plans, assessment and low-cost teaching be governed by any national policies. The material. CSNs provide professional devel- model for Gigil-Baltistan is a robust version opment opportunities through networking of the least extreme model, whereby the CSN with national and international training or- creates a structure and purpose so that in the ganizations. CSNs give teachers a chance future it could be transitioned to the interme- to work cooperatively and develop their diate model enshrined in policy. Research on professional skills to promote inclusive, different school networks shows that the most high-quality education. effective models meet the needs of the community and leverage national and regional Networking Models policies. The types of schools involved, and Three models of networking exist that can the conditions under which they participate, be applied to CSNs. The first is the extreme are then dependent upon local conditions. model in which school network committees The executive secretary of the CSN may im- or councils have very wide powers enshrined plement the decisions made by the CSN gov- in the national law. In the second option, the erning and general councils and committees, intermediate model, schools are grouped to- with support from CSN resource center staff. gether by higher authorities, but committees have less extensive powers. For example, the The CSN can be made up of primary or sec- government might establish a set of educa- ondary schools. If primary and secondary tion resource centers in different parts of the schools are grouped in the same network, country and indicate which school is served by the secondary schools are likely to domi- each center. The director of the center would nate, which could result in the staff of the organize workshops and distribute materials secondary schools not sympathizing with the around the schools, but could not transfer staff needs of the primary schools.26 At the same members among the schools or make recom- time, a large private school may have dif- mendations for promotion. This type of model ferent needs from a government-run primary exists in Indonesia, Malaysia and Papua Guin- school. The number of students and teachers ea. The third model is the least extreme mod- varies considerably across primary schools. If el: In the least extreme, far-reaching model, large schools participate in CSNs, they may membership in a cluster is voluntary. Schools cause severe imbalances in the organiza- group themselves together and can abandon tion. Therefore, the target schools from CSN the association if they wish.25 should be average-sized and low-perform-

Global Scholars Program Working Paper Series 11 ing primary schools. With experience, school voluntarily. At this stage the initiators should coverage can be expanded. constitute a provisional committee for draft- ing of memorandum and articles of asso- The CSN may cover a specific geographical ciation, the institutional structure and other area, for example, a village, a union council related documents. Once the documenta- or a subdivision. Initially, the geographical tion is completed and consensus built, there area covered by a CSN should be relatively should be a formal election and selection small in order to ensure ease and equality of process for governing council, committees access for the schools, given the mountain- and management staff members. ous topography of the region. While physi- 4. Strategy Design: This includes defin- cal access might be difficult, communication ing desired goals and outcomes, a result through mobile technology may facilitate based logical framework, preparation for contact among CSN members. monitoring and evaluation, aligning prin- ciples, practices and policies and develop- CSN Formation Process ment of a rollout strategy. The overall formation process of a CSN takes : This includes resource six steps: 5. Implementation mobilization, establishment of the CSN re- 1. Initiators: Any civil society group can source center, professional development, lead the initiative in their respective com- networking, advocacy, and assistance to munities and geographic areas. In some member schools. cases a few interested people such as par- : ents, principals, teachers, volunteers or 6. Monitoring, Evaluation and Scale Up CSNs need to maintain internal account- education officers from the government ability, data collection, progress assess- may initiate a CSN through conversations ment, use of data to strengthen activities as with the school’s community. The initiators well as expanding rollout and scanning the must know about local community dy- system for improvement. namics and have an action plan.27

2. Dialogue and Membership: This in- CSN Governance Structure cludes developing connections and meet- CSNs should be independent bodies led by ings with all relevant stakeholders includ- a Governing Council. Governance structure ing politicians, government education may vary by CSN. In Gilgit-Baltistan, the CSN departments, parents, teachers, students should have different management tiers, in- and civil society organizations. cluding a CSN General Council, Governing 3. Governance and Management: CSNs Council and four committees. Once the pro- should be started with two or more schools. visional committee completes the documenta- Other schools in the same geographic lo- tion for CSN, the participating schools con- cation should be encouraged to participate stitute a General Council with representation

Fostering Inclusive Education in Pakistan: 12 Access and Quality in Primary Education through Community School Networks from all member schools, professional, vol- 1. Resource Mobilization and Network- unteers and other interested institutions. The ing: Develops a comprehensive resource General Council elects a Governing Coun- mobilization strategy and innovative fi- cil represented by elected representatives nancing mechanisms to expand the donor of member schools and education experts, base for the CSN. This committee will also teachers, parents, community members and develop effective linkages and networking students. The Governing Council develops the mechanisms with other schools and train- charter for the CSN and establishes the mem- ing organizations. bership fees and services and is responsible 2. Awareness, Communication and for the overall decision-making and imple- Advocacy: Supports the CSN’s mis- mentation of activities (see figure below). sion of raising parental, community, politicians, government departments and The work of the CSN will be designed and other stakeholders regarding the funda- carried out by four committees: mental right of access to education for

Figure 1: The Governance Structure of Community School Networks

General Council

Governing Council

Committee 1 Committee 2

Committee 3 Committee 4

Executive Secretary

Assistant/Volunteers Center Manager Support staff

Global Scholars Program Working Paper Series 13 all children, especially girls and children Quality Education”28 and “School Clusters in with disabilities. The committee will raise the Third World: Making Them Work”29 re- awareness on gender equality and other veal that in most successful examples, clus- educational and health related issues, in- ters consist of five to six schools. Size de- cluding stigma and discrimination, avail- pends on the needs of a specific location. In able services and the need to mobilize the context of Gilgit-Baltistan and Pakistan, skilled teaching staff and health workers the CSN model should accommodate all in- in the inclusive schools. terested schools in the same geographical 3. Research, Training, Assessment and area (for example, all primary schools in a Curriculum: Encourages and promotes union council). varied and quality research activities to Key Functions of CSNs improve teaching and learning processes CSN have eight key functions, all of which in member schools. work toward the ultimate goal of creating 4. Monitoring, Evaluation and Audit: quality, inclusive education: Keeps track of activities, aims and objec- 1. Community Awareness: Raise aware- tives. The committee will encourage im- ness among the community on the impor- provement, provide evidence on the impact tance of inclusive education, especially in of activities and provide an informed basis parents, politicians and bureaucrats. The for decision-making and planning. This CSN will provide a platform for local edu- committee will maintain accountability and cational leaders to think, plan and take keep stakeholders’ confidence in the CSN actions to promote quality primary educa- by reviewing the network’s internal control tion in member schools. structure. Whenever it is needed the committee may appoint independent auditors 2. Support Teachers: Provide a forum to review of the financial statements and for teachers to share resources and en- suggest areas of improvement. courage teachers to engage in dialogue around best practices. The CSNs will employ full-time staff to over- 3. Improve Access and Quality: Encour- see their operations, including a CSN execu- age non-formal education for children with tive secretary, a resource center manager, a disabilities, integrating open learning cen- resource center assistant and two support ters or home schools into the network and staff for the facilitation of the governing identifying needs for further development. council and committees. All other CSN par- 4. Resource Mobilization: Foster commu- ticipants would be volunteers. nity financial support through bulk pur- chase of school uniforms, stationery and CSN Size: Case studies from “The School textbooks for all member schools directly Cluster Systems in Namibia, Framework for from wholesale markets and factories.

Fostering Inclusive Education in Pakistan: 14 Access and Quality in Primary Education through Community School Networks 5. Accountability: Fill the gap in supervi- ing schools and from assessment test fees sion and monitoring of public and private collected from the students of all member primary schools through effective involve- schools. Presently, all schools — government of parents and educational leaders ment and private — collect test/exam fees in tracking member schools’ progress. from students and these can be channeled 6. Partnerships and Networking: En- to support CSNs. CSNs in return can fa- courage cooperation in school develop- cilitate the involvement of all school stake- ment projects. CSN member schools may holders in the quarterly student assessment join together for educational visits and processes, and can promote a construc- unite to lobby and pool resources for ad- tive and supportive environment to discuss ditional classrooms, the construction of findings and related curricular topics. boundary walls, toilets or ramps. Potential Risks 7. Data and Evaluation: Act as a resource One of the primary risks is resistance from center for the collection of data, especially teachers to new demands on their time re- relating to children with disabilities, en- lated to participation in CSNs. Attitudes of rollment, dropouts and teachers’ perfor- teachers and community members toward mance/attendance. In this way the educa- school networks have been varied. In Na- tion department, civil society institutions mibia teachers, principals, inspectors and and donor organizations may better posi- regional education officers voluntarily par- tion themselves to prioritize and address ticipated in school networks because they burning issues. recognized the benefits offered by the clus- 8. Advocacy: Play effective advocacy cam- ter systems.30 However, in Zimbabwe, school paigns for implementation of government leaders and teachers resisted because they policies and the rights to access basic edu- felt that clusters were expensive to maintain cation for all children given in the constitu- and difficult to coordinate.31 tion of the country. To combat this risk, first and foremost, CSNs Sustainability and Resources must demonstrate their impact. Teachers As a voluntary, community-based model, will be more willing to take time to visit the CSNs are designed to operate at minimal other member schools and resource cen- running cost. It is envisaged that CSNs ter for experience sharing and meetings will mobilize resources from both nation- if they see that the experience contributes al and international organizations to ad- to outcomes in the classroom. Meanwhile, dress issues of access and quality. The re- the communities’ heightened demand for current costs of employing full-time staff high-quality education and teacher perfor- members for the CSNs will be generated mance will also encourage higher levels of through membership fees from participat- teacher engagement with their work and

Global Scholars Program Working Paper Series 15 improving their skills through experience CONCLUSION sharing within the CSN systems. This study shows that good policies and con- stitutional amendments alone cannot improve Interested and motivated groups must also education sector in Pakistan. An effective, long- develop a credible plan of action and gain term solution is needed to remove barriers to buy-in from authorities who can lend cred- inclusive education by enhancing community ibility to their efforts. Support from higher participation in school systems. The aim is to authorities at the federal government level improve access, quality, equity, and awareness or ministry level increase the chance of on gender equality and the rights of people with support from government school teachers disabilities. With national and international sup- because they respond to official directives port, the CSN model will ensure access and eq- from higher authorities carefully. Teachers uity in primary education for all children includ- may also be motivated by annual prizes for ing girls and children with disabilities. This will students and teachers, and by school per- further help reduce gender disparity in primary formance ratings tied to improvements. education and improve learning outcomes in primary school in rural areas Pakistan.

Fostering Inclusive Education in Pakistan: 16 Access and Quality in Primary Education through Community School Networks REFERENCES Gilgit-Baltistan Tourism Department. 2012. Visit Gilgit-Baltistan. http://www.visitgilgitbaltistan. Abbas, H. 2011. Reforming Pakistan’s gov.pk/index.html. Police and Law Enforcement Infrastructure. Washington: U.S. Institute of Peace. Giordano, Elizabeth A. 2008. School Clusters and Teacher Resource Center/UNESCO: Austrian Red Cross / Austrian Centre for International Institute for Education Planning. Country of Origin and Asylum Research and Documentation (ACCORD). 2012. Pakistan- Government of Pakistan, Ministry of Administered Kashmir (Azad Kashmir and Education. 2009. National Education Policy Gilgit-Baltistan). Vienna: Austrian Red Cross 2009, Revised August 1, 2009. Islamabad: / ACCORD. Government of Pakistan.

Bray, Mark. 1987. “School Clusters in the GRACE Association Pakistan. 2009. Third World: Making Them Work.” University GRACE: Our History. http://grace.org.pk/ of Hong Kong. inaug2009.pdf.

Cartier, W. J., A. Golda, and R. Nayyar- ———. 2011. GRACE - Our History. http:// Stone. 2009. The Possible Reversal of grace.org.pk/GRACE_%20PROGRESS_%20 Decentralization in Pakistan: State Policy REPORT_2007_2011.pdf. and Citizen Feedback, Conference Paper, Washington: Urban Institute. ———. 2012. GRACE: Our History. http:// grace.org.pk/home_history.php. Directorate of Education, Gilgit-Baltistan. 2012. October 16. http://gbdoe.edu.pk/ Mir, S. 2011. “Explosions Damage Two Girls’ Forms/organogram.aspx. Schools in Chilas” Express Tribune. http:// tribune.com.pk/story/313497/explosions- Dittmar, F., J. Mendelsohn and V. Ward. damage-two-girls-schools-in-chilas/. 2002. The School Cluster Systems in Namibia: Framework for Quality Education. National Assembly of Pakistan. 2010. Basic Educational Project of the Ministry “The Constitution of the Islamic Republic of of Basic Education, Sports and Culture. Pakistan.” http://www.na.gov.pk/publications/ Windhoek: Raison. constitution.pdf

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Global Scholars Program Working Paper Series 17 Pakistan Bureau of Statistics. 2010. Pakistan ———. 2011. Press Release: Education Key Social and Living Standards Measurement but Progress Uneven for Pakistan. http:// Survey 2009–10. Islamabad: Pakistan Bureau www.unicef.org/pakistan/media_6973.htm. of Statistics. UNICEF and Children’s Global Network Pakistan Times. 2009. http://www.pakistantimes. Pakistan. 2010. Inclusive and Child-Friendly net/pt/detail.php?newsId=3792. Schools in Pakistan: Best Practices and Challenges. Islamabad: UNICEF. Perlman Robinson, J. 2011. A Global Compact on Learning. Washington: Brookings Institution. United Nations. 2012. Education First: The United Nations Secretary-General’s Initiative on Rieser, Richard. 2010. “Implementing Education 2012. New York: United Nations. Inclusive Education: A Commonwealth Guide to Implementing.” Article 24 of the UNCRDP. Unrepresented Nations and Peoples Organisation. 2011. Gilgit-Baltistan. http:// SAFED (South Asian Forum for Education www.unpo.org/members/8727. Development). 2012. Annual Status of Education Report: Pakistan, 2011. Vitallis, Chikoko. 2007. “The School Cluster Islamabad: SAFED. System as an Innovation: Perception of Zimbabwean Teachers and School Heads.” Shah, Dawood. 2003. “Country Report on Decentralization in the Education System of WHO Human Resources Management Pakistan: Policies and Strategies.” Department. 2010. WHO Policy on the Employment of Persons with Disabilities. Singal, N., F. Bhatti and R. Malik. 2009. Geneva: World Health Organization. Counting the Invisible: Understanding the Lives of People with Disabilities in Pakistan. World Bank. 2012. World Development Cambridge: Research Consortium on Indicators. http://data.worldbank.org/ Educational Outcomes and Poverty. indicator/SE.ADT.LITR.ZS/countries.

UNESCO. 2011. Out-of-School USAID (U.S. Agency for International Children: New Data Reveals Persistent Development). 2010. School Management Challenges. http://unesdoc.unesco.org/ Committees / Parent Teacher Councils: images/0021/002171/217127e.pdf. Experiences in Capacity Building of Local Institutions and Their Contributions to ———. 2012. Addressing Exclusion. http:// Education in Earthquake-Affected Pakistani www.unesco.org/new/en/education/themes/ Communities. Arlington, Va.: USAID. strengthening-education-systems/inclusive- education/browse/1/.

Fostering Inclusive Education in Pakistan: 18 Access and Quality in Primary Education through Community School Networks ENDNOTES 17 Abbas (2011, 6).

1 World Bank (2012). 18 Unrepresented Nations and Peoples Orga- nization (2011). 2 Ibid. 19 GRACE Association (2009). 3 SAFED (2012). 20 GRACE Association (2011,1, 59). 4 Ibid. 21 Giordano (2008, 23). 5 UNESCO (2011, 2). 22 Bray (1987, 7). 6 Mir (2011). 23 Pakistan Ministry of Education (2009, 13). 7 Eldis (2010). 24 Pakistan Ministry of Education (2009) 8 Pakistan Bureau of Statistics (2010). 25 Bray (1987). 9 UNESCO (2012). 26 Bray (1987, 10). 10 National Assembly of Pakistan (2010, 15). 27 Lew Allen and Barbara Lunsford,(1995)/ 11 Rieser (2010). How to Form Networks for School Renewal

12 WHO (2010). 28 Fritz Dittmar, John Mendelsohn, and Viv Ward, 2002, The School Cluster Systems 13 Rieser (2010). in Namibia 14 SAFED (2012). 29 Bray, Mark. 1987. “School Clusters in the 15 Gilgit-Baltistan Tourism Department (2010). Third World: Making Them Work.” Univer- sity of Hong Kong. 16 Austrian Red Cross / Austrian Centre for Country of Origin and Asylum Research 30 Dittmar, Mendelsohn and Ward (2002). and Documentation (2012). 31 Vittalis (2007).

Global Scholars Program Working Paper Series 19

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