Education Reform in Pakistan Asia Report N°257 | 23 June 2014 International Crisis Group Headquarters Avenue Louise 149 1050 Brussels, Belgium Tel: +32 2 502 90 38 Fax: +32 2 502 50 38 [email protected] Table of Contents Executive Summary ................................................................................................................... i I. Introduction ..................................................................................................................... 1 II. Curriculum and Textbook Politics.................................................................................... 3 III. The Language Controversy ............................................................................................... 7 A. National vs. Local ....................................................................................................... 7 B. English vs. Urdu ......................................................................................................... 8 IV. Religious Indoctrination and Education Reform ............................................................. 10 V. Militancy, Counter-Insurgency and Education ................................................................ 13 VI. Education for All: Meeting the Challenge ........................................................................ 16 A. Prioritising Education ................................................................................................ 16 1. Utilising funds ...................................................................................................... 16 2. The role of donors ................................................................................................ 17 3. Political ownership ............................................................................................... 18 B. Teachers and Education Reform ............................................................................... 19 C. The Private Sector’s Role ........................................................................................... 22 VII. Conclusion ........................................................................................................................ 25 APPENDICES A. Map of Pakistan ................................................................................................................ 26 B. Glossary of Terms ............................................................................................................. 27 C. About the International Crisis Group .............................................................................. 28 D. Crisis Group Reports and Briefings on Asia since 2011 ................................................... 29 E. Crisis Group Board of Trustees ........................................................................................ 31 International Crisis Group Asia Report N°257 23 June 2014 Executive Summary In April 2010, the eighteenth constitutional amendment committed Pakistan to free and compulsory education for all children between the ages of five and sixteen. Yet, millions are still out of school, and the education system remains alarmingly impov- erished. The madrasa (religious school) sector flourishes, with no meaningful efforts made to regulate the seminaries, many of which propagate religious and sectarian hatred. Militant violence and natural disasters have exacerbated the dismal state of education. Earthquakes and floods have destroyed school buildings in Balochistan, Sindh, Khyber Pakhtunkhwa (KPK) and Punjab, disrupting the education of hun- dreds of thousands of children. Militant jihadi groups have destroyed buildings, closed girls’ schools and terrorised parents into keeping daughters at home; their attacks made global headlines with the shooting of schoolgirl and education activist Malala Yousafzai in October 2012. The public education system needs to foster a tol- erant citizenry, capable of competing in the labour market and supportive of demo- cratic norms within the country and peace with the outside world. More than nine million children do not receive primary or secondary education, and literacy rates are stagnant. Pakistan is far from meeting its Millennium Develop- ment Goal (MDG) of providing universal primary education by 2015. The net primary school enrolment rate in 2012-2013 is a mere 1 per cent increase from 2010-2011. There are significant gender disparities and differences between rural and urban ar- eas. The combined federal/provincial budgetary allocation to education is the lowest in South Asia, at 2 per cent of Gross Domestic Product (GDP). If Pakistan is to provide all children between five and sixteen free and compulsory education, as its law requires, it must reform a system marred by teacher absentee- ism, poorly maintained or “ghost schools” that exist only on paper and a curriculum that encourages intolerance and fails to produce citizens who are competitive in the job market. Private schools, increasing largely in response to these shortcomings, account for 26 per cent of enrolment in rural areas and 59 per cent in urban centres but vary greatly in methodology, tuition and teacher qualifications. The eighteenth constitutional amendment devolved legislative and executive au- thority over education to the provinces to make it more responsive to local needs. Given the scale of those needs, donors and the private sector must be key partners, but provincial governments need to become the principal drivers of reform. They should reverse decades of neglect by giving government-run schools adequate mate- rials and basic facilities such as boundary walls and toilets. They should also tackle teacher absenteeism and curb nepotism and corruption in appointments, postings and transfers. To counter the challenge from the private schools, and madrasas and religious schools of Islamic parties and foundations that fill the gaps of a dilapidated public education sector but contribute to religious extremism and sectarian violence, the state will have to do far more than just increase the numbers of schools and teachers. Curriculum reform is essential and overdue. Provincial governments must ensure that textbooks and teachers no longer convey an intolerant religious discourse and a distorted narrative, based on hatred of imagined enemies, local and foreign. Islamabad/Brussels, 23 June 2014 International Crisis Group Asia Report N°257 23 June 2014 Education Reform in Pakistan I. Introduction In 2004, Crisis Group cautioned that Pakistan’s deteriorating education system had radicalised many young people, while failing to equip them for the job market.1 Ten years later, there have been some modest advances, including a new constitutional obligation to provide free and compulsory education to all children between the ages of five and sixteen. Yet, Pakistan has the second highest number of out of school children in the world, with 22 per cent of those it is constitutionally obliged to edu- cate still deprived of schooling;2 and expenditure on education remains the lowest in its region.3 This report focuses on a dysfunctional public school sector that educates the majority of children but fails to prepare a fast-growing population for the job market even as a deeply flawed curriculum contributes to the spread of violence and extremism. Adopted in April 2010, the eighteenth constitutional amendment restored par- liamentary democracy by removing constitutional distortions introduced by military regimes that had undermined parliamentary sovereignty. Addressing long-standing grievances in an overly centralised state ill-suited to an ethnically and regionally diverse polity, it also devolved power from the centre to the provinces by removing the “concurrent list” of subjects, including education, on which both federal and provincial governments could legislate.4 Previously the federal government devised education policy and planning, while provincial authorities were tasked with imple- menting policy and administering the education sector. Since the amendment, pro- vincial governments are free to devise education policy, planning and curriculum. The federal government’s education remit is now limited to federally administered territories, such as the capital, Islamabad, and the Federally Administered Tribal Areas (FATA), and to higher education. It is also responsible for inter-provincial co- ordination and implementation of international treaties.5 Federal bodies such as the 1 For Crisis Group analysis of Pakistan’s education challenges, see Asia Report N°84, Pakistan: Reforming the Education Sector, 7 October 2004. 2 “Annual Status of Education Report-national”, ASER-Pakistan, published by the South Asian Forum for Education Development (SAFED/Idara-e-Taleem-o-Aagahi (ITA)), 16 January 2014. ASER-Pakistan conducts annual citizen-led household-based surveys of education indicators. Its partner organisations include the National Rural Support Programme (NRSP), the Sindh Education Foundation and the education departments of the four provinces, the Federally Administered Tribal Areas (FATA) and Gilgit-Baltistan. 3 Pakistan’s expenditure on education as a percentage of GDP is currently 2 per cent, compared to Bhutan’s 4.8 per cent, Nepal’s 4.6 per cent, India’s 3.1 per cent, Sri Lanka’s 2.6 per cent and Bang- ladesh’s 2.4 per cent. “Economic Survey of Pakistan 2013-14”, finance ministry, Islamabad, released by Finance Minister Ishaq Dar on 2 June 2014. 4 Crisis Group Report N°249, Parliament’s Role in Pakistan’s Democratic