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Reviewing Multilingual Education in Nepal

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Reviewing Multilingual Education in Nepal 12 Reviewing multilingual education in Nepal Pushker Kadel Introduction This chapter reviews the background to education policies addressing minority language use in basic education in Nepal. The 2015 Constitution of the country states that every Nepali community living in Nepal has the right to receive education up to secondary level in their own mother tongue and to set up and operate schools and other educational institutions as provided in the Law. Furthermore, every Nepali community residing in Nepal has the right to preserve and promote its language, script, cultural civilisation and heritage (Legislature Parliament of Nepal 2015). Statistics show that over half of all Nepalese do not speak Nepali as their first language. Nepal’s commitment to international agreements and national policies that provide the framework for implementing multilingual education (MLE) in the country is evaluated. The impact on the community, students and teachers of pilot MLE programmes (initiated through the Department of Education in eight languages) and MLE projects (initiated by international and local non-governmental organisations, I/ NGOs) will also be examined. The chapter identifies the benefits of MLE, based on the reported outcomes of existing MLE projects. These include the author’s own experience working with two local NGOs that support MLE projects in primary schools in the Dangaura Tharu community in the district of Dang and in the Limbu community in the district of Panchthar. In the latter case the chapter considers attitudes towards the use of the Sirijonga and Devanagari scripts for writing the Limbu language. The discussion continues with a survey of ten concerns about and challenges to multilingual education in the context of Nepal. This is followed by a list of 15 opportunities and recommendations. The chapter ends with a warning about the threat to MLE posed by the English language. Background Nepal is struggling to implement its educational policies and plans. The nation’s investment and support have been insufficient to achieve the anticipated outcomes of its education policies. Parents are deeply dissatisfied with the education received H. Coleman (ed.). 2017. Multilingualisms and Development. London: British Council. ISBN 978-0-86355-840-5 11th Language & Development Conference 189 by their children in community (government) schools. As a result, enrolment in community schools is decreasing. Those of us who are active and committed to public education are aware of this situation but we are not able to address the problem of decreasing enrolment because we are powerless to bring about change. The future of nations depends on their education systems and how well children are educated. The languages used in learning and instruction contribute to the quality of education. The development of information science and technology, linked to globalisation and languages of wider communication such as English, plays a key role in education. Increasingly, people seek opportunities to improve their quality of life through migration and, as a result, linguistic and cultural diversity increase. These changes and developments influence educational settings. Sustainable development can only be achieved through the appropriate use of language in education. If children have a strong educational foundation they will be able to continue to higher grades, analyse situations, become more creative and lifelong learners, and engage in productive activities. Therefore, we have to choose bi- and multilingualism as a minimal requirement to teach children in the beginning grades of basic education for the creation of this strong foundation to take place. Education always relates to the development of societies, encouraging people to be positive thinkers and to explore cooperation and collaboration. Everyone likes to play an active role in societal development and gain respect in the process. But we need to realise that ‘Development is not a question of how much one has or accumulates, but how much and how one enjoys life’ (Gonzalez 2011, 29). If the education system is not working properly it will be difficult for the nation to resolve conflicts and sustain development activities; people will be unable to enjoy the benefits of development; and democracy will become weaker. This is the situation in Nepal as we are waiting for a meaningful peace and democratic process to develop through the new Constitution. I believe that the new 2015 Constitution of Nepal (Legislature Parliament of Nepal 2015) was promulgated through the most democratic process ever established anywhere. The Constitution was made and promulgated by an overwhelming vote of 90 per cent of the exemplarily inclusive Constituent Assembly (CA), which was formed through an internationally applauded election in 2013. It is open for all to see that the CA went through all the due processes of constitution making established by most of the democratic countries in the world. Tove Skutnabb-Kangas has given her enthusiastic approval for the new Constitution: I finally read the whole Constitution of Nepal 2015 on the airplane back from Shanghai. As far as I can see, there is no constitution in the world that would be better! Congratulations! (personal communication, November 2015) The new 2015 Constitution will end the political transition (April 2006–September 2015) and establish the April Revolution (2006) agenda in the country. As this chapter is being written, the new Constitution is already functioning, even though there is 190 MULTILINGUALISMS AND DEVELOPMENT some dissatisfaction and agitation about it in the Terai Madhesh region, located in the southern plains, which comprise eight of the country’s 75 districts in Nepal. We are heading towards decentralisation of power through federalism, but the political forces are not able to achieve a consensus as to how the nation should be restructured and power decentralised. So, this is the right time for us to start a debate and establish a good education system which will be helpful for the country’s political activities to move forward, to develop a peaceful economic system and to unite the nation through education. Nepal’s aim should be to build a language- and community-based developmental movement so that everyone can access relevant, quality education and have equal learning opportunities. Our focus should be to create a good learning environment for all learners to provide a strong foundation in basic education. So basic education must begin with the mother tongue of the learner and gradually shift to language(s) of wider communication. Language situation in Nepal Nepal has 126 ethnic groups and 123 mother tongues. In 2011, the total population of the country was 26,494,504 (Central Bureau of Statistics 2012). As Table 1 shows, just under 45 per cent of Nepalese speak Nepali as their first language, meaning that just over 55 per cent of Nepalese do not speak Nepali as their mother tongue. Table 1: Mother tongues by numbers of speakers (Central Bureau of Statistics 2012) No. Language Population %* 1 Nepali as mother tongue 11,826,953 44.63 Other mother tongues 2 Maithili 3,092,530 11.67 3 Bhojpuri 1,584,958 5.98 4 Tharu 1,529,875 5.77 5 Tamang 1,353,311 5.10 6 Newar 846,557 3.19 7 Bajjika 793,416 2.99 8 Magar 788,530 2.97 9 Doteli 787,827 2.97 10 Urdu 691,546 2.61 11 Avadhi 501,752 1.89 12 Limbu 343,603 1.29 13 Gurung 325,622 1.22 14 Baitadeli 272,524 1.02 15 Rai 159,114 0.60 16 Achhami 142,787 0.53 11th Language & Development Conference 191 17 Bantawa 132,583 0.50 18 Rajbansi 122,214 0.46 19 Sherpa 114,830 0.43 20 Hindi 77,569 0.29 21 Chamling 76,800 0.28 22 Bajhangi 67,581 0.25 23 Santhali 49,858 0.18 24 Chepang 48,476 0.18 25 Danuwar 45,821 0.17 26 Kham 27,113 0.10 27 Bajureli 10,704 0.04 28 Darchuleli 5,928 0.02 29 Dailekhi 3,102 0.01 94 other languages 623,302 2.35 Sub-total: Mother-tongue speakers of 122 languages 14,619,833 55.18 other than Nepali Not reported 47,718 0.18 Total population 26,494,504 100.00 * Percentages calculated by the author, not from the Census Regulatory framework, international and national The Government of Nepal has ratified a number of international agreements relating to MLE and has therefore committed itself to implementing them, in addition to its own policies which we discuss below. Probably the most significant of these international agreements are the Education for All goals and the Dakar Framework for Action. The Dakar Framework for Action states that parties to the accord will ‘... ensure that by 2015 all children, particularly girls and children from ethnic minorities, have access to complete free and compulsory primary education of good quality’ (World Education Forum 2000). Specifically, the agreement is a global commitment to achieve the following six major Education for All (EFA) goals by 2015: 1. Expanding early childhood development 2. Ensuring access for all children 3. Meeting learning needs of all children 4. Reducing adult illiteracy 5. Eliminating gender disparity and 6. Improving all aspects of quality education. 192 MULTILINGUALISMS AND DEVELOPMENT Priority is given to ensuring that all children – particularly girls, the disabled, and children from ethnic minorities and difficult circumstances – are able to receive quality education and complete the primary cycle. The five-year strategic EFA plan within the EFA 2015 framework aims at 1) ensuring access to and equity in primary education, 2) enhancing quality and relevance of primary education and 3) improving efficiency and institutional capacity. Other important and relevant international agreements include the Millennium Development Goals, which state that nations aim to achieve universal primary education by the year 2015 (www.un.org/millenniumgoals); Convention 169 of the International Labour Organisation on Indigenous and Tribal Peoples (ILO 1989) relating to the rights of indigenous communities in Nepal; and the United Nations Declaration on the Rights of Indigenous Peoples (United Nations 2008) concerning the rights of indigenous peoples with regard to their culture, identity, language, employment, health, education and other issues.
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