POLICY BRIEF

Brief No: 01
December 2009

THE NATIONAL EDUCATION POLICY 2009

Introduction

Contents
Introduction

01

Overview of the National Education Policy

02

Challenges and Deficiencies

02

The Commitment Gap

02

The Implementation Gap

02

Islamic Education

03

Broadening the Base and Achieving Access

03

Early Childhood Education (3-5 years of age)

03

Elementary/Primary Education (6-10 years of age)

03

Secondary/Higher Education

03

Literacy

03

Emergencies

03

Quality in Education

03

Teacher Quality

03

Curriculum Reform

04

Texts and Materials

04

Improving Student Assessment

04

Standards in Learning Environments

04

Matching Education to the Needs of the Labour Market

04

Skills Development and Innovation

04

Higher Education

05

Implementation

05

Conclusion and Comment

06

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he Government of Pakistan finalised its National Education Policy on August 1, 2009 and
the policy was approved by the federal cabinet on September 9, 2009. Provincial Chief
Ministers also participated in the federal cabinet meeting that approved the Education Policy..
Two representatives of Youth Parliament Pakistan also presented their input in the policy in the
federal cabinet meeting on special invitation of the Prime Minister of Pakistan.
The Education Policy consists of 71 pages and is divided into 9 chapters. Appendix I contains
the table of contents of the policy.
This document sets out the future vision for Pakistan's educational system and the shifts that
are seen to be necessary for Pakistan to be able to progress successfully and to meet the
economic and social demands of the future.
Pakistan has made a number of international commitments in relation to education in recent
years. In particular Pakistan is committed to the Millennium Development Goals (MDGs) and
the implementation of the World Education Forum Dakar Framework for Action 2000. This
framework sets out six (6) major goals to be achieved by 2015:

Expansion of early childhood care and education

Universal, free and compulsory primary education
Learning opportunities for young people and adults
50% improvements in literacy levels
Gender equality and
Improvements in the quality of education

Following the Framework, Pakistan adopted a national plan of action 2001-2015, committing
Pakistan to a number of goals. However, as at 2009, Pakistan appears to be missing most of
these goals as Pakistan rates 136 on the Human Development Index, has a literacy rate of 54 %
and spends a mere 2.1 % of its GDP on education. Female literacy rates are at 44 % and 64 % of
women and girls in rural areas have never attended school.
Pakistan's educational system faces considerable challenges. There are currently
approximately 30 % of children outside the education system and the drop-out rates are high.
Only 67% of children reach class 5 and only 13 % pass matriculation. Infrastructure problems
remain significant, with 70 % of primary schools being two-room constructions. Political
interference in policies and appointments of staff remains a significant issue.
The adoption of a national policy on education is to be welcomed. The policy itself is
ambitious. Implementation will however be the key to future success and careful monitoring,
especially by the Parliament and Parliamentary Committees on Education, will be required.

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POLICY BRIEF

THE NATIONAL EDUCATION POLICY 2009

Overview of the National Education Policy 2009

The policy seeks to be a broad-ranging, comprehensive document, ensuring clear aims and demarcations of responsibility. The policy
stresses the need for coherent federal and provincial action and for a holistic approach, across different age ranges and educational
areas.
The policy identifies the major deficiencies and gaps in the current system. In particular it identifies what are termed the commitment
gap' and implementation gap. The commitment gap covers issues such as the values, priorities and resources of the state. The
implementation gap refers to issues surrounding governance within the education sector.
The policy seeks to set a number of aims, values and priorities to shape the system, alongside a commitment to allocate increased
resources to the education sector. It also seeks to introduce and ensure principles and standards of good governance.
The policy then sets out a number of specific goals dealing with each tier of education, from early childhood to higher education. Within
each tier, the policy lays down the need for curriculum development, a learning materials policy and infrastructure development, to
provide missing facilities. Finally the policy maps out an implementation framework in order to ensure that the policy is translated into
practice. A summary of the main policy specifics is given in the following sections.

Challenges and Deficiencies

implementation plans:

The policy document identifies a number of clear shortcomings

in Pakistan's existing educational system. Whilst stressing both
the need for uniformity in standards and the requirement to
cater for diversity on ethnic, social, religious, economic and
political grounds, the policy identifies the need to improve
access, quality, affordability and relevance within education.

The policy sets out that a paradigmatic shift is required,

changing the whole focus of education to ensure that the
system of education serves the interests of students rather than
the interests of the administration itself.

The Commitment Gap

The policy draws attention to the disadvantageous effects of the
parallel systems of English-medium private, public and
madrassah educational systems. Attention is also drawn to the
divide between educational provision for boys and girls and
between urban and rural communities.
The policy stresses the challenge of providing universal primary
education by 2015 and sets out the following policy aims:
-

Revitalising the educational system

Preserving ideals
Enhancing unity and nationhood, and
Respecting diversity

A commitment to dedicate 7 % of GDP to education by

2015
The establishment of a National Authority for
Standards in Education, to set and monitor standards
Provincial monitoring of standards and the drafting of
provincial education plans
The establishment of public/private partnerships

The Implementation Gap

In order to address the problems of implementation the policy
puts forward a whole sector approach, covering early
childhood to tertiary education, coherence with other areas of
government policy and a clear mapping of federal and
provincial responsibilities. In particular, the policy stresses:
- The need to bridge the divide between public and private
education, in terms of resources, curriculum and access
- The need to introduce formal subjects and accountability into
the madrassah system
- The implementation of an English language policy in all
schools
- Capacity building in both teaching and education policy
making
- The establishment of a National Standards and Certification
Agency, and
- The need to end political interference in education.

In order to achieve these aims the policy sets out the following

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Islamic Education

and amongst adults. The policy aims to:

The policy sets out the specifications for the teaching of Islam in
schools and the requirement for ethical/moral education for
non-Muslims. Emphasis is placed on the mainstreaming of
madrassahs by the introduction of contemporary subjects and
the establishment of a Madrassah Education Authority
established by the Ministry of the Interior.

Broadening the Base and Achieving Access

The policy then sets out policy aims and implementation
measures for each tier of the education system. The main
provisions for each tier are summarised below.
Early Childhood Education (3-5 years of age)
The policy aims here are to achieve wider participation, better
quality and improved governance. The main policy goals are:
-

Universal access within 10 years

Emphasis on play rather than rote learning
The training of specialist teachers

Elementary/Primary Education (6-10 years of age)

Here the main policy goals are:
-

Universal access by 2015

Reduction of drop-out rates
Unique ID numbers for students to aid tracking
through the education system
The establishment of international development
partnerships with donors

Secondary/Higher Education
The main policy goals within this tier are:
-

The introduction of student-centred learning

The expansion of girls' schools and schools in rural
areas
The introduction of life skills education and
counselling
A school ranking system, measuring results
A national merit programme, rewarding bright
students

Emergencies
The policy aims to cover both education about emergencies
and emergency planning, as well as education in emergency
situations. The National Disaster Management Authority is to
plan for pre/post emergency teaching and to set a code for
suitable infrastructure, in particular the adoption of international
standards in infrastructure construction.

Quality in Education
A significant proportion of the policy is based upon increasing
standards and governance across the educational system. The
main areas of focus are teacher quality, curriculum reform,
texts and learning materials, improving student assessment,
standards in learning environments and matching education to
the needs of the labour market.
Teacher Quality
The policy places emphasis on the need for adequately qualified
and skilled teaching staff and their availability in schools, along
with continuing education and in service training. In particular:
-

Literacy

The policy aims to increase literacy levels across the

population, including amongst those in non-formal education

December 2009

Increase literacy levels to 86 % by 2015

Allocate 3 % of the education budget to literacy
programmes
Establish a national literacy curriculum and minimum
standards
Establish adult literacy programmes
Mainstream non-formal programmes, such as literacy for
child labourers
Utilise school buildings outside normal hours to facilitate
non-formal literacy education

Minimum qualification levels for teaching staff (Bachelors

degree and B.Ed at elementary level and masters degree
and B.Ed at secondary and higher levels by 2018);
Teacher education programme to focus upon studentcentred learning and the standardisation of training,
accreditation and certification of teaching staff
A specialised cadre of teacher trainers
Appointment of teaching staff on merit
Emphasis on practical reasoning skills, particularly
amongst maths and science teachers
Career development and in service training for teaching
staff
Planning of teacher allocation and monitoring of
attendance, absenteeism and multiple job holding

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Upgrading of teacher morale and salaries

Incentives for teaching staff in rural areas
The waiving of age restrictions for female teachers
Public private partnerships and the involvement of
international donor partnerships

Curriculum Reform
A programme of curriculum reform began in 2005 and revised
curricula were issued for 25 core subjects in 2007. The process
of reform is due to be completed for all subjects by December
2009. Emphasis is to be placed on learning outcomes and
critical thinking, in an attempt to move away from rote learning
methods. Additionally, topics such as human rights, health,
peace and interfaith issues and child abuse are to be
incorporated into existing subject curricula.
Texts and Materials
A committee to advise on texts and materials was constituted
by the Ministry of Education and led to the National Textbook
and Materials Policy and Plan of Action 2007. The policy seeks
to continue the aims of the policy, in terms of quality,
competition and choice by:
- Introducing a system of regulated publishing
- Establishing provincial/area committees to select
appropriate textbooks and an inter-provincial standing
committee to monitor implementation
- Transforming Textbook Boards into regulatory bodies
capable of capacity building in the publishing market
- The establishment of a National Library Foundation
- Increased investment in library facilities, library staff and an
upgrading of library facilities
Improving Student Assessment
The policy stresses the need to move away from traditional
emphasis on rote learning and the need to emphasise and
assess analytical and critical thinking in order to produce
students who are internationally competitive and equipped for
the realities of working life. The policy therefore requires:
- International level assessments by 2015
- Multiple assessment tools in addition to traditional
examination methods
- National standards and uniformity in assessment processes
and a reduction in the number of examination boards
- Capacity building amongst examiners
- A strategy to prevent cheating
Standards in Learning Environments
The policy stresses the need to improve learning environments

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for students, which may at present involve lengthy travel, basic

or no facilities and fear of corporal punishment at the hands of
staff. The policy sets out the need for:
- A basic framework for school facilities and materials by 2012
- An increase in federal resources to meet gaps in provision
- Standardised and rationalised student/teacher ratios
- The elimination, where possible, of multi-grade
teaching/classes
- An anti-corporal punishment campaign and accountability
for violence by teachers
- A code of conduct for student unions
Matching Education to the Needs of the Labour Market
The policy requires a review of educational courses to ensure
relevance to the needs of the labour market and a study to
evaluate and improve technical and vocational training. The
idea of a window to the world of work and job shadowing are
introduced as policy objectives and emphasis is placed on the
need for career guidance and counselling.

Skills Development and Innovation

The policy examines the low skill level amongst the Pakistani
population and the resulting damage to economic growth.
Improvements in the skills base are identified as methods of
improving competitiveness, attracting inward investment and
facilitating increased remittances from workers abroad. Formal
technical and vocational education is identified as a key
weakness. The policy seeks to address this weakness by:
- Restructuring technical and vocational education to take
account of the views and needs of stakeholders in
business/industry/agriculture
- Developing a standardised, modular curriculum, which is
adaptable to local market needs
- Evaluating existing technical and vocational education at
school level
- Addressing the social taboos around technical and
vocational work and emphasising the need for dignity at work
A National Vocational and Technical Education Commission is
already in place and has prepared various strategies, which
include:
-

A national qualifications framework

Industry involvement and public/private partnerships
A national university of technology
Coordination between the schools, university, vocational and
technology sectors

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Higher Education
The policy recognises higher education as the most important
component in creating a tolerant, cohesive, knowledge-based
society. The Higher Education Commission is already in place in
order to oversee and direct policy, standards and funding.
However, poor access and low expenditure are identified as
inhibitors of success.
The policy lays out a strategic vision for the transformation of
higher education. This strategy focuses on the importance of:
- Well qualified and developed faculty members
- Learning outcomes, as opposed to rote learning, to produce
articulate, flexible and employable graduates
- Quality and the need to meet international standards
- Economic relevance and linkages with industry
- Research, innovation and the role of university education as a
catalyst for wealth creation
- Equitable access and the bolstering of existing infrastructure

sets out what should be done; provinces and districts will

decide how, when and by whom it will be done. However, in
order to facilitate the development of plans, an implementation
framework is set out.
This framework sets out a monitoring and feedback process to
track progress on implementation. The framework involves:
- Meetings of the Inter-provincial Education Ministers (IPEM)
Committee, providing oversight and monitoring
- Provincial action plans, with autonomy and ownership at
provincial level
- The involvement of development partners
The process will be cyclical, with the IPEM reviewing the policy,
plans of action being prepared and implementation being
carried out by provinces, the provinces identifying new issues
and feeding back to IPEM for further review.

In order to meet the requirements of the strategy, the policy sets

out:
- The need for increased enrolment, from the current 4.7 % to
10 % by 2015 and 15 % by 2020
- Commitment of 20 % of the education budget to higher
education
- Emphasis on research and development, through capacity
building, commercialisation, grants, scholarships and
collaboration
- Career development, specialisation and tenure tracks for
academic staff
- Ranking systems for universities, peer review and the
involvement of international expertise
- Broad based four year bachelors courses, with social
science elements to instil cultural and civic values
- Accreditation of courses by accreditation councils and the
setting of minimum standards of quality
- National centres and international collaboration on
educational standards and delivery
- The need for adequate information technology and library
facilities to support students

Implementation
The policy stresses that the development of detailed
implementation plans, priorities and strategies are the exclusive
task of provincial and district government. Essentially the policy

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THE NATIONAL EDUCATION POLICY 2009

Conclusion and Comment

Pakistan's current level of educational achievement is poor. Pakistani society continues to reflect considerable social and financial
disparities, which affect the educational opportunities and potentials of a significant section of the population. The marked disparities
between provinces, urban and rural education and the opportunities available to boys and girls continue to hamper the life choices of
individuals and Pakistan's economic potential as a nation. If Pakistan is to properly serve its citizens and to be equipped to operate in the
global economy, significant reform and improvement is required.
The National Education Policy 2009 sets, for Pakistan, ambitious objectives and targets at all levels of education. The realisation of these
targets will be dependent upon the delivery of financial commitments at federal level and effective implementation at provincial level.
The policy aims to significantly increase the state's spending on education. The federal government must ensure that the promised
increase in percentage GDP of 7 % is delivered. Without such delivery the proposed improvements in infrastructure and delivery of
educational services can not be achieved.
Equally, Pakistan's federal structure will present challenges to effective and uniform realisation and delivery. Previous policies have
delivered poorly in practice. Provinces must be proactive and responsive in planning and timetabling reform. The inter-provincial
Education Ministers will be required to demonstrate leadership and dynamism if the oversight mechanism is to be successful. Good
governance and the elimination of corruption and political interference in education policy delivery will be vital to effective
implementation and improvements on the ground.
Pakistan's ability to meet the goals of the Dakar framework by 2015 will be an important indicator of progress and commitment towards a
better educated and internationally competitive Pakistan.

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Appendix-I
NATIONAL EDUCATION POLICY 2009: Contents
INTRODUCTION

CHAPTER 1

NATIONAL EDUCATION POLICY: OVERARCHING CHALLENGES & DEFICIENCIES:

THEIR CAUSES AND THE WAY FORWARD
1.1
Background
1.2
The Demographic Transition
1.3
Uniformity and Confidence in Public Education System
1.4
Globalization and Competitiveness
1.5
Social Exclusion and Social Cohesion
1.6
Setting Standards for Education
1.7
Dovetailing Government Initiatives
1.8
Leveraging International Development Partnerships
1.9
MAJOR DEFICINCIES
1.10
Understanding System Deficiencies
1.10.1 The Commitment Gap
1.10.2 The Implementation Gap
1.11
The Way Forward: A Paradigmatic Shift

9
9
9
10
11
12
12
13
13
13
14
14
15
15

CHAPTER 2

16

FILLING THE COMMITMENT GAP: SYSTEM VALUES, PRIORITIES AND RESOURCES

16

2.1
2.2
2.3
2.4
2.5

16
16
17
19
20

Educational Vision and Performance

A Reaffirmation of Educational Vision
Aims And Objectives
Overarching Priorities: Widening Access and Raising Quality
Mobilising Resources for Education

CHAPTER 3

22

FILLING THE IMPLEMENTATION GAP: ENSURING GOOD GOVERNANCE

3.1
Developing a Whole-of-Sector View
3.2
Ensuring Policy Coherence
3.3
Overcoming Fragmented Governance
3.4
Bridging the Public-Private Divide
3.5
Overcoming Structural Divides
3.6
Building Management and Planning Capacity
3.7
Getting Stakeholders Involved

22
22
22
23
25
27
28
30

CHAPTER 4

31

ISLAMIC EDUCATION
4.1
Islamic Education: Duty of The Society and the State

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Appendix-I

08

CHAPTER 5

35

BROADENING THE BASE AND ACHIEVING ACCESS

5.1
Early Childhood Education (ECE)
5.2
Elementary Education
5.3
Secondary and Higher Secondary Education
5.4
Literacy and Non-Formal Learning
5.5
Education in Emergencies

35
35
36
37
38
40

CHAPTER 6

42

RAISING THE QUALITY OF EDUCATION

6.1
Improving Teacher Quality
6.2
Curriculum Reform
6.3
Quality in Textbooks and Learning Materials
6.4
Improving Student Assessment
6.5
Attaining Standards in the Learning Environment
6.6
Matching with the Labour Market

42
42
44
46
47
48
50

CHAPTER 7

51

STRENGTHENING SKILL DEVELOPMENT AND INNOVATION

7.1
Technical Education and Vocational Training
7.2
Possible Strategies

51
51
53

CHAPTER 8

55

HIGHER EDUCATION
8.1
Challenges
8.2
Strategic Vision

55
55
56

CHAPTER 9

61

IMPLEMENTATION FRAMEWORK
9.1
Objective
9.2
Policy As a Living Adaptable Document
9.3
IPEM To Oversee Progress
9.4
Provincial Autonomy and Ownership
9.5
Role of Development Partners

61
61
62
63
63
63

ANNEX: I
THE STATE OF PAKISTAN'S EDUCATION
A.
Access to Educational Opportunities
B.
Equity in Education
B1.
The Gender Dimension
B2.
The Rural-Urban Divide
B3.
Provincial and Area Disparities
C. Quality of Provision
D. The Resource Commitment
E. Structure of Education: Public-Private Provision

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65
65
66
66
67
68
68
70
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