Chapter 4

Review of NPA I (1991-2000)

 4. A     Launching of NPA I

4.1       The World Conference on Education for All (WCEFA) in Jomtien, Thailand in March 1990, adopted the World Declaration on Education for All: Meeting Basic Learning Needs, with an “expanded vision” of basic education that went beyond the conventional structure and approaches to education. It took note of the “convergence of the increase in information and the unprecedented capacity to communicate”, identified six areas of action (see Annex 2), and endorsed a Framework of Action to achieve EFA by the year 2000.

4.2       The EFA goals were quite in line with Bangladesh aspirations as it had already introduced the Universal Primary Education (UPE) program and a Mass Education Program (MEP) earlier in 1981 to enhance access to primary education and reduce illiteracy.  Bangladesh prepared an EFA: National Plan of Action (NPA I), 1992-2000, as a follow-up of WCEFA and expression of its firm determination to improve the situation of basic education. The basic goal of NPA I was to “enhance both the quantitative and qualitative dimensions of the programmes it proposed and take up other feasible supportive programmes to attain the EFA 2000 targets” successfully. Using 1991 as the base-year and in view of limited resources, NPA I formulated a set of goals which were somewhat modest compared to those of WCEFA.

4.3              In line with EFA goals, NPA I covered five major basic education program areas: i) Early Childhood Care and Development (ECCD), ii) Universalization of Formal Primary Education (UPE), iii) Non-formal Basic Education (NFBE) for 6-14 age group – implemented in two parts, one for the out-of-school primary school age children and the other for the illiterate or dropout adolescents of 11-14 years, iv) Adult Education (AE) for 15-45 year olds and v) Continuing Education (CE) for life-long learning. A cross-cutting theme was female education and gender equity. An assessment in 2000 (PMED[1], 1999) made a detailed appraisal of NPA I achievements vis-à-vis EFA goals, based on 1998/99 data, as part of the global Assessment in UNESCO format. Table 3.1 below shows the achievements in primary and non-formal education vis-à-vis the set goals.

Table 4.1: Table showing the benchmark, EFA targets and achievements of NPA I for 1995 and 2000 (In percent)

Source: WDEFA, 1990; DPE, 2002 and DNFE, 2000                                     

4.4              NPA I was implemented in two phases, Phase I covered FY 1992-93 to 1994-95 and Phase II, 1995-1996 to 1999-2000. Some incomplete NPA I projects were rescheduled to continue beyond 2000. The NPA I proposed an outlay of Tk. 191,122.6 million (US $ 4,778.0 million) for two groups of programs. Allocation for development program was Tk. 104, 781.6 million (US$ 2, 619.5 million) and revenue, Tk. 86, 341 million (US$ 2, 158.5 m).  The various program components are discussed below.

4. B     Early Childhood Care and Development (ECED)

4.5        NPA I proposed an ECED[2] program, covering the 4-5 years old children. No structured ECED activities existed earlier for pre-school age (< 6 years) children except “Baby Classes” in a good number of primary schools for 4-5 year old children who accompanied their older siblings to school. The intention was to keep the children occupied and initiate them to primary education, without a formal structure. The number of such children attending playgroup and nursery classes in kindergartens was very limited.

4.6        In context of prevailing vacuum and pending further experience, NPA I proposed to limit initial ECED programmes to (a) restructuring and redirecting the existing pre-school educational facilities, (b) formalizing the ‘baby classes’ in primary schools by phases, (c) promoting and supporting wider non-formal, family and community-based initiatives, and (d) developing the concept and suitable curriculum, educational toys and learning materials; special teacher training arrangements, advocacy, parental education on physical and nutritional needs of children and undertaking research and pilot projects.

4.7        The bulk of the work was to “take place in the families and within the communities, through private initiatives” with “government support to non-government and community initiatives and material supports where feasible”. Split in two phases, the program was to have covered half the 4-5 year old child population (8.40 million) by 2000.  The government was also to provide substantial support for classroom construction, teachers, implements, research, etc to feeder school programs at community level. 

4.8        The only ECED program undertaken was a component of the government’s Integrated Non-formal Education Programme (1991-97) for 75,000 children. The project covered only 63,000 children at its closing in 1997. Primary Education Development Programme (PEDP I, FY1998-2003) proposed to establish ‘baby classes’ in 60,000 schools (GPS and RNGPS) and allocated funds for one million books, display and play equipments per year. It should have covered 2.4 million children, counting at 40 per school. The 2000 Assessment Report found that only 10.3 percent of the children were covered. The ‘baby classes’ in primary schools were not formalized; no structured curriculum was prepared or introduced and no separate teachers appointed or trained and no clear attendance record maintained.

4.9        The other proposed goals were not pursued either; private community initiative was negligible. The National Committee on Primary Education (NCPE)[3] recognized the importance of pre-school education but in view of the shortage of teachers, physical facilities and severe resource constraints, it proposed instead to treat the first six months of Grade I of primary schools as preparatory education, thereby obviating the need for separate pre-school program or baby class. However, the ‘baby classes’ continued to run as before without proper organization and formalization.

4. C     Free and Compulsory Primary education

4.10          During NPA I phase, three major programs were implemented for development of primary education. The programs were:

(a)                The General Education Project, 1990-96. The first major project of its kind, it was implemented at an estimated cost of Tk.11, 221.0 million or US$ 310.2 million. It covered the following activities: Increased Access - reconstruction (10,000) and construction (12,000) classrooms, Satellite Schools Pilot Programme (200 units) with training of teachers; Improved Quality - Training of teachers, cluster training program, upgrading facilities at PTIs and salary support; curriculum and textbook development, dissemination training and introduction of revised curriculum; Institutional Development - construction of DPEO offices and district warehouses, and Studies abroad. The World Bank, Asian Development Bank and a number of bi-lateral and multi-lateral development partners provided necessary support.

(b)   ‘Primary Education Development Program’ (now PEDP I), 1997-98 to 2001-2002, extended to 2002-2003 or June 2003. The estimated cost of the Programme was US$ 2,762.78 million. PEDP I was implemented through some 26 component/sub-component projects. It had 10 major components/sub-components intended to enhance access and improve quality of primary education; nine of the projects were dedicated to improving the quality. 3884 Satellite Schools were established under PEDP-1 or partially implemented, such as Satellite schools and ‘baby classes’. Other components included Development of Primary Education through Intensive District Approach (IDEAL) project; implemented within the framework of PEDP II with support from UNICEF/AUSAID in 36 districts, and, School through Enhanced Education Management (ESTEEM); this was a technical support project, supported by DFID. Financial progress relating to development activities has been rather slow. Lack of coordination between component and sub-component projects, in scheduling and implementation of activities of different projects has adversely affected progress of implementation. It has resulted in underutilization of available funds. Its experience has led to adoption of the programme or Sector Wide Approach (SWAP) in implementation of the PEDP II.

(c)                Food for Education (FFE), started in 1993, and stipends have encouraged targeted families (the poorest 40 percent) to put and keep their children in primary school. Cash for Education (CFE) grant has replaced FFE from July 2002. The Female Secondary Stipend Programme (FSSP), started in 1992, provides cash grant, book allowances and examination fee (for SSC) and tuition fees for all girls in secondary schools. The gender parity in secondary schools has reversed itself in favour of girls.  Both of these programs have gone on to win worldwide renown as pioneering a new form of incentive programme – conditional cash transfers (CCTs) with explicit social goals.

4.11     The three projects have made significant contribution to development of primary education in the country. Physical facilities have improved to an appreciable extent and access enhanced, gender equity achieved, training provided to teachers and others, cluster/sub-cluster training instituted, and capacities of supporting institutions have increased. The investments have enhanced access, expanded facilities and produced a large number of trained teachers but the quality of primary education has failed to improve.

4.12          Matrix on access and equity in primary education, NPA I goals and achievements are described below in Table 4.2.

Table 4.2: NPA I Goals and Achievement Matrix for access and equity

        Source: Estimates of PEDP II Project Preparation Team, Oct 2002

4. D     On-going projects

Primary Education Development Programme II (PEDP II)

4.13     GEP and PEDP-I helped build the foundation for expansion and improvement of primary education and its monitoring and evaluation. Besides donor support, Government’s own contribution to the education sector in general and primary and mass education sub-sector in particular, has also been very substantial, over 70 percent. Though the country provided highest allocation for education, particularly primary education, the available funds proved inadequate to meet the needs of quality improvement as major share of expenditure went to salaries and allowances. The elements of quality improvement/Assurance will require additional funds to procure and supply improved teaching-learning materials, general science and ICT education and supplementary reading materials, and for more effective life skills programme.

4.14          Keeping DFA/MDG goals in view, a new sector-wide program under the nomenclature Second Primary Education Development Programme (PEDP-II) was launched in 2003, as part of the NPA II under preparation; it will run through FY 2009. The major goals of this programme are:

-                      Quality improvement through organizational development and capacity building;

-                      Quality improvement in schools and classrooms through adoption of a child-centred approach;

-                      Quality improvement through infrastructure development;

-                      Improving and supporting equitable access to quality schooling; and

-                      Efficient implementation, management and monitoring including decentralization and greater community involvement.

4.15     The estimated cost of PEDP-II, which is scheduled to be executed during 2003-2009,  is about Tk.49.33 billion and development partners are expected to provide about US $ 639 million.

4.16     Other on-going projects which will also contribute positively towards achieving NPA II goals include the following :

-                      Reaching Out of School Children Project (ROSC); this project promotes primary education through a non-formal community-managed approach with a target of 500,000 children, 2004 - 2009; it is supported by the World Bank grant ($51 million) and SDC grant of $5.96 million; GOB share is equivalent of $6.06m

-                      Reconstruction and Renovation of GPS Project;

-                      RNGPS Project Phase II (construction/renovation of classrooms/schools);

-                      Expansion of Cub Scouting in GPS;

-                      IDB assisted GPS Construction Project II;

-                      School Feeding Programme, currently running on a pilot basis with support and coordination by WFP, will be expanded as proposed in the PRS.

4.17     These projects were developed for limited objectives as part of a continuing process, while the NPA II was being developed following the Dakar World Education Forum and adoption of the Dakar Framework for Action: Meeting our Commitments. To maintain the tempo and to ensure the required improvements, many other parallel activities up to 2009 not covered under PEDP-II as well as beyond 2009 will have to be taken up to meet the EFA and MDG goals.

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