THE ALL CHILDREN IN SCHOOL PROJECT
IN MYANMAR
Erik Bentzen1
The All Children in School (ACIS) Project is attempting to
improve primary education in Myanmar and dramatically increase
enrolment levels and completion rates through decentralised, local
management of primary schools. Critical to the success of the
ACIS Project is the mobilisation of the local community, the use of
student-centred teaching and managing schools through a cluster
system. Erik Bentzen explains the context, components and
constraints of the project.
BACKGROUND___________________________________________________
T
he All Children in School (ACIS) Project addresses major factors
constraining progress toward national goals for the education sector:
primary school enrolment and completion rates of 100 and 80 percent
respectively by the year 2000. These goals are challenging ones.
According to official estimates, as many as 23 percent of school-age children
never enrol in primary school.2 In other words, out of an estimated 1.3 million
students who are eligible to enrol in kindergarten each year, over 300,000 never
begin school. Moreover, about 750,000 children drop out of primary school each
year. The overwhelming majority are rural students, who reportedly drop out at a
rate of 630,000 annually. Most drop out during the first two years, and in many
areas more girls appear to drop out than boys.
Out of every 100 students who begin primary school, on average only 34
complete the five-year cycle.3 However, large variations in enrolment and
retention occur across the 14 states and divisions of Myanmar, with a high
retention of about 42 percent in Chin State and a low retention of about 26
percent in Kayah State.
1
Chief of Education, UNICEF, Myanmar.
Department of Planning and Statistics, Ministry of Health and UNICEF, 1995.
3 Ibid.
2
1
The 1983 census found that out of the total primary school-age population (i.e.,
children five to nine years old), about 39 percent did not attend school. A Primary
School Age Non-Enrolment Gap Survey confirmed that close to 39 percent of
school-aged children never enrol.4
Furthermore, 26 percent of parents
interviewed identified poverty and the inability of parents to pay for their
children's school expenses as major causes of non-enrolment. A more recent
survey found that about 23 percent of five-year old children do not enrol in
school.5 Although primary school attendance is free in Myanmar, parents incur
significant expenses in sending their children to school. These costs include
textbooks, uniforms, exercise books, stationery, a yearly contribution to the
Parent Teacher Association (PTA) fund, and ad hoc contributions for school
improvement.
In another study, 31 percent of respondents mentioned the family's financial
status as an important cause of drop-outs.6 Many parents, teachers and
township education officials also cited parents' lack of awareness of the value of
education and lack of community support as important factors. In fact, no one
assumes responsibility at the community level for ensuring that all children
actually participate in primary education. Heads of schools and teachers focus
their attention on those who are enrolled, and seldom work directly with families
whose children are out of school. Similarly, local administrators, community
leaders, religious leaders and even assistant township education officers
(ATEOs) do not promote and facilitate participation in primary school.
Among school related causes of drop. . . [M]any families are unable to meet basic
outs, lack of basic
costs for sending their children to school and
learning materials
keeping them there. Furthermore, the poor quaas well as poor
lity of teaching and learning methods, lack of
teaching and learnbasic learning materials, and over-crowded, ining methods were
adequate facilities may prevent many students
cited by 24 percent
from completing school.
of interviewees in
the 1992 study conducted by the Department of Basic Education and UNICEF. As noted above,
schools are unable to provide free textbooks to many children, and prices are
very high on the open market. Student/teacher ratios are high because over two4
Department of Basic Education and UNICEF, 1990.
Multiple Indicator Cluster Survey, Department of Planning and Statistics, Ministry of Health and
UNICEF, 1995.
6 Department of Basic Education and UNICEF, 1992.
5
2
thirds of all primary schools are understaffed, and two-thirds of all teachers
currently in service are untrained. Rote learning and exam-based teaching have
long been the norm in Myanmar, and children’s promotion to the next grade is
determined solely by their performance on a comprehensive year-end exam
designed to test recall of numerous facts rather than critical thinking and problem
solving. Realistic minimum learning competencies have not been defined for
each grade of primary school, and teachers are not in the habit of identifying
students at risk of failure or dropping out.
A survey conducted in 1991 found that about 57 percent of primary schools were
overcrowded as a result of inadequate facilities, including lack of basic furniture. 7
One-third of the buildings had exceeded their design lifespan, and a quarter
needed major maintenance and repair. The problem of inadequate facilities is
particularly acute in rural areas.
In summary, data from several studies strongly support the notion that many
families are unable to meet basic costs for sending their children to school and
keeping them there. Furthermore, the poor quality of teaching and learning
methods, lack of basic learning materials, and overcrowded, inadequate facilities
may prevent many students from completing school.
COMPONENTS OF THE PROJECT
ACIS is designed to accelerate enrolment of school-age children and help them
complete the five-year cycle by addressing the problems outlined in the
preceding section. Initiated in 1994, it has evolved over the past few years to
incorporate elements of another UNICEF-assisted project, initiated in 1991, that
focuses on improving the quality of primary education; the Continuous
Assessment and Progress System. The revised ACIS model therefore addresses
both in-school and out-of-school factors constraining progress toward national
education goals. It is currently implemented in approximately 7,700
disadvantaged rural schools in 18 townships, with an estimated student
population of 350,000.
7
Government of Myanmar and UNDP/UNESCO Education Sector Study Project.
3
The revised ACIS model includes the following interventions:

A rapid survey of primary school participation in project villages, including
identification of the most effective incentives for promoting full participation
among poor students.

A community mobilisation campaign aimed at
school enrolment.

Empowerment of village
leaders,
PTA
members, heads of
schools and primary
teachers
through
training and orientation.

Incentives for poor students, including free textbooks and exercise books,
exemption from all school fees and collections, and school lunches.

Preparation of teachers for more effective teaching, learning and management of primary school classrooms.

Development of appropriate teaching, learning and classroom management
materials for use by head teachers, teachers and supervisors in project
schools.

Incentives for teachers, including supplementary teaching-learning materials,
textbooks, and stationery.

Incentives for schools, including basic teaching aids and, subject to their
performance in meeting annual project targets, construction materials for
classroom extensions and sanitary latrines.

Strengthening of the cluster system for more effective school management.

A monitoring and evaluation system implemented by national, state, division,
and local officials.
ACIS is designed to accelerate enrolment of
school-age children and help them complete the five-year cycle by addressing . . .
both in-school and out-of-school factors
constraining progress toward national education goals.
4
THE
INNOVATIONS___________________________________________________
ACIS promotes decentralised or local management of education through a
variety of innovations.
Decentralised teacher-training: Myanmar has a very limited number of
teacher-training institutions, and only about one-third of all teachers undergo preservice training. Under the revised ACIS Project, an initial two-week training
course is organised at the zone level, with approximately five zones per township
(there are a total of 324 townships in Myanmar). The training focuses on
effective teaching and learning methods in multiple-grade teaching situations,
how to assess students’ learning progress and achievement in the areas of
language and mathematics, the teaching of basic nutrition and health, and how
to identify students, particularly girls, who are at risk of failing or dropping out.
The initial training is followed by two brief, quarterly refresher training sessions at
the cluster level (each cluster consists of 5 to 10 village schools located near
each other).
Decentralised project implementation and monitoring through the
Community-based Educational Development Association (CEDA): Through
the ACIS Project, Myanmar’s first non-governmental organisation for primary
education has been established. Where township chapters of CEDA are present,
its staff help organise training for PTAs at the district level (between the township
and cluster levels), support the collection of baseline data and target setting,
raise community awareness of major issues in primary education and facilitate
meetings between PTAs within school clusters.
School management through clusters: In the past, schools and teachers
functioned with little or no support or supervision. Primary school head teachers
focused almost exclusively on administrative matters, and ATEOs attempted to
act as inspectors of as many as 75-100 primary schools. With the ACIS Project,
management efficiencies are achieved through the creation of clusters consisting
of 5 to 10 schools located near each other. Head teachers and ATEOs are
trained to provide support and supervision through clusters. In this way, schools
disseminate successful innovations and experiences, teachers undergo refresher
training, resources (books, materials and equipment) are distributed and shared,
and data collection is strengthened.
5
Community mobilisation and participation: In the past, the role of PTAs was
confined to fund-raising for construction, maintenance and extension of school
buildings. For this project, PTAs collect baseline data with the help of
enumerators, set annual enrolment and retention targets in consultation with
teachers and head teachers, conduct house-to-house advocacy with parents of
unenroled children, manage the construction of sanitary latrines and safe water
supply systems for schools, provide incentives to encourage needy children to
participate in school, and engage in income generating activities to help pay for
such incentives.
Continuous assessment and student-centred teaching: Under the revised
ACIS Project, standardised year-end examinations that determine whether or not
a child progresses to the next grade are abolished. Instead, teachers use a
variety of assessment techniques – both formal and informal – to track children’s
learning achievements and identify those who are at risk of failing or dropping
out. Under the heading of formal assessment, teachers develop and administer
their own exams throughout the school year. The project also introduces studentcentred approaches to teaching. Interactive, hands-on activities are encouraged,
and teachers develop their own teaching and learning aids, using low-cost,
locally available materials.
IMPACT_________________________________________________________
The project is implemented by the Department of Basic Education in cooperation with local PTAs and local chapters of CEDA.
ELABORATION OF MAJOR PROJECT ACTIVITIES
Establish baseline information and targets: A rapid survey including focus
group discussions is conducted in selected representative townships and villages
in order to understand relevant community attitudes and behaviour and to
determine the most effective incentives for encouraging families and
communities to support primary education for all children, particularly girls. Staff
from the CEDA township offices also help organise and implement baseline data
collection on the number of school-age children in ACIS townships.
Annual targets are set for increasing enrolment and retention at the township
and school levels. Together with ATEOs, local village authorities act as focal
points for collecting basic demographic data and for establishing baseline figures
on enrolment and non-enrolment in accordance with the goals and targets set in
6
the National Programme of Action for the Survival, Protection and Development
of Myanmar’s Children in the 1990's (NPA).
At the school level, the head primary teacher and the PTA are responsible for
monitoring progress vis-à-vis the annual targets, including increases in primary
school participation rates and the number of children benefiting from the project.
Primary school participation and completion rates for each of the participating
townships are also monitored through the ACIS Project.
Conduct a national social mobilisation campaign: On the basis of a rapid
survey, a communication strategy for mobilising communities is designed and
implemented. The following groups are targeted: decision- and policy-makers at
the central level, township education officers, community and religious leaders,
heads of schools, primary school teachers, PTAs and parents.
A low-cost video documentary will be produced in order to highlight the magnitude of the non-enrolment problem among primary school-age children in rural
communities as well as strategies and actions necessary for meeting the NPA
goals. The documen-tary will be used as a tool for advocacy with education
officials, general administra-tion, NGOs and ex-ternal donors. The project is also
reach-ing rural communities via well-designed TV spots disseminated through
the hundreds of video parlours around the country. The daily newspaper and an
education journal will
be
used
for
[Media messages] stress the right of all children
communicating
to a primary education and the various benefits
information to local
deriving from basic education, including imleaders, heads of
proved health, nutrition and enhanced emschools and township
ployment opportunities. The messages also emeducation
officials.
phasize the role community members can play
Messages are short,
in seeing that all school-age children attend
direct, humorous and
primary school regularly and complete the fiveinformative.
They
year cycle.
stress the right of all
children to a primary
education and the
various benefits deriving from basic education, including improved health,
nutrition and enhanced employment opportunities. The messages also
emphasise the role community members can play in seeing that all school-age
children attend primary school regularly and complete the five-year cycle.
7
Empower local communities: The community mobilisation strategy includes
short, practical training and orientation sessions. Village leaders and PTA
members learn techniques for mobilising parents, including relevant
organisational, management and interpersonal skills. CEDA staff facilitate these
activities. Guidelines are also provided on how to administer the selection of poor
students for exemption or subsidisation of schooling costs. The
training/orientation sessions also empower PTAs to motivate poor families to
send their children to school through, for example, provision of free daily school
lunches. Poor students receive free lunches while the majority of students pay a
small amount for them.
Complementary short training and orientation sessions at the township level are
also conducted for primary school heads and teachers. These sessions focus on
the role of heads of schools and teachers in working with parents to enrol hardto-reach students, and on specific measures for preventing drop-outs and
ensuring the timely progression of students through the five-year cycle.
Prepare head and primary school teachers for new roles within schools
and clusters: As mentioned above, a two-week training course for primary
school teachers emphasises practical training, followed by two short quarterly
refresher training sessions at the cluster level. ATEOs help organise these
training activities.
To facilitate sharing of successful innovations and experiences and to improve
collaboration among primary schools in rural areas, primary heads and ATEOs
undergo one week of training in the organisation and management of school
clusters. The training includes a demonstration of how teaching skills can be
strengthened through regular and systematic use of peer teacher consultations
and training. The training also includes information on how resources (books,
materials, equipment) can be shared among schools in a cluster, and on how the
cluster strategy can strengthen data collection. The training of cluster heads
prepares them to conduct short teacher-training workshops three times a year for
primary teachers within their clusters. Staff of CEDA assist the cluster heads in
organising and conducting these workshops.
Strengthen partnerships in support of primary education: With the ACIS
Project, alliances and partnerships at the township and village levels are
strengthened. Incentives for poor parents and students take the form of
exemptions from school fees or subsidies of costs that would otherwise prevent
children from attending school. The incentives for village authorities, PTAs and
8
school heads take the form of resources for upgrading and extending school
facilities.
However, during the second year of project implementation, a primary school's
record in achieving the annual targets for the preceding year determine its level
of support. Only communities and schools that can demonstrate results ‘earn’
the right to receive additional incentives in the form of resources for upgrading
and extending school facilities.
CONSTRAINTS

In many project communities, PTAs had been inactive for some time.
Furthermore, all active PTAs had a very narrowly defined role (i.e., to raise
funds for construction, maintenance and extension of school buildings).
Finally, PTA executive committees are generally dominated by affluent, older
men. Women, the young (i.e., parents with children of primary school age)
and the poor are under-represented.
The first two constraints above have been addressed through PTA training,
which stresses the importance of general community welfare and
opportunities for expanding the role of PTAs.

The collection of reliable baseline data has been challenging for a number of
reasons. The last national census was conducted in 1983, and the birth
registration system in Myanmar is very weak. In addition, no school-mapping
exercise has been undertaken, and school catchment areas are being
defined for the first time under the ACIS Project. Finally, data collection is
very difficult in remote communities.
These constraints have been addressed through training and the
development of a simple, localised data management system.

Capacity building and information sharing through clusters is sometimes
constrained by difficulties of communication and transport. Journeys between
schools within a cluster can be very time-consuming because of difficult
terrain or lack of transportation.
Bicycles, basic learning materials and duplicators are provided for cluster
heads. The last are used to reproduce teaching aids and materials during
retraining sessions for teachers.
9

The work of CEDA is constrained because this new NGO’s resource base
(human, technical and financial) is weak, it is not yet officially registered and
therefore cannot raise funds, and the government is reluctant to allow NGOs
greater autonomy.
For the time being, UNICEF uses supplementary funds to pay the salaries
of 17 professional staff of CEDA.

Because Myanmar is a least developed country, human and financial
resources available for primary education are extremely limited. For example,
when adjusted for inflation, salaries for teachers and ATEOs fall below the
poverty level. As a result, many teachers must find part-time employment
outside school and may therefore lack the time needed to introduce
innovative teaching and learning methods in classrooms, or to assume new
roles in enrolling out-of-school children.
Behavioural change among teachers is promoted through training and
regular cluster meetings. Similarly, ATEOs undergo training and receive
motorcycles to enable them to assume new roles in supporting and
supervising innovations introduced under the project.

More generally, educational policies fail to create an enabling environment for
innovations to improve primary education introduced under the project.
Examples of disabling policies include:
1. The failure to establish direct links between primary education and
Myanmar’s economic and social development.
2. The highly centralised system of decision-making within the Ministry of
Education, which inhibits local or decentralised action.
3. Very limited capacity of systems for teacher-training and supervision,
textbook production and curriculum development.
4. The lack of special focus on primary education within the Ministry of
Education. For example, primary and secondary education are combined
within the same organisational units/structures.
5. Serious under-investment in primary education, with communities bearing
an estimated 50 percent of the total cost for primary education.
10
LESSONS LEARNED______________________________________________
Field visits to ACIS project schools and communities have shown that greater
community participation is indeed taking place in a large number of townships.
PTAs have been collecting baseline data on school-age children and setting and
achieving school-level enrolment and retention targets in about two-thirds of all
project schools. Moreover, CEDA staff and PTA members discuss and decide
upon criteria to identify disadvantaged families and children who qualify for free
school supplies and exemptions from all fees. There are also examples of a
growing trust and collaboration between school heads and teachers, on one
side, and the community at large, on the other. Such collaboration has resulted
in efforts to assist understaffed schools by hiring local teachers through
community donations and in the growing willingness of teachers to communicate
regularly with parents about their children’s progress in school. Even more
remarkable, perhaps, is the progress that some communities have made in
identifying and enrolling previously ‘invisible’ children, such as children of migrant
farm workers.
The project has demonstrated that it is
The interventions introduced under the revised
a sound model for
ACIS Project are necessary but not sufficient for
focusing on areas
achieving ‘education for all’ goals, for which
that are critical to
major systemic and policy reforms are also reimproving both the
quired . . .
process and outcomes of primary education. During 19951996, 70 percent of all ACIS schools met criteria for significantly higher
enrolment and retention rates. During two consecutive school years (1994-1995
and 1995-1996), the key indicators for ACIS schools have improved.
Kindergarten admission rates have increased from 65 to 77 percent; retention
rates have increased from 82 to 89 percent; pass rates have increased from 82
to 85 percent; and net enrolment rates have increased from 78 to 84 percent.
A foundation for systematic monitoring is now taking shape. Identification of
critical qualitative as well as quantitative indicators for monitoring have been
integrated into the school cluster system. Through school-mapping exercises,
the school catchment areas have been defined and actors from within and
outside the school environment are contributing to the development of a dynamic
monitoring system. Particularly given the rapidly expanding coverage of project
11
interventions in many remote rural communities, it is very difficult to continue to
make and assess progress in the current political, socio-economic and policy
environment.
The interventions introduced under the revised ACIS Project are necessary but
not sufficient for achieving ‘education for all’ goals, for which major systemic and
policy reforms are also required, especially where budgetary allocations to the
sector are concerned. Perhaps one of the project’s most important contributions
is precisely to show the way toward policy changes and broader educational
reforms that are so urgently needed to build a relevant, effective, efficient and
sustainable system of primary education for the children of Myanmar.
12