EFA 2000: Literacy Assessment
Bhutan
EDUCATION FOR ALL: THE YEAR 2000 ASSESSMENT
COUNTRY REPORT
BY
BHUTAN
Education Division
Ministry of Health and Education
Royal Government of Bhutan
Thimphu
November 1999
[This is an excerpt of country report containing relevant sections on literacy and non-formal
education.]
Downloaded from Asia-Pacific Literacy Data Base (http://www.accu.or.jp/litdbase).
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EFA 2000: Literacy Assessment
Bhutan
Executive Summary
The Policy of the Royal Government of Bhutan is to provide a minimum of 9 years, free quality education to
all its citizens. To this extent, the RGOB Education policies are very much in line with the EFA goal of
Education for All by 2000. The main EFA goals for Bhutan are to:
-increase the primary enrolment ratio (GER) from 67% in 1990 to 90% by 2000;
-increase the percentage of female enrolment at primary level from 39% to 50%;
-improve the completion rate of primary schooling from 35% to 80%; and
-increase the literacy rate.
To achieve these targets, the Government targeted at an annual primary enrolment growth rate of 6%;
reducing the annual drop-out rate in the Primary Education system from 10% to 5%; reducing repetition rate
from 21% to 10%; universalising coverage of the new primary curriculum based on activity methods; and
increasing the annual number of participants for the Non-formal education programme from 300 to 4800.
…
Another area of achievement is in the area of Non-formal education which was introduced on a pilot basis.
The Non-formal education system which started with 6 centres and 300 participants in 1992 has developed
to 105 centres with over 3000 participants, more than 70% of whom are women. According to a recent
survey, the NFE programme has enabled learners to acquire basic functional life skills of reading, writing,
mathematics and knowledge on health, nutrition, hygiene and STDs. The survey also showed a very positive
response to the programme from the masses. Bhutan is now ready to establish the programme on a large
scale.
For early childhood care and development, there are no special programmes and facilities except for the
nursery education services provided by a few of the private schools. The main childhood care and
development can therefore be said to be provided at home by parents and family members. Programmes are
now underway to include education on early childhood care and development in the Non-formal education
courses so that parents are better prepared to undertake this task. The first year of Primary Education known
as Pre-Primary grade is also largely directed at preparing children for the world of formal learning.
…..
An alternative form of education which pre-dates the modern education system and which still plays an
important educational role in the country is the monastic education system. The monastic education imparts
reading, writing and other skills related to traditional arts and crafts, philosophy, astrology and religious
studies. This form of education is provided by the Ecclesiastical Body and as such does not come under the
responsibility of the Division of Education.
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EFA 2000: Literacy Assessment
Bhutan
1.
Part I
1.
Introduction
Education Administration
1.8
The administration of the Ministry of Health and Education is headed by the Minister. The Division
of Education is headed by the Director of Education who is responsible for policy planning, programming
and implementation of all the educational programmes in the country. There are 10 sections within the
Division: Planning, Personnel, Education Monitoring and Support Section, Curriculum and Professional
Services, School Planning and Building Cell, Board of Examinations, Youth Guidance and Career
Counselling, Non-formal education, School and Liaison Coordination and Procurement and Supply section.
While the Division of Education directly administers higher and teacher training programmes, the financial
and administrative responsibilities of the primary and secondary schools are now being looked after by the
respective Dzongkhag administrations. Please refer to figure below:
Organisational Set Up of The Education Division
MINISTER
Director
Education
Director
AFD
Director
Health
DEO
BBE
CAPSS
Schools
&
NFE
centres
PLNS
PERS
Sherubtse
ILC
NID
EMSS
NFES
NIE
TTC
SLCS
SPLYS
SPBS
YGCS
ECS
ERS
3
Youth
Centres
EFA 2000: Literacy Assessment
2.
2.1
2.
Bhutan
National EFA Goals and targets
The EFA goals is to provide every citizen in the country with learning opportunities and to ensure
that each citizen has acquired basic competency as defined below:
a) Basic skills in reading with understanding and writing simple letters in English and/or Dzongkha.
b) Basic skills in understanding common notifications and signs, posters, simple instructions, pamphlets, etc.
c) Basic ability to do simple additions, multiplications and divisions and to apply these processes to activities
of daily living.
d) Basic knowledge of the country’s history, culture and traditions.
e) Basic knowledge in the practical application of the country’s customs and laws.
f) Basic knowledge in agriculture, health, sanitation, nutrition and values of environmental conservation.
2.2
The above reflect the minimum skills required by an individual to survive and live a dignified and
productive life in the modern Bhutan.
2.3
There are 4 major goals set for the year 2000 in order to achieve EFA objectives as follows:
2.4
a)
To increase Primary Enrolment Ratio (gross) from 67% 1 in 1990 to 90% by the year 2000.
b)
To increase the percentage of female enrolment at primary level from 39% to 50%.
c)
To improve the completion rate of primary level schooling (Grade VI) from 35% to 80%.
d)
To improve the literacy rate.
Four other subsidiary goals were set as hereunder:
a)
b)
c)
d)
To reduce the annual dropout rate at the primary level from 10% to 5%.
To reduce the repetition rate from 21% to 10%
To universalize the coverage of the new curriculum and the new activity based teaching
method
To increase the number of participants for Non-formal education programme from 1000
annually to 4800 annually.
1
The 6-12 population in 1991 was estimated at 15% of the total population. However, more recent
statistics of Health Division and Central Statistical Organization indicate that it may actually have been around
18%. If this be the case the actual GER for 1991 was 55% as indicated in the EFA tabs at annexes.
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EFA 2000: Literacy Assessment
Bhutan
Target beneficiary
2.5
As is apparent from the goals, the main target groups for the EFA programme are the
primary-school-age children (6-12), out-of-school children, early dropouts and young illiterates.
3.
3.
3.1
National EFA Strategy and programmes
The following programmes were identified to help achieve EFA targets:
Early Childhood Care and Development (ECCD)
Primary Education Enrolment Expansion
Primary Education Quality Improvement
Alternative Channels of Education
Non-formal education Programme
…..
Alternative Channels of education
Monastic Education
3.2
Before the advent of the modern education system, the kingdom had a well-established monastic
education system dating back to the 8th century A.D. These schools still play an important role in
the kingdom's social and religious life and are instrumental in giving access to an alternative form
of education very much relevant to the present social and individual needs. It was estimated that in
1990, at least 15,000 monks and gomchens were enrolled in these schools. Although no direct
investments were planned to be made for this programme, the EFA plan nevertheless recognized
and mentioned the importance of this channel of education in complementing the efforts of the
modern education system.
Non formal and Literacy Programmes
3.3
At the time of drafting the EFA plan, there were no literacy surveys carried out for the country. The
general estimate available points to a figure of 35% for 1990. The non-formal education
programme then was just being established on an experimental footing and it was expected that
because of the constraints of resources both of human and materials, that NFE programme at its best
will be implemented on a very modest scale targeting those population groups where there already
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EFA 2000: Literacy Assessment
Bhutan
was a demand for such education.
3.4
Because of the constraints of resources, it was also decided that wherever feasible, the NFE
programme will use the facilities and the services of the existing personnel in the formal education
system.
3.5
The table below provides a summary of the programme which was to be implemented with the help
of UNESCO and UNICEF between 1993-96.
Table 3: Literacy Activities and Annual Targets
Activities
1993
1994
1995
1996
33
40
40
40
1333
1600
1900
2400
59
59
75
75
1
Number of NFE Centres
2
Number of Participants
3
Number of Instructors Trained
4
Number of Literacy Primers
Developed
3
5
Number of Supplementary Readers
Developed for Neo-literates
0
5
5
5
5
Workshops:
a) Number of Instructors'
Training Workshops
2
5
5
5
b) Number of Curriculum and
Material Development Workshop
5
6
3
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EFA 2000: Literacy Assessment
4.
Bhutan
National EFA decision-making and management
4.
4.1
While the EFA goals and targets provide policy and programme framework, major strategic
decisions within these programmes are made within the 5 Year Planning cycles. The 5 Year
Planning process is initiated with certain policy directives and guidelines provided by the Planning
Commission. The guideline itself is the result of a situation analysis carried out by the government
including the line ministries. The policy direction filters to the grassroot level through the
development forums such as the DYTs (Dzongkhag Yargye Tshochug), and the GYTs (Gewog
Yargye Tshochug), two important development forums for the people. These forums also discuss
activities proposed by the communities and the local authorities. This is described by the figure at
right. Therefore the institution of a school or a Non-formal education Centre in a village has to be
formally approved at the gewog (block) level before it is submitted for approval at the Dzongkhag
level. At the dzongkhag level, the authority has to prioritize the programmes and cost the proposals
for further submission to the Education Division or to the Planning Commission.
5.
Cooperation in EFA
5.
51
It is perceived that full measure of success in achieving the EFA objectives depend on the support
from:
a)
b)
c)
beneficiaries themselves,
other sectors in the government, and
donor agencies.
a) Support from beneficiaries
…..
52
The concept of community participation has also extended to the Non-formal education programme
where communities help put up structures required for community learning centres. In addition, all
NFE learning centres are managed by the NFE committee comprising of the school head teacher
and village elders under the chairmanship of the gup (Head of Gewog/Block) who is directly
responsible for planning and management of literacy programmes in the community.
……
b)
Other sectors in the government
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EFA 2000: Literacy Assessment
53
Bhutan
Furthermore, the Division of Education has received valuable support from the Health, Agriculture
and Environment sectors in promoting these components of the curriculum both in the formal and
the Non-formal education programmes. In addition, many of the sectoral programmes have
components of education, especially those related to extension services. The Bhutan Broadcasting
Corporation has also provided a time-slot in the radio programme for providing education
programmes directed to the children and the teachers. the Education Division has since 1997 used
this slot to air a weekly radio programme titled "Education Calling Teachers" which help update and
keep teachers informed about current educational issues.
c)
Donor agencies
…..
54
6.
Bhutan has also benefited from regional projects under UNESCO such as APPEAL and APEID
which have provided valuable support to the development of Non-formal education programme.
Investment since 1990
…..
61
Within such constraints, the following attempts to assess the magnitude of the expenditures incurred
for the EFA programme. The assessment is being made only for the programmes under the
Education Sector as the bulk of the programmes lie within the education sector. The most
significant programmes contributing to the EFA goals are primary education, followed by
Non-formal education.
62
Between 1992-97, and during the 7th Plan, the government allocated NU1738.870 million for the
education sector as follows.
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EFA 2000: Literacy Assessment
Bhutan
Table 4: EFA Allocation and total education allocation for the 7th Plan, 1992-97.
Number in million
NO.
Programmes
Current
Total
164.595
764.653
1
Primary Schools Maintenance and Expansion
2
Non-formal education Pilot Testing
3
Teacher Training Institutions
4
Blind School and Education for Special Needs
5
Curriculum Development
10.174
10.174
6
Printing and Publishing of Books and Manuals
20.138
20.138
7
Supplies of Stationery and Books
24.249
24.249
8
Feeding Schemes
3.55
3.55
53.955
36.743
90.698
4.741
0.69
5.431
46.192
46.192
Total of 1-8 which relates to EFA programmes
716.866
248.22
965.086
Percent of 7th plan for EFA
55.87%
54.47%
55.50%
1283.194
455.676
1738.87
Total 7th Plan for overall Education sector
6.3
600.058
Capital
With respect to Non-formal education Programme, the major costs incurred during the 1992-98
period has been on development of materials and teacher training. Very little costs have been
incurred on capital development as classes are mostly conducted in the existing formal schools.
Teacher renumeration has also been minimal as the NFE programme utilizes the services of the
formal school teachers on very nominal charges. Total expenditures incurred on NFE programme
per annum is estimated at NU 2 million per annum.
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EFA 2000: Literacy Assessment
Bhutan
Part II
6.
7.
Progress towards goals and targets
…..
Expansion of early childhood care and development activities
……
Non-formal education
7 (1)
With the introduction of Non-formal education (NFE) in 1992, parents who are the most important
teachers of their children, have had access to learning about various life skills. Although, no specific
learning material on ECCD have been developed, many of its related themes under health and
nutrition, hygiene, family health, education, etc., have been covered. Moreover, discussions have
been underway to include ECCD in the NFE curriculum.
Primary Education Enrolment Expansion
Community Schooling programme
7. (2)
One of the most important and effective factors for helping enhance the enrolment at the primary
level has been the community schools. Community schools are essentially primary schools that
cater to a specific community which can be a village or a cluster of villages. The school is built
and maintained by the communities using locally available resource materials. The government
supplies assistance for roofing materials and window sheets etc. which are not locally available.
…..
Convinced that the communities were ready to share the burden of educating their children, the
government in 1990 gave independence status to these schools with the posting of their own heads.
An important feature of the community schools is that they are initiated, constructed and
maintained by the community themselves although these are government schools in the sense that
the staffing requirements, curriculum and educational materials are provided by the government.
A school management Board consisting of the influential members of the community as well as the
school staff help in mobilizing community participation as well helping in the management of the
schools.
Community schools were first started in 1986 as extended classrooms (ECRs).
As the name “extended” suggests, these were (classroom) extensions of existing
primary schools and located in temporary huts, temples, or farm houses. While
teachers and learning materials were provided directly by the Education Division, the
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EFA 2000: Literacy Assessment
Bhutan
management and supervision of the schools were entrusted to the parent schools. This
practice helped increase the coverage of the existing schools considerably and
overnight, communities began to establish these extensions all over the country.
However, this made it very difficult for the parent schools to manage or provide any
professional.
7. (3)
During 1991-98, 158
new community schools
Proportion of Primary students studying in Community schools
were established in the
17%
most disadvantaged and
remote parts of the
16%
Kingdom. The enrolment
15%
in
the
community
14%
schools
has
been
growing steadily from
13%
5,576 number of students
12%
in 1991 to well over
12,695 in 1998. Some of
11%
these schools have been
10%
converted to boarding
1991
1992
1993
1994
1995
1996
1997
1998
primary schools thus
catering also to other
communities. Therefore
at present (1998) there are only 115 schools retaining the name of community schools. It
constitutes almost 17% of the total student population at the primary education level.
7. (4)
The establishment of community schools has made it possible for the Royal Government to
provide educational opportunities to many of the population groups living in the rural and remote
parts of the country without taxing the already limited resources of the government. It has helped
ensure the sustainability of an expanding education service and is credited for having helped
curb rural urban migration and reduced overcrowding in the urban schools.
7. (5)
These schools have also become the centre of continuing educational activity for many
communities. The school facilities are used for conducting non-formal education classes for the
community using the existing teachers after school hours. Other vocational skills training are
also conducted for the benefit of the community using the school facilities.
Non-formal education Programme
7. (6)
No literacy survey has been conducted in Bhutan. Figures presently available vary
according to sources and methods of estimation adopted. Generally, it was believed that the
literacy level in 1991 was around 35-50 percent. More recent estimates point to a level of 54%.
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EFA 2000: Literacy Assessment
Bhutan
However no gender segregation is available although it is generally believed that female literacy
is below the national average.
7. (7)
Non-formal education programme in Bhutan was conceived as an alternative educational
channel to help people acquire literacy skills. Early school dropouts, young men and women are
the main target groups of the programme.
7. (8)
Because of the limited resources and experience, the programme was initiated on a very small
scale in 1990. Also wherever possible, the NFE programme uses the formal schools as the NFE
centres. Apart from the benefits of the physical infrastructure such as classrooms, this also
enables the programme to draw on other resources from the school such as its teachers and
library facilities. The first structured curriculum for the NFE programme was drawn up in 1992.
The curriculum tries to meet three broad objectives as defined below:
a)
To provide literacy training in Dzongkha (national language) to both men and women who
have not received such training through the formal education system.
b)
To provide functional and basic life-skills related knowledge
c)
To provide post literacy and continuing education programme to help establish a literate
society.
7. (9)
Beginning with almost nothing, the NFE programme in Bhutan has now a structured curriculum
and reading and learning materials to support it. A total of 30 readers have been developed on
a wide variety of subjects to help the learners. The programme at present is structured into 3
distinct levels beginning with very basic literacy skills in level 1 and continuing to much more
complex skills. The duration of the course ranges between 6 to 12 months. By the end of the
course, learners are not only able to read and write but do simple, every day arithmetics. They
also acquire basic knowledge on health, hygiene, family planning, agriculture, forestry,
environment, culture and tradition.
7 (10)
The table below shows the number of NFE centres and their enrolment for different years from
1992 to the present.
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EFA 2000: Literacy Assessment
Bhutan
Table 21: No of NFE centres and enrolment (1992-98)
Year
No. of Centres
No. of learners enrolled
Male
Female
Total
1992
6
73
227
300
1993
35
370
985
1355
1994
35
374
995
1369
1995
26
286
658
944
1995
34
355
889
1244
1997
42
412
970
1382
1998
54
625
1323
1942
1999
56
649
1442
2091
3144
7489
10633
29.43%
70.43%
100%
Total
Percent
7 (11)
From 6 centres in 1992, the programme has now expanded to 56 centres. Annual enrolment has
also increased from 300 in 1992 to 2091 in 1999. At the end of 1999, there would be a total of
10,633 people who would have gone through this programme. Out of 10,633 enrolled, 5,000 or
60% are expected to have acquired basic literacy skills. It may also be noted that over 70% of the
enrolment in this programme is women.
7. (12)
A full scale evaluation of the NFE programme was conducted by the Education Division in 1999.
1,556 persons from 18 Dzongkhags were interviewed and 600 tested on functional
literacy/knowledge. The study compared scores on functional literacy/knowledge between old
NFE learners and non-learners. The main findings showed that old NFE learners could fill out
forms, read envelopes and sight words more easily while non-learners could not perform any of
these functions. Old learners scored twice as high as non-learners in functional knowledge on
health and hygiene and knowledge on STDs and in performing simple math operations.
7. (13)
Starting 1996, post literacy programmes have been introduced as an effort to help the
neo-literates to retain and enhance their literacy skills. Curriculum for Post Literacy Courses
(PLC) has been designed in three different packages covering broad areas related to functional
literacy, arithmetic, health care, agriculture, animal husbandry, environment, technical courses
and value education. Each package takes 6 months to complete. The packages are not graded so
as to facilitate the learners to choose any package they are most interested in.
7. (14)
A total of 30 readers and workbooks have also been developed to help the learners at this level.
These materials were developed in workshop settings involving government staff from different
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EFA 2000: Literacy Assessment
Bhutan
line Ministries such as Agriculture, Health and National Environment Commission.
7. (15)
So far, 333 learners have enrolled in this programme in the 11 centres established to date. To
help promote this programme, two pilot Community Learning Centres (CLC) have been
established and more CLCs are planned to be established within the next 5 years. The details of
the learners enrolled in the PLCs are as follows:
Table 22: No of CLC centres and PLC learners
Year
No of
Centres
No. of learners
Remarks
Male
Female
Total
1996
1
2
25
27
1997
4
8
72
80
1998
11
32
196
228
40
293
333
Total
As of Dec.'1998
7. (16)
Post literacy programmes are not confined to those who have passed from the Basic Literacy
programme. They are extended also to those who have received literacy training through the
monastic education system as well as the formal education system such as school dropouts. Like
the Basic Literacy classes, the post literacy programme also uses the formal schooling facilities
including its teachers and library resources. An exception is in communities where they have
community learning centres in which case such centres are utilized for both Basic and Post
Literacy programmes.
7.(17)
Training and creating a pool of competent NFE teachers is another important component
towards making the NFE programme successful. As mentioned earlier, a majority of these
teachers are primary teachers trained to deliver the formal education curriculum with little
knowledge of adult learning. Therefore, the Division of Education organizes short training
programmes in the winter vacations to provide these teachers with special skills required to cope
with the NFE curriculum and teaching adult learners. Introduced formally in 1994, the
government has so far trained 360 teachers as follows:
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EFA 2000: Literacy Assessment
Bhutan
Table 23: Number of teachers trained in NFE teaching (1994-98)
Year
1994
1995
1996
1997
1998
Total
No. of Teachers trained
160
80
30
50
40
360
7.(18)
One of the strategies adopted by the Government to ensure that NFE programmes make
significant impact in alleviating illiteracy has been to get the communities concerned to initiate
the programme themselves. The community concerned has to formally make a request through
their local representative to the Dzongkhag Education Office, who can study the proposal and
then recommend for its establishment. This ensures that literacy programmes are made available
to communities who are already receptive of the programme and see the need for such skills
thereby helping the implementers to get better cooperation and higher success rates. This has
also been instrumental in ensuring that the small NFE sub-sector is not overloaded in terms of
resources, both materials and teachers.
7.(19)
A larger and much more significant achievement in this sub-sector is in the establishment of a
programme which can now begin to address the needs of the wider population. The successful
implementation of the programme in the various NFE centres have given invaluable experience
and confidence amongst both educators and the administrators to take the challenge of mass
implementation in the following decade. More importantly, this has also impressed upon the
population that the NFE programme can be an effective means towards realizing their desire to
be literate. As a result, the demand for NFE centres is increasing and for the next 5-10 years, the
challenge will be to meet the demand with the same quality programmes.
Expansion of basic education and training in other essential skills required
by youth and adults.
Basic Skills Development Programme (BSDP)
7.(20)
This programme was initiated in 1997 by the Technical and Vocation Education Section
(TVES)2 of the Education Division. BSDP is targeted at the students as well as out of school
youth and adults to enhance dignity of labour, promote civic responsibilities, engage them in
self-supporting economic activities and encourage lifelong learning. For the students, these are
organized in the form of school clubs wherein a teacher takes the lead role in providing essential
guidance. Tools and equipment are provided by the government. A total of 563 people
constituting students, teachers, juveniles, villagers and support staff of schools have been trained
2
Now NTTA
15
EFA 2000: Literacy Assessment
Bhutan
in various occupational skills. Of the 563 trained from January 1997 to February 1999, 106 were
trained in plumbing, 113 in house wiring, 86 in construction carpentry, 59 in furniture making,
29 in hair cutting, 145 in masonry and 25 in gardening.
7. (21)
Furthermore, starting1999, the TVES has instituted 9 vocational centres. In addition to providing
basic vocational skills-training to school-leavers seeking employment, the vocational centres
will be expected to promote vocational skills among their general students. These centres will
be based in formal schools and institutions and provide training programmes as per local
demands. So far ten vocational instructors have also been trained who will provide the lead role
in running these centres. In addition, TVES expects to provide mobile technical staff to support
these programmes.
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EFA 2000: Literacy Assessment
Bhutan
Rigney Education (Traditional art and craft school)
7.(22)
Another important programme that has been established recently by the government is the
Rigney Education. This programme is mainly targeted at school leavers who wish to take up
vocations in traditional arts and crafts. The Trashi Yangtse Rigney Institute in eastern Bhutan
offers training in the 13 traditional arts and crafts known as Zorig Chusum. The school which
was established in 1997 has at present an enrolment of 30 students. In addition, the Painting
school in Thimphu trains students in Bhutanese religious and traditional decorative arts. The
school has at present an enrolment of 56.
Youth Programmes
7.(23)
A few of the emerging issues related to youth are the problems of educated unemployment,
substance abuse, delinquencies, thefts, sexual offences etc. especially in the urban areas. While
no specific targets were set for this issue, it was generally believed that this required to be tackled
through the existing formal schooling programme as well as focused programmes targeted at the
urban youth.
7.(24)
In response to this, the government in 1996 established a new section within Education Division,
called theYouth Guidance and Counselling Service (YGCS). Since its inception, YGCS has
established a comprehensive youth guidance and counselling programme to help youth cope
with the multitude of issues that beset them. This includes providing information as well as
working together with the youth to understand and guide them through their problems. YGCS
also provides career education to all students to promote a realistic assessment of their own
capability and interest relative to the world of work. Programmes are also developed to impart
physical and reproductive health education information to youth. Heads of tertiary institutes,
secondary schools, primary schools, District Education Officers, and senior educators have been
trained to respond better to the issues of youth problems and provide counselling roles.
7.(25)
Another programme which is gaining increasing popularity in the kingdom is the scouts
programme. Established for a few students in early 1990s, this programme is increasingly being
viewed as an important channel for imparting essential skills and values in our youth which will
help them to cope with many of the issues facing them.
Youth Centre
7.(26)
The Education Division also established a Youth Centre in Thimphu in May 1996 to cater to the
needs of growing numbers of youths and adults. The centre aims at not only providing the
recreational facilities but also providing skill based literacy programmes for self-employment to
youth such as computer literacy, tailoring, knitting, house wiring, painting etc. The courses are
being certified to help them get employment. The centre is also initiating club activities such as
visual arts, youth environment education, sports, languages, yoga, and so on. In future, the
centre plans to open mini youth centres in all the districts to carry out similar activities.
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EFA 2000: Literacy Assessment
Bhutan
Increased acquisition by individuals and families of the knowledge, skills and values for
better living, made available through alternative education channels
7.(27)
Besides the formal and the non-formal education programme, there are numerous government
and non-government programmes which help provide skills, knowledge and values to the
general population at large thus contributing to the EFA goals and objectives. One of the most
important of these programmes is the monastic education system. Instituted in the 8th century
A.D., this was the only form of education available in the country till early part of this century.
While the institution of modern education system has pushed this programme to the background,
the programme nevertheless continues to play a major role in providing education to those who
opt to take up monastic and ecclesiastic calling. In the Bhutanese context, such decisions are
made quite early in life and a significant proportion of the Bhutanese population continues to be
beneficiary of this form of education. Unfortunately, for this report it has not been possible to
get reliable data on the extent of such beneficiaries.
7.(28)
There are numerous types of programmes provided by different monastic institutions. The most
organized of this is the programme which is directly administered by the Central Monastic Body.
While the Headquarters remain Tashi-Chhodzong, this monastic order commands similar
institutions in all the 20 Dzongs. These institutions also provide patronage to numerous
Gomdeys (Lay monk's monasteries), Drubdeys (Meditation centres), Shedras (School for
language and arts), Lobdras (Monastic schools) and Nunneries. The information currently
available estimate the enrolment in these institutions to 5,289 as follows:
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Table 24: Number of Monastic institutions and enrolment receiving direct support from the Central
Monastic Body.
7.(29)
Institution
Number
Enrolment
Dratshang
8
1810
Rabdey
17
1931
Drubdey
19
532
Gomdey
49
134
Shedra
30
583
Lobdra
7
217
Nunnery
3
82
Total
130
5289
A less well organized institution but nevertheless covering a wider expanse of the country are the
village temples (Goenpas) which also may house a respected Lama and his lay followers who
study under him to become lay-practitioners of religion. The record of the Special Commission
for Cultural Affairs indicate that there are 2002 monasteries and temples spread throughout the
country. Even assuming a modest number of 5 gomchens in these places, one would get to a
figure of 10,000 in the country. In addition, there are the nunneries where there is an estimated
enrolment of 500.
Agriculture Extension Programme
7.(30)
Instituted early in the 1970s, the extension programme is seen as playing an important role in
helping farmers improve farming practices and improving management of farming resources.
The knowledge and skills are disseminated through exhibitions, demonstrations, farmer’s
training courses, study tours and distribution of information leaflets. Farmer-Extension
Communication Support Unit (FECSU) has been set up in the Ministry to produce leaflets,
booklets, posters and charts for general distribution to extension agents and farmers.
7.(31)
In the Seventh Five Year Plan (1992-1997) about 59,789 farmers were trained on improved
farming and livestock rearing techniques, study tours were organized for 1210 farmers and 64
exhibitions were held throughout the country.
7.(32)
The programme is seen as being successful in enhancing the awareness and skills of the farmers
on modern farming practices and management. It has been observed that farmers are growing
improved seed varieties and cash crops and rearing more cross-bred cattle leading to higher
income generation.
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Public Health Education
7.(33)
Educating the general public on basic health, hygiene, nutrition and family planning is one of the
integral programmes of the Health Division. Information, Education, Communication for
Health (IECH) Bureau has been created in 1992 primarily for educating the public on health
related issues. The Bureau publishes pamphlets, leaflets, flip charts for distribution to the public.
It also organizes health festivals, health exhibitions, skits and plays in public gatherings to
enhance awareness.
7.(34)
In addition, the basic health workers in the villages play a crucial role in transmitting health
related information to the villagers. As a result, there is an enhanced awareness amongst the
rural population on the values of hygiene, nutrition and small family. Health records also show
that an increasing proportion of the population is now availing modern health care facilities.
Environmental Education
7.(35)
Public awareness and education has been recognized as one of the important means to achieve
the country’s policy of environmental conservation and sustainable development. National
Environment Commission established in 1989, Nature Conservation Section of Forestry
Services Division established in 1984, Royal Society for Protection of Nature established in
1987 and the World Wildlife Fund are actively involved in this effort.
7.(36)
The National Environment Commission has trained so far 550 Block Development Committee
members and farmers from forty seven blocks in six districts on environmental awareness and
management. It has also carried out environmental awareness activities in schools throughout
the country. These training and awareness activities have been very successful in raising
awareness and understanding of the importance of environmental conservation.
Entrepreneurship Promotion and Development
.
7.(37)
To enhance the vocational skills and promote entrepreneurship amongst the population, the
Ministry of Trade and Industries has set up Entrepreneurship Promotion Centre in 1991. Apart
from providing training programmes on entrepreneurship, the centre also organizes basic skills
training to the school drop- outs, the unemployed youth and villagers. Some of the courses
offered by the centre are tailoring and design course, basic plumbing, basic hair cutting,
electrical house wiring and cuisine preparation. It is evident from the below that a majority of the
trainees in these programmes are women.
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Table 25: Basic skills training conducted by Entrepreneurship Promotion Centre
7.(38)
Course
Male Trainees
Female Trainees
Total
Tailoring & Design
33
75
108
Tailoring
1
26
27
Basic Hair cutting
8
27
35
Basic Plumbing
14
-
14
Electrical House Wiring
14
-
14
Basic Japanese Cuisine
23
8
31
In addition, Technical and Vocational Education Section (TVES) of Education Division also
provides similar training to students, support staff of schools and villagers including women
using a mobile training system approach. Furthermore, the National Women’s Association of
Bhutan has trained many women in income generating skills like weaving, knitting and tailoring.
8.
Effectiveness of EFA strategy, plan and programmes
…..
8.(1)
The most successful programmes were also those that relied on community participation and
involved little additional resources. In particular, the community schooling concept now enables
the establishment of primary schools anywhere in the country with significantly lower costs to
the government. An important reason why the government has not achieved UPE is because of
its inability at this stage to provide adequate trained teachers and learning resources to all such
schools. Arising from the experience of the community schools is the need to involve and ensure
the acceptability of the programme amongst the beneficiaries. This has been one of the
important strategies behind the formal as well as the NFE programmes.
8 (2)
One of the main strategies adopted by the government to implement the EFA programmes was
to use existing education and administrative channels rather than create additional EFA
structures. This was considered as being desirable and practical because of the constraint of
human and other resources. However, it is realized now the EFA objectives could have been
more successful if a high level body of EFA representatives were formed to facilitate better
networking amongst the sectors concerned with issues related to EFA programmes. A case in
example is the "rural-flavoured" education approach which is an important objective of EFA
programme but still has not made much progress. Additional support from the Agriculture
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Ministry could have made this more successful. Similarly, while some of Divisions such as
Health, Agriculture, Water and Sanitation are solicited for helping the Education Division
develop its curriculum materials for both formal and NFE programme, not much of networking
and support has been established at the field level for these sectors to support each others
programmes.
…..
8 (3)
Non-formal education which was initiated as a pilot programme just about 8 years ago is also
gaining popularity as a viable means for adults and out of school youth to attain literacy skills.
The Education Division now faces an increasing challenge to keep at pace with the demand from
the communities to establish NFE programmes and learning centres. Also important is the
acceptance by the policy makers that such schemes can work and help not only enhance literacy
rates but serve as important channels for disseminating essential knowledge on a variety of
issues.
11.
General assessment of the progress
7.
…..
11 (1)
Non-formal education which began on a cautious pilot footing has proved its effectiveness and
has won the trust from administrators and the general public. The programme has increased its
annual coverage from 300 in 1992 to 1932 in 1999. The NFE section is now ready for a much
more ambitious expansion programme. With the programmes mostly directed at the rural
women, this is seen as an important programme for not just enhancing literacy skills but helping
improve other facets of life in the villages.
11 (2)
Skills based learning programmes are beginning to increase in scope as well as quality. Even
some private entrepreneurs are now beginning to show interest in this area. Of particular
importance is the increasing attention being provided by the government to improve
coordination amongst different organizations engaged in such tasks.
Part III- Prospects
12. Policy directions for the future
8
…..
12 (1)
While Primary Education will continue getting the lion's share of the resources and will be the
main conduit for achieving EFA targets, the NFE programme shall be provided with much more
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resources and be allowed to expand at a faster pace than was the case till now.
12 (2)
Early Child-hood Development has so far not been accorded much attention because of other
competing demands as well as the comforting knowledge that these were addressed through the
traditional family care system. However, with the increasing transformation of the society
putting added pressure on the traditional family ties and relationships, it is seen that ECCD
would need to play a greater role in our society. An increasing body of knowledge in this field
supports such a move. Therefore, more resources shall be accorded to this programme. In
particular, the Non-formal education will be developed to provide stronger links to early
childhood development.
…..
12 (3)
It has become imperative for education system to provide in addition to the 3 Rs, the essential
life-skills and value systems that will enable the youth to survive and contribute to the larger
society. Essential linkages to the world of work, rural society, national ethos and positive values
are important elements of a good education system. In a situation of an expanding education
system at all levels and limited resources, this requires the use of ingenious strategies and
methods. This will be the greatest challenge for the future Bhutanese Education system.
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Glossary
AFD
BBE
BSDP
CAPSS
CART
Chimi
CLC
CSO
DEO
Drathsang
DRT
Drubdey
DYT
Dzongkhag
ECRS
ECS
EMOs
EMSS
ERS
EVS
GDP
GER
Gewog
Goenpa
Gomchen
Gomdey
Gup
GYT
ICSE
IECH
ILCS
ISC
Lobdra
MCH
NAPE
NBIP
NFE
NFES
Administration & Finance Division
Bhutan Board of Examination
Basic Skills Development Programme
Curriculum and Professional Support Section
Certified and Recommended for Training
People’s representative in National Assembly
Community Learning Center
Central Statistical Organisation
Dzongkhag Education Officer
Central Monastic body
Dzongkhag Resource Teacher
Meditation centre
Dzongkhag Yargay Tshogchung (Dzongkhag
Development Committee)
District
Extended Class Rooms
Education Centre Stores
Education Monitoring Officers
Education Monitoring and Support Section
Education Regional Stores
Environmental Science
Gross Domestic Product
Gross Enrolment Ratio
Block
Place of Buddhist practice and learning
Lay monk
Institute for gomchens
Village headman
Gewog Yargay Tshogchung (Block Development
Committee)
Indian Certificate for Secondary Examination
Information Education and Communication for Health
Institute for Language and Cultural Studies
Indian School Certificate
School (religious)
Mother Child Health
New Approach to Primary Education
National Based In-service Programme
Non-formal education
Non-formal education Section
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EFA 2000: Literacy Assessment
NID
NIE
NTTA
NU
PERS
PLC
PLNS
PP
Rabdey
RGoB
Rigney
SBIP
SPBS
SPLYS
STDs
TTC
TVES
YGCS
Zorig chusum
Bhutan
National Institute for the Disabled
National Institute of Education
National Technical Training Authority
Ngultrum (Unit of currency).
Personnel
Post Literacy Course
Planning Section
Pre-Primary
District monk body
Royal Government of Bhutan
Traditional institute
School Based In-service Programme
School Planning & Building Section
Supply Section
Sexually Transmitted Diseases
Teacher Training College
Technical and Vocational Education Section
Youth Guidance and Counselling Section
13 types of arts and crafts
25