Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Acknowledgement
In the process of undertaking this study on ‘Role of Schools in deepening Civic Education in
Bhutan’s young Democracy’, I am fortunate to have had received the help from agencies,
organizations as well as individuals.
My sincere gratitude goes to Professor Carole Kayrooz, Professor Emeritus from the University of
Canberra, Australia for her guidance at the initial stage of my research proposal. Also, I would like
to express my heartfelt gratitude to Ms Dolma Roder, Lecturer at Royal Thimphu College for
reviewing my research proposal and helping design research questions. Further, I extend my
gratefulness to Assistant Professor Jit Tshering, Head of Department of Research and Consultancy,
Royal Institute of Management for his advice as the supervisor for my research. Also, I express
my heartfelt gratitude to Dr. Sonam Chuki, Faculty of Royal Institute of Management for going
through my draft and providing me recommendations.
I also offer my appreciation to following organizations and individuals:
1. Mr Kinley, Chief Training Coordinator at Election Commission of Bhutan (ECB) for his
interview response and ECB brochures;
2. Aum Siok Sian Pek Dorji, Executive Director of Bhutan Centre for Media and Democracy
(BCMD) for her interview response and lending me BCMD publications;
3. Mrs Kezang Choden Dorji, Director of Department of Curriculum Research Development
(DCRD) for interview response and lending me civics textbooks from Class IV – XII;
4. Ms Phuntsho Lhamo, Ms Chhimi Wangmo and Mr Karma Kuenphen of Education
Monitoring and Support Service Division (EMSSD) for their interview response; and
5. Mr Lhundup Dukpa, Officiating Director of Royal Education Council (REC) for interview.
The study involved participation of Principals, Teachers, Parents and Students in my interviews.
Without their participation and cooperation, the study would not have completed. I would like to
offer my deepest appreciation to all my interviewees for their time and response.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Contents
Role of Schools in deepening Civic Education in Bhutan’s young Democracy ..................................... 1
Acknowledgement ....................................................................................................................................... 1
Abstract........................................................................................................................................................ 4
Acronyms ..................................................................................................................................................... 5
Introduction ................................................................................................................................................. 7
Background ............................................................................................................................................. 7
Problem Statement.................................................................................................................................. 7
Rationale of the Study ............................................................................................................................ 8
Literature Review ..................................................................................................................................... 10
Conceptual Framework ........................................................................................................................ 10
The need for Civic Education in Bhutan ............................................................................................ 11
Civic Education in Global Context ...................................................................................................... 12
Methodological Framework ..................................................................................................................... 18
Research Design .................................................................................................................................... 18
Research Methodology ......................................................................................................................... 18
Interviews........................................................................................................................................... 19
Observation ....................................................................................................................................... 20
Focus Group Discussion (FGD) ....................................................................................................... 20
Content Analysis ............................................................................................................................... 21
Data Analysis ......................................................................................................................................... 21
Validity and Reliability......................................................................................................................... 22
Ethical Considerations.......................................................................................................................... 23
Limitation of the study ......................................................................................................................... 24
Findings and Discussion ........................................................................................................................... 26
Civic Education Curriculum ................................................................................................................ 26
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Primary School .................................................................................................................................. 26
Bhutan Civics in Middle Secondary Schools (Class VII - X) ........................................................ 27
Key Informants ..................................................................................................................................... 28
Parents ................................................................................................................................................... 33
Students.................................................................................................................................................. 33
Possible impacts of Civic Education .................................................................................................... 35
Conclusion ................................................................................................................................................. 36
Recommendations ................................................................................................................................. 36
Logical presentation of Civics Curriculum..................................................................................... 36
Diversify Curriculum and Learning ............................................................................................... 36
Building Partnerships ....................................................................................................................... 37
Future Research .................................................................................................................................... 38
References .................................................................................................................................................. 39
Appendices ................................................................................................................................................. 44
Appendix I: Interview Questions ......................................................................................................... 44
Appendix II: List of Interviewees ........................................................................................................ 47
Appendix III: Participant of Focus Group Discussion ...................................................................... 48
Appendix IV: Democracy Tree designed by Election Commission of Bhutan ................................ 49
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Abstract
This study explored the role of Schools in deepening Civic Education and impact it would
have upon Bhutan’s young Democracy. It arose against the backdrop of Bhutan’s
transition to Democracy in 2008 and lack of adequate civic knowledge and skills in
citizens and particularly youth to participate democratic setup. The need for democratic
knowledge was felt essential to build robust foundation for vibrant Democracy.
Qualitative study was employed wherein interviews were conducted, observation done
and literatures reviewed. Upon getting their consent, Key Informants, Teachers, Parents
and Students were asked open ended questions. Focus Group Discussion was conducted
among students of Classes VII – X and observations were done, particularly of students’
engagement in community service. Bhutan’s National Education Policy, Civics text book
from Classes IV – X and substantive literatures on Civic Education were reviewed as a
part of content analysis. This inductive approach of study revealed positive relation
between Civic Education and Democracy. Topics on familial values, Democracy,
Constitution and Gross National Happiness are incorporated in Civics curriculum.
Specialized agencies in Education and Democracy and Civil Society Organizations play
their part in imparting Civic Education by incorporating civics content in textbooks,
training and service learning respectively. School management afford autonomy wherein
students views are accorded maximum priority and student – centred learning approach
practiced in the class. Parents expect their children to be aware of developments taking
shape in the country; however, they find it difficult to be part of children’s learning
process. Students do have theoretical understanding of Civic Education aspects –
Democracy, governance and community life, but these understanding in its entirety are
not applied in their real life situations. Diversifying teaching learning method and logical
structure of civics content are expected to address these pitfalls and nurture set of
responsible citizens aware of their duties and rights correspondingly.
Key words: Democracy, School, Civic Education, Students
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Acronyms
ACC:
Anti-Corruption Commission
BBS:
Bhutan Broadcasting Service
BCMD:
Bhutan Centre for Media and Democracy
BEB:
Bhutan Education Blueprint
CASPD:
Curriculum and Professional Support Division
CoE:
College of Education
CoE:
Council of Europe
CSO:
Civil Society Organisation
DCRD:
Department of Curriculum Research and Development
DYS:
Depart of Youth and Sports
DYT:
Dzongkha Yargye Tshogdu
ECB:
Election Commission of Bhutan
EMSSD:
Education Monitoring Support and Service Division
FGD:
Focus Group Discussion
GAO:
Gewog Administrative Officer
GNH:
Gross National Happiness
GYT:
Gewog Yargye Tshogde
IDD:
International Democracy Day
LSS:
Lower Secondary Schools
MoAF:
Ministry of Agriculture and Forests
MoE:
Ministry of Education
MSS:
Middle Secondary Schools
MYP:
Members of Youth Parliament
NA:
National Assembly
NC:
National Council
NEF:
National Education Framework
NFE:
Non Formal Education
NGOP:
National Graduates Orientation Programme
OSF:
Open Society Foundation
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
REC:
Royal Education Council
RIM:
Royal Institute of Management
RUB:
Royal University of Bhutan
SUPW:
Socially Useful and Productive Work
UNDP:
United Nations Development Programme
UNESCO:
United Nations Educational, Scientific and Cultural Organisation
UNICEF:
United Nations Children’s Fund
UNO:
United Nations Organizations
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Introduction
Background
Unprecedented socio-economic and political transformations from the turn of second half of the
twentieth century witnessed infrastructural and institutional developments in the country. Notably,
political reforms instituted by the Third King, Jigme Dorji Wangchuck and Fourth King, His
Majesty Jigme Singye Wangchuck ensured peaceful transition to democracy in 2008.
The lead up to the first Parliamentary Elections in 2008 was propelled by setting up of
Constitutional Offices and the nationwide consultation of the Draft Constitution by the Fourth
King and His Majesty the King, Jigme Khesar Namgyel Wangchuck, the then Crown Prince.
Legislations were put in place, election officers appointed and voters trained. It was coupled with
the proliferation of private media that covered the stories of political candidates.
Bhutan’s transition to Democracy in 2008 also witnessed two other epoch making events in the
history of the country – the Centenary Celebrations of Monarchy and the crowing of the new King
in His Majesty, Jigme Khesar Namgyel Wangchuck as the Fifth Hereditary King. As His Majesty
took the reins of the country, he repeatedly stressed in his addresses that youth are pivotal for
future of the country and need to be involved actively in the development taking shape in the
country. During 2006 National Graduates Orientation Programme (NGOP), His Majesty, the then
Crown Prince stated, “Now I wait for you to come and work with me to serve our country”
(Zangpo, 2012, p. 26). The call was unequivocal.
Reflecting on the needs of the changing times, His Majesty during Convocation of the Royal
University of Bhutan (RUB), February 17, 2009 said, “We must understand that the times have
changed in Bhutan and all around us in the world. We cannot face new challenges with the same
tools. …it is the duty of parents, policy makers and the government to put the right tools in their
hands – the right books, the right curriculum and the right direction. ” (Royal Education Council,
2012, p. 19).
The sight was set to revisit our school education system through which our citizens are
nurtured.
Problem Statement
Lack of understanding of Democracy among civil servants, private sector and academic
institutions was apparent as Bhutan transited to Democracy in 2008. They were not aware of the
draft Constitution and electoral processes let alone the Democracy in its entirety. Youths’
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
understanding of Democracy was quite worrying too. In 2007, a youth depicted his painting about
democracy titled, ‘Democracy can Lead to Destruction’ (Zangpo, 2012, p. 71) filled with violent
pictures. This is attributed to Democracy in Bhutan not being fully appreciated by the educated
people and even by some of the elected leaders. Further, many Bhutanese associate Democracy to
that of public demonstrations and corruption in her neighbouring countries (Dolkar, 2013) of South
Aisa. In addition, youth delinquency is a matter of great concern.
The current educational system also does not help prepare youth for real life situations. Separation
of school studies from the realities (Sherpa, 2011, p. 25), lack of order in arguments in civics and
history textbooks (Royal Education Council, 2012, p. 43) and proposal for education beyond
examination (Young, 2013, p. 150) indicate the need to revisit our school education system.
Concerns over limited opportunities for civic participation in schooling process has also been
expressed (Department of Youth and Sports, 2011, p. 13).
Kinga (2011), a prominent researcher on Bhutanese Democracy and also the Chairperson of the
National Council (NC), the Upper House of the Parliament of Bhutan, the then Deputy Chairperson
of the said House, expresses concern over youth potentially encountering Democracy fatigue
wherein they would distance from democratic participation. Should such situation arise,
Democracy will not bode well. Imparting democratic knowledge to expanding minds of young
Bhutanese in schools through prescribed curriculum and societal engagement are seen as the
mechanisms to prevent such democratic apathy. Hence, education as a social function, securing
direction and development in the immature through their participation in the life of the group to
which they belong would solve the jigsaw (Dewey, 1916).
Rationale of the Study
The purpose of this study is to examine the role of schools in deepening Civic Education in
emerging democracies, particularly in the Kingdom of Bhutan. This is accomplished through
exploration and review of the goals of education of the country as documented in educational
polices and school curricula, and observations of students’ participation in extracurricular
activities. It has been further assisted by investigative study though interviews of key informants1
on Democracy and Civic Education, school principals and teachers on management and teaching
practices and students on understanding of the concepts and practical implementation of the
1
The definition of key informant is provided under Methodological Framework
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
knowledge. Parents have also been interviewed so as to generate their expectation of what their
children should learn from their schools and how parents can be part of the learning.
For this purpose, following objectives were set. The study explores:
1. The philosophical underpinnings of formal Civic Education;
2. The potential role of schools in imparting Civic Education;
3. Effect of educational policies and practices in democratic Bhutan.
In achieving the above objectives, following guiding questions were asked.
1. What is Civic Education?
2. How Civic Education is being incorporated in school education in Bhutan?
3. What effect would Civic Education have in young Democracy?
The significance of this study is grounded on the assertion that information, participation and
engagement are foundation for thriving Democracy. To this end, Civic Education imparts these
democratic values and skills.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Literature Review
Conceptual Framework
The understanding of Democracy is varied. Rooted in Greek etymological terms, ‘demos’, the
“people” and ’ kratos’, meaning “rule”, “power” or “strength”, Democracy is defined as the “rule
by the people”, culminating in a popular form of government (Campbell, 2008, p. 4). Heywood
(2004) presents plethora of definition. Democracy is a system of government in which the people
rule themselves directly and continuously. It is also defined as a society based on equal opportunity
and individual merit, rather than hierarchy and privilege. At the two extremes, Democracy is a
system of decision making based on the principle of majority while the opposite camp asserts, it
is a system of rule that secures the rights and interests of minorities by placing checks upon the
power of the majority.
Against this inconclusive definitions, the United Nations has proposed key features for a system
to be recognised as a Democracy. A system should comprise elements such as free periodic and
pluralistic elections, rule of law, human rights, independent judiciary and free media with
transparency and accountability mechanisms put in place (United Nations, 2002, p. 1). In this light,
Democracy for the purpose of this study is understood as rule through popular consent,
participation, accountability, and exercise of rights on the premise of tolerance and pluralism
(Grugel, 2002). As enumerated in the succeeding paragraphs, this democratic discourse can be
imparted through civic education.
Education is understood as a foundation for human fulfillment, peace, sustainable development,
gender equality and responsible global citizenship (United Nations Educational, Scientific and
Cultural Organization, n.d, p. 6). Within it, Civic Education forms core part, particularly viewed
from the perspective of democratic engagement. No consensus has been reached in defining Civic
Education. It has been defined from many different angles and perspectives. From the academic
point of view, it is the education with the aim to develop sincere and conscious acceptance of
responsibilities of a citizen in young people. At a broader societal level, it is the sum of means
used to enable children and adolescents to become aware of their rights and duties as individuals
as well as the members of society through societal engagement (Gjorgjeva, 2010). Hence, it could
be argued that, “civic education means all the processes that affect people’s beliefs, commitments,
capabilities and actions as members or prospective members of communities” (Crittenden and
Levine, 2013, p.1). Civic Education for this study is understood as learning for effective
10
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
participation in democratic and development processes at both local and national levels (United
Nations Development Programme Democratic Governance Group, 2004, as cited in Kamp, 2011,
p. 3). Range of mechanisms and opportunities such as electoral laws, institutions and processes,
mobilization channels - political parties and civil society organizations, and communications
channels (United Nations Development Programme Democratic Governance, 2010, p. 11) have
been discovered. Within it, schools are one of the institutions and education the process.
The role of schools as learning organization in imparting Civic Education has gained its place.
However, systematic investigations of how schools might bring this about are still scarce. Four
key characteristics, the existence of inclusive collaborative structures; effective communication
channels; integrated professional development programs; and, learning-focused leadership
(Mulford, Silins & Zarins, 2002) are identified as operational under school setting. Schools are
further operated through different mechanisms with varying curriculum. It ranges from faith
schools where religious knowledge are transmitted, free schools funded by government and
curriculum prescribed, publicly funded independent academies, city technology schools located in
urban centre; however free and private schools where fees have to be paid (Government of United
Kingdom, 2014). For this study, free schools funded by the government and curriculum prescribed,
specifically, schools from Primary to Middle Secondary Schools of Bhutan will be discussed for
the reasons enumerated in the following paragraphs.
The need for Civic Education in Bhutan
In Bhutan, Ministry of Education is mandated to oversee and cater to the needs of the people and
the country to face the challenges of the 21st century. It is expected to realize by providing learning
space and opportunity to harness their full potential as productive citizen (Ministry of Education,
2014). Thus the role of education is imperative.
Ahmad and Kumar (2008) assert, “…Education is the development of individual according to his
needs and demands of society, of which he is an integral part” (p.3). Bhutan’s education can be
divided into three broad categories.
Formal Education, Non-Formal Education (NFE) and
Monastic Education. Formal Education stretches from primary to tertiary education, non – formal
education imparts basic literacy, numeracy and functional skills to those outside formal schooling
system who missed the formal education, particularly rural women and girl child while Monastic
Education involves transmission of religious discourse in monastic colleges, schools and
meditative centres (Ministry of Education, 2013; Namgyel, 2011; Royal Education Council, 2012).
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Between them, formal education – Early Child Care and Development to Higher Secondary or
Grade XII has the highest enrollment with 1, 72, 391 in 554 schools including private schools.
Meanwhile, Monastic Education and NFE have 12, 389 and 9, 628 enrollment in 388 and 885
centres respectively (Ministry of Education, 2013). From Formal Education too, as considered for
this study, the enrollment in government funded Primary to Middle Secondary Schools (MSS)
stands at 1, 31, 426 in 321 schools. Evidently, intervention in formal education that is imparted
through schooling system would have more impact upon students and subsequently to the
community. Further, Galston (as cited in Campbell, 2008) asserts public schools as the most
appropriate sites for forming citizens. On the other hand, private schools are associated with the
sources of separatism, elitism, and antidemocratic principles.
As Bhutan transited from Monarchy to Democratic Constitutional Monarchy, the need for civic
education was expressed in all circles from civil service to academic institutions (Zangpo, 2012).
Against this backdrop, civic education through schools has become critical. Royal Education
Council (2012) proposes that educational goals should align with national goals. As pledged in the
Constitution to strengthen sovereignty, ensure justice, wellbeing and liberty for all people (The
Constitution of the Kingdom of Bhutan, 2008), the role of every individual has become nonnegotiable to realize these supreme national goals.
The realization of these goals is envisioned through necessary state intervention. The Constitution
of the Kingdom of Bhutan (2008), Article 9, Principles of State Policy, Section 16, provides, “The
State shall provide free education to all children of school going age up to the tenth standard…”
Within this arrangement, the need for civic education is explicably pronounced in Educating for
GNH Policy document, wherein it states, “The Curriculum for Secondary Education shall focus
on preparing students to be productive and responsible citizens” (Ministry of Education, 2012, p.
17). It has been furthered by the proposition that Bhutanese education system should build strong
foundations for democracy by educating citizens to meaningfully participate in political process
(Ministry of Education, 2012, p. 5). The need for civic education has become ever more important
not only to strengthen democracy but also to realize national goals.
Civic Education in Global Context
Numerous philosophical perspectives are drawn to explain civic education. For example,
Utilitarian perspectives lay utmost importance on social welfare as the core component while
Kantianism upholds the idea and concept of autonomy and individualism. Proponents of Civic
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Republicanism stress on opportunities for collaboration and participation at various levels. The
Communitarianism approach grounds its understanding in the duties of oneself to one’s own
communities and families while Pragmatism perspective delineates three essential elements of
learning itself, experience, and deliberation. Finally, the Capability Approach sees capability as a
criterion for social justice, thus implying one’s aptitude as a source of all entitlements
(D’Alessandro & Levine, 2010).
Ceaser and Mcguinn (1998) underscore humanitarianism with an emphasis on nationalistic
attachments, individualism, and lately multiculturalism as the components of civic education.
From that perspective, civic education can be understood as transmitting to students; the
knowledge of country’s constitutional heritage; an understanding of good citizenship; and an
appreciation of society’s common civic faith and shared moral philosophy. This knowledge
translates to active participation in a community as espoused by civil republicanism. In contrast,
classical liberals argue that formulating uniform system of moral education would be breach of
fundamental freedoms – one of the premises upon which democracy operates (Crittenden &
Levine, 2013). This contested issue of education in the light of the post-independent United States
of America between Federalists and Proponents of Common School is worth noting. The former,
including Hamilton and Madison called for limited state intervention in education. The latter
pioneered by Noah Webster and Horace Mann and later Franklin Delano Roosevelt stressed that
making worthy citizens is the onus of the schools. Notwithstanding the persisting debate on
concepts, schools, explicitly if not implicitly has the role in imparting civic education.
To this perpetual debate, John Locke took a middle path when he asserted that gentlemen’s proper
calling is the service to his country rooted in his moral and political knowledge enabled by studies
in arts of government, history and law. At the same time, in his treatise ‘Some Thoughts
Concerning Education’, Locke emphasized on educating individual to be free and responsible
while his political writings focused more on limiting the power of the state. Scott (1998) asserts,
state as vital to the maintenance of our welfare and freedom as they are to the designs of would be
modern despot. State intervention is critical and non - negotiable. “From education to economic
management, from social welfare to sanitation, and from domestic order to external defense, the
state shapes and controls and where it does not shape or control it regulates, supervises, authorises
or proscribes” (Heywood, 2004, p. 85). Hence, states intervention in education, civic education for
this study is justified.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
An arrays of media have been propounded to impart civic education. In ancient Greece, city life
defined as paideia was considered the ideal platform for imparting moral and civic education. It
was done through study of subjects like history, art, philosophy, rhetoric and trainings in sports
and wars and learning about the city’s socio-religious and political life. Later, John Stuart Mill in
19th century postulated that civic education can be best imparted through political participation in
public life – assessment of representatives and knowledge acquisition in a representative
democracy. On the other hand, Jerome Bruner proposes that service learning as an effective tool
to infuse civic education in people. Harry C. Boyte goes on to say that voluntary service to
communities instead of service learning help implant the civic mind. Paulo Freire, a proponent of
liberation pedagogy under the theme ‘critical and liberating dialogue’ also known as ‘culture
circles’ called for dialogue exchange where everyone would teach everyone. In his culture circles,
even peasants can engage in group dialogue, express their concerns, share their problems and seek
answers. Hence, this dialogue and exchange of ideas would take to the Elinor Ostrom’s concept of
‘polycentric governance’ that would teach people to address problems collectively transcending
geographical, political and cultural differences.
Studies have revealed fascinating tales of schools in infusing the minds of students with civic
values. Catholic Schools have helped ensure the continuity of community service and welfare
while military schools have implanted values of duty, loyalty and discipline (Ceaser & Mcguinn,
1998). A comprehensive analysis of school as an institution has been made by John Dewey in
which he says that school should operate like a community. A child as member of a community
should be afforded with the opportunity to participate so that he or she can contribute. In that light,
students should be entrusted to make decisions, manage facilities such as grounds and building,
thus giving in students the experience of self-leadership. Dewey argued that traditional mode of
instruction based on a teacher-centred forbids pupils to participate. To this, he postulates education
as an ‘an experiential continuum’ wherein leaners put into practice of the concepts they have
learned in the class. However, he clarified that decisions requiring expertise such as pedagogy
should be left solely in the hands of teachers.
Different disciplines have proposed for enhancing civic education. Gjorgjeva (2010) espouses that
study of law, sociology, economy, political sciences, social psychology and ethics would help in
gaining basic knowledge of civic education, skills such as communication, critical thinking and
problem solving and values of collective life. In ancient Greece, the subject studied includes
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
philosophy, rhetoric, arts, history, mathematics, city’s socio-religious and political life and
trainings in sports and warfare. The arts of politics and athletics then, were devoted to develop
personal powers in the service of the city.
Institution of democracy as a system of government has convinced the social scientists and
subsequently leaders and educationist to revisit the content of education that is transmitted to
students. Campbell (2008) notes that when education reforms top policy agendas, there is relatively
little empirical evidence supporting reform proposals in the areas of civic consequences. On that
ground, the Council of Europe (CoE) responding to the changing political contexts of Europe as
democracy deepened in former Communist Bloc of East and Sooth-East Europe, started education
for democratic citizenship incorporating political and legal, social, economic and cultural
dimensions. Benjamin Barber (as cited in Ceaser & Mcguinn, 1998) espouses that public schools
are not merely schools for the public, but schools of publicness; institutions where we learn what
it means to be a public and start down the road toward common national and civic identity. Without
citizens, democracy is a hollow shell. Without public schools, there can be no citizens (p.91).
In that light, civic education programmes have become an increasingly important means for
countries to educate citizens about their rights and responsibilities. Vasiljevic (2009) posits that
educational institutions, especially schools are key mediums for promoting civic engagement
through the transmission of knowledge and community involvement such as service learning.
Across the globe, civic education is very much part of the school education. However, attributed
to historical and political context unique to each country, concept and programmes of civic is
different in different countries. In the United Sates, civic education is integrated in mainstream
curriculum since 1980s under the umbrella name of social studies. It is taught between grade six
to twelve. While the curriculum revolves around democracy and her constitution with special focus
for extracurricular activities and service learning, there are large variations among its 50 states
given the federal system put in place. In the United Kingdom, civic education required as a part
of school curriculum is classified under three strands of ‘social and moral responsibility’,
’community involvement’ and ‘political literacy’. In Germany, civic education is comprehensive
as it covers not only democracy and social relationships but also economic system and
international relations. In Switzerland where direct democracy is pursued, there is no national
curriculum. However, cantons integrate civic education through history curriculum. In Greece,
civic education is incorporated at two levels – social and political education in grade five and six
15
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
and elements of democratic government in lower secondary schools (Fountain, Mclean & Smith,
2002).
The need for civic education programmes in schools is equally felt in emerging democracies.
Gjorgjeva (2010) concludes that the need for introducing moral education as a taught subject
became ever serious in reference to institution of democracy in the Republic of Macedonia and the
challenges therewith. Integrating emerging curriculum, student-instruction in a democratic
classroom, communication and partnerships beyond classroom and reflections and evaluations
(Ponder & Veldt, 2010) is crucial. In addition, student’s social acceptance and professor’s
pedagogical caring and openness to diversity, practice of collaborative and cooperative learning
(Hougaard, 2013) and sustainability curriculum (Charney, 2014) are found to be an effective tool
to nurture students in coherence to their social mandate to help create a thriving, ethical and civil
society.
From early 2000s as Republic of Serbia moved towards open and pluralistic governance,
educational reforms swept with support from international non-governmental organizations in
United Nations Childrens’ Fund (UNICEF) and Open Society Foundation (OSF). The task force
recommended the government to form working group for civic education curriculum, teacher
training and mechanism to assess its impact. This was furthered by specific proposal for
incorporating values of group work, understanding and accepting individual differences coupled
with critical thinking, decision making and causality of rights and obligations.
Latin American countries, particularly, Columbia and Chile underwent similar experiences. As
democracy in the region revived in 1980s, political participation and representation moved
electoral democracy to democracy as a way of life. In Columbia, Ministry of Education initiated
education reform. It recommended that teaching of civic education should be shifted from isolated
classroom learning to promotion of democratic values through regional and national forums and
trainings. In Chile, democratic citizenship is made part of mainstream education after deposing
prolonged rule of military dictatorships from 1970s to late 1990s. The proposed curriculum
emphasized on democracy and characteristic of civic participation (Reimers, 2007).
Studies have found out positive relationship between civic education and participation. In Serbia,
students who pursued civic education have more involvement in NGO activities than who did not
and also they were more involved in youth groups (Fountain, Mclean and Smith, 2002). From the
survey conducted between 1993 and 2000 on lower voter turnout among Canadians, low voter
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
turnout among young was prominent among lower levels of formal education while those with
university degrees turnout was steady. However, a realistic ambition for a vibrant democracy is
that most citizens will do something beyond voting (Howe, 2010). Rivelli (2010) in the study of
‘Civic education at high school: A comparative study between Bolzano and Padova (Italy)’ found
out that higher level of some political typology encourages youth to search for more information
about it. On the contrary, total ignorance about some political dimension leads to less or no urgency
among them, thus ignorance persists. Findings from established democracy in Canada and Italy to
fledgling democracy of Serbia, civic education definitely amplifies greater democratic
participation, thus helping build robust democratic system.
From Athenian Democracy and United Kingdom to emerging democracies of Chile, Columbia,
Macedonia and Serbia including the federal system of United States of America and Switzerland,
civic education is very much a part of school curriculum. This is evidenced from the studies in
schools in Canada, Italy and Serbia as presented in preceding paragraph. It was enabled by required
democratic knowledge and skills acquired through civic education curriculum the students pursued
in their respective skills. On that ground, Bhutanese school education system also necessitates
integration of civic education programmes so that our students – whose mind are maturing are
infused with civic knowledge and trained with civic skills for them to actively participate in
Bhutanese democracy. Students’ engagement in democratic development would not only build
strong foundation for fledgling democracy of ours but also create vibrant democracy in the future.
17
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Methodological Framework
Research Design
Civic Education is a complex topic and cuts across different sectors and it demands understanding
from different angles. It includes studies of civics, government, social, legal and economic studies
and stretches to engagement through extracurricular activities and community service. Civic
Education is seen as a construct rather than seeking consensus (Khamsi, Purta & Schwille, 2002).
Detailed and in depth studies are perquisites. Hence, the scope of Civic Education research can be
extended by the use of qualitative methods. Further, data based on human experiences are
considered more compelling and powerful than quantitative data (Anderson, 2010). Thus, this
study on “The Role of Schools in Deepening Civic Education Bhutan’s Young Democracy” have
employed qualitative tools in data collection and analysis.
For the purpose of this study, purposive and convenience sampling was done. And respondents
were not confined to predetermined set of individuals and organizations with exception to key
informants and specialized agencies. Teacher, parents and student respondents thus, were
determined by the purpose and convenience of the researcher and the respondents.
Research Methodology
Within the qualitative approach to educational research, Cohen, Manion and Morrison’s (2007)
work ‘Research Methods in Education’ is employed extensively. From that, curriculum research,
hermeneutic approach, and research and evaluation approaches have been adopted.
Curriculum research posits that knowledge selection is neither neutral nor innocent since
curriculum is controlled and controllable, ordered, predetermined and uniform (Cohen, Manion &
Morrison, 2007, p. 31). Hermeneutic approach involves understanding others perspectives and
views on issue at hand while research and evaluation approach requires evaluating policies and
projects that are put in place.
Further, the study incorporated naturalistic inquiry and documentary research. Naturalistic inquiry
involves deriving data inductively by examining situations that are socially situated and context
related. Documentary research enables the use of diary and journals, pamphlets and
advertisements, conversations, policy documents and books.
Based on qualitative enquiry, qualitative tools of primary sources such as interviews, observations
and Focus Group Discussions (FGD) and secondary sources of content analysis were employed.
18
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Interviews
Interview is an exchange of views between two or more people on a topic of mutual interest. It is
widely used qualitative tool as it cannot be manipulated. On the other hand, researcher can probe
and conversations can be extensive. The response rate is high as people are readily willing to
answer live questions. In addition, people are comfortable expressing their views enabled by open
ended questions. Not only that, people find it easier to express than to write and fill long survey
questionnaires (Sincero, n.d). Both face to face and telephone interviews were conducted.
Semi – structured questions were framed2. Descriptive, experience, knowledge and feeling
questions were asked. Descriptive questions enabled to gain the information on current state of
civic education, experience the change that has come along with it, knowledge about certain facts
on civic education and feeling the future that one sees in connection to the civic education.
Purposive and convenience sampling was done. Interviewees3 were studied of their competency
and some, particularly parents were interviewed as and when the researcher got the opportunity.
Key Informants on Education and Democracy were interviewed. Director of Department of
Curriculum Research and Development (DCRD) and Head and Officials of Education Monitoring
and Support Service Division (EMSSD) both under MoE were interviewed. The DCRD, the
erstwhile Curriculum and Professional Support Division (CAPSD) spearheads curriculum
development for schools in the Country while EMSSD oversees the implementation of the
education policies and assesses its impact. Further, the Officiating Director of Royal Education
Council (REC) was interviewed. REC as an autonomous body formed under Royal Command in
August 2007 has separate School Education Division. The division have undertaken education
research taking into Bhutan’s transition into Democracy and has come up with draft National
Education Framework (NEF), 2012. Chief Training Coordinator of the Election Commission of
Bhutan (ECB) was also interviewed. ECB spearheaded two parliamentary elections of 2008 and
2013. The Commission is also collaborating with schools to impart democratic knowledge to
students through Democracy Clubs. In addition, Executive Director of Bhutan Centre for Media
and Democracy (BCMD) was also interviewed. BCMD, established as a Civil Society
Organizations (CSO) established in 2008 works in engaging youths, teachers and Gewog
Administrative Officers in democratic process through democratic discourse and trainings.
2
3
Interview questions for Key Informants, Principals, Teachers, Parents and Students are annexed as Appendix I.
List of Interviewees with their occupation is annexed as Appendix II.
19
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
One Principal and Four Teachers were interviewed on school management system and teaching
practices. It was done to review how institutional arrangements and learning mode enable students
gain civic skills.
Parents were also interviewed on what they aspire of their children, how home can provide
platform for children for civic engagement. Four parents, literate as well as illiterate were
interviewed.
Eleven students of classes V – X were interviewed on content knowledge of the civics subject and
their participation in the class and outside.
General public, those who have come through Bhutanese Education System were also interviewed
on their understanding of the Civic Education an impact it would upon Bhutan’s fledgling
democracy.
Observation
Observation help generate live data from naturally occurring situations in relation to physical,
human, interactional and programme setting. It was done through observation of students’
participation during important occasion – Thimphu Tshechu. Youth’s engagement as volunteers
to help enforcement agencies – police and local leaders were observed. Participant observation,
also known as complete participant were also done during International Democracy Day (IDD) at
Sherubtse College on September 15, 2014 and November 11 celebration at Changlingmethang.
Participant observation defined as the process learning about the activities of the people under
study in the natural setting through observing and participating in those activities (Kawulich,
2005). Insider participation in which I did not introduce to fellow participants were also done
where in I witnessed Quiz Competition among Middle Secondary Schools of Trashigang Dzong
during IDD. Personal constructs generated through personal experiences in civic engagement also
forms part of the study.
Focus Group Discussion (FGD)
FGD is a small group discussion among individuals who have stake in the subject of study. It
enables variety of responses and discussions among the participants; thus making it interactive.
FGD among children is highly recommended (Cohen, Manion & Morrison, 2007) as it would
encourage child to converse among themselves instead of directly having to respond to
interviewers as in the case of face to face interview.
20
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
FGD among six students4 from classes VII – X were done. To make them comfortable, their status
were asked and introductions made. Also, to ensure that conversations are clear, it was done
through code switching wherein Dzongkha was mostly used. It was assisted by English in
explaining the technical terms, Indirect Democracy for instance5.
In order to make them feel motivated, refreshments and candies were distributed among them.
They were asked questions related to civics knowledge, their participation in class and
extracurricular activities. Also, their consideration in decision making in schools were asked.
Content Analysis
Content Analysis as a secondary source of data collection involve summarizing and reporting
written data – the content of the data and their messages. It includes written material, interview
transcripts, programmes, conversations and textbooks.
For the purpose of this study, Educational Policy documents, Social Studies textbooks from Class
IV – VI, Bhutan Civics textbooks from Class VII – X, diary entries, ECB pamphlets on democracy
and BCMD forum reports were consulted and reviewed. This has been further assisted by
international journals on civic education, democracy, schools and research methods.
Data Analysis
Cohen, Manion and Morrison’s (2007) approach of analytical induction is used. Rough definition
of the civic education was formulated through literature reviews and subsequent data collection.
Constant comparison tool was employed by comparing collected data to that of new data. This was
done through the instrument of progressive focusing. Under it, data were matched, contrasted,
aggregated and ordered. The analysis was targeted to describe and discover patterns, themes, raise
issues with regard to civic education, explain and seek causality by exploring different perspectives
on the subject of the study.
Interview notes were taken using ‘short hand’ technique. This further was transcribed and printed
for coding.
Code is a word or short phrase that symbolically assigns a summative, salient, essence-capturing,
and evocative attribute for a portion of language-based or visual data (Saldana, 2007, p. 3). Codes
4
List of Participants for Focus Group Discussion is attached as Appendix III.
Conversation with students was mostly done in Dzongkha such as, khyoe gi Slob Khang na lu bcha’ ma ‘tog do ga
(Do you participate in the class discussion?), Slob dpoen lu di wa ‘di do ga (Do you ask questions to your teachers?).
However, Interviewer could not manage equivalent term for Indirect Democracy in Dzongkha nor did the students.
So, code switching between Dzongkha and English was done.
5
21
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
were assigned at the left side of the printed notes – a space created after indenting 0.3 cms towards
left side of the note.
After coding, frequencies of code were checked and categorized into definitions of civic education,
the current context in relation to the study, strategies to further it and effect it would have upon
Bhutanese Democracy. Further, school management and teaching practices, students
understanding of the subject and participation and parents’ role were put in different categories. It
was done to examine the understanding of Civic Education from different categories of people
differently and assess it in conjunction with the policy objectives and implications respectively.
After putting into different categories and themes, data is reported from different approaches –
people, issues, instrument and research question. There was no predetermined theories, rather it
was grounded in data that were systematically gathered and analyzed. Thus, grounded theory was
made use of (Cohen, Manion & Morrison, 2007).
In reporting qualitative data, generally two approaches are considered. The first approach involves
reporting under different themes with use of verbatim quotes in findings in one chapter and
discussion in another. Second approach posits the same technique but incorporation of both
findings and discussion under one chapter. Latter is done to reduce space as well as avoid possible
repetition (Burnard, Chadwick, Gill & Stewart, 2008). Quotations of respondents response while
add authenticity, have the tendency for authors to overuse quotes and for papers to be dominated
by a series of long quotes with little analysis or discussion (Anderson, 2010, p. 5). So, responses
are not quoted in the discussion. For this study, the second approach wherein findings and
discussion are clubbed under one chapter is followed.
Validity and Reliability
Validity and reliability is an important part of the research methods so as to validate and know the
genuineness of the study. This tool helps in examining the data for reliability and validity by
assessing both the objectivity and credibility of the research. “Validity relates to the honesty and
genuineness of the research data, while reliability relates to the reproducibility and stability of the
data” (Anderson, 2010, p. 2).
Validity part takes care of honesty, depth, richness and scope of the data where in positivist criteria
of controllability, replicability, predictability and observability were used. Reliability gave close
attention to credibility, neutrality, consistency, transferability, dependability through the
mechanism of stability of observation and inter – rater reliability.
22
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
To ensure this, triangulation, constant comparison, contradictory evidence and respondent
validation have been used (Cohen, Manion & Morrison, 2007). Triangulation is defined as the use
of two or more methods of data collection (Bryman, n.d.). Interviews, observations and content
analysis formed core data collection tool. This triangulation enabled study of contradictory
evidence that were generated through use of different techniques. Also termed as deviant cases,
contradictory evidence drew analysis by employing different technique. Review of policy
documents were done in conjunction with interview responses – contents were juxtaposed. In
addition, contrasting responses generated using same technique, interview response on students
perception on pedagogy for instance, is one case were the tool is used. Constant comparison among
the data generated were done at regular interval in lead up to writing the report. The definition of
civic education is one such case wherein different key informants’ responses were analyzed.
Through this, researcher came across different definition, generated wider perspective and
prevented possible biasness as equal weight was given to all definitions. Further, respondent
validation was done on the spot where the researcher felt he did not get hold of what the respondent
said. Further, after transcription of the data, it was sent for a respondent to go through to check if
anything unsaid is added or those told left out. The more the methods contrast with each other, the
greater the researcher’s confidence (Cohen, Manion & Morrison, 2007).
However, uniformity of findings is not guaranteed, particularly it being qualitative. Qualitative
research is a holistic study, it records multiple interpretations, intentions and meanings associated
with given situations and events. So, it does not strive for uniformity and two researchers in same
setting can come out with different findings (Cohen, Manion & Morrison, 2007).
Ethical Considerations
The study ensured that generally accepted norms concerning social research were observed and
complied. Glesne (1999) (as cited in Aasen et al. 2014) espouses that if the research involves
organizations and agencies, making contact with ‘gatekeepers’ to get their consent assuring access
to research setting should be done. In that light, letter of introduction from the management of
Royal Institute of Management (RIM) was requested and granted. Entering into research setting,
consent were sought. The initial topic for the study was a case study of Lungten Zampa MSS. The
Principal of the school was consulted seeking access to the field. Since, annual examinations were
so near for student of class IX and class X students on study leave, Principal did not grant the
access. Against this back drop, after consultation with the Research supervisor, topic was changed
23
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
from a case study to an exploratory study of Bhutan as a whole; however, respondents limited to
certain pockets and areas.
Getting into research field and meeting with potential interviewees, clear introduction were made
of my project with show of letter of introduction. Letter of declaration was presented and explained
that it was solely for academic purpose and confidentiality be maintained. After that informed
consent was sought. Based on four criteria of competence, volunteerism, full information and
comprehension of the study (Cohen, Manion & Morrision, 2007), respondents chose to respond.
Having understood the purpose and requirement of the study, four potential interviewees declined
on the ground of incompetency and time.
Having assured the confidentiality, names and organizations of the respondent are not reflected at
any stage of the report. This is prevent the breach of research ethics. Also, name of the schools and
organizations are not revealed so as to save the research community from being exposed (Cohen,
Manion & Morrision, 2007).
Cohen, Manion and Morrision (2007) further posit that one of the primary ethics of the research is
not to jeopardize the scope of the future researchers. In that light, clear introduction of the purpose
of the study as an academic exercise and its requirement for the partial fulfillment of the course
for the trainees of the Post Graduate Diploma in Public Administration was given. After
completion of interviews, gratitude was expressed and goodwill messages for future endeavours
conveyed.
Limitation of the study
Qualitative study is very much dependent on the capacity of the researcher or interviewer’s
competency. Being novice to the field, it was quite an asking. However, the task was made easier
after consulting research supervisor and also works of Cohen, Manion and Morrison (2007) on
Research Methods in Education. Past studies related to the field concerning civic education in
United States, the United Kingdom, Macedonia, Serbia, Chile, Columbia and Italy were consulted.
The study being a case of Bhutan, given limited interviews conducted confining to certain places
and schools, it cannot be generalized. However, extensive literature reviews were done on policy
documents. Also, in depth interviews as tool of qualitative research helped generate
comprehensive data from specialized agencies in education, democracy and CSOs.
Time frame of three months for broad concept for Civic Education was short. And no detailed
study could be conducted. Nonetheless, through purposive sampling employed, key informants
24
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
were interviewed, key stakeholders in education and democracy investigated and literatures
referred and reviewed.
25
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Findings and Discussion
Civic Education Curriculum
The curriculum developed within the capacity of Bhutanese education system is required to be
dynamic and continuously improved in its relevance to the national values and ethos…as well as
to the broader knowledge of the world in preparing the students to face the realities of the 21st
century (Ministry of Education, 2012, p. 16). The need to prepare for democratic engagement is
felt. And it is being done through school curriculum. Towards that end, Environmental Studies is
taught from class PP – III, Social Studies from Class IV – VI and Bhutan Civics from Class VII –
XII. Such arrangement is expected to give students some understanding of self in relation to others
as elucidated in succeeding paragraphs. However, as considered for the study, subjects related to
civics of classes PP – X will only be presented.
Primary School
The Curriculum for Primary Education is emphasized to create learning environment in which
young children not only enjoy learning but also develop a love for learning (Ministry of Education,
2012, p. 17). Environmental Studies and Social Studies form part of the prescribed curriculum.
Environmental Studies from Class PP – III
The topics taught in the subject revolves around studying rivers, vegetables, plants and animals
and extends to studying national signs and symbols such as Eight Lucky Signs.
The medium of instruction is in Dzongkha, the national language of the country.
Social Studies from Class IV – VI
In class IV, students are taught about government and their roles as custodian of laws and
administration of welfare schemes are spelled out.
In class V, children learn about family and their community. Further, composition of the
Parliament of Bhutan – King, National Assembly (NA) and National Council (NC) are presented.
National goal of ‘One Country, One People’ appreciating diverse religious and ethnic backgrounds
are reflected. United Nations Organisation (UN) role as the promoter peace is also incorporated.
In class VI, the text covers population growth and issues such as migration, pollution and waste
management problems. Beside these, family structure and their roles is clearly explained with
strong emphasis on tradition of Tha Damtshi (fidelity). Roles of local government is also
presented.
26
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
History and Geography are studied as Social Studies with knowledge drawn from political science,
sociology, economics and history as was in the Greek polity. Students are expected to acquire
skills of reflective thinking, participation in decision making, appreciation of differences and solve
interpersonal and group level problems through group activities, investigative study of their
community leaders and parent.
From familial values to laws of the land through to the UN, the curriculum prescribes for moral
values such as fidelity and national values as transmitted through national signs and symbols.
Further, student must acquire skills like reflective thinking and decision making so that they can
participate in their respective communities through investigative studies of their neighbourhood.
Bhutan Civics in Middle Secondary Schools (Class VII - X)
The curriculum of the secondary school education is expected to prepare students to be productive
and responsible citizens. Among other subjects, Academic Studies such as History and Civics, and
Geography and optional Academic Studies, namely Economics, Media and Information Literacy
and Environmental Studies are incorporated (Ministry of Education, 2012, p. 17).
Responding to changing political system, civics textbook from Class VII - XII is introduced. This
aimed at imparting students the civic knowledge and skills for them to participate in Bhutan’s
Democratic setup (Curriculum and Professional Support Division, 2008). For this study, Civics
curriculum up to class X will be presented.
For Class VII, Democratic government is dealt in quite detail. The three arms of government –
Executive, Legislature and Judiciary is elucidated. Constitutional bodies such as ECB and Anti Corruption Commission (ACC) with their role in strengthening democracy through check and
balance are discussed.
In class VIII, Constitution and citizenship are discussed. Rights and Duties, Principles of States
Policy based on Gross National Happiness (GNH) is comprehensively described. An attributes of
good citizen such as knowing government and its procedures, participation in decision making,
and exercise of freedom and rights responsibly are clearly mentioned.
The civics topics addressed in Class IX describes evolution of Bhutanese Democracy with special
reference to political reforms of His Majesty the Third King and the Fourth King. Institution of
NA in 1953 and Royal Advisory Council (RAC) in 1965 during the reign of the Third King and
establishment of Dzongkhag Yargye Tshogchung (District Development Committee) in 1981,
27
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Gewog Yargye Tshogchung (Gewog Development Committee) in 1981 and landmark devolution
of Head of Government to the elected Prime Minister in 1998 by the Fourth King are elaborated.
Drafting of the Constitution and the nationwide consultation of the Draft Constitution by His
Majesty the Fourth King and His Majesty the King, the then Crown Prince is dealt in entirety. In
addition, election and political parties also form part of the subject.
For class X, civics topics include the Parliament of Bhutan, the three branches of the government,
constitutional bodies, local government and GNH and Good Governance. Distinction between the
two Houses – NC and NA is drawn and the roles of Political Parties enumerated.
Local
Government as an agent to take Democracy at grass roots is recognised with its composition,
powers and responsibilities provided.
Features of Good Governance such as fair and representative election, transparent and competent
government, fair laws, and knowledgeable citizens to engage in democratic setup are extensively
discussed.
Student activities such as quizzes on facts and procedures, discussions on Constitutional provisions
and guest speaker series inviting local government members in their class are part of the learning
prescribed in the civics curriculum.
Upon completion of Class X, students are expected to comprehend the way government operates
in conjunction with the rights and responsibilities each individual have. Civics topics to that of
imparting civic knowledge and skills highlighting the unique case of Bhutanese Democracy is
presented. Social context and political system is incorporated like that of Greek system in which
social and political education are taught in grade V and VI and elements of democratic government
in LSS (Fountain, Mclean & Smith, 2002).
On the other hand, Royal Education Council (2012) critiques that there is no logical connection.
Study of constitution in class VII and VIII and evolution of Bhutan’s Democracy in classes IX and
X is one such example. Teaching evolutionary history in Classes VII and VIII and Constitution in
Class IX and X would give students clear understanding of Bhutanese Democracy (Royal
Education Council, 2012).
Key Informants
Bhutanese had always someone in visionary Monarchs who would lead them. However, with
Democracy came the new responsibility. On the other hand, wide range of welfare schemes made
people complacent often complaining of the service without not realizing their responsibilities. In
28
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
addition, confusion between NA and NC and Democracy treated as an event rather than process
has given the cause for concern. As result, Democracy is receives attention only during the time
of election rather than everyday conduct. Debate on quality of education in parliament and
academic circles against changing political scenario also added the weight on our state of affairs.
Against this milieu, Civic Education was seen as the right tool to intervene. More importantly,
intervention in ever expanding mind of youths in schools is more pronounced.
His Majesty’s Addresses emphasizing in nurturing youth with right educational framework has
added extra wright on it. To put concerted effort in the education research, specifically, the Civic
Education, REC, after extensive consultation with experts both inside and outside the country
developed NEF in 2012. The framework, calls for education reform that would prepare students
to participate meaningfully in Democratic process. It will be presented to MoE as a part of
ministry’s initiative to revise curriculum through Bhutan Education Blueprint (BEB) 2014 – 2018.
Hence, inter connectedness between civic, political and personal life have convinced the need of
education. Similar trends has been reveled in Republic of Serbia, Macedonia, Italy, Chile and
Columbia (Fountain, Mclean & Smith, 2002; Reimers, 2007; Rivelli, 2010). Civic Education that
encompasses moral, political and democratic knowledge is considered the right tool to intervene
with.
Civic Education is understood as the education for right and responsibilities one should shoulder.
It is also defined as the deliberate delivery of knowledge in schools and colleges in preparation of
citizenship and members of the community. Thus, it underscores the studies on human rights, rules
and policies of the government and democratic process. As expounded by Crittenden and Levine
(2013), civic education stretches from people’s beliefs, commitments, and capabilities to
responsible members or prospective members of communities. Definition of Civic Education, thus
is varied.
Knowledge and skills required for participation, decision making and being mindful of one’s own
actions form part of Civic Education. Teenagers who have these skills are found to be more
forthcoming in participation than those who do not. Study in Canada by Paul Howe titled ‘Citizen
Adrift’ in 2010 reveals that citizen with higher educational attainment have higher percentage of
turnout rate in voting. However, higher voter turnout rate in Bhutan’s first parliamentary election
in 2008 with over 80% against lower voter turnout in second general elections in 2013 at 66. 13 %
(Bhutan Broadcasting Service, 2013) tells another story. Were Bhutanese in 2008 more educated
29
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
in civics than they were in 2013? The excitement among citizenry to participate in the first
parliamentary elections could be one possible reason. However, in a Democracy, civic
participation is crucial for it indicates the maturity of democracy – higher the civic participation,
more mature the democratic standards (Lutaj, 2014). The need for Civic Education is non –
negotiable for Democracy to thrive and Bhutan’s case as a young Democracy deserve equal
consideration.
Civic Education among school going children can be enhanced through numerous ways.
Curriculum, extracurricular activities such as participation in debates, quizzes and club activities
happens to be few. However, implementation of these programmes is not without a problem.
Fountain, Mclean and Smith (2002) in their study of Civic Education in schools in Serbia found
out that school adapts slowly to transitions particularly with reference to teaching content and
methods.
Besides this conventional learning mode, innovative learning practices such as talk series, service
learning and trainings and youth forums are said to be effective in Civic Education programme.
Service learning such as students helping conduct elections rather than sending them on holidays
would enable them learn. Screening movies with civic education content, field trips and
customized learning6 based on capacity of leaners can also be incorporated as a part of Civic
Education. Service learning as espoused by John Dewey through his concept of ‘Experiential
Continuum’ and Paulo Frerie’s ‘Culture Circles’ would give students to learn from real life
situations.
Decentralization of school management has started in 19 schools across the country as they are
being piloted as autonomous schools. These schools have autonomy is six key areas, namely;
leadership and management, ambience, curriculum, assessment, community vitality and broader
learning. With exception to budget, they can reallocate resources and align the management
practices that best suits their schools. Federal arrangements in United States where its schools have
autonomy under autonomy of 50 states and education system under Cantons in Switzerland with
no national curriculum gives an insight of how it is being done. However, Bhutan’s case of
parliamentary democracy and unitary state may not align with those systems.
6
ECB has designed a ‘Democracy Tree’ starting from evolutionary history of Bhutanese Democracy at roots, bearing
the fruits such as peace, justice and vibrant communities propelled by the trunk of principles such as rule of law,
transparency and institutions such as Media, Civil Society and Civil Service. It is done to encourage learners,
particularly, kids to learn through diagrams. The ‘Democracy Tree’ is attached as Appendix IV.
30
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Initiatives are being taken in training not only youths but general public to enhance civic
engagement. BCMD organizes workshops for youth, teachers and GAOs on debate, discussion
and public speaking that would enable them to participate in Democracy. A youth project of
BCMD, the Youth Initiative comprises of school going youths. They get to attain trainings on
research, problem solving, policy proposal and advocacy. Interactive talk series with
Parliamentarians, Local Government Officials and Media form part of their civic learning.
Through local actions, youth learn through experiences. In addition, the Centre also supports
Media Clubs in dozens of schools imparting media literacy among school children. In Serbia, CSO,
particularly OSF played pivotal role in taking civic education in mainstream curriculum with focus
on inclusion of minority groups in mainstream educational framework. Besides, government
machinery, CSO’s can provide platform for students enhance their skills and learn through
experience.
ECB has started Democracy Clubs in 144 institutions, - colleges, higher, middle secondary and
primary schools across the country. It is aimed at infusing civic knowledge, civic skills and civic
dispositions through education in electoral process and democracy (Election Commission of
Bhutan, 2012). Study in Macedonia revealed the importance of infusing democratic knowledge to
citizens as to participate in democratic set up. Importance on moral education targeted at igniting
citizens to take responsibility was also initiated (Gjorgjeva, 2010).
Involvement in such club activities has enabled student to know their representatives in the
parliament and electoral system. These clubs also served as information cell for postal ballot during
2013 parliamentary elections. Capacity development of coordinators were provided so as to enable
them to coordinate club activities. Innovative learning has been initiated through diagrammatic
representation of democratic processes in the form of Democracy tree and games such as SIM
Democracy wherein policy formulations procedures are being incorporated. The Commission is
also working on establishing Bhutan Youth Parliament that would give practical hands on
experience for 75 youths who would be elected from schools across the country. Members of
Youth Parliament (MYP) would discuss relevant laws that affect youths. In Denmark, every
political parties have their youth wing and they recommend their parent Party on issues affecting
youth and exert their voice to take swift actions. Democratic discourse, thus would give students
skills of critical thinking enabling them to make decisions independently, contributing to healthy
democratic debate and decisions.
31
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
However, no standard system has been put in place to assess students’ participation extracurricular
activities. Certificates are being awarded for those taking leadership roles and participating in
activities such as sports. DCRD is working on crediting students who volunteer with law
enforcement agencies such as police through institution of Friend of Police and Police Youth
Partnership Programme. On the other hand, adults do not abide youth’s advice to follow rule during
events just because they are elder, respect for elders is misinterpreted. Whole society need to be
educated and civilised.
The legitimacy of the state to prescribe curriculum for schools is justified by consultation put in
place. Teachers are consulted and subject committee spearheading the project. The DCRD
spearheads development of the curriculum. Having developed the curriculum, it is piloted and
feedback incorporated before it is prescribed for schools to implement. Further, state consists of
government elected by the people and they have legitimacy. So, the intervention is justified.
Curriculum, however, should be diversified. In between Scott’s (1998) propositions that state is
vital to the maintenance of our welfare and freedom while also nurturing modern despot, Heywood
(2004) justifies state’s intervention from education to economic management, from social welfare
to sanitation as non – negotiable. However, federal curriculums in the United States and
Switzerland present different stories. Explanation of state as a community, rather than umbrella
framework as an institution with authoritative values would clarify the concept of state. On the
other hand, should an individual choose to do away with prescribed curriculum, one can opt to
study in private schools that is growing in Bhutan. So, while state prescribes, individuals have
liberty to do away with it. Democratic principle of individualism and individual values are
respected.
Educationist
At the management level, school management is based on decentralization and empowerment.
There is decentralization committee which oversees the decentralization programmes of the
schools. Meetings with students are conducted in which students are represented by captains.
Agenda for the meeting also come from the students and tabled for discussion and the resolution
shared to all students. Thus, the minority voice is taken care of.
To foster participative learning in the class, child – centred learning is employed. In that light,
activity based learning and self – learning assume important place. Depending upon the nature of
the subject, guest speakers are brought so as to bring different perspective. However, in most of
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
the cases, it is the subject teacher’s monitor or school principal who comes to observe and give
few comments. Class participation among students is high as indicated by their participation in
role plays, asking questions, debates and group work.
Engagement in extra – curricular activities is extensive. Students participate in reading
competitions, debates, and extempore speeches and take leadership roles to which they are credited
with certificates. At community level, students initiate cleaning and awareness campaign on health
and diseases among general public. Students’ engagement in SUPW is assessed and graded such
as A, B, C, depending on the contribution and participation of a particular student.
Efforts are being made in putting students at the centre of learning – their voices heard and
initiatives recognised.
Parents
Differences are apparent among parents on their children’s role. Literate parents’ say their child
should understanding democracy and be critical of the leaders they choose. With this knowledge
and skills, they should venture beyond their comfort zones and investigate their neighbourhood
and communities, thus giving them the understanding of the real life situations. However, reaching
to children’s need at home in that light is challenging.
Among illiterate parents, children should get education which would earn job for their living.
Parental advice is critical as it would enable children mature that subsequently will help them work
towards attaining individual, familial and national aspirations. Parental support morally and
financially is must. Children are also expected to respect community and national traditions.
Autonomy for children with regard to choice of subjects to be studied, divisions and career is
guaranteed.
Expectations from parents for child to be responsible for self and community is unequivocal. In
that pursuit, they are afforded liberty to make decisions affecting them. Such assurances help them
prepare for participation and equip with skills to do so. However, intervention as children’s mind
expand will be handy, which some parents find it difficult.
Students
Required by the school curriculum, school children get to learn concepts related to Civic
Education. At the MSS level, they have the understanding on concepts such as Democracy,
Elections, Constitution and the three arms of Government in Executive, Legislature and Judiciary.
Some have clear understanding of Bhutan as an Indirect Democracy. At the primary level, students
33
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
learn about environment and community forests and family histories. On the other hand, no single
respondent of the FGD knew their representative at either at Local Government or Parliament.
This, they would know by visiting their villages and asking parents and enable them to answer
such questions if asked in the future.
Participation in class has gained momentum. Students ask questions, participate in discussions and
presentations. This is attributed to high level of tolerance and acceptance among teachers.
Depending upon the nature of the subjects, students pursuing agriculture get to go for field visits.
Students expressed service learning and field trips would help them learn more. However, some
students learn more effective in the class than they do through field visits.
Extracurricular activities such as sports, literary, home science and scouts instituted in schools.
Membership to clubs are determined by individual interests. Clubs such as literary coordinate
literary events. Students also participate in debates on topics such as democracy where participants
are selected by House Masters. Further, students take part in daily SUPW in schools while in some
schools it is done once a week. Such initiatives help keep school campus clean. However, some
complaint that doing morning SUPW is terribly cold.
In order to engage students in decision making, meetings are held between school management –
Principals, Teachers and Students. Students are represented by captains and their representatives.
Decisions reached during the meeting are shared to the students in majority of the schools but not
in all. School captains are elected from among the students. In some schools, students come
forward and proclaim manifesto while teachers nominate in some schools. In order to look into the
matters affecting students, Teacher – Parent meeting are also being held. Resolutions reached
amounts to concerns in studies, discipline and drug abuse as indicated by parents’ advice for
children after the meeting.
Converging above responses of Teachers, Parents and Students with that of prescribed curriculum,
there are some gaps between the content and what students know. Teachers bring in guest speakers,
curriculum prescribes the need for community mapping, interviewing local government and
explore family history. Students do have the understanding of Bhutanese Democracy, but they do
not know their representatives both in the Local Government and the Parliament through whom
they can raise their concerns. This conforms to Fountain, Mclean and Smith (2002) statement that
there are gaps between aspiration documented in books and expressed by teachers and parents and
realities children are confronted with. Resource constraints in terms of technology, parents finding
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
challenge to allocate time for children at home and differences in aspiration among parents are
issues that come along with aggregating what Civic Education actually is.
Possible impacts of Civic Education
Incorporating civics content in civics textbook, service learning, and student – centred learning
approach with diversified curriculum in schools’ civics curriculum would produce a set of
responsible citizens. This set of individuals with the knowledge on country’s social and political
system would have attributes of critical thinking and willingness to engage in civil society, thus
ushering in participatory governance. These initiatives would ensure check and balance bringing
in transparency and accountability at all levels of governance, starting between teacher and
students. Students would also have qualities of tolerance and appreciation of conflicting claims
thus fostering diversity. In the process, pluralism, one aspect of democracy will be upheld. All
these attributes would help lay foundation for robust Democracy.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Conclusion
The study revealed that Civic Education is right tool to nurture students towards realizing
participatory Democracy enabled by engaged citizens. This engagement will only be achieved with
right education – the content of the curriculum, the organization of the school, the teaching
methods, and the training of teachers (Reimers, 1994). The study explored schools potential roles
in deepening Civic Education in Bhutan’s young Democracy. Towards that end, information
generated through interviews, observations and content analysis confirmed that there is positive
relationship between Civic Education and Democracy as evidenced in Greek Polity, United States,
and United Kingdom through to emerging democracies, namely Republic of Serbia and
Macedonia.
While aspirations with regard to building vibrant democracy through citizenship as documented
in policies and expressed by specialized agencies are appealing and fascinating, it has not been
translated into realities as students shared their experiences. Students do have theoretical concepts
of civic life – the democratic knowledge but they lack civic skills to the extent that they should
know their representatives only to answer when some ones asks them questions.
To address this discrepancy, key recommendations in policy and programmes are identified.
Recommendations
Logical presentation of Civics Curriculum
Civics curriculum and content of the subject needs to be in logical order (Royal Education Council,
2012). Instead of directly teaching students of class VII and VIII about the Constitution and
incorporating content on evolution of democracy in Bhutan in Class IX and X, logical ordering
with evolutionary history first and Constitution later would give them knowledge of why
Bhutanese Democracy is unique and also have the better grasp of the Constitution. In Greece,
children are first taught social and political education at grade V and VI and followed by elements
of democratic government in LSS. This enable them to understand the context first and system
subsequently.
Diversify Curriculum and Learning
Education is not universal. Besides prescribed curriculum, schools through institutional
arrangement should give certain leeway in incorporating community based learning. Including
programmes such minority as in Serbia would help record the history of our minority groups such
as Doyas of the South and Monpas in Central Bhutan. Classroom learning should not be isolated,
36
Role of Schools in deepening Civic Education in Bhutan’s young Democracy
thus service learning needs to be incorporated for it would give them platform to practice what
they have learned in the class. Such arrangements would instill responsibility and vigour in the
minds of student to take action for collective good. John Dewey’s experiential continuum and
Paulo Frerei’s Culture Circles is popular among matured democracy of the United States and
Brazil respectively. Such practices would give all walks of live to exchange their ideas. Farmers,
for instance can share their problems in the class whereby feeling of urgency to act would be
aroused in young minds. Talk series by inviting Local Government, Parliamentarians and Policy
makers in the class would bring decision makers ever closer to students, thus taking Democracy at
grass roots and giving them the voice.
Building Partnerships
Civic education cuts across different sectors and so should their efforts in reforming. Consultation
should be inclusive. Apart from Experts, Teachers and Policy makers, Students and Parents also
need to be engaged. Beside these, Constitutional bodies such as ECB mandated to further
Democracy and CSO such as BCMD working to strengthen Democracy and Judiciary upholding
the rule of law also need to be brought on board in curriculum development process.
Equally important, forging partnerships with Colleges of Education under RUB would be crucial.
Curriculum content in itself does not guarantee success. Method of delivery matters. Teachers
when trained should have the knowledge of what they are to do in the future. This will be
materialized through collaborative efforts between autonomous Colleges of Education in Paro and
Samtse under RUB and DCRD in particular. In addition, collaboration at Ministerial level as it is
being done between DCRD and MoAF in designing agriculture programme in school education
would bring added advantage of experience and expertise. Further, plan to merge REC, a research
institution in education and DCRD, policy agency in education presents reason to be optimistic.
Such merger would facilitate evidenced based policy making including development of civics
curriculum development that would cater to the needs of democratic Bhutan. Fountain, Mclean
and Smith (2002) enumerate involvement of not only Serbian National Government and agencies
but also international CSO like OSF and the UN agencies like UNICEF. The Joint effort created
awareness the importance of Civic Education and also mobilized resources in developing Civic
Education curriculum in Serbia in late 1990s and early 2000s. The results were commendable.
Hence, joint effort in Civic Education reform would bring expertise, resources and qualities which
will be crucial for preparing young minds for Democratic engagement.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Future Research
This study explored the potential roles schools should play in deepening Civic Education in
Bhutan’s young Democracy. In so doing, it confirmed that there is positive relation between Civic
Education and thriving Democracy. And, schools are found as right place to intervene through an
arrays of Civic Education programme. The findings presented in this paper should have generated
enough insights into future research and motivate potential researchers to take different approach
such as quantitative or the mixed method so that findings can be backed by numbers.
Also, a comprehensive study of a school through case study will present ideal platform to generate
variables and gaps between policy and practices with regard to civic education.
Not only that, entire school education system can also be studied in relation to how civics
curriculum is considered as students progresses higher up the academic ladder. Comparative
studies and longitudinal studies would also generate information on progresses and pitfall in the
areas of civic education.
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Appendices
Appendix I: Interview Questions
Dear Respondents,
Good day! I am Dechen Rabgyal, a trainee of Post Graduate Diploma in Public Administration
(PGDPA) at Royal Institute of Management (RIM) at Semtokha, Thimphu. As a partial fulfillment
of my course, I am undertaking research on ‘Role of Schools in deepening Civic Education in
Bhutan’s young Democracy.’
Through this brief interview, your answers will be helpful in completing my research. It is solely
for academic purpose and the confidentiality of your responses will be maintained. So your honesty
is solicited.
In case you have any questions regarding the question, please write to me at
dechen.rabgyal@gmail.com. Thank you very much for your time and response (Please answer all
the questions).
Name (Optional): ……………………………………………………………………………….
Occupation: ….…………………………………………………………………………………..
Gender: ………………………………………………………………………………………….
Key Informants
1. What is your understanding of civic education?
2. Why is civics education important?
3. How participation in civic and political life can help citizens attain individual and public
goals?
4. Why is it important for teenagers to learn and know how the government works, and about
the responsibilities and rights associated with citizenship?
5. What are the most effective and engaging ways to engage teenagers in learning civics?
6. How can people be motivated to learn more about citizenship and government?
7. What can schools do to get kids motivated and engaged in learning civics?
8. What impact would civic education have on young democracy like ours?
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Principal
1. How are decisions regarding school management being made?
2. Are there any meetings conducted with parents and students? On what issues?
3. How is election in your school being held?
4. What kind of clubs do your school have?
5. How are membership to clubs determined?
6. Do your school invite guest lecture?
7. What kind of extracurricular activities are being organised in your school?
Teachers
1. What kind of teaching practices do you employ in your class?
2. Do you bring in guest lecture for some specific sessions?
3. Do students participate in class discussions and asks questions?
4. How are students participation in extracurricular activities (community work, debates,
leadership) evaluated in the year - end assessment?
Parents
1. What kind of civics knowledge you hope your children will gain in the school?
2. How can children learn civic education at home?
3. How do children decide their career?
4. Do you have any influence over deciding your child’s future?
5. How can parents help educate child?
Students
1. What have you been taught at school about civics?
2. Do you get to speak in your class?
3. Do you ask question to your teachers?
4. Are you aware of system of government of our country?
5. How are elections held in your school?
6. Do students participate in meetings with teachers?
7. What kind of extracurricular activities are being organised in your school?
8. Do your school have clubs?
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
9. Do you know members of your Local Government and Members of Parliament?
10. Do you discuss with your representatives both at Local Government and Parliament on
issues facing your community?
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Appendix II: List of Interviewees
1. Aum Siok Sian Pek Dorji, Executive Professional Director of Bhutan Centre for Media and
Democracy (BCMD).
2. Mr Kinley, Chief Training Coordinator at Election Commission of Bhutan (ECB).
3. Mrs Kezang Choden Dorji, Director of Department of Curriculum Research Development
(DCRD).
4. Ms Phuntsho Lhamo, Ms Chhimi Wangmo and Mr Karma Kuenphen of Education
Monitoring and Support Service Division (EMSSD).
5. Mr Lhundup Dukpa, Officiating Director of Royal Education Council (REC) for
interview.
6. Mr Pem Tshering, Principal, Gongthung Middle Secondary Schools, Trashigang.
7. Mr Tashi Gyeltshen, Teacher, Thungkhar Lower Secondary School, Trashigang
8. Mr Jigme Tenzin, Teacher, Thungkhar Lower Secondary School, Trashigang
9. Mr Jigme Tenzin, Teacher, Thungkhar Lower Secondary School, Trashigang
10. Mr Tshering Dendup, Teacher, Thungkhar Lower Secondary School, Trashigang
11. Mr Rinzin Dorji, Teacher, Bepam Primary School, Trashigang
12. Mr Dorji Tshering (Parent), Driver
13. Mr Leki Dorji, Parent, Farmer
14. Mr Karchung, Parent, Driver
15. Ms Tandin Wangmo, Development Officer, Royal Insurance Corporation of Bhutan
Limited.
16. Ms Tashi Tshomo, Assitant Programme Officer, Ministry of Health.
17. Tandin Namgay, Class IX, Motithang HSS
18. Sonam Choki, Class X, Kilikhar MSS
19. Rinchen Dorji, Class V, Bumpazor Primary School
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Appendix III: Participant of Focus Group Discussion
1. Dawa Tshering, Class VIII, Loseling MSS
2. Dechen Wangdi, Class VII, Loseling MSS
3. Gyeltshen Zangpo, Class IX, Loseling MSS
4. Kezang Wangchuk, Class X, Lungtenzampa MSS
5. Tandin Tshewang, Class VII, Changzamtog MSS
6. Ugyen Choeda, Class XI Science, Yangchenphug HSS
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Role of Schools in deepening Civic Education in Bhutan’s young Democracy
Appendix IV: Democracy Tree designed by Election Commission of Bhutan
49