Ministry of Education and Sports

Concept Paper on
SCHOOL SECTOR APPROACH
October 18, 2006

Table of Contents

1. Introduction.......................................................................................................................... 2
2. Rationale .............................................................................................................................. 3
3. Objectives ............................................................................................................................ 5
4. Policy Directions.................................................................................................................. 5
5. Structural and Functional Adjustments................................................................................ 9
6. Resourcing ......................................................................................................................... 10
7. SSA Milestones.................................................................................................................. 11
Ministry of Education and Sports
Concept Paper on
SCHOOL SECTOR APPROACH
October 18, 2006

1. INTRODUCTION

The concept of an integrated grades 1 to 12 school system has been under consideration in
Nepal for at least a decade; the process of developing and implementing this school system
was initiated as early as 1994 with the establishment of the Higher Secondary Education
Board. The need for structural adjustment to the integrated school system was further
emphasised by the Basic and Primary Education Master Plan (1997).

Since the 1990s, Nepal’s education sector has witnessed a gradual shift from project to
programme to sector-wide approaches, including a shift in funding modalities from bilateral
to pooled to budgetary support. These processes take into account everything that has been
learned from implementing various projects and programmes.

The Education For All National Plan of Action (EFA/NPA, 2001-2015) emphasises the need
for harmonizing school education by integrating grades 1 to 12 school system. The Tenth
Plan (2002-07) recognizes the centrality of schools in developing human potentials and
reducing poverty. The Plan also articulates the need for adopting a holistic approach to the
school sector.

As a preparation for an integrated School Sector Approach (SSA)1, this concept paper
provides: a) policy directions on structural and functional adjustments for grades 1-8 basic
education and grades 9-12 secondary education, and b) a basis for the preparation of the Core
Document for SSA implementation.

1.1 Current Context

Encouraged by the gains Nepal has made in implementing the EFA sub-sector approach and
the Secondary Education Support Programme (SESP), the Government of Nepal has
demonstrated its commitment to embarking on an integrated grades 1 to 12 SSA in a phased
manner from 2009/2010 onwards.

Inspired by the Popular Movement of 2006, people voiced their aspirations for change in the
education system: from dependency to autonomy, from exclusion to inclusion, and from
didactic to participatory. The people demonstrated their concerns about educational delivery
with particular reference to equity and quality of education. The Government responded by
initiating an education sector reform that also addresses the demand for economic and social
development such as expanding science and technology as well as sharing the benefits of
development more equitably.

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SSA refers to the overall school system reform and restructuring

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Recognizing the importance of the sector-wide approach in school education, the
development partners have recognised the Government initiatives towards the
implementation of the grades 1 to 12 integrated school system. For example, the joint Aide
Memoires of the EFA and SESP Review Missions held in June 2006 reiterated the support of
all development partners for the full-fledged implementation of the school sector approach in
education, including SSA preparation milestones.

1.2 Concept Paper Preparation Process

The Ministry of Education and Sports (MOES), with the backing of the Education Policy
Committee (EPC), has prepared this Concept Paper (CP) on policy directions for a 1 to 12
grades school sector. The MOES formed a Core Team with representatives from central level
agencies. The Core Team is, convened by the Joint Secretary, Planning Division and reports
to the Secretary, MOES. In order to broaden the base for the Core Team, MOES formed
thematic groups, with members from academia, development partners, I/NGOs, teachers’
unions, public and private schools, and civil society. The thematic groups prepared
background papers and held a series of consultations, seminars, and workshops to elicit
feedback from stakeholders at the district, regional, and national levels. Inputs from these
consultations were incorporated into the CP. This CP provides directions for the integrated
school sector core document. The thematic groups will continue to provide input during the
Core Document preparation.

2. RATIONALE

The SSA has visible management benefits in terms of enhancing the schools’ systemic
capabilities to efficiently use human and material resources. The SSA also instigates
institutional and individual accountability at all levels of education for both learning and
inclusion. By adopting an autonomous and flexible approach to school education, the local
communities will benefit from SSA implementation. It will magnify the roles of local
community in governance, management, resourcing, and quality assurance in school
education in their community. SSA harmonizes educational choices in terms of relevance,
appropriateness, and value orientations. With a view to meeting the demands of
development, the SSA will provide children with greater opportunities to attain desired
knowledge, attitudes, and skills development.

Education is both a basic human right and a development tool. The rationale for grades 1 to
8, 9 to 12 system is grounded in education’s intrinsic worth as well as its instrumental value.
In addition, there are managerial and pedagogic advantages to planning, operating, and
financing a 1-12 system.

The reform programme is equally important for the transformation of schools into knowledge
centres, and for developing a culture of learning across the continuum. The present ten years
of schooling, including five years of primary education, is inadequate to keep abreast of
emerging, new knowledge and skills needed in the contemporary context of a global society.

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The rationale for basic education (1 to 8) and secondary education (9 to 12) is discussed in
the following paragraphs.

2.1 Basic Education

The rights-based rationale: The GoN has long taken the position that every child has the
right to receive quality, basic education. The proposed policy direction defines grade 8 as the
end of basic education.

The development rationale: Five years of schooling is not sufficient given the global and
regional norms as well as rising national expectations. Eight years of schooling is considered
the minimum time required to diligently perform civic duties and also to engage productively
in an occupation. Under the principles and guidelines of good governance, the Government
believes that citizens receive at least eight years of schooling in order to fully express their
voice and dutifully exercise their civic responsibilities.

The technical rationale: Expanding primary facilities to grade 8 results in a more efficient
use of expensive resources such as qualified teachers, head teachers, libraries, and
laboratories.

The quality improvement rationale: The structural integration of 1 to 5 with 6 to 8 schools

improves students’ performance by easing curricular integration and consolidating the
competency-based learning program. Consolidation also helps make teacher, head teacher,
and School Management Committee (SMC) training more efficient. A 1 to 8 basic education
structure will additionally have a positive impact on teacher management and development.

2.2 Secondary Education

The development rationale: Secondary education with integrated grades 9 to 12 not only
helps prepare eligible candidates for the current job market as skilled workers but it also
enhances their level of learning and develops their technical know-how, making them
competitive in the national and international contexts.

The efficiency rationale: School system with 9 to 12 grades increases management efficiency
by integrating a fragmented school structure into a coherent system. The system also lowers
the unit costs and eases out school planning, resourcing, supervision, and monitoring
functions. It also makes extra-curricular activities—such as sports, cultural activities, music,
and civic development programs—available to students.

The quality improvement rationale: The structural integration of grades 9 to 12 improves

students’ performance and creates a better learning environment. As with basic education,
structural integration eases curricular integration and consolidation. The new structure will
have a positive impact on the supply of competent, qualified, and trained secondary school
teachers. The integrated 9 to 12 school system provides a foundation for tertiary education. In
terms of the learning environment, the 9 to 12 structure provides more effective use of
expensive inputs such as laboratories, libraries, computers, and extra curricular activities.

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The access rationale: The 9 to 12 structure will provide more students with the opportunity
to complete twelve years of schooling rather than ten. The new structure will allow more
students to continue beyond secondary education. It also opens the channels for secondary
students to enter into non-formal, vocational, and open learning streams. By providing
opportunities to secondary students in remote locations, the new structure addresses MOES’
equity agenda.

2.3 Assumptions
In order to implement the SSA it is assumed that the following conditions are met:

1. Political stability: The representative system of the Government will emerge from the
current political situation.
2. Peace: Nepal observes stable peace in the country.
3. Degree of decentralization: The district and sub-district levels elected bodies will be in
place and a clear demarcation between the functions, authorities, and responsibilities of
central and local bodies will be determined in a timely manner.
4. Economic growth: There will be reasonable economic growth to support and sustain the
education reform and restructuring.

3. OBJECTIVES

The government has made the school system’s structural and functional transformation a
priority in order to make school education effective, inclusive, equitable, pro-poor, and rights
based. The major objectives of the school sector approach are as follows:

a) To provide a policy framework to facilitate the reform process for an integrated

school sector,
b) To enhance all aspects of quality education to meet the needs and aspirations of
the people,
c) To hold the Government, local bodies, schools, and stakeholders (e.g. SMC,
teachers, parents, and local body) accountable for student learning.

4. POLICY DIRECTIONS

The following policy directions are under considerations for SSA implementation in a phased
manner:

4.1 School Structure

The structure of school education will comprise grades one to twelve, basic education
running between grades one and eight, and secondary from nine to twelve. The vocational
education stream will begin at grade nine. After completing their three years, vocational
stream students will be given opportunities to enter tertiary education by completing an
additional one-year bridge course.

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Non-formal students can be mainstreamed through school tests. Open and formal schooling
will be made compatible to permit students to complete their education through either
system.

4.2 Management Structure

Within the education sector, the relationships of authority, accountability, and responsibility
between the national, sub-national, and local levels will be fully aligned with any general
restructuring of governance systems.

4.3 School Operation

Schools for basic education (1 to 8) and secondary education (9 to 12) will be encouraged to
operate as separate entities in terms of their management, administration, and financing.
Schools will exclusively operate basic and/or secondary grades; tertiary education programs
will be discouraged from sharing school facilities.

Provisions of alternative programs—such as out-of-school, school outreach, flexible learning,

and open/distance learning—will cater to the needs of a diverse population of learners. These
alternatives will provide access to school education to a wider population. For example,
street children and mobile/migratory communities will be served through mobile/home-based
schools.

4.4 Entitlements
The basic education will be free and compulsory for children between the ages of six and
fourteen. Children currently enrolled in schools will continue to receive the entitlement. Free
education will include cost-free services for the basics such as admission, textbooks, tuition,
and examinations. Secondary education will be provided on a cost sharing basis. However,
adequate arrangements will be made to ensure free secondary education to children from
economically disadvantaged community and physically disabled children.

4.5 Decentralization
Schools will be managed through a decentralized framework of operation. The emphasis will
be placed on school-based management which will be accountable to a local body. The
schools’ accountability and autonomy will be ensured in terms of school governance,
management, resourcing, and quality assurance. Schools will follow a transparent model of
operation and will adopt a mechanism for social auditing for financial transactions and
programme performance.

Local bodies, such as Village Development Committees (VDCs)/ Municipalities, will be

responsible for the planning and management of basic education; District Development
Committees (DDCs)/Municipalities will be responsible for the planning and management of
secondary education. Planning and management activities will include school clustering,
coordination, resourcing, and developing operational guidelines including setting their own
targets for quality education in their respective jurisdictions. The SMC will be responsible for
the management and operation of the school.

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4.6 Social Inclusion
Inclusion will be the overarching strategy for SSA implementation. Special attention will be
paid towards increasing participation of women, dalits, ethnic minorities, disabled, and
marginalized groups in the governance and management of schools. Provisions will be
developed to increase the number of teachers from these populations.

4.7 Instructional Arrangement

Teaching modalities, such as grade and multi-grade teaching, will be determined by the
school management in consultation with the local body and within the nationally defined
operational modality.

4.8 Medium of Instruction

A child’s mother tongue will be employed as the medium of instruction up to grade three. To
ensure that children learn in their mother tongue, the SMC will determine the language(s) of
instruction in consultation with the local body. Grades four and five can follow a transition
from the mother-tongue medium of instruction to the Nepali medium of instruction. From
grades six to eight the medium of instruction will be fully in Nepali. English will be taught
as a subject from grade four onwards.

In secondary education the medium of instruction will either be in Nepali or English as

determined by the SMC in consultation with the DDC/ Municipality through the DEO.

4.9 Teachers
SMCs will recruit teachers from among the licensees based on the guidelines provided by the
MOES. SMCs will adopt competitive and transparent selection procedures to recruit
teachers. Directives for teachers’ service conditions will be issued by the MOES.

Priority will be given to recruiting females, dalits, and other disadvantaged groups when
filling teacher positions, particularly in basic education.

The minimum qualification for teachers of basic education will be the Higher Secondary
Education or Intermediate Level. During the interim phase, candidates with School Leaving
Certificates (SLC) will be considered on a case by case basis.

New entrants in secondary education teaching must have attained a Master’s degree or
equivalent qualifications. However, candidates with B.Ed. degrees will also be eligible for
teaching in early two grades of secondary education.

Teachers currently working in the primary schools with SLC qualification and in secondary
schools with a Bachelor's (except B.Ed.) qualification will be provided with training
opportunities to meet the basic requirements. After the interim phase, incentive packages for
voluntary retirement will be provided for teachers who do not meet the new, basic
requirements.

Provisions will be made to prepare a separate cadre of teachers who specialize in multi-grade
teaching. Specific terms and conditions for multi-grade teachers will be developed.

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Two separate professional career development paths will be offered: one for basic and one
for secondary teachers. Teachers’ qualifications and performance will be linked with their
career development, including their salary structure.

4.10 Head Teacher

A separate position for head teacher (HT) will be created in full-fledged schools such as 1 to
8, 9 to 12 and 1 to 12. However, in 1 to 12 schools, the HT will be assisted by separate in-
charge in both basic and secondary level. Basic and secondary level in-charge will be
designated from among the teachers. The head teacher's job will be technical, managerial,
and administrative in nature. SMCs will appoint head teachers on a contractual basis. The
terms and conditions of the HT will be determined by the MoES.

4.11 Private Public Partnerships

Basic education provisions will be the responsibility of the state. The role of community and
the local body in basic education will be maximised. Provisions will be made to maximise
partnerships of private and public sector in secondary education, ensuring adequate access to
disadvantaged populations. Community-operated institutional schools (trust schools) will be
encouraged to provide free basic education, ensuring adequate access to disadvantaged
populations in secondary education.

It will be ensured that the facilities provided by the private schools are commensurate with
the facilities provided to the students.

4.12 Quality and Accountability

The Government will develop a national framework of norms and standards for quality
education. The school community will, within the national framework, define its own targets
addressing the local needs and conditions.

For basic education, schools will be accountable for the students’ learning, parents and
guardians will be accountable for their child’s regular attendance, and lastly, the state will be
accountable for providing the minimum enabling conditions—including an environment for
equitable participation, appropriate classrooms, instructional materials, and teachers.

4.13 Student Evaluation

A liberal promotion policy will be adopted with no retention up to grade seven in a phased
manner. Schools will be supported in developing and adopting a continuous assessment
system to ensure students achieve grade-wise minimum learning competencies with the
provision of remedial support. The District Level Examinations will be held at grade eight
and will be managed at the district level. Technical backstopping for strengthening the
examination systems will be provided in each district.

The present SLC Board and the Higher Secondary Education Board will be transformed into
the National Examination Board (NEB) with functional autonomy. Grade ten examinations
will be conducted at the regional level with certification through NEB. Grade twelve
examinations will be managed and conducted by the NEB itself.

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4.14 Linkage
School education will be linked with non-formal/ open learning, technical education,
vocational training, as well as university education. Government will encourage
NGO/INGOs, local body and private sector partnerships to expand provisions of non-formal/
open learning, technical education, and vocational training.

In view of the contributions of ECD in access and quality of basic education, the program
will be expanded both in schools and communities in partnership with community based
NGOs.

4.15 School Financing

Financing policy will be aimed at increasing school autonomy. Multiple financing
modalities— such as block and earmarked grants as well as needs- and results-based
financing—will be employed to ensure flexibility and accountability. There will be a gradual
increase of funding or support targeted towards disadvantaged areas and groups to redress
past imbalances. The state will not reduce its current level of funding to schools.

School finances will be provided by both central and local level agencies. The share and
contribution of local bodies—including VDC, municipality, and DDC—will be defined by
the state. Mechanisms will be installed for the effective use of resources in schools.
Accountability and transparency will be fundamental features in school financing.

4.16 Donor Financing

SSA implementation will encourage a pooled financing modality that uses Governments’
financial management system.

4.17 Monitoring and Supervision

In order to continuously improve quality, MOES will develop a system of monitoring and
supervision based on national standards and targeted at school performance. This system
will be intensively mobilized for teacher support activities and for improving school
performance.

5. STRUCTURAL AND FUNCTIONAL ADJUSTMENTS

5.1 Function Allocation and Accountability

The Ministry of Education and Sports will be accountable for policy formulation, follow-up,
coordination, and review and monitoring. The Central level agencies will be responsible for
the facilitation of the programme implementation and coordination. The Regional Education
Directorates will be made responsible for the conduct of the regional level grade ten
examinations and will provide support for the grade twelve School Leaving Examinations.
The regional offices will also be involved in the Teacher Service Commission activities.

The District Education Offices will be responsible for making logistical arrangements for
school governance, management, planning, financing, quality assurance, and Education
Management Information System (EMIS). The sub-district level mechanism will be made
responsible for teacher support and quality enhancement.

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School finances will be provided by both central and local level agencies. The state will
define the share and contribution of local bodies, including VDC, municipality, and DDC.
Mechanisms will be installed for the effective use of resources in schools. Accountability and
transparency will be fundamental features for school financing. The SMC will be
responsible for teacher management, financing, planning, target setting, and for ensuring
student learning. The PTA will be responsible for providing feedback to teachers to assist
them in improving their students’ learning. Parents will be responsible for providing support
and a home environment conducive to their child’s learning.

5.2 School Performance Review Mechanism

In order to enhance the quality of learning in schools, it is necessary to regularly review their
performance. The review will serve as a basis for providing feedback and rewards to the
school system in the pursuit of attaining academic excellence. The review mechanism will
not only pave the way for improving the students’ learning but will help monitor the school’s
progress over a period of time. More importantly, the review will contribute to establishing a
system of accountability and transparency in the school. This review process will encourage
the school system to adopt a policy of more targeted and need-based interventions.

The Review Office will be an independent body formed under the Education Policy
Committee of the MOES. As an extension of the Review Office, District Level Review
Panels will work in collaboration with teacher unions, SMCs, Parent Teacher Associations
(PTA), reputed teachers, and professionals. The Resource Centre system will provide
backstopping to the schools that need special attention in terms of technical support and
resourcing to enhance their capability; this will also help raise their level of performance and
standards in line with the district level benchmarks and national standards.

5.3 Changes to Laws and Regulations

A legislative and regulatory framework will be developed for structural and functional
adjustments in the MOES system. Provisions for free and compulsory basic education will be
made in the law. Accordingly, necessary changes and amendments will be made in the
Education Act, Regulations and by-laws, and guidelines to harmonize the process and fulfil
the enabling conditions for SSA implementation.

6. RESOURCING

The Government of Nepal is committed to implementing a 1 to 12 school sector programme.

The 10th Plan, NPA, Medium Term Expenditure Framework, and Education Sector Business
Plan have stipulated that the 1 to 12 school sector will receive resources required for its
implementation. Commitments from the donor community have been reflected in the Nepal
Development Forum 2004. The EFA and SESP Aide Memoires of Education Mission held in
June 2005 have clearly demonstrated interest and strong support from development partners
for the school sector programme implementation. Local bodies, including DDCs,
municipalities, and VDC, have made provisions for school education development.
Provisions will be made for flexible financing in education.

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7. SSA MILESTONES

In order to ensure the gradual transition of the SSA process, the following milestones have
been employed:

a. Policy Formulation, Coordination and Follow-up

• Policy Committee formed (June 2006)
• Technical Secretariat established (June 2006)
• Technical Secretariat strengthened (July 2006 and on-going)
• Policy Committee working procedures approved (June 2006)
• Technical Secretariat terms of references finalized (July 2006)

b. Preparation for the School Sector Approach

• 1st Draft Concept Paper Prepared (July 2006)
• Concept Paper (CP) disseminated in the MOES (July - August 2006)
• CP disseminated at the regional level (August - September 2006)
• CP disseminated at the district and local levels (August 2006 and on-going)
• TOR for CD prepared (October 2006)
• Core Team and Thematic Groups formed for Core Document (CD) preparation
(October, 2006)
• CD work-plan prepared (October-November 2006)
• Consultations with stakeholders and development partners (On-going)
• Draft CD (including strategy for transition) approved by Policy Committee
(January - February 2007)
• A SSA Transition plan is prepared (Frebruary-March, 2007)
• Core Document approved by NPC and MoF (June 2007)
• Core Document finalised and ready for Appraisal (December 2007)

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