Chapter IV

UNIVERSALISATION OF PRIMARY EDUCATION IN BANGLADESH:

FORMAL APPROACHES

Bangladesh is a new nation but carries the socio-cultural heritage of Pakistan and of

undivided India both of which have affected the present educational system. The main

elements of the formal system led during the British rule of India and consolidated during

Pakistan times. Between 1947 and 1971 there was no radical thinking or major reforms

in the field of education to make education more relevant to the present day problems.

The idea of educating an elite to administer and develop the country led to the

establishment of numerous colleges and universities during 1950s and 1960s. This trend

in education was financially supported by foreign aid which went mainly to the third

level. During the 1960s the emphasis shifted a little to the secondary stage. \Vhile

continued high inputs went to universities, some resources were directed at establishing

secondary technical education.1

During the 1970s, unfortunately these trends continued in Bangladesh. Far more

emphasis was placed on college and university education than on any other. Primary

education, though rationalised in 1973, did not receive any real attention and consistently

underspent its financial allocation while the universities overspent.

By the late 1970s it was widely accepted that the system was neither equitable nor

efficient. With reference to the First Five Year Plan period, it is accepted in the Second

Five Year Plan (Draft) that "educational development could not bring about equality of

Ellen Sattar, Universalization of Primary Education in Bangladesh, (University Press, Dhaka, 1982), p.82.

71

educational opportunity as was envisaged" .2 Moreover, the enrolment of girls at atl levels

lagged considerably behind that of boys. The Second Five Year Plan with respect to

education is a break with the past for its places far more emphasis upon primary

education than during any plan period.

4.1 Constitutional Provisions for Education in Bangladesh

In the constitution of the Peoples'· Republic of Bangladesh in Article 17 it is

mentioned:

"The State shall adopt effective measures for the purpose of

a) establishing a uniform mass-oriented and universal system of education

and extending free and compulsory education to all children of sucn stage

as may be determined by law,

b) relating education to the needs of society and producing properly trained

and motivated citizens to serve those needs,

c) removing illiteracy within such time as may be determined by law".3

These constitutional provisions serve as a guide for educational planning and

development. Bangladesh took a democratic stand in detailing the needs for an education

system which reaches every child. The idea continues to provide a framework and these

provisions were quoted in the First Five Year Plan of Bangladesh.

2

3

Bangladesh Second Five Year Plan - (1980-85), (Dhaka, 1981), p.XVI-4.

See, Constitution of the Peoples• Republic of Bangladesh, (Dhaka, n.d.).

72

4.2 Primary Education under Different Plan Periods

4.2.1 The First Five Year Plan 1973-78

The First Plan authors of the Education Sector spelt out detailed steps whereby

primary education might become more equal. Primary education was to receive 18 percent

of allocation for education and was seen mainly as a level where the child would acquire

basic skills.

Eight major-objectives were specified and it is pertinent to look at them now and

examine how far they have been fulfilled.

i) The total enrolment will go up by about 2.6 million from a ba<>e of 6 million to

8.5 million.

ii) The percentage of primary age group students attending schools will increase from

58 percent to 73 percent in 1978.

iii) Ninety percent of the boys of primary age group will be given access to primary

education during the plan, compared to 76 percent now attending schools.

iv) Participation of girls will be ac-celerated. At present 40 percent of the girls of

primary school age-group attend schools: this will be raised to 55 percent during

the plan. This will lead to an increase in actual enrolment of girls in the system

by 1.1 million compared to 1.4 million for boys.

v) The curriculum at the primary level will be revised to make it more relevant to

real life obtaining in the country.

73

vi) Textbooks, writing and instructional materials will be supplied to all children free

of cost or at subsidised rates.

vii) Drop out rate will be reduced from 63 percent to 52 percent by undertaking

supplementary and non-formal measures such as well-designed educational

programmes through radio and television. Innovative measures such as provision

of feeder schools, child feeding. fem~le teachers, sports and recreational facilities

and synchronisation holiday with crop seasons, will be introduced to reduce drop

out between class I and class II, where the problem was more acute.

viii) Educated housewives will be encouraged to teach in primary schools.4

.. These first four objectives are simply different ways of stating the same thing to

increase enrolment, which is of course an excellent idea. None of these targets had been

achieved by 1978 or even 1980. There are several reasons for this, two most pertinent

ones being the famine of 1974 and the increased price of textbooks in 1978. Poorer

families simply withdraw their children from school or did not send them at all.

Enrolment in 1981 is estimated at 8.2 mfllion.5

Drop out has not been reduced. The 1978 enrolment target was 8.5 million, even

by 1981 it was only 8.2 million. None .of the innovative measures have been introduced

except on an experimental basis such as the Meher UPE Project and the use of mass

4

s

First Five Year Plan of Bangladesh, 1973-78, (Dhaka, 1974), p.8.

Sattar, n.1p.84.

74

media remains of marginal significance for primary education. With regard to the use of

educated housewives, this has not happened.

Despite these criticisms and the plan target shortfalls for primary education, the

First Five Year Plan served a useful purpose. It could give a shape to the goals against

which achievements could be measured. It served as some kind of framework within

which education could be more critically reviewed.

4.2.2 The Second Five Year Plan 1980-85

The Second Five Year Plan marked the beginning of the Perspective Plan (1980-

2000), Universal Primary Education (UPE) with a goal of enrolling 91% of the primary .. age group by 2000. The target of UPE by 2000 would require about 75 percent of the

primary school age population be enrolled by 1990 increasing to 91 percent by 2000.

Keeping these targets in view, the objectives of the Second Five Year Plan were

formulated as follows:

i) To bring about a noticeable improvement in the standard of living by ensuring

adequate supplies of the basic needs.

ii) To expand opportunities for gainful employment, beyond the growth of labour

force so that people have access to resources for their basic needs.

iii) To eliminate illiteracy and make a significant progress towards a comprehensive

6

development of human resources.6

Bangladesh, The Second Five Year Plan, (Dhaka, 1980), p.7.

75

The Second Five Year Plan did not emphasise the constitutional provision for

establishing free and compulsory primary education. However, all the objectives of the

second five year plan can be realised by the improvement of primary education which is

both a basic need and a means to improve the quality of life by the more equitable

distribution of the opportunities to all students.

It is considered that the objectives of attaining a better quality of life for the mass

can be realised better if the population is literate. Universally Primary Education is indeed

a pre-condition of modernization. Removing illiteracy from the country is therefore,

considered a strategy for social and economic development of masses. Since resources are

limited, there can not be simultaneous increase in investment of public funds at all levels 4

of education. It is necessary to economize in all other sectors of education through

confining the high education to meritorious, increasing the efficiency of existing

institutions through rationalization. Then the expansion of primary and mid-level technical

education at public cost, along with increased dependence on the private sector for

education, is recommended as a strategy for the Second Five Year Plan.7

The Second Five Year Plan, 1980-85, acknowledges the almost desperate need to

decentralize the administration of education, especially for primary education. "The

present centralized primary education structure provides for massive inefficiency,

corruption and shifting of local initiative. In one of the major reversals of policy, the

government intends to decentralize the primary education structure with control and

7 Ibid, p.II-10.

76

management of schools to vest almost entirely in local management committees which

are to be formed at the village level" .8

The new administrative structure is the logical step to administer the greatly

expanded primary sector. A separate Directorate of Primary Education and Mass Literacy

has been formed under the Ministry of Education. There will be a Local Education

Authority (LEA) in each of the sub-division and beneath them Thana Primary Education

Committees in order to have a smooth working of the entire programme. Along with this

a massive literacy programme was launched in February 1980 with the aim of turning 10

million illiterate adults into literate persons. For the first time a sizeable foreign aid

component is written into primary education sector for the Second Five Year Plan period.

This is the 40 Thana project funded by International Development Agency (ADA). For

the first time the allocation of funds to primary education exceeded to college and

universities. Thus 1980s marks a new trend in education.9

4.2.3 The Third Five Year Plan, 1985-90

The Third Five Year Plan is the second five year investment programme of the

Perspective Plan period. The Government's strategy for achieving UPE remains eventually

the same. However, the emphasis is given to strengthen institutional capacities, increased

community participation and finding lower .::ost solutions to provide education

8

9

Ibid, VIII-4.

Sattar, n.lp.25.

77

opportunities.

During this plan period (1985-90), the government felt that UPE could not alone

increase the rate of literacy. Keeping this in mind, an experimental Mass Education

Programme was launched in January 1988 at a cost of TK 262.2 million. It is a joint

programme conducted by the government and the NGOs. The government's role is to

make 1.3 million illiterates literate throug~ 27,600 centres by June 1990. The part of the

programme being executed by the NGOs is called the Mass Education Through Small

Local Organisations (METSLO). As an initial step, the government's objectives during

this plan period is to:

a) increase the rate of literacy from its existing level of 30 percent .. (11-45 years) so that at the end of the perspective plan (2000

A.D.), Bangladesh can achieve Education for All,

b) establish a viable institutional or organizational framework for

implementation of the literacy programmes.10

4.2.4 The Fourth Five Year Plan of Bangladesh, 1990-95

The strategies in the Fourth Five Year Plan regarding low-cost development and

launching a "multi-frontal attack on literacy by expanding non-formal primary education,

strengthening the government mass literacy centres, mobilizing NGOs and utilising the

skill development/income generating efforts of the department outside the Primary and

10 Banglades~ Third Five Year Plan, (Dhaka, 1985), p.4.

78

Mass Education Division (PMED). The objectives of the Fourth Five Year Plan are:

i) to introduce compulsory primary education,

ii) to reduce illiteracy,

iii) to enlarge and upgrade the base of science education at all levels,

iv) to enhance the functional character of technical education and vocational training

by making them more job-oriented through constant and appropriate links with the .

employment method,

v) to ensure optimum use of existing facilities at all levels and to introduce a process

of accountability in the educational system;

vi) to utilize the multi-sectoral potentials of education with respect to their objectives, ~

awareness, population planning, extension services, etc.

vii) to maintain regional balance in growth of educational facilities,

viii) to ensure enhanced participation of women in every possible sphere of education,

ix) to inculcate moral values in society.11

Education has traditionally been a neglected sector and it is only since 1980 that

various efforts have been made to improve the situation. In this context, the appointment

of Qudrat-e-khuda Commission is quite relevant and its suggestions provide the feedback

to reformulate the education policy.

11 Bangladesh, Fourth Five Year Plan, 1990-95, (Dhaka, 1990).

79

4.3 General Administration

Primary education was centrally administered from the Office of the Directorate

of Public Instruction (DPI), located in Dhaka, the capital of Bangladesh until 1981. In

1981, the administration of primary education has been assigned to the newly created

Directorate of Primary Education and Mass Literacy. The second important administrative

decision taken in 1981, was the Primary Education Act t? establish Local Education

Authority for primary education at sub-divisional level.

Bangladesh is divided into four main administrative units called Divisions. They

are - Dhaka, Rajshahi, Chittagong and Khulna and the senior administrator is the Division

Commissioner. The divisions are divided into 20 districts, headed by the Deputy •

Commissioners (DC). The districts are further subdivided into 73 sub-divisions whose

administrator is the Sub-Divisional Officer. The sub-divisions are composed of 473

Thanas whose headmasters are posted at the Thana government officials. The senior

officer of the Thana is the Circle Officer (CO). The thana is the lowest rung of

administration, but it is not the lowest unit. Each thana in itself is comprised of Unions,

about 10 unions make up a Thana. The Unions themselves are made up of villages, an

average of 12 villages comprise a Union.12

Each of the various tiers of the administration has government officials posted at

that level in all the departments. There. are officers at all these levels for education and

especially to look after the process of universalisation of primary education.

12 Sattar, n.lp.73.

80

Under the existing organizational Administrative Structure of Primary Education

there are

1. Primary Education Directorate

2. District Primary Education Officer (DPEO)

3. District Primary Education Officer (UPEO)

4. Primary Schools

5. National Academy of Primary Education

6. Primary Training Institutes

7. Universal Primary Education (IDA) project

The objective is to implement the policies of universalization of primary education .. under the Directorate of Primary Education, by undertaking programmes in a planned

manner. Through administrative decentralisation at the district and upazila level,

administrative and organizational responsibilities of District Primary Education Office,

Upazila Primary Education Office, the Head teachers of Primary Schools have been spelt

out and distributed in order to carry out the programme smoothly.

This has been the responsibility of the Ministry of Education and the Directorate

of Primary Education to achieve universalization of primary education towards the end

of this century. Accordingly these institutions have formulated the following strategic

framework which has to be followed in order to attain the goal towards the end of this

century.

81

4.4 Expenditure on Primary Education

During the past three decades the population has doubled. The number of primary

schools, over the same period, have

increased by 62 percent. Given the fact that the primary schools did not ever enroll all

the children of the relevant age group, one can see that in the most simple terms the

provision of primary education has fallen far short of the needs.

Too often primary education is viewed only as a preparation for the higher stage

above secondary, college and finally university. This is true for all those who do go on

to higher studies, and remains untrue for the millions who do not complete even five

years schooling. The fractions of any education system are simple. It has to transmit the

society's historical, cultural and ethical values. For primary education it has to impart

basic educational skills - the three R's, i.e. reading, writing and arithmetic.

Till 1980s Bangladesh has maintained its inherited educational system in which

a very few are highly educated with the vast majority outside the system locked into the

closed world of the illiterate. Differences in expenditures between educational levels show

distortion between them and the real commitment of the government to the people.

Throughout Pakistan primary education was receiving the least share of money and the

colleges and universities have been taking the major share.13 This continued throughout

Bangladesh during the First Five Year Plan period (1973-78) and the two year plan period

(1978-80).

13 Ibid, p.25.

82

Table No.6

Governaent Revenue Expenditure on Education by Major Sectors in Bangladesh 1989-90 to 1991-92 (in aillion 'rk.)

---------------------------------------------------------------------------------Major Sector 1989-90

Total (%) 1990-91 (RE) Total (t.)

1991-92 (BE) Total (%)

1. Primary Education 4897.45 45.30 5385.00 45.56 5875.52 46.80

2. Secondary and Higher 4331.80 40.07 4699.20 39.76 4879.26 38.86 Education

3. Technical Education 250.70 2.32 285.69 2.42 304.36 2.42

4. University Education 904.15 8.36 1030.05 8.71 1058.75 8.43

5. Other Subsidiary 58.56 0.54 64.11 0.54 95.26 0.76 Services

6. Grants and Donation 94.90 0.88 42.70 0.36 32.50 0.26 .. 7. Block Provision for 184.06 1. 70 192.50 1.63 200.00 1.59

Maintenance and Operation

8. Cadet Colleges 90.00 0.83 120.90 1.02 110.00 0.88

Total 10811.62 100.00 11820.15 100.00 12555.65 100.00

Note:Primary education includes Govt. PrLffiary Schools, PTI, Mass education, NAPE (National Academy for Primary Education, Upazila £ducation Offices).

Secondary and Higher Education includes Teachers• Training Colleges, Govt. and Non-government schools, colleges and madrasas and govt. commercial institutes.

83

Table No.7

Public Current Expenditure on Priaary Education by Sub-Sectors in Bangladesh 1989-90 to 1991-92 (in aillion Tk.)

Sub Sectors 1989-90 1990-91(RE) Total (\)

1991-92(BE) Total (\) Total (\)

1. Director and 36.43 0.74 39.12 0.73 40.67 0.69 Inspection

2. Government Primary 4658.01 95.11 5052.65 .93. 83 5445.97 92.69 Schools

3. Primary Training 55.04 1.13 56.56 1.05 61.55 1.05 Institute

4. National Academy for 5.32 0.11 5.83 0.11 5.98 0.10 Primary Education

s. Upaziia Education 142.65 2.91 145.22 2.69 152.39 2.59 Office

6. Compulsory Non-govt. Nil 85.63 1.59 168.97 2.88 Primary Education Cell

--------------------------------------------------------------------------------Total 4897.45 100.00 5385.01 100.00 5875.53 100.00

--------------------------------------------------------------------------------Source: Bangladesh Bureau of Educational Information and Statistics, Dhaka, 1992,

84

During the First Five Year Plan the allocation towards the primary level was 17.91

percent of the total plan allocation for education.14 Even though the scheme was to

cover the majority of the illiterate population, the financial allotment was so low that it

could not bring any significant changes. However, after 1980, with the declaration of

universalization of primary education, the financial allotment has improved a lot i.e. 41

percent in. 1980-85.

From the table 6 showing government revenue expenditure on education, during

the period 1989-90, the share of primary education was 45.30 percent and in 1990-91 it

was 45.56 percent and in 1991-92 it was 46.50 percent. Even this much of allocation wa5

not sufficient to reach the target as it was fixed by the government. The programme of

universalization covers the majority of the population and it is a very labour-intensive

approach which needs a lot of financial assistance. So if the objective is to universalize

primary education towards the end of the century, the government must take care to spend

accordingly, otherwise it will remain a far fetched target.

The direction of expenditure in different heads, as shown in the table 7, gives the

signal that a large portion of the allotted fund is spent on government primary schools,

i.e. payment of salaries and building of schools. Besides functioning of schooling, the

second rung in the expenditure is the Upazila Education Office which deals with the

administration. Since 1990-91 there has been a great improvement in the attitude of the

administration to spend money of compulsory non-government primary education cell

14 See, First Five Year Plan, Bangladesh, (Dhaka, 1974).

85

after realizing the complementary role of the non-governmental organizations in fulfilling

the objective of universalization of primary education.

4.5 Primary School Enrolment in Bangladesh

Even though the strategy was built around school construction, decentralisation of

administration, improved teacher training and supervision, increased supply of textbooks

and provision of uniforms for girls, however, it failed to bring all the non-going children

of the relevant age group under its purview. Therefore, there should be more allocation

and mobilization of funds to bring all the non-school going children to the school and in

this respect the initiative has to be taken by the government by showing the political will

to do so.

This indicates that about 29 percent of the current total enrolment is in non­

governmental institutions. The religious stream takes care of 58.6 percent of the total

private sector enrolment. The religious stream serves the comparatively poorer section of

the population. With more efforts it will be able to retain the enrolled group and attract

the out of school children.15

From the distribution of the enrolled school children, it is clear that the

government has failed to provide educational facilities to all the children. The second

important role is played by the religious stream which generally gives religious teaching

and can be of great help if the government plans to use the existing infrastructural

15 Education for All: Social Mobilization, (UNICEF, Dhaka, 1992), p.66.

86

Table No.8

Priaary School EDrolllellt b7 Grade and Sex (1980-90) in B&Dgladaab

-------------------------------------------------------------------------------I II III IV v Total

·--------------------------- ---------------------------------------------.980 Boys 215993 959161 748234 573254 481759 .a922391

Girls 1615493 626415 461569 362661 230784 3296922 Total 3775485 1585566 1209806 935915 712543 8219313

1981 Boys 2166878 984058 750194 578711 472784 4952626 Girls 1636472 634591 467571 367377 233785 3339795 Total 3803350 1618649 121:'265 946088 706569 8292421

1982 Boys 2145872 981266 771245 599258 485359 4983000 Girls 1674330 649230 478380 375870 239190 3417000 Total 3820202 1630496 1249625 975128 724549 8400000

1983 Boys 2164013 993270 775837 602013 487367 5012500 Girls 1684375 635125 481250 387125 240625 3437500 Total 3848388 1646395 1257087 981058 727992 8450000

1984 Boys 2\84399 1012996 782127 619475 489342 5088349 Girls 1708866 662616 488244 383620 244122 3487458 Total 3893265 1675612 1270371 1003095 733464 8575807

1985 Boys 2245754 1106117 838508 677943 483858 5352180 Girls 1748377 677941 499535 392392 249767 3586112 Total 3993131 1874058 1338043 1070435 733625 8920292

1986 Boys 2326054 1117015 855277 694563 484413 5477322 Girls 1767901 711343 509454 396316 253218 3638232 Total 4093955 1828358 1364731 1090879 737631 9115554

1987 Boys 2199077 1424513 1104771 cS027S 667121 6245757 Girls 1689713 1113964 856432 662696 506909 4829714 Total 3888790 2538477 1961203 1512971 1174030 11075471

19B8 Boys 1903392 1447636 1241037 973430 776829 6342326 Girls 1476501 1145184 976147 757953 587334 4843119 Total 3379893 2592822 2217184 1731383 1354163 11285445

1989 Boy a 1920508 1452936 1253171 995037 803106 6424758 Girls 1546086 1146857 1018239 733825 631565 5136572 Total 3466594 2599793 2271410 1788862 1434671 11561330

1990 Boy a 1954424 1472811 1287433 1024566 835399 6574633 Girls 1587607 1203760 1053474 838627 675848 5365316 Total 3542031 2682571 2340907 1863199 1511247 11939949

----------------------------------------------------------------------------------Source: Bangladesh Bureau of Educational Information and Statistics 1986 and 1992.

87

facilities of these religious schools and persuade them to give formal educational teaching

so that there can be horizontal link up between the two prominent systems of education

for primary education in Bangladesh. Besides, there is a great scope for these non-

governmental organizations to expand their activities in the field of primary education.

Prior to 1952, primary stage of education comprised a 4-year course (class I-IV).

In 1952 the duration was extended by one year more (class 1-V) and the same duration

is retained till today. Primary education begins at the age of 6. Generally children

between 6-10 years are enrolled in primary education.

However, over the period 1980-90, the enrolment of children in the age group of

6-10 years have increased from 8.21 million to 11.9 million showing an increase of 45 . percent over the decade. In the year 1980, out of the total enrolled children, 60 percent

constituted boys and 40 percent were girls, but in the year 1990, the percentage of girls

increased to 45 percent showing a positive trend.

Table 8 shows the absolute figures of the enrolment during the period 1980-90.

While calculating the simple growth rate, the growth rate is normal for boys, girls and

total, till the year 1983. However, in the year 1984, the growth rate in all these categories

have been around 1.5 percent. In the year 1985, the growth rate for boys is around 5.18

and for the girls it is 2.82 percent. However, in the year 1986-87, the growth rate has

been maximum and very significant by showing 14.02, 32.74 and 21.5 percent for boys,

girls and total figures, respectively. This massive growth rate has been mainly due to the

initiatives taken by the non-governmental organizations in Bangladesh during the period

88

1986-87, which will be discussed in the following chapter.

The diagram no.6 shows the graphical presentation of the enrolment figures for

the period 1980-90. From the diagram the period 1986-87 shows a steep rise in the graph

for boys, girls and total enrolment figures.

Now calculating the exponential growth rate for the period by the simple

regression analysis

P, = p 0 (1+r)D

=> LnP, = Ln[Po(1 +r)"]

The exponential growth rate for boys, girls and total figures:

Boys = 3.38

Girls = 5.38

Total = 4.25

The compound growth rate for the boys, girls and total figures are 2.66, 4.52 and 3.4

respectively. However, the rate of development realized during 1980-1990 and the rate

neglected to meet the summit goals need careful review to determine achieveable targets

by the year 2000. The yearly growth rate during the last decade for gross enrolment,

completion and adult literacy were 3.4, 5.7 and 4.9 percent respectively. If the summit

goals are to be achieved, the yearly growth rate required during 1992-2000 would be 5.6,

8.6 and 10.7 percent r~ctively}6

16 Ibid, p.S.

89

DIAGRAM NO. 6

Graph indicating the Growth of Enrolment in Bangladesh 80-90

Enrolment

::~------------------------------.~

10

8 0

6

4

2

o~~--~--~~--~--~--~~--~~

1980 1981 1982 1983 1984 1985 1986 1987 1988 1989 1990

Years

-- For Boys -+- For Girls ----*"- Total

90

Table 9

Gross Primary School Enrolment Ratio in Bangladesh

(in percentage)

Year Male Female Total

1980 72 43 58

1985 76 52 64

1987 76 52 64

1988 83 67 75

1989 83 67 75

1990 83 71 77

Source: Statistical Yearbook of Education 1994, UNESCO, Paris, 1994.

The table No.9 shows the percentage of the enrolled students from that particular sex.

Figure for Male column shows tha tover the period 1980-90, 72 percent of the male

children were enrolled in 1980 which went upto 83 percent in 1990. The figures for the

girl child has been increased from 43 percent to 71 percent during 1980-90 and the total

gross enrolment has increased from 58 to 77 percent. This is shown in the bar diagram

no.6. However, the enrolment figures for the girls have improved a lot in Bangladesh

during the last decade.

This .can be depicted in another form by analysing the sexwise distribution of the

enrolled students.

91

DIAGRAM NO. 7

GROSS PRIMARY ENROLMENT RATIO OF BANGLADESH

100

80

60

40

20

0

Percentage

1980 1985 1987 1988 1989 1990

Years

.. Total - Male D Female

Table 10

Sexwise Distribution of Enrolled Students

(in percentage)

Year Male Female

1971 68 32

1975 66 34

1980 59.9 40.1

1985 59.97 40.03

1987 56.72 43.28

1990 55.21 44.79 0

Source: SAARC Solidarity Journal, Third Issue, (New Delhi, 1995), p.3

From the table no.10, distribution of the enrolled students in 1971 shows a great bias for

the male child which was around 68 percent of the total enrolled children. The percentage

of the female children of the total enrolled students was around 32 percent in 1971 and

increased to 44.79 percent in 1990. This is shown in the bar diagram No.8. From this

diagram it is easy to see the growing number of female children in the total enrolled

students.

In Bangladesh we have total45,930 schools out of which 37,655 that is 82 percent

are government schools providing primary education all over the country. These schools

provide education to around 10.12 million children, i.e. 84.8 percent of the total enrolled

93

80

70

60

50

40

30

20

10

0

DIAGRAM NO.8

Sexwise Distribution of Enrolled Students

1971 1975 1980 1985 1987 1990

- Male - Female

children. The size of the non-government schools in Bangladesh is around 18 percent of

the total number of schools providing education to 16 percent of the total enrolled

children.

However, the number of teachers in Bangladesh comes to 1.89 lakhs out of which

37,000 are only female teachers. This shows that only 19.4 percent of the total teachers

engaged in primary schools are femal~. This poor presentation of female teachers is

considered to be one of the reasons for such a low female participation in the education

system yielding low female literacy rate.

In order to have a clear picture of the present status of primary education m

Bangladesh, it is divided into four divisions, namely Dhaka, Rajshahi, Khulna and •

Chittagong. The following tables will be depicting the status of primary education in each

of these divisions showing the enrolment rate of students, both for boys and girls, number

of government and non-government primary schools, the number of teachers. These

divisions are made in order to have effective administration of providing educational

facilities equally all over the country. This will definitely help us in pursuing the research

further by which we will be able to raise the issues of the regulated areas for which

effective planning can be done accordingly.

The governrnent of Bangladesh has to take effective measures by which it becomes

able in providing educational facilities to all the children at a walking distance. Mere

provision of schooling facilities will not definitely bring universalization of primary

education, but is a necessary condition to reach the goal.

95

4.6.1 Promotion Rates In Percentages

Now analysing the promotion rates at primary level by grade and sex, we will be

able to know the rates of success in giving education at this level. The Bangladesh

average is 75.3 percent from grade I to grade II, whereas it is little higher in grade II to

Ill. In these two grades, i.e. grade I and II, the promotion rates for boys is higher than

that of girls, but in grade III and IV, the promotion rates of girls are higher than that of

boys. Once agai·n the grade V, the promotion rate of girls lags behind that of boys.

This is primarily due to the reason that during the initial stages, i.e. grade I and

II, the girls are not given proper care and the parents send their girl children reluctantly

for which they fail to show good result. However, once they are used to the new •

environment they start showing good result. Once again after reaching grade IV, the

parents feel that their daughters are educated enough to leave the school and they should

participate in household work, for which they are disturbed in continuing the education.

However, the regional variations show a positive and higher promotion rates in

Khulna and Rajshahi division. For both the boys and girls in about all the grades, these

two divisions show hig~er promotion rates than that of Chittagong and Dhaka divisions.

This can be attributed to the higher rate of literacy and enrolment ratio in these regions.

The lower rate of promotion in Chittagong may be due to the hilly regions and

absenteeism of the teachers as well as students for which the performance of both may

not be quite satisfactory. But the low performance in the Dhaka region for both the sexes

may be attributed to the socio-economic conditions of the parents.

96

Table No.11

Promotion Rates (%) at Primary Level by Grade, Sex and Division, 1990

Division

Chittagong

Dhaka

Khulna

Rajshahi

Bangladesh

Sex

Boys Girls Total

Boys. Girls Total

Boys Girls Total

Boys Girls Total

Boys Girls Total

Note: Data Source:

Data Process:

I

77.9 72.9 75.6

73.1 68.3 71.0

75.4 78.3 76.7

75.6 75.9 75.8

76.2 74.2 75.3

GRADES II III IV

84.1 83.8 83.9

83.1 80.6 82.0

85.2 80.3 82.8

80.6 80.6 80.6

83.4 82.0 82.7

78.4 79.2 78.8

81.3 78.3 79.9

75.9 77.3 76.6

72.1 72.8 72.4

76.8 77.4 77.1

73.6 80.5 73.5

80.7 77.6 79.4

71.2 78.6 74.5

78.5 78.4 • 78.4

74.8 83.8 78.8

v

79.2 78.3 78.8

76.3 82.0 78.8

86.5 83.5 85.1

88.3 88.2 88.3

82.4 81.7 82.1

Data on Repeaters supplied by the District Primary Education Office (DPEO) for selected sample upazilas.

BANBEIS, Computer Unit.(Following Cohort Flow Method)

Source: (BANBEIS, 1992, p.8).

97

4.6.2 Drop Out and Repetition Rates

From the table 12, it is clear that the drop out rate is very high in the grade I and

it is higher for the girls in grade I. This is primarily due to the socio-economic-politico­

religious reasons for which the parents do not wait to continue their children particularly

girls going to school. In the Chittagong and Dhaka division, the rate of drop outs in the

grade I is highe~ for girls in comparison to Khulna and Rajshahi divisions. This gives the

indication that literacy breeds literacy and there exists greater participation in these two

divisions in bringing universalization of education.

The Bangladesh average shows a higher drop out rates in the earlier stage i.e.

grade I in comparison to grade II. This gives the hint that the parents are willing to send

their children to schools, but they are compelled to make them join or participate in the

labour force at a very tender age due to poverty.

However, analysing table 13 showing the repetition rates, the repetition rate is

higher for boys in grade I than that of girls in all the four divisions. This shows the

interest of the parents to continue their male children participating in the educational

process despite their poor performance. The higher rate of repetition in higher grades may

be attributed to the poor performanCe of both the sexes in participating regularly in the

education system. The repetition rate is higher for Chittagong and Dhaka region than that

of Khulna and Rajshahi divisions in grade I. However,. the repetition rate is highest in the

Rajshahi division in grade V. The drop out and repetition rates are so erratic that it is

very difficult to generalize. But however, the drop out rate is higher in grade I which has

'98

Table No.12

Drop-out Rates (%) at Primary Level by Grade, sex and Division, 1990

Division

Chittagong

Dhaka

Khulna

Rajshahi

Bangladesh

Sex

Boys Girls Total

Boys Girls Total

Boys Girls Total

Boy~ Girls Total

Boys . Girls Total

I

16.3 22.2 19.1

19.6 24.4 21.7

19.9 17.3 18.7

19.1 18.9 19.0

18.1 20.7 19.3

GRADES II III IV

10.7 10.9 10.8

9.9 11.3 10.5

10.2 15.5 12.8

14.9 14.5 14.7

11.4 12.7 12.0

14.8 14.1 14.5

10.4 12.3 11.2

16.6 15.3 16.0

20.3 19.1 19.8

15.9 15.2 15.6

20.6 12.5 13.2

9.9 12.8 11.2

21.9 13.9 18.3

13.3 12.8 13.1

18.4 8.4

14.1

v

14.2 15.4 14.7

15.8 9.4

13.1

8.0 10.7 9.3

3.5 2.6 3.1

10.8 11.3 11.0

----------------------------------------------------------------Source: BANBEIS, p.9.

99

Table No.13

Repetition Rates (%) at Primary Level by Grade, Sex and Division 1990

Division

Chittagong

Dhaka

Khulna

Rajshahi

Bangladesh

Sex

Boys Girls Total

Boys Girls Total

Boys Girls Total

Boys Girls Total

Boys Girls Total

Source: BANBEIS, p.10.

I

5.8 4.8 5.4

1.3 7.3 7.3

4.8 4.3 4.6

5.3 5.1 5.2

5.7 5.4 5.4

100

G R A D E S II III· IV

5.3 5.4 5.3

7.0 6.1 7.5

4.6 4.2 4.4

4.6 4.9 4.7

5.2 5.3 5.2

6.7 6.7 6.7

8.3 9.4 8.8

7.5 7.4 7.5

7.6 8.1 7.8

7.3 7.4 7.3

5.7 7.0 6.3

9.4 9.5 9.4

6.9 7.5 7.2

8.2 8.8 8.4

6.8 7.8 7.2

v

6.6 6.4 6.5

7.9 8.5 8.2

5.5 5.8 5.6

8.2 9.1 8.6

6.8 6.9 6.8

Table No.14

Averaqe Number of PUpil-Years Required per Primary School Graduate by Sex and Location, 1990

Division Average number of pupil-year Boys Girls Total

Chittagong 5.3 5.3 5.3

Dhaka 5.4 5.5 5.4

Khulna 5.3 5.3 5.3

Rajshahi 5.4 5.4 5.4

Bangladesh 5.3 5.3 5.3

Source: BANBEIS, p.lO.

101

to be checked so that we will be able to give chance to all these people to participate in

the education system so as to bring universalization of primary education. Promotion rate

shows the efficiency of the existing primary schooling system, whereas the drop out and

repetitipn rates show the wastages in primary education. All these taken together

constitute hundred percent.

From table 14 relating to the number of pupil year required to complete the

primary degree, the Bangladesh average comes to 5.3 years both for boys and girls.

However, for boys in Dhaka and Rajshahi divisions it comes to around 5.4 years and for

girls it is 5.5 and 5.4 years respectively. This shows that th~ girls take more time to

complete the primary course. This happens mainly due to their involvement in the

household work at a very tender age for which they do not find time to complete the

course in the right time. However, for the divisions of Dhaka and Rajshahi, the total

average number of pupil-years required for primary graduate is 5.4 years which is higher

than that of national average. The national average of 5.3 years shows that on an average,

even though the course requires 5 years of schooling, it takes more than 5 years to make

one person literate till primary level. This is a huge wastage, which must be checked by

making both the students and teachers regular in participating the process.

4.7 The Completion Rate

Completion rate is defined on the percentage of children completing the primary

education cycle. The available figure gives the picture of the changes during the last

decade.

102

Year

1980

1985

1990

1995

2000

Table 15

Completion rates in percentage

Completion rates

21

35

35

45 (Bangladesh Target), 60 {Summit target)

70 (Bangladesh Target), 80 {Summit target)

Source: Social Mobilization, Educationfor All, UNICEF, Dhaka, 1992, p.7.

During the period 1980-90, the completion rate has improved a lot from 21 percent

to 35 percent. However, the target kept by Government of Bangladesh is a very realistic

one and has been kept to achieve 45 percent by 1995 and 70 percent by 2000. The targets

set by the Summit are highly optimistic to achieve within a short period. This is shown

in the diagram No.9. The graphical presentation shows a steep rise for the period 1985-90

in comparison to 1980-85. This growth rate can be attributed to the success of NGOs and

voluntary organization for their flexible approach in motivating people to participate in

UPE.

The education system in Bangladesh is presently quite wasteful-and unproductive.

At the primary level a little more than 77 percent (1990) of children enrol, only about 50-

60 _percent attend regularly and about 65 percent (1990) drop out during the five year

103

DIAGRAM NO. 9

Percentage of Student Completing Primary Education

Percentage 100~----------------------------~

80

60 •

40

20

o~----~------~------~------~ 1980 1985 1990

Years

1995

--- Bangladesh Target -+-Summit Target

2000

cycle. There are striking regional and rural-urban disparities. The low level of research

and statistics do not give any figures for this location specific enrolment or completion

rates. The only thing that is available on this issue is the UNICEF study of Multiple

Indicative Survey- 1995, showing the map for 6-10 years boys and girls enrolled in rural

areas in the year 1994. Non-availability of data curtails of the scope of further analysing

the figures. The diagram no.10 and 11 depict the status of enrolment in the rural areas.

4.8.1 Compulsory Primary Education (CPE)

Bangladesh promulgated a CPE Act in 1990. In January 1992, the government

initiated a programme to implement the Act in 68 thanas of the total 64 districts. The Act

is designed to enrol all six and seven year old children in 1992 and to keep as many as

possible in school until the end of five year cycle. Successive cohorts of six and seven

year old children also will be enrolled. The legislation also calls for parent and

community involvement to ensure that all children attend school and includes penalties

for parents who fail to enrol their children in school, although no instance of imposing

a penalty has been reported. The program which began initially in the thanas where

district towns are located is expected to be expanded to other thanas, but a specific plan

of expansion has not been announced. However, the step-by-step implementation of the

programme relates to overall national targets for enrolment and retention in the existing

educatiDnal set up.

105

DIAGRAM NO. 10

IN )lA

INDIA

BAY OF BENGAl

Source : BBS - UNICEF Multiple Indicato r SuNey. 1994

106

upto 70.0%

70.1. 80.0%

80.1-85.0%

85.1%-and above

INDIA

DIAGRAM N0.11

6~ lQ YEARS GIRLS E:NRQu.ED IN SCHOOL,, 1994 (RURAL)

SAY OF BENGA

Source : BBS - UNICEF Multiple Indicator Survey. 1994

upto 70.0%

70.1-80.0%

80.1- 85.0",{,

85.1% and above

t D A

Programme implementation in the first 68 thanas included several steps:

i) Conducting a census of six and seven year old children who should be enrolled

in school,

ii) organising compulsory primary education committees at the most grassroots level,

i.e. in each ward of Union councils in rural areas and urban wards in

municipalities,

iii) establishing compulsory primary education implementation and coordination

committees in each of the thanas,

iv) establishing a Directorate General to monitor and implement the CPE programme

in the Ministry of Education and supplementing the salaries of non-governmental •

primary school teachers (at the rate of Taka 500 per month) in the compulsory

primary education areas.17

Potentially the compulsory primary education programme provides a framework

for mobilizing public support, energizing the education establishment, helping make

compulsory primary education a government-wide priority, encouraging the civil

administration to be more active at all levels in promoting compulsory primary education

and encouraging all others, locally and nationally, who can contribute, including NGOs,

to become involved in the efforts.

17 Primary Education for All: Learning from the BRAC Experience, Advancing Basic Education and Literacy, (New York, 1993), p.24.

108

4.8.2 Food for Education Programme

The innovative Food for Education programme was introduced by Prime Minister

Khaleda Zia to bring some changes in the existing low level of participation rates in

primary education. The objective of the programme is to distribute 15 kg of wheat free

to the family of the student who attends more than 85 percent days in a month. Here the

poor family means destitude widow, day labourers, low income occupant (pottery,

fisherman and blacksmith) and landless. The objective of the programme is to

i) increase enrolment in primary schools

ii) increase attendance of the enrolled students

iii) decrease drop-out rate of registered students. 18

Under this plan, one union from each of the 460 thanas outside the municipal

areas of Bangladesh was selected for the Food for Education programme. All the

government and non-government registered primary schools of the selected unions have

been brought under its purview. The number of primary schools included in the massive

programme at present is 4787. One hundred and twenty-seven Madrashas were also

included in this programme in April 1995. According to the survey 47 percent of 1.48

million students studying in these schools and madrasahas are getting food for support for

pursuing primary education.19

18

19

Bangladesh Quarterly, (Dhaka, Sept.1995), p.5.

Ibid, p.S.

109

4.8.3 Other National Efforts

In response to the initiative arising from the World Conference on Education for

All and the advocacy efforts in the wake of the World Summit for Children, the

Bangladesh government established a National Committee on Basic Education for All,

which is headed by the Minister of Education and consists of representatives of

go:ernment ministries and NGOs. The Committee's task is to help identify national policy

and strategic options, promote coordination and review progress. A Steering committee

headed by the Secretary of Education also has been set up at the working level to support

the work of the National Committee.

In addition with the participation of the Prime Minister and the Executive Director

of UNICEF, the government initiated a social mobilization programme in 1992. The

objectives of this initiative are to generate and sustain national awareness and of

commitment to education for all at all levels. The programme is expected to implement

several strategies: develop a consensus among politicians, planners and administrators,

activate community bodies such as school managing committees and parent-teacher

groups, remove gender bias in all education materials, and promote coordinated

involvement of the government, NGOs and other allies.

Bangladesh is fortunate in having a fairly widespread network of institutions for

education. Basic education facilities fall into two broad categories:

i) Government financed and controlled primary schools (approximately 38,000

directly managed by the government and 8,000 government recognised but

110

privately managed). These schools follow a standard curriculum and have boys

and girls in the proportion of roughly 60 to 40 percent.

ii) Community supported religious educational institutions:

a) about 60,000 (make~ toles, vihars) for religious education of young

boys and girls in about equal proportion,

b) about 20,000 primary level lbtedayee Madrassas (IM) with about 63,000

teachers and 1. 7 million students:

Bangladesh is one of the poorest countries of the world, which has failed to

provide educational facilities to all the children belonging to the relevant age-group. In

this context, the role of the non-governmental and voluntary organizations can be of great

help, particularly in the field of primary education, where the government has failed to

do so.

111