The primary education dilemma

No one concerned about education will disagree with the teachers' claim to better remuneration. The protesting teachers have made the point that the salary of a government primary school teacher is less than the salary of the driver of a government vehicle. The teachers of the registered non-government schools, whose salaries are also paid by the government, receive almost 50 percent less. The teachers of a category of schools, called the community schools, which enroll over 400,000 students, are paid only an "allowance" of Tk 750 a month. The position of teachers of the ibtidayee madrasa, which have over 28,000 teachers and serve 5 percent of the primary school children, is similar to that of the registered non-government school. It is evident that, as a society, we have failed to take care of the people in whose hands are reposed the future of our children.

It is no news that our primary education is plagued by serious problems. Even official statistics indicate that at least 10 percent of the primary school age children did not enroll in any school in 2004 and 48 percent of the students dropped out before completing five years of primary education.

There is no system at present of public examination at the end of the primary stage to assess what children learn. Independent studies by Education Watch and others show a deplorable picture. A 2002 Education Watch nationwide sample survey showed that one-third of the children in grade five were functionally illiterate. It is a matter of pride that boys and girls are enrolled equally in primary and secondary education. But this achievement is undermined by the fact that almost half of the students, both boys and girls, drop out and a large proportion of those who stay on do not learn much.

Will the deplorable situation in quality, and lingering problems in access, in primary education change in a major way, if the salary of teachers is increased by 20, 30 or even 50 percent? It is doubtful that this will be the case. Various studies including the annual reports of Education Watch have pointed out many causes of the poor quality of primary education. Very short teaching time in two-shift schools, large class sizes that do not even allow elbow room to students, lack of teaching aids and supplementary reading, and poor physical environment are the norms rather than the exception.

Teachers themselves are a part of the problem. Although the majority of teachers in government schools have Bachelors and Masters degrees and have received teacher training, Education Watch as well as other studies show that teachers' training and formal degrees did not make any difference in student's level of achievement in our schools. One reason for this is no doubt the absence of appropriate conditions, described above, that did not permit teachers to do his or her job properly. The quality and content of teacher training and poor academic supervision of teachers are also responsible.

In the case of non-government schools, madrasas and community schools which cater to about one-third of the primary level students, teachers do not, on an average, have the same level of formal educational qualifications as that of government schools and the large majority have not had pedagogic training. Appointments to teaching positions in these institutions have been very often through kinship and personal relationships, rather than by adherence to recruitment criteria and due process. Many of these people may lack the basic capabilities to become effective teachers.

Improvement in primary education and doing educational justice to our children require substantially larger investments on teachers' remuneration and incentives as well as on creating in schools and classroom the necessary condition for effective teaching and learning. There have to be more resources and proper use of these resources for essential quality inputs in classrooms, and better preparation and training of teachers and supervision and support for teachers, once they are sent to classrooms. The head teachers should be well qualified by education and training, capable of being a true leader in the school and the community, and recognised as such by official status and remuneration for them.

The extra investment and costs in school facilities, learning materials, and better training and supervision of teachers, on the one hand, and in teachers' remuneration, on the other, cannot be justified if commensurate improvement in quality of education cannot be ensured. There has to be, therefore, agreed performance criteria and accountability regarding outcomes and results reflected in students' achievement. The resources have to be managed effectively to produce the learning outcomes. There has to be a tri-partite compact between teachers, school managing committees and the government to guarantee better management of resources, better performance by teachers and students and increased resources both for teacher's salaries and essential learning provisions in schools.

Agreeing on performance standards and assessing performance of teachers, students and schools fairly, transparently and objectively have to be a part of the deal for a respectable remuneration package for teachers. Parents and school managing committees in each school have to be a part of the process as key stakeholders. The Second Primary Education Development Programme ( PEDP2) of the government must find a way to address these vital issues creatively and with imagination.

There has to be a delicate dialogue about how the tri-partite compact can be brought about. The interest of the children and serving their educational needs must be the paramount concern. There is a need for trial and experimentation of the model before it is widely applied--which can be undertaken in several districts in each division--involving research centres and NGOs with strong experience in education. Politicians on both sides of the isle have found it expedient to make liberal promises which served partisan interests. They must promote and support this delicate dialogue in the interest of education and children.

Education reform and change cannot succeed with teachers as the discontented adversary. Both teachers and the government have to find an approach to make reform and change a common cause in the interest of children, while also serving the legitimate interests of teachers.

Dr. Ahmed is Director of BRAC University Institute of Educational Development ( BU-IED)