CURRICULUM AND TEXTBOOKS

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E ducation M o n ito r
INTRODUCTION
A cu rriculum is a plan fo r action o r a w ritte n d o c u ­
m en t th a t includes strategies fo r achieving desired
learning goals o r ends. It d ete rm ine s th e goals o f
edu catio n, th e co n te n t and its organization, p ro ­
cesses o f teaching and learning, th e activities and
experiences th a t need to be stressed, te xtb o o k s and
evaluation procedures.1 A curriculum should have
substantial in p u t fro m those entrusted w ith d eliver­
ing it b u t te x tb o o k d e ve lo p m e n t appears to be the
o nly process focused upon in Pakistan.2 The m ajority
o f teachers use te xtb o o k s as th e principal source o f
material fo r th e ir lessons.3 A lth o u g h publishers and
te x tb o o k boards have been e n co urag ed to reco m ­
m end learning m aterials o th e r than th e te x tb o o k , the
practice has seldom gaine d pro m in en ce at any level
o f teaching and learning. The te x tb o o k has always re­
m ained th e sole source o f kn o w le d g e dissem ination
in th e classroom and th e only means th ro u g h which
th e curriculum is actualized.
T hat having been said, m ost te x tb o o k s su ffe r from
p o o r quality. W hile curriculum in Pakistan has un­
d e rg o n e several m od ifica tio ns o ver th e years- m ost
nota bly in 2006 - 2007 it was revised to make it m ore
objectives-based, o u tco m e driven and responsive to
cu rre n t needs- te x tb o o k d e ve lo p m e n t has n ot kept
pace. Im provem ents in te x tb o o k d e ve lo p m e n t can
play a critical role in im p ro vin g th e q u a lity e d u ca ­
tio n in Pakistan. Pakistan is c o m m itte d to im proving
th e q u a lity o f e du catio n th ro u g h its co m m itm e n t to
Education fo r A ll (EFA) and A rtic le 2 5-A w hich lists
ensuring g o o d q u a lity edu catio n co n fo rm in g to p re ­
scribed norm s and standards as th e g overnm ent's
co nstitu tion a l responsibility.
O V E R V IE W O F CHAPTER
This ch ap ter explores cu rriculum and te x tb o o k d e ­
v e lo p m e n t in Pakistan. It traces th e history o f cu rric­
ulum and te x tb o o k d e ve lo p m e n t w ith respect to the
pre- and p ost-d e vo lu tio n scenario. Then it describes
th e cu rre n t situation in th e provinces w ith regards to
organizations involved in te x tb o o k d e ve lo p m e n t and
th e ir roles, staffing and professional d e ve lo p m e n t
as well as th e te x tb o o k d e ve lo p m e n t process. It ex­
plores th e e m e rg in g challenges th a t th e provinces
enco u n te r as th e y settle into th e ir new roles a fte r the
18th A m e n d m e n t. The ch ap ter also reflects on the
challenges faced by th e institutio ns responsible fo r
curriculum and te x tb o o k d e v e lo p m e n t and probes
th e possible causes th a t may im p e d e th e sm ooth
fu n c tio n in g o f these institutions.
The data p ro vid e d in th e ch ap ter draws from
sem i-structured interview s o f various representa­
tives o f cu rriculum and te x tb o o k institutions in the
fo u r provinces and th e literature and m edia rep orts
available on th e said topics. The ch ap ter draw s co n ­
clusions from th e available data and offe rs som e rec­
o m m en da tion s as a w ay to c o m b a t th e a dm inistrative
snags and professional d ilem m as th a t th e institutions
face at present.
H ISTO RICAL PERSPECTIVE O N
CURRICULUM A N D T E X T B O O K
D E V E LO P M E N T
Curriculum developm ent
In Pakistan, th e curriculum has u nd e rg o n e several re­
visions. The first national cu rriculum in Pakistan was
d e v e lo p e d in 1975 - 1976. It was th en revised in 1984
- 1985 and then again in 1994 - 1995. The next review
to o k place d u rin g 200 0 - 2002. In 2005, a c o m p re ­
hensive review o f school curricula was undertaken.
The curriculum was review ed to make it m ore objec-
tives-based and o u tc o m e driven as well as respon­
sive to th e m odern, so cioeconom ic, technical, p ro ­
fessional and lab or m arket needs o f th e country. As
a result o f this process, a revised curricula fo r 25 core
subjects (grades 1 - 12), know n as th e N ational C ur­
riculum 2006, e m e rg e d .4 O n e o f th e hallmarks o f the
new curricula was th e inclusion o f S tudent Learning
O u tco m e s (SLOs) fo r each su bject and g ra d e level. It
was on th e basis o f these SLOs th a t assessments and
te x tb o o k s w ere to be deve lo pe d .
In Pakistan, th e process o f cu rriculum d eve lo pm e nt,
pre- and p o st-de vo lu tion , has been kept away from
th e key players in th e fie ld . The m ajor stakeholders
in edu catio n inclu ding teachers, te x tb o o k w riters and
parents have no influence on curriculum planning
and d eve lo p m e n t. The curriculum is sim ply handed
over to teachers w ith o u t any regard to th e fa ct th a t
th e y can be th e best source to e nligh ten upon th e d e ­
ve lo p m e n t needs and interests o f students.
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C u rricu lu m and Textbooks
Roles pre-devolution and post-devolution
Taken in historical perspe ctive th e process o f cu rricu ­
lum and te x tb o o k d e ve lo p m e n t in Pakistan presents
a p a rtitio n e d view.
Pre-devolution context
Before d evo lu tion , th e Federal M inistry o f Educa­
tio n (MOE) was responsible fo r th e d e ve lo p m e n t o f
curriculum and te xtb o o ks. The N ational Bureau o f
C urricu lum and Textbooks, also know n as th e C urric­
ulum W ing, fo u n d e d in 1976, b ore th e responsibility
o f supervising th e curriculum and te xtb o o ks. Each
province had a provincial curriculum ce nte r to e n ­
sure provincial co lla bo ra tion and provincial te x tb o o k
boards to facilitate p ub lica tion and d istrib u tio n o f
te x tb o o k s th ro u g h o u t th e provinces. The te x tb o o k
boards w o u ld invite w rite rs to d e ve lo p d ra fts a ccord ­
ing to th e cu rricular param eters and d e ve lo p te x t­
books. However, th e te x tb o o k boards d id n ot have
th e rig h t to publish and d is trib u te boo ks on th e ir
own. The pre pa re d m anuscripts w ere first reviewed
by a local provincial review co m m itte e and th en sent
fo r final approval and g ra n t o f No O b je c tio n C e rtifi­
cate (NO C) to th e N ational Review C o m m itte e under
th e C urriculum W ing. It was o nly a fte r th e C urriculum
W in g g ra nte d th e N O C th a t th e te x tb o o k boards
co uld publish, p rin t and dissem inate te xtb oo ks.
CURRICULUM AND TEXTBOOK
DEVELOPMENT: A PROVINCIAL PICTURE
IN S T IT U T IO N A L STRUCTURES A N D
M ANDATE
In each province th ere is one organization in charge
o f cu rriculum and a p p ro vin g te x tb o o k d e ve lo p m e n t
(referred to by d iffe re n t names) and another, usually
a te x tb o o k board, in charge o f overseeing th e d e ­
v e lo p m e n t and p rin tin g o f te xtb o o ks. Punjab is the
exception, w here th e roles are d iv id e d som ew hat
d ifferently. The actual te x tb o o k s are d e ve lo p e d by
private publishers w ho are registered w ith th e p ro ­
vincial g o ve rn m e n t and upon selection by th e rel­
evant provincial a gency are given an N O C to w rite
te xtb oo ks.
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E ducation M o n ito r
U nder th e N ational T e x tb o o k and Learning Materials
Policy (NTLMP) 2007, as p a rt o f an a tte m p t to im prove
th e q u a lity o f te x tb o o k s and learning materials, the
notion o f c o m p e titiv e p ublishing o f te x tb o o k s was in ­
tro d u c e d . U nder this private se ctor publishers were
e n co urag ed to d e ve lo p te x tb o o k s and th e te x tb o o k
boards, th a t w ere once publishers, w ere e xp e cte d to
take on th e role o f 'c o m p e te n t fa cilitating, regulating
and m o n ito rin g authorities.'5 The NTLMP suggested
as p a rt o f its im p le m e n ta tio n fram ew ork, th e reform
and ca pa city d e v e lo p m e n t o f te x tb o o k boards to set­
up review panels, resource centers and p ro vid e tra in ­
ing to private publishers them selves.
Post-devolution context
The 18th A m e n d m e n t 2010 b ro u g h t sign ifican t re­
visions to th e federal and provincial roles as fa r as
educational governance is concerned. This had a sig­
nificant im p a c t on th e process o f curriculum and te x t­
b o o k d eve lo pm e nt. The a m e n d m e n t trig g e re d the
d issolution o f th e Federal M OE and th e d evo lu tion
o f a u th o rity to d e ve lo p curriculum and te x tb o o k s to
th e provinces. The roles relating to w ritin g , review ­
ing, a p p ro v in g and p ublishing te x tb o o k s have been
reconsidered at th e provincial level. These roles have
been envisaged d iffe re n tly in th e fo u r provinces. This
has been covered in g re a te r detail in th e next section.
Khyber Pakhtunkhwa
Post-devolution th e resp on sibility to d e ve lo p te x t­
books is shared b etw e en th e D ire ctora te o f C u rric­
ulum and Teacher Education (DCTE) and th e Khyber
Pakhtunkhwa T e xtb o o k Board (KPTBB). The DCTE
has th e m andate to p ro vid e in p u t into te x tb o o k p o l­
icy, d e ve lo p review standards, c o n d u c t a review o f
m anuscripts received and p ro vid e final approval o f
te xtb oo ks. The KPTBB facilitates te x tb o o k d e v e lo p ­
m ent, w orks w ith private publishers to d e ve lo p te x t­
books and co n d u cts internal reviews o f m anuscripts.
Private publishers are selected on th e basis o f th e ir
previous experience w ritin g te x tb o o k s and financial
status, as te x tb o o k d e v e lo p m e n t is a costly endeavor.
Punjab
A fte r d evo lu tion , in Punjab th e key organizations in­
volved in d e ve lo p in g curricula and te x tb o o k s are th e
new ly in tro d u ce d Punjab C urriculum A u th o rity (PCA)
and th e Punjab T e xtb o o k Board (PTB).
The PCA was co n stitu te d u n d e r th e Punjab Super­
vision o f C urricula, T extbooks and M aintenance o f
Standards o f Education Bill. A c c o rd in g to th e PCA
A c t 2012, it bears th e re sp on sibility to: (1) Prepare
schem es o f studies, curricula, m anuscripts o f te x t­
books; (2) A p p ro v e standards o f e du catio n and
m anuscript o f a te x tb o o k p ro d u ce d by any person
o r a gency befo re th e te x tb o o k is prescribed fo r any
class o f an institutio n; (3) Regulate and co n tro l p rin t­
ing, p ub lica tion and sale o f te xtb o o ks and o th e r sup­
p le m e n ta ry m aterial; and (4) M aintain standards o f
e du catio n.6
Prior to th e p ro m u lg a tio n o f th e 18th A m e n d m e n t
and fo rm a tio n o f th e PCA, th e PTB was in charge o f
th e te x tb o o k d e ve lo p m e n t process. It used to g e t
te x tb o o k m anuscripts th ro u g h ope n co m p e titio n
and a fte r approval from N ational Review C om m ittee ,
e ith e r publish th e te xtb o o k s itse lf o r th ro u g h a p ri­
vate publisher. W ith th e fo rm a tion o f th e PCA much
o f this m andate, in clu d in g th e p rin tin g and p ub lish ­
ing o f te xtb oo ks, has been taken away. PTB was te c h ­
nically allow ed by th e PCA A c t to c o m p e te w ith o th e r
publishers in m anuscript d e ve lo p m e n t, how ever in
practice PTB has n ot been allow ed to d o so.
M ost im p orta ntly, th ere is an overlap in th e stated
roles o f th e organizations causing co n flic t betw een
th e tw o . The clause o f th e PCA A c t related to 'con­
tro llin g p rintin g , p ub lica tio n and sales o f te xtb o o k s '
is in d ire c t clash w ith th e PTB m andate.7 M oreover,
in som e qua rte rs th e view is th a t th e PCA is in a d e ­
q uately staffed to take on such a large m andate, par­
ticu la rly p rin tin g and p ublishing, and may need to be
restricted to a supervisory role. O n th e o th e r hand,
private publishers in Punjab te n d to see a stron ge r
m andate fo r th e PCA as a positive d e ve lo p m e n t. Cur­
rently, th e Punjab G o vernm e nt is co nside rin g o ptions
to resolve this co n flic t o f m andate.
In Punjab th ere are num erous publishers registered
w ith th e provincial g ove rn m e nt, b u t around 20 to 30
publishers actually g e t an N O C fro m th e PCA. Since
th e in tro d u c tio n o f th e p u b lic private approach in
te x tb o o k d e ve lo p m e n t along w ith th e establishm ent
o f th e PCA, private publishers have been encour­
aged to invest th e ir resources in this se ctor and m o d ­
ify practices to align te x tb o o k s w ith th e national cur­
riculum . However, this has n ot always been possible.
The SLOs are n ot self-explanatory and are n ot always
easy to translate into te x tb o o k m aterial. As a result,
o nly som e publishers have been w illing to o r are, to
som e d eg re e, capa ble o f d o in g this and th e rest have
co ntin ue d w ith tra d itio n a l practices.
Sindh
Post-devolution, te x tb o o k d e v e lo p m e n t in Sindh is
overseen by tw o organizations: th e Bureau o f C ur­
riculum and Extension W in g (BCEW) and Sindh Text­
b o o k Board (STBB). Sim ilar to th e DCTE, th e BCEW
exercises a su pe rio r role in te rm s o f ensuring te x t­
b o o k quality. It is tasked w ith review ing and re co m ­
m en din g te x tb o o k s fo r p ub lica tion to th e provincial
review c o m m itte e a fte r th e y m eet required stan­
dards.
The STBB has th e m andate to d eve lo p te x tb o o k s in
a lig n m e n t w ith th e national curriculum , c o n d u c t an
internal review and also bears th e re sp on sibility o f
p rin tin g and p ublishing te xtb o o ks. A fte r th e 18th
A m e n d m e n t reform s, th e STBB has also been given
th e d irective to d e ve lo p th e books th ro u g h private
publishers. However, this process has been stalled.
There are m ixed views as to reasons fo r this. O n the
one hand som e note co nflicts b etw een th e STBB and
private publishers over royalties and c o p yrig h t, and
on th e o th e r th e re is a lack o f publishers w ith an a d e ­
quate track record to m ee t th e standards. As a result,
books are still d e v e lo p e d u nd er th e supervision o f
th e STBB, w hich d ire c tly selects te x tb o o k w riters.
R espondents note th a t th e re should be m ore co o r­
din atio n in th e roles o f th e STBB and BCEW as they
w o rk on d iffe re n t parts o f th e same process. This,
however, is n ot th e case as yet, a ltho ug h it has been
planned u n d e r th e Sindh Education Reform Program
(SERP) II.
Balochistan
A fte r d evo lu tion , resp on sibility fo r te x tb o o k d e ve l­
o p m e n t in Balochistan has been given to th e Bureau
o f C urricu lum (BOC) Balochistan and th e Balochistan
T e xtb o o k Board (BTBB). Sim ilar to K hyber Pakh-
tunkhw a (KP) and Sindh, th e BOC deals w ith th e over­
all cu rriculum and ensuring q u a lity o f te x tb o o k s and
th e BTBB concentrates on te x tb o o k d e v e lo p m e n t
and internal review.
Private publishers, u nd er th e p u b lic private partner-
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C u rricu lu m and T e xtbooks
ship m andate, d e ve lo p te x tb o o k s in Balochistan.
However, Balochistan faces a d ea rth o f publishers.
The BOC o nly has a to ta l o f 8 publishers registered
w ith it, however, m any o f these institutions lack a d e ­
quate hum an resources and ju s t a b o u t 2 publishers
actually c o n trib u te to w ards te x tb o o k d eve lo pm e nt.
STAFF SELEC TIO N , AVAILABILITY A N D
C A P A C ITY
In-house staff
The te x tb o o k boards and th e DCTE, PCA, BCEW,
BOC (hereafter referred to as curriculum authorities
collectively) are e xp e cte d to have, a p a rt from m an­
a g e m e n t staff, editors, p ro ofre ad ers and subject
specialists. The te x tb o o k boards o fte n have p osi­
tio ns fo r such staff. However, these institutio ns tend
to rem ain u nderstaffed, particula rly w ith regards to
su b je ct specialists.
For exam ple in Punjab, th e PCA was unable to begin
fu n ctio n in g fo r a lm ost one year a fte r its fo rm a tion
d ue to u nd ersta ffing . A c c o rd in g to regulations there
should be 18 posts in clu d in g 1 chairm an, 2 d ire c ­
tors, 4 d e p u ty d irectors and 10 research associates
a p a rt fro m o th e r s u p p o rtin g staff. However, only 5
p ro g ra m specific positions have been fille d and o f
these none are research associate positions. M ost o f
th e sta ff com es th ro u g h th e Public Service C om m is­
sion and are a p p o in te d on a regular basis, except fo r
th e chairperson and secretary, w ho are selected fo r
a three-year p e rio d e xten da b le fo r fu rth e r duration
if required.
A n o th e r exam ple is KPTBB, w here 5 o f th e 7 subject
specialist positions rem ained vacant fo r over a year
in 2013.8 In th e ir place, p ro ofre ad ers had been d e ­
p loyed to cover tasks such as review ing te xtb oo ks,
w hich had an im p a ct on th e q u a lity o f te xtb oo ks.
Reasons fo r th e vacancy had to d o w ith th e recruit­
m en t process. S ubject specialists are draw n from
g o ve rn m e n t co lleges and schools on d e p u ta tio n fo r
th re e years and in this case th e y had returned to th e ir
p aren t d e p a rtm e n t at th e end o f th e period.
W h e re sta ff exists, capacity remains a serious issue.
Positions at th e te x tb o o k boards are highly so u g h t af­
ter, d ue to m on eta ry b en efits o f th e position. As a re­
sult, th e m ost q ua lifie d individuals d o n ot necessarily
g e t selected. For exam ple, w ith th e PTB th e p e rc e p ­
tio n is th a t su bject specialists and reviewers are lack-
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E ducation M o n ito r
ing in ade qu ate e xpertise and experience. A n d that
this is w h a t necessitated th e fo rm a tion o f th e PCA.
Textbook writers and publishers
T e x tb o o k w riters are e ith e r e m p lo ye d by publishers
o r d ire c tly hired by th e te x tb o o k boards fro m a pool
o f w riters, as in th e case o f Sindh. In e ith e r case, the
te x tb o o k boards usually select and a pp ro ve th e te x t­
b o o k w riters. For exam ple in Punjab, publishers hire
te x tb o o k w riters in co m p lia nce w ith th e PCA criteria.
They are th en req uired to p ro vid e a list o f w riters to
th e PCA and seek a N O C befo re th e w riters can be
assigned a te x tb o o k d e v e lo p m e n t task.
G enerally te x tb o o k w riters are in-service high school
teachers, university professors o r retired e d u c a tio n ­
ists. They are e xp e cte d to have a g o o d academ ic
b ackground, experience o f te x tb o o k d e v e lo p m e n t
and specific k n o w le d g e o f th e su b je ct th e y are
w o rk in g on. For e xam ple in Sindh th e specific c rite ­
ria fo r te x tb o o k w riters is p re fera bly M aster o f Sci­
ence (M.Sc.), M aster o f Education (M.Ed.) o r Bache­
lo r o f Education (B.Ed.) qualifications and ten years
o f teaching experience along w ith relevant subject
specialization. However, these criteria are n ot always
rig oro usly a p p lie d and te x tb o o k w riters lacking in
e xpe rtise o r a p p ro p ria te su bject specialization often
g e t selected.
In th e case o f publishers, th e re are separate regis­
tra tio n and selection criteria. A p ublishing firm is re­
q u ire d to have th re e years ta xpa yer ce rtifica te and
be registered u nd er th e Societies A c t to be e lig ib le
fo r registration and th e ir tra ck record o f w ritin g te x t­
b oo ks is review ed fo r selection. In m any cases, the
o rganizations hired are in practice m ore like p rin t­
ers rather than publishers, in te rm s o f th e ir capacity.
It appears th a t som e fo rm o f p atron a ge o r political
pressure is involved in th e selection o f publishers.
O fte n te x tb o o k boards are inclined to w o rk w ith cer­
tain publishers, d ue to th e m on eta ry incentives o f the
p ub lish in g industry. Thus, publishers are n ot neces­
sarily selected on th e basis o f m e rit and quality.
A m ajor issue th en is th a t th e te x tb o o k w riters, se­
lected th ro u g h th e given B.Ed. m echanism , are not
necessarily o f th e best quality. For th e m ost part, they
d o n ot have any tra in in g in th e d e v e lo p m e n t o f te x t­
books. Even if th e y are su b je ct specialists, th e y often
lack k n o w le d g e o f p ed ag og y. M ore im portantly,
th e y are unaware o f th e curriculum and its associated
SLOs. Thus, th ey o fte n face d iffic u lty in d e ve lo pin g
te x tb o o k s a ccordin g to th e cu rricular SLOs. As things
stand, publishers are unw illing to invest in hiring
q ua lifie d persons and this poses a m ajor challenge in
te rm s o f p ro d u cin g q u a lity te xtb oo ks.9
Textbook reviewers
T e xtb o o k reviewers usually fo rm p a rt o f an Internal
Review C o m m itte e (IRC) o r External Review C o m m it­
te e (ERC) d e p e n d in g on w hich institutio n th e y are
placed at. The roles and profiles d iffe r slightly. The
IRC consists o f 4 to 6 persons, inclu ding a relevant
su bject specialist, w o rkin g teachers accordin g to the
te x tb o o k level (e.g. p rim ary school teachers fo r p ri­
m ary textbooks) and o th e r experts. In Balochistan,
th e IRC has m em bers from th e Provincial Institute
fo r Teacher Education (PITE) as well. The ERC has a
b ro a d e r range o f 6 to 9 reviewers inclu ding content,
curriculum , and assessm ent experts, w o rkin g te ach ­
ers and university o r co lle g e fa culty m em bers as
w ell as representatives o f th e te x tb o o k boards and
curriculum authorities. The ERC is usually headed by
a private se ctor o r retired e ducationist. In Sindh an
illu strato r should also be a m e m b e r o f this co m m itte e
b u t such a person is n ot usually available.
The curriculum authorities o fte n have a p o o l o f te x t­
b o o k reviewers w ho th e y draw from . For exam ple in
th e case o f Punjab, th e PCA draw s from a poo l o f over
500 registered te x tb o o k reviewers. The te x tb o o k re­
view ers are e xp e cte d to review th e m anuscripts and
su gg est im p rove m e nts on th e w riter's w o rk in light
o f th e g uide lin e s p ro vid e d to th em . T e xtb o o k review ­
ers are p ro vid e d a b rie f o rien ta tion on th e curriculum
and SLOs (as in th e case o f th e PCA), b u t th e re is no
form al, stru ctu re d train in g offered.
Selection o f m em bers fo r th e review com m ittees,
fo r exam ple in Sindh, is d o n e by th e BCEW fo rw a rd ­
ing su gg este d names to th e Education Secretariat,
w hich provides final approval and notifies th e c o m ­
m ittee. However, p e o p le o fte n g e t a p p o in te d to the
co m m itte e s on basis o th e r than a p p ro p ria te exper­
tise. As a result th e y d o n ot always p articip a te in the
review process as required.
T E X T B O O K D E V E L O P M E N T A N D REVIEW
PROCESS
In all th e provinces th e process o f te x tb o o k w ritin g
and review follow s a sim ilar traje ctory, from m anu­
scrip t d e ve lo p m e n t to at least a tw o -sta g e review
process (one c o n d u c te d at th e level o f th e te x tb o o k
board and th e o th e r w ith th e curriculum authority)
and a final notifica tion o f th e te x tb o o k s (Table 6.1).
There are a few nota ble exceptions in th e process.
For exam ple, all th e provinces make use o f private
publishers w ith th e exception o f Sindh, w hich w orks
w ith te x tb o o k w riters directly. As a result, th e STBB is
m ore closely involved in th e te x tb o o k d e v e lo p m e n t
process. In Punjab, th e PCA is m eant to serve th e cur­
riculum a u th o rity as well as oversee te x tb o o k d e ve l­
o p m e n t. It also has a m ore d eta ile d te x tb o o k review
process. Finally, a p a rt from KP, th e re does n ot appear
to be a req uirem en t to fie ld -te s t th e m anuscripts b e ­
fo re g ra ntin g a NOC.
Textbook developm ent and review guidelines
T e xtb o o k d e v e lo p m e n t and review fo llo w a set o f
guidelines. A gain, th ere are sim ilarities w ith a few
nota ble exceptions. T e xtb o o k w rite rs are expected
to d e ve lo p m anuscripts in accordance w ith th e SLOs
in th e national curriculum and id e o lo g y o f Pakistan.
A p a rt fro m this, th e y are e xp e cte d to make use o f
th e ir ow n und ersta nd in g , k n o w le d g e and skills as
well as previous experience in d ra ftin g th e m anu­
script. They are n ot e xp e cte d to d o any a dd itional
research d u rin g te x tb o o k d eve lo pm e nt.
W ith regards to te x tb o o k review, a p a rt from ensuring
m anuscript a lig n m e n t w ith th e national curriculum
SLOs, reviewers fo llo w o th e r guide lin e s as well. In
Sindh reviewers review th e e ntire m anuscript fo r co n ­
tent, illustrations, vo lu m e and length. The IRC is g iv ­
en an inform al o ne -d ay tra in in g fo r review ing on the
basis o f said SLOs, co m p ete n cie s and benchm arks.
There are no m ajor differences b etw een th e internal
and external review processes.
In Punjab th e review process goes th ro u g h fo u r
stages and c o m m itte e s are g u id e d to loo k fo r a
p ed a g o g ica l schem e o f th e respective su bject as
prescribed in th e respective curriculum , volum e
(should m ee t p a g e -lim it set by th e PTB), plagiarism
(should have original content), d iscrim in ato ry m ate­
rial (should be free from all kinds o f social, regional,
cultural, religious, gender, ethn ic and sectarian b i­
ases) and p ilo tin g (m anuscript should be pre-tested
w ith a representative sam ple along w ith a p p ro p ria te
d o c u m e n ta tio n o f checklists and evidence). To w hat
e xten t all this takes place in practice is a no the r m at­
ter.
84
C u rricu lu m and Textbooks

1 Process
S t e p 1: S e l e c t i o n o f
te x tb o o k d e v e lo p e rs
a c c o r d in g t o c rite ria
la id d o w n .
S te p 2: D e v e l o p m e n t
o f t e x t b o o k in a c c o r ­
d a n c e w ith S L O s in t h e
n a tio n a l c u rric u lu m a n d
s u b m is s io n o f m a n u ­
s c rip t.
S te p 3: In te r n a l r e v ie w
b y t h e IR C o f t h e m a n u ­
s c rip t fo r a lig n m e n t a n d
q u a lity a n d s u b m is s io n
o f re c o m m e n d a tio n s .
R e v is io n o f m a n u s c r ip t
by te x tb o o k d e v e lo p ­
ers.
S te p 4: E x te rn a l R e v ie w
b y th e ERC c o n s titu t­
e d b y th e c u rric u lu m
a u th o rity , w h ic h re v ie w s
m a n u s c rip t a n d s u b m its
re c o m m e n d a tio n s fo r
fu rth e r c h a n g e s to
te x tb o o k d e v e lo p e r o r
a p p ro v a l.
S te p 5: F in a l s e le c tio n
o f te x tb o o k s b y th e
S e le c t C o m m it te e a p ­
p o in te d b y th e d e p a rt­
m e n t o f e d u c a tio n and
is s u a n c e o f an N O C .
S te p 6: P r in tin g a n d
d is s e m in a tio n o f te x t­
books.
85
E ducation M o n ito r
Table 6.1: Textbook developm ent and review process in each province
KP
KPTBB in v ite s p r i­
va te p u b lis h e rs a n d
a p p ro ve s te x tb o o k
w rite rs .
P riv a te p u b lis h e r s d e ­
v e lo p m a n u s c rip t and
s u b m it to KPTBB.
5 - m e m b e r IRC r e v i e w s /
s u b m its r e p o rt to
KPTBB. KPTBB arra n g e s
a m e e t i n g o f IRC a n d
p u b lis h e rs fo r s h a rin g
a n d a n s w e rin g q u e s ­
t io n s .
KPTBB se n d s m a n u ­
s c rip ts to D C T E . D C T E
c o n s titu te s 9 - m e m b e r
ERC ERC re v ie w s
m a n u s c rip ts a n d re c ­
o m m e n d s re v is io n s , if
any. A f t e r re v is io n s , ERC
r e c o m m e n d s w h ic h
m a n u s c rip ts to a d o p t.
D C T E p ilo t te sts r e c o m ­
m e n d e d m a n u s c rip ts .
B a s e d o n p i lo t re su lts,
S e le c t C o m m it te e
a w ard s N O C s fo r to p
te x tb o o k s .
KPTBB in fo rm s p u b lis h ­
e rs a n d is s u e s o r d e r s
fo r p rin tin g te x tb o o k s .
P u n ja b
P C A in v ite s p riv a te
p u b lis h e rs a n d
a p p ro ve s te x tb o o k
w rite rs .
P riv a te p u b lis h e r s d e ­
v e lo p m a n u s c rip t an d
s u b m it to PCA.
R e v ie w g o e s th ro u g h
fo u r sta g e s:
S t a g e 1: A 4 - m e m b e r
c o m m itt e e re v ie w s /
s u b m its re p o rt to PCA.
P u b lis h e r in c o r p o r a te s
changes.
S t a g e 2: A 3 - m e m b e r
c o m m itt e e re v ie w s re ­
v is e d d ra ft, if a n y g a p s
l e f t , i t is s e n t b a c k f o r
im p ro v e m e n t.
M a n u s c r i p t is a l r e a d y
w ith PCA.
S t a g e 3: T e c h n ic a l
R e v i e w C o m m i t t e e 1 is
fo r m e d w ith 4 m e m ­
b e r s n o t p a r t o f e a rlie r
c o m m itt e e s . T e c h n ic a l
R e v ie w C o m m itte e 1
re v ie w s a n d p ro v id e s
f e e d b a c k to p u b lis h e rs .
S ta g e 4: T e c h n ic a l
R e v ie w C o m m itte e 2
c o m p ris in g 3 m e m b e rs
reassesses re fin e d m a n ­
u s c rip t a n d i f n o fu rth e r
gaps, re c o m m e n d s fo r
NOC.
S e le c t C o m m it te e
a w a rd s N O C s fo r to p
te x tb o o k s .
P C A (a c c o rd in g to
p ro c e d u re ) in fo rm s
p u b lis h e r s a n d is s u e s
o rd e rs fo r p rin tin g
t e x t b o o k s . P rio r to th is
it w a s P T B .
S in d h
ST B B in v ite s t e x t b o o k
w r ite r s d ire c tly .
A t e a m o f w r ite r s , le d
b y a s e n io r w rite r,
d iv id e to p ic s and
d e v e lo p m a n u s c rip t.
S e n io r w rite r c o m p ile s
d ra fts a n d e d its m a n u ­
s c rip t b e fo re s e n d in g
to STBB.
4 - m e m b e r IR C r e v i e w s /
s u b m its re p o rt to STBB.
In s o m e c a s e s S T B B
e d its m a n u s c r ip t its e lf,
o t h e r w i s e t h e IR C w o r k s
w ith te x tb o o k w rite r to
fa c ilita te c h a n g e s .
STBB s e n d s m a n u ­
s c rip ts t o B C E W . P ro v in ­
cia l R e v i e w C o m m i t t e e
o f B C E W c o n s titu te s
s u b -c o m m itte e fo r ex­
t e rn a l re v ie w . C o m m i t ­
te e re v ie w s m a n u s c rip t
and recom m en ds
re v is io n s R e v is io n s g o
b a ck to te x tb o o k w rite r
v ia S T B B , w h i c h e n s u r e s
in c o rp o ra tio n . P ro vin­
cia l r e v i e w c o m m i t t e e
s u b m it s fin a l r e p o r t fo r
re c o m m e n d a tio n o f
NOC.
S e le c t C o m m itte e
a w ard s N O C .
STBB in fo rm s p u b lis h ­
e rs a n d is s u e s o r d e r s
fo r p rin tin g te x tb o o k .
B a lo c h is ta n 1
BTBB in v ite s p r i­
v a te p u b lis h e rs a n d
a p p ro ve s te x tb o o k
w rite rs .
P riv a te p u b l i s h e r s d e ­
v e lo p m a n u s c rip t a n d
s u b m it to BTBB.
F irst a d e s k re v ie w
c o n d u c te d b y BTBB.
6 - m e m b e r IRC r e v ie w s
o r s u b m its re p o rt to
BT BB. P u b lis h e r in c o r ­
po ra te s chan ges.
BTBB s e n d s m a n u s c rip t
to B O C . B O C c o n s ti­
t u te s 5 -6 m e m b e r ERC.
ERC re v ie w s m a n u ­
s c rip t a n d r e c o m m e n d s
re vis io n s . P u b lis h e rs
in c o rp o ra te changes.
A f t e r re v is io n s , ERC
r e c o m m e n d s w h ic h
m a n u s c rip ts to a d o p t.
S e le c t C o m m it te e
a w ard s N O C s fo r to p
te x tb o o k s .
BTBB in fo rm s p u b lis h ­
e rs a n d is s u e s o r d e r s
fo r p rin tin g te x tb o o k s .
Emerging issues
O n e o f th e issues raised in regards to te x tb o o k w rit­
ing, is th e stru g g le th a t te x tb o o k w rite rs g o th ro u g h
in in te rp re tin g th e curriculum d o c u m e n t and a lig n ­
ing it w ith SLOs. As m en tion ed previously, th e y re­
ceive no stru ctu re d tra in in g fro m e ith e r th e te x tb o o k
boards o r curriculum a uth orities to gain insight into
th e d o cu m e n t. A s a result, te x tb o o k m anuscripts o f­
ten to d o n ot m eet th e review requirem ents, causing
delays in p ublishing o r subpar q u a lity te xtb o o k s are
p ro d u ce d . For exam ple in Sindh th e STBB has, at
tim es, had to rew rite te x tb o o k s on b eh alf o f te x tb o o k
writers.
A n o th e r issue is co nflicts w ith th e review fe ed ba ck
o r pressures th a t p revent in co rp o ra tin g review fe e d ­
back. This is o fte n d ue to gaps in expe rtise o r per­
ce ptio ns b etw e en th e w riters and publishers and the
review co m m itte es. For exam ple, in Sindh, on occa ­
sion, te x tb o o k w rite rs and even th e STBB disagree on
th e fe e d b a ck on m anuscripts th a t th e y receive from
th e BCEW review co m m itte e . In th e case o f Baloch­
istan, due to th e sh o rta g e o f publishers, th e y exercise
a m on op oly, so review rubrics are n ot a pp lie d . There
are also political and d e p a rtm e n ta l pressures on the
BOC to a pp ro ve th e te xtb oo ks, w hich hinders over­
all quality. T e xtb o o k reviewers feel th a t th e y cannot
raise critical issues o r reject a te x tb o o k in fear th a t the
next tim e th ey w ill n ot be included in th e process.
Finally, th ere are co o rd in a tio n p ro b le m s betw een
th e institutions and th e review com m ittees, w hich re­
sult in extensive delays in th e te x tb o o k d e ve lo p m e n t
process. In th e case o f Punjab, d ue to th e revision o f
roles b etw e en th e PCA and th e PTB and th e ensuing
stru g g le fo r tu rf, th e re have been substantial delays
in th e approval o f te x tb o o k s this year. In D ece m b e r
2013, PCA g ra nte d a N O C to 106 m anuscripts fo r
g ra d e 8 and th e Select C o m m itte e was required to
finalize th e m anuscripts fo r p rin tin g and th e p ro v i­
sion o f te xtb o o ks. However, th e Select C o m m itte e
a lle g e d ly w e n t b eyond its m andate to initiate a re­
view o f th e m anuscripts and declared th e m to o full
o f mistakes to be p ublished.10 It claim ed th e PCA re­
view had n ot been co n d u cte d properly, thus NOCs
w ere n ot g ranted. The PTB was e xpe cted to develop
m anuscripts fo r te xtb oo ks, b u t this d id n ot happen.
The Punjab G o vernm e nt is in th e process o f w orking
o u t a solution. However, fo r th e 2014 academ ic year,
students have to use o ld te xtb oo ks.
STATUS O F T E X T B O O K D E V E LO P M E N T
C urriculum and te x tb o o k s share a vital link. The new
curriculum was p ro m u lg a te d in 2006 w ith th e in ­
te n tio n th a t th e te x tb o o k s w o u ld be d e v e lo p e d ac­
co rd in g to th e new ly available guidelines. However,
to d ate m any te x tb o o k s are still p ublished in accor­
dance w ith th e o ld cu rriculum fram ew ork. The status
o f d e v e lo p m e n t o f such te x tb o o k s varies across p ro v­
inces. In Punjab and KP many te x tb o o k s in a lig nm en t
w ith th e new curriculum have been p ublished and
dissem inated whereas Sindh and Balochistan lag b e ­
hind, and are still using m ore te x tb o o k s based on the
o ld curriculum .
For exam ple in KP a lm ost all te x tb o o k s fo r grades
1 to 12 have been d e v e lo p e d . This year 72 books
have been issued N O C s fo r p ublishing. The DCTE
has also re-review ed 40 te x tb o o k s as per directives
o f th e gove rn m e nt. In a d d itio n , 6 w o rk b o o k s o f d if­
fe re n t subjects have also received NOCs. In Sindh,
a ltho ug h w o rk began in 2010 on new te xtb o o ks, the
process has been co m p arative ly slower. A t present
th e STBB has shared 7 m anuscripts w ith th e BCEW
fo r review, these inclu de English, m ath and science.
Last year th e BCEW o nly review ed one te x tb o o k fo r
g ra d e 1. This year th ey w ill be review ing a b o u t 20
new te x tb o o k s fo r th e p rim ary level. In th e next phase
m iddle, secondary and h ig he r secondary level te x t­
books w ill be review ed as well.
Reasons fo r th e delays have to d o w ith lack o f capac­
ity in th e existing institutio ns as well as a s h ortag e o f
te x tb o o k w riters and publishers. The lack o f te x tb o o k
w riters w ith ade qu ate k n o w le d g e o f th e new cu rric­
ulum appears to be an im p o rta n t issue. M any given
benchm arks and SLOs are left unaddressed because
o f such incapacities. This in itse lf suggests lack o f
consistency in th e a pp lica tio n o f th e new curriculum
to g e th e r w ith e xposing students to differen tia l q u a l­
ity inputs.
86
C u rricu lu m and T e xtbooks
CHALLENGES
The sections above have d e fin e d th e roles o f various
organizations in curriculum and te x tb o o k d e v e lo p ­
m en t as w ell as d eline ate d th e processes in th e pro v­
inces. The fo llo w in g section expands on issues a llu d ­
ed to earlier, reflects on th e challenges faced by the
curriculum and te x tb o o k d e ve lo p m e n t institutions
a nd investigates th e causes th a t may im p e d e th e suc­
cessful fu n ctio n in g o f these organizations.
SYSTEM LEVEL CHALLENGES
Insufficient clarity and familiarity with national
curriculum
A curriculum in its e n tire ty d ete rm ine s th e goals,
co n te n t and processes related to teaching and learn­
ing. Educators m ust be conscious o f th e purpose. It,
th erefore, becom es im p era tive th a t all stakeholders
in e du catio n b eco m e fa m iliar w ith th e o bjective s o f
th e national curriculum in o rd e r to ensure and over­
see its successful im p lem en ta tion . C urricu lum d eve l­
o p m e n t in Pakistan has te n d e d to be d ivo rce d from
th e key players in edu catio n, particula rly te x tb o o k
w rite rs and teachers. The consequence is th e ina bili­
ty o f teachers and te x tb o o k w riters to understand the
tru e essence o f curricular princip les and goals.
C urricu lum planning, therefore, shares a th e o ry prac­
tice d ivid e and curriculum d e ve lo p m e n t follow s a
to p -d o w n m od el approach. A to p -d o w n m od el o f
curriculum d e ve lo p m e n t is one th a t advocates a set
o f hierarchically o rd e re d processes th a t are centrally
initiated and c o n tro lle d and th a t are usually o p e ra ­
tionalized by selected e x p e rt com m ittees.11 Such
a m od el discourages innovation and makes te ach ­
ers passive recipients o f change.12 W ith this m odel,
teachers co ntin ue to sit at th e academ ic p erip h ery
and are unable to b eco m e m eaningful co n trib u to rs
in th e fie ld as th e y are n ot e n co urag ed to im b ib e the
tru e essence o f education. The link b etw een cu rricu ­
lum planning and invo lvem en t o f m ajor stakeholders
is, th erefore, vital fo r successful a pp lica tion o f cu rric­
ulum goals later.
Lack of link betw een curriculum and textbooks
C urricu lum and te xtb o o k s share a vital link. The new
curriculum was p ro m u lg a te d in 2006 w ith th e inten-
87
E ducation M o n ito r
tio n th a t th e te x tb o o k s w o u ld be d e v e lo p e d in accor­
dance w ith th e new ly available guidelines. To date, as
indicated above, m any te x tb o o k s are still published in
accordance w ith th e o ld curriculum fram ew ork. This
alone makes fo r an unharm onious link b etw een the
curriculum and th e te x tb o o k and hints at ine fficien t
fram ew orks w ithin w hich th e organizations operate.
Unless th e curriculum d o cu m e n ts are sim p lifie d or
ade qu ate tra in in g program s are held fo r potential
authors, th e te x tb o o k s w ill co ntin ue to display lack o f
clarity and precision in te rm s o f translating curricular
aims.
IN S T IT U T IO N A L CHALLENGES
Lack of role clarity amongst curriculum and
textbook developm ent agencies
Post-devolution, th e re is still a lack o f clarity in term s
o f sharing o f a u th o rity a m o n g st th e organizations re­
sponsible fo r curriculum and te x tb o o k d eve lo pm e nt.
In som e cases th e re is a d is tin c t overlap. A s m en ­
tio n e d above, gen erally curriculum d e v e lo p m e n t
and approval o f te x tb o o k s fall w ithin th e a m b it o f the
curriculum authorities, w hile th e te x tb o o k boards re­
tain th e role o f fa cilita ting te x tb o o k d e v e lo p m e n t and
p ublishing te xtb o o ks. H ow ever th e responsibilities
are n ot always so clearly d iv id e d . This is clear in the
case o f th e PCA in Punjab, w hich exercises a uth o r­
ity over b oth these roles resulting in a c o n flic t over
m andate w ith th e PTB. M oreover, p ost-devolution,
th e m em bers o f s ta ff at these institutio ns still seem
unclear a b o u t th e ir roles and responsibilities and the
d ea rth o f c o o rd in a tio n a m o n g st th e institutions is ev­
ident.
D evolution o f edu catio n has le ft o th e r weaknesses.
W ith th e d issolution o f th e Federal MOE, th e re is also
a lack o f c o o rd in a tio n b etw een federal and p ro vin ­
cial g o ve rn m e nts on im p o rta n t e ducational m atters
such as educational p o licy and planning, educational
standards, curriculum standards, te ach er education
standards, and assessment.13
In th e absence o f role d e fin itio n and precision in in ­
stitutional governance, th e re may be an im p a c t on
in ten de d o utco m e s in th e lo n g e r run. M oreover, it
may fu rth e r p roblem atize th e fu n c tio n in g o f c u rricu ­
lum auth orities and te x tb o o k boards th a t are already
at a p re lim ina ry stage o f d e ve lo p m e n t p o st-d e vo ­
lution. In th e wake o f th e a m b ig u ity th a t prevails in
g o ve rn ing such institutions, it is im p o rta n t to revisit
th e fra m e w o rk fo r possible m odifications. The e sta b ­
lishm ent o f a task fo rce in th e provinces to review the
existing capacity, and a road m ap fo r im p roving the
institutional ca pa city o f such organizations may be
needed.
Inadequately staffed institutions
W ith th e d e vo lu tio n o f curriculum and te x tb o o k d e ­
v e lo p m e n t responsibilities to th e provinces, th e bur­
den on th e provincial g o ve rn m e nts has increased to
a g re a t extent.14 A m ajor challenge b eing posed to
th e curriculum and te x tb o o k institutio ns is th e sh ort­
age o f tra in e d s ta ff to serve in th em . A case in p o in t is
th e PCA o r th e KPTBB, b oth o f w hich had a shortage
o f key technical staff. A n o th e r exam ple is o f Baloch­
istan w here, apparently, som e persons w ith political
backing have been hired in th e BOC o r th e BTBB.
Lack o f sta ff fu rth e r aggravates th e sm ooth fu n c tio n ­
ing o f these institutions. It causes p ro b le m s in selec­
tio n o f te x tb o o k w riters and publishers, delays in the
te x tb o o k review process and aggravates th e q ua lity
issue further.
Poor quality publishers and textbook writers
The curriculum and te x tb o o k organizations in Paki­
stan face a persistent d ilem m a o f p ro d u cin g g o o d
q u a lity te xtb o o ks. In an e ffo rt to ensure b e tte r qua l­
ity te x tb o o k s th e Pakistan G o vernm e nt has initiated
p u b lic private partnerships in p ublishing te xtb oo ks,
w hich was once th e m andate o f provincial te x tb o o k
boards alone. Punjab, KP and Balochistan have al­
ready capitalized on th e o p p o rtu n ity to invite p ri­
vate publishers to p ro d u ce th e ir te xtb oo ks, whereas
in Sindh th e STBB still reserves th e rig h t to publish
its ow n te xtb o o ks. However, this m ove has n ot nec­
essarily resulted in an im p ro ve m e n t in th e q u a lity o f
te xtb oo ks. As noted above, publishers m eeting es­
ta blishe d criteria are n ot always selected, in m any in­
stances th e y are ju s t printers and in som e cases (such
as in Balochistan) th e re is a severe sh ortag e o f p u b ­
lishers to begin with.
A n o th e r a spe ct o f this challenge is th e careful selec­
tio n o f te x tb o o k w riters. Across th e provinces there
are instances o f te x tb o o k w rite rs w ho lack expertise
in th e subjects th e y w o rk on and awareness o f the
national curriculum SLOs. Three issues em erge: se­
lection criteria are n ot always standardized and fo l­
low ed, political interfere nce negatively affects the
selection process and even w here w rite rs are highly
q ualified, th e y d o n ot necessarily have su fficien t ex­
perience o r tra in in g to c o n d u c t th e task at hand.
There is a d ire need to im p rove th e selection p ro ­
cess fo r b oth publishers and te x tb o o k w riters. On
th e one hand, selection criteria fo r publishers m ust
be established and on th e o th e r it m ust be enforced.
The same goes fo r te x tb o o k w riters. The criteria m ust
take into a ccount th e needs o f te x tb o o k w ritin g, and
a tran spa ren t selection process th a t is n ot affected
by p olitical pressures needs to be established. M o re ­
over ade qu ate tra in in g program s fo r te x tb o o k w riters
are required to im prove th e ir capacity. Such steps are
again necessary to prepare high q u a lity te xtb o o ks
w ith o u t c o m p ro m isin g th e standard o f these.
Imperfectly selected and trained textbook re­
viewers
A m ajor concern p ost-d e vo lu tio n is th e lack o f trained
s ta ff to skillfully undertake th e review process. No
ca pa city b u ild in g has taken place p rio r to th e d e v o ­
lution o f responsibilities to th e provinces and m ost
o f th e given train in g s a pp e a r to have been m ism an­
aged.15 Further, th e re is a lack o f o rie n ta tio n p ro v id ­
ed to th e review s ta ff p rio r to th e review c o m m itte e
m eetings. C on flicts are b o u n d to arise if review c o m ­
m itte e m em bers lack th e professional ju d g m e n t to
undertake such tasks. Thus, in som e cases w e find
exam ples o f te x tb o o k w riters unw illing to accept the
fe e d b a c k o f review com m ittees.
There is a d ire need to rid review co m m itte e s o f un­
necessary b ureaucratic scuffles, w hich prove d e tri­
m ental to th e p ro d u c tio n o f g o o d q u a lity te xtb oo ks.
The PCA te x tb o o k review is one case in point. O n the
one hand th e re is clearly a tussle b etw e en th e PCA
and PTB over th e ir respective m andates, b u t th e fa ct
th a t none o f th e te x tb o o k s passed final selection
raises questions a b o u t th e review process as well as
th e professional ca pa city o f th ose ve ttin g such m an­
uscripts fo r pub lica tion . It is, therefore, im perative
th a t th o ro u g h and w ell inform e d professionals are
e n g a g e d fo r th e purpose o f te x tb o o k review, so th a t
learned decisions are m ade to w ards successful te x t­
b o o k d e ve lo p m e n t. O n g o in g tra in in g program s are
also need to be held to im p rove th e q u a lity o f te x t­
b o o k review.
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CONCLUSION
R E C O M M E N D A T IO N S
In lig h t o f th e challenges faced in curriculum and
te x tb o o k d e ve lo p m e n t, as o u tlin e d in th e previous
section, th e fo llo w in g reco m m en d atio ns are given
as possible means by w hich existing issues may be
resolved.
Ensure representation of major stakeholders in
curriculum and textbook development
M ajor stakeholders in edu catio n such as teachers,
school heads and parents, are usually ke pt away from
th e processes o f curriculum and te x tb o o k d e v e lo p ­
m en t d ue to to p -d o w n approaches. It is highly rec­
o m m e n d e d th a t these m ajor stakeholders be m ade
p a rt o f th e curriculum and te x tb o o k d e ve lo p m e n t
process as th e y are b e tte r inform e d on th e d e v e lo p ­
m ental and age a p p ro p ria te needs, contextual and
p e d a g o g ica l prerequisites and interest d om ains o f
students. Teachers understand th e ir ow n learners
best and are well suited to be m aterial developers.16
It, therefore, becom es in cu m b e n t on provincial a d ­
m inistrators, school heads, teachers and parents,
p o st-de vo lu tion , to be w id e ly aware o f th e aims o f the
curriculum in particular and to be p a rt o f its co n tin u ­
ous d eve lo pm e nt.
Establish regulatory authorities
W ith th e stru g g le in te rm s o f capacities o f th e above
institutio ns it is im p o rta n t to have som e reg u la to ­
ry auth orities e ith e r in th e fo rm o f interprovincial or
federal co m m itte es. These w o u ld have th e purpose
of: overseeing th e d istrib u tio n and execution o f roles
at th e curriculum a uth orities and te x tb o o k boards;
b rin g in g interprovincial standardization in th e struc­
tures responsible fo r curriculum and te x tb o o k d eve l­
o p m e n t; and overseeing tra in in g and ca pa city b u ild ­
ing o f institutions responsible fo r curriculum and
te x tb o o k d eve lo pm e nt.
In th e absence o f a stru ctu re d reg u la to ry authority,
th e process o f d evo lu tion , w hich is still m arkedly at
a prelim inary ju n ctu re , may co ntin ue to fa lte r and
s tru g g le w ith o u t having th e d esired im pact. The in­
vo lve m e n t o f th e federal g ove rn m e nt, fo r exam ple,
may n ot be an unfam iliar m ove in a devo lve d set up.
In m ost o f th e countries w here edu catio n is decen-
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tralized, curriculum and te stin g rem ain centralized
practically, whereas fu nctio ns such as th e selection
o f teachers, te xtb oo ks, and o th e r instructional m ate­
rials, and fa cility co nstructio n and m aintenance, are
being le ft increasingly to th e school.17 Respondents
echo this notion, noting th a t d e v e lo p in g a national
curriculum saves tim e and e ffo rt and th a t such skills
d o n ot exist at th e provincial level as yet.
In decentralized set ups, therefore, som e a u th o rity
can still rest w ith th e central gove rn m e nt. In China,
w hich has also u n d e rg o n e e ducational decentraliza­
tion, th e central g o v e rn m e n t reserves th e m andate to
a pp ro ve te x tb o o k s p ublished by any C hinese p u b ­
lisher.18 The provincial gove rn m e nts select th e te x t­
books to be in tro d u ce d in th e respective province
and co u n ty level g o ve rn m e nts d e c id e w h a t to use
in local schools. Thus, th ere co uld rem ain an involve­
m ent o f a centralized reg u la to ry b o d y (perhaps, w ith
provincial representation) in te rm s o f p ro vid in g some
standardization in w ha t students learn in schools till
th e tim e th e devo lve d setups d e ve lo p th e ca pa bility
to fu n ctio n on th e ir own.
Engage com petent personnel for curriculum
and textbook developm ent and review
A perennial hindrance tow ards th e e ffic ie n t fu n c tio n ­
ing o f curriculum and te x tb o o k boards has been the
d ea rth o f train ed and c o m p e te n t staff. It is im p o rta n t
to e n g ag e sound professionals o f required fie ld s as
representatives on cu rriculum and te x tb o o k d e ve l­
o p m e n t and review board co m m itte es. Producing
d e ve lo p m e n ta lly a pp ro priate , relevant and e n g a g ­
ing m aterials is th e p rim e resp on sibility o f th e m ate ri­
al developers. Professional curriculum and te x tb o o k
d e v e lo p m e n t and reviews can o nly take place if rele­
vant p e o p le w ith th e necessary skills and kn ow led ge
are involved. Individuals w ho b eco m e reviewers by
virtu e o f th e ir n o te w o rth y positions in g ove rn m e n t
may n ot be able to achieve th e desired outcom es. It
is also im p o rta n t to initiate regular tra in in g program s
on curriculum planning and d e ve lo p m e n t, material
d eve lo p m e n t, evaluation and m aterial review p ro ­
cesses fo r te x tb o o k w riters and reviewers to build
th e ir capacity.
Select com petent publishers
The vision th a t inform s d e ve lo p m e n t o f materials,
co n te n t presentation, physical layout and contextual
a ppropriateness are vital co m p o n e n ts o f any te x t­
book.19 Such elem ents should be taken care o f by the
publishers to g e th e r w ith th e authors and te x tb o o k
boards. A t present p ublishers and others involved ig ­
nore such im p o rta n t features as q u a lity co n tro l m ea­
sures, by and large. M ost o f th e te x tb o o k s suffer from
ty p o s and gram m atical errors, p o o r visual q u a lity and
physical layout and unbalanced co n te n t and contex­
tual representation. The result is te xtb o o ks th a t are
unappealing and d o n ot e n g ag e students.
It is, therefore, very im p o rta n t to eng ag e c o m p e te n t
publishers w ho can p ro d u ce b e tte r q u a lity te xtb o o ks
keeping th e above elem ents in m ind. The g o v e rn ­
m ent has already e n co urag ed te x tb o o k boards and
curriculum auth orities to e n g ag e private publishers
to d e ve lo p g o o d q u a lity te xtb o o ks. However, th e in­
stitutions need to rid them selves o f n ep otistic trends
1 O rn s te in & H u nkins 1998
2 M in is try o f E d u ca tio n , P akistan G o v e rn m e n t 2 0 0 9 b
3 J o h n 2001 as c ite d in M a h m o o d 2010
4 M in is try o f E d u ca tio n , P akistan G o v e rn m e n t 2 0 0 9 b , p g . 4 4
5 M in is try o f E d u ca tio n , P akistan G o v e rn m e n t 2007, p g. 1
6 T h e P unjab C u rric u lu m A u th o r ity A c t 2 0 1 2
7 T h e P unjab C u rric u lu m A u th o r ity A c t 2012
8 A s h fa q 2013
9 L o d h i 2011
10 M a lik 2 014b; M a lik 2 014c
and bureaucratic scuffles in o rd e r to p ro du ce b e tte r
q u a lity te xtb o o ks. They th en need to ensure th a t the
private publishers fo llo w th e a p p ro p ria te p ro to co l fo r
p ro d u cin g b e tte r q u a lity te xtb oo ks.
W A Y FO R W A R D
It is d iffic u lt to overstate th e im p o rta n ce o f an a p p ro ­
priate curriculum , and g o o d te xtb o o ks, based on it,
in th e c o n te xt o f q u a lity e ducation. Even if th e fo rm e r
is p ro p e rly d e v e lo p e d , w ith in p u t fro m im p o rta n t
stakeholders such as c o m p e te n t teachers and su b ­
je c t specialists, th e a rticulation o f curricular goals in
te x tb o o k s is usually narrow and inadequate. This has
th e consequence o f lim iting th e scope o f th e d e liv ­
ered curriculum and learning in th e classroom . So, at
b oth levels, w e need rob ust institutio ns and rational
processes th a t can d o justice to th e d is tin c t b u t very
m uch related tasks o f curriculum and te x tb o o k d e ve l­
o pm ent.
11 E l-O kd a 2 005
12 M a rke e 1997
13 T h e P akistan B usiness C o u n c il 2013
14 K han & M irza 2011
15 K han & M irza 2011
16 T o m lin s o n 1998
17 K han & M irza 2011
18 Z h a o & Q iu 2012
19 A n s a ry & B ab a ii 2002
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