How to scale and sustain accelerated non-formal education in decentralised systems

What challenges do out-of-school learners face in Pakistan?

Despite significant efforts by Pakistan’s federal and provincial governments, and development partners to address the education needs of all young people, over 25 million children and youth (ages -16) are not in school. ¹ A combination of structural, environmental, and social issues lead to educational exclusion. The majority of out-of-school children and youth (OOSCY) belong to marginalised groups, including religious and ethnic minorities, low-income families, children with disabilities, and populations living in remote and mountainous terrains (Shahzad, 2022). Nearly three quarters (74%) of OOSCY live in rural and remote areas, and girls are slightly more likely than boys to be excluded (53% vs. 47% respectively) (Pak Alliance for Maths and Science, 2024). The limited number of schools in remote areas and disasters such as the recent floods and COVID-19 pandemic contribute to under enrolment and dropout, and attrition increases in the older grades, as learners progress through the system without acquiring core skills necessary to stay engaged and truly benefit (Shahzad, 2022). To address these challenges,  and meet global education commitments under SDG 4 and UNESCO’s Education for All agenda, the government of Pakistan implements Accelerated Learning Programmes.

What do Accelerated Learning Programmes look like in Pakistan?

Pakistan has a long history of non-formal education (NFE). To unify fragmented efforts, both the Federal Ministry of Education and provincial governments formalised the NFE sector and introduced national NFE policies, strategic plans, and standardized curricula. Local and international development partners such as JICA, UNICEF, World Bank have played a key role in supporting policy design, piloting programs, and building capacity.  Within the NFE sector, Accelerated Learning Programmes (ALPs) were first developed and implemented in the province of Punjab (2013-14) and later scaled to in Sindh, Balochistan, KP and the Federal areas (2015-17). Over the years, the Federal and Provincial NFE departments and curriculum bureaus and authorities developed a government-endorsed ALP curriculum aligned to the formal National Curriculum. The ALP curriculum is delivered over 30 months and covers grades Pre-K to 5, with recent expansion to cover Grades 6-8 in an additional 18 months. ² The Federal government has also created ALP textbooks, following the same development, quality assurance and approval processes. In addition, systems for capacity building, monitoring, data management, assessment and certification have also been developed and operationalized. Training manuals and teacher standards, for example, were developed, and a pool of master trainers was prepared to cascade the training to ALP teachers.  Recruiting teachers from local communities helps enhance cultural relevance, while female teachers help improve attendance among girls. Although formal qualifications are preferred, flexible criteria are applied in remote areas to identify ALP teachers, prioritizing the highest available formal education and willingness to serve. Teachers are trained to deliver a condensed, multi-grade curriculum using activity-based and phonics-based methods, with a strong focus on inclusive, gender-sensitive approaches.

What evidence of the ALP’s impact is there?

The scale of ALP has grown more than tenfold over the past five years. In 2021, 13,651 learners were attending primary level ALPs across the four provinces and one federal area, and in 2025 this number had reached 138,353. ³ At the primary level, ALPs across Pakistan achieve high survival rates (75%–100%), reflecting strong learner commitment with some variation across provinces and partners. Transition rates across ALP implementers also vary, from 55% in KP to 70% and 76% in Sindh and Balochistan, respectively, to 87% in Punjab and 90% in Islamabad in one of the largest ALPs implemented by the National Commission for Human Development (NCHD). ⁴

Challenges to transition often reflect the very reasons learners drop out or don’t attend formal schools. Limited school infrastructure in remote and rural areas hampers access, especially for girls who are not allowed to travel long distances due to security concerns of families. Cultural practices and beliefs add further barriers for older girls who are expected to marry or start a family instead of going to school. Stakeholders note the need for flexible solutions, bringing learning closer to girls, including through the provision of private schools, or alternative learning pathways and models such as TVET or distance learning options, in contexts where returning to formal school is not possible. These issues are discussed further below.

What has contributed to scaling and sustaining ALPs in Pakistan’s federal system?

The Federal government’s NFE policy, curriculum, accreditation and equivalency mechanisms set the stage for provincial governments to develop ALPs that align with the formal education systems. NFE policies with transition equivalency and certification systems exist, enabling smoother entry into formal schools across provinces and the federal areas. Assessment and certification mechanisms allow ALP learners to sit for exams and–once they pass–enrol in formal schools. The Federal government has also approved a roadmap for immediate (one-year) and long-term (three-years) actions, which addresses not just access for out-of-school children and youth, but also the quality of teaching and assessment practices. These various frameworks provide a sound basis for transitions. They also  contribute to government ownership at the provincial level.

Provincial policies further support adaptation at the local-level and ensure resources are allocated to implementation. All provinces now have separate NFE sections in their Education Sector Plans (ESP). These include targets and financing plans, supported under the Local Education Group (LEG). Several ESPs have also articulated transition support strategies, such as enhancing assessment, certification, and equivalency processes (Balochistan and Sindh), providing stipends to AEP students so that they can continue their education (Punjab), or operationalising an ALP project implementation unit and building the capacity of relevant staff at the provincial and district levels (Khyber Pakhtunkhwa). ⁵ The decentralised nature of the country’s education system allows provinces and districts to respond to local needs more effectively in their design and development of education sector plans and NFE policies.

While these examples are promising, stakeholders noted the need for both formal and non-formal policies to clearly outline how transitions should be managed, and what specific arrangements are required from each sector, including sending and receiving institutions. The term transition must be clearly defined in policy, recognising the need for flexibility and multiple transition pathways to address diverse learner and community contexts (see more in our case study on Nigeria). This means offering transitions not just from non-formal to formal schooling, but also pathways to technical and vocational education and training (TVET).  Private schools, further NFE options, and distance learning should also be considered as alternatives when formal schools are not accessible (see more below). Stakeholders emphasised the need for all relevant sectors to include transition mechanisms in their respective policy frameworks.

Existing governance structures support multisectoral collaboration and coordination at the district, provincial, and union council levels. Provincial NFE Taskforces function as coordination bodies between directorates, private sector, and partners, including development partners, NGOs and public sector stakeholders.

This has included forming a technical working group and involving curriculum implementers in the development or revision of ALP curricula. Each province also has School Education Departments (SED), the government body responsible for legislating, formulating policy, and planning for primary, middle, and secondary education. Each province also has a directorate of NFE. ⁶ In Sindh, the SED leads the Provincial NFE Taskforce, exemplifying how formal and non-formal stakeholders can work seamlessly together. The National Education Emergency Taskforce also brings together formal and non-formal actors to address OOSC challenges jointly. Currently, they are preparing a National Action Plan which centres ALP as a critical response, raising its value and garnering support. The meaningful participation of communities within these governance structures is critical, to address discrimination, stigma, or conflict amongst different ethnic groups which often hinders access to community schools, and to garner support by highlighting the importance of education, and the value of transitions from ALPs to formal school. While these various governance structures are seen as effective, some stakeholders believe that in some provinces they require expansion, institutionalisation, and more regular participation from both formal and non-formal stakeholders.

Robust data systems help implementers and local authorities make smarter decisions. The Non-Formal Education Management Information System (NFEMIS), hosted by the Pakistan National Information Management System and Pakistan Institute of Education (PIE), provides a functional backbone for non-formal education data. Provincial governments use the NFEMIS, to know the number of OOSCY, where they are, what is their background, and at what grade they drop out. This data is then used to identify learners’ needs and factors within the environment that contribute to their success in ALPs and other NFE programmes. Existing NFEMIS also captures ALP learner entry and exit, including transitions to formal school and alternative pathways. While this demonstrates feasibility of long-term tracking and contributes to government ownership of ALPs, data collection and use is still not fully consistent across provinces, and the NFEMIS lacks integration with the SED’s formal EMIS system.

Formal and non-formal EMIS operate separately, with data from both only compiled together for reporting purposes. Standards, indicators, and data-sharing protocols are not uniformly defined or enforced. Learners receive new identification numbers upon enrolling in ALPs, making it difficult to track them once in the formal system. Stakeholders recommend instead using national identification numbers (CNIC/B-Form numbers) that all individuals are assigned at birth by the National Database and Registration Authority (NADRA). While NADRA could provide the national unique-ID as an anchor for NFEMIS and formal school EMIS, low birth registration coverage currently limits its use. Expansion of civil registration coverage and financing is required to strengthen coverage, enhance cohesion across data systems, and ultimately track the long-term success of ALP learners transitioning to formal school or other pathways. Expanded and harmonised data collection between NFEMIS and provincial EMIS is needed to ensure follow-up mechanisms are in place. Two illustrative examples of this are found in Islamabad and Balochistan:

Facilitating successful transitions requires preparing formal education systems in terms of their physical capacity, the availability and skills of teachers, and the provision of holistic support to learners. Many schools lack the space, resources, and trained teachers to absorb ALP graduates, while unwelcoming environments and reliance on rote learning discourage retention. Policies should explicitly plan for the placement of ALP learners, ensuring nearby facilities, adequate staffing, and strategies for overage children and girls in particular. Formal schools’ rigid age-grade policies often hamper the enrolment of over-age children from NFE, pointing to the need for more flexible enrolment policies. Girls are particularly vulnerable, requiring targeted support mechanisms such as school counsellors or mentors that provide support, help build their confidence and sense of belonging as they adjust and settle into formal schools. Introducing more learner-centred pedagogy and remedial support, particularly during the first year of transition, can help learners adapt and reduce dropout. Financial barriers must also be addressed by reducing costs and providing incentives such as uniforms, stationery, stipends, or cash transfers. Initiatives like UNHCR’s graduation award which provided cash assistance  to ALP certificate holders demonstrate how targeted support can incentivise transitions. Leveraging social safety nets further strengthens integration, ensuring ALP graduates remain in school and progress through the system.

Pakistan’s Federal Ministry of Education and Training and provincial governments and partners have made great strides in scaling and sustaining ALPs over the years. Nevertheless, various challenges identified by stakeholders remain, including fluctuating policy environments and implementation lags often due to limited funding. Education policies and priorities in Pakistan change frequently due to political instability and frequent changes in leadership (Naqvi et al., 2025). As stakeholders note, for reforms like AEPs or broader basic education initiatives to work, policies need to be stable and consistent for at least ten years; otherwise, programmes never mature enough to show sustainable results. Moreover, while Pakistan has developed strong laws, frameworks, and sector plans, these are not always carried out effectively. Policies aren’t always aligned to budgets, and accountability and monitoring mechanisms are underdeveloped, leading to implementation challenges. In Pakistan, inadequate financing remains a major barrier to scaling accelerated education, with less than 1% of GDP spent on education and allocations for ALPs and NFE far below those for formal primary schooling.

Recent developments, however, point to progress: financing for ALPs is increasingly conceptualised beyond donor support, with a stronger focus on pooling resources and making more efficient use of existing infrastructure. The government, with World Bank support, has launched the Out of School Children Challenge Fund, applying performance-based financing models to increase access and quality of education for OOSCY. Actors at federal and provincial levels are also exploring how to combine government, private sector, and NGO contributions. These efforts illustrate a shift in mindset—that financing is not only about new funds, but also about smarter use and coordination of existing resources.

Lessons for similar contexts:

1. Strong policy and legal frameworks paired with ongoing coordination and community participation contribute to scaling and sustaining ALPs, especially in federal systems. In Pakistan, federal endorsement of an ALP curriculum, textbooks, and certification mechanisms has created a common foundation, while provincial NFE policies and Education Sector Plans  adapt implementation to local needs. Coordination platforms like Provincial NFE Forums and Education Emergency Taskforces bring together government, CSOs, and development partners to align strategies and pool resources, demonstrating that better use of existing materials and infrastructure can be as critical as securing additional funding. Embedding communities in governance structures, including School Education Departments and forums, fosters local ownership, reduces resistance, and ensures ALPs reflect community priorities. Together, these elements show that legal recognition, coordinated structures, and community participation underpin both the scale-up and sustainability of ALPs.
2. Robust data systems help governments and partners make smarter decisions, though more cohesion is needed across non-formal and formal EMIS. Pakistan’s NFEMIS provides critical information on OOSCY, enrolment, and ALP transitions, giving policymakers and partners insight into where learners are, why they drop out, and what support they need. Islamabad’s structured approach demonstrates how systematic referral and EMIS entry can help achieve transition rates of 90%. Yet fragmented systems remain a challenge, with NFEMIS and formal EMIS still separate and inconsistent across provinces. Using national IDs could provide continuity, but low birth registration limits reach. Expanding civil registration coverage, harmonising standards and protocols, and ensuring interoperability between systems are essential steps to track learners’ trajectories across pathways and strengthen accountability.
3. Transition support strategies must target the formal school system, to ensure schools and classrooms are prepared to absorb transitioning learners, and marginalised children receive essential support. While ALPs offer OOSCY a second chance, their success hinges on whether formal schools are ready to welcome them. Many schools lack sufficient space, teachers, or materials, while rigid age-grade policies exclude overage children. Targeted reforms are needed, including flexible enrolment rules, remedial support, and learner-centred pedagogy that mirrors ALP practices. Marginalised groups—especially girls—benefit from tailored interventions such as stipends, counselling, or mentorship to ease adjustment. Financial incentives and social protection show how modest investments can sustain transitions. Embedding these supports into policy and planning ensures transitions are not only possible but also sustained, helping ALP graduates thrive in school.