1. Definitions

2. School Organization

3. Laws, Plans, Policies and Programmes

4. Governance

5. Learning Environments

6. Teachers and Support Personnel

7. Monitoring and Reporting


  1. Definitions

Inclusive education

The 2017 Standard for Inclusive Education defines inclusive education as “the process of valuing, accepting and supporting diversity in schools and ensuring that every child has equal opportunity to learn”. Similarly, the 2019 draft National Education Policy has the same definition for Inclusive Education

Special education needs

The 2012 National Policy on Special Education Needs (NPSEN) specifies that special education needs (SEN) refer to learners who need additional supportive services due to the difficulty in performing any activities compared to their peers, because of the barrier that prevents or hinders them from making use of education facilities, and/or because there are gifted.


  1. School Organization

Until the beginning of the ’60s, monastic education was the only form of education provision. Based on independent curriculum, learning environment, assessment and examinations, and standards, monastic education is still provided to impart spiritual learning and development.

The first special school was established in 1973 targeting children with visual impairments. Special education was expanded in 2001 through a pilot programme based on an integrated school for special needs education at Changangkha Lower Secondary School, Thimphu. In 2003, a school for hearing impaired students was opened in Drukgyel Lower Secondary School.

As of 2019, there are 20 schools implementing inclusive and SEN programmes including two special institutes (Muenselling Institute for the Blind and Wangsel Institute for the Deaf). In addition, there are four NGOs working for persons with disabilities (Ability Bhutan Society, Disabled Persons Association of Bhutan, Draktsho Vocational Training Centre and Selwa) Currently, Bhutan has all three types of school organization or educational set up (separation, integration and inclusion) due to difficult geographical terrain for accessible infrastructure development, lack of resources and capacity. More than 80% of the students with disabilities enrolled in the school are in the inclusive learning system

Communities located in remote or mountain areas, or populated by ethnic groups are acknowledged with a special status. According to their geographical location, schools are categorized in difficult (D), very remote (VR), remote (R), semi-remote (SR), semi-urban (SR), and urban (U). Due to their exceptional conditions, special provisions and considerations are admitted for the education provision in schools located in those areas.  

Beside the formal education system, Non-Formal Education Centres and community-learning centres provide learning opportunities for local people, including literacy courses.


  1. Laws, Plans, Policies and Programmes

At the international level, Bhutan signed the UN Convention on the Rights of the Persons with Disabilities (CRPD) in 2010 and is yet to ratify.

At the national level, the 2008 Constitution of the Kingdom of Bhutan mandates the state to provide free education to all “for the purpose of improving and increasing knowledge, values and skills of the entire population with education being directed towards the full development of the human personality” (art. 9). It also contains a general non-discrimination provision for all persons “on the grounds of race, sex, language, religion, politics or other status” (art. 7.15). Special protection is guaranteed to women (art. 9.17) and children (art. 9.18). The fact that education is as an inalienable right of all Bhutanese has been reiterated in the Vision 2020. The 2011 Child Care Protection Act entrusts the education institutions with the rehabilitation of children in difficult circumstances and with the provision of continuing education to those who have dropped out from schools (art.26).

At present, there is no legal document regulating the education system, although the need to adopt an Education Act was raised in the Bhutan Education Blueprint – rethinking education 2014-2024. However, the development of National Education Policy has reached at an advance stage and it is expected to approve by the Cabinet in 2020.

The latter is a roadmap that aims to inform the reform of the education system. It aims to promote equitable, inclusive and quality education opportunities for all and recognizes the need to make schools more flexible and inclusive to accommodate the needs of all children, especially gifted and the more disadvantaged learners. The 12th Five Year Plan (FYP) 2018-2023 also intends to provide inclusive education to all children ensuring that no one is left behind, despite disabilities, remoteness and economic disadvantage. The Plan intends to establish at least one school for inclusive and SEN programme in every district and municipality.

Drawing upon the Constitution and previous education policy documents, the 2019 draft National Education Policy provides overarching directions for the new education system based on the principles of education access, quality and equity. The Policy calls for collaboration between the Ministry of Education and relevant government agencies for the enhancement of quality and inclusive education, through the provision of support, among others, for learners with special education needs. The economic background, gender and/or special education needs are taken into consideration for the provision of scholarships and access schemes for tertiary education.


Signatory of the Proclamation of the Economic and Social Commission for Asia and Pacific (ESCAP) Commission on Disability on the Full Participation and Equality of People with Disabilities in 2008, Bhutan commits in the Education Sector Strategy 2020 to ensuring access to and participation in education to all children with disabilities and with special needs.

In 2012, the National Policy on Special Education Needs (NPSEN) was adopted, marking a shift in the approach towards inclusion in education. With the purpose of empowering every learner with special education needs and ensure they have equal access to appropriate, enabling and responsive education, it calls for including or integrating children with mild to moderate disabilities into regular settings by providing them with support services, appropriate infrastructure and adequate teachers and support personnel. In the long-term, the Policy intends to make the education system more inclusive. The objective is to provide students with special education needs with specialized, appropriate educational services and facilities, including trained personnel, as reaffirmed in the 2019 draft National Education Policy.

With support from the Austrian Development Corporation (ADC), a National Policy for Persons with Disabilities was drafted in 2018 together with an action plan for its implementation. The Gross National Happiness Commission (Planning Commission) has led the development of National Policy for Persons with Disabilities that was recently endorsed by the Cabinet. The policy has adequate provision for education with an emphasis on inclusive education. Following the approval of the policy, national action plan for implementation of the policy was also developed. In collaboration with UNDP, UNICEF and World Health Organization (WHO), a workshop was organized to promote the rights of persons with disabilities in Bhutan, involving representatives of the civil society.

The Ministry of Education has also developed 2017 Standards for Inclusive Education, 2018 Guidelines on Assessment, Examination, Promotion and Transition for Students with Disabilities, and a Ten-Year Roadmap for Inclusive and Special Education in Bhutan and Communication for Development (C4D) Strategic Action Plan to enhance access and quality education for persons with disabilities in the country.


With the general purpose of strengthening gender mainstreaming and women’s empowerment, the National Plan of Action for Gender (NPAG) 2008-2013 dedicates an entire section to education and training of girls and women, particularly at tertiary level and in TVET. More recently, the 12th Five Year Plan (FYP) 2018-2023 endorses a gender perspective and intends to promote gender equality, in particular bridging the gap of gender parity in tertiary education. The educating for Gross National Happiness (GNH) programme supports gender responsiveness in school education through workshops on gender responsiveness and gender awareness and advocacy at school.

Several initiatives promotes girls’ access to education, for instance, the Youth Development Fund (YDF) runs a scholarship scheme encouraging basic, higher education and undergraduate education for women and girls. The TARAYANA Foundation also implements a scholarship programmes specifically targeted at girls to pursue tertiary education.

Ethnic and linguistic groups

As established in the Constitution, Dzongkha is the National Language of Bhutan (art. 1.8). The state is committed to preserving, protecting and promoting local languages (art. 4.1). As reiterated in the 2019 draft National Education Policy, Dzongkha is taught as national language in all schools of the country, while English is the medium of instruction.

The promotion of national and local indigenous languages is part of the strategic programmes of the 12th Five Year Plan (FYP) 2018-2023. Implemented by Dzongkha Development Commission, the programme is expected to map 18 indigenous dialects for their preservation.

People in rural or remote areas

Bhutan Education Blueprint – rethinking education 2014-2024 points out the need to overcome the rural –urban divide in terms of student’s learning achievements. More recently, the National Education Policy has planned to provide learners residing in rural areas with free stationery.


  1. Governance

At the national level, Gross National Happiness Commission has played a leading role in bringing all sectors together for the development and implementation of National Policy for Persons with Disabilities, which the participation of representatives from the Ministry of Education.

Under the Department of School Education, a Unit responsible for special education services was set up in 2000, and then upgraded to the Early Childhood Care and Development and Special Education Needs (SEN) Division in 2011. It has played a fundamental role in scaling up targeted services for children and youth with special needs. In an effort to effectively implement the 30 goals identified in the Ten-Year Roadmap, the Ministry of Education formed a multi-sectoral steering committee for inclusive and special education in November, 2019.

Zhung Dratshang is the only body responsible for regulating and managing monastic education. The 2019 draft National Education Policy invites Zhung Dratshang to collaborate with the Ministry of Education and other relevant government agencies for the enhancement of quality and inclusive education.

As independent agency, the National Commission for Women and Children (NCWC) has the mandate to protect and promote the rights and the interests of women and children. A Gender Focal Persons Network has been set up in all the government departments.

In 2012, a decentralized policy was introduced with the purpose of increasing school efficiency. The policy mandates the principals with new instructional leadership activities and to establish a School Management Board (SMB).


  1. Learning Environments


As regulated in the 2019 draft National Education Policy, standard physical facilities is expected to include “appropriate furniture and teaching and learning equipment, learning support facilities such as libraries and counselling rooms, administrative facilities, water and sanitation facilities, games and sports facilities and equipment, as issued by the Ministry of Education or relevant agencies.” It also specifies that schools need to adhere to eco-friendly standards design.

The Ten-Year Roadmap for Inclusive and Special Education has specific provision on improving physical accessibility of educational institutions: “Physical accessibility is an essential element of enabling inclusive education. When planning for physical accessibility the Ministry of Education needs to consider retrofitting existing buildings and school grounds, as well as ensuring that the master designs for new construction enable accessibility, for all educational buildings, including hostels, WASH facilities and ECCD centres. The Ministry needs to consider safety features for students with disabilities by planning for disaster. The Ministry will also need to plan for accessible transportation”

Monastic Lobdras and Shedras also need to meet the physical facility standards, including functioning water and sanitation facilities, sporting facilities and administrative facilities to ensure accessibility to all students regardless of age, gender, disability, and climatic conditions.


Goal no. 24 of the Ten-Year Roadmap states, “appropriate curriculum is key to enabling all children to learn. The general curriculum must be flexible and adaptable so that most students can access it, while there is a need for functional curriculum for those with severe intellectual disabilities who will not be able to access an academic curriculum. Curriculum needs to have choice built in to enable students to study to their strengths. Specific curriculum adaptations are necessary for Deaf students due to language differences” In addition, there are several action points stated for adaptation and modification of general curriculum for students with disabilities in order to fulfill the above goal.

Curriculum and pedagogy have to be inclusive in terms of gender, special educational needs, socio-economic background and geographic location, as prescribed in the 2019 draft National Education Policy. In particular, the curriculum is required to be flexible to cater for the need of all students to complete basic and higher secondary education and suit the local contexts. The purpose to reform and update the curriculum accordingly by the Royal Education Council was also highlighted in the 12th Five Year Plan (FYP) 2018-2023.

ICTs and Learning materials

The 2019 draft National Education Policy mandates the Dratshang Lhentshog (Commission for the Monastic Affairs of Bhutan), in consultation with Zhung Dratshang, (Central Monastic Body) to support teachers with adequate and appropriate teaching and learning materials, including textbooks.

In 2013, an ICT roadmap was first rolled out in the form of 5-year Education ICT Master Plan, technically and financially supported by the Ministry of Information and Communications (MoIC), Infocomm Development

Authority of Singapore, Temasek Foundation, Singapore and Swiss Development Corporation. Revised with the technical guidance from UNESCO Bangkok, iShering-2 Education ICT Master Plan 2019-2023 was adopted. With the purpose of implementing inclusive education and providing access to students with SEN, the Education ICT Master Plan emphasizes the need to strengthen existing services by providing digital assistive devices and technologies. Yet, the focus of the Plan is only on secondary school students with visual and hearing impairment.


  1. Teachers and Support Personnel

The Paro College of Education has a module on special education for final year B.Ed students. The college has also recently introduced Master of Inclusive Education for teachers teaching children with disabilities and the first cohort will undergo their masters in early 2020.

As highlighted in the 2012 National Policy on Special Education Needs (NPSEN), teacher training is supposed to integrate a special education component in its programme. All schools that arrange children with special educational needs are expected to have trained teachers in differentiated teaching and in needs assessment. The Policy has further planned to equip inclusive schools with specialized personnel, such as teacher assistants, caregivers, counsellors, and therapists.

According to the study conducted in 2016 on teacher’s concerns and experiences, 69 percent of the respondents were not trained and equipped to teach SEN students. Enhancing teacher development and support is among the priorities of the 12th Five Year Plan (FYP) 2018-2023 by rolling out an 80 -hour programme of professional development to improve teachers’ knowledge and skills through in-service trainings and workshops, supported by scholarships and fellowships.

The Ministry of Education through the SEN programme office organizes both short-term and long-term trainings and workshops for SEN teachers on inclusive and SEN. As of 2019, all teachers in schools with SEN programme are oriented on the Standards for Inclusive Education which is one of the first approach to support schools to become more inclusive. While only handful of teachers have Master’s degree in inclusive and special education or related programme, more than 100 teachers are trained in inclusive and SEN related components, annually by the Ministry. Currently, more than 700 teachers who are currently teaching in schools with SEN programme have received either one or the other form of training thus far.


  1. Monitoring and Reporting

Bhutan provides annual education statistics.

The Ministry of Education has recently developed a module on SEN and added to the current Education Management Information System (EMIS). This module is not only expected to give comprehensive information on the enrollment of children with disabilities, but also provide information related to other areas such as student’s achievement and transition, accessible infrastructure and facilities, professionals, and support from the parents and community

Data are collected on the numbers of students enrolled in schools with SEN programme and specialized institutes, disaggregated by gender. Data for other groups include learners receiving monastic education and the girls’ enrollment rate. The new Education ICT Master Plan 2019-2023 intends to develop an integrated and comprehensive EMIS based on new technologies to inform evidence-based decision making, updating the one introduced by the Ministry of Education in 2011.

Concerning gender, a monitoring system has been piloted starting from 2015, focusing on responsive planning, budgeting and monitoring from a women’s rights perspective. A gender equality variable was also included in the Gross National Happiness (GNH) policy-screening tool.

Last modified:

Fri, 03/04/2020 - 16:13