COVID-19 has resculpted the global landscape of education, resulting in devastating learning loss that widened the gap between disadvantaged students and their peers. By exacerbating inequities around the world, the pandemic has spurred teachers and policymakers everywhere to rethink education. While various organizations attempt to make collective statements about the pandemic’s effects on the international education as a whole, invaluable information can be gained by using a more singular lens to approach the issue of COVID-19’s impact as it relates to a particular country’s education system. As the world’s most sparsely populated independent country and one whose pandemic response has been largely successful, Mongolia makes for an interesting focus point upon which the pandemic’s effects on education can be examined. Surprisingly, there are few reports exploring the ways in which Mongolian schools have been challenged by and interacted with the pandemic. In this report, I aim to explore how the pandemic affected Mongolia and what inferences can be made regarding the pandemic’s effects on Mongolian education.
Mongolia and the Pandemic
March 9, 2022 marks two years since Mongolia first came in contact with the coronavirus through a French national working in the country. From this moment on, the nation has been grappling with serious questions regarding how to best shape government policy to combat the pandemic and keep people safe. Even before the virus found its way into Mongolia, the government had been on high alert. This trend can be seen as early as January 10, 2020, when the Mongolian government issued its first public advisory, aimed at urging all Mongolians to wear a mask. This was soon followed by the closing of borders to its neighbor China with whom Mongolia shares the longest land border. The transportation restriction meant no Chinese citizen or person traveling from China could enter Mongolia. Through the implementation of its early response to the pandemic, Mongolia had managed to entirely evade any COVID-19 deaths until December 30, 2020. The Mongolian government’s determination to rapidly implement high-impact COVID-19 prevention policies stemmed not only from concerns over its shared border with China, but also from insecurity regarding the country’s health infrastructure. “Here’s the thing: we don’t actually have a great public health system,” explained Davaadorj Rendoo, an epidemiologist at the National Center for Public Health in Mongolia’s capital and largest city Ulaanbaatar. “That’s why our administrators were so afraid of COVID-19.”
As of April 2022, the number of active COVID-19 cases in Mongolia has dropped below 1,000 for the first time since late 2020. With the number of daily infections declining and the percentage of fully vaccinated people exceeding 65%, things seem to be looking up for the Mongolian people. However, while pandemic-related policies in Mongolia seem to have enabled the country to evade overwhelming fatalities, the pandemic has inflicted serious damage to the Mongolian education system. Since all schools were closed on January 27, 2020 to combat the spread of COVID-19 among students, the education system has been forced to undergo significant, unprecedented changes. These changes disproportionately affected Mongolia’s most vulnerable students living in remote areas with limited internet access and electricity. Even in Mongolia’s most populous cities like Ulaanbaatar, the immediate switch to remote learning has left no student unscathed. While UNICEF estimates that schoolchildren across the globe have lost over 1.8 trillion hours of in-person learning due to the pandemic, it is difficult to precisely conclude how much learning loss the students of Mongolia have experienced. Data is still being collected, and the pandemic has not yet been eradicated.
Mongolian Education: Pre-Pandemic
In order to gain a better understanding of the pandemic’s effects on education in Mongolia, it is important to be acquainted with the pre-pandemic state of Mongolian schools. Mongolia’s 2018 Multiple Indicator Cluster Survey provides valuable insight into the strengths and weaknesses of the Mongolian education system before the pandemic. Developed by UNICEF, the Multiple Indicator Cluster Surveys (MICS) program is the largest household survey on women and children worldwide. Its purpose has been “to assist countries in filling data gaps on children’s and women’s health statuses.” Mongolia’s 2018 MICS fortifies the argument that rural/urban educational inequity has existed in Mongolia before the pandemic, opening the doors to explore how the pandemic has interacted with that inequity. According to the report, 58.2% of rural children aged 36-59 months were attending early childhood education institutes. Compared to the 81.4% of urban children, it is evident that living in urban Mongolia comes with a higher likelihood of obtaining access to early childhood education, which has been proven to lower risks of school dropout and contribute to higher learning and employment outcomes later in life. Additionally, having access to early childhood education means that a child’s caregiver can participate in the workforce, which is key to “breaking stubborn cycles of intergenerational poverty.” Early childhood education inequity explains why higher education inequity also exists in Mongolia. According to UNESCO’s Global Education Monitoring Report, 53% of 18-22 year olds living in urban Mongolia attend higher education institutes. Compared to the 15% in rural Mongolia, it goes without saying that Mongolia’s “regional variation in poverty” contributes to wealth disparities between rural and urban regions of the country.
Turning back to the 2018 MICS, it can be observed that 4.3% of male urban schoolchildren of lower secondary school age were out of school in 2018 compared to the 8.1% of male rural schoolchildren. However, there are still some nuances to be explored, considering more female urban schoolchildren are out of school than rural female schoolchildren. This is a point upon which I would advise further research to identify what causes female urban schoolchildren to leave school and what incentivizes female rural schoolchildren to remain in school much longer than their male peers. Despite women in Mongolia being better educated than men, a gendered hierarchy still exists in which men are likely to be paid more than women in Mongolia.
Looking beyond lower secondary school students and onto upper secondary school students, the urban/rural gap in school attendance expands. While only 7.5% of urban upper secondary students were out of school during the year of 2018, the percentage jumps to 25.9% for Mongolia’s rural upper secondary students. This can be explained by the disproportionate lack of support faced by rural students; urban students exceeded rural students in every “Support for Child Learning at School” category in the 2018 MICS— “percentage of children attending school,” “percentage of children for whom an adult household member in the last year received a report card for the child,” “school has a governing body open to parents,” “an adult household member attended a meeting called by governing body,” “a school meeting discussed key education/financial issues,” “an adult household member attended a school celebration or sports event,” and “an adult household member met with teachers to discuss child’s progress.” In the context of the social determinants of learning framework, these factors have the potential to contribute highly to student achievement but are disproportionately denied to rural students. It is important to remember that this is not due to an inferiority on behalf of rural Mongolian parents or a superiority on behalf of urban Mongolian parents. Considering that they are more likely to face poverty than their urban counterparts, rural families are more likely to work more frequently in order to support their children. This means that there is not always time for rural parents and caretakers to meet with teachers and attend school meetings or events. Additionally, schools increase parent involvement—and thus student success—by building community. While developments like Mongolia’s Rural Education and Development program have contributed significantly to tightening the gap between rural and urban schools, the inequity still remains, likely posing the reason as to why rural schools may lack the resources to engage rural families living in poverty.
The Pandemic and Mongolian Schools
Mongolia’s 2020 MICS offers insight into how the pandemic has interacted with the increasingly urbanized country and its schools. The report’s information on early childhood education offers interesting doors through which more research could be conducted, specifically on the disparity between children of Khalkh ethnicity and children of Kazakh ethnicity. The report also found interesting data on rural school children outperforming city students in foundational numeracy skills in 2020. However, when it comes to information and communications technology (ICT) skills, urban students outperform rural students overwhelmingly. An observation is made in the report that ICT skill acquisition is “hugely influenced” by wealth quintiles. The ICT skills examined in this report include but are not limited to sending an email with an attached file, transferring a file between a computer and another device, creating an electronic presentation using presentation software, connecting and installing a new device, and using a copy and paste tool within a document. In our increasingly digitized world, the importance of ICT skills for students cannot be underestimated. Considering this, it is evident that rural students have faced more barriers throughout online learning than urban students. This is supported by Sodnomdarjaa Munkhbat’s comment to Friedrich-Ebert Stiftung Mongolia. As the Director of the Science and Technology Department at the Mongolian Ministry of Education, Culture and Science, she said, “School children were taught through classes broadcasted on TV and universities used remote learning technology. Both had to be developed and implanted on extremely short notice which put a lot of stress on teachers, professors, and students. TV classes were especially challenging.”
The 2020 MICS also found that parents’ engagement in ger districts of Ulaanbaatar was 10 percentage points lower than those living in apartments. The study concluded that “the low rate of engagement is also common in rural area[s] and especially in [the] Western region.” When looking at the data on parental homework help, the report found parents with certain qualities were more likely to offer their child homework assistance; these qualities include having obtained a higher education, not having migrated within the last 5 years, and having attended a public school. This offers an explanation as to why in the 2018 MICS, similar findings on lack of support for rural students were identified. This information lends itself to the acknowledgement that, in order to achieve educational equity between rural and urban students, the Mongolian education system must work to enhance resources for students whose parents have not obtained a higher education.
Although the 2020 MICS offers little insight into the pandemic itself, popular Mongolian news sources like Зууны мэдээ (Zuunii medee) supplement this deficit with their article on textbook availability. “The education sector has collapsed due to the pandemic,” journalist Ch. Gantulga wrote mournfully. Gantulga points to a lack of textbook availability as a huge problem facing Mongolia during the pandemic. D. Delgermaa, a middle school teacher, told Gantulga, “I am in charge of the seventh grade. Our class has 31 children. Due to the small number of textbooks distributed by the school, only one book is used by three children. In particular, there are not enough books on Mongolian language and social sciences. Some potential families buy textbooks for their children…Some students have problems with not being able to read e-books because they do not have smartphones. If these children have enough textbooks, there will be no problem.” Put in the context of the wealth disparities between rural and urban students previously established, it is evident that more needs to be done by the Ministry of Education, Culture, and Science to repair the learning losses exacerbated not only by the pandemic but also by lack of school resources. This sentiment does not seem to have been lost on Munkhbat, who said to FES Mongolia, “The pandemic made it very clear that the education system must be ready and responsive to high risk situations. What happened this year can happen any time again. Our way forward will be to enhance online education particularly for the higher education sector. This will be embedded in the government’s strategy of a ‘digital transformation.’” While a digital transformation is likely highly anticipated by students in Mongolia, the data leaves us with an understanding that, in addition to education as a whole, digital literacy instruction is not equitably distributed to all students in Mongolia. It will be important, moving forward, for Mongolia to put adequate resources toward building all students’ ICT skills, paying special attention to rural students.
Having analyzed the state of Mongolian education before and after the pandemic, it is evident that the pre-pandemic challenges faced by rural students have been exacerbated by COVID-19. These challenges are an extension of the poverty faced disproportionately by rural Mongolians. The disparity in school attendance between rural and urban students highlights the presence of class barriers in Mongolia. These inequities may stem from disproportionate access to early education, which has been proven to result in higher learning and employment outcomes later in life. The ways in which the pandemic has exacerbated educational inequity in Mongolia is important to analyze, considering its impact may materialize as a generation divided unequally by their level of access to education. This may be seen in the construction and perpetuation of intergenerational poverty for Mongolians who were in school during the COVID-19 pandemic. Mongolia’s Ministry of Education, Culture, and Science has the ability to change this by financing high-quality schools in rural regions of the country, implementing poverty-reduction policies for rural families so that students are not incentivized to choose work over school, ensuring school resources are equitably distributed, implementing educational policies that focus on honing the digital literacy skills of rural youth, and further analyzing the ways in which the pandemic has differently shaped educational outcomes for rural and urban students.