Bridging Research and Policy: Institutionalizing an Early Childhood Education Innovation in Lao PDR

In Lao People’s Democratic Republic (PDR), a significant number of children, particularly those in rural and ethnolinguistic minority communities, enter Grade 1 without adequate preparation. Many of these children do not speak Lao as their first language, which creates a barrier to learning and contributes to poor educational outcomes. Recognizing this challenge, the Global Partnership for Education Knowledge and Innovation Exchange (GPE KIX) supported a multi-country initiative from 2020 to 2024 to adapt, test, and scale a summer pre-primary education model in Lao PDR, Cambodia, and Tanzania under the LEARN Plus project.

In this blog, I will share the journey of institutionalizing this innovation into national education policy in Lao PDR, highlighting the strategies, challenges, and lessons learned along the way.

Context and Challenge

Early Childhood Education (ECE) in Lao PDR has faced several challenges, especially in rural areas with limited access to ECE, a lack of trained teachers, and insufficient learning materials. Children from non-Lao-speaking backgrounds, often living in rural and remote areas, face the additional challenge of learning in a new language.  Without sufficient exposure to the Lao language prior to entering school, these children often struggle to engage with the curriculum, placing them at a disadvantage from the outset.

These issues are well-documented in several key assessments. The World Bank’s Social Assessment Report for the GPE III Learning Equity Acceleration Project  highlights the structural barriers faced by ethnic minority children, including language difficulties and limited access to quality ECE services. Similarly, the UNESCO Bangkok Tracer Study  underscores the need for improved teacher training and support systems to enhance the effectiveness of ECE programs. Furthermore,  UNICEF Lao PDR – Early Childhood Development emphasizes the disparities in access and outcomes among children in remote and ethnically diverse communities, pointing to the urgent need for inclusive and equitable early childhood development strategies.

The GPE KIX LEARN Plus project and its predecessor, LEARN* were designed to address these gaps. Our goal was to adapt and scale an accelerated and affordable model that could prepare children for primary school, using existing infrastructure and resources to ensure sustainability. 

The Summer Pre-Primary (SPP) course was adapted from Turkey and pilot tested in Laos through LEARN by Plan International Laos to respond to key challenges faced by children in small rural and remote areas where there is no government pre-primary education. At the end of the project, the SPP pilot program was evaluated by the American Institute for Research. Later on, it was further supported by LEARN Plus. The SPP program, a 10-week course, was designed to provide foundational learning experiences in language, numeracy, and social skills for children prior to entering Grade 1. The course was taught by Grade 1 teachers for 5-6 hours per day, five days a week during the school summer break. What made the model unique was its adaptability and cost-effectiveness. It leveraged existing classrooms and teachers, reducing the need for new infrastructure or extensive training.

The program was first piloted in selected provinces, targeting communities with high numbers of non-Lao-speaking children. Teachers received targeted training, and classrooms were equipped with culturally relevant teaching materials. The curriculum emphasized play-based learning and language development, helping children build confidence and readiness for school. 

Institutionalizing the SPP program in Lao PDR meant embedding it into national education systems and policies to ensure long-term sustainability. This was achieved through a phased, collaborative approach over nine years, grounded in evidence, inclusive engagement, and strategic alignment with national priorities.

1. Government Engagement and Co-Creation

From the beginning, we aligned our goals with national education priorities and engaged the Ministry of Education and Sports (MoES) as a key partner. Their involvement in research design, pilot implementation, program refinements, and policy discussions ensured that the model was contextually relevant and feasible. This co-creation approach fostered ownership and laid the foundation for broader institutional support.

2. Multi-Level Government Involvement for Greater Impact

Institutionalization was not limited to national-level engagement. District and provincial education officials played a critical role in piloting and refining the SPP. Their feedback helped adapt the model to local realities, and their advocacy influenced national policy decisions. To build momentum, we actively shared the program’s tools, materials, and results with the Education and Sports Sector Working Group (INGOs, CSOs, and UN agencies), fostering broader ownership and support.

3. Role of Research in Institutionalization

Research was central to every stage of the institutionalization process. We conducted a series of studies to generate evidence and guide decision-making:

• Feasibility Studies identified gaps in existing ECE programs and assessed provincial readiness.
• Implementation Research examined how the SPP functioned in real-world settings and what adaptations were needed.
• Three child assessment studies were undertaken by the local government to evaluate the quality of children's learning. The findings offered critical insights into the effectiveness of the SPP in enhancing student learning outcomes.
• The Gender Equality Assessment, conducted as part of the LEARN project, identified specific barriers experienced by both girls and boys. The results were used to improve the gender responsiveness and inclusivity of the project model, contributing to more equitable learning outcomes.
• Cost-Effectiveness Analyses demonstrated the program’s financial feasibility using existing infrastructure and personnel.
• Scaling Studies explored how the model could be expanded nationally while maintaining quality and impact.

These studies were conducted in close collaboration with MoES and local education authorities, ensuring that findings were relevant and actionable. The evidence bases were shared widely through different platforms (e.g. Education and Sports Sector Working Group) and helped build credibility and advocate for policy change.

4. Flexible Implementation Models

Recognizing the diversity of provincial capacities and resources, we developed two versions of the SPP: a comprehensive model which included a full package of activities and a lighter version which included a minimum set of activities for provinces with limited resources. This flexibility allowed for broader adoption and adaptation based on local needs and capacities, making the program more scalable and sustainable.

5. Knowledge Products and Communication

Key research findings were translated into practical knowledge products, policy briefs, guidebooks, teaching materials, and videos, tailored to different stakeholder levels. These tools were essential in communicating the value of the SPP and supporting its adoption at both national and sub-national levels.

6. Policy Integration

SPP program advocates played a critical role in the institutionalization process. Key departments such as the Department of Early Childhood Education and Research Institute of Education and Science served as anchor institutions, consistently supporting the SPP year after year. Their sustained advocacy ensured that the program remained on the national agenda, even during significant sectoral challenges such as the COVID-19 pandemic, financial crises, and reductions in the social services budget.

Through continuous policy dialogues at the Education and Sports Sector Working Group (ESSWG), capacity-building workshops, and project monitoring evaluations, the SPP program gained formal recognition. The combination of robust evidence, multi-level engagement, and strategic communication led to its inclusion in the Education and Sports Sector Development Plan (ESSDP) 2020-25. This marked a major milestone in institutionalization and laid the foundation for long-term sustainability.

Challenges and Solutions

Institutionalizing an innovation is never without challenges. One of the biggest challenges was differentiating our model in a landscape crowded with donor-supported initiatives. The government often asked, “Why should we adopt your model over others?”

To address this, we conducted a feasibility study to identify gaps in existing programs and highlight the unique strengths of the SPP. The study emphasized the model’s scalability, cost-effectiveness, and alignment with national goals. We also emphasized the use of existing infrastructure and human resources, which made the model more appealing to policymakers.

Other challenges included limited financial resources resulting from COVID-19 crises and reduced social service budget and resistance to change. We addressed these through strong partnerships, flexible design, and evidence-based advocacy. 

Lessons Learned

1. Co-Creation Builds Ownership

Engaging stakeholders from the beginning fosters trust and ensures that the innovation meets real needs. Co-creation also increases the likelihood of policy adoption, as stakeholders feel a sense of ownership over the process and outcomes.

2. Understand and Work within National Priorities

Aligning research with national planning cycles and priorities strengthens the case for institutionalization.

3. Plan for the Long Term

Institutionalization is not a one-time event. It requires strategic alignment, resource planning, and persistent effort. Flexibility and adaptability are key to navigating changing political and institutional landscapes.

Institutionalizing innovation in education is a complex, long-term process. But with strong partnerships, evidence-based advocacy, and a commitment to co-creation, it is possible to bridge the gap between research and policy. Our experience in the Lao PDR demonstrates that when governments are engaged from the start, and when innovations are aligned with national priorities, sustainable change is within reach.

For more information, please contact the author at vilasack.viraphanh@plan-international.org

*LEARN was a 4-year project implemented in 2014-2018 and supported by Dubai Cares, to adapt and scale three educational innovations in early childhood education, including the Summer Pre-Primary Program promoted in LEARN Plus.