Data Gaps are Hiding the Most Excluded Children

Students at GH Rusheshe School in Kucikiro District, Rwanda, identified through the monitoring system through the ZERO Out of School initiative.

By Noor Muhammad Ansari
DOHA, Qatar, May 7 2026 (IPS)

In 2024, 273 million children, adolescents, and youth were out of school globally as per the UNESCO Institute for Statistics. While that is a staggering number, the figure is incomplete. The 2026 Global Education Monitoring report warns that the global out of school population may be undercounted by at least 13 million once humanitarian sources are used to correct data gaps in conflict-affected contexts.

When education data fails, the children most likely to be excluded are not just the ones out of school. There are also those who are completely missing from the systems meant to find them.

This is why data gaps are not simply a technical issue, they are a structural driver of exclusion. If a child is not in the dataset, they are less likely to appear in school planning processes, teacher-allocation formula, textbook procurements systems, transport route, or targeted social protection programmes that could have kept them enrolled.

The 2026 GEM Report highlights the depth of the challenge. In primary and secondary education, one in three countries does not report disparities by urban–rural location and one in two does not report disparities by wealth. When such information is missing, education policies that rely on national averages mask the children who are furthest behind.

Why Children Disappear from Education Data

An Education Above All Foundation Occasional Paper on counting out-of-school children explains how administrative enrolment figures can diverge from reality in predictable ways. Systems may undercount children who attend but are not registered; undercount late registrants when data are captured only once at the start of the year; or overstate participation by counting registered children who never attend.

And, these are not minor measurement errors. They are precisely how children slip through institutional cracks, especially those affected by poverty, displacement, disability, language barriers, and gender discrimination.

Finding the Children who are Missing

Consider what happens when programmes treat identification as seriously as instruction.

In our joint project with Educate Girls in rural Rajasthan in India we found that official child-tracking data often missed children in remote hamlets. To address this, community volunteers conducted door-to-door surveys at scale, across more than three million households in over 9,000 villages to identify out of school girls.

The effort enabled the programme to identify, enrol, and retain tens of thousands of girls who had previously been absent from official records. The lesson from this exercise was straightforward: it is hard to serve children you cannot see. But when systems invest deliberately in identification and verification, those learners can be found.

The same challenge applies to children with disabilities, who are too often hidden by stigma and undercounted by systems that do not measure disability consistently. In our ten-country inclusive education programme implemented with Humanity & Inclusion across Africa, we sought to “bring children out of the shadows”, through community outreach, disability-sensitive identification tools, and sustained tracking of participation, the programme successfully enrolled more than 32,000 out of school children with disabilities and supported strong retention outcomes.

These experiences show that exclusion is not only about access to education. It is also about whether systems can identify and track children who face multiple barriers to participation.

What Stronger Education Data Systems Can Do

Across many countries, governments and partners are beginning to recognise that stronger education data systems are essential to identifying and supporting the most excluded learners. For instance, in Rwanda, the Zero Out of School Children initiative uses the Waliku application, a digital monitoring tool developed with partners including Save the Children and the Ministry of Education.

Teachers use the mobile platform to register out of school children, record attendance, and track patterns of absence. When repeated absences occur, the system generates follow-up alerts so schools or community workers can contact families and support re-enrolment.

In partnership with UNICEF and Government of The Gambia, efforts are underway to integrate education data with health and civil registration systems through DHIS2 for Education, helping authorities identify children who are missing from school records and coordinate responses across sectors.

Other partnerships illustrate how digital tools can strengthen identification and monitoring in different contexts.

In Nigeria, a partnership project with UNICEF developed the Tracking Re-entry of Children to Education (TRACE) system that combines community mapping and school records to track children from identification through enrolment and progression.

In Kenya, under EAA Foundation-UNICEF partnership, a Digital Attendance Application enables near real-time monitoring of school attendance, allowing schools to detect patterns of absenteeism and intervene early.

Digital systems are also proving valuable in fragile contexts. In Syria, the EAA Foundation-UNICEF partnership project developed a Self-Learning Programme Child Monitoring System to track children participating in alternative learning pathways when formal schooling has been disrupted.

In Zanzibar, the EAA Foundation-UNICEF partnership project developed a mobile-based monitoring tool that supports community-level identification and follow-up of out-of-school children, while the EAA Foundation-World Bank partnership project in Djibouti developed digital tools that help track participation in alternative education programmes and support transitions into formal schooling.

Taken together, these initiatives illustrate an important shift: Education systems are moving from periodic aggregate reporting toward child-level identification, real-time monitoring, and early-warning systems.

As these systems evolve, particularly with advances in analytics and artificial intelligence, they offer the potential to predict dropout risks and guide targeted interventions, helping ensure that every child remains visible within the education system.

So, what should change?

Governments must treat education data as an inclusion tool, not only a reporting obligation. This means investing in learner-level education information systems that can uniquely identify learners, track attendance and progression, and safely link education data with civil registration, health, and social protection systems where appropriate.

Governments should also routinely combine and integrate data from various sources to correct blind spots in national statistics.

Secondly, development partners should fund data systems as core public infrastructure. It is untenable to finance classrooms, teachers, and learning materials while leaving ministries without the capacity to know which children are missing, where they are, and what barriers they face.

Results-based financing should also reward governments and implementers for verified inclusion outcomes, not only aggregate enrolment.

Education agencies and partners should standardise how the world counts ‘excluded.’ Globally tested tools already exist. For example, the UNICEF–Washington Group Child Functioning Module, provides a standardised approach for identifying children with disabilities in surveys and administrative systems.

For displaced learners, stronger coordination between education and humanitarian data systems is essential. According to UNHCR, there are 12.4 million refugee children of school age worldwide, and nearly 46% of them out of school.

The takeaway is straightforward: The most excluded children are often the least counted.

Closing the education gap requires closing the education data gap, so that every child is visible, reachable, and supported well before exclusion becomes permanent.

IPS UN Bureau

 

  

 

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Noor Muhammad Ansari is Director Monitoring and Evaluation, at Education Above All Foundation’s Educate a Child (EAC) Programme