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English Language Education Reform in Malaysia


The Roadmap 2015-2025

ISBN: 978-967-5387-45-6

Ministry of Education Malaysia, 2015.

All rights reserved. No part of this publication may be reproduced, stored in a


retrieval system, or transmitted in any form or by any means, electronic, mechanical,
photocopying, recording, or otherwise, without the prior permission of the publisher.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Forewords

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

FOREWORD
Minister of Education, Malaysia

T
he Malaysian Education Blueprint 2013-2025 highlights the need
to ensure that every child is proficient in at least two languages:
bahasa Malaysia and English. Fundamental to this goal is the
provision of the necessary resources required for language learning,
reflected in the various language-based initiatives within the Malaysian
education system. While the medium of instruction in our education
system remains bahasa Malaysia, the Ministry of Education believes that
the goal of bilingual capacity will be achieved if a concerted effort is made
to upskill teachers and students in English proficiency.

It gives me great pleasure to convey my congratulations to the English


Language Standards and Quality Council (ELSQC) in coming up with
the English Language Education Roadmap document. This document
is timely as it provides a roadmap for the main stakeholders on how to
move forward in addressing the challenges facing the nation in producing
human capital that is proficient in the English language, an undeniable pre-
requisite for Malaysia to succeed in this globalised world. The Common

iv
European Framework of Reference (CEFR) that we plan to adopt will I am very hopeful that this plan will succeed as it has taken a
allow us to charter our course of action in improving the English language comprehensive and holistic approach that includes the whole educational
proficiency of our students and teachers in terms of curriculum, teaching spectrum right from preschool to higher education, as well as the very
and learning as well as assessment. important lynchpin of teacher education. It is also my hope that everyone
will give their undivided support to the adoption and implementation of
The Ministry of Education as the main driver of educational this roadmap, just as it will be supported by the Ministry of Education.
innovation in the country, acknowledges the fact that change is inevitable
if we intend to move with the times. We must strive to ensure that all PENDIDIKAN ITU KEGEMBIRAAN, PENDIDIKAN ITU
our students are given the opportunity to realise their full potential and KEBAJIKAN, PENDIDIKAN ITU KETERBUKAAN
equip them with competitive edge skills to become global players. Change
in the education system involves the introduction of new materials and
pedagogies as well as the change in mind-set and attitudes. The roadmap
will involve both types of changes while serving as a guiding force to
impact change at all levels of education. In order for the roadmap to
succeed, it is of utmost importance that all stakeholders take ownership of
this plan. YB DATO SERI MAHDZIR BIN KHALID
Minister of Education, Malaysia

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

FOREWORD
Minister of Higher Education, Malaysia

T
he English language plays an important role in higher education. It
enables students to access information and engage in intellectual
discourse. Its role has become even more significant in todays
increasingly borderless world as education becomes more globalised and
economies more multinational. This then calls for stronger and more
concerted efforts by universities to equip their students with a good
command of English.

Pressure to raise student English proficiency levels is driven by the


need to perform academic tasks in the language, as well as from the rapid
development of a global system of higher education. Mobility programmes
and the international exchange of resources and personnel bring the world
to Malaysian campuses, requiring universities to ensure that their students
are capable of communicating effectively in English.

The Graduate Employability (GE) Blueprint (2012) views universities


as the cornerstone of a countrys supply of quality and talented human
resource. Therefore, developing competence in English for the workplace

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has also become an imperative role of universities in todays complex global European Framework of Reference (CEFR) as a move to firstly, allow
employment market. Universities are now expected to ensure that their us to view the English proficiency levels of Malaysian graduates on an
graduates are more employable by being linguistically competent in the international scale and to set appropriate targets for the next decade.
English language. Secondly, the CEFR provides a common denominator for reviewing
and aligning English Language curricula, pedagogy and assessment in
To do so, universities need to nurture learner-autonomy and self-
universities, while still allowing individual universities to maintain their
directed learning for graduates to continue developing as life-long language
autonomy.
learners. The ability to be self-aware, self-driven and independent will
stand them in good stead as entry-level employees and in the long term.
A paradigm shift is thus required for undergraduates to move away
from a culture of passive formulaic learning to embracing self-directed,
autonomous learning.

Thus this urgent need to develop English-proficient and self-directed


graduates is being given due attention in the English Language Education YB DATO SERI IDRIS JUSOH
Minister of Higher Education, Malaysia
Roadmap developed by the English Language Standards and Quality
Council (ELSQC). The Roadmap proposes the adoption of the Common

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

FOREWORD
Secretary-General of the Ministry of Education

I
would like to congratulate the English Language Standards and
Quality Council (ELSQC) for delivering this Roadmap for English
language education. The Council was commissioned to chart the way
forward for the teaching and learning of English in our education system,
and was given the autonomy to formulate a comprehensive plan to drive
English Language Teaching (ELT) development in the country.

I note with interest that the Roadmap takes forward the thinking that
has been developing over the last five years at the Ministry of Education.
Firstly, the Roadmap formalises the Ministrys on-going efforts to
strengthen ELT, as encapsulated in the Memartabatkan Bahasa Malaysia
Memperkukuh Bahasa Inggeris (MBMMBI) policy. Secondly, the
Roadmap provides the framework for the execution of the plans proposed
in the Malaysia Education Blueprint (MEB) 2013-2025, for the future of
our education system, specifically in the area of ELT. It is also significant
to note that the Roadmap has utilised the findings of the Cambridge
baseline study on the teaching of English language in our schools. We now

viii
have a clearly focused plan for English language teaching which fully aligns provided with an education that enables them to develop the English
with the Ministrys language teaching policy. language skills they would need to boost their future employability, as
well as their roles as responsible, productive citizens who could contribute
Our efforts in the past have been largely directed towards the effectively to the well-being of the nation. This is in congruence with the
expansion of our education system to ensure equal access to education call to maximise student outcomes for every ringgit spent as expressed
for all children from preschool to post-secondary, and tertiary level. Our in the MEB 2013-2025.
concern now is on establishing and sustaining a system of high quality
education that stands among the best in the region and beyond. A key I look forward to significant improvements in English language
factor to attaining quality education, and ensuring its sustainability, is on- teaching that will follow the implementation of the Roadmap. I hope and
going first-rate capacity building for our teachers. Investing in our teachers expect that this will be an important step towards the transformation of
is vital as we strive towards becoming a national provider of high quality our education system.
English language education.

A message that comes across very clearly from the Roadmap is that
a high performing education system combines equity in education with YBHG. TAN SRI DR. MADINAH BT MOHAMAD
its quality. In the case of English, we have to ensure that, irrespective of Secretary-General
Ministry of Education, Malaysia
gender, family background and socio-economic status, all children are

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

FOREWORD
Director-General of the Ministry of Education

Bismillahhirahmanirrahim.
Assalamualaikum Warahmatullahi Wabarakatuh.

T
he Ministry of Education Malaysia strives to ensure that
Malaysian students are prof icient in both languages, namely
bahasa Malaysia and the English language. This aspiration
is underpinned in Shift 2 of the Malaysia Education Blueprint
2013-2025 which focuses on developing students who are at
least operationally prof icient in bahasa malaysia and the English
language, and at the same time providing opportunities for students
to learn an additional third language. The Ministrys aim is for all
students leaving the education system to be independent users of
the English language.

The English Language Education Roadmap is a timely and


worthwhile effort that is intended to ascertain harmony and
continuity in the teaching and learning of the English language at all
levels of education in Malaysia. This Roadmap is a comprehensive
and holistic plan as it not only emphasises the skills and abilities
needed by students to become proficient and independent users of the
English language, but also the competencies required by the English

x
teachers of the language in order for the plan to succeed. Alignment I take this opportunity to thank the English Language Standards
to the Common Framework of Reference for Languages (CEFR) and Quality Council (ELSQC) for producing this document. It is
has also made this Roadmap a more credible plan with international my hope that all stakeholders involved will ensure the successful
relevance. implementation of the roadmap for the betterment of our present and
future generations.
The Roadmap provides comprehensive guidelines for all
stakeholders to gauge the targeted proficiency levels of students from .
preschool right up to tertiary education. This document will serve
as a guide for teachers to ensure students achieve the proficiency
levels set against international standards. Students will benefit from
the roadmap in which they will be equipped with the language skills
to be global players and positioned to be part of the workforce in a
globalised world. Dato Sri Dr. Khair Bin Mohamad Yusof
Director-General
It is also hoped that all initiatives encapsulated in the Malaysia Ministry of Education, Malaysia
Education Blueprint 2013 2025 and all English Language Education
programmes use this Roadmap as a reference so that a concerted plan
of action is carried out with respect to the teaching and learning of
English in Malaysia.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

FOREWORD
Chair of the English Language Standards and Quality Council

Bismillahhirahmanirrahim.
Assalamualaikum Warahmatullahi Wabarakatuh.

r
eforming education is an enormous undertaking. We have
to start with a clear idea of what has to be done to make
an improvement, and we have to ensure that the planned
improvement can be carried out in practice in the real world. We
also have to convince the different stakeholders including teachers,
administrators, parents, employers and the general public that the
benefits will outweigh the cost and effort involved.

When the English Language Standards and Quality Council


(ELSQC) was asked to produce a roadmap for English language
education, the key decisions had already been taken. The Malaysian
Education Blueprint (MEB) had been published in line with the
MBMMBI policy, and Cambridge English had been commissioned
to benchmark our existing provision for English teaching, and their
baseline report had been submitted. Our task has been to complete
the preparations, and produce a timetabled plan to be implemented by
2025, or in the case of universities, by 2028.

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To create a top-performing education system, it is first necessary The interests of these and other stakeholders have been taken into
to create a high-calibre teaching workforce. Intending English account in the preparation of this Roadmap, and it is presented in the
teachers must be provided with world class education to give them hope and belief that it is within our grasp to make substantial and
not only the English proficiency, but also the content knowledge continuing improvements in our English language education in the
and the pedagogical skills they will need to achieve excellence in the course of the next decade.
classroom. Teachers already in post need the means to improve their
The most important of our stakeholders are the nations children.
proficiency, knowledge and skills, and to catch up on advances made
The prosperity and international standing of our country by the
since they were themselves trained. The point is made several times in
middle of the present century will depend in very large measure on
the course of this document that teachers need support, and this is a
the start in life given to the children who are already progressing
point that cannot be made too often or too strongly.
through our education system or who are about to enter it. For the
Employers can reasonably expect the national education system foreseeable future, educational success for our children will include
to provide them with recruits who already have the basic knowledge of proficiency in English.
English they will need, and who are ready for the more specific training
Implementing the plan put forward here will be difficult, it will
required for different kinds of employment. Education administrators
require sustained effort, and it will be expensive; but these efforts
want a national education system of which they can feel proud, and
and costs are as nothing compared to the costs and reparatory efforts
which makes a substantial contribution to national well-being and
that will otherwise be required, not to mention the waste of talent
advancement. Parents want their children to be given the English
and the losses to national economic development. This Roadmap is
proficiency they will need to find employment and advance in their
offered in accordance with the principles of good housekeeping and as
careers, and in some cases to bring their families out of poverty.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

a contribution to national advancement and the realisation of national


aspirations; but the most important consideration of all is that it has
been prepared for the benefit of the present generation of Malaysians
and the next.

PROF. DR ZURAIDAH MOHD DON


Chair of the ELSQC
Ministry of Education, Malaysia

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Acknowledgements

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Acknowledgements

T
his project was supported and funded by the Ministry their part in turning the initial inchoate ideas into a comprehensive and
of Education with the aim of creating a timetabled inclusive plan ready for implementation.
implementation plan for the systemic reform of English
language education in Malaysia. The intended reform is part of a Having commissioned the Roadmap, the Ministry has given
wider initiative to bring about the transformation of the existing the support which is so essential to see the preparation and writing
English language education system not only in Malaysian schools from through to completion. Sincere gratitude for support goes to Dr
preschool to post-secondary, but also at tertiary level, and in teacher Ranjit Singh Gill, the former ELTC Director, who participated in the
education. initial development of this Roadmap, and to the current Director
Dr Mohamed Abu Bakar, and to the Deputy Director, Pn Zainab
The Roadmap completes for the special case of English plans for
Yusof. Among the individuals from the ELSQC Secretariat that
the future of our education system that have been under development
I wish to thank are Dr Suraya Sulyman, Dr Sivabala Naidu and Pn
at the Ministry of Education since 2010. I would like to thank the
Sarina Salim. I would like to say a special thank you to my colleagues,
Ministry for having the confidence in the English Language Standards
especially my closest collaborators, who have worked tirelessly to
and Quality Council to commission it to take the next essential step in
make success possible, and who have been admirably patient in
developing English language education.
putting up with telephone calls at unsocial hours, and carrying out
essential work at short notice, or indeed no notice at all.
The preparation of this Roadmap has been a huge undertaking
and the writing of this document has constituted an enormous
I would also like to thank my present and previous colleagues on
amount of work. It would not have been possible without the help
the ELSQC for their contributions. Chapters 4 to 9 in Section B were
and support of the many bodies and individuals who have each played
delegated to groups of writers each headed by an ELSQC member

xvi
and reviewed by members of the ELSQC and Puan Hooi Moon This document is the result of input and insights provided by
Yee. The chapters submitted have been edited as far as possible, numerous people, including the different stakeholders, over the last
but the credit is due to the writers and the responsibility for the two years, who have made a substantial contribution to the shaping of
content of the chapters remains theirs. I also wish to thank those the final document. Finally, I wish to thank those whose constructive
of my colleagues who kindly volunteered to review and improve the feedback, critical input and continuous help and support got us
text, and also the former members of the ELSQC who were with through the final stages and enabled us to complete the document on
me during the initial stages of the development of the Roadmap. The schedule.
whole of Sections A and C, and the editorial introduction to Section B
have been written centrally.

When the separate manuscripts are in, the work begins on


Zuraidah Mohd Don
bringing them together in the form of a coherent document.
Chief Editor and Principal Writer
This would have been impossible on top of everyday academic Professor, University of Malaya
responsibilities, and I was fortunate in that the last three months
coincided with the beginning of my sabbatical leave. I wish to
express my appreciation to the Vice Chancellor of the University of
Malaya for granting me the sabbatical leave which made possible the
completion of the whole document.

xvii
English Language Education Reform in Malaysia
The Roadmap 2015-2025

English Language Standards and Quality Council

Prof. Dr Zuraidah Mohd Don Prof. Dr Anna Christina Abdullah Assoc. Prof. Dr Arshad Abd Samad Assoc. Prof. Datin Dr. Dr Kuldip Kaur Karam Singh
CHAIRPERSON PA N E L M E M B E R PA N E L M E M B E R Mardziah Hayati Abdullah PA N E L M E M B E R
Universiti Malaya Universiti Sains Malaysia Universiti Putra Malaysia PA N E L M E M B E R LeapEd Services
Universiti Putra Malaysia

Dato Dr Lee Boon Hua Ms Janet Pillai@Liyana Pillai Dr Mohamed Abu Bakar Ms Sarina Salim Mr Mohamed Khaidir Alias
PA N E L M E M B E R PA N E L M E M B E R S EC R E TA R Y S EC R E TA R I AT O F F I C E R ACTING SECRETARIAT OFFICER
LeapEd Services Independent Consultant English Language Teaching Centre English Language Teaching Centre English Language Teaching Centre

xviii
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Editor, Writers and Reviewers

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Editor, Writers and Reviewers

Chief Editor Zuraidah Mohd Don Content of document Writers/Authors

Reviewers Zuraidah Mohd Don, Anna Christina Abdullah, Acknowledgements Zuraidah Mohd Don
Mardziah Hayati Abdullah, Arshad Abd Samad,
Lee Boon Hua, Kuldip Kaur Karam Singh,
Janet Pillai, Hooi Moon Yee, Gurnam Kaur Sidhu, Overview Zuraidah Mohd Don
Choong Kam Foong, Saidatul Zainal Abidin,
Lim Peck Choo, Stefanie Pillai, Hawa Rohany,
Zainab Yusof, Cheok Oy Lin, Sarina Salim Editorial Introduction Zuraidah Mohd Don
to Section A
Proofreaders Zuraidah Mohd Don, Hooi Moon Yee,
Mardziah Hayati Abdullah, Tan Kok Eng, Chapter 1 Zuraidah Mohd Don
Chandrakala Raman, Pamela Devadason,
Marina Abu Bakar, Saidatul Zainal Abidin,
Malek Baseri, Jayanthi Sothinathan, Cheok Oy Lin, Chapter 2 Zuraidah Mohd Don, Sivabala Naidu,
Zainab Yusof, Audrey Lim Bee Yoke, Kamariah Sarina Salim
Samsuddin, Kalminder Kaur, Mohamed Khaidir
Alias, Farah Mardhy Aman

xx
Chapter 3 Zuraidah Mohd Don, Ranjit Singh Gill, Chapter 6: Secondary Arshad Abd Samad, Hawa Rohany,
Suraya Sulyman, Sarina Salim Ramesh Nair, Leela James Dass,
Pamela Devadason
Editorial Introduction Zuraidah Mohd Don
to Section B Chapter 7: Kuldip Kaur Karam Singh, Gurnam Kaur
Post-secondary Sidhu, Lim Peck Choo, Mazlina
Chapter 4: Preschool Anna Christina Abdullah, Tan Kok Eng, Mohamad Aris, Marina Abu Bakar
Chithra K.M.Krishnan Adiyodi,
Yeoh Phaik Kin, Regina Joseph Cyril Chapter 8: University Zuraidah Mohd Don, Mardziah Hayati
Abdullah, Hooi Moon Yee, Saidatul
Chapter 5: Primary Lee Boon Hua, Mardziah Hayati Akmar Zainal Abidin
Abdullah, Aspalila Shapii, Yong Wai Yee,
Chandrakala Raman, Mohamad Najib Chapter 9: Choong Kam Foong, Stefanie Pillai,
Omar, Regina Joseph Cyril Teacher Education Terry Yap, Cheok Oy Lin, Amar Shobha
Sarna

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Editorial Introduction Zuraidah Mohd Don


to Section C

The Roadmap Zuraidah Mohd Don, Anna Christina


Abdullah, Lee Boon Hua, Arshad Abd
Samad, Kuldip Kaur Karam Singh,
Hooi Moon Yee, Mardziah Hayati
Abdullah, Choong Kam Foong,
Sarina Salim

Overall design Zuraidah Mohd Don, Hooi Moon Yee,


of the document Sarina Salim, Mardziah Hayati Abdullah

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Table of Contents

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Table of Contents
Forewords iii
Acknowledgements xv
English Language Standards and Quality Council xviii
Editor, Writers and Reviewers xix
Overview xxv

Section A - Context and International Standards 1


Chapter 1 - The Provenance of the English Language Roadmap 5
Chapter 2 - The Historical Background to English Language Education in Malaysia 35
Chapter 3 - The CEFR 55

Section B - Looking Back and Moving Forward 83


Chapter 4 - Preschool 113
Chapter 5 - PrImary 157
Chapter 6 - Secondary 189
Chapter 7 - Post-secondary 227
Chapter 8 - University 245
Chapter 9 - Teacher Education 271

Section C - The Roadmap 315

Appendices 381
Glossary 397
List of Abbreviations 403
References 409
Contributors 423

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Overview

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Overview

T
he purpose of this document is to propose a Roadmap for
English Language Education from preschool to university to
enable us to embark on the reform of our English language
education system aligned to international standards. The Roadmap is
concerned for the most part with the English language programme,
which includes three components, namely curriculum, teaching and
learning, and assessment. The programme is part of the wider English
language education system, which includes the whole infrastructure
for the teaching and learning of English. While the proposals put
forward have implications for the English language education system
as a whole, the only part of the system other than the English language
programme that is considered in detail here is teacher education.

The document is divided into three sections, A, B and C. Section A


contains preparatory and background material, and deals with general
considerations that encompass the more specific issues that are dealt
with in Sections B and C. The chapters of Section B undertake a
critical evaluation of the current English language programme at
each stage of education from preschool to tertiary education and
including teacher education, and make recommendations for reform
and sustainable improvement. Section C presents the Roadmap in the
form of a set of tables based on the findings and recommendations
emerging from sections A and B, together with recommendations for
the formulation of policy. Aspirational targets are set for 2025 (see
Chapter 1 and the Roadmap) according to the CEFR global scale in
order to make explicit what we want to achieve in principle by 2025.
These will be supplemented by staged targets before the end of 2015,
so that we can track our performance and check that we are on course.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

SEC T ION A
1
English Language Education Reform in Malaysia
The Roadmap 2015-2025

2
English Language Education Reform in Malaysia
The Roadmap 2015-2025

A
Context and International Standards

3
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Context and International Standards

S
ection A introduces the Roadmap document, and sets the
scene for Sections B and C.

The first chapter is concerned with what we are trying to


achieve, and where we want to go. It deals with the provenance of the
Roadmap itself, and picks up ideas that have long been in the air such
as transforming our education system and making our English language
education system one of the best in the region and beyond and shows
how these ideas can potentially be turned into reality by 2025.

Chapter 2 traces the historical development of our education


system, and the changing position of English within it. The chapter ends
with lessons to be learned from our history, which need to be taken
into account in future plans. Chapter 3 is concerned with the Common
European Framework of Reference for Languages (CEFR1), which
has been selected to benchmark the performance of our current English
language education system against international standards, and monitor
developments in the years to 2025. The chapter includes the reasons
why the CEFR is the obvious choice for Malaysia.

Looking ahead, this section summarises the many different factors


and considerations that must be taken into account as we begin the task
of reform. Having benchmarked the current performance in English of
students and teachers from preschool to post-secondary level, we are
in a position to go on to align our English language education system to
international standards in the form of the CEFR. Detailed discussion
of the general points raised in this section including matters that go
beyond alignment to the CEFR are left to Sections B and C.
1
The acronym generally used is CEFR, although the shorter and possibly more appropriate
CEF is also used, but less frequently.

4
English Language Education Reform in Malaysia
The Roadmap 2015-2025

The Provenance of the


English Language Roadmap
1
5
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Chapter 1: The Provenance of the English Language Roadmap

T
his opening chapter outlines the circumstances which led
to the writing of a Roadmap for English language education
in Malaysia. The Roadmap has been made possible by
previous work which has been commissioned or undertaken by
the Ministry of Education, and which enables us to complete the
task of developing policy into a plan for English. This is discussed
in Section 1.1, which relates our work to developments in the
Ministry of Education since 2010. Section 1.2 is concerned with the
connection between the reform of our English language education
system and the achievement of our national goals. Section 1.3
responds to the aspiration to transform our education system,
and links transformation to reform and the creation of a quality
culture. The achievement of excellence in education is known to
depend on excellence in the teaching workforce, and this is the
topic of Section 1.4. The section that completes the chapter looks
ahead to the implementation of the Roadmap.

1.1 Developing policy into a plan

This Roadmap completes the preparatory stages of an


unfolding government plan for language teaching and learning in
Malaysia. The starting point is the new MBMMBI policy, which
was introduced in 2010, and defines the respective roles of
English and Malay in the education system. The next important
landmark was the appearance in 2013 of the Malaysian Education
Blueprint (MEB), which sets out a general plan for the reform
and development of the education system to 2025.

6
The Cambridge Baseline Results Report, which also appeared At the same time, the MBMMBI policy strives to strengthen
in 2013, investigated the present state of English teaching and proficiency in English as the international language of
learning, and provided hard evidence of where we are now in communication and knowledge, thus enabling the exploration of
relation to the state of affairs envisaged in the MEB with respect knowledge so vital to compete at national and global levels. The
to English. This document picks up the baton, and presents MBMMBI policy views English as a means to empower the nations
in some detail exactly what we have to do to bring our present citizens to compete in todays era of globalisation. This Roadmap
English language education system up to the standard outlined in is concerned with the English part of the MBMMBI policy, and is
the MEB. The next stage is to put the plans into effect. expected to complement a corresponding roadmap for Malay.

1.1.1 The MBMMBI policy


1.1.2 The Malaysian Education Blueprint
The Roadmap is drafted in accordance with the new language
The MEB appeared in 2013, and is concerned with the
policy Memartabatkan Bahasa Malaysia Memperkukuh Bahasa
development of Malaysian education as a whole to 2025, with the
Inggeris to uphold Malay and to strengthen English. The new
aim of transforming the existing education system and making it
policy took an important step forward in repositioning Malay and
one of the top third of education systems in the world. It contains
English as respectively the national language and the language of
a brief sketch of the place of English in the wider educational plan,
international communication.
and this sketch has now been elaborated in the form of a plan for
The MBMMBI policy aims to uphold the rightful position of the reform of the English language education system (see Section
Malay not only as the national language but also as the main C). Although the proposed reform applies specifically to English,
language of communication, the language of knowledge, and many of the proposals apply mutatis mutandis to the teaching and
the language for nation-building crucial towards achieving the learning of other languages in Malaysia, so that English has the
objectives of 1Malaysia (Ministry of Education Malaysia, 2010, p. potential to act as the trailblazer for other languages.
6). Malay is thus seen as crucial for national identity and nation-
A major decision which has already been made (MEB, p. 4-1),
building, and as having the potential to produce its own body of
and which affects a large number of consequent decisions, is to align
knowledge.
curriculum and assessment to the Common European Framework of

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Reference (CEFR), which is mentioned briefly below and discussed This evidence is provided by a baseline study commissioned
at greater length in Chapter 3. Having an existing framework to by the Ministry of Education and undertaken by Cambridge
work with not only saves an enormous amount of time and effort, English1, which led to a Results Report submitted in 2013 and
but since it has been developed over a long period of time by scholars entitled Cambridge Baseline 2013 (henceforth the Cambridge
from many different countries, we can also be confident that it will Baseline)2. This baseline study used the CEFR to evaluate the
cater for our specific needs in Malaysia. current state of English teaching and learning in Malaysia according
to prevailing international standards, and assessed the proficiency
The MEB identifies eleven fundamental shifts which need to be
of samples of students from preschool to post-secondary education,
undertaken in order to reform the education system. Seven of these
and also the proficiency of a sample of English teachers.
shifts 1, 2, 4, 5, 7, 9, and 10 are relevant to English language
education in particular, and are discussed separately in the Editorial The comparative evaluation is known as benchmarking (see
Introduction to Section C. The programme of reform is timetabled, Chapter 3), and its value is that it gives us a clear idea of how
and is planned to be implemented in three Waves. The Waves are our current performance matches that of other countries. The
discussed in the Editorial Introduction to Section C, and referred to report leaves us in no doubt whatsoever that although our current
several times elsewhere in this document. In order to synchronise the English language education system may be sufficient for the
reform programme outlined here with the original Waves, reference needs of the past, it is not at all sufficient for us to succeed as a
is made in Sections B and C to three phases which come into line nation in a globalised world that requires English for international
with the Waves at the end of Wave 2 in 2020. communications of all kinds.

1.1.3 The Cambridge Baseline 2013 1.1.4 The Roadmap for English Language Education

In order to apply the general education planning put forward The essence of the problem that this Roadmap sets out to solve
in the MEB to the special case of English, we first have to know is that we have an English language education programme that has
where we are now. We have to ascertain our starting position in evolved since independence in 1957 to satisfy our national needs
order to measure the gap to be crossed by 2025. It is essential as they were in the second half of the last century. In the present
to proceed not on the basis of opinion and hearsay but as far as century we find ourselves in a very different situation, and in order
possible on the basis of hard evidence. to fulfill our national aspirations, we have to come to terms with
1
Part of Cambridge Language Assessment, which is itself part of Cambridge University.
2
Also informally the baseline report or the baseline study. References
unless otherwise stated are made to the Results Report.

8
the challenge not only of global English but also of ICT which uses Plans for reform have to begin with three fundamental questions.
English as its resident language. What are we trying to achieve? Where are we now and how did
we get here? How are we going to get to where we want to be?
The reform is timely, because increasing global mobility,
including developments in ASEAN, adds urgency to the need to The first of these questions is addressed in Section A, the second
reform our English language education system, and provide our is addressed with respect to the different stages of education in
young people from all social backgrounds, school leavers and Section B, and the third question is addressed in Section C. We
graduates, with the means to compete successfully. have to start with a clear idea of what we are trying to achieve
and of our present position in order to coordinate and integrate
We have to create a programme that provides our young people
the many different activities involved in the reform of our English
with the English proficiency that will enable them to communicate
language education system.
effectively in social and professional contexts which for those
going on to tertiary education includes coping with the English
1.2 Creating an agenda-driven English language programme
requirements of their academic courses and to find suitable
employment when they complete their education, and to succeed
If we are to improve the existing English language programme,
in their careers. Our key aims are:
we have to adopt and consistently maintain a clearly defined high
1. to produce an English language programme of international level principle of organisation that guides decisions made at lower
standard supported by a quality delivery system; levels. The principle adopted for this Roadmap is here called agenda-
driven planning, and the aim is to create an agenda-driven English
2. to make available quality English language education to all language programme.
students, and as far as possible narrow or close achievement
gaps irrespective of ability, gender, socio-economic background, Our starting point is to observe what happens when there is
and geographical location; no clearly defined guiding principle. It is well known, for example,
that examinations have a washback3 effect on classroom teaching,
3. to produce a timetabled implementation plan or roadmap and perhaps on the curriculum and even on the perceived purpose
supported by a dedicated team to oversee its effective delivery. of learning. The effect of uncontrolled washback can be that the
students learn very little of any real value. Teachers understandably
3
Also known as a backwash effect. In using the term washback, we here follow the usage
adopted for the Cambridge Baseline Study.

9
English Language Education Reform in Malaysia
The Roadmap 2015-2025

concentrate their efforts on getting their students through the


examinations, and if the examinations do not test the right things,
much of this effort is as far as the outside world is concerned
entirely wasted.

The MEB deals at some length (pp. 4-2 4-4) with the three
Student
dimensions of the curriculum, namely the written curriculum, Examinations Teaching
Learning
the taught curriculum and the examined curriculum, and draws
attention to problems (p. 4-3) in that the (written) curriculum
has not always been brought to life in the classroom and The architecture of the current English
Figure 1.1a
examinations do not currently test the full range of skills that the language programme- Examination-driven
education system aspires to produce. The executive summary of
the Cambridge Baseline Study also identifies a problem of this kind
in Malaysian schools (p. 15).

When teachers teach for examinations, much of the curriculum


not included in the examining process will be perceived as
irrelevant, however well thought out and pedagogically desirable
Textbooks Student
Curriculum and learning
it may be. For the same reason, textbooks may be regarded as materials Learning
useless or irrelevant. According to the Cambridge Baseline (p.
16), 87% of teachers felt the textbook was inadequate. In these
The architecture of the current English
Figure 1.1b
circumstances it is not surprising if students do not quite understand
language programme Curriculum-driven
why they are learning English, or as the Cambridge Baseline puts
it lack motivation and do not recognise the importance of English
for their future (p. 8).

10
The current situation is represented in Figures 1.1a and 1.1b. targets. For this to be possible, the targets must be clear and
(see above). The first of these represents a situation in which explicit, and there has to be an implementation strategy in
the examination system effectively controls what teachers do in place to make it happen.
the classroom, and ultimately what students learn. Figure 1.1b
2. The programme needs to be driven in a beneficial manner.
represents the relationship between curriculum and learning
Although the examination system is in practice the usual
materials, and reflects the fact that textbook writers are required
driver, it is not an appropriate driver and creates problems. The
to design materials according to the curriculum.
curriculum must be in the driving position.
The situation represented in the figures is found in many
This creates a new situation as illustrated in Figure 1.2 (see below).
countries across the world, and it is by no means unique to Malaysia.
The problem that immediately becomes obvious on inspection of In an integrated curriculum-driven programme, the curriculum
Figure 1.1 is that examinations and curriculum do not have much to provides teachers with appropriate content to teach at appropriate
do with each other. Figure 1.1b represents what is officially going times, while textbooks and other learning materials support the
on in classrooms in principle, and Figure 1.1a what is happening in teachers and the students, and forms of assessment evaluate
reality and in practice. No education programme can succeed with student performance in accordance with the aims of the curriculum.
conflicting goals. It is important not to pre-judge the issue of assessment, and it
must not be taken for granted that student performance is best
The first step is therefore to reconcile the conflicting goals. It
measured by conventional examinations.
is not possible in reality to negate the washback effect, but what
we can do is to harness it, so that instead of being a source of Examinations have an important place, but it must be clear
problems, it becomes a source of strength. To do this, it is essential what that place is, and how examinations relate to other forms of
to take two related steps: assessment. A curriculum-driven programme provides a natural focus
for teacher training, which is geared towards producing teachers to
1. The different components of the English language programme
contribute effectively to the programme.
curriculum, teaching and learning, assessment, and teacher
training must be very closely integrated, so that all parties A question prompted by the inspection of Figure 1.2 is where
involved in the programme work in harmony towards the same the curriculum comes from. The obvious answer is that an English

11
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Textbooks
Teaching & and learning Assessment
Learning materials

Student
Curriculum
Learning
Figure 1 .2 A curriculum-driven programme

Curriculum Teaching & Assessment


Learning

International Student
standards Learning
Figure 1.3 A programme driven by international standards

12
curriculum is designed to teach English; but the fact is that there of the CEFR, and a further advantage of the CEFR is that we in
are many different ways of teaching and learning a language. In an Malaysia are fully in control of what we take from it, and how we
interconnected and globalised world, it is essential to take account of make use of it for our own national advantage.
international best practice.
A further consideration in the design of the programme is peoples
The problems that our English teachers encounter are faced by motivation to learn languages, and people learn languages for many
language teachers and administrators the world over. By taking the different reasons. A traditional motivation is to read literature in the
decision to use the CEFR as the guiding framework for curriculum original language, and the study of English at university level in Malaysia
development, we also face the challenge of international standards. was formerly closely related to the study of English literature.
The benchmarking which we have already begun evaluates our
Another motivation is to communicate with people in a
curriculum and other aspects of our English language programme
country in which one spends a long period of time, and for many
according to the standards set by international best practice.
Malaysians this remains a powerful motivation to learn English.
International benchmarking enables us to develop our English language
However, it would appear from the baseline study (pp. 7-8) that
programme in a principled manner. This leads to a programme driven
many Malaysians spend a lot of time learning English without quite
by international standards, as illustrated in Figure 1.3 (see above).
knowing why they are doing it.
The adoption of international standards brings with it a number
There has to be a motivation for learning English that applies
of advantages. For example, the use of a common framework will
equally to students from rural and urban areas, to boys and girls,
ensure that our programme in Malaysia is fully up to date with
and to students studying the Arts and the Sciences. This motivation
what is known globally about language teaching and learning and
comes directly from national aspirations. Malaysia has long aspired
about best practice. It is difficult under present conditions for
to be recognised internationally as an advanced high-income nation
international employers or university admissions officers to evaluate
by 2020, and in order to turn aspiration into reality, there are certain
examination results indicating a level of success in relation to a
things we have to do, which means we have to have a clearly defined
curriculum unique to Malaysia. Common international standards
agenda. For example, we need to increase the contribution to the
will enable an informed comparison of levels of achievement in all
nation of our school leavers and graduates by making them more
countries that use them. These will in practice be the standards
employable4.
4
The National Graduate Employability Blueprint, MoHE.

13
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Curriculum Teaching & Assessment


Learning

National Quality student


Aspirations outcomes
by 2025

International
standards In the case of the English language programme, this translates
into the need for graduates with sufficient English language skills
to obtain suitable employment, and at a lower level for school
leavers with the English proficiency necessary for jobs that require
contact with English speakers. It is in the national interest to
create a workforce with the necessary English language skills;
Figure 1.4
but it is also very much in the interests of individual graduates

An aGENDA-driven and school leavers to develop these skills for themselves, whether
they work for an international corporation, or serve in a shop,
programme restaurant or hotel. Linking the English language programme to
national aspirations leads to the situation illustrated in Figure 1.4.

14
National aspirations have already motivated the decision to This subsection ends with a brief summary:
benchmark our English language programme. A consequence of
benchmarking is that it brings to light ways in which the curriculum 1. The English language programme must be driven not by
needs to be modified in order to bring our English language examinations but by our national agenda, which is itself based
programme fully up to prevailing international standards. The on our aspirations as a nation, and which amounts to what we
curriculum in turn drives teaching and learning, and teaching and as a nation want to achieve by making all our young people
learning together drive the development of learning materials and learn English.
ultimately assessment and teacher training.
2. The different components of the programme curriculum,
Note that in Figure 1.4, the international standards bubble is teaching and learning, learning materials, and assessment
placed below the line, because being international they are not must be fully integrated, and we need a strategy in place to
under Malaysian control. The other three, namely curriculum, ensure that this integration is achieved and maintained.
teaching and learning, and assessment are placed above the
line. The identification of national aspirations, along with the 3. The development and implementation of the programme have
curriculum, teaching and learning, and methods of assessment all to keep to the timetable outlined in the MEB in the form of
belong to Malaysia. Waves 1 to 3.

Benchmarking, by contrast, gives us information on how our


provision compares with international standards, and we can use
1.3 Bringing about transformation
this information and exploit it to our own advantage. Although
benchmarking cannot of course control what we do, it can help us A term which is currently in widespread use in the MoE is
decide what goes into our national curriculum in order to achieve transformation 5. Something is transformed when it is changed
our national aspirations. from a less desirable state to a significantly more desirable state.
Transformation is not an action but the perceived outcome of
positive action. The positive action we need to take is to reform
our existing English language system. We resolve to undertake a

5
Government Transformation Programme: The Roadmap. The Prime Ministers Office, 2010.

15
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Reviewing
Figure 1.5 the existing
Transformation
English
the Establishing
National
Language
Producing and
Implementing
of the English
Language
reform Aspirations
Education
System and
a Roadmap Education
Process Measuring its
System
Performance

programme of reform in the hope and expectation that it will lead areas in need of reform. Several such areas have been identified in
to transformation (see Figure 1.5). the baseline study and in Section B, and they include the spoken
proficiency of students and teachers, and teacher education.
The national aspirations have already been established (see
the MEB, p. E-1), and the review of the existing system has been Having been identified, these problem areas have to be
undertaken by Cambridge English. The findings of the Cambridge attended to as matters of priority, for otherwise we will not carry
Baseline will have to be followed up with a more detailed positive out a worthwhile reform, we will not reach the goals set by the
critical evaluation, the aim of which is not to destroy, but rather to national agenda, and the transformation will not take place. Our
identify shortcomings with a view to putting them right. task is not only to identify areas in need of reform, but also to
show how reform can be implemented so that the aspiration for
While the outcome may be negative in the short term, this
transformation becomes a reality.
is ultimately a positive process that leads to positive outcomes.
In the case of English language education, we have to identify

16
Quality
Quality Quality
English
Delivery Learning
Language
System Outcomes
Programme

Quality Culture in
English Language Education

Figure 1.6 ACHIEVING A QUALITY CULTURE


17
English Language Education Reform in Malaysia
The Roadmap 2015-2025

1.3.1 Creating a quality culture and make successful transitions from preschool to primary school
and then secondary school, and perhaps on to tertiary education.
The mechanism of reform by means of which we can bring
about transformation is the creation of a quality culture. Our Quality in the programme itself needs to be matched by the
English language education system must bear the hallmark way it is delivered to learners in the classroom. A quality delivery
of quality, which means that quality must be sustained and system includes:
maintained throughout, making the system comparable to high-
1. a continuous and sufficient supply of high-calibre teachers;
performing education systems (MEB, p. 2-2). To create a quality
culture (see Figure 1.6), we need 2. the provision of high quality learning materials including online
learning resources;
1. Quality in our English language programme;
3. the creation of a high quality learning environment.
2. A quality delivery system;
Quality would appear already to have been achieved in the
3. Quality in learning outcomes. selection of recruits for teaching. The MEB reports (p. 5-3) rising
academic standards among applicants for teacher training, and a
The achievement of quality in the English language programme ratio of no fewer than 38 applicants per place. The Cambridge
begins with the alignment of our programme to international Baseline draws attention to the high level of commitment on the
standards, so that we know how it compares with the rest of the part of Malaysian English language teachers.
world, and the rest of the world knows how to evaluate Malaysian
educational qualifications. The different components of the However, the Cambridge Baseline also makes clear that
programme need to be integrated and aligned so that the curriculum although Malaysia has a number of high-calibre teachers, the general
specifies the right things to be taught at the right time and in the standard of performance in the classroom, both with respect to
right order, and assessments test what students have been taught English proficiency and professional skills, is disappointingly low.
and provide them with qualifications that indicate what they are able The quest for quality in this case has to begin by ascertaining why
to do in English when they have left the education system. Students the early promise of teaching recruits is not followed through to
need to progress in a systematic fashion through the programme, their later performance in the classroom.

18
Quality teachers need quality tools, and these include reaches all our young people, and that they are given a chance to
textbooks and other learning materials of international standard, succeed in learning English irrespective of their social background
and classroom equipment to enable them to make the most or geographical location.
effective use of class time, including where appropriate the use
Opportunity goes beyond the classroom experience, and covers the
of ICT for teaching and learning. The time of quality teachers is a
whole learning environment. Equality of opportunity for all, including
resource that needs to be well managed, and teachers should spend
rich and poor, boys and girls, and for those from urban and rural areas
their time doing things that only teachers can do. For example, the
will not only give young people from less advantaged backgrounds a
introduction of school-based assessment could be undermined if
better chance in life, but also take advantage of hitherto underutilised
teachers are already overloaded with other work, and they need
talent and potential for the benefit of the nation.
to be relieved of work that could in principle be done by others.
The acquisition of quality textbooks would itself relieve teachers The English Language Standards and Quality Council
at least in part of the need to produce basic learning materials. (henceforth ELSQC) has been established as the overseer of
standards and quality in our English language education system.
A high quality learning environment is one that optimises the
What is clearly needed is a hallmarking system for taught courses,
conditions for student learning. This includes not only textbooks
teacher training programmes, assessments, and other ventures in
and other formal learning materials, but also reading materials that
the field of English language.
the students enjoy reading, and films and other video materials
that they enjoy watching. The rich environment needs to be Such a task would require resources far beyond those of the
extended beyond the classroom, so that students are exposed to ELSQC, and so much of the quality control would have to be
English and can use English in situations relevant to their everyday delegated to bodies answerable to the ELSQC whose members have
lives. Parents and others with sufficient English can be actively been ascertained to be of the right calibre. Procedures for assessing
involved in the childrens learning, and can even help in the school. teachers, for example, would themselves have to be hallmarked.

Quality in learning outcomes means that students achieve Hallmarking would also address another practical problem
what they are capable of achieving, and no students are left facing our education system as a whole. Despite huge expenditure
behind for lack of opportunity. In accordance with the principle on education, we are underperforming in relation to our national
of equity, we have to ensure that an improved English programme wealth (MEB, p. 3-27), and we are obtaining a poor return on our

19
English Language Education Reform in Malaysia
The Roadmap 2015-2025

investment and expenditure. We need to get value for every ringgit Integrating the system
(MEB, p. 6-11). Hallmarking would save expenditure on poor quality The need to integrate the English language education system can
ventures unlikely to lead to improvements, and concentrate spending perhaps best be highlighted by drawing attention to problems that
on high quality ventures more likely to yield positive results. arise when integration is lacking. The examples cited briefly here are
discussed at greater length in the relevant chapters of Section B. If
speaking proficiency is set as a top priority for the English language
1.3.2 Integration programme but the assessment is limited to the testing of reading and
writing, then the assessment is not integrated with the rest of the
Among the most important ingredients of quality is integration.
programme.
All the different components have to work together as a single
integrated functioning system. Decisions taken at one stage have If the learning materials used do not match the curriculum,
consequences for decisions to be taken further downstream. The or if they do not enable students to achieve the learning goals
MBMMBI policy leads to the MEB, and the MEB leads to the associated with the curriculum, then there is a lack integration
commissioning of this Roadmap. The Roadmap needs to include within the programme itself. If students are expected to learn to
the design of an internally consistent English language programme communicate in English, but teachers are not trained to enable
that can be implemented in practice. students to develop communicative competence, then there is a
lack of integration in the English language education system as a
The inclusion in the programme of a national curriculum
whole. Problems of this kind manifest themselves at the same time,
aligned to international standards creates the need for teachers
and give students a flawed learning experience which may make it
to be trained to teach it. The different bodies that train teachers
difficult for them to learn at all, or at least to maintain morale.
have to be brought together to ensure that teachers are trained
to teach the right things in the classroom. In order to make the Progress
teaching of the curriculum effective, students need access to
Lack of integration causes problems of a rather different kind
appropriate learning materials, and assessment procedures need
as the student progresses through the education programme. For
to test the right things and measure the extent to which students
example, if beginning readers are required to read whole sentences
are achieving the intended learning outcomes. All parties involved
before developing basic word recognition skills, or if learners are
must be working together towards common goals.

20
expected to use grammatical forms in writing before recognising understanding English grammar. In both cases, it appears that
them in reading, then there is a lack of integration that can only children are expected to learn the same content at least twice in
hamper their progress. the course of their education.

It is essential that as students progress through the learning For example, according to the national curriculum, much of
programme the things they are given to learn are appropriate Year 1 is concerned with letter recognition, and phonics teaching
for their present stage of development in accordance with the proper begins in Year 2 and continues until Form 5. Children who
principle of developmentally appropriate practice and presented have already learnt the letters of the alphabet in preschool will not
in the right order, so that the programme is integrated when viewed have much to learn in Year 1, and primary school children who have
through time. learnt to use phonics methods to recognise words will be doing it
all again in secondary school.
Progression
A consequence of the division of the programme into largely Perhaps the most difficult handover problem involves the transition
independent modules is that particular attention needs to be from school to university. The transition is particularly problematical
paid to the management of student transfer from preschool to in view of the different routes to university entrance and the different
primary school, and then on to secondary school and perhaps kinds and amounts of tuition available, if any, to prepare students for
tertiary education. Students entering primary school will have the English language demands of their university courses.
very different experiences of learning English at preschool level,
The consequence of the current lack of integration is that the
ranging from nothing at all to a good start in speaking and reading;
standard of English of many students coming up to university is
and similarly secondary schools take in students from primary
inadequate for their needs, and for these students it is probably
school with a range of ability in English.
already too late to bring their English up to the necessary standard.
Since children spend different lengths of time in preschool, the This situation has prompted remedial action at university level,
handover between preschool and primary school can be expected which is reported elsewhere in this document. The integration
to be problematical. A problem which is discussed elsewhere in of the English language programme includes the establishment of
this document concerns the teaching of beginning literacy. Among handover procedures to ensure that students make the transfer
the problems children face are recognising English words, and successfully at each stage.

21
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Classroom teaching and


learning is an area which will
require a thorough reform in
order to be made compatible
with the philosophy of teaching
and learning which is built
into the CEFR and described
in the baseline study.

The ability range The figures provided in the Cambridge Baseline give cause
A modern integrated education system is expected to cater for for concern in connection with the extremes between Year 6 and
all children across the ability range. Although aspirational targets Form 3. The CEFR measures language proficiency on a scale
express the hope that all students will achieve a certain level of beginning with A1, and progressing through A2, B1, B2, and C1
proficiency in English at the end of each stage of their education, to C2. The percentage of students below CEFR A1 falls from 32
the reality is that some students will not achieve this level, while in Year 6 to 12 in Form 3, while at the upper end, the percentage
others will advance far beyond it. above A2 rises from 13 to 31. The percentage in A1 or A2 remains
virtually unchanged, from 56 in Year 6 to 57 in Form 3. There is
The different needs of above average students, average a small amount of improvement, for the figure for A1 falls from
students and the weaker students need to be taken into account. 34% to 28%, while the figure for A2 rises from 22% to 29%. If we
Intervention programmes will in some cases be required to provide now compare the figures for Form 3 and Form 5, we find that the
the above average students with a real challenge, and to prevent largest single group is the 29% in A2 in both cases.
the weaker students from being left behind.

22
The number below A2 falls from 30% in Form 3 to 27% in Form raised in the Executive Summary of the Cambridge Baseline on
5, while the number of those above A2 rises from 31% to 35%. page 12, where in the upper picture the children are sitting in
Although these figures do indicate some progress, this progress is rows listening to the teacher talking, although one child is more
slow, especially in the middle of the range; and even in the extremes, interested in the photographer, while in the lower picture, children
the progress slows down between Form 3 and Form 5. are actively involved in learning.

There are many possible explanations for these figures, but The approach to teaching must be based on what is known
one possibility that needs investigation concerns the transfer from about how children learn in general, and how they learn languages
primary school to secondary school. How is it that weak students in particular. Special attention has to be paid to early learning,
make more progress than average students? What is the favourable because this is when the foundations are laid for lifelong learning.
circumstance that enables the more able students to flourish in the Shaky foundations in English will make it difficult for the child ever
first years of secondary school? to develop a high level of competence in English later on; while on
the other hand firm foundations provide the child with the means
to achieve excellence. Although the framework does not lay down
1.3.3 Quality in the programme either how languages should be taught, or how communicative
proficiency should be assessed, there is no doubt that task-based
Quality in the programme begins with a quality curriculum, teaching and learning are strongly reinforced (Little, 2006, p. 169).
which is then followed through by quality in teaching and learning,
in learning materials, and in assessment. The focus here is on these Teaching at all levels has to take into account what the learners
last three components. are expected to do. Traditional language teaching does not always
make a clear distinction between learning about a language and
Teaching and learning learning to use it in communication. Since the development of the
Classroom teaching and learning is an area which will require communicative approach to language teaching and learning from
a thorough reform in order to be made compatible with the the early 1970s, the emphasis has been on using the language, and
philosophy of teaching and learning which is built into the CEFR this approach is reflected, for example, in the can do statements
and described in the baseline study (pp. 9-14). The problem is associated with each level of proficiency of the CEFR.

23
English Language Education Reform in Malaysia
The Roadmap 2015-2025

The adoption of a communicative approach to the learning of Language learning should as far as possible emulate authentic
English does not mean that acquiring the forms of English including classroom use;
pronunciation, grammar, and vocabulary is unimportant. This
is because communication skills are based on the knowledge and The goal of language learning is using the language rather than
understanding of the forms of a language, and so learners need to knowing about it;
know the forms of the language in order to develop these skills.
Language learning is not additively sequential but recursive
The forms of the language must be taught not for their own sake,
and paced differently at different stages of acquisition;
but in order to enable the learner to communicate. This requires
of the teacher a much deeper understanding of linguistic form than Language learning is not the accumulation of perfectly
for the mere teaching of such things as plurals, tense forms and mastered elements of grammar and vocabulary, and learner
irregular verbs. errors are to be expected;

The baseline study draws attention (p. 5) to the wide range of Language proficiency involves both comprehension and production
achievement at different stages of school education. For example, which come together in interaction, although comprehension
Form 3 is described as at level A2 on average. In fact this accounts abilities tend to precede and exceed productive abilities;
only for about 28% of students, for about 41% of students are
below this level, and about 31% above it. In order to be effective, Language use requires an understanding of the cultural context
teaching will have to include differentiation strategies (p. 13) in which communication takes place;
providing support for the weaker students and suitable activities
for the more advanced students. The ability to perform is facilitated when learners are actively
engaged in meaningful, authentic, and purposeful learning tasks;
If our goal is to develop in learners the ability to communicate
in English, then our approach to learning must be guided by certain Assessment reflects instructional goals and is based on
principles including the following: performance;

24
Educational technologies and textbook materials play support the materials are trying to help children to learn, and the children
roles for language learning, and should not determine the must be learning something useful and relevant. In the teaching of
curriculum (British Columbia Ministry of Education, 2011, p. 1). a language, there must be no gaps or lacunae.

It is already too late at the time of writing to do much about On the other hand, the materials must be free of learner errors.
teaching and learning for Wave 1, and these issues will have to be It is important to bear in mind that children will acquire poor
addressed in Waves 2 and 3 and reflected in teacher education. models of a language just as effectively as good models. Children
What can be done in the shorter term is to reconsider the who do not have independent access to English outside school are
curriculum and its influence on classroom practices. particularly vulnerable if they are given an inappropriate model
of English to learn. It is essential to set up a strict and effective
For example, Speaking has emerged in the baseline study as an
system of quality control for English language learning materials.
area of weakness (p. 6 and p. 9), and yet students are required to
learn to pronounce English words correctly and speak English with Assessment
appropriate stress, rhythm and intonation. The question is how they Assessment has to reflect the values of the language programme
can do this either (a) from a printed textbook or (b) from teachers as a whole. What is taught in the classroom is determined by the
who cannot do these things for themselves. In this case, classroom curriculum and ultimately by national needs. The purpose of the
practices have important consequences for learning materials. assessment is to ascertain to what extent students have been
Learning materials successful in achieving the goals set by the curriculum. Current
practice needs to be considered in the light of the comments in the
Learning materials reflect the learning culture for which they
baseline study (p. 15). If our goal is communicative competence in
are designed. If we change our classroom culture, we shall also
English, then this needs to be reflected in the forms of assessment
need learning materials of a new and different kind. The baseline
adopted.
study (p. 16) outlines the strengths and weaknesses of a sample of
primary and secondary materials (see Chapters 5 and 6). The person in the best position to assess students is the
classroom teacher. As students develop new skills, their progress
Learning materials must be fit for purpose. There are two sides
can be recorded by the teacher. If the progress is genuine, and
to fitness for purpose. On the one hand, it must be clear what

25
English Language Education Reform in Malaysia
The Roadmap 2015-2025

the assessment properly carried out, students should be able to


demonstrate their skills in a snapshot type of test. The problem
with this, as pointed out in the baseline study (p. 13), is that Preschool A1
teachers are already overwhelmed by administration.

1.3.4 Targets
Primary school A2
The national agenda sets as the overall target for our English
language programme the production of school leavers and graduates
with the level of English proficiency they need to make themselves Secondary school B1/B2
employable in the modern globalised world. It is not enough to
hope that students will reach the required level by the end of
their education: a quality system needs to set interim targets for
each successive stage. Here for example are some common-sense Post-secondary B2
interim targets:

Preschool: raised awareness of English, the ability to say simple


things in English and the first steps to English literacy; University B2/C1
Primary: basic functional English literacy and some limited
ability to communicate in English in familiar social situations;

Secondary: the ability to use English as a matter of course in


Teacher Education C1
everyday situations with the potential to use English at the
place of work;
CEFR TARGETS FOR
Figure 1.7
EACH STAGE OF EDUCATION

26
Post-secondary: sufficient command of English to meet the Obviously not all students will reach the target set at each
challenge of English at university; stage; but on condition that the programme is reformed in
accordance with the principle of equity, we can reasonably expect
Graduate: the skilled use of English in the context of that between now and 2025, an increasingly large proportion of
employment for those joining the workforce on graduation, our students from all social backgrounds will be achieving the
and in an academic context for those studying for a higher CEFR target set for each stage of education.
degree at home or abroad;

Teacher education: a high level of English proficiency


1.3.5 Research
(combined with pedagogical expertise) leading to effective
English teaching in the classroom. A danger that inevitably accompanies highly standardised or
integrated education systems is that they are difficult to change. The
These common-sense targets are presented here for purposes
last thing we want is a juggernaut that creates its own momentum
of illustration, and the more carefully considered targets on the
and careers out of control and proves impossible to stop, or steers
CEFR scale are presented above.
to a different course. This is how new ideas are stifled and the
A major advantage of using the CEFR is that common-sense opportunity to make useful innovations is lost. We therefore need
targets have already been considered in great detail and linked to build flexibility into our English language programme.
to a standard scale. The CEFR scale enables us to convert our
The way to do this in an educational context is to take account
common-sense targets into formally defined targets which are
of relevant research undertaken elsewhere, and to promote
understood internationally for each stage of our English language
research of our own. We need a research culture to ensure that
programme (see the CEFR Global Scale in Chapter 3). The
relevant new knowledge, wherever it is created anywhere in the
targets set to be achieved by 2025 for our children to reach as
world, is made available here in Malaysia, and used effectively to
they progress through our English language programme are shown
keep our programme up among the international leaders.
in Figure 1.7.
The CEFR gives us a running start as it is itself based on the
research findings of several decades. At the same time, we need

27
English Language Education Reform in Malaysia
The Roadmap 2015-2025

to build up an English language research tradition of our own, and teachers and go on to speak English effectively in work situations
become creators of international knowledge. Research at this level requiring English, or in international situations. Teachers are not
is properly the responsibility of our research universities. ordinary language learners, because they need to be aware of what
they are learning in order to teach their students effectively.
Educational research can be carried out at different levels,
and much useful work can be done by people who do not think
of themselves as researchers at all. For example, no matter
1.4.1 Creating a high-performing English education system
how carefully a new programme is devised, we have to expect
problems arising from imperfect integration and uncoordinated It has become internationally known in recent years that in order
implementation. We need a mechanism in place to ensure that any to create a high-performing education system, it is first necessary
such problems are systematically reported and solved. to produce a high-calibre teaching workforce. This subsection
outlines the challenge we face in the provision of education for
Any teacher can report problems, and they can be solved by
English teachers. A report published by McKinsey & Company
experienced teachers with the necessary expertise. Innovations
in September 20076 presents the findings of research into how
should not be introduced in the belief that they might work, and
countries create high-performing education systems. It was found
they need to be tested. After initial testing, they need to be beta
that there were three major success factors that matter most:
tested using an appropriate sample of teachers and students. The
creation of a research-led English language programme is essential
1. Getting the right people to become teachers;
if the government is to achieve its ambition to make Malaysia an
educational hub for the region and perhaps beyond.
2. Developing them into effective instructors;

1.4 Teacher education


3. Ensuring that the system is able to deliver the best possible
instruction for every child.
While current levels of teacher English proficiency may be
sufficient for internal communication within Malaysia, they are very Getting the right people begins with effective mechanisms for
far from sufficient if students are to learn spoken English from their selecting teachers for training. Trainees are ideally recruited from
6
How the worlds best-performing school systems come out on top accessed 28 May 2015 at
http://mckinseyonsociety.com/downloads/reports/Education/Worlds_ School_ Systems_ Final.pdf

28
the top third of each cohort graduating from the school system,
and are characterised by high academic achievement, good
communication skills, and high motivation for teaching.
Finland, the highest achieving
Starting off with high calibre recruits is important, because the country in the world in reading,
negative impact of low-performing teachers is severe, particularly
during the earlier years of schooling. Top performing systems select mathematics and science, have no
before training, and limit places in the training programme to those standardised tests that resemble
selected, and are able in this way to match supply to demand.
ours whatsoever, though they
This avoids wasting money on trainees who drop out, fail to use teacher made tests in their
find teaching jobs or for other reasons do not become teachers.
The smaller number of trainees leaves more money to spend
classroom and school accountability
on training each trainee teacher. The most successful model for system. Their system uses high
salaries is frontloading compensation, with good initial salaries, standards for allowing teachers
which in top performing systems tend to be between 95% and 99%
of GDP per capita and in line with other graduate starting salaries.
into the profession, awards high
Salary progression was found to be less important in attracting pay and bestows high status to
recruits and in retaining teachers. those that enter teaching, provides
The second major factor is to turn trainees into effective rigorous and extensive professional
classroom teachers and improve classroom instruction. This
development for the teachers, and
should include practical training to close the gap between what
trainees do in training and what they are expected to do in the depends on trusting relationships
classroom. Success in this case relies on the ability of teachers to to improve academic achievement.
take responsibility for their own development, including (a) being
aware of specific weaknesses in their own practice; (b) individually

29
English Language Education Reform in Malaysia
The Roadmap 2015-2025

gaining an understanding of specific best practices; and (c) having provides rigorous and extensive professional development for
the motivation to make the necessary improvements. the teachers, and depends on trusting relationships to improve
academic achievement (pp. 165-166).
Success in the classroom also includes placing teaching coaches
in schools, appointing principals who are also instructional leaders, Finland has set up a system of interventions to support
and creating a situation in which teachers are able to learn from each individual students in schools, employing special education
other. Good teacher training makes it possible to reduce total spending teachers in a ratio of one to seven class teachers. A large number
on school systems. The OECD average in 2002 was 20% of GDP per of students are given support, which in itself lessens the stigma
capita per student; but top performers spent less than the average, and of being perceived to be falling behind, and on occasion the best
were able to save money further by increasing class size. students are provided with additional instruction.

The third major factor is that high-performing systems provide 1.4.2 English teaching in Malaysia
the best possible instruction for every child. In the case of the top
It is clear from the Cambridge Baseline, which considered teacher
performers in PISA, there is a low correlation between outcomes
performance at some length (pp. 9-14), that the standard of English
and the home background. Finland is an example of a country
teaching in our schools falls far short of what is required in a high-
with a top-performing education system. The Finnish experience
performing education system. The most serious cause for concern
underlines the value of high quality teacher training. High teacher
is the general level of English language proficiency among teachers,
standards and professional development have brought about a
which in some cases could be affecting their effectiveness as teachers.
transformation in the performance of Finnish students. According
to Nichols and Berliner (2005): The greatest weakness is in Speaking, and as pointed out
elsewhere in the report, this affects what students learn. It is also
Finland, the highest achieving country in the world in reading,
clear from the report that in addition to improved proficiency,
mathematics and science, have [sic] no standardi[s]ed tests that
teachers need to develop further their professional knowledge and
resemble ours whatsoever, though they use teacher made tests in
skills. This aspect of the teaching of English in Malaysia is discussed
their classroom and school accountability system. Their system uses
in more detail in Chapter 9.
high standards for allowing teachers into the profession, awards
high pay and bestows high status to those that enter teaching,

30
Frequent mention is made of the need for additional teacher status of teaching to a graduate profession. In this way, teacher
training; but what is meant by training is in some cases left vague. It is training has joined other kinds of training at university level, such
not, as is sometimes implied in the materials that have been consulted as medical training or training in scientific method, which require
in the preparation of this Roadmap, a kind of all-purpose medicine to be high levels of ability and academic acumen.
applied in doses, so that if teachers are insufficiently trained, they must
Outside the university context, the term training usually refers to
need another dose of training. Teachers needs are in many cases highly
the development of low level skills which offer little or no intellectual
specific, and so it is necessary to spell out in sufficient detail what their
challenge. People are trained to drive a car, develop physical fitness,
precise needs are in order to identify appropriate solutions.
operate a factory machine or use a piece of computer software. The
There is a hidden semantic problem in the use of the word very phrase teacher training can be interpreted to imply that teachers
training. In the days before mass higher education, intending are trained to do simple things in the classroom.
teachers attended teacher training colleges, such as the Malayan
If we are to develop a high-performing English education
Teachers Training College at Kirkby near Liverpool, and received
system, we have to begin with a fundamental change in the
an education different in kind from the academic training on offer
attitude towards the preparation of teachers for a career in
in universities. In recent decades, there have been huge advances
education. What teachers need is not low-level training but high-
in our understanding of learning in general, of the learning of
level education. Teachers are not to be trained to do a job, and
languages, and of the learning of English in particular. Teachers
they need education to perform as professionals.
need this new knowledge and associated skills if they are to succeed
in the classroom, and so the modern teacher needs a much more
advanced academic education than the teacher of fifty years ago. 1.5 Preparing the Roadmap
In the research-led environment of universities worldwide, the
changing needs of teachers have been taken for granted, so that This introductory chapter has reconnoitred the road ahead to
although the old term teacher training has been retained, the actual anticipate the consequences of using the CEFR to benchmark our
content of courses has changed to include much more academic English language programme, and taking into account the findings of the
university-level material. This is reflected in the raising of the Cambridge Baseline Study. This final section is divided into two parts.

31
English Language Education Reform in Malaysia
The Roadmap 2015-2025

The first is concerned with anticipated problems in implementation. Officers in the Curriculum Development Division and the
The second is concerned with the seven steps that have to be taken. Examinations Syndicate have in particular a legitimate interest in
the development of the kind of integrated agenda-driven programme
that has been proposed, and in order for the implementation to
1.5.1 Implementing the Roadmap be successful, it is vital that they take ownership of the plans put
forward in the Roadmap. However, dealing with any problems
In this connection, there are a number of important issues to
that might arise in this connection is not within the remit of the
which attention is drawn in the Roadmap, but which will have to
writers of this Roadmap, and will have to be addressed by those
be addressed in the course of implementation.
responsible in the course of the implementation process itself.

A third problem arises from the report in the Cambridge


Curriculum, Teaching and learning and Assessment Baseline Study on standards of proficiency in English among English
This Roadmap has been developed in accordance with the teachers. This is a matter that requires delicacy and tact, because
policy decision that the CEFR is to be used in the development of the cooperation of the teachers is essential if the development plan
our English language programme. The actual implementation of is to be successful. We have a systemic problem with regard to our
the Roadmap will inevitably encounter practical problems which national standards of English, and we have to start by understanding
will require attention to be paid to the legitimate interests of the how and why we have a problem. While it would be very easy to
many stakeholders involved. seek to blame the teachers for not teaching English properly, such an
attitude is unhelpful, since it takes a logical shortcut that is consistent
For example, teachers have a legitimate interest in ensuring neither with fairness nor with an understanding of the problem.
that any proposals made can be implemented in practice in the
classroom. It goes without saying that at some stage we need A systemic problem does not come about overnight, and the
to go through a consultation process giving all stakeholders an problem we have with standards of English is a chronic problem, in
opportunity to react to the Roadmap as proposed, with a view to the sense that it has grown gradually over the years and decades.
producing an improved final version. The next chapter deals with the historical development of English
teaching in Malaysia, and it would be difficult to identify a historical

32
period when the teaching profession as a whole could reasonably While it is appropriate to set general targets for all our students,
be said to be blameworthy. the Roadmap will have to be implemented with sensitivity to ensure
that all our students achieve the highest level of proficiency in
It would be equally difficult to identify a stage in the career of
English that is within their capabilities. Reform in education must
individual teachers when they can reasonably be said to have been
be taken in compassionate, generous and nurturing ways where
negligent in the development of their own personal proficiency. In fact,
care for the individuals becomes a genuine core value (Galway,
it makes no sense at all to blame our teachers for their own lack of
2012, p. 22).
proficiency, and they have to be seen not as people who are failing to
do a proper job, but as people who need support and a higher level of
education in order to carry out the job now required of them.
1.5.2 The seven steps
This point is repeated several times in the course of this
Roadmap. The historical reality is that changes in the outside In accordance with the agenda-driven planning model outlined
world have led to much more being demanded of our teachers, and above, what we need to do in order to transform our English language
the reasonable response is to provide them with effective training programme can be summarised in the form of seven steps:
and expertise to do a quality job as professionals in the classroom.
1. Establishing evidence-based and realistic targets. The
It is also true that more is now required of our students. Different
first task will be to establish agreed realistic targets at different
groups of learners will in practice have to be specially catered for
educational levels so that the English language programme as a
as the Roadmap is implemented. While some students will use
whole makes the intended contribution to the national agenda.
English routinely at home, for others English may be a second or
These targets will be associated with matching levels on the
third language that they encounter only in the classroom.
CEFR scale A1 to C2, and the initial targets will be determined
The learning situation is different for students in national and in accordance with the findings of the Cambridge Baseline
national-type schools, and for students in rural and urban schools. Report, and will be achievable in the immediate or short term.
We also have to cater for children with different learning abilities Targets are dealt with further in the Editorial Introduction to
and those with special needs. As explained in chapter 2, some of Section B.
these differences have a long history.

33
English Language Education Reform in Malaysia
The Roadmap 2015-2025

2. Revising the curriculum. The national curriculum will need 6. Intervention. Although teaching is typically aimed at
to be revised to enable the maximum number of students to students in the middle range, due attention needs to be paid to
achieve the targets set on the CEFR scale. Particular attention the needs of underachieving students, and of those who excel.
will have to be paid to the handover from preschool to This will require special intervention for both extremes, and
primary school and from primary school to secondary school. also training for teachers to enable them to deal appropriately
Independently of the curriculum, it will also be necessary to for these two groups of students.
manage the handover from school to post-secondary and
7. Training teachers. Teacher education needs to be reorganised
tertiary education.
to ensure that teachers are provided with the knowledge and
3. Reviewing classroom practices. Classroom teaching and expertise to facilitate student learning in accordance with
culture will need to be revised to maximise student success the revised curriculum. Particular attention needs to be paid
according to the agreed CEFR scale. to (a) the teaching of English grammar, and (b) the teaching
of spoken English both in connection with beginning literacy
4. Providing appropriate learning materials. Textbooks and
and with the development of spoken communicative skills.
other learning materials will need to provide help and support
Teachers will also need sufficient knowledge of spoken English
to both students and teachers, and facilitate student learning
to help students with the development of receptive skills.
and progress to the targets set on the CEFR scale. In order
to ensure the quality of learning materials, a quality control
mechanism will have to be established and maintained.

5. Assessing student achievement. The aim of examinations


and other forms of assessment will be to measure the extent
to which students have achieved the proficiency targets set on
the CEFR scale. Assessment outcomes (including grades and
marks) need to be aligned to international standards.

34
English Language Education Reform in Malaysia
The Roadmap 2015-2025

2
The Historical Background to
English Language Education in Malaysia

35
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Chapter 2: The Historical Background to English Language Education in Malaysia

T
he aim of this chapter is to explain how the present English
language programme came to be the way it is, and to
ascertain our starting off point for future developments.
We trace the development of the education system as a whole,
with the focus on language education and on English language
education in particular. The perceived purpose of education has
changed fundamentally over the decades, and taking into account
changes in the perceived purpose in response to changes in the
outside world, we can divide the historical account into four main
periods (Zuraidah Mohd Don, 2014):

1. Before Independence

2. After Independence

3. Globalisation

4. The contemporary situation

Our concern here is not just with historical facts, interesting


in themselves though these may be. We need to understand the
circumstances that led from one historical period to another, in
order to understand the contemporary situation with sufficient
depth to make informed plans for the future. A matter of particular
interest is what sort of people education was intended for, and
what sort of education they were given. The material is presented
in such a way that we can now learn and benefit from our own
educational history.

36
English language
education was first
introduced to the future
Malaysia and indeed to
South East Asia on the
opening of the Penang
Free School in 1816.

In tracing the history of education in Malaysia, we are not Institution2. Following the Anglo-Dutch Treaty of 1824, Penang and
concerned with mere historical facts, but to look for clues Singapore were joined by Melaka to form the Straits Settlements,
which point to the main historical issues, including who receives and 1826 saw the foundation of Malacca High School. There are
education, and what the education involves. This enables us to few details about the curriculum taught at this time, but we do
place current initiatives now taking place in the fourth of these know that these schools were open to children regardless of race
periods including this roadmap in their historical context, and or religion, and that Malacca High School admitted girls as well as
build on the successful initiatives of the past. boys, followed in this respect in 1844 by the Singapore Institution.

The Straits Settlements were at this time governed by the


2.1 Before Independence East India Company, and would be affected by Macaulays Minute
on Indian Education of 1835, which introduced English language
English language education was first introduced to the future education to India. British interests in the region extended to
Malaysia and indeed to South East Asia on the opening of the Perak following the Pangkor Treaty of 18743, and eventually the
Penang Free School in 18161. Soon afterwards, in 1823, Stamford Malay College was founded in Kuala Kangsar4 in 1905.
Raffles founded the Singapore Institution, now the Raffles
1
http://www.pfs.edu.my/ 3
D.G.E. Hall (1994) A History of South East Asia, p. 595. London: Macmillan.
2
http://www.ri.edu.sg/ 4
http://www.mckk.edu.my/

37
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Students could take the Cambridge Overseas School Certificate groups with an international outlook and excellent English, drawn
Examination, and go on to such higher education as was available from all races, and including men and women.
anywhere in the Empire. Local higher education began with the
Some education was available for Malays in Islamic schools and
Medical School in Singapore which was founded in 1905, and later
government-funded village schools known as sekolah pondok hut
became the King Edward VII College of Medicine before merging with
schools (Mior Khairul 2011, p. 35). These schools typically provided
Raffles College to form the University of Malaya. The outcome was
four years of education in practice, in contrast to the officially claimed
that long before the foundation of present-day Malaysia, high quality
seven years, and used Malay as the medium of instruction for reading
English language education was already in place and open to children
and writing, simple arithmetic, and geography (Ozay, 2011). This
of all races, and at least in some cases open to girls as well as boys.
was a practical kind of education designed to provide poor children
Although English-medium schools were open in principle to with the knowledge they would need to follow in the footsteps of
all ethnic groups, they depended in practice on the population their parents and grandparents as farmers or fishermen.
within their catchment areas. Since they were typically located
There were also rapidly growing immigrant groups including
in towns, they recruited mainly from an urban and substantially
Indians recruited to work on the estates, and Chinese workers in
Chinese population, and included many fewer urban Indians and
the tin mines. For children in these communities, it was important
urban Malays (Ozg, 1993). The introduction of English language
to maintain ties with their home country, and this was achieved
education had the effect of creating a largely urban privileged class
through elementary education. As in England, those interested
drawn in different proportions from each community, but ultimately
in providing education were allowed to set up their own schools
separate from the rest of the community (see e.g. Asmah, 1995).
(Powell, 2002; Watson, 1980).
Having English as a common language, Malays, Indians
The education system was thus made up of different strands
and Chinese from privileged backgrounds would share more of
with different educational goals and brought about by different
their values and way of life with each other than their separate
initiatives. Chinese schools in towns benefited from financial
communities. English was already becoming associated with
support from private individuals and organisations, and from
economic opportunity and social mobility, and taking on the role
the assistance of mainland Chinese authorities concerned with
of the language of prestige in education, law and government. The
Chinese education overseas, which gave them access to the
long term consequence of this is that Malaysia still has privileged

38
well-developed education system of mainland China, complete of Wilkinson can be traced to efforts after independence to build
with curricula, textbooks and teachers supplied directly from a new nation with Malay as the national language (Ozay, 2011).
China. They remained independent until the introduction of
We now take for granted that education should be available for
the registration of schools in 1920 (Kua, 1999, pp. 2337) which
all children, whether their families are rich or poor, and whether
brought them under government control.
they live in the town or the countryside, and that education should
For the Indians, by contrast, a rudimentary Tamil education give children from less privileged backgrounds a better start in life.
was provided at primary level by rubber estate owners, often in In the United kingdom, the 1944 Education Act made provision for
dilapidated buildings. As Asmah (1993) points out, some of the free secondary education for all children up to the age of 15, and
teachers sent from India to maintain ties with the old country paved the way for mass higher education later in the century. This
were ill trained, and the education did little more than prepare the came alas too late for British Malaya, for the final years leading up
children to work on the rubber estates. to independence were dominated not by education but by national
security. It fell to the new independent government to usher in
In the later nineteenth century, the government in London
post-primary education for all5.
began to take more seriously its responsibility to educate all of its
people. This was reflected in a new attitude that emerged after
the formation in 1895 of the Federated Malay States, and the
2.2 After Independence
establishment of vernacular schools for the Malays, including a
limited number of secondary schools. The government that took over the newly independent Federation
of Malaya in 1957 was faced with a seemingly impossible task. Apart
An important figure at this time was the Malay scholar R. J.
from the substantial minorities that would have to be catered for,
Wilkinson, who having been appointed Acting Inspector of Schools
the new government was facing the internal troubles known as the
in 1899, set out to provide the new Malay schools with libraries
Malayan Emergency. In 1963 the former British territories of North
(Lim, 2008), and went on to serve as Federal Schools inspector
Borneo and Sarawak were added to Malaya to form Malaysia. If the
from 1903 to 1906. Wilkinson promoted publications in Malay, and
new country was to survive at all, it was essential to bring these
established a Malay Literature Series for schools published by the
disparate and far-flung populations together to form some kind of
company that in 1906 came to be known as MPH. The influence
5
According to the former Minister of Education, only 7% of the population had
secondary education or more in 1957, compared with 76% in 2013. Source: http://
www.themalaymailonline.com/malaysia/article/muhyiddin-education-blueprint-to-
put-malaysia-within-top-countries, 9 November 2013. Accessed 25 April 2014.
39
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Sekolah pondok or hut


schools typically provided
four years of education in
practice, in contrast to the
officially claimed seven
years, and used Malay as the
medium of instruction for
reading and writing, simple
arithmetic, and geography.

national unity. This situation posed a major challenge for education in independence in 1957, Malay was officially given the status of the
general, and for language education in particular. national language under the terms of the Malaysian constitution,
while English was to be the co-official language for ten years.
English was still needed for practical reasons, but as the former
During this period, English was to be used for official purposes
colonial language it was singularly ill-fitted for a role in creating
amongst others in Parliament and in state legislative assemblies.
national unity. The only language which could do this was Malay.
Just before independence, the Razak Report of 1956 proposed that The Rahman Talib Report of 1960 took an important step to
English should be retained at least for a time, but that Malay should raise the status of Malay. Although English was retained alongside
be phased in as the national language, particularly in education and Malay for use as the official languages of education, the ultimate
in connection with government, for example as a qualification for intention was to make Malay the main medium of instruction
entry into government service (Gaudart, 1987). (Gaudart, 1987). Public examinations at secondary level were
to be in English or Malay, so that other schools were put under
The report also proposed education at secondary level,
pressure to adopt English or Malay as the medium of instruction.
with either Malay or English as the medium of instruction.
English remained the medium of instruction at tertiary level. On

40
The Education Act of 1961 went further, and foresaw an The consequence of the legislation was that English was
educational system in which the national language is the main medium replaced by Malay as English-medium schools were converted to
of instruction (cited by Gill, 2007, p. 114). The emphasis was now Malay-medium schools, and reduced to the status of a language
clearly on Malay as the national language and as the medium of taught as a school subject and used in universities for the teaching
instruction. The co-official status of English was brought to an end of science and technology. The next generation went through their
by further legislation in 1963 and 1967, although it was retained for education in Malay, and as a result had less access to English than
certain official purposes in education and administration. their parents. The inevitable outcome was a decline in national
standards of proficiency in English, and as Asmah put it (1983, p.
Following the events of May 1969, the decision was taken
338), It is unrealistic to aim for a level of proficiency equivalent
to replace English by Malay as the medium of instruction, and
to that attained by students in English schools when learning and
to convert English-medium schools to Malay-medium (Gaudart,
teaching is done in Malay.
1987). According to the Second Malaysia Plan of 1971, Malay was
to be introduced progressively for the teaching of all subjects apart
from English and other languages, in primary schools by 1975 and 2.3 Globalisation
in secondary schools by 1982 (Asmah, 1985, p. 42).
By a historical accident, the phasing out of English in Malaysia
The 1970s saw the implementation of ideas developed earlier for a
coincided with two other developments, namely the rapid
national education system which provided for national schools using
improvement of the education system, and accelerating globalisation.
Malay as the medium of instruction alongside national-type schools
The growth of education in Malaysia enabled many people to obtain
using English, Mandarin or Tamil as the medium of instruction, but
a good education and even gain entrance to university, with the
including English and Malay as compulsory subjects (Asmah, 1985,
result that the number of qualified people rapidly increased.
pp. 4142). Malay took precedence over English following the New
Education Policy of 1971, and in 1983, Malay became the official The creation of a generation of educated young people
medium of instruction in institutions of higher education. meant that Malaysia could aim higher, and raise its profile on the
international stage. The new climate was epitomised by Vision
2020 put forward in 1991 by Tun Mahathir Mohamed during his

41
English Language Education Reform in Malaysia
The Roadmap 2015-2025

time as Prime Minister, with the aim of getting Malaysia recognised Those who were disadvantaged most by the new requirements
as a developed nation by the year 2020. for English were young people who had benefited from the
extension of education to the extent of obtaining academic
It was clearly recognised from the time of the Razak Report
qualifications, but who discovered that the English they had learnt
in 1956 that Malaysia would continue to need English. The Third
at school was not sufficient to get them a suitable job or support
Malaysia Plan (1976 1980) included measures to ensure that English
them in their careers. The switch to Malay made little difference
is taught as a strong second language (Government of Malaysia,
to children from wealthy families, because they could still be sent
1976, p. 386), in order to keep abreast of scientific and technological
abroad for an English education. Nor did it make much difference for
developments in the world and to participate meaningfully in
many people whose need for English was minimal in any case.
international trade and commerce(p.391). According to Gaudart
(1987) although intentions were expressed in national plans and Scholarships enabled some bright children from less privileged
elsewhere to train teachers and maintain standards of English, there backgrounds to go to residential school and obtain a quality grounding
were no actions to put the good intentions into effect. in English, but for many, insufficient English proficiency was to prove
a serious handicap. Nor was the problem shared equally between
Since the 1980s, increasing investment by multinational
the town and the countryside. A quarter of a century ago, Rosli and
companies had created a growing need for skilled workers, and
Malachi (1990) found a huge difference in performance in English
since these companies used English, their recruits also needed
between rural and urban schools, so that the extension of education
English. The international requirement for Malaysians able to
to rural areas had done little for the poor.
communicate in English at an international level was increasing at
the very time when the phasing out of English as the medium of
instruction was reducing national levels of proficiency in English 2.3.1 The return of English
and the number of Malaysians able to use the language effectively.
The problem was that without sufficient English, it was becoming In the new century, English was to be brought back for the
increasingly difficult for educated people including teachers and teaching of Mathematics and Science, and then phased out again.
academics to perform appropriately or even to obtain employment Policy changes were clearly required, as low levels of proficiency
commensurate with their qualifications and aspirations. in English were making it difficult for Malay-educated graduates to

42
find employment in the private sector. Phan, Kho and Chng (2013)
see this as the impetus behind the change of policy announced in
2002 by the then Prime Minister Tun Dr Mahathir Mohamed.

... there was no step-by-step or The supply of textbooks, whether by writing original
year-by-year changeover schedule textbooks in Malay or translating them from English, had not

as was the case when the English kept up with demand; and since the textbooks and the results of
scientific research were written in English, the best solution was
schools were converted into Malay- for Malaysian students to use English textbooks. The new policy
medium national schools. Nor Pengajaran dan Pembelajaran Sains dan Matematik dalam Bahasa
was there any warning given to Inggeris the teaching and learning of Science and Mathematics
teachers, parents, textbook writers, in English (PPSMI) required Science and Mathematics to be
taught in English with effect from 2003, and applied from the first
and publishers on the change that year of education to tertiary education.
was suddenly to come. Teachers
instead experienced hands-on The success of the policy would depend on the ability of teachers
to teach Mathematics and Science in English; but most teachers
on-the-job training in teaching belonged to the generation that had been educated in Malay, and
these subjects in English and would therefore need special training in English. Textbook writers
retired teachers fluent in English educated in Malay would also need training in English.
were brought back to teach in the Students would need sufficient proficiency in English to
schools. Textbooks were written benefit from being taught in English. The teaching of Mathematics
as the teaching proceeded. and Science would need to be closely monitored to check that the
new policy was yielding the improved results hoped for, and that
mechanisms were in place to deal with any problems that might
arise in the course of its implementation.

43
English Language Education Reform in Malaysia
The Roadmap 2015-2025

2.3.2 The reversal of policy Teachers were also forced to teach in Malay to help students
understand the subject matter better. This problem was especially
In the longer term, the manner in which the PPSMI policy was
prevalent in the rural areas, and a widening gap in academic
introduced may have compromised its viability and implementation.
performance for both subjects emerged between the rural and
Asmah (2007), for example, commented on the haste with which the
urban areas during the period of the implementation of this policy.
PPSMI policy was implemented, which resulted in poor structural
implementation: A second change of policy was made public on 8 July 2009,
in the face of immense pressure from mother-tongue education
there was no step-by-step or year-by-year changeover lobbyists and despite support from urban educated Malaysians,
schedule as was the case when the English schools were when the Education Minister announced that the teaching of
converted into Malay-medium national schools. Nor was there Science and Mathematics in English would be phased out from
any warning given to teachers, parents, textbook writers, and 2012. Students who had started learning these subjects in English
publishers on the change that was suddenly to come. Teachers would be allowed to continue to do so until they completed
instead experienced hands-on on-the-job training in teaching Form 5. The government adduced research findings and public
these subjects in English and retired teachers fluent in English consultation outcomes to argue that the teaching of Mathematics
were brought back to teach in the schools. Textbooks were and Science in English was not effective.
written as the teaching proceeded. (pp. 355356).

Having themselves studied Mathematics and Science in Malay, 2.4 The Contemporary Situation
the majority of teachers were unable to conduct effective content-
based teaching and learning in English. According to the Ministry The reversal of policy which took place in 2009 meant that
of Education (2010), many schools continued to use Malay despite some other means had to be found to make an appropriate response
the PPSMI policy in the teaching of both subjects. The problem to the continuing challenge of global English. The response or
identified by Asiah Sharif (2013) was that the teachers lacked rather the series of responses that was made has already been
proficiency in English. described in some detail in the first section of Chapter 1, which
traces the provenance of this document. Our perspective here is

44
rather different, since the intention is to relate recent developments is timetabled, and planned to be implemented in three waves
to their historical context. from 2015 until 2025, each wave having a different focus (see the
English Language Education Roadmap in Section C).
The first step was to formulate the new MBMMBI policy to
redefine the respective national and international roles of English The MEB stimulated a number of initiatives designed to put
and Malay. English is now increasingly viewed as a facilitator some flesh on the bones, and aiming to improve learning on the
of economic development. The repositioning of English as the part of students, or teaching on the part of teachers, or both.
driver of national development and global competitiveness under Many initiatives were of course already in place, and some of these
MBMMBI policy coincided with the implementation of a number were continued. The main initiatives are listed in the Editorial
of National Key Result Areas (NKRAs) under the Government Introduction to Section B, and some are mentioned in the chapters
Transformation Programme (GTP). of that section.

Given that the objectives of many NKRAs are related to In order for any reform of our education system to succeed, it is
national economic development, much emphasis has been placed essential to pay attention to quality. The first step was to evaluate
on programmes to enhance the teaching and learning of English, the quality of the existing English language education system, and
especially under GTP 2.0, with the intention that English should this was done by commissioning a baseline report from Cambridge
contribute more effectively to the economic well-being of the English. The outcome of the study was that the existing system
country. It may be that, in this new role, English will carve out a more was benchmarked against international standards by means of
stable and strategic position in the Malaysian education system. the CEFR, so that the system was henceforth de facto open to
international comparison and so to external quality evaluation.
The new policy led to a comprehensive review of the Malaysian
education system undertaken by the MoE in October 2011, the While the MEB was in preparation, approval was given
eventual outcome of which was the Malaysian Education Blueprint, for the establishment of the English Language Standards and
the MEB, which appeared in September 2013. The MEB identifies Quality Council (ELSQC), which came into being in 2013. The
eleven shifts which need to be undertaken in order to transform the establishment of this body put in place an internal mechanism
education system. The shifts most relevant to English language for quality assurance. The ELSQC was given the task among its
education are discussed in Section C. The programme of reform many responsibilities to prepare policy papers, concept papers,

45
English Language Education Reform in Malaysia
The Roadmap 2015-2025

proposals papers, information papers and executive summaries. 2.5.1 The changing purpose of education
It was therefore fitting that the first major task assigned to the
When evaluating education systems and policies, it is necessary
ELSQC was the preparation of this Roadmap for English language
to start with the purpose of education. The contemporary purpose
education in Malaysia.
of education may be so obvious to us that it is scarcely necessary
to make it explicit; but later generations have to reconstruct
2.5 History and planning: why history matters it according to the evidence that happens to have survived. An
abundantly clear finding from the study of earlier education
It has been said that the only lesson to be learnt from the systems that the purpose of education is not fixed, but changes in
study of history is that the lessons of history are never learnt. In the course of time.
the present case, in our attempt to reform the English language
All governments need a workforce to carry out the business
programme, we have in fact much to learn from the history of
of government, and one of the real-world goals of education is
English teaching in our country. Moreover, we have to understand
to produce people who can do government work. When Britain
and learn from our own history if we are to devise an effective
had an empire, one of the purposes of the public schools was to
reform plan for the coming years.
produce an administrative class for service at home and overseas,
There are three important lessons to be learnt. The first is and those stationed in Malaya set up schools of the kind with which
that education, including language education, has a purpose, but they were familiar to educate local people in their own image.
this purpose is not fixed and immutable, and changes in the course
The government needed workers proficient in English, and so
of time. The second is that in order to understand contemporary
English was the medium of instruction. Independent governments
problems, it is essential to approach them in the spirit of historical
after 1957 also needed a government workforce, but they faced
realism. The third lesson concerns the important moral aspect of
the pressing question of national unity, and this is reflected in a
education.
change of emphasis in education policy to contribute to nation
building.

46
Further change followed the challenge posed by globalisation In order to understand why, it is essential to grasp the concept
towards the end of the century. In this new situation, the perceived of discontinuous change (Handy, 1989). There is likewise no
purpose of the national education system is to contribute to specific point in time when English ceased to be the colonial
national goals, and this is the driving force behind the agenda- language and began to be the global language, or when it ceased
driven planning model for English language education outlined in to be in the national interest to phase English out and it came
chapter 1. The reform of our English language education system to be in the national interest to phase English back in. But when
has to be undertaken in order to provide our young people with the the change has been completed, we can look back and see that a
English language skills they need to maximise their contribution to change has indeed taken place. And when we look back, we see
national goals. with the perfect 20-20 vision that comes with retrospect.

Change does not happen suddenly, and even the British Of course while the change is taking place, things are not so
Period did not come to an abrupt end on 31 August 1957 to be clear at all. We can now look back and see clearly that Malaysias
replaced by the Independence Period on 1 September. There was need for English was going to increase rapidly to meet the
time to prepare for and manage the changes that would follow demands of globalisation. We can also see that Malaysia would
independence. Changes began to take place after the Second need a workforce able to use global English not only for external
World War, and were reflected in the Barnes Report of 1951, and purposes, but also as globalisation came to Malaysia within the
the change was not completed until the phasing out of English country itself.
many years after 1957.
The successful management of change includes awareness of
Similarly, globalisation did not happen overnight, but took place its discontinuous nature, and acting proactively as change is taking
incrementally over a long period. There is, of course, no specific point place instead of delaying a response until the change has been
in time at which an independent Malaysian language policy took over, completed. In this connection, it is greatly to Tun Dr Mahathirs
or when English became a global language, although in both cases it credit that he became aware of the major changes that were taking
is clear in retrospect that a major change has taken place. place in the global status of English during his time as Prime Minister.

47
English Language Education Reform in Malaysia
The Roadmap 2015-2025

We now have in place the educational infrastructure to Malaysian government has raised standards of mass education to the
support the reform of English language education, starting with extent that it is now taken entirely for granted.
the MBMMBI policy and other developments reported above, and
Governments in the decades following independence are
we are ready to implement reform. Understanding the changing
routinely blamed for the decline in standards of English which
nature of education enables us to grasp the problem we are trying
followed as an inevitable consequence of the language policy. The
to solve. We are no longer trying to solve the problems of the past,
context in which this has to be seen is one in which the government
and we are preparing our young people to compete successfully in
was seeking to create a nation out of disparate and far-flung
the world of the future (see e.g. Chapter 8).
populations; and while there is a long list of newly independent
nations that have fallen apart in the course of the last fifty years,
Malaysia is mercifully not on that list.
2.5.2 Historical realism
It is not logically possible to criticise the language policy without
When we compare the present with the past, we have to start
at the same time implying that the government should not have set
with a realistic understanding of conditions in the past. A typical
as its priority the creation of a viable nation. Again, the main story
unrealistic approach is to look back with the benefit of hindsight,
is one of success and not one of failure. If English had not risen to
and see with perfect clarity the shortcomings of past times.
global dominance in the way it has, we might well now be praising
It is true, for example, that the British authorities only provided the phasing out of English as a great success.
rudimentary primary education for the rural poor in the period before
A matter that has to be considered seriously but critically is
independence; but mass secondary and higher education across the
the routine complaint that standards of English in Malaysia are in a
world is a product of the second half of the last century. Equally
state of chronic decline. If this is true, then it follows logically that
unrealistic is the opposite tendency to look back to a past when all
there must be at least one sector of Malaysian society that has
was well, and students learnt their lessons and did their homework,
experienced the decline. The historical question we have to ask is
and teachers knew exactly what to teach and how to teach it. These
which sector or sectors of Malaysian society this applies to.
two together contribute to the prevailing but unjustified negative
evaluation of the state of Malaysian education. The real story is one As observed above, when we trace the history of education in
of progress and success, for it is a matter of fact that since 1957 the Malaysia, we have to ask who was receiving it. Education before

48
independence was largely for the privileged few, not for ordinary lecturer. It may be that some of those who take their places come
people. Malaysia still has privileged people with excellent English, from social backgrounds without the same advantages.
and it would be difficult to argue that their standards of English
Although the purpose of education has changed over the
have declined.
decades, this does not mean that what young people need to get
The introduction of mass education has given students from out of their education has changed. Education involves very much
less privileged backgrounds who in previous generations would more than transmitting to the next generation the content of
have had no access to English at all at least some opportunity to academic subjects. Young people need to be prepared for the adult
learn it. Although the results may be regarded as insufficient, it world in which they are going to spend their careers and live their
would be impossible to argue logically that standards of English social lives. This includes the soft skills that have traditionally been
among the unprivileged have actually gone down. This leaves the associated with education, and in the case of English it includes
people in the middle. It is surely this group that has benefited most the ability to use the language interactively in real social situations.
from greater access to education.
The expansion of our education system has led to the social
Far from experiencing a decline, it is in this group that the mobility expected of a modern education system, but the
greatest advances have been made since 1957 in raising standards provision of academic content needs to be complemented by the
of English. It is very unlikely that there has been an absolute rest of personal education. This is the context in which we have to
national decline in standards of English, which would mean that the consider the problem of graduate employability.
number or proportion of Malaysians able to use English effectively
There is only a problem at all because of our success in creating
has gone down over the last fifty or hundred years. When people
mass higher education, and enabling larger numbers of young
complain about declining standards of English, what they are really
people to study for a degree. When access to higher education
talking about is a relative decline.
is restricted to the privileged, then of course graduates have
As in other countries, mass education creates opportunities at the command of English and other social skills associated with
the top. The school leaver who would formerly have worked in a privilege. The few ordinary people who get into higher education
shop is now at university, and the bright youngster whose ambition are under pressure to adopt the manners and style of those from
was formerly to teach in the local school is now a university more privileged backgrounds.

49
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Those who need support


most urgently are perhaps
those young people from less
privileged backgrounds who
have the potential to escape
from poverty but who now
find themselves vulnerable
on account of their lack of
proficiency in English.

The introduction of mass higher education, however, has had same time as opportunities for bright young people are greatly
the inevitable consequence that some of the new graduates will increased, it is inevitable that some of those drawn into teaching
have the academic ability to get a degree, but not the social skills to will have less opportunity than their predecessors to develop the
succeed in an international world formerly and to some extent still language proficiency and teaching skills that they need to perform
dominated by privilege. The failure to provide the new graduates effectively in the classroom.
with the English skills they need undermines to a considerable
The education system is clearly succeeding if young people
extent the success of the extension of higher education.
from humble backgrounds are enabled to go into teaching and
Similar arguments apply to the familiar complaints about other professions; but their education needs to prepare them for
standards of English teaching. When the education sector is the role they are expected to play. Social mobility could, taken out
small, and opportunities for bright young people are limited, of context, give rise to the widespread impression that standards of
bright young people from favourable social backgrounds will go English are in chronic decline among graduates, English teachers,
into education, bringing their social skills with them. But if, as and others. There might even appear prima facie to be objectively
has happened, the education sector expands massively at the measurable evidence of decline.

50
If the University of Malaya recruits students from privileged beyond repair, then there is no solution to be found. On the other
backgrounds, standards of English in the university will be very hand, if we accept that we have a system designed a long time ago
high; but if the university recruits students on merit, including for a purpose very different from the one required in the twenty-
students from less privileged backgrounds with no tradition first century, then the solution is to reform our present system and
of speaking English, then the mix of new students will include bring it up to date.
some without the traditional high levels of proficiency in English.
Many countries have much the same problems as Malaysia,
Students from privileged backgrounds who cannot get into the
and thanks to research undertaken over the last 70 years or so,
University of Malaya will still have good English, and so the overall
there are internationally known solutions already available for us
net effect is a national rise in standards of English.
to use. The whole of our English language programme has to be
The real problem is that our standards of English have not kept benchmarked and aligned to prevailing international standards,
pace with the advance of our own education system and the social and these are de facto defined by the CEFR, which is the topic of
advance that it has helped to bring about. From a national point Chapter 3.
of view, what is important is that young Malaysians have much
It is also known that the key to a top-performing education
greater opportunities open to them than former generations. An
system is to recruit a high calibre teaching force, and this is dealt
optimist will point to the increasing number of graduates, while
with in Chapter 9. In sum, the important lesson to be learnt from
a pessimist will point to their inadequate English; and both will
history is that while we face a difficult task, it is not an impossible
be right. The supply of teachers must also be seen in the wider
one. We have to build on the successes of the past, and complete
historical context. It is easy to complain about our teachers and
the task of creating a top-performing English language education
lose sight of the important fact that we have succeeded in building
system as part of a world class education sector.
up a large teaching workforce that makes universal secondary
education possible.

Tracing the problem to a failure to keep pace has important


consequences for the solution we adopt. If we take the pessimistic
view that our present English language system is broken and

51
English Language Education Reform in Malaysia
The Roadmap 2015-2025

We have to ensure that the new


programme enables children
from poor rural backgrounds
to succeed in English, that the
style of teaching and learning is
appropriate for boys as well as girls,
and that the programme makes
equitable provision for children
from different ethnic backgrounds.

2.5.3 Education and morality and sometimes conflicting legitimate interests, but also with
a horizontal stratification with different layers made up of the
The third lesson is that education has an important moral side.
privileged, the poor, and those in between. The first group has
The provision of education is unusual and possibly unique in its
always been able to look after itself, and can continue to do so
moral consequences. It is not a zero-sum game, so that one party
without government support.
gains at the expense of some other party, but creates a win-win
situation, in which both education providers and those provided The word school derives from Greek skhole meaning leisure,
with education have much to gain as a result. Even though the which reflects the fact that until very recently, only the rich had
provision and extension of education may initially be motivated by the leisure and the means to obtain and benefit from an education.
practical real-world goals, the implementation of an enlightened Todays privileged children can be sent abroad to the UK or
education policy brings with it substantial moral benefits. Australia to enjoy a complete English language education.

Malaysian education policy has not only to provide for The poor, especially the rural poor, who traditionally had very
diverse groups within the population, each with their different little access to education, need support, and while much has been

52
achieved since 1957, the task has not yet been completed. We 2.6 Conclusion
no longer take the condition of the poor to be part of the natural
order of things, or take for granted that the children of the poor will It is something of an irony that as educational standards
follow in their parents footsteps, without the hope of improving have been forced up by economic necessity and other practical
the conditions in which they live. considerations, the scope for developing the moral side of education
has greatly increased. Mass education provides the government
While it might seem from their way of life that they have little
with a more effective workforce; but a quality education system
or no need for English, this is not true: these are the very people
would also enable young Malaysians from humble backgrounds
for whom English has most to offer in providing opportunities for
almost certainly for the first time in history to improve their
a better life. It is therefore a matter of concern that the baseline
situation in life.
study found significant differences between urban and rural and
remote schools both in performance in English, and in provision for In planning changes to our English language programme, we
English language education. have to understand and address the problems that we have inherited
from our history. We have to ensure that the new programme
The life chances of children in the middle group are reduced
enables children from poor rural backgrounds to succeed in
by their insufficiency in English. Without the growth of this group
English, that the style of teaching and learning is appropriate for
there would be no problem at all, especially if Malaysia were
boys as well as girls, and that the programme makes equitable
content to survive indefinitely as a sleepy nation growing rice and
provision for children from different ethnic backgrounds. Taking
making nails. A problem only exists because Malaysia has with good
a moral approach, and balancing the national advantage with the
reason come to demand more of itself, and has greater ambitions,
needs of the students themselves, is built into the very fabric of
which are to be achieved by satisfying the needs of the middle
the Education Blueprint, and is accordingly taken for granted in
group and enabling them to contribute to national development.
the preparation of this Roadmap.

The three important lessons to be learnt from our educational


history lead to three important insights to guide the reform of our
English language system. The first is that the task we face is to build

53
English Language Education Reform in Malaysia
The Roadmap 2015-2025

something new. Whatever the merits or demerits of our existing


system, it was designed for the decades following independence,
and we now have to design a system to respond to the demands of
global English in the twenty first century.

The second insight is that if our current provision for English is


perceived to be inadequate, it is because the teaching of English has
failed to keep up with the advance of our own education system.
The solution to this part of the problem is in our own hands, and
we have every reason to be confident that we can solve it.

The third insight is that we can make the greatest contribution


to the national economy, and bring about the greatest benefit to
the people of Malaysia, by concentrating on the needs of the most
vulnerable groups in the population, so that by taking advantage
of education they cease to be vulnerable. These include the poor,
and those in rural and remote locations. Those who need support
most urgently are perhaps those young people from less privileged
backgrounds who have been able to take advantage of the advances
in our education system, and who have the potential to escape
from poverty for the first time in our history, but who now find
themselves vulnerable on account of their lack of proficiency in
English.

54
English Language Education Reform in Malaysia
The Roadmap 2015-2025

3
The CEFR

55
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Chapter 3: The CEFR


T
his chapter explains some of the references to the Common
European Framework of Reference for Languages
(CEFR) made in chapter 1, and develops further some
of the points made there. It also provides the background to the
proposed use of the CEFR in the development of the English
language programme discussed in some detail in the chapters of
Section B. In this way, this chapter is intended to provide a link
between chapter 1 and Section B.

3.1 What the CEFR is all about

This section begins with the two best known components


of the CEFR, namely the global proficiency scale and the can
do statements, and ends with an explanation of the common
framework.

3.1.1 The global proficiency scale

Language teachers have always categorised learners as


beginners, intermediate or advanced learners, and on the CEFR
scale these stages or levels are referred to respectively as A (basic
user), B (independent user), and C (proficient user)1. Each
level is subdivided into level 1 and level 2, giving the full scale A1,
A2; B1, B2; C1, C2 (CEFR, pp. 23-4)2. These levels are also given
labels (see below):
1
On this scale, A is least advanced and C most advanced. This differs from typical marking
scales in which A is highest and C lowest.
2
Note that the phrase the CEFR refers to the framework itself, and that CEFR in
italics and without the article is used here to refer to the Council of Europe document.

56
The scale is so designed that it can be subdivided further as
CEFR NAME USER required. Discussion in the literature suggests that the need for
LEVEL
further subdivision is greatest at the lower end, especially when
the scale is used for small children. The examples illustrated on
C2 Mastery CEFR pages 32-3 follow a binary branching tree structure, so that

C1
Effective
Operational
} Proficient user
A1 is divided into A1.1 and A1.2, and A2 is divided into A2.1 and
A2.2, and so on.

These levels are referred to as common reference levels since


Proficiency
they are not tied to any context. They can be used for children or
adults, and in connection with curriculum, teaching and learning,
B2 Vantage

}
or testing, and intended uses of the CEFR include the planning
Independent of language learning programmes, language certification, and self-
user directed learning (p. 6).
B1 Threshold

3.1.2 Can do descriptors


A2 Waystage

A1 Breakthrough
} Basic user
To be of value, the common reference levels need objective
definitions, so that meaningful comparisons can be made between
students in different sectors or in different countries. This is done by
means of positive can do descriptors, e.g. a student at level A1 can
interact in a simple way provided the other person talks slowly, and
can introduce him/herself and others (see Figure 3.1 below).
(The term Waystage is peculiar to the CEFR and seems to mean
a low to middle level of ability in a foreign language. Vantage is a The evaluation is essentially positive, and contrasts with a
shortened form of advantage, and is used in the expression vantage
more conventional approach that assesses learners according to
point, a favourable position providing a good view.)

57
English Language Education Reform in Malaysia
The Roadmap 2015-2025

Common Reference Levels: Global scale


Able to understand with ease virtually everything heard or read. Able to summarise information

C2
from different spoken and written sources, reconstructing arguments and accounts in a coherent
Proficient presentation. Able to express himself/herself spontaneously, very fluently and precisely,
User differentiating finer shades of meaning even in more complex situations.
Able to fully
Able to understand a wide range of demanding, longer texts, and recognise implicit meaning.
participate in
Able to express himself/herself fluently and spontaneously without much obvious searching for
professional and
academic life. C1 expressions. Able to use language flexibly and effectively for social, academic and professional
purposes. Able to produce clear, well-structured, detailed text on complex subjects, showing
controlled use of organisational patterns, connectors and cohesive devices.

Able to understand the main ideas of complex text on both concrete and abstract topics, including
technical discussions in his/her field of specialisation. Able to interact with a degree of fluency
Independent B2 and spontaneity that makes regular interaction with native speakers quite possible without strain
for either party. Able to produce clear, detailed text on a wide range of subjects and explain a
User
viewpoint on a topical issue giving the advantages and disadvantages of various options.
Able to express
views and hold Able to understand the main points of clear standard input on familiar matters regularly
ones own in encountered in work, school, leisure, etc. Able to deal with most situations likely to arise whilst
social discourse. B1 travelling in an area where the language is spoken. Can produce simple connected text on topics,
which are familiar, or of personal interest. Able to describe experiences and events, dreams,
hopes & ambitions and briefly give reasons and explanations for opinions and plans.

Able to understand sentences and frequently used expressions related to areas of most
immediate relevance (e.g. very basic personal and family information, shopping, local geography,
Basic A2 employment). Able to communicate in simple and routine tasks requiring a simple and direct
exchange of information on familiar and routine matters. Can describe in simple terms aspects of
User his/her background, immediate environment and matters in areas of immediate need.
Able to carry out Able to use familiar everyday expressions and very basic phrases aimed at the satisfaction of
real life tasks of needs of a concrete type. Able to introduce himself/herself and others, and can ask and answer
a touristic nature.
A1 questions about personal details such as where he/she lives, people he/she knows and things he/
she has. Able to interact in a simple way provided the other person talks slowly and clearly and is
prepared to help.

Figure 3.1 Common Reference Levels: Global Scale

58
what they are unable to do. These can do descriptors are not combined, e.g. a conversation requires both listening and speaking
tied to any particular theory or method of teaching and learning, skills. The CEFR statements do not refer to linguistic form, but
but resonate naturally with the action-oriented approach outlined they do presuppose that the learner has sufficient knowledge of
on CEFR pages 9-16. form including vocabulary, grammar and relevant aspects of the
spoken language to interact in the manner described. However,
The global scale presented is the model for several more
the CEFR does not necessarily specify the means of achieving
specific tables with their own sets of can do descriptors. The
these goals. For example, the CEFR document (p. 26) sets the
self-assessment grid presented on pages 26-7 addresses can do
goals for reading at level A1, but in order to get there, children
statements to learners so that they can work out their own positions
have to develop a basic literacy infrastructure, crucially including
on the proficiency scale. Table 3 on pages 28-9 reformulates the
word recognition.
can do statements as qualitative aspects of language use under
the headings range, accuracy, fluency, interaction and coherence.

Tables relating to language skills spell out in more detail what 3.1.3 A common framework
the can do statements of the global scale mean at the level of
The expression common framework of reference might
individual skills, including oral production (pp. 58-60), written
initially seem somewhat forbidding, but the idea behind it is
production (pp. 61-2), listening (pp. 66-8), reading (pp. 68-71), and
familiar enough in education and in other areas of cooperation.
interaction (pp. 73-87), including turn taking. Particular emphasis
Two teachers teaching the same course will not necessarily teach
is placed on interactive skills first because they presuppose and
exactly the same things, but will normally come to a general
involve the integration of the traditional four language skills, and
agreement on what they are going to teach. A teacher designing a
secondly because that is what learners can be presumed to be
test for a course taught by colleagues will normally find out what
learning the language for in the first place.
they have been teaching, and test using related examples rather
The CEFR can do statements are concerned with the than the same examples. These are simple examples of referring
learners ability to interact successfully in social situations using to a common framework.
the target language. This goes beyond the traditional four skills,
because social interaction typically requires different skills to be

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English Language Education Reform in Malaysia
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At a higher level, a curriculum provides a common framework What is possible is to find corresponding tasks in different
for the many different courses in which it is implemented, possibly languages, e.g. how to introduce oneself or order a meal in a
in many different educational institutions. A national curriculum restaurant, or read aloud the formula 5 + 3 = 8. These common
lists topics to be covered in all schools, and can take the form of a learning outcomes are then interpreted as appropriate for different
recipe laying down exactly what is to be taught when and how, so languages. Although what is taught in the classroom differs for
that the government knows what all teachers are teaching at three different languages, teaching and learning are linked to a common
oclock on a Thursday afternoon. framework. In the case of the CEFR, these corresponding tasks
are expressed in the form of can do statements.
Alternatively, the curriculum as in the case of the Malaysian
curricula can amount to a set of guidelines on what is to be
covered in the course of a school year, leaving schools and teachers
free to use their own judgement on how best to implement it. The 3.2 Where the CEFR comes from
guidelines type of curriculum acts as a kind of common framework
used by all schools in planning their courses. The CEFR belongs to a research paradigm concerned with the
measurement of language proficiency which has been underway
In the case of language teaching, it is obviously impossible
since the 1950s, and which has led to the development of a number
to lay down a precise recipe for teaching two or more different
of common frameworks. It is the outcome of work undertaken
languages, because languages are formally structured in different
ways. A curriculum for a single language will include the topics to be since 1971 by European scholars involved in language teaching and
covered, and in the case of English, this will include for example the drawing on the pooled resources of the countries of Europe.
sh spelling, the present continuous tense, and perhaps a learner Although originally devised to improve language teaching in
vocabulary. It is also possible to devise a common framework for Europe, the CEFR is now being implemented worldwide. Many
two or more languages, for example for English and Malay, but in countries including Japan, South Korea, Vietnam, Ecuador,
this case the framework has to be more abstract. This is because Canada, Sweden, Spain and Finland have made use of the CEFR
Malay does not have sh spellings or a present continuous tense, as a basis for reforming English language education in their own
and the vocabulary is different from English. countries3.

3
See 3.5 below.

60
The details of the CEFR framework are written up in a Council
of Europe document entitled Common European Framework of
Reference for Languages: Learning, Teaching, Assessment4. The
The relevance of the CEFR to framework is of course designed for any language, not just English,
language education is firstly but a further document entitled English Profile: Introducing the

that the descriptive scheme CEFR for English has been produced specifically for English5.

offers a starting point to review Although described as a framework, the CEFR is actually very
curriculum content, and secondly much more, because it brings together the knowledge gained from
research on language teaching and learning over many decades,
that the common reference and also best practice in the teaching of many languages in different
levels provide a framework for parts of the world. It is best known for its detailed proficiency
putting curriculum objectives, descriptions for beginners and intermediate and advanced learners,
entry testing, syllabus definition, but it encompasses a whole philosophy of language teaching and
learning. To quote North, Ortega and Sheehan (2011, p. 6):
materials organisation, progress
testing and certification of The relevance of the CEFR to language education is
firstly that the descriptive scheme offers a starting point
proficiency into one coherent to review curriculum content, and secondly that the
local system that is appropriate common reference levels provide a framework for putting
to the context, related to curriculum objectives, entry testing, syllabus definition,
real world language ability, materials organisation, progress testing and certification
of proficiency into one coherent local system that is
and easily communicated, appropriate to the context, related to real world language
internally and externally. ability, and easily communicated, internally and externally.

4
published in Strasbourg by the Language Policy Unit of the Council of Europe (www.coe.int/lang-CEFR)
5
produced by a consortium including Cambridge ESOL Examinations and Cambridge University Press

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The CEFR is a planning tool which provides a common and There is no point at which the CEFR suddenly became the
comprehensive framework for language teaching and learning, leader in its field for this is another instance of discontinuous
and for the development of language teaching programmes, and change as described in chapter 2 (2.5.1) but in preparing this
provides the means to communicate more easily what we mean roadmap, we recognise that an important change has taken place
and understand by language competencies and proficiencies in language planning, and that countries now increasingly align
(North, 2007, p. 659). their language programmes to international standards.

The CEFR was originally developed to support language


3.3 The reasons for choosing the CEFR teaching and learning in Europe, a continent in which many
different national languages and minority languages are spoken.
The adoption of the CEFR as the exemplar of international Although it is in practice often used in connection with English, it
standards gives access to a sequence of procedures which can has in principle no particular connection with English at all.
be guaranteed to lead to a substantial improvement in language
While we are proposing the use of the CEFR to develop the
education, and which if carried out with sufficient determination
English language programme, it could equally well be used for the
and rigour, can also lead to excellence at the international level.
teaching and learning of Malay, Mandarin or Tamil or indeed any
other language. It is of course vitally important that if the CEFR is
to be regarded as an international measure, the principles that lie
3.3.1 The need for international standards behind it must apply equally to any language.
It is in the context of establishing international standards that Any country or other body that makes use of the CEFR is
attempts have been made since the end of the Second World War free to take as much or as little from it as is desired. But as in the
to find appropriate ways of setting standards for language teaching case of the metric system, it makes sense to adopt the system as
and learning. The approach taken by the CEFR has received a whole. For example, in adopting the metric system, it would be
international recognition as by far the leader in its field, and the possible but pointless and foolish to adopt metric weights but
CEFR has been used increasingly over the last ten years in the retain imperial miles and furlongs for distances.
planning of language education in many countries across the world.

62
We can likewise take what we want from the CEFR and ignore against internationally recognised standards (CEFR, p. 3). Using
the rest; but in practice it would be wise to ignore parts of the the CEFR to benchmark our English language programme tells us
CEFR only if there is a cogent reason for doing so. What we cannot how good it is compared to programmes in other countries across
do is to ignore constitutive rules; for example, if we were to set up the world. This is the important first step which needs to be taken
a Malaysian kilogramme of 900 grammes we would not in fact be before implementing a reformed English language programme.
using the metric system at all. In the same way, we cannot use the
language and terminology of the CEFR without the key concepts 3.3.3 Alignment
that make up the common framework, and simultaneously claim
Benchmarking leads on to alignment. This term is used in a
to be using the CEFR.
variety of senses, and so it is necessary to explain its uses. To begin
with, a Malay text is aligned with its English translation when we
3.3.2 Benchmarking know which sections of the one correspond to which sections of
the other. We can align originals and translations because we know
An important reason to set up and follow international
in advance that their parts are intended to correspond.
standards is that they can be used to compare different language
education systems, and to assess a single countrys language Using this understanding of alignment, we might look for
education system relative to international best practice. This correspondences between our existing curriculum or assessment
process is referred to as benchmarking. procedures and the skills associated with different points on the
CEFR scale. However, this is to assume that reasonably close
Since the term benchmarking is used in several different and
correspondences already exist, and we know that there are some
overlapping senses, it is essential to be clear about the way it is
fundamental differences, because for example the curriculum is
used in connection with the CEFR. To begin with, benchmarking
concerned in detail with how students achieve such things as basic
has lost all connection with the original sense concerned with
literacy and a command of English grammar, whereas the CEFR
literally making marks on a bench, and refers to the measurement
is concerned with the ability of students to use language skills and
of current performance with respect to some objective standard.
knowledge in communication.
In the case of education systems, this involves obtaining a
clear picture of how an education system is currently performing

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When we talk of aligning an existing language education system 3.3.4 Calibration


to the CEFR, we are using the term alignment in the different sense
Alignment opens up the possibility of calibration. Calibration
of bringing it into alignment. This involves very much more than
involves comparing a test instrument with a standard instrument
a one-to-one matching, and requires the overhaul of the existing
for some known measurement; for example a shopkeepers scales
system. It is in this sense that alignment is the obvious next step
may be calibrated with standard statutory weights, in which
following benchmarking.
case the kilogramme on the shopkeepers scales has to match the
The purpose of benchmarking is to find ways of improving statutory kilogramme. The condition for calibration is that different
performance, inter alia by recognising shortcomings and making instruments measure the same things. A barometer, for example,
them good. The management of a three-star hotel, for example, cannot be calibrated with a thermometer. On the other hand,
needs to know what it has to do to upgrade, and bring its standards different measures can be used as long as the one can be converted
into alignment with those of four-star hotels. A hotel might have into the other: metric and imperial scales can be calibrated, as can
to, for example, open a restaurant, install lifts, or construct a Celsius and Fahrenheit thermometers.
swimming pool. The benchmarking of an education system brings
In the case of education systems, calibration is essential
to light what has to be done to align it to international standards.
whenever there is a need to compare educational qualifications
Alignment in this sense implicitly includes quality. The awarded in different countries. Without calibration it is impossible
restaurant is expected to serve acceptable food, lifts are expected to assess the value of a B grade, or interpret a transcript reporting
to be in working order, and the swimming pool is expected to be safe. good performance. Different countries can use any grading
The alignment of an education system to international standards system, but as long as their programmes and assessments are
similarly takes a quality culture for granted. Alignment ideally has aligned to the CEFR, their grades can be calibrated with the CEFR
a target, for example, to be in the top third of comparable systems scale, so that reasonably accurate equivalents can be ascertained.
internationally, or to come up to the standards of top-performing
systems worldwide.

64
3.4 The CEFR and language teaching and learning Students might talk occasionally in class, usually in answer to
the teachers questions, but in view of the emphasis on accuracy,
Although the CEFR may be associated in the first place with
they might also be reluctant to do so for fear of making a mistake.
testing and assessing achievements, it is based on a whole philosophy
Teaching in this paradigm involved transferring knowledge from
of language teaching and learning. While it would be possible to adopt
teacher to student, which is the source of the metaphor that treats
just the assessment part of the CEFR, and ignore the philosophy, to
learners as empty vessels to be filled with knowledge. Learning
do so would miss much of the point of using the CEFR. It would also
was typically tested by written exercises, especially translation
be counterproductive, because the philosophy itself sets international
into the target language or from the target language into the
standards of practice for language teaching and learning.
mother tongue, which is the source of the slightly derogatory term
In sketching the background to the CEFR, John Trim (2012) the grammar-translation method.
makes a distinction between Classical and Modern paradigms
In this approach, learning the language was separated from learning
of language teaching and learning. The Classical paradigm
to speak it. Students would learn how to analyse or parse the grammar
stretches back many centuries, and as the name implies, was
of written sentences in order to extract their meaning. Teacher and
originally devised for the teaching of Latin and Ancient Greek in
student would have to share some rudimentary understanding of
Europe. The Modern paradigm, although newer, still has a long
how words were pronounced in order to know what words they
history, being traced back to the work of the seventeenth century
were talking about; but this fell far short of what we now think of as
Czech education reformer usually known by the Latinised name
pronouncing the words of a language.
Comenius (Trim, 2012, pp. 14-15).
Since very little was actually known about the spoken form of the
The aim of the Classical paradigm was to provide the learner
language, learners were left to rely on their innate language learning
with sufficient knowledge of the target language to read works of
ability. In the case of modern languages, students from privileged
ancient literature. In the days before students could be provided with
backgrounds might have a tutor who was also a native speaker of the
books, the teacher had the knowledge and the students started with
target language, or travel to a country where the language was spoken
no knowledge at all, and so learning was inevitably directed by the
and so learn to speak it; but for many and for nearly all students of
teacher, and the teacher did most of the talking.
dead languages language learning meant reading and writing.

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The Modern paradigm has always put much greater emphasis on Chomsky (1965) developed the idea of linguistic competence,
the problems faced by the student in learning the everyday form of the which refers to the intuitive knowledge native speakers have about
target language. A major step forward in the teaching and learning of their own language which enables them to produce grammatically
the spoken language was taken by the introduction of phonetics. well-formed sentences in that language. He dismissed performance,
the actual use of language, as unworthy of serious study. Language
The study of phonetics can be traced to the work of Hindu
teachers may attempt to help their students develop competence in
grammarians in ancient India, but in late nineteenth century Europe it
this sense, but they also have to pay close attention to performance
was applied to the teaching of modern languages (Trim, 2012, pp. 16-
whenever they teach in class or mark an exercise.
19). In this and other ways, new findings about the nature of spoken
languages were beginning to find their way into language teaching in Whatever the value of competence in mainstream linguistics,
the first half of the last century. it was of little practical value in the classroom. In 1968, Chomsky
contributed to a new emerging discipline known as generative
After the Second World War, language teaching was brought
phonology (Chomsky & Halle, 1968) which contained rules of a
into the ambit of applied linguistics, to the extent that applied
kind we might now say belong in a computer program, but which
linguistics became virtually synonymous with language teaching.
in any case have little to do with the teaching of pronunciation in
By the 1970s, applied linguists were developing the Communicative
the classroom.
Approach to language teaching and learning, which as the name
implies put the emphasis on enabling the student to develop Some universities introduced the new ideas from mainstream
communicative skills. linguistics into MA courses for language teachers, which inevitably
and understandably resulted in resistance to the study of grammar
Among the ideas now increasingly taken for granted are
and the spoken language. Although the Communicative Approach
student-centred learning, the notion that learners should do some
represented in principle a major step forward in the teaching
of the talking and practise speaking the target language in realistic
and learning of languages, it also in some respects took a step
situations, and that students should be allowed to make mistakes as
backwards in the teaching of linguistic form.
part of the learning process. However, this development coincided
in the most unfortunate manner with new ideas in mainstream
linguistics.

66
If the Classical approach represents the thesis, and the Modern
approach the antithesis, then the CEFR represents the synthesis.
The CEFR neatly sidesteps a number of potentially divisive issues
Communicative language
by not adopting any position at all on how languages should be competence can be considered as
taught, and concentrating instead on the abilities that learners comprising several components:
need to develop, expressed in the form of can do statements. linguistic, sociolinguistic and
There has been much comment on the positive nature of these pragmatic. Linguistic competences
statements, which is felt preferable to focusing on what learners include lexical, phonological,
cannot do or have failed to do. But if learners are to develop
syntactical knowledge and skills
communicative abilities, it is self-evident that they need the
infrastructure of linguistic form to enable them to do so.
and other dimensions of language
as system. Sociolinguistic
Basic to the CEFR approach is the notion of Communicative
Competence, first put forward by Dell Hymes in 1972 (Hymes,
competences refer to the
1972). It is not enough to produce grammatically well-formed sociocultural conditions of language
sentences, and speaking another language also includes knowing use. Pragmatic competences are
the appropriate things to say in different social contexts. In order concerned with the functional use
to succeed with the CEFR, Malaysian learners will not only have
of linguistic resources (production
to acquire the knowledge associated with the Classical approach,
but also to apply it interactively in different social situations as
of language functions, speech acts)
envisaged by the communicative approach and other variants of and also the mastery of discourse,
the Modern paradigm. cohesion and coherence, the
identification of text types and forms,
irony, and parody (CEFR, p. 12).

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3.5 The CEFR around the world 3.5.1 The use being made of the CEFR

Before embarking on a project of the scale of implementing A point that quickly emerges is that the problems and
the CEFR in our English language programme, it is as well to opportunities faced by Malaysia are shared with other countries.
consider the experience of other countries, and where possible The CEFR is often brought in at a time of curriculum change (Byram
learn from their experience. This section takes a Malaysian view & Parmenter, 2012a, p. 114), and is typically imposed from above
of the experience of the CEFR elsewhere. The task is greatly following a government decree or other decision of the central
lightened thanks to the publication of an edited book (Byram & government intended to overhaul the existing programme (Pea
Parmenter, 2012b) recounting the experiences of no fewer than Dix & de Meja, 2012, p. 140; Porto & Barboni, 2012, p. 119). The
eleven different countries around the world. motivation is in some cases to deal with perceived shortcomings in
the existing language programme; for example, Goullier (2012, p.
Perhaps the first important insight this book provides is into the
38), states quite candidly that Language teaching in France does
international status of our current English language initiative. From
not achieve the results that society expects of it. The decision to
an internal point of view, we are taking a major stride forward in
use the CEFR can thus be taken as a positive sign of the intention
developing the potential of our young people, with especial regard
to improve the existing language programme.
to English. But so, apparently, is the rest of the world. As Wu
(2012, p. 213) puts it, Influenced by the force of globalization, It is not always clear from the different contributions to what
every country in the world has made the cultivation of human extent the CEFR has been used to bring about genuine reform
talent a priority in the 21st century. Our aim is to move forward, in language education. Reporting on Taiwan, Wu (2012, p. 221)
but we also have to take a major initiative just in order to maintain points out that
our current international position.
Having noted the problems and issues that have emerged
from the adoption of the CEFR since 2005, we realize
that simply making a decision to adopt the CEFR and
mandating its use as a policy are absolutely insufficient to
serve the overall educational purpose.

68
which suggests that in some cases the use of the CEFR may be form, this approach has some similarity to the Classical paradigm in
essentially cosmetic, disguising unchanged practices with a thin veneer. Europe. Teaching is oriented towards testing (p. 187), and focuses
on vocabulary and grammar:
In most cases, as in the case of Japan (Sugitani & Tomita,
2012, pp. 201-203), the use of the CEFR includes the can do Our past practice was to focus on something quantitative
statements and general proficiency levels. In Germany, in the state in assessment. For instance, what is your reading speed?
of North-Rhine Westphalia (Rnneper, 2012, p. 55), it has been How much is your vocabulary? How many words can you
used for the development of teaching and of the curriculum. In write each minute? (p. 191)
Poland, it has influenced the curriculum and assessment, but has
had less effect on teaching methods (Poszytek, 2012, p. 102). The implementation of the CEFR can be partial not only with
regard to what parts of the language programme are modified,
In Taiwan, it is used mainly for English language assessment
but at what level it is implemented. In Japan, it is implemented
for students, English teachers and civil servants, with an emphasis
predominantly in universities (Sugitani & Tomita, 2012, p. 198). Taken
on finding score equivalents for Taiwanese internal assessments
positively, this could suggest a procedure for phased implementation.
(Wu, 2012, pp. 215-218), which is difficult unless the internal
assessments test the same things as international assessments The CEFR is already in use for the teaching of some languages
based on the CEFR. Wu (2012, p. 219) also points to the need to in some Malaysian universities, and universities have the means to
bridge the gap with teaching. The experience of Taiwan confirms move ahead with the CEFR irrespective of what is happening in the
the need for coordination in implementing the CEFR at different rest of the language programme. If implementation were to start
educational levels (Cheung, 2012, p. 225), including textbooks only at preschool level, it would take many years for the effects to
(p. 226), and what they call occupational domain (p. 227), e.g. be observable at tertiary level; but if a push at preschool level were
General English or Business English. to be complemented by a pull at tertiary level, implementation
could be completed in a much shorter time.
The report from China is perhaps of particular interest
to Malaysia. Chinese language education traditionally takes a
quantitative approach, for example concentrating on such things as
word lists (Zou, 2012, pp. 184-185). In concentrating on linguistic

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3.5.2 Attitudes towards the CEFR Some complain that the CEFR takes a utilitarian or instrumental
approach to language learning. Here are two views, from France and
The introduction of the CEFR is received in different ways
Germany respectively:
ranging from enthusiasm to suspicion and fear. Commenting on
the reaction in France, Goullier (2012, p. 42) refers to two sides, a utilitarian conception of language, to the detriment of the
the one feeling educational and cultural dimensions (especially literary)
which are highly prized in France. (Castellotti, 2012, p. 47)
...an understandable concern about the required evolution
in their practices by reference to an instrument known to
The underlying concept of language was considered to
very few
be one-sidedly instrumental-functional; the aesthetic,
and the other filled with affective, creative, moral and cultural dimensions of
language and language learning seemed underdeveloped.
enthusiasm... for a text to which many tended to attribute, (Hu, 2012, p. 68)
almost with a sense of magical thinking, all the qualities of
innovation. Argentina claims to have gone on from a product-oriented
approach to one that allows children and young people to become
It is essential to disseminate accurate information about the citizens of the world (Porto & Barboni, 2012, pp. 120-121). Porto
CEFR, allaying fears on the one hand, and modifying exaggerated (2012, pp. 135-136) outlines two world models of education:
expectations on the other.
One is the human capital education model that views
Negative reactions to the CEFR have led to a number of (language) education as a tool for learners to open up the
criticisms which have been reported in the country contributions. world and have access to knowledge, information, health,
An important caveat to bear in mind is that the authors cited below education, employability, economic growth and social
are reporting on conditions in their respective countries; they are and economic mobility. The second model of education
not reporting their own views, and it cannot be assumed that they is Progressive Education, the main tenets of which are
share the views they report. education for active citizenship, for social justice and for

70
the protection of local languages, celebrating the students Some criticisms are self-revealing in ways that are no doubt
interests and participation. unintended. For example, Zou (2012, p. 193) reports two interesting
complaints from China:
From a Malaysian point of view, far from being a shortcoming,
The CEFR is not easy to understand, and very few people
this is a positive virtue of the CEFR. For the government and for
know about this document.
students alike, English is studied for utilitarian purposes in the first
instance, and successful students can go on if they so wish to read the
Besides it is hard to design a test based on can-do statements,
works of Shakespeare. Malaysia also subscribes to values associated
and you still need something quantitative for testing.
with education, and takes into account aesthetic, affective, creative,
and moral considerations; and these are written up in the proper
Komorowska (2012, p. 109) reports from Poland a complaint
place in the MEB. However, values of this kind are not specific to
concerning insufficient dynamics of phonological competence
English or to language, and while they will be appropriately reflected
development referring to page 117 of the CEFR document. The
as a matter of course in our English language programme, it is not the
reference is actually to part of a brief discussion of pronunciation
business of the CEFR or of our English language programme to act
and prosody on pages 116-7. The CEFR is perfectly clear to anyone
as sole champion for these values.
who understands this area, just as references to English grammar
Related to this is the objection that the CEFR is foreign are clear to anyone familiar with English grammar. It does not
(de Meja, 2012, p. 151; Pea Dix & de Meja, 2012, p. 147). In suggest how to teach pronunciation and prosody for the same
a globalised world, the best ideas and best practice are adopted reason as it does not recommend methods for teaching grammar
worldwide irrespective of where they originate. One imagines that and vocabulary.
the objectors are quite happy to use the foreign metric system,
The inadequacy of complaints and criticisms is not of course
and type out their objections using foreign software installed on
evidence of the excellence of the CEFR. However, if there were
foreign computers. The criterion is whether the CEFR is fit for its
serious shortcomings, they would surely have come to light in the
purpose, and its foreignness is entirely irrelevant.
years since the document was published in 2001, and they would
be reflected in Byram and Parmenter (2012b). The absence of

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serious criticisms is a good sign, and Malaysia can go ahead with Vietnam has initiated a National Foreign Languages 2020 Project,
some confidence in using the CEFR. which includes among its aims the target for teachers to achieve B2
in English. An interesting detail from a Malaysian point of view is that
some teachers will be expected to teach Mathematics in English.
3.5.3 The Vietnamese experience
According to the executive manager of the project, the target is
Vietnam is not one of the countries included in Byram and set to find out how many teachers need government-funded language
Parmenter (2012b), and is accordingly dealt with here in its own training; but the teachers naturally fear that if they fail they will lose
subsection, having been compiled from materials available on the their jobs. According to others described as officials, teachers need
internet. Vietnam is important because it is a fellow member of B2 in order to read academic papers to contribute to their professional
ASEAN, and a suitable comparator country for Malaysia. development. The current success rate is 18% in Hanoi, 61 out
of 700 in Ben Tre province, and only 1 in 700 in a province that
Tien (2013, pp. 67-68) reports that the Ministry of Education and remains unnamed. The highest rate was achieved in Hue following
Training has issued the Common Framework of Levels of Foreign screening by the British Council.
Language Proficiency based on the CEFR, and set the targets A1 for
the end of primary school, A2 for lower secondary school, and B1 At this point we have to consider what the targets actually
for general school leavers. The target seems to be still B1 for most mean. The matching of primary school with A1, lower secondary
university graduates, although those graduating from language colleges with A2 and upper secondary with B1 is neat and intuitively
are expected to get B2 or C1. Tien discusses a number of problems (p. satisfying, but this is beside the point. The first question is whether
67) including an improved curriculum which is nevertheless beyond the students can achieve the targets. Given the very low success
the reach of the majority of students at general school, poor teacher rate of teachers reaching their target of B2, this seems unlikely.
quality, the traditional teaching of grammar rules grammar
The second question is what percentage of students are
exercises and vocabulary, insufficient classroom facilities, and
expected to reach the targets. In the real world it is impossible for
testing that focuses only on checking language knowledge rather than
100% of students to succeed, and if no percentage target is set, if just
language skills.
1% succeed, the target could be said to have been met. Targets are

72
actually meaningless unless they are accompanied by percentages. Press comment has pointed to the unrealistic nature of the
The third question concerns the consequences of success or failure. project. Thanh Nin News8 suggests that Vietnam is trying to
do in seven years something that took Singapore thirty years. An
A target set for university entrance could mean that students not
article in the UK Guardian Weekly9 suggests that a miracle will be
reaching the target would be denied university entrance, and language
required. What seems to be missing is a plan commensurate with
graduates failing to reach B2 could be denied their degrees. But primary
the size of the problem or one might suggest a roadmap to
school children failing to reach A1 would presumably not be denied
enable aspirations to become a reality.
entrance to secondary education. The fact that teachers appear not
to know the consequence of not reaching their target does not give
confidence that the consequences have been thought through. In 3.6 The CEFR in Malaysia
short, judging by the information available on the internet, it is not
The purpose of this section is to draw attention to the
clear what the targets are for, they would appear to be unrealistic, and
consequences for Malaysia of adopting the CEFR, and to the
there is no way of ascertaining whether they have been met or not.
advantages that will accrue as a result.
Huge amounts of money are budgeted to improve standards of
3.6.1 Adopting a common framework
English. Project 2020 is said to have a budget of USD443 million.
According to TuoitreNews6, Long An Province set aside some The introduction of a common framework can be expected to
USD20.8 million to enable students to speak English after graduating bring with it a new culture of English language teaching and learning.
from high school, while Binh Dinh Province plans to spend some
USD8.4 million to improve the teaching and learning of English by
2020. A new curriculum taught by retrained teachers should be in The CEFR and the English language programme
place in 70% of Grade 3 classes (age 8-9) by 2015 and throughout by
The CEFR approach to the curriculum complements the
2019. Other initiatives include a workshop organised by the British
approach taken in the present curriculum. It specifies the outcomes
Council7 in 2013 to provide input on how teachers might better
to be achieved, but does not indicate how they are to be achieved,
integrate the CEFR and its can dostatements into their teaching
whereas the present curriculum specifies what is to be taught, but is
as well as classroom based exam preparation techniques.
less clear on the outcomes of teaching. For example, the basic level
6
http://tuoitrenews.vn/education/11052/central-vietnam-province-to-spend-4-mln-on-english-teaching, accessed 17 May 2014.
7
http://www.britishcouncil.org/accessenglish-news-bringing-cefr-to-vietnam.htm, accessed 17 May 2014.
8
http://thanhniennews.com/special-report/pygmalion-effect-unlikely-to-propel-vietnams-english-upgrade-plans-1921.html, accessed 17 May 2014
9
November 2011; http://www.theguardian.com/education/2011/nov/08/vietnam-unrealistic-english-teaching-goals, accessed 17 May 2014.

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English Language Education Reform in Malaysia
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of reading at A1 is described (p. 69) as Can understand very short, The CEFR levels and descriptors are already available, and can
simple texts a single phrase at a time, picking up familiar names, be used by all parties, including curriculum designers. teachers,
words and basic phrases and rereading as required. materials producers and assessors alike. For example, at level A1,
teachers know they have to teach students to introduce themselves,
The corresponding pages 8-9 of the KSSR for years 1 and 2
materials producers have to create materials to support the teachers,
(SK) include references to phonics and to phonemic awareness,
and assessors can appropriately test whether the students can do it.
and the curriculum (pp. 16-17) deals with such things as letter
recognition, phoneme recognition and production, and segmenting International standards
and blending. Although these components undoubtedly contribute
The current educational initiative of which the preparation
to early reading, the question is how they fit logically together to
of this roadmap constitutes a part is timely since it comes at the
form a consistent pedagogical approach, and how they enable the
confluence of two long term historical developments outlined in
learner to understand short simple texts. In this case, the CEFR
chapter 2. On the one hand, the Malaysian education system has
greatly facilitates the task of upgrading the curriculum, as task
advanced to the point where it is both feasible and desirable to take
which has to be undertaken in any case.
the quantum leap required to achieve national goals: if Malaysia
The common framework brings with it the advantage that it can is to be recognised as a developed country, then we need the
be used by all parties working on the English language programme. educational infrastructure to support developed country status.
It would be difficult enough for assessors and curriculum developers On the other hand, we have to come to terms with English as the
to integrate their work without a common framework to work to, global language. If we take the right steps now, English will support
and well-nigh impossible to bring teachers and materials developers our development and keep us in touch with the international
into line. The possibility of getting assessors, curriculum developers, network.
teachers and materials developers to produce a pedagogically
The last two centuries or so have seen the emergence of
ordered and internally consistent programme from preschool to
international standards of all kinds. Independent countries have the
tertiary level would be zero without a common framework, and not
right to decide on their own standards, but it is of advantage to
worth even considering. It might be possible to devise a framework
all countries to use the same standards. For example, it is much
ad hoc, but it is obviously preferable to use a framework which has
to our advantage and to the advantage of countries that trade
already been developed, and tried and tested.

74
and otherwise interact with us to use the metric system. In the someone who understands the metric system has to use it to do
same way, we have adopted ISO and many other international the weighing and measuring. In the same way, we cannot take the
standards. This is clearly an appropriate time to move over to CEFR off the shelf and expect it to provide us with a ready-made
international standards in language education. Adopting the CEFR development plan for our English language programme. It is our
is the appropriate next step. responsibility to put in the time and effort to understand the CEFR
at the necessary level of detail, and then use it to devise our own
The adoption of international standards saves an enormous
development plan.
amount of unnecessary work. As part of a comprehensive scientific
system of weights and measures, the metric system has the great Benchmarking, alignment and calibration
advantage of saving Malaysian scientists the need to work out their The recent baseline study was a benchmarking exercise which
own weights and measures, for example to measure atmospheric involved assessing the English proficiency of a large number
pressure. In the same way, much of the work involved in developing of students and teachers on the CEFR scale. From the large
a language programme has already been done as the CEFR has number of individual scores it is possible to compute averages
evolved over the years, so that we do not now have to start at the and distributions, and make comparisons with other countries
beginning and do all the work for ourselves. or with our own performance at some other time. Meaningful
If the question is asked why we have to import a foreign comparisons of this kind can only be made if all the scores relate to
framework, when we are quite capable of producing one for a common framework. The benchmarking of our English language
ourselves, there are two answers. In the first place, there is no education system has brought to light what we have to do to align
point in doing so, as the work has already been done. Secondly, a it to international standards, and this includes integrating the
domestically produced framework would face the same problems components of the English language programme, training teachers
as traditional weights and measures such as kati and tahil, in that it in communicative language teaching, and enforcing high standards
would be irrelevant outside the home country in a world that has for learning materials.
gone over to an international standard. Alignment to a common framework enables the comparison of
At the same time, the metric system does not actually do the qualifications from different countries. Suppose a foreign student
work, and cannot weigh a durian or compute the size of Kelantan: applies to study at a Malaysian university, claiming to have achieved

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an A in English in some examination XYZ. We have no idea how to relevance to present day Malaysia of the discussion above of the
evaluate this A, because we do not know what XYZ sets out to test, Classical paradigm is that, although we would have to undertake
or what is required to get an A. On the other hand, if XYZ is linked an extensive investigative research project to prove the point,
to a known framework, we are able to work these things out. The all the evidence we have indicates that Malaysia has inherited a
same, of course, applies to Malaysian students applying to foreign Classical paradigm for the teaching and learning of English.
universities, or seeking employment with international organisations.
For example, the approach to grammar laid down in the national
The precise comparison of grades and qualifications depends on curriculum follows the tradition of English school grammar,
accurate calibration. For example, if we want our English qualifications and the sound system associated in the curriculum with phonics
such as the MUET to be recognised abroad, it would be a great teaching is primarily concerned not with the sounds of the spoken
advantage to have the MUET calibrated with the CEFR. We first language but with the spellings of the written language. As already
have to ascertain that the MUET is aligned to the CEFR, because only reported in Chapter 1, the Cambridge Baseline found the spoken
in this way can we be sure that the same things are being measured. language a source of weakness for both teachers and students.

There is no need for the MUET to use the CEFR scale from A1 As in other countries, individual Malaysian English teachers
to C2, and it can use any scale at all, as long as each point on the adopt a variety of approaches to teaching and learning. Some
MUET scale matches a corresponding point on the CEFR scale. Since including perhaps some of the best and most experienced teachers
the CEFR is a framework and not an examination, some precision is will follow the Classical paradigm, and even associate the Modern
required to clarify exactly what is being compared to what. Calibration paradigm with dumbing down and lowering standards. Others will
comes at the end of a long process beginning with benchmarking and follow some variant of the Modern paradigm, and perhaps regard
continuing with alignment. the Classical paradigm as old fashioned and out of date.

The philosophy of language learning There may be a third group of teachers who follow conventional
One of the major tasks that confront us is to change the classroom practices without having much idea of their purpose or
culture of English language education, including the philosophy of what paradigm they belong to. Each of these groups has much to
that is expressed in teaching and learning in the classroom. The learn and much to gain by bringing the different paradigms together
to enable our English learners to develop communicative competence

76
in English. The Modern paradigm must be underpinned by a full which has been underway since the 1950s, and since the work has
understanding of the content knowledge that teachers need in the already been done, we do not need to start at the beginning and do all
language classroom. the work ourselves. The outcome of this work is the development of
common frameworks, so that instead of making ad hoc measurements
The point was made in Chapter 2 that English language
and comparisons, these things are interrelated in a principled manner.
education was first introduced to Malaya for the children of the
privileged. Students would hear English spoken all around them, There are now several frameworks available, and we have to
or complete their education in England, so that the shortcomings select the one most suitable for Malaysia. Again we are fortunate
of the Classical paradigm would be made good. The same solution in that relevant work has already been done, in this case in Canada.
has worked up to the present time, and explains how and why Although the Canadian language situation is very different from
so many Malaysians have excellent English. However, what is our own, the need for a common framework is much the same.
appropriate for the education of the privileged is not necessarily The reasons that led to the decision to use the CEFR in Canada10
appropriate for the mass education that has been introduced and apply equally to Malaysia.
developed since 1957.
We are also in a position to benefit from the experiences of
Most students have not had the opportunity to complement other countries. A lesson that comes across very clearly is that
school English with the regular day-to-day contact with English that superficial flirting with the CEFR serves no purpose whatsoever.
is necessary for them to learn to speak English well. It is not in the Any change in the existing English language programme will be
least surprising that the baseline study found the problem greatest in expensive, and involve huge amounts of time and effort. We
rural areas where contact with and access to English is least. therefore have to get value for every ringgit, and the time and
effort must result in better teaching and more effective learning.
The worst possible outcome would be a hybrid programme, with
3.6.2 Benefiting from experience elsewhere some aspects of the CEFR superficially grafted on to the old
One of the advantages of coming relatively late to the adoption programme, which would leave teachers and students not knowing
of international standards is that much of the work has been done. which way to turn, and quite possibly lower the overall level of
The CEFR is based on research on measuring language proficiency attainment instead of raising it.

10
New Canadian Perspectives: proposal for a common framework of reference for languages
for Canada. Published in 2006 by the Canadian Government Publishing and Depository
Services.

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The experience of other countries confirms what we already be an expert on English grammar. Exploiting the possibilities
knew concerning the things that have to be done, including (a) offered by the CEFR will necessarily be a group effort.
teacher training, (b) reviewing the programme and (c) disseminating
The ELSQC may be the appropriate body to play a leadership
information.
and supervisory role, but for the implementation of a revised
1. Teacher training. Our first priority has to be improved programme, the Ministry of Education will need to be able
teacher training, including retraining existing teachers and to draw on the services and expertise of several groups of
introducing new approaches to learning into the classroom. appropriately qualified contributors, including teachers,
Without changes in the classroom, the influence of the CEFR materials producers, curriculum designers and language testers.
will remain superficial. This is the only way to achieve genuinely
In this connection, the introduction of the CEFR has important
higher standards by the end of Wave 3.
implications for materials production. For example, teachers
2. Reviewing the programme. We need to review the whole are typically required to teach students to pronounce English
English language programme, including the curriculum, words correctly, and speak with appropriate stress, rhythm
methods of assessment, and teaching and learning, in the light and intonation11. But they cannot enable students to do things
of the CEFR, and in accordance with the agenda driven model they cannot do for themselves, and if their only resource is a
outlined in Chapter 1. silent printed textbook.

Work on the CEFR has been progressing for over forty years, Instead of teachers having to follow the textbook, materials
and the CEFR document is long and complex. It is beyond producers will have to cater for the needs of teachers and their
the capacity of any single individual to write, and few if any students. Given the constraints of time, it will be impossible in
individuals are likely to be able to understand it fully in its entirety. practice to produce suitable home-made materials in time for
Implementing the CEFR and even handling the CEFR document teachers with improved levels of training. It will therefore be
will therefore require the cooperation of a group of people with necessary to consider the possibility of buying existing CEFR-
complementary skills and high levels of expertise working closely aligned learning materials, at least in the short term.
together. For example, an expert grammarian may not be a good
writer of classroom materials, and the materials writer may not
11
Kurikulum Standard Sekolah Rendah: Bahasa Inggeris (SJK), p14.

78
3. Disseminating information. The introduction of the These things have to be clear and explicit, for otherwise, as
CEFR has to be accompanied by the dissemination of reliable in Vietnam, teachers are likely to be demoralised. Students also
information. However benign the new system may be, it need to know explicitly how their academic progress and future
could still cause resistance and even be perceived as a threat careers are likely to be affected by the effort they put in to
by those who do not properly understand it. Considerable learning English. Thirdly, expectations like targets must be
efforts will therefore have to be made to ensure that all those realistic, and related to our current position and the resources
involved in implementing the CEFR understand what it is made available for development.
about and why it is being introduced. This is also the way to
There are only eleven years left to the end of Wave 3, which
avoid ill-informed criticism. Teachers and curriculum designers
is just over a third of the time it took Singapore to overhaul its
will need to be made aware of the CEFR, while for others,
English language programme, and what will be achievable in that
including materials developers and testers, awareness of the
time will be limited by the available resources and by the will and
CEFR and the knowledge and expertise to operate at the
determination to see the project through to completion.
appropriate professional level should be made a condition of
appointment.

Malaysia has much to learn from the Vietnamese experience. 3.6.3 Using the CEFR in planning
First, targets must be realistic, and related to what we know about
Forming explicit connections between the curriculum and the
the current state of affairs. The Cambridge Baseline is of major
CEFR can do descriptors illustrates one way in which the CEFR
importance in this case, because it gives us a clear insight into
can be used in planning. Using the CEFR to develop the curriculum
where we are now, and so what would be possible to achieve in
will involve not only reviewing content but also the setting of
the course of Wave 2 and Wave 3. Secondly, people need to know
target proficiency levels (A1 and A2 or Basic User; B1 and B2 or
how the new programme will affect them. For example, teachers
Independent User; and C1 and C2 or Proficient User) to describe
need to know how they are going to benefit if they put in the time
what learners are expected to achieve at each stage of learning
and effort required to improve their proficiency and qualifications,
from preschool to university.12 Preliminary investigations indicate
and conversely what problems they will face if they do not.
that the CEFR levels will have to be subdivided, especially at the
12
For further discussion of targets, see the editorial introduction to section B.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

lower end (e.g. A1.1, A1.2 etc), each new level representing a listen to and repeat simple greetings, while the corresponding CEFR
significant advance in English proficiency, and building on learning standard requires students to be able to use that knowledge in social
at previous levels. situations. The difference may sound subtle or even trivial; but it has
profound consequences for the way the spoken language is taught in
As already mentioned in passing above, the subdivision is
the classroom.
especially important for lower levels where learners may spend
several years mastering A1 and A2. It will enable learners to A key notion is communicative language competence, which
measure their own progress on the proficiency scale more finely includes among its components linguistic, sociolinguistic and pragmatic
and in smaller increments than using undivided levels, which can competences (p. 13). These competences are discussed further on
require study for several years in order to move up to the next pages 30-1, and later explained in some detail (pp. 108-130), and
level. The subdivision will also facilitate classroom organisation include lexical, grammatical semantic, phonological, orthographic and
and the delivery of language instruction. In this respect, Malaysia orthoepic13 competence (p. 109).
will be able to take good advantage of experience elsewhere (see,
Communicative language competence thus includes but goes
e.g. French Elementary Secondary Curriculum, 2011, p. 5).
beyond mere linguistic knowledge and involves the ability to use that
To the extent that the existing curriculum corresponds to knowledge appropriately in a range of communicative situations.
the progression implied by the CEFR, we can align the two by Chapters 4 to 9 of the CEFR document draw on an extensive body of
matching corresponding items in the curriculum and the CEFR. research in the field of language education to spell out in some detail
But we must also anticipate the need to bring our curriculum how the scale A1 to C2 applies in learning, teaching and assessment.
into alignment, by changing the order of items, introducing new
items and perhaps discarding existing items. It is also the case that
correspondence does not mean sameness, and it is important to be
aware and to bring out the differences.

Items that on the surface look alike may on closer examination


prove to be different. For example, the curriculum for speaking and
listening begins with the acquisition of declarative knowledge, e.g.
13
Orthoepy means correct pronunciation. This is a rather odd word to use in this context,
because in English the term orthoepist is typically used to refer to someone who claims the
right without any justification to tell other people how words should be pronounced.

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English Language Education Reform in Malaysia
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SEC T ION B
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English Language Education Reform in Malaysia
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82
English Language Education Reform in Malaysia
The Roadmap 2015-2025

B
Looking Back and Moving Forward

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Looking Back and Moving Forward

S
ection B builds on Section A by developing issues raised in
Section A, and examining them more specifically at the five
different stages of the education programme, namely pre-
school, primary, secondary, post-secondary and tertiary. Each of
these stages is considered in a chapter by itself:

Chapter 4: preschool

Chapter 5: primary

Chapter 6: secondary

Chapter 7: post-secondary

Chapter 8: university

The last chapter in this section, Chapter 9, deals specifically with


teacher education.

In the preparation of each chapter, attention has been paid to


a number of issues which are dealt with in different ways at each
stage of education. These include:

a critical evaluation of the curriculum, teaching and learning,


and assessment;

initiatives already taken;

84
the current state of progress;
Preschool Y6 F3 F5 F6
recommendations for improvement;

specifying the conditions essential for any successful


C2 2
reform and for the reform to be sustainable.

C1 1 2 4
Each of the chapters 4 to 9 views the general state of affairs
from its own perspective, but some of the issues and problems
raised are shared by all levels of education from preschool to B2 1 13 17 21
tertiary, and they apply to learning as much as to teaching. The
remainder of this editorial introduction provides an overview of B1 12 17 26 32
three common areas of interest and concern. These are (1) current
performance; (2) key interventions; and (3) a discussion of critical A2 6 22 29 29 27
issues in the teaching and learning of English which lie beyond the
purview of the CEFR. A1 16 34 28
27 14
<A1 78 32 12
1. Current Performance

Table B.1 brings together the overall results published in 2013


of the Cambridge Baseline (i.e. the pooled results for Listening,
Table B.1
the overall distribution
Reading, Writing and Speaking) expressed as percentages and
taken from tables on pages 17 to 29 of the Results Report. of CEFR levels

85
English Language Education Reform in Malaysia
The Roadmap 2015-2025

At the present time 29% before rising again to 32%. This pattern reflects the increasing
range from high performers to underperformers remarked upon in
78% of preschool children are working towards A1, the the Cambridge Baseline. The increase for Form 6 is to be explained
remaining 22% having achieved A1 or A2;
by the fact that many underperformers will have left the education
system at this stage.
By Year 6, the largest group (34%) is in A1, and a majority
(66%) is in A1 or below; Judging by the figures in Table B.1 and taking into account our
current level of national performance, A1, A2 and B1 would appear
By Form 3, the largest group (29%) is in A2, and a majority
to be appropriate teaching targets for respectively Year 6, Form 5
(57%) is in A1 or A2;
and Form 6. Future performance targets can take the form either
By Form 5, the largest group (29%) is in A2, while 26% of increasing the percentage of students achieving the target level,
have advanced to B1, and 27% still remain in A1; or of raising the target itself.

By Form 6, the largest group (32%) is in B1, while 27%


remain in A2, and 14% in A1 or below.
1.2 High Performance and Underperformance

While large numbers of students are in the middle of the range


1.1 The middle of the range (see Table B.1), others score below or above it. The majority of
In order to describe the present situation in more detail, we students are not more than one level above the middle range at
have to consider the whole distribution, starting with the middle of preschool level, and not more than one level above or one level
the range, or the grade that typical students can expect to achieve. below the middle range at all other levels. This includes 94% of
The middle of the range corresponds to below A1 for preschool, students at preschool level, 88% at year six, and 74% at Form 3.
A1 for Year 6, A2 for Form 3 and Form 5, and B1 for Form 6. For Form 5 we have to guess the number remaining below A1,
but if we make the generous assumption that the 12% at Form 3
Note that the middle of the range is also the biggest group, i.e. has halved, the majority group includes 66% of students. The
the largest percentage in each column. The general tendency is for corresponding figure at Form 6 is 60%. What these figures show
the size of the biggest group to decrease, from 78% to 34%, 29%, is that the distribution flattens out over the years. Whether this

86
is a positive or negative phenomenon depends on the numbers of Although the figures do decline from preschool to Form 6, the
students below or above the majority group. remaining number of underperformers nevertheless represents a
waste of potential from a national point of view, and no doubt a
High performing students are those who score two or more
loss of career opportunities for many of the students themselves.
levels above the middle, and underperformers score two or more
Although general teaching levels will be set to suit the majority of
levels below the middle. The figures for high performance are 6%
students, attention has also to be paid to the needs of those students
at preschool level, 13% at year 6, 14% at Form 3, 19% at Form 5,
whose performance falls below the median level. This will have
and 6% at Form 6 (where the middle itself rises to B1). These
consequences for classroom teaching, for example in practising
figures raise the question whether high performers are sufficiently
differentiated teaching, as proposed by the Cambridge Baseline.
stretched, or whether appropriate intervention could further raise
the number or level of performance of high performers. The only The figure of 78% of preschool children below A1 (see Table
reliable figures for underperformance are 12% at Form 3, and 14% B.1) includes a wide range from those just missing A1 to those who
at Form 6. have learnt almost nothing at all. The same is true of the 32%
who are still below A1 in Year 6. The Cambridge Baseline figures
The 12% and 14% belong to the set of the more worrying
indicate that some at least of those who do not reach A1 in primary
figures to emerge from the Cambridge Baseline concerning the
school nevertheless make progress in secondary school, and reach
number of students who make very little progress if any in the
A1 in Form 3 and A2 in Form 5.
study of English:
However, the figures also indicate that a substantial number
Preschool: 78% below A1 of students have still made at best very little progress by Form 5.
Leaving aside students who have difficulties in language learning on
Year 6: 32% below A1
account of some disability or disorder, the target size and date for
Form 3: 12% below A1 this non-performing group should be zero by 2020, and the setting
of this target needs to be accompanied by a remedial programme
Form 5: 27% in A1 or below designed to get the students started in learning English.

Form 6: 14% in A1 or below

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Students who get started in this way will join the students with training to become autonomous language learners,
underperformers two or more levels below the median level. An and so enable them to realise their full potential.
indication of the size of this group is given by the 12% at Form 3,
and the 14% at Form 6. This group should also be reduced to zero,
2. Key Interventions
but in view of its size, it would be unrealistic to achieve this target
by 2020. A more realistic aim would be to reduce the group to
zero by the end of Wave 3 in 2025. In accordance with the aims set out in the MEB, a number of
key interventions referred to as short-term initiatives have been
The Cambridge Baseline also gives figures for students whose introduced across the Malaysian education system (Figure B.1),
performance is two or more levels above the middle: and implemented and monitored by divisions of the MoE.

Preschool: 16% in A1 and 6% in A2; Existing initiatives were reviewed following the launch of the
MEB in 2013, and consolidated to bring them into line with new
Year 6: 22% in A2, 12% in B1 and 1% in B2; initiatives. Our main concern here is with initiatives that have been
developed specifically for English, although account also needs to
Form 3: 17% in B1, 13% in B2, 1% in C1; be taken of initiatives which affect the education system in general,
but which also have an impact on English language education
Form 5: 26% in B1, 17% in B2, 2% in C1; in particular. For example, the introduction of the set system is
specifically designed to improve English language proficiency,
Form 6: 21% in B2, 4% in C1, 2% in C2. whereas the initiative to promote higher order thinking skills is a
High performers two or more levels above the median level system-wide initiative that impacts all subjects including English.
amount to 6% at preschool level, 13% in Year 6, 14% in Form 3, All initiatives specific to English come within the remit of the
19% in Form 5, and just 6% in Form 6 for which the median level Jawatankuasa Kerja Inisiatif Bahasa Inggeris (English Language
is B1. It would be unrealistic to set targets for this group beyond Initiatives Working Committee) chaired by the Director-General
recognising the desirability of maximising its size. Intervention is
also needed for this group, for example by providing the more able

88
of the Ministry of Education. Selected
Pro-ELT initiatives are also reported to the
Native Speaker Jawatankuasa Induk MBMMBI
Programme (MBMMBI Committee) chaired by
Fulbright Teaching the Minister of Education.
Teachers Assistants
We first review briefly in
School Improvement
chronological order a number of
Specialist Coaches
(SISC+)
The impact initiatives associated with Wave 1 of
is to be the MEB (see Table B.2), including
ascertained some that started earlier but which
Standards-based
Curriculum
by a remain of current relevance. The
different initiatives are dealt with in
School-based rigorous more detail in the relevant chapters
Assessment evaluation of Section B. We then consider the
Oral Proficiency for
Secondary Schools procedure. effectiveness and success of these
Students LINUS 2.0 for Years 1-3
initiatives.

Sets for English


learning in Secondary
Schools
Obligatory pass in
SPM English

Figure B.1

Short-term initiatives to support teachers and


students in teaching and learning English

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English Language Education Reform in Malaysia
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2.1 Short-term Initiatives The Standards-based Curriculum

Pro-ELT The standards-based Kurikulum Standard Sekolah Rendah


(KSSR) was introduced in 2011, and it is to be complemented by the
Pro-ELT Professional Up-skilling for English Language
Kurikulum Standard Sekolah Menengah (KSSM), the introduction of
Teachers is an in-service course for English teachers which
which is planned for 2017. This initiative will be overtaken by the
began with a pilot project in 2003 with 5,000 teachers, followed
general alignment of the English language programme, including
the next year by 9,000 teachers. The course aims simultaneously
curricula, to the CEFR.
to improve proficiency and teaching skills: to strengthen the
Malaysian primary and secondary school teachers English language
proficiency, language teaching and learning through a blended
School-based Assessment
learning approach that includes: face-to-face training supported
[by] on-line learning and integrated proficiency and methodology School-based assessment was introduced at secondary level
training1. for all subjects in 2012 to improve assessment methods and provide
a fair measure of student progress and achievement.

The Native Speaker Programme

The Native Speaker Programme began in 2010, and provides Oral Proficiency for Secondary Schools
ESL teachers with 75 hours of professional input through individual The Oral Proficiency for Secondary Schools (OPS-English)
mentoring at least once a fortnight. This includes personal programme is designed to improve students listening and speaking
mentoring and training, and also training at cluster and zone level skills, and develop their confidence and ability to communicate in
through Teacher Professional Development (TPD) workshops English. The programme is targeted at Forms 1 and 2, and piloted
carried out by their native English speaker mentors. in 2012 in 20 schools. It was extended in 2014 to 827 Band 3 to
Band 6 schools.

1
Eshtehardi, R. 2014. Pro-ELT; A Teacher Training Blended Approach. Advances in
Language and Literary Studies 5.5: 2203-2214.

90
Fulbright Teaching Assistants LINUS 2.0

The Fulbright Teaching Assistants Programme involves the The English Language Literacy Programme or LINUS 2.0 is
placement of Fulbright scholars as Teaching Support Assistants intended to address the problem of English literacy among lower primary
(TSAs) on one-year attachments to selected schools. The school students without learning problems. Students experiencing
programme began in 2012, and involves 100 Fulbright scholars difficulty with English literacy are given additional support by grouping
each year to 2017. The TSAs support the local, trained English them together during relevant classes and teaching them according to
language teachers as they provide instruction in class by facilitating their needs. In addition, selected teachers are being trained as literacy
learning activities. They also conduct additional activities to extend coaches to assist teachers to reach a target of 100% age-appropriate
opportunities available for students to use English in authentic literacy by the end of Year 3. Teachers are given targeted training by
contexts beyond the classroom. the literacy coaches to provide them with the best strategies to help
students catch up and get back into the mainstream.

School Improvement Specialist Coaches (SISC+)


Sets for English
The School Improvement Specialist Coach Plus (SISC+)
programme was set up in 2013 to help teachers improve their The introduction of the set system for English in secondary schools
English proficiency and pedagogical skills. The programme employs attempts to provide a form of differentiated instruction to address
experienced teachers and educators who have achieved excellence the learning needs of students with varying levels of English language
in curriculum, assessment, and pedagogy to provide integrated proficiency. The system has been implemented in more than half of all
coaching in these areas. They occupy full time positions to allow secondary schools for Form 1 and to a lesser extent Form 2. Students
them to work more frequently on site with more teachers in lower with low English proficiency are in sets of 20 to 30.
band schools, i.e. those in Bands 5, 6 and 7. The intervention of
School Improvement Partners (SI Partners), with the involvement
of peer coaches, heads of panel (Ketua Panitia), and school
principals will greatly assist the development of effective English
language teaching practices.

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English Language Education Reform in Malaysia
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An obligatory SPM pass in English Systemic problems must be distinguished from more superficial
problems, and tackled in a different way. The LINUS 2.0
A required pass in SPM English originally planned for 2016 has
programme followed the finding that almost half of Year 1 students
now been postponed to a date to be decided.
had failed to acquire levels of basic literacy in English appropriate
for their age. The baseline study found that the problem is greatest
2.2 Monitoring and Evaluating the Effectiveness and in rural and remote areas, which are also served in some cases
Success of Initiatives by less effective teachers, and where students have least contact
with English in their everyday lives.
Initiatives need to be effectively monitored and evaluated. A problem emerging in Year 1 can be traced to preschool,
There needs to be a general mechanism in place to optimise where English teachers do not have to have any qualifications at
individual initiatives, and a cyclical procedure is described in all, may have only a minimal ability to speak English, and may have
the editorial introduction to Section C. At the same time, it is no understanding at all of beginning literacy. This is a prototypical
necessary to examine the set of initiatives being taken at any one example of a systemic problem, which needs to be analysed
time, and this is the purpose of this subsection. fully, and its component problems addressed. To deal with just
There are no fewer than four initiatives involved in teacher the literacy problem requires materials to be produced by teams
support (see Figure B.1), which is itself an indication of serious with expertise in remedial teaching, early learning and beginning
shortcomings in the current arrangements for teacher training. literacy; and the coaches appointed need authenticated expertise
Initiatives involving student support provide further evidence that in these same three areas.
teachers are not sufficiently trained to provide students with what At a more specific level, the introduction of school-based
they need in the English classroom. In these circumstances, the assessment presupposes that teachers are qualified to assess their
initiatives give the impression of patching up a system that is not students in a manner that is reliable, valid and fair. There is no
working, when what is really needed is a thorough review of the evidence to support such a contention. There is also a practical
education of English teachers. problem reported in the baseline study, namely that teachers
are already overburdened with administrative work (p. 109). For

92
MALAYSIAN EDUCATION BLUEPRINT INITIATIVES

WAVE 1 (2013-2015) WAVE 2 (2016 2020)


Strengthening the current system Introducing Structural Change

CONCERNS ACTIONS OUTCOMES ACTIONS OUTCOMES


Low proficiency Set a minimum proficiency requirement Teachers with at least CEFR B2 at Review B2 as the minimum The minimum proficiency
among English for English teachers primary level and C1 at secondary proficiency for teachers level for all teachers
Teachers level raised to C1
Implement Pro-ELT: Up-skilling for in- Teachers achieve higher English Monitor and evaluate the A report on teacher
service English language teachers. proficiency levels effectiveness of the initiative proficiency and the
impact of initiatives
Benchmark teacher proficiency
against international standards

Quality of English Implement the Native Speaker Improved quality in teaching and Monitor and evaluate the A report on the impact of
language teaching Programme: mentoring in-service EL learning, and understanding the effectiveness of initiatives initiatives on the quality
teachers by native English speaker curriculum of English teaching
mentors
Implement the Fulbright English
Teaching Assistant Programme
Implement the Expanded Specialist
Coach (SISC+) role for English
Strengthening the Introduce the standards-based KSSR introduced in 2011 Monitor and evaluate the A report on the impact of
delivery of English curriculum effectiveness of initiatives initiatives on the delivery
teaching KSSM to be introduced in 2017 of English teaching
Conduct an Impact study
Implement Ops-English Improvement in the spoken English
of secondary students
Implement the Set system for teaching Improved delivery
and learning
Introducing LINUS 2.0 as a remedial Improvement in basic literacy in
intervention programme to address English
English literacy at primary level
Language Policy Making it compulsory to pass the SPM Improvement in student proficiency Benchmark student proficiency A report on student
updated to promote English language subject paper against international standards performance
proficiency in English
(This was originally scheduled for Continue implementing the Further improvement in
implementation in 2016 but has been policy student proficiency
postponed to a later date.)

Table B.2 The Monitoring and Evaluation of short-term initiatives


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English Language Education Reform in Malaysia
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school-based assessment to succeed, it will be necessary to relieve function of the Roadmap. Table B.2 includes these initiatives in
teachers of some non-teaching work. a timetabled implementation plan specifying their implementation
in Wave 1 followed by the monitoring and evaluation of their
The introduction of different groups of people to provide
effectiveness.
teachers with classroom support raises the question of their
qualifications. To assess any impact, it is also essential to know
what they actually do in the classroom in applying their special 3. Critical issues in the teaching and learning of English
expertise. Since any outside observers change behaviour in the
classroom (a well-known effect known as the observer paradox), This last section of the introduction brings together a number
the statistical question is whether the impact of those introduced of critical issues in the teaching and learning of English, some of
to classrooms is any different from the introduction of any arbitrary which have been touched upon in the chapters of Section A, and
group of people. most of which come into the discussion or in some cases lie
behind the discussion in the chapters of Section B. What these
Although there is a widespread but erroneous belief that
have in common is that they are not included within the purview
anyone who speaks a language can also teach it, the reality is that
of the CEFR, so that the corresponding problems will not be
native speakers of English are ordinary members of the public
automatically put right as our programme and teacher education
unless they are qualified to teach English. Teachers selected
are aligned to the CEFR. These are issues that have to be addressed
to coach their colleagues must first satisfy rigorous criteria in
independently of the CEFR by the education providers themselves.
accordance with international standards. Coaches must also have
expertise in the right areas; it is not obvious, for example, that The Roadmap would be failing in its task if it were to leave
those with expertise in curriculum, assessment, and pedagogy are them unaddressed on the assumption that the areas of English
the appropriate people to help with the teaching of English. language teaching and learning involved are sufficiently well
understood. There is a lot of evidence to suggest that they are in
In order to deal successfully with systemic problems, individual
fact insufficiently understood and often misunderstood. Critical
initiatives need to be part of a coordinated overall plan, and play
issues are discussed here in extenso to provide the wider context
complementary roles to achieve a common goal in such a way that
for problems and proposals arising in chapters 4 to 9.
their impact can be assessed. Providing this overall plan is the

94
3.1 Content knowledge and the teaching of English pedagogical expertise. Although the things that young children are
required to learn are simple for adults, so that it may superficially
As in the case of any subject, teaching a language requires
appear that anyone can teach them, what young children are
a combination of content knowledge and pedagogical expertise.
learning is highly complex in relation to what they knew before, and
Teachers have to present the language in such a way that the
this requires knowledge and expertise on the part of the teacher.
students are able to learn it. Whereas it is taken for granted that
physics teachers have to know physics, and history teachers have Preschool teachers, although in practice generally the least
to know history, the knowledge expected of language teachers is qualified, actually need to know the most about early language
less well defined. This is because there is a widespread popular learning and early learning in general in order to understand the
belief that anyone who can speak a language can also teach it. problems faced by their students. The same is true of the language
problems faced by undergraduates who have failed to learn English
It is in accordance with this belief that trained teachers who
properly at school and have to take remedial courses at university.
also know some English are expected to teach English in Malaysian
The problems may seem simple; but it takes knowledge and
schools, irrespective of the subject they were trained to teach. The
expertise on the part of the teacher to understand those problems
point is that language teaching in general, and English teaching
from the point of view of the learner, and find a way of helping the
in particular, is a specialism just like physics teaching or history
learner to solve them.
teaching, and for the same reasons English should be taught by
teachers whose specialism is in English Language Teaching. Content problems will not be solved by the adoption of the
CEFR. This is because the CEFR is concerned, for example,
The content knowledge required of a physics teacher is directly
with what a learner can do in the target language; but it leaves
related to the level of the course: an advanced course requires more
the education provider to decide how the learner is to develop the
advanced knowledge than an introductory course. In language
necessary skills. It is concerned with learning outcomes rather than
teaching the relation is an inverse one. Anyone can explain a new
with the details of the instruction that leads to learning. Children
word to an advanced foreign learner, and advanced learners with
have to learn to read, but how they do that is the responsibility of
the right skills can solve most problems by themselves anyway.
the education provider. Chapters 4 to 9 contain many instances of
On the other hand, teaching beginners particularly beginners
teaching and learning problems which arise from the lack of the
in preschool requires a high level of technical knowledge and
necessary content knowledge, and which will remain problems

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English Language Education Reform in Malaysia
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after the adoption of the CEFR unless steps are taken to provide 3.2 Linguistic form and meaning
English teachers with the necessary content knowledge. The
When people use language to communicate with each other,
relevant areas are sketched in outline below, and are accompanied
they are primarily concerned with the giving and receiving of what
by as objective an explanation as possible of how and why there is
in very general terms is referred to as meaning. The ability to
a problem.
communicate is not the same as perfect mastery of some aspect
The education providers responsibility to decide how things of language, for people can perform a task successfully, and still
should be taught creates a procedural dilemma that runs through make mistakes. However, in order to make oneself understood, or
this subsection. There is general agreement that our present English understand what other people are saying, speakers and hearers have
language programme is not working as it should, and in order to to draw on a linguistic infrastructure generally known as linguistic
find ways of improving it, we first have to understand precisely and form, which includes vocabulary, grammar and pronunciation. A
in detail what is going wrong. But it is difficult to point out what is question that has vexed language teaching and learning for several
wrong without appearing to point the finger and apportion blame. decades is how and indeed whether linguistic form should be
taught to the language learner2.
For example, it is reasonably clear from the baseline study that
many English teachers do not have the English proficiency required Traditional language teaching typically involves the direct
to teach English, and it might therefore seem that teachers are at teaching of form, using the sequence Presentation, Practice and
fault for not teaching English properly; but it would be both irrational Production (Rama & Agull, 2012, p. 184). The teacher introduces
and unreasonable to blame teachers for their own lack of training. some aspect of the form of the language, the students practise
What we are facing is a systemic problem, and finding someone to it, and then are assumed to be able to produce it. This approach
blame is not an appropriate approach to the problem, and it is in any conforms to what was traditionally known about language and
case not going to help find a solution. We have to adopt the position about teaching and learning. To be successful, it requires a high
of a medical practitioner whose task is not to blame the patient level of skill on the part of the teacher, and a high level of ability
for an unhealthy lifestyle, but to diagnose the patients condition on the part of the student, who has to understand an abstract
objectively, and find an appropriate course of treatment. linguistic description and apply the new knowledge deductively
when using the language.

2
For a good discussion in the context of the CEFR, see Jos Lpez Rama and Gloria Luque
Agull (2012) The role of grammar teaching: from Communicative Approaches to the
Common European Framework of Reference for Languages Revista de Lingstica y Lenguas
Aplicadas, 7, pp. 179-191.
96
Students who have been taught by traditional methods may One of the most unfortunate developments in English
acquire what is known as declarative knowledge of the target language teaching is that the differences between the traditional
language. They may be able, for example, to describe the forms and communicative approaches developed into mutual distrust
of the simple present tense, or list the definite and indefinite in the 1970s, following the widespread acceptance in Linguistics
articles used in English. Declarative linguistic knowledge is more Departments worldwide of models of language form which were
appropriately taught in university courses in Linguistics, and while of no value whatsoever in the classroom. The attempt to teach
teachers need to acquire relevant declarative knowledge in the the new models to English teachers led to much disillusionment
course of their training in order to teach effectively, it will not among applied linguists and language teachers concerning the
directly help the majority of their students. This is because using value of linguistic theory, to the extent that the rift that opened
tense forms or articles appropriately in speech or writing requires up has not yet been closed. The long-term effect in Malaysia as
a different kind of knowledge known as procedural knowledge, elsewhere has been a tendency to reject theoretical linguistic
which involves knowing how to do things. Students who have the knowledge even when it is directly relevant to language teaching
procedural knowledge to say and do things in English may use the and learning, to the extent of a lack of awareness that relevant
language well without having any idea of the theory behind their areas of knowledge actually exist.
procedural knowledge.
The damage caused by the rift has been particularly marked in the
The so-called communicative approach to language teaching
teaching of grammar and phonics. It is logically impossible to understand
has been gaining ground since the 1970s, and as the name
what grammar is and claim that students should not be learning it; and
implies, puts the emphasis on the ability to use the language in
the same applies to phonics rules. In both cases, however, misguided
communication rather than on knowledge of linguistic form. This
classroom practices can make teaching in these areas virtually useless.
is not one approach but a collection of related approaches (see
Although the MoE has laid down both grammar and phonics in English
Rama & Agull, 2012) which adopt very different attitudes to
teaching, there will inevitably be those who argue that the MoE has
the teaching of form. What is ultimately most important is not
got it wrong, and that these areas should not be taught, or that some
what the teacher teaches but what the learner learns. However
the language is taught, the learner has to learn its form, because other approach should be adopted.
without a knowledge of linguistic form, it is impossible to speak or
write a language, or understand it when it is spoken or written.

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English Language Education Reform in Malaysia
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The communicative teaching of grammar and other aspects The decline in the understanding of the role and importance
of linguistic form puts much greater demands on the teacher of linguistic form in language learning has led in recent years to
than the teaching of form for its own sake. Teachers need both the widespread acceptance of a rather strange notion, which is
the procedural knowledge that leads to proficiency in order to not only misleading, but also counterproductive. This is the notion
provide their students with appropriate models, and also sufficient that native speakers of English have lost the ownership of their
declarative knowledge to deal with the learning problems their own language, and that learners can speak English as they like.
students will inevitably encounter. Communicative language
From a logical point of view this may be perfectly true, because
teaching when carried out properly pays due attention to form
there is no scientific test that can distinguish correct English from
as before, but with a different emphasis and with a clear new
incorrect English. However, in the real world, Malaysians who
direction to facilitate communication. What has happened in
speak English as they like cannot expect international examination
practice, all over the world, is that there has been a decline in the
boards and employers to take them seriously. Given the agenda
traditional teaching of linguistic form without a corresponding rise
that drives our English language programme, Malaysians have to
in the teaching of form for communicative purposes.
speak English in a manner that enables them to communicate with
The Malaysian English teachers who were sent for training to the rest of the world.
Kirkby College before the 1970s will have been given a thorough
grounding in relevant aspects of linguistic form; but Malaysian
teachers trained more recently are unlikely to have the same grasp
3.3 Lacunae
of the same material. At the present time, it would appear from
the Cambridge Baseline that the communicative approach to If teachers are to teach English effectively and successfully,
language teaching has not taken root in Malaysian classrooms, so they need to acquire the requisite knowledge of English in the
that some teachers still teach in the traditional manner but without course of their initial and in-service education. This knowledge
the knowledge of form associated with traditional teaching. needs to be built into the reformed English language programme
A major challenge for a new English language programme is to if it is to achieve its aims, and it has to be internally consistent if
provide teachers with the knowledge of linguistic form that they we are to create an integrated English language system and enable
need in order to perform effectively in the classroom and enable our students to develop confidence as they progress through their
their students to develop communicative competence. school education.

98
But what is the nature of this requisite knowledge of English? challenges become greater as students grow older, it is essential to
Although it is well known internationally, and although it get children off to a good start at the beginning of their education.
continues to accumulate as more relevant research is carried out,
the knowledge taken into account in the existing English language
programme and in teacher training is in some respects incomplete. 3.3.1 Phonics and early reading
Where teachers need knowledge, there are gaps and blindspots
which are here referred to collectively as lacunae. The acquisition of beginning literacy marks a major step forward
in childrens language education. In view of the importance of
The problem of a lacuna is not just that it represents a branch literacy, it is important for the teaching of beginning literacy to be
of relevant knowledge that remains unknown, but that there is based on a clear understanding of principles and objectives. When
a lack of awareness that such a branch of relevant knowledge children start to read, they learn the alphabet and then put letters
actually exists. For this reason, attention is drawn in this section together to recognise whole words, and successful beginners go
to evidence for lacunae in the text of the national curriculum; and on to understand the meaning of whole texts, typically childrens
as ever, the purpose is not to find fault, but as far as possible to stories. The long-term purpose of teaching Malaysian children
find objective evidence of shortcomings that need to be put right if to read English is not for them just to recognise English words,
we are to move forward. but to extract meaning from English texts, including English
online materials, textbooks written in English, and day-to-day
The three lacunae discussed here are phonics and early
correspondence in a job that requires English.
reading, spoken language, and grammar. The problems associated
with these lacunae emerge in the early years, and so much of However, it is obvious that we cannot understand a text unless
the discussion below concerns preschool and primary education. we can recognise a sufficient proportion of the words. The better
In fact, new problems continue to emerge. Students need more we understand a text, the more successfully we can work out the
advanced phonics rules when they learn more difficult words, meanings of words and expressions we have never seen before;
and medical students need phonics rules at university level to and the more words we recognise, the better we understand the
pronounce words such as xerotic or epithelium. Students also need text. Text understanding and word recognition are complementary
more advanced grammar and spoken English skills to cope with skills in the process of reading. It is therefore unfortunate that in
the demands of secondary and tertiary education. Because the some approaches to reading, they are seen as alternatives or even

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as opposed methods of reading. For example, the whole language say, and some interpretations of the whole word method4 have
method3 rightly emphasises the importance of text understanding, assumed that children can be taught to recognise words as a
but some proponents appear to imply that readers are able to whole. The concept of sight words is based on the assumption
understand a text top down without recognising the words. that some words can only be recognised in this way.

A top-down mechanism needs to work on information lower Although it may appear that the reader can recognise words
down, in this case derived from the recognition of words, in order effortlessly and immediately, this is now known to be an illusion. A
to construct the higher level understanding. Of course, the reader lot of processing goes on in the brain below the level of consciousness
does not have to understand every single word in order to extract before the recognised word suddenly pops into consciousness
the meaning from a text; but a sufficient number of words have to (Dehaene, 2014). In view of what is now known scientifically
be understood in order for top-down understanding to take place. about reading in the brain, it is beyond doubt and controversy that
early reading has to begin with word recognition, and that word
Various methods and approaches to teach children to recognise
recognition has to begin with the recognition of letters.
words have been put forward since the early nineteenth century,
but these have been overtaken by two major scientific discoveries.
The first is that spoken words are made up of strings of phonemes Phonics and phonemes
corresponding to the strings of letters that make up written words.
The second discovery has to do with the way readers recognise The obvious way to teach beginning readers to recognise words
written words. It has long been known that visual perception begins is to give them the rules that link spellings to phonemes, generally
at a very low level, and in reading this involves such things as the known as phonics rules. This is not a matter of opinion, but follows as
edges of letters and the angles formed by these edges. Recognising a logical necessity. If learners are to link spellings to phonemes, they
the letters of a word written alphabetically is an essential stage need to know what these phonemes are. This means that anyone
in the conscious recognition of the whole word (Dehaene, 2009). teaching beginning English literacy needs to be familiar with the 44
The discovery that letter recognition is prerequisite for word phonemes of the variety of English taught in Malaysia. Someone who
recognition is of fundamental importance for the teaching of does not know the 44 phonemes cannot teach children to pronounce
beginning reading. Many reading schemes including look and English words any more than someone who does not know the 26

3
http://www.readinghorizons.com/blog/post/2010/09/23/What-is-the-Whole-Languagee-
Approach-to-Teaching-Reading.aspx
4
http://www.helpingeverychildtoread.com/index.php/causes-of-difficulty/reading-theories/
whole-word-method

100
letters of the alphabet can teach children to write them. Similarly, The teaching of phonics is much misunderstood, and has
just as the teacher needs to be able to write the letters in order to notoriously been a matter of controversy for several decades. The
teach them to children, the teacher needs to be able to produce all outcome of the controversy is that a version of phonics known
the phonemes in order to teach spoken English. as synthetic phonics has been adopted in countries such as the
UK and Australia, and is already and appropriately laid down in
While a knowledge of phonemes is necessary, it is not in itself
the Malaysian national curriculum. The important characteristic
sufficient. The beginning reader also needs to learn to analyse
of synthetic phonics is that it includes sounding out and blending,
words. Although in many cases a single letter corresponds to a
and is designed to enable children to develop phonemic and
single phoneme, in other cases groups of letters correspond to a
phonological awareness. There is an increasing body of research
single phoneme, e.g. in ship, sh corresponds to the phoneme
evidence to indicate that children taught in this way develop strong
//.The pronunciation of the word also needs to be divided into
foundations in literacy, and make better progress later on.
its constituent phonemes, e.g. ship is made up of the phonemes
/, , p/. Children are sometimes taught to divide words into Nevertheless, in view of the historical controversy, there may
phonemes and sound out each phoneme in turn. Sounding out is be some who still hold the opinion that the Ministry should not be
quite different from normal pronunciation, and so learners need advocating phonics teaching at all, and that some other method
to learn the complementary skill known as blending to put the should be adopted for the teaching of beginning reading. Any
separate phonemes together again and reconstruct the original opinions of this kind need to be substantiated by hard scientific
pronunciation. Phonics rules are essentially concerned with the evidence, which is unlikely to be forthcoming.
correspondences between spelling and pronunciation, but the
The point was made above that the purpose of reading is to
phonics method correctly taught also includes sounding out and
extract meaning from written texts. For the beginning reader, the
blending. Children who learn about the phonemes of the target
text is a single word. Children need to understand the words they
language develop phonemic awareness, and sounding out and
are reading. Some reading methods include imaginary or nonsense
blending go further into a more general area known as phonological
words such as blick or sleg to give children practice in interpreting
awareness.
spelling conventions; but although nonsense words have an
important place in the teaching of phonetics and phonology at

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university level, and in the diagnosis of certain aphasias, they instruction is concerned at this stage with letter recognition and
have no place at all in early reading on account of the absence of understanding the properties of letters (phonemes being treated by
meaning. implication as properties of letters). Sounding out and recognising
the initial sounds of words are not introduced until 5+, even though
In this connection, it is important to recognise the difference in
children need to sound words out (and blend the phonemes) at 4+
the role of meaning for children learning to read their first language,
in order to read words.
and those learning to read a new language. The child who already
knows English, and who manages to link the spelling ship to the The relevance of initial sounds is left unclear, and may not
pronunciation /p/ has immediate access to the meaning. For this in fact be needed until much later, when children learn to use
child the word ship has a spelling, a pronunciation and a meaning. a dictionary. The preschool target laid down in the national
But for children just beginning to learn English, /p/ is merely curriculum is ambitious, and includes the ability to speak politely
the pronunciation of a nonsense word. These children need to be with appropriate intonation, read simple story books, and [a]t
given the meaning of the words they are attempting to read. More the same time recognise alphabets [sic], know basic phonics
generally, the teaching of reading by phonics methods needs to be and write simple phrases; but it is not at all clear how they are
extended to include meaning. expected to learn to do these things.

Primary school children are expected to read up to paragraph


Principle and practice in phonics teaching level and use a dictionary, but the tools they are given do not
enable them to get as far as word recognition. The curriculum
This discussion of phonics has so far been concerned with for Years 1 and 2 includes tables containing paired spellings and
matters of principle. Questions of quite a different order are pronunciations, mainly consonants for Year 1 and mainly vowels
concerned with the extent to which principle is translated into for Year 2. A close look at the entries for Year 1 shows that 21 out
practice, in the curriculum5 and in the classroom. A problem that of the 32 entries involve the sounds associated by default with
emerges on the examination of the curriculum is that it is not letters of the alphabet, so that phonics teaching proper does not
pedagogically organised to optimise learning. Although children get underway until Year 2. More seriously, the content of the
are expected to read words, phrases and simple sentences at 4+, tables is unconnected with the associated rubric Able to recognise

5
The versions of the curriculum consulted include Preschool (2010), drafts for SK Years 1 and 2
(2011) and Year 3 (2012); Years 4 and 5 (2003) and 6 (2004); and Forms 1 to 5 (2003).

102
and articulate initial, medial and the final sounds in single syllable are given basic phonics rules, e.g. to pronounce fan and set, and
words within [sic] given context or with the requirements Able rules for pronouncing plural and past tense forms, including agent
to blend two to four phonemes into recognisable words and read as a plural form [sic] and blank and rank as past tense forms [sic].
them aloud or Able to segment words into phonemes to spell. Form 4 students are given incomplete tables containing further
subsets of vowel and consonant spellings, and are also required to
In Year 3, students are expected to speak English with correct
tackle stress in four syllable words. Three examples of four syllable
word stress, and recite rhymes and tongue twisters, but no
words are given, and two of the three stress patterns are incorrect.
indication is given of what this means or how it is to be achieved.
The curriculum for Form 5 again includes an incomplete table of
In Year 5, they are given what is described as a sound system
spellings with some phonetic transcriptions (several of which are
but which actually consists of correspondences between spellings
incorrect), the first example conveying the information that bb
and phonemes and phoneme strings. They are also given phonics
in bubble is pronounced /b/.
rules to learn which do not distinguish the letters of the spelling
from the sounds of the pronunciation; for example, the list of The problems encountered in the phonics sections of the
sounds to be learnt includes the initial letter x, digraphs and national curriculum are such that an appropriately qualified
silent letters. In Year 6, the sound system is extended to include teacher would not be able simultaneously to follow the curriculum
blends and contractions, but it is not made clear how these relate and to provide the students with the understanding of the written
to the phoneme system of English. and spoken forms that they need to become literate in English.
In view of the importance of phonics to early literacy, this part
At secondary level, students are expected to undertake
of the curriculum will have to be completely re-done when the
tasks of increasing linguistic complexity, but the spoken language
curriculum is next revised, in order to provide learners with an
teaching continues with phonics. In Form 1, they are given a list
internally consistent sequence of pedagogically ordered learning
of consonant spellings, some but not all of which are accompanied
tasks based on current knowledge of spoken and written English
by a phonetic symbol, and this is followed by subsets of the
and on developmentally appropriate practice.
vowel system, plural forms and contractions. In Form 2, different
subsets of the vowel and consonant systems and plural forms are
accompanied by a subset of past tense forms. Form 3 students

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3.3.2 Spoken English


CEFR level Year 6 Form 3 Form 5 Form 6
According to the baseline study, Speaking is the weakest of the
four skills. Table B.3 shows the results compiled from tables in the
C2 1 1 Results Report (pp. 18 29).

The majority group progresses from A1 for Year 6 and Form 3


C1 1 4 5 to A1/A2 for Form 5 and A2/B1 for Form 6. The majority group
in Form 6 includes only 51% for Speaking in comparison with 61%
B2 4 11 13 in A2/B1 for Listening and 79% for Reading, and 82% in B1/B2
for Writing. The concentration of effort has clearly been on the
written rather than the spoken language. However, Table B.3 also
B1 5 11 19 27
shows a group who never get to A1 for speaking, and after reaching
a minimum of 7% in Form 3, the figure then rises to 16% in Form 6.
A2 20 21 24 24
The comparable figures for Writing, which is the most successful
skill, are 14% below A1 in Year 6 and 27% in Form 3, falling to
A1 59 56 31 15 18% below A2 in Form 5 and just 5% below A2 in Form 6. After a
possible problem in lower secondary school, most students attain
<A1 16 7 10 16 some level of literacy in English.

An important question to ask is why there should be such a


difference in success in producing spoken and written English.

Speaking skills at
Table B.3
The Cambridge Baseline has not so far provided a clear answer.
However, it is quite possible to learn a written language without
different educational levels bothering with the spoken language at all. Some deaf people, for
example, pair the written language not with the spoken language
but with a sign language. Scholars have long studied texts written

104
in dead languages, in some cases not knowing much at all about enable students to develop appropriate patterns of stress, rhythm
the spoken form. The Cambridge Baseline results are consistent and intonation. However, teachers have to understand what they
with the possibility that some Malaysian learners of English learn are teaching. Rhythms and rhymes can be used very effectively in
almost nothing at all about spoken English. the teaching of spoken English, but children given inappropriate
input can also be induced to speak English in a manner unrelated
The Cambridge Baseline results, together with routine
to the prosody of normal spoken English. The unskilled teaching of
references to the poor Speaking skills of students and even of
the language arts can actually do damage and make it much more
their teachers, give a clear indication that something fundamental
difficult for the students to acquire appropriate English prosody
is missing in the teaching of spoken English. One such lacuna
later on. Unless teachers develop for themselves the necessary
has already been discussed, and concerns the speech sounds or
awareness of spoken English and acquire spoken English skills, we
phonemes that correspond to the letters of the written language.
are never going to solve the problem of students leaving school and
Just as it is impossible to spell a word without knowing all the
even university without being able to speak English properly.
letters that make up the spelling, so it is impossible to pronounce a
word properly without knowing all the phonemes that make up the The learning of spoken English is an area in which improvements
pronunciation. Teachers need sufficient basic phonemic awareness are urgently required in order to achieve national ambitions and
for themselves in order to teach their students how to pronounce to increase levels of graduate employability. In order to make
English words. themselves employable in sectors that require English, graduates
and also school leavers need to speak English at the appropriate
To enable students to develop the spoken language skills needed
level of proficiency. Some students will have independent access
at secondary level, teachers need more advanced phonological
to good models of spoken English to imitate, but many will have no
awareness, including relevant aspects of English prosody. Teachers
choice but to learn from their teachers.
who frequently read samples of English aloud in class need specific
training in how to read English aloud. Otherwise they provide their This puts the teachers themselves in the difficult position of
students with poor models of spoken English. having to rely in large measure on their own performance, even
if their spoken English is poor. If the teachers spoken English is
The language arts have the advantage of being enjoyable for
poor, this initiates or continues the cycle whereby students whose
students and no doubt also for teachers, and if properly taught

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command of spoken English is inadequate grow up to become It is because phonics correctly taught lays the foundation for
English teachers and pass their own poor English on to their both literacy and spoken English that priority must be given to the
students. This is a cycle that has to be broken. development of a high quality phonics programme designed for the
needs of learners for whom English is not the first language. The
A fundamental question that has to be raised concerns the
teaching of literacy goes on to develop text understanding, and
nature of the means whereby Malaysian students are expected
the teaching of spoken English goes on to develop more advanced
to develop proficiency in spoken English. The national curriculum
aspects of phonological awareness. For this reason, the teaching
includes such means as the language arts, reading aloud and
of phonics needs to be integrated into the structured teaching of
classroom conversations; but these are designed to enhance
spoken English more generally, in order to produce school leavers
proficiency that is already developing. The primary means of
and graduates who can speak English properly.
initialising the development of spoken English proficiency in the
national curriculum is in fact synthetic phonics, which has already
been identified as an area of difficulty. There is no other means
3.3.3 Grammar
included in the national curriculum whereby a student who has no
knowledge of spoken English at all can expect to acquire at least In order to use the target language to communicate, the
some proficiency in spoken English. learner needs not only the words themselves but also the grammar
to put them together to construct meanings. As in the case of
Phonics is of course usually associated with beginning reading,
vocabulary, the national curriculum lays down the strategy to
as indicated in the last subsection. However, by associating spellings
be used to provide the learner with the necessary grammatical
with phonemes, it brings the sounds of the language to the learners
knowledge.
conscious attention. The student who can sound a word out, match
the phonemes to units of the spelling, and then blend the phonemes There is a preliminary problem to be dealt with here, in
to make a natural pronunciation will thereby build the foundations on view of the different senses in which the term grammar is used.
which spoken proficiency is based. Indeed, countless students from When learners manage to put words together to form phrases
across the world have successfully learnt to speak new languages in and sentences, for example to say my name is <name>, they are
this way for hundreds if not thousands of years. making use of grammatical rules, and this is for linguists the normal

106
understanding of grammar. At this stage, children are developing words together to form phrases and sentences. This is when they
procedural knowledge of grammar. begin to learn grammar. They develop procedural knowledge of
the grammar, even though they are most unlikely to be able to
However, the term grammar is also used to refer to the
describe what they are learning.
traditional formal teaching of grammar, sometimes known as school
grammar, which seeks to provide the learner with declarative Young children of school age are also able to learn a second
knowledge. Students develop procedural knowledge of English language intuitively, and since this innate ability declines as
grammar and teachers help them to acquire it beginning in children advance towards puberty, some of the more difficult
preschool, but the teaching of grammar in the sense of declarative areas of grammar are paradoxically best learned in the early years.
knowledge begins in Year 3. The grammar that children learn For example, it is difficult to explain the meaning of words such
naturally tells them how to use words to communicate; but the as the and of, but young children nevertheless manage to acquire
grammar they are taught from Year 3 according to the curriculum their use. Children who learn English early use definite articles
involves the direct teaching of form. appropriately, even if they do not know what definite articles are;
In view of the different meanings, the teaching of grammar is and conversely, people who are taught formally about definite
often misunderstood. Teaching learners the grammar they need articles later on in life may know what definite articles are, and
to say things is not the same as teaching grammatical theory. For develop the declarative knowledge to explain them, but notoriously
example, learners need to know how to select the correct form of find it difficult to use them appropriately.
the verb be, and to use the ing ending in order to say I am learning
The teaching of English grammar to young children especially
English; but they do not need a theoretical account of the English
those too young to understand declarative categories has to
continuous forms and their different uses.
take the form of facilitating learning, and exploiting the childrens
innate capacity for language learning. This is best accomplished
by providing children with authentic materials specially designed
The grammar of spoken English
to enable them to learn. However, if children are to learn from
Very young children start learning their first language through materials, it is absolutely essential for those materials to present
exposure to it, possibly without any explicit explanation or teaching authentic models of the target language. This because beginning
at all. Soon after they learn their first words, they begin to put

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language learners are in no position to evaluate the materials they If our young children are exposed to learning materials
are given, and will learn ill formed language structures with the containing elementary learner errors and inauthentic English, then
same efficiency as well formed structures. As learners continue it is not surprising that this is the kind of English they learn. The long
to practise structures they become more fluent, and this is true term outcome is the high frequency of well-rehearsed ill-formed
whether the structures are well formed or not. grammatical structures and other inappropriate phenomena in
the speech and writing of Malaysian undergraduates and adults.
In this context it is important to draw attention to the large
Before taking positive steps to improve the teaching of grammar,
number of elementary grammatical mistakes readily to be found in
it is essential to put a stop to the use of inauthentic materials and
learning materials currently made available in Malaysia for beginning
materials containing elementary learner errors. There must be a
learners of English. A recent informal study of materials currently
policy of zero tolerance towards the use of low quality materials
in use in Malaysian preschools revealed an abundance of mistakes
in the classroom.
likely to provide the learner with at best an idiosyncratic model
of English. Indeed, the perusal in any bookshop of early English
learning materials published locally (i.e. in Malaysia or Singapore)
Metalanguage
yields a rich harvest of elementary grammatical mistakes.
As children develop their literacy skills, they begin to become
The Cambridge Baseline (p. 116) refers to the problem
consciously aware of the forms of the language they are learning,
of inauthentic language, including the use and modelling of
and at this stage they need a metalanguage, or a special set of
inauthentic language at primary level, and the inauthentic nature
technical terms for talking about language itself. By learning
of the texts and dialogues in a lot of the material which lends the
metalinguistic terms, children begin to develop declarative
discourse a stilted feel. Inauthentic language includes not only
linguistic knowledge. It is essential for metalinguistic terms to be
grammatical mistakes but also the inappropriate use of grammar
used correctly and consistently, especially in textbooks and official
and vocabulary, and the use of structures which are grammatically
documents. This is alas not always the case. For example, in the
well formed but not naturally used in the context. For example, a
text of the national curriculum, the term alphabet is to be found
customer asking for the bill might say How much is that? but not (to
used in the sense letter, and the term letter is to be found used in
cite an actual example) How much do I pay you?
the sense phoneme.

108
Much of school grammar consists of metalinguistic terms. For Metalanguage includes not only parts of speech but also
example, in Year 3, students are expected to use different word grammatical categories of many different kinds. The teacher
classes correctly and appropriately. These word classes are in who introduces metalinguistic terms needs to understand the
fact the conventional parts of speech, namely noun, pronoun, complexity of the grammatical categories they refer to. There is
adjective, verb, conjunction, preposition and article, which they a long tradition within school grammar of introducing children to
have been using in practice since they first started English. Although grammatical categories by means of grammatical prototypes, but
the word list for Year 3 includes adverbs, and students will be these can be misleading6. For example, verbs are sometimes loosely
presumably be expected to use words such as now, then and quickly, described as doing words, and while sleep is a good example of a
adverbs are not included in the formal grammar list until Year 4. The verb, it is hardly a doing word; and similarly integrity and happiness
theoretical understanding of the parts of speech is too difficult for do not fit the popular definition of nouns as the names of persons,
most undergraduates studying Linguistics, and so far beyond primary places or things. I am giving a lecture this afternoon provides a good
schoolchildren. What children can do in primary school is to learn the illustration of the present continuous tense; but it is neither
metalanguage, and label words according to their parts of speech. present nor continuous in meaning. Someone who says over
lunch in Bangsar I am working at KLCC at the moment is at that
The status of some of the grammar included in the primary
moment neither working nor at KLCC. The teacher who teaches
curriculum is unclear. Year 3 students are also expected to be able
metalinguistic terms has to understand the value and limitations
to construct declarative sentences correctly, even though they
of the prototypes used for illustration, and of the relationship
are expected to produce and respond to questions and commands
between grammatical theory as presented in textbooks and the
from preschool onwards. The baseline study similarly observes
way grammar is naturally and normally used to convey and access
that in the Level 2 grammar module, children are expected
meaning.
to construct imperative sentences correctly, and use present
continuous verbs correctly and appropriately, yet the Preschool Grammar and written language
and Level 1 curricula are based around activity contexts in which
When children become literate in their first language, they
the use of such structures is implicit (p. 112).
already have an accumulated knowledge of basic grammatical
rules, and so learning to write involves to some extent applying

6
The more complete modern understanding of grammar categories is largely due to linguistic
research undertaken as recently as the second half of the last century.

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what they already know. However, whereas they are born with the Whereas children have the innate ability to use grammatical
ability to learn spoken language, and so learn without being able knowledge to understand what people say to them, and to formulate
to describe what they are learning, they have no corresponding utterances that other people can understand, it is not at all obvious
innate ability to learn to write. that they have the corresponding ability to do these same things in
writing. This is why students are given comprehension exercises
This means that they have to learn by being made consciously
and tests. The teaching of writing has therefore to include from
aware of the properties of the written language, beginning with
the beginning the transfer of the skill of extracting meaning from
the letters of the alphabet. They have to learn the written forms
written texts in reading to the expression of meaning in written
that correspond to the forms of the spoken language, including
texts in writing.
the spellings that correspond to the pronunciations of words, and
the written phrases and sentences that correspond to the spoken As in the case of phonics, the learning experience is quite
utterances that they have long been able to produce. different for children learning to write a new language. Children
who are given high quality exposure to the spoken language may
Because of the need to learn the written language by conscious
be able, at least to a limited extent, to simulate the experience
effort, grammar tends to be associated with the written language,
of children writing their first language. But many children have
even though the spoken language is also organised by parts of
to tackle the written language first, and even use it to learn the
speech, grammatical categories and grammatical rules. The child
spoken language.
learning to write has to pay attention not only to grammar but also
to spelling and punctuation; and so popular discussions of grammar Some teachers may be tempted to draw on their knowledge
tend to mix grammar proper with spelling, punctuation and even of grammar to teach grammar directly; but the information they
letters of the alphabet. give the children is likely to be far above their understanding, and
possibly inaccurate in any case. Directly taught grammar provides
Since this is how the child perceives the problem, it may be
the learner with declarative knowledge about the target language,
sound pedagogical practice to teach these things together; but in
and does not in itself help with the development of language skills.
order to guide the childs learning, the teacher needs to understand
The outcome for more able students, especially if formal grammar
the difference between grammar and orthography, which includes
spelling and punctuation, and the alphabet.

110
is taught inexpertly to the exclusion of communicative skills, may thereby assist with comprehension and help the student develop
be that they know all about the language but cannot use it, while literacy skills. Grammar, comprehension and literacy do not
less able students unable to grasp the grammatical theory may belong in separate boxes, but represent different aspects of the
learn nothing at all. same learning experience. The teachers job is not to fill empty
vessels with grammatical knowledge, but to facilitate learning in
Direct grammar teaching is most effectively used as a
the classroom, and in this case enable children to learn English
supplement rather than as a substitute for a more practical
grammar and use it in communication.
approach to grammar teaching. The task for the teacher is to
enable the children to develop procedural knowledge of the The three lacunae discussed here phonics, spoken language
written language, and the task for teacher educators is to show and grammar might superficially appear to be unconnected, but
teachers how to do this. in fact the integrated knowledge of the three areas constitute the
indispensable foundation which English teachers need in order to
In short, the English teacher needs an appropriate grounding
teach English. Without a knowledge of English phonemes, the
in English grammar, but the teachers essential role is not to teach
teacher cannot teach phonics, and children are left to their own
grammar but to facilitate the learning of grammar. The goal for
devices to learn what they can about spoken English.
students is to use the language to communicate, and in order to do
that they need to know the relevant grammar and how to use it for The teacher needs some basic knowledge of grammar in order
communicative purposes. It must constantly be borne in mind that to talk about the written language, and to bring beginning readers
for the language learner the purpose of learning grammar is not to beyond the stage of word recognition, and enable them to begin
rejoice in grammatical forms for their own sake, but to use them to to extract meaning from grammatically organised text. If we are
extract and convey meaning. to reform English language education in Malaysia, we cannot
continue to ignore the central areas of knowledge which English
Learning to handle meaning does not necessarily correspond to
teachers need in order to perform effectively in the classroom.
the different boxes or compartments into which language teaching
Education for English teachers must include a sufficient grounding
is conventionally divided. The teacher who explains the meaning
in the relevant areas of language form.
of an authentic text cannot but deal with the grammar, and

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This section has brought together the main lacunae and other
general critical issues that will require attention as the reforms are
implemented. The chapters of Section B deal at a more specific
level with issues arising at the different stages of education and in
teacher education.

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4
Preschool

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Chapter 4: Preschool
T
his chapter is concerned with the learning of English in National
and National-type preschools, excluding other providers of
preschool education. The aim is to identify major issues in
English language education at this level, and to suggest improvements
to bring it up to international standards. Suggestions involving the
curriculum, teaching and learning, and assessment will be linked to
and guided by the CEFR wherever relevant and appropriate. The
review will also ascertain the extent to which existing conditions are
likely to facilitate or hamper the attainment of the aspirations set out
in the MEB.

It was found that trying to match the preschool curriculum to


CEFR levels (basic, independent, and proficient users) on a one-to-one
basis was both difficult and not altogether meaningful (see Appendix
A for the mapping between the National Preschool Standards-based
Curriculum (henceforth NPSC) and the CEFR). Nevertheless, the
CEFR enables a kind of validation for preschool as far as its principles,
ethos and approaches are concerned.

For example, its emphasis on action-oriented, learner-centred,


culturally responsive and self-regulated approaches are consistent
with the constructivist learning theories and the developmentally
appropriate practice (henceforth DAP) principles on which the
national preschool curriculum is based (see Figure 4.1). In addition,
the description of competencies in the form of can do statements
can be adopted when learning outcomes or learning standards in the
national curriculum are revised.

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DEVELOPMENTALLY APPROPRIATE PRACTICE IN EARLY CHILDHOOD

DEVELOPMENTALLY APPROPRIATE PRACTICE IN EARLY CHILDHOOD


PRINCIPLES
Holistic Development
Meaningful learning
Fun learning
Basic skills for lifelong learning

Pupil centred
Discovery and Inquiry
Learning Through Play
Integrated APPROACHES Constructivism
Project-Based-Learning
Thematic

INTEGRATED DOMAINS
Communication
Spiritual, Attitude and Moral
Science and Technology
Humanities
Physical Development and Aesthetics
Socio-emotional Development

OUTCOMES - PUPILS WILL ATTAIN


Basic skills of literacy and numeracy
Basic skills of reasoning and problem-solving
Confidence and a positive self-concept
Good habits for healthy and safe living
Ability to interact with others
Creativity and the appreciation of the arts, crafts and music
Curiosity, inquisitiveness and expressiveness
Preparation for primary school

FIGURE 4.1 Conceptual Framework of the NPSC


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The ultimate goal of preschool English language learning is to should be on learning rather than teaching. This chapter reviews
give preschool children confidence in using English in and outside the present practices with a view to suggesting affirmative actions to
classroom, and to facilitate the smooth transition to English in primary make students confident and comfortable using English in and outside
school. It is more important for them to develop a positive attitude the classroom, without fear of ridicule or alienation, and so make the
to English and make a good start in spoken English and literacy in transition to primary school as smooth as possible.
English than to achieve a specific level of proficiency. This is because
The chapter is divided into five sections: 4.1 provides a brief
the majority will be coming to school with zero or minimal previous
background to preschool education, including its history, and the
exposure to English, and it is vital to make their early experiences with
national preschool curriculum and current initiatives that contribute
the language enjoyable and free of stress. Young learners need a safe
to the present situation; 4.2 identifies problems and gaps that could
and secure environment in order to thrive, and so the approach taken
affect the childrens sense of security and well being or otherwise
to teaching and learning, and especially to assessment, should not
frustrate the achievement of the goals for preschool education; 4.3
make them feel anxious or threatened in any way.
discusses actions that need to be taken; 4.4 lists the implications
Children feel safe and secure when they are fully engaged in and recommendations to be considered; and 4.5 summarises and
activities which they find enjoyable, and which stimulate their innate concludes the chapter.
curiosity. Play has for this reason been recognised as an important part
of early education. In this context, play does not mean free for all
goal-free activity, but essentially involves purposeful, well-thought 4.1 Background
out and structured activity with specified learning outcomes.
4.1.1 A brief history
Play is an important vehicle for developing self-
regulation as well as for promoting language, cognition Early Childhood Care and Education (henceforth ECCE) was
and social competence. begun in Malaysia before the 1960s, the main providers being religious
(NAEYC, 2009, p. 14 ) bodies or non-governmental organisations. In 1971, the Department
of Community Development in the Ministry of Rural and Regional
An action-oriented and learner-centred approach should be at the Development established the first of many preschools known as Tabika
core of preschool English, and in the spirit of the CEFR, the emphasis KEMAS, which catered mainly for low-income families in suburban,

116
The Department of National
Unity and Integration
(DNUI) under the purview
of the Prime Ministers
Department setup
kindergartens called Tabika
Perpaduan in urban and
suburban areas covered by
the Skim Rukun Tetangga,
the neighbourhood watch
programme.

rural and remote areas, and in indigenous villages. In 1972, the Ministry In the 1980s, preschools in Malaysia were built and managed by
of Education (henceforth MoE) issued its first registration guidelines these and other government agencies such as FELDA, RISDA, DNUI,
in Kaedah-Kaedah Guru/ Kaedah-Kaedah Kindergarten dan Sekolah religious bodies, the police and the army (Cawangan Pendidikan/
Asuhan (Pendaftaran) 1972 Warta Kerajaan P.U. (A) 414, which laid Angkatan Bersenjata dan Polis). The lack of standardisation and
down laws for the registration of kindergartens, teachers and boards of regulation in preschools led to the formulation of the 1986 Preschool
governors. In 1976, the Department of National Unity and Integration Guidebook (Buku Panduan Prasekolah Malaysia, 1986), the first formal
(DNUI) under the purview of the Prime Ministers Department set curriculum document for early childhood education in Malaysia. The
up kindergartens called Tabika Perpaduan in urban and suburban aim was to provide guidance and facilitate coordination between
areas covered by the Skim Rukun Tetangga, the neighbourhood watch preschool providers, and to bring Malaysian preschool education up to
programme. Both KEMAS and Perpaduan preschools make use of the standards set by current global developments. These guidelines
community halls (rented or provided free), housing estates, private were revised in 1993 and renamed Garis Panduan Kurikulum Pendidikan
properties, and shop houses rented or built by the Ministry. MoE Prasekolah Malaysia.
preschools, annexed to existing national primary school buildings and
The Malaysian preschool situation is indeed complex, provision
funded by the MoE, were also set up to cater for low income families
being made through several government agencies, non-governmental
in suburban, rural and remote areas, some 80% in rural areas.

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agencies and the private sector, and involving three Ministries, 4.1.2 English Language in the National Preschool Standards-
namely the Ministry of Education, the Ministry of Rural and Regional Based Curriculum (NPSC)
Development, and the Department of National Unity and Integration.
The stated aim of preschool education as found in the NPSC is to
These are of course in addition to private preschool providers. Since
develop the potential of children aged four to six physically, emotionally,
2003, it has been compulsory for all preschools, both public and
spiritually, intellectually and socially in order to enhance their skills,
private, to follow the NPSC. Although there are several committees
instil confidence and form a positive self-concept to prepare them to
overseeing preschool education, it is a challenge to coordinate the
take on the challenges and responsibilities in primary school (NPSC,
contributions of so many different providers. An important milestone
2010, p. 1). It is important to note at the outset that the NPSC is based
was the establishment of the National ECCE Council (henceforth
on developmental milestones or stages, and the National Philosophy
ECCECM) in November 2010, a non-profit professional body with
of Education (henceforth NPE).
responsibility for ECCE under the National Key Economic Areas
(henceforth NKEA) for education, and acting as a link between The curriculum focuses on six strands, one of which is
the Government and private sector ECCE providers. The council communication in Malay, English, Chinese and Tamil. The teaching
has played a key role in the professionalisation of private childcare of English includes Listening and Speaking, Pre-reading, Reading
providers and preschool educators, and in quality assurance. and Writing skills. The main focus of the Communication Strand is
for pupils to use language in order to communicate in their daily lives.
One of the elements of Shift 1 in the MEB (2013, p. 7-5) is to
Since this is where English language education begins, this part of the
Raise quality of all preschools and encourage universal enrolment by
curriculum needs to be examined with particular care.
2020. It aims to ensure that, every child aged 5+ will be enrolled in a
registered preschool, be it public or private. Low-income families that Children are taught to listen to and identify environmental sounds.
would otherwise not be able to afford preschool will receive needs- However, since many animals have to recognise environmental sounds
based financial support from MoE. All preschools will follow a set of in order to survive in the wild, and since children on entering preschool
national quality standards, and preschool teachers will be required to can already identify the minute phonetic detail that distinguishes the
have at least a diploma. These schools will also be inspected regularly by phonemes of at least their first language, it is not at all clear in what
MoE or the ECCECM to ensure that they meet minimum standards. way students stand to benefit from this kind of teaching.

118
In related
activities,
students listen
to rhymes, songs
and stories, and
make appropriate
responses.

Students listen to greetings, repeating after the teacher and not clearly stipulated. Other learning standards focus on identifying
greeting one another and the people around them. The value of this the initial sounds of words, reading words, phrases and sentences
exercise depends on the ability of the teacher to pronounce English with understanding. In order to do this correctly, the teacher has to
words correctly, and to produce authentically worded greetings. understand that while phonics rules may be sufficient for the reading
Children whose teachers lack the necessary level of proficiency in of words, the reading of phrases and sentences with understanding
English are likely to start off with a bad model of spoken English, which requires quite different and more advanced skills that have nothing to
will make it difficult for them to improve their spoken English later on. do with phonics.

In related activities, students listen to rhymes, songs and stories, Writing focuses on pre-writing and writing, and begins with hand-
and make appropriate responses. Pre-reading skills include handling eye coordination activities, and drawing strokes, lines and patterns.
books with care. Reading focuses on recognising the letters of the Learning standards for writing emphasise the correct formation of
alphabet and articulating the corresponding sounds. Even this simple letters and copy writing. Details for the four skills are listed in the
exercise requires the teacher to possess sufficient phonemic awareness following table:
to understand the relationship between letters and sounds. There is
a learning standard that focuses on the learning of phonics, but it is

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Listening and speaking skills Listen to and discriminate sounds.


Listen to and understand the meaning of simple words.
Acquire and use simple phrases and statements.
Listen to and follow simple instructions.
Listen to and enjoy nursery rhymes, action songs, poems and stories.
Sing songs and recite rhymes and poems.
Tell simple stories.
Dramatise familiar situations and stories.
Perform a variety of language forms and functions in a social context.
Ask simple questions.
Pre-reading Skills Understand that printed materials contain meaning.
Acquire knowledge of print and ethics in reading.
Reading Skills Identify letters of the alphabet.
Read simple words with understanding.
Read phrases with understanding.
Read simple sentences with understanding.
Develop interest in reading.
Writing skills Acquire pre-writing skills.
Acquire writing skills.

Table 4.1 English Language Skills Table

120
The perusal of this table gives rise to several causes for concern. motivation. The focus is also on providing meaningful experiences
First, the activities are not based on any theoretical framework that are more easily comprehended and remembered. The table
relevant to early language learning or beginning literacy. Phonics, for below shows the selected themes which are of interest to children
example, has an important place, but does not fit into the table at all. and areas which stimulate their curiosity and interest. The themes are
The interactive use of English is mixed up with the language arts. The used to supplement the time-tabled teaching of the four skills which
extraction of meaning from written texts has an uncertain relationship make up the English Basic Module, and English is used as the medium
to the alphabet. These things will not be put right by aligning the of instruction during the Thematic Sessions, Reflection and Morning
preschool curriculum to the CEFR, because the CEFR is not primarily Routines.
concerned with how students develop the ability to do things in the
target language. Week(s) Themes
The teaching of English to complete beginners will remain a
1 Orientation Week
problem until this whole area is thought through in the light of what is
known about English and early literacy, and the skills to be developed 2 11 Myself
by students are related to each other in a systematic manner. Secondly,
providing students with a basic foundation in spoken English requires 12 - 16 Matter
teachers to possess those very skills that the Cambridge Malaysia
17 - 18 Living Things
Baseline Project Report 2013 points out many teachers lack. This will
remain a problem until teachers are provided with the skills that they 19 Environment
need.
20 Physical World
An important aspect of the preschool curriculum is that it is based
on DAP principles which focus on the child as a whole, integrating 21 - 23 Technology
the childs needs, interests, and abilities. Cognitive, social, emotional
and physical development are all to be included when planning lessons. 24 27 My Country
Lessons are planned taking a thematic approach, selecting themes
according to the childrens interests in order to provide intrinsic Table 4.2 THEMES

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Teachers tend to keep to the


curriculum, and seldom go beyond CURRICULUM TEACHING & LEARNING ASSESSMENT
it, so preschool students may not
get much exposure to higher level Learning standards Teachers as Impact of teacher
language learning. If the curriculum
to meet 21st role models proficiency on
is holding them back, it is difficult to
bring students up to the standard of
century needs assessment
their inernational counterparts as Clear and renewed
envisaged by the MEB. Transitioning from emphasis on Inadequate
one instructional developmentally constructs
4.2 Issues, Gaps, and
language to appropriate
Challenges another practice Inadequate
principles in assessments
This section draws attention English language rubrics
to issues and gaps concerning the iInstruction
curriculum, teaching & learning, Inadequate valid
and assessment (see Figure 4.2) assessment tools
that may affect the achievement of
the goals stated in the introduction
to this chapter, namely to give
preschool children confidence
in using English in and outside
the classroom and to facilitate
a smooth transition to primary
school. Figure 4.2 Issues at Preschool Level

122
4.2.1 Learning standards to meet 21st century needs develop HOTs. Among the responses reported by Rohaty Mohd
Majzub (2013) from 30 participants including teachers, lecturers,
The analysis of the English language component in the
academics and officials from early childcare and preschool
Communication Strand of the NPSC brings to light a number of
education were the following comments pertaining to the NPSC:
curricular issues. According to the NPE, that guides all curricula,
education in Malaysia is intended to develop an individuals potential in The curriculum should inculcate higher order thinking
a holistic and integrated manner. The aim is to ensure that Malaysians skills to prepare children for the future.
are knowledgeable and competent, responsible and capable of
achieving a high level of personal well-being to contribute to the Children should be able to reason and do problem solving.
betterment of the nation, family and society. The curriculum is also I think most urban preschools over stress academic
guided by the national need to prepare the nations children for the achievement in Maths and English.
coming decades (Malaysia Education Blueprint 2013-2025, 2013).
Preschool children should master cognitive skills, problem
Poor English proficiency is often cited as the cause for the failure
solving, creative thinking skills. Yes we need young thinkers.
of students to perform well in the Trends in International Mathematics
and Science Study (henceforth TIMSS) and the Programme for
Curriculum should address global skills such as ICT
International Student Assessment (henceforth PISA) examinations,
skills and higher order thinking skills including conflict
or to obtain suitable employment in the private sector when they
resolutions.
graduate. But poor proficiency also has a cause, and to find it we
have to make a critical evaluation of English language education at the
very beginning. Two areas of particular importance in this respect are Preschool teachers are expected to teach HOTs in English during
higher order thinking skills and the critical period hypothesis. the time allocated for the Thematic Module. However important
HOTs undoubtedly are, and however important it may be to develop
them from the beginning of education, what children are expected to
4.2.1.1 Higher order thinking skills (HOTs) understand and learn must still be linked to their level of maturity.

One of the general goals often suggested for education and It is not at all obvious that developing HOTs can be effectively
especially crucial for the 21st century, is to enable children to combined with preschool English. The Basic English Module of

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NPSC stresses simple skills such as greeting, identifying objects, Similarly Newport (2003) reported that several lines of
and following simple instructions (as presented in Table 4.1). research, both behavioural and neural, suggest that there is a
critical or sensitive period for language acquisition, so that feral
The development of such basic language skills is incompatible
or abused children who have been isolated from exposure to their
with the inculcation of HOTs and Information and Communications
first language until after puberty have shown extreme deficits in
Technology (ICT) skills. In any case, teaching HOTs in English is
phonology, morphology, and syntax. The extension of the theory to
an impossible task for teachers who are already having problems
second language acquisition (SLA) has stimulated both supporting
with their own English. The likely outcome is that they use a
and opposing research. Singleton (1992) claims that there are
language more familiar to themselves and their students, so that
many exceptions in second language learning, and that five percent
the students do not benefit from the policy allocating equal time
of adults who begin to learn a new language manage to master it.
to the languages used in preschools. Students are unlikely to be
able to demonstrate these HOTs in English. Snow and Hoefnagel-Hhle (1978) did not find support for
the CPH in SLA in their longitudinal study of the naturalistic
4.2.1.2 The Critical Period Hypothesis (CPH)
acquisition of Dutch by English speakers of different ages: 12 to
In addressing the needs of the 21st century, it is pertinent for 15 year-olds and adults made the fastest progress during the first
curriculum developers to be cognizant of relevant theories of few months, but by the end of the first year the 8 to 10 and 12 to
language acquisition. According to the CPH, there is a critical period 15-year-olds had progressed the most, while the 3 to 5-year-olds
for language learning which peaks between the ages of 3 and 5, which scored lowest on all the tests employed.
is also when many children start learning English as a new language.
An important refinement of the hypothesis is that it does not
Early proponents of the hypothesis, including Penfield and apply to language as a whole, and that the optimal learning age
Roberts (1959, cited in Pallier, 2007) and Lenneberg, Chomsky and differs from one language system to another. According to Ruben
Marx (1967), claimed that language develops readily during the first (1999, p. 85) the critical/sensitive period of phonology is from the
few years of life, but later on language acquisition becomes much sixth month of fetal life through the 12th month of infancy.
more difficult and ultimately less successful (Snow & Hoefnagel-
Data indicates that the critical/sensitive periods for syntax
Hhle, 1978).
run through the fourth year of life, and for semantics through the

124
15th or 16th year of life. Newport (2003) also takes the view Herein is the crux of a fundamental problem not only for preschool
that vocabulary and semantic processing can develop relatively English education, but for English education as a whole. If we expect
normally in late learners. our graduates to operate effectively in English, then they have to get
a good start in English in preschool. This means providing preschool
A related issue discussed by Hunt (1961) is that a high level of
children with good models of spoken English from which they can
intellectual capacity during adulthood depends on a high-quality
acquire the indispensable foundations on which their later language
educational experience during the early years. It is therefore important
learning will be based, and which they will find increasingly difficult to
for the language input during the early years to be appropriate and of
acquire as they get older. Young learners cannot be expected to acquire
quality so that the child develops a high level of intellectual capacity
the foundations if their teachers lack either the English proficiency to
in communication. Besides curriculum content, the language input
provide suitable models, or the basic knowledge of language systems
quality includes how the teaching and learning of the language is
that they need in order to guide the learning of their students.
carried out as well as the teachers qualifications and proficiency.

Although research on the critical period remains inconclusive,


it is reasonable to take the view that language learning must be 4.2.2 Switching language
matched to the maturity of the learner. There are certain language
Tables 4.3 to 4.6 present the suggested timetables included
systems which must be mastered early if the learner is ultimately
in the curriculum for National Preschools and National-Type
to develop a command of the language. These areas include
Preschools, which lay down when to teach in Malay, English, or
phonology, morphology and basic syntax such as the use of articles.
Mandarin or Tamil. The white cells indicate lessons to be carried
According to Gestwicki (1999), childrens language development out in the first language, blue indicates English, and green indicates
depends on the quality of the input they are given, and these are Malay as the medium of instruction in National-Type Preschools.
also areas which young children are able to learn intuitively from
The differences between the Tables are that firstly for National
good models. It is extremely difficult to give an adequate theoretical
Preschools they have to use two languages, while National-Type
account of these areas using traditional teaching methods, and
Preschools use three languages. For each type of preschool two
even if the teacher were able to provide such an account, it would
suggestions (A and B) are given for scheduling the allocation for
be far beyond the understanding of the children.
the use of different languages.

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8.008.10 8.108.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-10.50 10.50-11.20 11.20-11.50 11.50-12.00
(10min) (20min) (40min) (20min) (30min) (30min) (20min) (30min) (30min) (10min)
M Morning Perbualan Aktiviti Thematic English basic Recess Thematic Pendidikan Pendidikan Reflection
routine pagi Luar module module module Islam /Moral Islam /Moral
Education Education
T Morning Perbualan Matematik Modul English basic Recess Thematic Modul asas Modul Reflection
routine pagi bertema module module BM bertema
W Morning Morning Outdoor Modul Modul asas Rehat Thematic Modul Modul Reflection
routine circle activity bertema BM module bertema bertema
T Morning Morning Modul Modul Modul asas Recess Thematic Thematic English basic Refleksi
routine circle bertema bertema BM module module module
F Rutin Pagi Morning Thematic Thematic Thematic Recess Modul Pendidikan Pendidikan Refleksi
circle module module module bertema Islam /Moral Islam /Moral
Education Education

Table 4.3 Suggested Timetable A for National Preschools


8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.40 9.40-10.10 10.10-10.40 10.40-11.00 11.00-11.30 11.30-11.50 11.50-12.00
(10min) (20 min) (40min) (30 min) (30 min) (30 min) (20 min) (30min) (20min) (10 min)
M Morning Perbualan Aktiviti Luar Pendidikan Pendidikan Recess Thematic Thematic English basic Reflection
routine pagi Islam Islam module module module
8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-11.00 11.00-11.30 11.30-11.50 11.50-12.00
(10min) (20 min) (40min) (20 min) (30 min) (30 min) (30 min) (30min) (20min) (10 min)
T Rutin Perbualan Matematik Modul Modul Modul asas Recess English basic Thematic Reflection
pagi bertema bertema BM module module
8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-10.50 10.50-11.20 11.20-11.50 11.50-12.00
(10min) (20 min) (40min) (20 min) (30 min) (30 min) (20 min) (30min) (30min) (10 min)
W Morning Morning Outdoor Thematic Modul asas Rehat Modul Modul Modul Refleksi
routine circle activity Module BM bertema bertema bertema
T Morning Morning Thematic Thematic Thematic Recess Thematic Thematic English basic Reflection
routine circle module module module module module module
F Morning Morning Modul Modul Modul asas Recess Modul Pendidikan Pendidikan Refleksi
routine circle bertema bertema BM bertema Islam Islam

Table 4.4 Suggested Timetable B for National Preschools

126
8.008.10 8.108.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-10.50 10.50-11.20 11.20-11.50 11.50-12.00
(10min) (20min) (40min) (20min) (30min) (30min) (20min) (30min) (30min) (10min)

M Routine Perbualan Aktiviti Thematic English Recess Thematic / / /


pagi Luar module basic modules Modul bertema Modul bertema Refleksi
module dalam BT / dalam BT / dalam
Pendidikan Pendidikan Bahasa
Islam Islam Tamil (BT)

T / Morning / Modul Modul asas Recess Thematic Modul asas BM /


Rutin pagi circle Modul asas bertema BM modules Refleksi

dalam BT Matematik dalam BT
dalam BT /Modul asas BT

W / Morning Modul Modul asas Rehat Thematic Reflection


Rutin pagi circle bertema BM modules
/
dalam BT
/Modul asas BT /Modul asas BT

T / / Modul bertema Modul Modul asas Modul Thematic English basic Reflection
Rutin pagi Perbualan bertema BM bertema module module
dalam BT pagi dalam
BT

F Rutin pagi / Modul bertema Modul / Recess Modul / / Refleksi


Perbualan bertema Modul bertema Modul bertema Modul bertema
pagi dalam bertema dalam BT / dalam BT /
BT dalam BT Pendidikan Pendidikan
Islam Islam

Table 4.5 Suggested Timetable A for National-Type Preschools

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8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-11.00 11.00-11.20 11.20-11.50 11.50-12.00
(10min) (20 min) (40min) (20 min) (30 min) (30 min) (30 min) (20min) (30min) (10 min)
M / / / / English Recess Thematic Thematic Thematic Reflection
Rutin pagi Perbualan Modul bertema Modul bertema basic module module module
dalam BT pagi dalam dalam BT / dalam BT / module
BT Pendidikan Pendidikan
Islam Islam
8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.30 9.30-9.50 9.50-10.20 10.20-10.50 10.50-11.20 11.20-11.50 11.50-12.00
(10min) (20 min) (40min) (20 min) (20 min) (30 min) (30 min) (30min) (30min) (10 min)
T Rutin pagi Perbualan Modul bertema Modul bertema Modul Rehat Modul asas / / /
pagi bertema BM Modul bertema Modul bertema Refleksi
dalam BT / dalam BT / dalam BT
Pendidikan Pendidikan
Islam Islam
W Routine Morning / Thematic Thematic Recess English /
circle Module Module basic Refleksi

module dalam BT
/Modul asas BT /Modul asas BT

T / / Rehat Modul Modul bertema Thematic Reflection


Rutin pagi Perbualan bertema module
dalam BT pagi dalam /Modul asas /Modul asas BT
BT Matematik
dalam BT

8.00 8.10 8.10 8.30 8.30-9.10 9.10-9.30 9.30-10.00 10.00-10.30 10.30-11.00 11.00-11.30 11.30-11.50 11.50-12.00
(10min) (20 min) (40min) (20 min) (30 min) (30 min) (30 min) (30min) (20min) (10 min)
F Morning Morning Aktiviti Luar Modul bertema Modul asas Modul asas Recess English basic Modul bertema Refleksi
circle circle BM BM module

Table 4.6 Suggested Timetable B for National-Type Preschools

128
Young learners cannot
be expected to acquire
the foundations if their
teachers lack either the
English proficiency to
provide suitable models,
or the basic knowledge of
language systems that they
need in order to guide the
learning of their students.

Although these timetables are suggestions, teachers are likely To implement these timetables, teachers have to switch from
to follow them because they have been designed to comply with one language to another in order to keep to the curriculum. In
the policy of equal time for Malay, English, and Mandarin or Tamil. the daily teaching and interaction with the preschoolers, the
However, this arrangement does not provide continuity for a child transition is rather awkward from one language to another on a
learning English, because English is used alternately with Malay, or lesson-to-lesson basis. The time for each lesson is also not fixed,
with Mandarin or Tamil, for the same kind of class. and as shown in the suggested timetables, it varies from 10 to 40
minutes. Constant shifts in languages and duration do not provide
For instance, Morning Circle is carried out in Malay on
for continuity in the thinking process for the children.
Mondays and Tuesdays but in English on Wednesdays, Thursdays
and Fridays. Since both languages are taught by the same teacher, The problem here is twofold: children at this age need
students may be confused. This problem is compounded in a structured environment that provides them stability and
National-Type Preschools, where the teacher has to juggle three security. They are comfortable with routines and take comfort
languages: Malay, Mandarin or Tamil, and English. in predictability and continuity in their activities. Abrupt changes
in the language of instruction does not fulfil this need. Secondly,

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teachers who are aware of this problem and who find alternating In 2013, the Cambridge Malaysia Baseline Project 2013, (as
between languages difficult might just not bother too much about described in chapter 1) confirmed that a substantial proportion of
fulfilling the required time allocation for English. They are likely to English teachers have not reached a sufficient level of proficiency.
resort to the language that is most comfortable for both teacher The lack of proficiency among English teachers has to be taken
and pupils, which in most cases will be the first language and not objectively into account in planning to provide them with support
the target language. and to meet their training needs.

Low levels of English proficiency among teachers reduce


their effectiveness as language teachers. Rohaty Mohd Majzub
4.2.3 Role Models
(2013) draws attention to the low level of English proficiency and
confidence in using English among preschool teachers. This lack
The preschool teaching and learning environment is particularly
of confidence contributes to a preschool environment that does
demanding on teachers in view of the high level of care, attention
not in general support the use of English, and in most instances
and guidance that young children need. Teachers teaching English
teachers and students prefer to use their mother tongue.
literacy for preschoolers need not only expertise in pedagogical
approaches for young children learning English as a second The resulting minimal exposure to the target language
language, but English proficiency for themselves. However, there undermines the use of the immersion approach best suited for
is a growing body of evidence that a substantial proportion of young learners of a second or foreign language (Kite & Sakui,
preschool teachers do not have these qualifications. 2001; Met, 2004; Ojima, Nakamura, Matsuba-Kurita, Hoshino, &
Hagiwara, 2011; Tedick, Christian & Fortune, 2011).
In 2010, a study was conducted by the MoE of the status of
English in 102 public and private preschools, and the teachers Children do not have the opportunity to learn the language
interviewed agreed that while the English policy was beneficial in in meaningful social interactions with a more knowledgeable
exposing preschool children to English and preparing them for Year other (Vygotsky, 1978). Moreover teachers who are themselves
One, they were themselves apprehensive as they did not have learning the target language do not make good models for their
sufficient command of the language to converse in English. young students.

130
For students to
enjoy using English,
teachers need
to plan learning
activities that match
their interests and
stimulate their
curiosity.

Teachers who cannot speak English well and lack language support, they are not translated into everyday practice. Ng (2010)
learning skills should not be the first persons to introduce young found that some teachers did not understand the curriculum for
learners to English. Teachers inadequacies which may take the English, and there was a lack of activities teaching English through
form of ungrammatical constructions and mispronunciations are play, music and movement; classes tended to be teacher-centred,
likely to be picked up by the young learners, causing them great with little attention to creativity and problem solving skills. As
difficulty to unlearn and relearn in later stages of the education observed by Kioko (2015) studying early education in rural Kenya,
system. This point is returned to below. such practices are not uncommon when teacher and learner are
struggling with English in an unnatural environment. For students
to enjoy using English, teachers need to plan learning activities that
4.2.4 Developmentally Appropriate Practice Principles match their interests and stimulate their curiosity. Children learn
best through play, and child-directed play that is carefully planned
Nunan (2015) emphasises the importance of training for
and carried out in a literacy enriched environment facilitates the
teachers who are going to teach a language to young learners. This
development of childrens oral and writing literacy (Anderson,
training must be based on developmentally appropriate practice
Spainhower & Sharp, 2015; Waite-Stupiansky, 2014).
(Gestwicki, 1999). While such principles may be given widespread

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Resources such as the


culturally relevant Big Books,
graded phonetic readers,
charts, CDs and other
materials supplied by the
Curriculum Development
Division (CDD) of the MoE are
considered supplementary
and underused.

Another DAP and constructivist-embedded approach Our preschool teachers lack the language ability, professional
prescribed in the NPSC is project-based learning. However, skills and initiative to translate curricular goals into teaching
teachers are found to lack the skills and knowledge they need to modules, materials and activities that are developmentally
take this approach in their lessons (Ng & Anna Christina Abdullah, appropriate as advocated by Gestwicki (1999). Preschool teachers
2011; Noor Miza Abdul Rahman, 2015). Learning through play is are expected to use teaching materials and design activities that
another approach prescribed in the NPSC as play comes naturally follow the development of children as well as match their abilities
to children and makes learning fun. and interests in a familiar and meaningful culture.

Thus besides producing more effective learning (Axelrod, However, it appears that what teachers are really looking for
2014; Jarrett, Sutterby, DeMarie & Stenhouse, 2015), it enables is a highly structured daily schedule complete with prescribed
students to develop positive attitudes towards using English, teaching materials ready for immediate use, and perhaps a core
with similar results to the use of techniques such as drama and textbook. Resources such as the culturally relevant Big Books,
storytelling (Grace, 2015; McNair, 2015). graded phonetic readers, charts, CDs and other materials supplied

132
by the Curriculum Development Division (CDD) of the MoE are their differences in knowledge and skills skills (see Figure 4.7). These
considered supplementary and underused. eight constructs cover 19 content standards focusing on (BI 1.0)
listening and speaking skills, (BI 2.0) pre-reading skills, (BI 3.0)
While prescribed documents and materials might enable
reading skills, and (BI 4.0) writing skills, none of which contains
teachers in the short run to focus on effective classroom
any element of HOTs or phonics assessment (for 5+).
management, it does not develop them in the long run to become
versatile educators sensitive to the diverse needs of young learners A 43-page module on the developmental assessment of children
(Ball & Tyson, 2011, Williams-Kennedy, 2013). It is therefore in preschool (KPM, 2010) has been distributed to all preschools as a
important to equip preschool teachers with professional skills guide for preschool teachers, outlining the objectives of the module
focusing on DAP methodology and the use in English language with substantial explanation of concepts and terminologies relating
instruction of culturally sensitive materials. Localised and culturally to assessment. However, there are still grey areas in the assessment
meaningful materials such as stories, songs, and rhymes that both of English proficiency and communicative skills, and there are a
teachers and pupils can identify with are likely to motivate them to number of inconsistencies despite the fair representation of the
embrace the language. constructs according to their weighting in preschool assessment.

Hence there might even be a need to teach teachers how to Firstly, whereas the performance standards document for
develop their own localised and culturally appropriate learning English assessment at Level One (Primary Years 1, 2 and 3)
materials as local contexts (not just considering the visible aspects focuses on performance in achieving the learning standards, the
like food and clothes, but also values and behavioural norms), can preschool assessment focuses instead on testing the content
differ in subtle, yet significant ways that make it quite difficult for standards. The table below contrasts the skills taught and the skills
even the CDD to develop materials to cater to all these differences. assessed at preschool level. Learning outcomes as specified in the
content standards as well as the learning standards are spelled out
4.2.5 Assessment Constructs respectively in Appendix A which shows the mapping between the
NPSC and the CEFR.
The existing National Preschool Assessment Tool (NPAT)
assesses the students mastery of specific constructs. Those in In addition, the four content standards (BI1.5, 1.6, 1.7, 1.8)
groups 4+ and 5+ are assessed on the same eight constructs despite assessed under construct (BI 4) measure speaking skills language

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Skills Taught (as per NPSC) Skills Assessed (as per NPAT)
Learning Standards
Focus Content
4+ age 5+ age Constructs measured
Skills Standard
group group
(BI 1.0) 10 17 25 Construct: Construct: Construct:
Listening (BI 1.1 (BI 1) Listening & Speaking Skills responding to (BI 2) Listening & Speaking (BI 3) Listening & Speaking
& 1.10) instructions Skills simple conversation Skills talking about
Speaking Content standards: Content standards: experiences
(BI 1.1) Listen to and discriminate sounds. (BI 1.9) Perform a variety of Content standards:
(BI 1.2) Listen to and understand meaning of simple language forms and functions in a (BI 1.2) Listen to and understand
words. social context. meaning of simple words.
(BI 1.3) Acquire and use simple phrases and (BI 1.10) Ask simple questions. (BI 1.3) Acquire and use simple
statements. phrases and statements.

Construct: NIL NIL


*(BI 4) Speaking Skills language arts
Content standards:
(BI 1.5) Listen to and enjoy nursery rhymes,
Speaking NIL NIL NIL
action songs, poems and stories.
(BI 1.6) Sing songs and recite rhymes and poems.
(BI 1.7) Tell simple stories.
(BI 1.8) Dramatise familiar situations and stories.
*(BI 2.0) 2 3 2 NIL NIL
Pre- (BI 2.1
reading 2.2)
(BI 3.0) 5 (BI 3.1 11 17 Construct: Construct: Construct:
Reading 3.5) (BI 5) Read simple words (BI 6) Read simple sentences (BI 7) Develop interest in
Content standards: Content standards: reading
(BI 3.1) Identify letters of the alphabet. (BI 3.3) Read simple phrases Content standards:
(BI 3.2) Read simple words with understanding. with understanding. (BI 2.1) Understand that printed
(BI 3.4) Acquire knowledge of materials contain meaning.
print and ethics in reading (BI 2.2) Acquire and use simple
phrases and statements.
(BI 3.5) Develop interest in
reading.
(BI 4.0) 2 4 3 Construct: NIL NIL
Writing (BI 8) Writing skills
Content standards:
(BI 4.1) Pre-writing skills
(BI 4.2) Writing skills

Table 4.7 Comparison between skills taught and assessed for English Language in preschools

134
arts. In actuality, language arts involve the development of These are important in early literacy as they are strong,
the childs listening and speaking skills as well as creativity. The reliable predictors of reading and spelling success in later years
assessment of language arts needs to be re-examined to make it (Blevins, 1997; Bryant & Bradley, 1985; Eldredge, 1995; Gillon,
congruent with the primary Year One assessment for and/or of 2004 in Andreassen & Andreassen, 2013; International Reading
language arts based on learning standards: (4.1.1) Able to enjoy Association, 1998; Rathvon, 2004). Lapp, Flood, Brock and
nursery rhymes, jazz chants and action songs through non-verbal Fisher (2007, p. 137) claim that children in preschool and early
response, (4.1.2) Able to enjoy nursery rhymes, jazz chants and sing kindergarten typically lack a general knowledge of letter-sound
action songs with correct pronunciation and rhythm, (4.2.1) Able relationships during what they call the pre-alphabetic phase.
to demonstrate skills in handling books appropriately, (4.2.2) Able
to respond to (a) book covers, (b) pictures in books with guidance, As the focus of teaching and assessment for Level One in
(4.3.1) Able to produce simple creative works with guidance based primary education is on the development of phonemic awareness
on: (a) nursery rhymes, (b) action songs, (c) jazz chants, (d) stories, as specified in, for example, national primary Year One content
as well as (4.3.2) Able to take part with guidance in a performance standard (2.1) By the end of the 6-year primary schooling, pupils
based on: (a) nursery rhymes, (b) action songs, (c) jazz chants, (d) will be able to apply knowledge of sounds of letters to recognise
stories (KPM, 2012, pp. 24-25). words in linear and non-linear texts, as well as learning standards
(2.1.1) Able to identify and distinguish the shapes of the letters in
Although pre-reading skills is considered a separate focus the alphabet, and (2.1.2) Able to recognise and articulate initial,
area, and is assessed separately in language teaching, pre-reading medial and the final sounds in single syllable words within given
naturally comes under reading. Moreover, in the assessment context (KPM, 2011), it is recommended that preschoolers aged
of reading skills, phonological and phonemic awareness are not 5+ be assessed on their learning of phonics to prepare them for the
covered. Although these terms are often used interchangeably transition to Year One.
(Eldredge, 1995; International Reading Association, 1998),
phonological awareness refers to a general appreciation of sounds Incidentally, the Year One learning standard (2.1.1) Able to
of speech whereas phonemic awareness includes this insight of identify and distinguish the shapes of the letters in the alphabet
the general appreciation of sounds as well as the sensitivity and corresponds to two preschool learning standards set for children
understanding that words can be divided into sequence of sounds. in the 4+ age group, namely (BI 3.1.1) Recognise letters of the

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alphabet by their shapes, and (BI 3.1.5) Name letters of the 4.2.6 Assessment Rubrics
alphabet with guidance. This learning standard 2.1.1 is also similar
to the preschool learning standard set for children in the 5+ age The NPAT is designed to measure pupils progress against
group, that is, (BI 3.1.6) Name letters of the alphabet. broad criterion referenced learning standards. Performance is
assessed for listening and speaking, reading at word and sentence
Thus, since the preschoolers are exposed to basic phonics
level, and writing. Achievement is assessed on a three-point scale
where they learn to sound out letters of the alphabet (learning
from Has Not Mastered (Belum Menguasai) to Is Mastering
standard BI 3.1.7), hear and sound vowel sounds (learning standard
(Sedang Maju) and Has Mastered (Telah Menguasai).
BI 3.1.8), as well as hear and sound consonant sounds (learning
standard BI 3.1.9) (KPM, 2010, p. 49), assessment covering the The preschool assessment constructs and performance
area of phonological awareness could be included as one of the standards need to describe precisely what students can do with
constructs in the NPAT. the language they are learning and, most importantly, it must be
measurable. Taking construct BI3 Listening and speaking skills
The focus aspect in the NPSC refers to the learning area talking about experiences (BI1.2, BI1.3) as an example, it would be
targeted for child development. The development of constructs difficult for a teacher to objectively discriminate between a pupil
for assessment is based on this learning focus or domain. There are who is able to talk about familiar experiences with prompting
four areas of focus in the NPSC and develop interest in reading (considered as Has Mastered) and another who is able to
is a content standard (BI3.5) listed under reading skills, which is talk about familiar experiences with guidance (considered as Is
not a focus area. In the NPAT, develop interest in reading is Mastering ) (see Table 4.7).
considered a construct [BI7] which is subjective and difficult to
measure. Standards that have the added clause of with prompting and
with guidance can easily be taken to mean the same thing though
in practice, they are associated with very different levels of support
for the student. In another example, being able to read simple
words or sentences with understanding for constructs BI5 and
BI6 is not clear as to how the understanding is to be measured.

136
Moreover, the descriptors used on the performance standards of forms that are purposeful and apparent in assessing pupil
are too general, especially when they apply to the assessment of performance apart from mere teacher observation, the three
several sub-skills under a particular construct to the extent that scales of measurement used are subjective and open to different
the descriptors become inappropriate or irrelevant. For instance, interpretations of mastery by teachers who differ in their
construct BI1 covers listening and speaking skills BI1.1, BI1.2 and expectations of their pupils.
BI1.4 with skill BI1.1 assessing pupils on discriminating sounds whilst
There is likely to be considerable variation in judgements by
the descriptor for Has Mastered of the performance indicates that
different teachers, and what counts as Has Mastered may vary
the pupil is able to respond to simple instructions(see Table 4.7).
widely from one preschool to another.
Certain constructs such as (BI7) Develop interest in reading
Several of the CEFR level A1, and in some instances, level
are difficult to measure. A pupil is considered to have achieved the
A2 can do statements can be used as a guide to teachers when
standard by the descriptor able to indicate interest in reading,
formulating the assessment criteria for productive outcomes for
which is ambiguous. The descriptors for the three performance
speaking and writing abilities as well as for receptive outcomes
standards or scales of measurements are vague.
involving listening (aural reception) and reading (visual reception).
Just how should one display a personal trait such as interest
However, the CEFR illustrative scales that can be used in the
to indicate interest in reading is questionable and is open to
re-alignment are rather limited, and generally it is the lowest level
different interpretations. Similarly, write simple phrases can
A1 that applies. In the aspect of writing skills, it appears that the
be interpreted in different ways; it does not indicate independent
CEFR level A1 Can write simple isolated phrases and sentences is
writing nor copying or whether correct spelling be insisted upon
the only can do statement that could be adopted for an overall
the child being assessed.
written production (Council of Europe, 2001, p. 61).
Although the mastery of the preschool learning standards helps
In respect of speaking skills, three criteria could apply to an
ease the transition process from the informal preschool setting
overall spoken production and/or a sustained monologue such
where assessment is done through non-intrusive observations
as describing ones experiences. The can do statements may
to the more formal primary school environment where school-
plausibly be used to match the NPAT construct (BI 3) Listening
based assessments for (and of) learning of English take a variety

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and speaking skills talking about experiences, applicable to (A1) Can follow speech which is very slow and carefully
content standards (CS) and learning standards (LS) such as (CS: articulated, with long pauses for him/her to assimilate
BI 1.2) Listen to and understand meaning of simple words, (LS: BI meaning.
1.3.1) Talk about familiar things and experiences, (LS: BI 1.3.2) Talk (b) Listening skills: for listening to announcements and
about familiar experiences, favourite things and activities around instructions
them). The relevant CEFR can do statements are as follows: (A1) Can understand instruction addressed carefully and
slowly to him/her and follow short, simple directions
(a) Speaking skills: for overall spoken production (Council of Europe, 2001, pp. 66-67).
(A1) Can produce simple mainly isolated phrases about As for reading skills, the CEFR illustrative scales that can be
people and places, considered as pertinent are as follows:

(A2) Can give a simple description or presentation of (a) Reading skills: for overall reading comprehension
people, living or working conditions, daily routines,
likes/dislikes, etc as a short series of simple phrases Can understand very short, simple texts a single
(A1)
and sentences linked into a list (Council of Europe, phrase at a time, picking up familiar names, words and
2001, p. 58). basic phrases and rereading as required.
(b) Speaking skills: for sustained monologue: describing (b) Reading skills: for reading correspondence
experiencece
(A1) Can understand short, simple messages on postcards.
(A1) Can describe him/herself, what he/she does and where
he/she lives (Council of Europe, 2001, p. 59). (c) Reading skills: as in reading for orientation

(A1)
Can recognise familiar names, words and very basic
As far as listening skills are concerned, the following CEFR can phrases on simple notices in the most common everyday
do statements may be preferred over the descriptors in the NPAT: situations (Council of Europe, 2001, pp. 69-70).

(a) Listening skills: for overall listening comprehension

138
4.2.7 Assessment Tools and expectation of what students intend to say in connection with
the constructs assessed. They may overestimate or underestimate
Assessment requires preschool teachers to produce tangible,
the performance of students during assessment.
documented proof in the form of worksheets, checklists, questions,
stimuli (e.g. poems, rhymes, song lyrics) etc. Since there are no In general, teachers are likely to make a somewhat lenient
standardised forms of evidence available to teachers, assessment assessment of the pupils responses, and claim that the child Has
is on-going and subject to time constraints, many teachers tend to Mastered the construct concerned. Although this may boost the
collapse two or more constructs and assess them together. childrens confidence, and motivate and prepare them mentally for
primary education, if they start off without a solid foundation in
More often than not, it is the lack of adequate and valid
English, they will later on face the problem of having to un-learn
assessment tools that forces teachers to resort to commercially
and re-learn. Without proper guidance, preschool children may
produced workbooks for materials to be used as evidence, even
not be able to reach the assessment targets.
though they are not valid tools to assess the childs abilities, skills,
and knowledge of the constructs.

4.2.8 Teacher Proficiency 4.3 The Way Forward: The Roadmap For Preschool Education

The low level of language proficiency among preschool This section describes and explains the conditions (see Figure
teachers and their lack of self-confidence in communicating 4.3) required to meet the stated goals for preschool English. The
in English (Rohaty, 2013) affect their competence as language hope is that at the end of preschool, students will be confident in
assessors. Teachers whose own English is inadequate are unlikely using English in and outside the classroom and develop positive
to provide an appropriate model of English for their students to attitudes that will ease their transition to primary school. These
copy. Assessments may as a result be conducted in a mixture of conditions relate to the three areas of curriculum, teaching and
the mother tongue and the target language. learning (T&L), and assessment. For a visual representation of the
Roadmap, please refer to Section C.
The inadequacy on the part of the assessor could influence
how well their very young students respond (Morrison, 2007).
Besides, teachers may have a different perception, interpretation

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4.3.1 Conditions for Attaining


Curriculum goals CURRICULUM TEACHING & LEARNING ASSESSMENT

The MEB plans to bring


the primary curriculum up to
Alignment of DAP-informed CEFR- informed
international standards so that learning standards pedagogy assessment
Malaysian students are at the same
level as their global peers. Raising Transition from Minimum English Institutional
the bar has to begin at preschool one instructional requirement for support for
level to bring about a smooth language to preschool teachers development of
transition and higher standards at
another assessment tools
primary and secondary levels. It is
therefore important to look at the
preschool curriculum. English language Teacher
rich environment competency
The NPSC is based on DAP
as a whole, so there is a need
in preschools in preschool
to ensure that the skills in the English language
English language component of Parental and assessment
the Communication Strand reflect community
its principles, and that teachers engagement
can impart the skills easily in the
English Basic Module. The content
and learning standards for English
need to be aligned to the CEFR. It
would be useful to set CEFR staged
Figure 4.3 Conditions for Reform

140
learning outcomes based on the Cambridge Baseline Report as a number of hours of learning and exposure to the target language
guide for preschool. for the young learners.

The alignment with DAP principles and the CEFR will ensure There is a need to facilitate and motivate the transition from one
the integration of the childs needs, interest, and abilities while language to another without too much trouble for the teacher as
providing meaningful experiences to facilitate comprehension and well as to reduce confusion among students. The transition should
memory. The alignment to the CEFR will ensure that the content ensure some form of structure and predictability for the students.
and learning standards are specific and easily taught. In addition, DAP principles advocate the use of predictable daily schedule
the CEFR provides the necessary international benchmark at the (Gestwicki, 1999). The curriculum review should therefore look
outset of the childs education. into providing sample schedules that provide preschoolers with
structure, continuity and predictability. The structure would also
Preschool teachers have the mammoth task of implementing
reduce anxiety and promote teaching and learning.
the six strands of the NPSC in classroom instruction using two
languages (National Preschools) or three languages (National-Type The above two conditions are complemented by the need to
Preschools). Teachers have to constantly switch languages during provide an English language-rich environment to facilitate students
classroom instruction to keep to the number of hours stipulated acquisition of the target language. Such an environment would
under the NPSC. Preschool teachers are generally unable to rigidly reduce the unfamiliar and fear factors attached to learning
follow the time stipulation for a number of reasons including the a new language, as well as promote positive feelings towards
preschoolers family and language backgrounds, English proficiency learning English.
and preference for the mother tongue.
The aim of such an environment is to simulate an immersive
In a context where the preschoolers mother tongue is not approach that also includes the use of English outside the classroom.
English, it is not unusual or wrong for the teacher to use the mother Other possible contributions to an EL-rich environment include
tongue in instruction of the target language and other learning providing materials such as English stories and picture books,
topics. The literature shows many advocates of this practice (e.g. having labels and signages in English, and events such as speak
Cambridge University Press, 2015; TESOL, 2010). However, it English day.
is feared that all this might affect the fulfilment of the required

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Over and above the three conditions described so far is the 4.3.2 Conditions for Attaining Teaching & Learning Goals
need to ensure continuity and congruence between school and
Teaching and learning at preschool level includes two important
home. For positive English language learning attitudes to be
requirements of significance to the Roadmap. The first is to ensure
reinforced in students, the home environment has to be equally
that teachers practices are consistent with the principles of DAP,
positive. To this end, it is necessary for parental and community
which privilege the individual young learner on a unique learning
engagement programmes to be put in place in which parents have
pathway. Pre-service courses, in-service continuous professional
to play a more active role as champions of the target language.
development courses, and the monitoring and evaluation of
The school with the support of the district and state education pedagogy should be concerned with raising teachers awareness
offices have to take the lead in designing these programmes in of DAP and its importance for the teaching of English to young
order eventually to see parents and community members taking learners. In this regard there should be a body under the Schools
on more dominant roles and responsibilities in organising activities Inspectorate and Quality Assurance (henceforth SIQA) to
to support students learning. Parents are crucial to the success of evaluate and support the practices of preschool teachers.
the learners.
To be effective in the task, officers monitoring and evaluating
The support for the teaching and learning of English can take practices at preschool level should themselves be trained in
many forms depending on the imagination and resourcefulness of both English and early childhood or preschool education or have
the parents. Parents, for example, can volunteer to conduct reading undergone some training in DAP principles. The Teaching Assistant
or story telling sessions. The Parent-Teacher Association (PTA) (henceforth TA) who is currently provided by the system should
should focus on such joint efforts for preschool. The effectiveness also be involved in more active and effective ways to support
of the partnership between the school on the one hand and the teaching.
home and the community on the other should also be monitored
The second aspect concerns the qualifications of preschool
and sustained. With systemic institutional support, the home
teachers. To teach English to preschoolers, teachers must not only
and school partnership will become part of the school culture.
be equipped with the appropriate pedagogical approaches but also
Ultimately such activities will have the end result of increased EL
be skilled in the language and model its use. The present diploma
engagement time for students and even parents.
level qualification (with no emphasis on the need for English)

142
should be raised to a higher standard. Candidates for teaching to incorporate assessment on phonics particularly phonological
need at least a bachelors degree in Early Childhood Education, awareness for the 5+ age group, and HOTs guided by the CEFR.
Preschool Education and English Education (e.g. Teaching English This is complemented with a glossary of terminologies related to
as a Second Language (henceforth TESL), Teaching English to the constructs, descriptors and concepts used. Such a glossary will
Speakers of Other Languages (henceforth TESOL), Teaching help teachers to interpret, understand better and implement the
English to Young Learners (henceforth TEYL). revised assessment tool more effectively.

An alternative human resource is the group of retired local The existing eight constructs in the present NPAT need to be
English teachers who are not only experienced in teaching but also revised before the descriptors can be re-aligned to CEFR-informed
highly proficient in English. Retired English teachers can fill the assessment. Revision of the descriptors involves the use of the
gap while plans are put in place to train preschool teachers with CEFR scales of illustrative descriptors of language proficiency.
the appropriate qualifications for the workforce. It is believed that These holistic scales can appropriately be used to specify the
teachers with a combined competence in language and pedagogy descriptors of aspects of English language proficiency related to
will be able to use the language confidently and be excellent models particular competences for the preschool level.
for the young learners. A natural English-rich environment as
Three different common reference levels of proficiency of
described in the section above will make the young learners more
the CEFR pertinent to preschool education are: level A1 (Basic
receptive to the language and eventually use it with confidence.
user: Breakthrough), level A2 (Basic user: Waystage) and level B1
(Independent user: Threshold). The scales describe what pupils
can do and how well they do it. While the user-oriented scales
4.3.3 Conditions for Attaining Assesment Goals
describe what communicative tasks pupils can do, and the assessor-
There are three conditions for reform for preschool assessment. oriented scales which guide the rating process specify how well
The first condition for reform in Phase 1 (2015-2018) is the the pupils perform the tasks. The can do descriptors specify
adoption of the CEFR-informed assessment to which the current the learning targets, and based on the can do statements, the
NPAT is re-aligned. The re-alignment involves a revision of the preschool teachers can select and/or develop learning materials
existing constructs and descriptors for the performance standards and activities as well as design assessment tools or tasks.

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In tandem with the re-alignment process, assessment practices The respective District Offices (DEO) will mobilise teachers
should be developmentally appropriate, linguistically appropriate, and to develop the standardised assessment tools collaboratively. At
age appropriate (Morrison, 2007). Assessment tools developed to the initial phase, priority is given to the development of assessment
support the childrens learning should include measurement of phonics tools to test listening and speaking skills. This is because hitherto
particularly phonological awareness for preschoolers aged 5+. there has not been any attempt to produce such standardised tools
for assessment. Moreover, current key trainers for preschools
They should be designed to measure pupils sensitivity to
have pointed out the inadequacy of assessment tools especially in
the sound structure of English, that is, to ensure that preschool
assessing listening and speaking skills.
pupils are not only aware of words within sentences but also can
recognise, detect and identify rhymes within words, beginning The third condition for reform concerns teachers and pupils.
sounds (alliteration) and ending sounds (assonance) within words, As the prerequisite for recruitment of preschool teachers in Phase
syllables, onsets and rimes (Eldredge, 1995; International Reading 1 is a minor in English, the Day School Management Division
Association, 1998; Rathvon, 2004). (henceforth DSMD) will ensure that the administration of
assessment for the learning of English is shouldered by English
Besides these, exemplars of developmentally appropriate and
language option teachers and/or teachers who are competent
linguistically appropriate assessment tools should be provided for
users of English. Assessment of pupils will be more streamlined as
standardisation in the form, format and procedures of assessment
teachers will be guided by exemplars and the use of the standardised
across National Preschools and National-Type Preschools.
assessment tools. Pupils will be more confident in the use of the
Armed with exemplars, teachers will be properly guided in the
language if we achieve the expected jump to CEFR A1 on exit for
administration of assessment besides being more confident,
preschoolers in 2018 for the present cohort of beginners.
objective and fair in their assessment of pupils.
In Phase 2 (2019-2022), monitoring and evaluation of the CEFR-
The second condition for reform is institutional support which
informed assessment will be conducted by the SIQA to ensure that
is important for standardisation efforts to be successful. Each State
it is used effectively. Evaluation reports by the Inspectorate will
Education Department (SED) will work towards the development of
be given to SED and DEO focus on teacher quality improvement
standardised assessment tools to be used as evidences in formative
(as assessors) and pupil performance improvement (as testees).
assessment albeit it is generally done through observation.

144
Information on pupil performance can also be obtained from pupil individually for their own use and/or collaboratively for shared use.
progress quarterly reports which will reflect indirectly on the Individually developed, non-standardised assessment tools as well
effectiveness and viability of the revised NPAT. as collaboratively developed, standardised assessment tools are
expected. SIQA will evaluate teacher competency in assessment.
Preschool teachers will be trained to develop standardised
assessment tools for all four language skills (listening and speaking, The Inspectorates evaluation report will be given to SED
reading, writing). Professional upskilling courses will need to be and DEO. The use of student portfolios based on appropriate
conducted by the English Language Teaching Centre (henceforth and authentic assessment will be enforced with pupils involved in
ELTC). The focus is on (a) English language assessment, and project-based learning.
(b) adapting and developing standardised assessment tools. At all
levels, advisory support on troubleshooting matters related to the
adaptation and development of standardised assessment tools is 4.3.4 Action Plans
to be provided.
Phase 1 (2015-2016)
Supervision, monitoring and evaluation of teachers
Curriculum
competency in assessment will be conducted by DEOs. Monitoring
reports furnished by DEOs are to be compiled by SED and given Adopt CEFR as the reference for the development of the
to DSMD. In their assessment of pupils, teachers should be guided content and learning standards for English
by the exemplars as well as those adaptations made from valid
Reinforce DAP as the reference for including pedagogical
assessment tools.
aspect into the content and learning standards for English
In Phase 3 (2023-2025), a review of the NPAT guided by the
Provide the NPSC in Malay and English to encourage the use
CEFR will be necessary to produce a more robust NPAT as well
of English for the Thematic Module
as to cater to national needs and to the challenges of changing
times based on CEFR-informed assessment. It will be necessary Adopt DAP as the reference for planning daily schedules
to continue the training of teachers to develop developmentally focusing on instructional language use
appropriate and linguistically appropriate assessment tools

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Encourage immersive-EL learning environment in preschools Phase 2 (2017-2020)

Design programmes to engage parents and community in Curriculum


supporting preschool students EL learning (e.g. teachers aide) Evaluate and monitor teachers comprehension of the EL
Teaching & Learning content and learning standards in the revised document.

Conduct courses on understanding and using DAP (including Evaluate and monitor the implementation of the schedules
culturally appropriate) principles to inform practice focusing on instructional language use

Appoint competent users of English to teach preschoolers Implement and monitor school-based initiatives for EL-rich
(focusing on retired local English teachers) environment

Assessment Launch parent and community engagement programmes and


Revise constructs and descriptors for performance standards to monitor
incorporate assessment on phonics and HOTs complemented Teaching & Learning
by a glossary of terminologies relating to constructs, descriptors
Provide continuous professional development courses for
and concepts used, guided by the CEFR.
the Inspectorate to enable them to effectively monitor and
Provide exemplars of developmentally appropriate and evaluate effectiveness of pedagogy using DAP principles
linguistically appropriate assessment tools for standardisation
Implement the Bachelors degree as minimum qualification for
across National Preschools and National-Type Preschools.
preschool teachers:
Mobilise teachers to develop collaboratively standardised
a. Major English, minor Early Childhood Education or Preschool
assessment tools for testing listening and speaking skills
Education
Recruit EL optionists and/or competent users of English to
b. Major Early Childhood Education or Preschool Education,
(teach and) conduct assessment
minor English
Assess pupils according to the exemplars

146
c. Double degree consisting of English and Early Childhood Teaching & Learning
Education or Preschool Education Monitor and evaluate effectiveness of pedagogy using DAP
Assessment principles

Monitor and evaluate CEFR-informed assessment Review preschool teachers English language quality

Train teachers to adapt from valid assessment tools to develop


developmentally appropriate and linguistically appropriate
Assessment
assessment tools for all language skills (L, S, R, W)
Review the NPAT guided by the CEFR
Supervise, monitor and evaluate teachers competency in
assessment Train teachers to develop developmentally appropriate and
linguistically appropriate assessment tools individually (or
Assess pupils guided by the exemplars and adaptations from collaboratively) for own (or shared) use
valid assessment tools.
Evaluate teacher competency in assessment

Develop portfolio assessment


Phase 3 (2021-2025)
4.3.5 Milestones
Curriculum
The roadmap for preschool (see Section C) presents
Review the English language content and learning standards in
expectations of what could be achieved in the form of milestones.
the revised document based on the evaluation report
These milestones are to be delivered in three phases, Phase 1
Review the schedules based on the evaluation report (2015-2016), Phase 2 (2017-2020) and Phase 3 (2021-2025). The
milestones are listed according to the phases and the three areas
Review and improve EL-rich environment initiatives
of curriculum, teaching & learning and assessment.
Review engagement programmes
a. Milestones for the end of Phase 1 (2015-2016) are as follows:

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Curriculum Exemplars of developmentally appropriate and linguistically


CEFR has been used as the reference for the development of appropriate assessment tools have been produced
the content and learning standards for English language Standardised assessment tools for listening and speaking skills
have been developed
DAP has been reinforced as the reference for including pedagogical
aspect into the content and learning standards for English language Assessment by English language optionists and/or competent
users of English has been conducted
Teachers have been provided with the NPSC in both Bahasa
Malaysia and English.
b. Milestones for the end of Phase 2 (2017-2020) are as follows:
Appropriate sample schedules focusing on instructional
language use have been developed
Curriculum
Emerging immersive EL environment
A comprehensive report has been completed evaluating
Programmes for parental and community engagement designed teachers comprehension of the English language content and
learning standards in the revised document

A comprehensive report has been completed evaluating the


Teaching & Learning
implementation of the schedules focusing on instructional
Raised awareness and understanding of DAP among preservice language use
and in-service teachers
An EL-rich environment emerging in schools
Retired local English teachers have been considered and
recruited for the post of preschool teacher Engagement programmes launched and monitoring reports
submitted

Assessment Broader opportunities to use EL in and outside school


NPAT has been revised according to CEFR-informed assessment

148
Teaching & Learning A set of improved daily schedules in the curriculum document
The Inspectorate has been trained in DAP-informed pedagogy has been developed

Implementation of appointment requirements for preschool An English-rich environment in all schools


teachers (Bachelors degree with major/minor or double major Increased time for effective engagement with English
in Early Childhood Education or Preschool Education and
English Education has been enforced
Teaching & Learning

Assessment DAP-informed pedagogy used effectively

Evaluation reports on the effective use of the CEFR-informed Preschool teachers English language quality achieved
assessment by SIQA

Professional upskilling courses for teachers have been conducted Assessment


with advisory support on (a) English language assessment, and (b)
A robust NPAT based on CEFR-informed assessment
adapting and developing standardised assessment tools by ELTC
Developmentally appropriate and linguistically appropriate
Evaluation reports on teachers efficacy in using the CEFR-
non-standardised and standardised assessment tools
informed assessment by DEO to SED, DSMD
Evaluation report on teachers efficacy in conducting CEFR-
c. Milestones for the end of Phase 3 (2021-2025) are as follows:
informed assessment by SIQA to SED, DEO.

Student portfolio assessment enforced


Curriculum
An improved curriculum document has been developed with
regard to English language content and learning standards

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4.4 Implications and Recommendations be reviewed to incorporate the feedback from teachers to optimise
instruction in English.
This section lists implications and makes recommendations
The Thematic Module integrates all the strands in NPSC. The
to ensure that the goals of preschool English education are met.
content and the learning standards of all the strands should be
Although some might involve policy recommendations, most
written in both Malay and English to help teachers use English as a
are more operational in nature, requiring consistent monitoring
medium of instruction when using the Thematic Module.
and support for the high fidelity implementation of DAP and
constructivist Teaching & Learning approaches in preschool.

4.4.2 Teaching & Learning implications and recommendations

4.4.1 Curriculum implications and recommendations To achieve quality Teaching & Learning appropriate at the
preschool level, it is recommended that preschool teachers
Reviewing the curriculum according to the CEFR and DAP
practices be monitored, evaluated and supported to ensure best
principles will ensure that pedagogical concerns are included in the
practices in English education for young learners. Both in-service
development of the content and learning standards for English,
and pre-service teachers should be trained to apply DAP and
and that prevailing international standards are met to make our
constructivist principles in the preparation and use of teaching-
students internationally competitive. Samples of daily schedules
learning materials. Learning through play, music and movement,
in the NPSC should also be based on DAP principles to facilitate
problem-based learning, drama and storytelling will be some of
classroom instruction.
the activities that mark the preschool class. It follows that the
The reviewed content and learning standards for English and Inspectorate monitoring and evaluating teachers performance
the sample daily schedules need be explained to the teachers needs to share the same principles. The Inspectorate should
before they can be used in classroom instruction. A subsequent accordingly be regularly trained in DAP and constructivist
evaluation will be necessary to check that teachers understand approaches to enable them to effectively perform their task of
the English language content and learning standards in the revised evaluating and supporting preschool teachers. A repository of
document. Finally, the standards and the daily schedules need to teaching materials and approaches should be created as teachers

150
resources. This should also include videos showcasing best teachers and learners. Data, analysis and findings from these two
practices in a variety of preschool settings. studies will provide further insights and suggestions of specific
steps for improving English education at the preschool level.
Among the key success factors are the qualifications of
preschool teachers, especially their English proficiency. The
minimum qualification for preschool English teachers should
4.4.3 Assessment implications and recommendations
therefore be a first degree including English and early education
in some appropriate combination. Possible combinations include The existing constructs in the NPAT need to be revised before
Early Childhood or Preschool Education with a minor in English the descriptors are aligned to CEFR-informed assessment. To
Education (such as TESL, TESOL, TEYL); or a Bachelors degree address the problem of teachers whose English proficiency is
in English Education with a minor in Early Childhood Education or insufficient to assess their students, only English option preschool
Preschool Education; or a double degree in these two fields. Once teachers should be assigned to (teach and) assess the English
teachers are in post, their English proficiency needs to be assessed Language component, on the grounds that they will be more
at appropriate intervals. objective and prove more reliable in their judgment of student
performance.
The third recommendation involves setting up partnerships
between home and school to enable parents to support school Graduates with a major or minor in English from local institutes
efforts to help the children learn and use English. This could involve of teacher education ought to be sufficiently equipped with the
an extension of the PTA already in place in primary schools, or a knowledge and skills in testing or indeed in integrating assessment
special taskforce made up predominantly of parents could be set into teaching, given the amount of exposure and input they have
up to encourage English-related activities beyond the school and received during their five-and-a-half years (for intakes before June
to help make homes more receptive to English. 2014) or five years (for intakes starting from June 2014) of training in
English teaching methodology, English phonology, lesson planning,
The final recommendation is to carry out research in order to
language testing and assessment apart from the three-phase, 24-
inform practice. Two studies are essential and they are (1) preschool
week teaching practicum assignments and a further topping-up of
teachers practices with the end goal of applying DAP principles in
a one-month school internship programme just before graduation.
teaching English and (2) English proficiency level of both preschool

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It is also recommended that key concepts relating to assessment This helps to ensure that teachers are clear about the levels
such as content standard, learning standard, construct, focus area etc. of complexity expected and can thus apply similar attainment
should be integrated with those used at the primary level to address indicators. A glossary of common terminology and key concepts of
the issue of inadequate constructs. This will ensure uniformity, clarity, assessment as used in the descriptors would be useful to teachers
continuity and fairness in assessment, and may also help to prepare in discerning expected student outputs. This would help the
the children to take on the challenges ahead in primary education teacher-assessors to be more accurate in their interpretation and/
assessment, giving them the confidence and the ability to respond or judgment of student performance.
appropriately and independently. At least 10% of pupils are targeted
If the existing NPAT is to be successfully aligned to CEFR-
to exit preschool education with a CEFR level A2 proficiency.
informed assessment linking student performance and learning
It is further recommended that the descriptors used to express outcomes to meaningful, reliable international criteria such as the
the mastery of a construct covering several skills be more elaborate CEFR (Keaney, 2014), then the assessment methodology should be
and specific in order to address the issue of inadequate assessment designed to measure what students can do with the language not
rubrics. If possible, tasks should encourage the development only when fulfilling tasks and through interaction with others but also
of the childs reasoning power and thinking skills, requiring with guidance provided by the teacher who continuously observes
preschoolers to think critically and creatively just as pupils in Year (Gober, 2002). In line with current trends in assessment, McMillan
One are expected to. They should start to use language, form (2014) stressed that pupils should be assessed on their application
and style for a range of purposes (KPM, 2012, p. 22) and use a and use of their combined knowledge acquired and skills learned. For
range of strategies to construct meaning (KPM, 2012, p. 19). example, the assessment of listening and speaking skills is covered
The development of the childs phonological awareness should under constructs [BI1]: listening and speaking skills responding to
be encouraged and be included in the assessment to prepare the instructions, [BI2]: listening and speaking skills simple conversation,
5+year-olds to progress to Year One. Developmentally appropriate [BI3] listening and speaking skills talking about experiences, and
and linguistically appropriate exemplars should be integrated into [BI4] speaking skills language arts. These can be replaced with the
the assessment document for standardisation purposes as over- CEFR level A1 descriptor Can make an introduction and use basic
generalised and ambiguous performance standards tend to be greeting and leave-taking expressions with specific measures added
interpreted in different ways by different assessors. to distinguish and suit the respective construct and communicative

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task to be fulfilled. This will also help teachers to report results easily in English learning at preschool level, and to suggest improvements
in terms of the level of proficiency attained by the pupil. to raise the quality to international standards. These suggestions
involved the three interrelated components of curriculum, teaching
Finally, in addressing the issue of inadequate valid assessment
& learning and assessment.
tools, it is recommended that preschool teachers need professional
upskilling and training to develop their own developmentally
appropriate assessment tools or at least to work collaboratively
Main Findings
in developing assessment tools for shared use. It is important
for teachers to be skilled in integrating assessment tasks into The need to align the National Preschool Standards-Based
their lessons and in ensuring those tasks in the assessment tools Curriculum (NPSC) to the CEFR
are closely aligned to the learning outcomes to take advantage of
tangible instructional payoffs (Popham, 2003, p. 1). The NPSC is already to some extent aligned to the CEFR
in terms of its emphasis on action-oriented, learner-centred,
Teachers also need to understand the principles behind culturally responsive and self-regulated approaches. Hence the
assessment for learning and that their assessment tools are valid in alignment that is needed is not an extensive one, merely one that
measuring the performance progress of all students including those involves the re-writing of learning and performance standards in a
who fall below or above the performance standards. In essence, manner similar to the CEFRs can do statements.
teachers should make sure that assessments benefit the children
they assess. As Popham (2003, p. vii) observes, teachers who do The need to align learning standards to international standards
not possess at least rudimentary knowledge about testing are less The contemporary skills relevant for preschool children in
likely to do a solid job of teaching. relation to the curriculum and learning standards are proficiency
in English, higher order thinking skills (HOTs) and Information and
Communications Technology (ICT) skills. The development of
4.5 Summary and Conclusion HOTs and ICT skills may not take place since the English learning
standards have no explicit mention of such skills. Teachers who
This preschool chapter has focused on the learning of English in
follow the curriculum to the letter might fail to incorporate such
Malaysian government preschools, aiming to identify major issues
skills in the teaching of English.

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The need to ease the transition from one Instructional language to given include their lack of competence and confidence stemming
another from their low English language proficiency.

An analysis of the scheduling for the use of English in both The need for suitable role models
National Preschools and National-Type Preschools sees the teacher
Shortcomings in teacher competency and proficiency lead
having to juggle between the different languages in a rather rigid
to problems in teaching and learning and also in assessment. For
and disjointed fashion. It is not only difficult for the teacher who
preschool children to achieve the learning standards and develop
is a generalist to handle two or three languages, but also confusing
appropriate attitudes to learning English, teachers need to be good
for the children who find their teacher using different languages
role models. For students from non-English speaking backgrounds,
with them in a seemingly arbitrary fashion. It would therefore be
teachers may be the only role model available. While some children
advisable to consider a more flexible system of timetabling and
might have some exposure to English on television or in the popular
even the provision of a dedicated English teacher.
media, it is the teacher who has the most impact on the childrens
The need for clear and renewed emphasis on constructivist learning, so that their level of attainment is limited by the teachers
and Developmentally Appropriate Practice (DAP) Principles in lack of proficiency.
English instruction
The need for reliable and valid assessment tools
For preschoolers to be confident in using English, learning
Teachers have not found the existing assessment instruments
activities have to match their interests and their natural ways
user-friendly. The three scales of measurement used are subjective
of learning, free of stressful experiences. These would require
and open to different interpretations of mastery by teachers who
teachers to be mindful of both constructivist and DAP principles
differ in their expectations. Abstract constructs such as those
when planning and implementing learning activities.
relating to affective outcomes are also difficult to measure. In
This would also include the use of culturally appropriate addition, some teachers have sought to assess their childrens
materials in T&L. However research and feedback from practising development using commercially produced materials.
teachers reveal that teachers are not doing as much as they would
Some of these, whether they are foreign or local, or whether they
like to in incorporating such principles in their lessons. Reasons
use printed or digital media, contain learner errors and inauthentic

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English. Teachers resort to such materials because they have to Improve descriptors in assessment rubrics by removing
provide evidence that childrens performance has been assessed. ambiguity and operationalising the assessment of abstract
constructs; and provide exemplars of standardised assessment
for National Preschools and National-Type Preschools
Recommendations
Revise constructs and descriptors for performance standards
The following recommendations are based on the gaps and including phonics (for 5+ age group) and HOTs guided by the
problems reported above. CEFR

Align the English language NPSC with the CEFR by rephrasing Train teachers in the preparation of valid and authentic
the learning standards in the form of can do statements assessment tools

Add on and make explicit learning standards that incorporate Set up groups in all preschools, spearheaded by champion
fostering of positive attitudes towards the learning of English, parents, to strengthen home-school partnerships to support
and the development of HOTs and ICT skills positive attitudes towards the learning of English

Improve the pre-service and in-service training of teachers In conclusion, there are three main aspects to consider in
in implementing learning activities that incorporate planning the way forward for preschool English language education:
developmentally appropriate practice and constructivist
1. The alignment of the NPSC to the CEFR, and this is mainly in
principles such as learning through play, music & movement,
the phrasing of content, learning and performance standards;
project-based learning, drama and storytelling. Recordings of
how such approaches are used in authentic preschool settings 2. Teacher training and improved teacher qualifications to
can be developed and disseminated to all preschools prepare teachers to implement DAP and constructivist learning
activities; and
Establish a first degree including some appropriate combination of
Early Childhood Education or Preschool Education with English 3. Collaboration between home and school to ensure continuity
proficiency equivalent to that of a TESL/TESOL/TEYL graduate and harmony between childrens school and home experiences
as the minimum qualification for preschool English teachers in fostering positive attitudes towards the learning of English.

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It is difficult not to overestimate the key role of the teacher, The reality of todays preschool is far removed from what
especially at preschool level. Whether we are concerned with the is now needed. If our young children attempt to learn English
curriculum, with T & L or with assessment, success or failure depends from teachers who themselves lack the necessary proficiency, it
on the competency and proficiency of the teacher. If we expect our is no surprise at all that many of them do not acquire even the
children to obtain a good grounding in English in preschool, then rudimentary use of the language, and perhaps acquire incorrect
preschool English has to be taught by teachers of high calibre. language forms and pronunciations that become harder to unlearn
as time goes on.
What happens in preschool has consequences for the childrens
later education. To take the analogy of learning to play the piano, we The longer term outcome of a poor start in English is that many of
expect the piano teacher herself to be a skilled player if she is to teach our graduates leave university with insufficient English proficiency
her pupils to develop the correct techniques, finger movements, and to obtain suitable employment, particularly in the private sector.
posture which the learner needs in order to play the piano properly. If we wish to tackle the problem of graduate unemployment, we
This brings together a number of skills and abilities, including listening have to trace the problem to where the problem itself starts, that
and sensory-motor skills, and general musical ability. is, to their early learning experiences.

Language learning similarly involves skills and abilities which Only teachers with the necessary English proficiency and
the teacher needs to possess in order to enable learners to get qualifications in early education should be authorised to teach English
things right at the very beginning. This includes not only the to young learners in our preschools. If we do not address the problem
generation of correct sentence patterns in communication, but at its source, then all other reforms relating to curriculum, T&L and
also the motor skills involved in correct pronunciation. assessment at educational levels beyond the preschool, no matter how
well designed they may be, will inevitably come to nothing.
The popular image of preschool is of a playschool which can be
handled by a teacher without proper qualifications. What we actually
need in the twenty first century is a system of beginning education
which is based on what is now known about how young childen learn
and how their minds develop; and in the case of English, this includes
the knowledge of how young children learn languages.

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5 Primary

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Chapter 5: Primary
T
his chapter focuses on English language education
(henceforth ELE) at primary level, the aim of which is to
provide pupils with a strong foundation in English so that
they can develop into proficient, articulate and confident users
of the language. Chapter 5 examines the current situation with
respect to the curriculum, initiatives that have been carried out,
and current learner performance.

The chapter then discusses issues and gaps that need to be


addressed and presents the way forward for primary ELE within the
broader framework of the English Language Roadmap which seeks,
among other things, to align curriculum, teaching and learning,
and assessment to the CEFR, and to align ELE at primary level to
ELE at secondary and tertiary levels. The chapter concludes with
recommendations and implications for policy.

5.1 Background

One of the aims in educating Malaysian children is to enable


them to develop into knowledgeable individuals who are able to
function with confidence in a competitive world. To achieve that
aim, they have to be equipped with the languages that they will
need to communicate in social and economic situations and other
challenging environments. Primary education is a fundamental
stage for these efforts to be galvanised.

158
An aspiration expressed in the MEB is for students to be iv. appreciate and demonstrate understanding of English literary
proficient in at least two languages, including English. The MEB or creative works for enjoyment; and
emphasises the importance of English proficiency in the competitive
v. use correct and appropriate rules of grammar in speech and
global environment even as it exhorts students to master the
writing.
national language, Bahasa Melayu. ELE in primary schools is framed
and guided by the Standards-Based Primary School Curriculum (KPM, DSK English, p. 4)

or Kurikulum Standard Sekolah Rendah (henceforth KSSR). It


The underlying principles of the KSSR English syllabus are:
is supported by a range of initiatives directly related to literacy in
English in line with the MBMMBI policy. i. It is essential to begin with basic literacy skills in order to build
language skills on strong foundations;

5.1.1 KSSR - The Current Primary School Curriculum ii. Learning should be fun, meaningful and purposeful;

The English syllabus, which forms part of the KSSR introduced iii. Teaching should be learner-centred;
in 2011 to replace the KBSR (Integrated Curriculum for Primary iv. Important new technologies should be integrated into teaching
Schools), aims to provide pupils with basic language skills to enable and learning;
them to communicate effectively in different contexts appropriate
to their level of development. The objectives of KSSR English are for v. Assessment should be integrated and contribute to learning;
pupils to be able by Year 6 to:
vi. Character-building should be included in the lessons.
i. communicate in English with peers and adults confidently and
The KSSR English content and learning standards describe
appropriately in formal and informal situations;
the knowledge, skills and understandings that pupils need to
ii. read and comprehend a range of English texts for information demonstrate as they progress through the different stages of
and enjoyment; schooling. The inclusion of a module on grammar emphasises the
importance of having pupils develop a sound grasp of the language
iii. write a range of texts using appropriate language, style and structures and the grammar of Standard English. The teaching of
form through a variety of media;

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grammar is more overt and linked directly to the relevant and


appropriate tasks and situations identified in the learning of
READING
the four language skills. The grammar module is introduced
only from Year 3 onwards. Teachers are expected to identify
relevant grammar items to teach according to the learning
situations and materials used in lessons.

The approach taken in the syllabus stresses the need


for pupils to develop all four language skills: listening and
speaking, reading, and writing. Apart from the four skills, LISTENING
KSSR
the curriculum incorporates standards for the language arts aND WRITING
CURRICULUM
sPEAKING
and grammar. Pupils are expected to learn how to interact AND
with peers, listen attentively, express themselves orally or MODULES
in writing with confidence, read with comprehension and
write with minimal grammatical errors. In the language
arts module, pupils are trained to show appreciation and
demonstrate understanding of texts, read, sing songs,
recite rhymes and poems, as well as to produce creative LANGUAGE
works for enjoyment. Pupils are also encouraged to plan, GRAMMAR
ARTS
prepare and take part in performances based on stories,
poems and novels.

The KSSR English syllabus is modular in design, and


includes four modules for Years 1 and 2, and five for other Figure 5.1
The KSSR English
years (with the addition of grammar), as shown in Figure 5.1.
Syllabus Modules

160
The grammar module is introduced only in Year 3 on the grounds 5.1.2 Current English language performance in primary schools
that pupils need good foundations in the grammar of their first language
In 2013, two years after the introduction of the KSSR, a baseline
to support learning the grammar of a second or third language. The
study on the current state of English proficiency in schools was
modular structure employed in KSSR English is to enable pupils to
commissioned by the Ministry and undertaken by Cambridge English.
focus on the development of basic language skills or sub-skills under
The study used the CEFR proficiency scale A1 to C2. Table 5.1 shows
each module by means of purposeful activities in meaningful contexts.
data obtained from the Cambridge Baseline (2013, pp. 16-18) on the
The modular arrangement is strictly one of focus and purpose percentages of Primary Year 6 students at different CEFR levels.
to guide the learning and teaching of the language. During lessons,
teachers are expected to aim to develop the skills that are at the CEFR Proficiency Level % of Year 6 pupils
focus of the module. However, other language skills are included
in the lesson to make learning more meaningful and effective. C2
This approach is intended to ensure that teachers treat the four
language skills equally without neglecting any one skill. C1

In view of the need to prepare Malaysian children for the B2 1


globalised world and to lay down strong foundations in the early
years, a more internationally oriented view of ELE needs to B1 12
be taken, even at primary level. This is reflected in the decision
taken by the Ministry of Education to adopt the CEFR as the A2 22
framework of reference for ELE (MEB, p. 4-9). The existing KSSR
A1 34
will consequently need to be reviewed and aligned to the CEFR.
It is perhaps fortunate that the KSSR is itself a standards-based
Below A1 32
curriculum which specifies the knowledge and skills that pupils
need to demonstrate as they listen, speak, read and write in English
at various stages of schooling.
TABLE 5.1
Percentages of Year 6 students
at different CEFR levels in 2013

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Only one in three of the students gets beyond A1 (Basic urban, rural and remote schools (pp. 46-54) indicates that rural
User level) by Year 6. Another one in three does not even get as children generally lag behind those in urban areas. There is thus
far as A1. Although the mean scores for Writing correspond to a need to address this divide between the high and low achievers
a low A2, the corresponding figures for Listening, Reading and through effective remedial or intervention efforts.
Speaking are in A1, making the four skills generally comparable in
One such initiative that was implemented even before the study
development (p. 18).
was conducted is the LINUS 2.0 literacy programme. LINUS 2.0 is
Despite six years of English, a large proportion of the students one of a range of initiatives carried out by the Ministry of Education,
cannot get beyond the most rudimentary command of the language. with varying degrees of success. The following section looks at some
These results for the Year 6 sample are, of course, indicative of initiatives that specifically address ELE in Primary schools.
the outcome of the previous KSBR English Language curriculum.
The current KSSR curriculum, even before its alignment with
international standards, requires its learners to be able to perform 5.1.3 Literacy and assessment initiatives in primary schools
a range of language tasks with confidence and flexibility at the end
of Year 6. Clearly, if learners are ever to achieve the objectives of The Ministry of Education has carried out a range of initiatives
the CEFR-aligned KSSR, substantially greater efforts amounting concerning English literacy, the incorporation of learning
to reform have to be made to help them move beyond basic user standards, remedial support, professional development, the
proficiency at primary level. In addition, if the learners are to reach revamping of examinations and assessments, teacher support and
a target level of B2 (Independent User) on exit from secondary strengthening of English language policy, as well as the up-skilling
education five years later, standards of English achieved by Year 6 of teachers. Although some success has been achieved through
must be raised considerably. these initiatives, not all initiatives have brought about the desired
results. This section focuses on initiatives that relate specifically to
The range in the CEFR levels for Year 6 points to another remedial literacy support and assessment in primary schools.
concern. The gap between high and low achievers signals
a variation in learning gains at the end of primary school, and
this gap is likely to widen further in secondary school (p.18). In
considering school location, a three-way distinction between

162
Year Screening 1 Screening 2

Target Achievement Target Achievement


English Year 1 (2013) Baseline 50.1% 67% 63.3%
Language
Literacy Year 2 (2014) 83% 65.5% 83% 78.3%

Year 1 (2014) Baseline 53.8% 67% 70.2%

TABLE 5.2 English literacy results for LINUS 2.0


LINUS 2.0 While these results seem to indicate a degree of success, the
findings of a 2013 report on the programme pointed out a number
LINUS 1.0 was an early remedial literacy programme introduced
of weaknesses in the modules that need to be addressed. Some of
in 2010 to help learners who were falling behind. Building on
the concerns raised are elementary. There does not appear to be
improvements in Malay literacy and numeracy achieved on the
a clear theoretical framework underlying the preparation of the
pilot run in 2012, LINUS 2.0 was introduced in 2013 to extend
materials. A phonics-based approach is employed, but its emphasis
the programme to English. Students in Years 1 to 3 are screened
on the recognition of associations between letters and sounds is
twice a year to check that they are making the expected progress
incompatible with the goal of learning to read to extract meaning
in English literacy, and those falling behind are brought together
from texts. The attempt to reconcile the two incompatible goals
for ten English classes per week and given remedial coaching until
results in inane stories and sentences. There is also a lack of clear
they are able to return to the mainstream.
alignment between the objectives of each module and those of
The ultimate goal of LINUS 2.0 for English is to achieve the LINUS programme and the national curriculum. In addition,
100% basic English literacy by the end of three years of primary the programme does not use innovative strategies and materials
schooling. Table 5.2 presents the results obtained after screenings to teach learners to apply the skills they have already developed in
conducted in 2013 and 2014. The results show that achievement is order to become independent learners of English. Finally, there is
slightly below the national target for the first cohort of pupils and no clear statement of what students are expected to be able to do
above the target for the second. on the successful completion of a module. Other problems lie in

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the content itself, ranging from erroneous use of phonetic symbols related to teachers in these five districts included the inability to
to confusing illustrations to inappropriate sequencing of learning teach phonics, inability to carry out skill-focused teaching and
material. learning activities, the assignment of non-English option teachers
to teach English, and the inability to carry out remedial teaching.
Problems were also identified in an evaluation exercise carried
out in 2014 on the implementation of the programme by the In terms of teaching and learning, teachers were unable to
Schools Division in Pahang, Kelantan, Sabah and Sarawak. A total carry out differentiated teaching to address the specific needs
of 25 districts which had the largest number of hot spot schools of individual pupils. They were also unable to organise learning
were selected for the exercise, the main aim being to ensure that activities to interest and motivate learners. This shortcoming
the officers at the District Education Office were responsible in might explain the high absenteeism rate amongst the remedial
carrying out intervention programmes in schools that did not meet learners, who lacked the motivation to attend school because
the target, and to find out whether the exercise had an impact on school was not fun for them. The findings also showed a lack of
pupils. support from parents.

Six aspects were studied: management, facilitation, teachers, If the gap in achievement between high-performing and
teaching and learning, pupils and parents. The findings showed low-performing students is to be addressed, a remedial literacy
that in terms of management, there were still some school heads programme like LINUS 2.0 is exactly the kind of initiative that is
who were not committed to running this programme in schools, needed. However, LINUS 2.0 needs to be improved and reworked
due in part to the lack of trained English teachers. Support was according to some well-defined principles, with clear and realistic
provided by FasiLINUS Bahasa Inggeris (facilitators for Literacy objectives and content.
and Numeracy Screening) coaches and mentors appointed by the
Performance and Delivery Unit (PADU) to assist teachers.
School-Based Assessment
While most of the FasiLINUS were found to have carried out
their duties well, some did not, attributing the slack to insufficient Along with the KSSR, school-based assessment (henceforth
allocations for travel and carrying out activities, and to the burden SBA) has also been implemented as the way forward for
of other extraneous duties at the district office level. Problems assessing learning. SBA enables teachers to conduct assessment

164
that contributes to learning in a formative manner, rather than or mainly those two skills. The integration of skills seems to be
merely a summative manner. In addition, the national examinations addressed in the current KSSR, which combines a skills-based
and school-based assessments have been revamped to gradually modular approach with thematic focus. The need now is to align
increase the percentage of questions that test higher-order thinking the assessment of the skills to international standards.
skills. In 2016, there will be a change in assessment for the Primary
6 (UPSR) examinations, so that school-based assessment and
centralised exam marks will be considered for grading. The change Support for teachers
will include higher-order thinking questions in the centralised
examinations making up 40% of questions for the UPSR. This A number of other initiatives have been implemented to
change in examination design means that teachers will focus less on provide professional support for EL teachers albeit with varying
teaching to the test and focus instead on teaching learners to think degrees of success.
critically and to apply their knowledge in order to solve problems. In the English Native Speaker Mentoring Programme, the
The direction that SBA is taking should also bring about a change Ministry has employed native speakers as experts or mentors
in EL assessment. Instead of focusing on providing correct answers to assist in capacity building of primary school English teachers
to examination questions, EL learners should be assessed on what and lecturers at teacher-training institutions in this country. The
they can do and achieve in English. This kind of focus calls for an programme was implemented from 2011 to 2013 and further
alignment between curriculum and assessment based on a framework extended to September 2015.
that spells out what students should be able to do in English at At present, it involves 360 mentors placed in 1800 schools
each stage of their primary education, and acts as a guideline for nationwide. The mentors have been involved in planning and
formative school-based assessment. Teachers will have to be trained carrying out professional development programmes, activities and
to understand the concept and implement relevant SBA. workshops, as well as assisting in teaching and learning. They
A change in assessment should also see a greater balance in the have 75 hours of contact time with teachers in one academic year
development and assessment of the four language skills. Hitherto, as well as during training sessions held within a cluster or inter-
Reading and Writing have received much more attention because cluster. They have also been instrumental in conducting action
of the nature of tests and examinations that typically test only research as well as co-curriculum activities within their cluster.

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In order to study the impact of the programme, teachers The results showed an increase in the proficiency levels of the
proficiency levels were assessed through observations and instruments teachers in this programme. A pertinent question here is whether
in February and October 2014. A total of 4,369 teachers were involved the current programme of deploying native speaker mentors at
in this exercise covering 1,800 schools in the programme. Six levels what must certainly be a high cost is sustainable. An urgent need
of proficiency were used expressed as CEFR can do statements, as is to phase out the use of people from abroad and instead employ
shown in Table 5.3: suitably qualified local people with the necessary skills. In addition,
positive steps need to be taken to develop future English-speaking
Malaysians who are comfortable and confident enough with the
LEVEL CAN DO STATEMENT
language to act as mentors. This effort will have to start with
young learners.
Can express herself spontaneously, very fluently and
C2
precisely
Advantage is taken of the expertise of teachers who can
Can use language flexibly and effectively for become resources for their colleagues in another initiative, namely
C1
academic and professional purposes SISC+ (School Improvement Subject Specialist Coaches) at the
Can interact with a degree of fluency and District Education Offices. The SISC+ are assigned the task of
B2 spontaneity. Can understand the main ideas of further improving the teaching and learning of English in line with
complex text
the transformation of the system as stipulated in MEB Shift Four.
Can deal with most situations likely to arise whilst Expert teachers are deployed to Bands 5, 6 and 7 schools to coach
B1
travelling
teachers and support them so that the curriculum is implemented
as intended. There are currently 800 English Language SISC+
A2 Can communicate in simple and routine tasks
coaches operating throughout the country.

A1 Can interact in a simple way The MoE has initiated a number of in-service training courses
for English Language Teachers through the Teacher Education
Division and English Language Teaching Centre (henceforth
TABLE 5.3
CEFR CAN DO STATEMENTS FOR ELTC). These courses are developed specially to improve teachers
SIX LEVELS OF PROFICIENCY proficiency and pedagogical skills. As there is a considerable number

166
Teachers need
to be given
continuous
professional
development
and training.

of non-optionists teaching English in schools, courses are formulated own professional training needs. In addition, it can also be used as
to meet their needs to help them in teaching and learning as well a guide by the Ministry when planning, designing and managing the
as to boost their confidence in using the language. ELTC has been professional development of English teachers.
instrumental in developing courses and have disseminated these
The MoE has also rolled out additional teaching resources
courses on a face-to-face basis over the years.
to help teachers to implement the KSSR more effectively in the
In 2012, all English language teachers, both in-service and pre- classroom. These include supporting materials such as video
service as well as lecturers in institutes of teacher education took the libraries of exemplary teaching. Since 10 April 2013, English
Cambridge Placement Test (CPT). The results showed that 70,000 teachers have been able to access MoEs e-Guru Portal which is
of the English Language Teachers assessed were not competent a virtual library of classroom practices 1. Infrastructural and ICT
users of English. The ELTC was given the task of upskilling these support, however, has not always been of the necessary standard.
teachers and has worked with the British Council to conduct Teacher For example, the Auditor Generals Report for 2013 drew
Proficiency Up-skilling courses (Pro-ELT) throughout the country. attention to the ineffectiveness of the 1BestariNet project which
The Pedagogy Standards for English Language Teaching (PSELT) was responsible for providing high-speed 4G broadband and a
developed by the ELTC was an initiative to help English teachers virtual learning environment (VLE) to 10,000 schools throughout
to monitor their own professional development and identify their the country from December 2011. 89% of the schools surveyed

1
Available on line at pnp.moe.gov.my/eguru.

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Curriculum KBSR KSSR

Sekolah Jenis Sekolah Jenis


Schools Sekolah Kebangsaan Sekolah Kebangsaan
Kebangsaan Kebangsaan

Level 1 (Years 1 - 3) 240 mins 60 mins 300 mins 150 mins

Level 2 (Years 4 - 6) 210 mins 90 mins 300 mins 180 mins

TABLE 5.4 A comparison of time allocated for English in the KBSR and KSSR
reported limited access even within the school compound. Much English teachers are thus the most important, and sometimes
improvement needs to be made to ensure a smooth and effective the only models for these students, and classroom activities provide
support system. the only opportunities to use the language for a purpose. The
challenge is to provide enough engagement time with English for
While the efforts made through the initiatives are commendable,
the students to develop familiarity with and fluency in the language.
the Ministry needs to make a serious evaluation of the impact of its
EL initiatives. A single entity should be tasked with coordinating More time for English was allocated in the KSSR than in the
and overseeing the implementation of the initiatives and assessing former KBSR, as shown in Table 5.4. The time currently available
their outcomes so that resources and labour are appropriately for English constitutes 21.7% of total class time for Years 1 to 3,
targeted, distributed and monitored. and 23% for Years 4 to 6. However, the 2013 Cambridge Baseline
study reports that too much instruction in the classroom may
be taking place in the learners first language (p. 22). According
5.1.4 Teachers and Learners Engagement with English
to Cambridge English (p. 23), the limited use of English in the
In order to develop a good command of English, learners need classroom is due to several factors:
sufficient engagement with it. At primary level, especially in rural
teachers lack of proficiency and confidence
areas, very few learners if any are exposed to the language outside
school. Learners are in practice exposed to English mainly through teachers perception that learners cannot understand lessons
structured instruction in the classroom. conducted fully in English

168
the nature of activities such as drilling and reading aloud, are meaningful for them.
which do not give learners opportunities to use English
In addition to the lack of a rich English language environment
communicatively.
within the classroom, the report also noted the lack of a supportive
Teacher proficiency, or lack of it, is a real concern. In order for English environment outside the classroom. Serious efforts need
English teachers to be appropriate models and a language source for to be made to gain support from parents and the community so
learners, they should in principle be proficient users themselves to that they work hand in hand with school authorities in developing
begin with, and following the usual rule of thumb, they need to be programmes and activities that increase childrens engagement
at least one level ahead of their students. The Results Report shows with English. The possibility of obtaining assistance from retired
that 29% of primary teachers fall below CEFR B2, which is the level EL teachers and lecturers, English-speaking professionals and
of an Independent user. If the proficiency level of Primary students is volunteers has largely been unexplored and unexploited.
to be raised, so must that of teachers. The teachers who presented
There is already in existence a small number of schools such as
themselves for the baseline study assessment do not appear to
SK Taman Megah in Kuala Lumpur, SJK(T) Durian Tunggal in Melaka
constitute a representative sample of the whole population of
and SK Tan Sri Ghazali Jawi in Grik that have been successfully
teachers, and the results are likely to present a somewhat optimistic
implementing programmes with the active involvement of parents
impression of the overall situation, which makes the actual situation
and members of the community. A concerted effort could be made
even more difficult. For example, about 31.7% of teachers currently
to study the strategies they employ as a guide to other schools.
teaching English in schools are not English optionists.
In spite of the KSSR curriculum, which is an improvement over
The report also noted a tendency for lessons to be teacher-
the KBSR, and the various initiatives carried out, ELE in Primary
dominated, resulting in the reduction of time for learners to
schools is beset with issues relating to curriculum, teaching and
produce the language. Teacher-dominated classes are not a new
learning, and assessment, as discussed in the following section.
phenomenon and are inconsistent with the principle of learner-
centredness expounded in the KSSR. If ELE is to be effective,
teachers need to be better trained to (a) make teaching learner-
centred and (b) use differentiated instruction in the classroom for
learners at different levels of proficiency so that learning activities

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English Language Education Reform in Malaysia
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5.2 Issues and Gaps


CURRICULUM TEACHING & LEARNING ASSESSMENT

This section looks at current


Current curriculum Low teacher Lack of knowledge issues and gaps (Figure 5.2) in
and learning standards proficiency levels regarding assessment
primary English language education
not aligned with principles and methods
international standards Lack of clarity on which need to be addressed.
teacher competencies Lack of balanced and
Teachers not required for various discrete testing of all
sufficiently equipped stages and levels four language skills
5.2.1 CURRICULUM
to interpret and deliver of learning
curriculum document Limited ability in using
Lack of skills in formative assessment
Need for effective conducting effective to support learning The need to align the current
remedial programmes remediation for curriculum and learning to
learning difficulties Need for alignment to international standards
Insufficient English and disabilities international standards
engagement time In view of the need to prepare
Under-developed Malaysian children for the
Lack of English- aesthetic/creative competitive global environment,
rich environment language use
with opportunities the existing KSSR needs to
for purposeful and be reviewed and aligned to an
contextualised internationally recognised set
use of English
of standards for EL learners. A
Need for parental and curriculum based on international
community involvement standards, with the support of
a quality delivery teaching and
learning system, will give learners
FIGURE 5.2 Issues in Primary English Language Education a stronger foundation in English in
the primary years.

170
The need for improvement in the interpretation and delivery of the The need for effective remedial programmes
curriculum
In 2014, the LINUS programme was expanded to include the
The quality of classroom instruction is contingent upon the development of basic literacy and numeracy in English (referred
skills and subject matter knowledge of the teachers entrusted to as LINUS 2.0). While this noteworthy and timely programme
with the delivery of the curriculum. To optimise the impact of a provides support to all pupils in the mainstream, it has shortcomings.
language curriculum, teachers need to be not only model users of It lacks a strong theoretical foundation and clear objectives, and
the target language themselves but also familiar with the underlying its content needs to be closely re-examined. In addition, it does
principles and approaches advocated by the curriculum. They have not have specific components for helping pupils with learning
to be confident, competent and creative in their interpretation of difficulties such as dyslexia and attention-deficit hyperactivity
the curriculum to develop suitable, well-planned and engaging disorder (ADHD). With the implementation of ELE reform and
classroom activities to optimise their pupils learning of the the setting of CEFR targets for Primary schools, there will also be
language. a need to develop other remedial programmes for students who
are not yet able to achieve the targets for Years 4-6.
The preferred method of dissemination of a centrally
developed curriculum is by cascading it down the different
levels of the Ministry, from the Federal agency responsible for
Insufficient English Language engagement time
curriculum development down to the schools via the state and
district education offices. However, the cascade method of Learners currently do not have sufficient engagement time
curriculum dissemination and induction is beset with challenges with English in order to gain familiarity with the language and
such as dilution, misrepresentation and misinterpretation as the confidence in using it. Engagement time needs to be increased,
training unfolds down the different levels of the system before it particularly for students in national-type schools (SRJK), where
reaches the teachers. Sometimes the essence and aspirations of the medium of instruction is Mandarin or Tamil, for whom English
the curriculum are lost in the transmission to the classroom. class time is less than that in national schools (SK).

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Opportunities for
active language
engagement have
to be created for
young learners.
The lack of an English-rich environment providing purposeful engagement with English is needed in both formal, structured
and contextualised use of English contexts and informal, less structured contexts.
Related to the issue of insufficient engagement with English
is the need for more purposeful and contextualised use of the
language. At present, Malaysian students study English only as an Parental and Community Engagement
academic subject in the EL classroom. According to the literature
All over the world, it has been seen that school programmes
on second language learning, however, effective and enhanced
are most successful when parents and the community support and
learning takes place best in immersion situations (Lightbown
engage in school activities and events. This is a resource which
& Spada, 2013) where the second language is also used for
is currently insufficiently exploited by Malaysian schools, partly
communicative purposes outside the academic setting. Since an
because most schools do not have well-planned programmes and
immersion programme is not possible in the current social and
partly because parents and community members themselves are
education situation in Malaysia, we need to create opportunities
not fully cognizant of the impact their involvement can make.
for learners to use the language for communicative purposes
There is thus a need to design programmes, such as teacher-aide
beyond the EL classroom. For optimal and sustained learning,
programmes, EL immersion camps and EL club activities, which

172
clearly define and explain the roles that parents and members of the The lack of clarity on teacher competencies required for the
community can play in supporting EL learning in primary school. primary EL programme
The involvement of parents and communities will in this way assist
in the creation and sustainment of English-rich environments. The current KSSR makes specific demands of teachers. For
instance, in Stage 1 (i.e. Years 1-3), phonics is included as a focus
area under reading. Teachers handling this early but crucial stage
of learning need to have a grounding in phonics so that their pupils
5.2.2 Teaching and Learning
will benefit optimally from phonemic awareness development as
Low teacher proficiency levels a first step towards independent reading. A critical question to
The translation of the English language curriculum into ask to ensure curricular fidelity among teachers is whether English
suitable, meaningful and purposeful classroom learning activities teachers are sufficiently acquainted with phonics and thus able to
requires teachers to be acquainted with effective pedagogies as independently develop phonics support for their students.
well as to have a sound command of the target language. Unless The Ministry needs to identify the critical teacher competencies
both of these aspects are addressed in the EL teachers initial that are required for the effective delivery of the English curriculum
training and continuous professional development, the quality of in primary and secondary schools. This important step in
the delivery of the English curriculum in schools will most likely enhancing curriculum compliance requires collaboration between
be compromised. Statistics published by the Ministry indicate teacher education, curriculum development and other related
that in 2012 according to the Cambridge Placement Test, 70,000 agencies in the Ministry. In recent years, the Ministry has rolled
teachers required further support in the target language. A total of out initiatives to address teacher competencies such as the Native
15,012 (Cohort 2012-2015) of these teachers have since taken the Speaker Programme (from 2011-2015), the Pro-ELT programme
EL Teachers Proficiency Up-skilling course (PRO-ELT) run by the (2012 onwards), and the introduction of English language School
English Language Training Centre, which focuses specifically on Improvement Specialist Coaches (SISC+), which was piloted and
teachers English proficiency. These efforts need to be continued. implemented in 2013-2014.

These initiatives attempted to focus on improving teachers


English proficiency and pedagogical skill sets. However, there is

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a notable lack in teachers classroom practice with regard to the 5.2.3 Assessment
handling of mixed-ability classrooms. Differentiated instruction
The lack of knowledge regarding assessment principles and
to cater to specific individual needs is an area of professional methods
development that the Ministry must address in the pre-service and
Assessment in KSSR emphasises the holistic achievement
in-service development of English language teachers.
of an individual in the learning process. The KSSR emphasises
continuous formative assessment as an integral part of learning
which enables teachers to assess the extent to which pupils have
The lack of skills in implementing effective remedial intervention
fulfilled the learning standards targeted. However, teachers still
Related to the lack of effective remedial programmes is the lack need to be given adequate training in assessment principles,
of requisite skills among English teachers to identify, manage and methods and techniques to enable them to carry out the relevant
support children with learning difficulties. Many of these learning assessment as well as in the analysis, interpretation and use of the
difficulties need to be addressed early in a childs development and assessment data to plan remediation and follow-up activities that
it is imperative that our primary teachers have the necessary skills contribute to the holistic development of the learner.
to provide the support these children need.

The lack of balanced and discrete testing of all four language skills
Under-development of creative language use
In language teaching and learning, the need to undertake a
As one of the five language learning modules in the KSSR, balanced and discrete testing of all four language skills cannot be
the Language Arts component provides a means for teachers to overemphasised. It is often observed that teachers do not place as
introduce fun learning and expose children to creative language much importance on assessing listening and speaking skills in our
use in the classroom. Unfortunately, teachers are not always primary schools.
adequately trained to exploit the opportunity effectively. Teachers
need to be equipped with skills to help learners appreciate quality
language models found in childrens literature as well as to develop
creative language use in a variety of contexts and modes.

174
Limited ability in using formative assessment to support learning 5.3 THE WAY FORWARD
Current trends in assessment stress the value of assessment for
5.3.1 The English Language Education Roadmap: Structure
formative learning in the classroom. While this does not suggest that
and Components
the assessment of summative learning has no relevance, it implies
the need for teachers to possess the required skill sets to carry out The issues and gaps in the three key areas that have been
accurate and valid school-based assessment (SBA) to support their identified point to the need for reform in English language
pupils learning. To this end, English teachers language proficiency education at primary level. For the reform to be effective, certain
needs to be sufficiently sound to carry out the tests and use the conditions must be in place, and corresponding action plans must
test data to inform their teaching in the classroom. be implemented to achieve the intended outcomes. The direction
of reform and the implementation plan proposed for ELE in primary
schools is laid out in an English Language Roadmap for English
The need for alignment to international standards language learning at different education levels.
To obtain a picture of student performance that has more The English Language Roadmap specifies the actions to be
validity beyond the school, end-of-year and exit assessments taken in three key areas: curriculum, teaching and learning, and
need to be aligned to international standards. The adoption assessment. Each area addresses a set of concerns, as follows:
of the CEFR in the development of the English curriculum and
assessment standards is an important next step in aligning our Action plans for the curriculum address issues relating to the
English curriculum to international standards. primary English syllabus as the central curriculum document
that frames the structure and texture of the delivery of English
language education in our schools. The curriculum document
has to meet not only the needs of English learners in primary
schools, but the standards that it sets should also match
internationally accepted language education standards. The
proposals offered in connection with the curriculum will also
consider how greater engagement with English can be made

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possible in primary schools. The CEFR is used to align the in response to the conditions and the foundation laid for the
existing curriculum to international standards. implementation of those plans. In view of the fact that the end of
Phase 1 is not too distant, the outcomes proposed for this phase
Action plans for Teaching and Learning consider changes to
take into account what is logistically and practically achievable.
improve the efficacy of EL teachers, teaching, and related
resources, including what is needed to implement CEFR- Phase 2: (2017 2020)
oriented pedagogy. Phase 2 focuses on the implementation of the plans initiated
Assessment strategies focus on actions needed to improve in Phase 1. The actions to be taken in the second phase follow
assessment in general, and to reform assessment so that it is and leverage on the outcomes of developments in Phase 1. In this
aligned to CEFR-based assessment in particular. phase, there will be an emphasis on monitoring and making in-
progress improvements where necessary.
It is imperative, however, that elements in the Roadmap are
viewed as components of an integrated whole. An action or Phase 3: (2021 2025)
initiative suggested in each key area may be interconnected with The final phase of the Roadmap will focus on reviewing the
others within the same area or in a different areas. The success implementation and outcomes of the action plans from preceding
of actions taken in one area is dependent on the successful waves, and making appropriate improvements with a view to
implementation of those in other areas. The up-skilling of teachers, consolidating those plans. An impact study on the reformed system
for example, must be accompanied by the availability of quality will also be carried out at this stage.
teaching-learning resources and the presence of a set of consistent,
The hope is for all primary students to achieve CEFR A1
coherent and effective assessment tools.
by Year 3, and leave primary school at the end of Year 6 with at
The Roadmap is to be implemented as follows over three least A2, the higher end of Basic User proficiency. This target, if
phases corresponding to the three MEB waves: reached, will prepare primary school leavers more effectively for
education or communication in English in secondary school.
Phase 1 (2015 2016)
The first phase of the Roadmap is the time for the conditions The following sections explain the conditions for reform, actions
necessary for reform to be identified. Action plans are initiated relating to Curriculum, Teaching and Learning, and Assessment

176
that need to be undertaken in each phase of the Roadmap, and the For this purpose it is proposed that the MoE engage experts on
outcomes which can be expected to have been achieved by the end the CEFR to work with the Curriculum Development Division
of each phase. The lead agency or agencies responsible for each set (henceforth BPK) to align the KSSR with the CEFR, including
of action plans is also identified. A comprehensive summary of these the development of can do statements as learning targets
plans and expected outcomes is laid out in Section C of this document. appropriate for Malaysian learners. The review and alignment
exercise should be completed by the end of Phase 1.

Concurrently in Phase 1, a familiarisation programme needs


5.3.2 Curriculum
to be initiated for relevant stakeholders. The MoE and Institut
Developing and delivering internationally aligned curriculum and Aminuddin Baki (IAB) will play a major role in promoting the
learning standards understanding of the CEFR-aligned EL curriculum among teachers,
In Phase 1 of the Roadmap, the primary English education learners, school leaders and parents, so that they appreciate the
curriculum, KSSR, should be reviewed and aligned to international significance of the reform and its importance in preparing learners
standards to produce pupils with the skills required to compete for the global arena. This appreciation is a necessary precursor to
at an international level. The alignment cannot be just a matter their support for the implementation of the curriculum. In this first
of matching learning standards in the national curriculum with phase, Master Trainers must be identified to act as key deliverers
those in the CEFR. In the first place, the CEFR serves only as a of the curriculum. Training and capacity building for these Master
framework of reference that does not claim to offer ready-made Trainers will need to be carried out by the Institutes of Teacher
solutions but must always be adapted to the requirements of Education, Malaysia (henceforth IPGM) and Teacher Training
particular contexts (www.coe.int/lang-CEFR). It is a framework Division (henceforth BPG) of the Ministry in collaboration
that has to be adapted to meet the specific needs of learners of with BPK. It will be imperative for the trainers to fully grasp the
English in Malaysian primary schools. philosophy behind the CEFR principles and approach.

In the review exercise, it is also important to ensure that the The CEFR-aligned curriculum will be rolled out in Phase 2 of
exit targets at the end of the 6-year primary English programme the Roadmap. The BPK will need to carefully put in place a plan
match international standards appropriate for Malaysian learners. for the gradual implementation of the curriculum at all stages of

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English Language Education Reform in Malaysia
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learning. During the roll-out, the MoE will need to ensure that all continuing to support the implementation of the internationally
English teachers are adequately inducted into the CEFR-oriented aligned curriculum.
approach, methods and techniques. We need to ensure that the
It is proposed that the ELTC play a key role in the overseeing
teachers are competent and confident in interpreting and translating
and monitoring of developments under this initiative. As the
the curriculum contents into meaningful and effective classroom
agency tasked with enhancing the quality of ELE, the ELTC is best
learning activities. The curriculum should be accompanied by a
placed to coordinate, supervise and monitor the implementation of
supporting tool-kit containing exemplars of lessons, work sheets,
the various initiatives including the exercise to align the English
teaching-learning aids and assessment tools. The implementation
curriculum to the CEFR.
of the curriculum as well as the training of teachers will need to be
monitored and evaluated so that improvements can be made. In the review of the curriculum for primary English, it is imperative
for the reviewers to examine the coherence and cohesiveness
In Phase 2, the first cohort of Year 3 learners who will have
between primary and secondary English curricula. The two curricula
gone through three years of CEFR-aligned ELE should undergo
need to dovetail so that as pupils enter secondary school, they are
school-based assessment to ascertain whether they have achieved
provided with appropriate and continuous support building on what
a proficiency level of A1, as planned.
they have learnt in primary school. This approach will give learners
In Phase 3, this cohort of pupils will have completed the first more confidence in learning new things at a higher level.
full 6-year cycle of the CEFR-aligned curriculum. Assessment at
the end of Year 6, whether it is national-level or school-based, will
Developing effective remedial programmes
indicate the extent to which the learners have successfully achieved
the CEFR A2 target. The reformed curriculum should at this To narrow or close the wide achievement gaps between high
stage undergo review and revision with the aim of strengthening and low proficiency learners, it is necessary to develop and run effective
it for future cohorts of learners. For the sustainability of the remedial programmes. In Phase 1, remedial programmes for students
reform, lead agencies and schools must continue capacity building yet to achieve the targets set for years 4 to 6 should be developed for
among teachers and also reinforce partnerships among relevant use in Phase 2. These initiatives should be rolled out in Phase 2 and
stakeholders so that there is a strong network of stakeholders their implementation monitored. In Phase 3, these programmes will
need to be reviewed and improved on for future use.

178
In addition to new initiatives, the existing LINUS 2.0 intended What changes need to be made in the literacy programme or
for Year 1 to 3 students needs to be reviewed and revised in Phase the mainstream English curriculum to ensure they complement
1, based on a careful reading of the critique submitted in 2013. each other?
Among the improvements that need to be made are the inclusion
of a stronger theoretical framework in its design, a review of its The findings of the impact study will contribute to further
overall objectives, and a revision of its content. In addition, the refinement of the programme by Phase 3.
teachers managing the programme will need to be given a sound
knowledge of letter-sound relationships in English and how these
letters and sounds merge to form meaningful words. Increasing English engagement time in the classroom
The aims and aspirations of the English Language Roadmap
The role played by the FasiLINUS should be reviewed with the
cannot be achieved solely through reform in the curriculum. In
aim of giving them a more leading role in designing, implementing
addition to changes in learning content and standards, students
and managing remedial programmes in schools. These FasiLINUS,
also need increased engagement with the language, that is, they
who are based in PPD, can help to revise the existing LINUS
need more time and more opportunities to use the language. The
2.0 modules based on their experience in helping teachers in the
Roadmap proposes two strategies for bringing about this increase
literacy programme.
in engagement within the classroom: (a) increasing the number of
The revised version should be used in Phase 2 and an impact hours for English in national-type schools, and (b) teaching other
study conducted before the end of the second phase. The impact school subjects in English.
study should be able to provide answers to the following questions:
Class time for English in national-type Tamil and Chinese
Do the skills acquired in the literacy programme support the schools is currently less than in national schools. This difference
learning of skills identified in the Primary English curriculum? should be addressed so that EL learning time is similar in all
primary schools. In Phase 1, BPK and the schools involved have
How can English teachers build on the basic skills that learners to determine the adjustments that need to be made for Malay and
have acquired in their English lessons? Mandarin/Tamil language classes, or other subjects, if a change is
brought into effect. The increase in EL learning time should be

179
English Language Education Reform in Malaysia
The Roadmap 2015-2025

implemented in Phase 2, and the implementation monitored. The The selection of appropriate subjects, as well as the percentage
effectiveness of the strategy should then be reviewed in Phase 3. of total learning time involved, needs to be carefully considered in
The increase in EL learning time can be expected to bring benefits Phase 1, taking into account school and teacher readiness as well
to SRJK students by then, and so justify the increased time as the capacity of IPGM and BPG to train the subject teachers
allocation. involved, so that they can deliver content and guide learners in
English. It must be remembered that the aim of this plan is not for
In view of the current worrying proficiency levels, radical but
these teachers to teach students English grammar or language skills,
necessary action needs to be taken to give learners a purpose and
but to develop learners knowledge of particular subjects while
context for using English other than in the EL classroom. The
providing a purpose and context for learners to communicate ideas
Roadmap therefore includes a proposal for the teaching of other
and interact in English. In-service training will need to be provided
subjects in English. If students are taught content subjects in
for teachers currently teaching the subjects involved, while pre-
English, they employ the language to gain knowledge and express
service training will need to be planned for future teachers.
ideas; in other words, they are given an authentic communicative
purpose for using English. In phase 2, the focus of the plan will be on implementing
the teaching of subjects in English. This initiative will also have
This contextualised use of the language in activities outside
to be monitored closely to identify areas of need and to provide
the EL classroom can result in incidental learning, where in
assistance. The training of teachers will continue to be carried
an unintentional and unplanned way, students acquire English
out in this second phase. The effectiveness of this strategy
vocabulary and grammar (Marsick, Watkins, Callahan & Volpe,
and the training programmes will be evaluated in Phase 3 and
2006; Ortega, 2009). The learning of other subjects in English will
recommendations made for improvement.
allow students to interact with samples of the target L2 which
exemplify a wide range of structures (Hawkins, 2005, p. 17) and
to practise the language with the aim of achieving fluency rather
Increasing engagement with English outside the classroom
than accuracy in the L2, thus complementing the formal learning
of grammatical forms and structures in the EL classroom. In Phase 1 of the Roadmap, the ELTC and the BKK need to
encourage schools to create English-rich environments, so that
students are immersed in English language activities as much as

180
Members of the
community can
help by conducting
interactive
beyond-classroom
activities in
English.

possible. Possible strategies include using English in making and Taking lessons from language programmes in other countries
displaying announcements, and conducting school assemblies and such as the United Kingdom, Australia and New Zealand, parents
co-curricular activities. The emergence of such environments in can be trained to support their children in the early stages of learning
some schools should be seen towards the end of Phase 1, with English. In England, parents are encouraged to help their children
more emerging and developing in Phase 2. By Phase 3, the ELTC master phonics, and similar programmes can be implemented in our
should monitor and review these school-based initiatives, and primary schools so that Year One pupils can be given more support
assist every school to set up similar environments. and exposure to English at home. Phase 2 should see the launch of
programmes managed or assisted by parents and members of the
Engagement with English can also be increased by involving
community. These programmes should be monitored in Phase 2,
an under-utilised pool of resources, namely, parents and the
and their effectiveness reviewed in Phase 3, so that improvements
community, in developing English programmes. Best practices
can be made.
from schools that have implemented successful programmes with
the help of their PIBG should be studied, compiled and used as
models or guidelines for other schools.

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It must be noted that there may not be a clear distinction Implementing CEFR-informed pedagogy
between the different initiatives to increase EL engagement. With In Phase 1 of the Roadmap, the Master Trainers or SISC+
astute planning and management, and collaboration between identified as key deliverers of the curriculum need to be trained
school leaders, teachers, parents and the community, it is possible to in CEFR-compatible learning and teaching principles so that they
create immersion-style EL-rich environments involving a coherent
become key personnel and reference points in CEFR-informed
and cohesive integration of related programmes or activities within
pedagogy for primary school teachers. The training and capacity
and outside the classroom. Again, successful programmes already
building of Master Trainers, which will fall under the purview
in existence could be a reference point. For instance, the approach
of BPK and which will utilise the CEFR expertise employed in
adopted by SK Ulu Lubai, Sarawak, could provide valuable lessons
aligning the curriculum, should be completed by the end of Phase 1.
on how to optimise the support of the community for ELE in and
In Phase 2, these Master Trainers will be responsible for training
out of school.
teachers in all schools to become capable and confident users of
CEFR-oriented pedagogy.
5.3.3 Teaching and Learning
Teachers will need to move away from teaching to the test
The CEFR is not merely a set of standards and can do
and helping students to provide correct answers to exam questions,
statements, for its adoption also represents, among other things,
to an emphasis on helping learners to do things with English. The
a commitment to developing learners into self-directed language
Master trainers will need to monitor the implementation of the
users capable of demonstrating those performance standards.
pedagogy, with the BPK, BPG and IPGM overseeing the training
The alignment of the KSSR with the CEFR is thus not limited
and monitoring exercise. Capacity building of teachers should
to establishing new learning standards, and it calls for attendant
continue and expand in Phase 3, the outcome of which should be
changes in teaching and learning that are integral to the successful
improvements in the delivery of the CEFR-aligned curriculum.
implementation of the reformed curriculum. It is envisaged that with
the revised English curriculum, learners will be more motivated and
better supported in the classroom by teachers who have clearer
targets to meet in a more cohesive and coherent curriculum.

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Using internationally aligned teaching and learning materials the aim of procuring even better learning and teaching materials
The reform in curriculum and pedagogy has to be supported by for future cohorts of learners. It is also hoped that by that time,
the use of internationally aligned and CEFR-compatible teaching Malaysian EL educators will have gained enough experience to
and learning materials. The selection of materials is therefore of the write locally developed materials for use with the curriculum.
utmost importance. Phase 1 of the Roadmap should see the selection
of CEFR-aligned textbooks and support materials for Years 1 to 6
Coordinating and consolidating teaching and learning resources
using selection criteria determined with the help and advice of the
CEFR experts employed in the development of the curriculum. This A number of teaching and learning resources, both in print and
task will be undertaken by the Textbook Division (BBT) and BPK. on line, have been developed over the years by divisions of the
Ministry to support the implementation of the English curriculum.
The books and materials selected should be procured in Phase 2. In addition, there will be new resources procured to support the
In view of the lack of experience of working with the CEFR on the implementation of the reformed curriculum. It is essential for
part of Malaysian materials developers, it would be most prudent these resources to be consolidated and coordinated to ensure their
for the Ministry of Education to purchase books and materials optimal use among English teachers for the maximum benefit of
which have either already been produced for use with a CEFR the learners.
curriculum, or which can be written specifically for the Malaysian
CEFR-aligned curriculum. This option gives the MoE the best A repository of all English-related teaching and learning
chance of ensuring that the learning and teaching materials are in resources procured or developed to support the English curriculum
line with the aims of the curriculum. needs to be set up in Phase 1 of the Roadmap, and a directory
drawn up. The resources can consist of new and existing materials.
The selection of materials needs to be reviewed in Phase 3 However, the existing resources need to be assessed in terms of
when at least one cohort of pupils has completed 6 years of CEFR- their alignment with the CEFR and their potential role in CEFR-
aligned EL learning. aligned teaching and learning. This initiative can be undertaken
According to the outcome of the evaluation, revisions can be by the BBT, BPK and Educational Technology Division (BTP),
made to the list of materials as well as the selection criteria with with one agency identified as the clearing house in charge of
coordinating the distribution of these resources.

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Since all too often, a repository of resources remains under- resources so that they can effectively, purposefully and seamlessly
utilised, Phase 2 of this action plan should focus on addressing integrate them into teaching and learning activities. For that
the problem of utilisation. First, teachers should be encouraged purpose, a Web portal or a user-friendly Learning Management
to use the resources for the purpose of improving the delivery System (henceforth LMS) should be set up to serve as a
of the CEFR-aligned English curriculum. However, teachers do gateway for teachers with language needs, and provide them with
not always know how best to use such materials, and so suitable assistance from the database.
training will have to be provided. The utilisation of resources needs
Since an LMS is as good as its content, it needs to be populated
to be monitored in the second phase, perhaps by the ELTC, and
with attractive and exciting resources, and provide tools to help
then evaluated in Phase 3. The outcome of the evaluation should
teachers and pupils share resources and communicate with each
lead to recommendations for improving the use of resources and
other. Teachers are currently offered the use of the Frog VLE
the repository.
(Virtual Learning Environment) under the 1Bestari project. It is
At the present time, the search for information or ideas imperative for the Ministry to assess the impact of the project
frequently takes users to the Internet or to an online database. and take away lessons from its implementation to further improve
Benefits from the use of ICT in supporting teaching and learning on it or develop new platforms, and optimise its use in enhancing
in the classroom need to be further exploited if our aspiration is learning, including the learning of English. At the same time,
for the integration of technology in teachers pedagogy. In Phase 2 infrastructural support will have to be upgraded to provide stable
of the Roadmap, the BTP should look into adopting or developing and speedy online access. In this way, there will be a greater chance
online resources that can be made accessible to teachers in various for online resources to be integrated regularly into EL lessons.
geographical locations. The resources should cover all language
skills and themes to ensure a more balanced learning of the target
language. These resources should be made available to teachers in Enabling teachers to work with learners with differing levels of
an online database in Phase 3. ability
One of the most important aspirations of the MEB is to provide
When resources are put online, the Ministry needs to plan
Malaysian children with an equitable education system. In order to
a comprehensive programme to familiarise teachers with these

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make this possible, primary English teachers have to be trained to Integration of ongoing and meaningful assessments with
work with learners with differing levels of ability. instruction

First, teachers need training in remedial instruction for learners Continual assessment, reflection, and adjustment of content,
with learning difficulties and disabilities. A greater command of process, and product to meet student needs
theoretical and practical knowledge in this area would enable
Finally, teachers must be trained to develop the aesthetic and
teachers to implement remedial programmes such as LINUS more
creative use of English among learners as an enjoyable enrichment
effectively and help close the achievement gap between better-
activity for learners from all ability levels. Creativity in the use
and poorer-performing students.
of language is aligned with the Ministrys emphasis on developing
Secondly, teachers have to be competent in the use of pupils higher order thinking skills. It is important that in the pursuit
differentiated learning techniques for the range of English of excellent academic outcomes, pupils are given opportunities
proficiency levels in their classes. Differentiated learning is a to develop laterally and creatively as part of a more holistic
framework or philosophy for effective teaching that involves development process. Doing this in the English lesson, just as in
providing learners of different ability levels different avenues to the other lessons, is neither misplaced nor wasteful.
learning, often in the same classroom.
Training in remedial instruction, differentiated learning and
Some guiding principles suggested to support differentiated creative language use must be put in place without delay in Phase 1 of
learning (Huebner, 2010) are: the Roadmap through in-service sessions by ELTC and BPK, with as
many teachers as possible trained by the end of Phase 1. These kinds of
A focus on essential ideas and skills, eliminating ancillary tasks
instruction should be implemented in Phase 2 and their implementation
and activities
closely monitored and evaluated by the agencies involved. Based on
Responses that accommodate individual student differences the evaluation, recommendations can be made for improvements in
(such as learning style, prior knowledge, interests, and level of teachers use of the approaches. In Phase 3, these training programmes
engagement). will be reviewed and improved on so that eventually, every teacher
should be sufficiently competent to manage teaching and learning for
Flexible grouping of students by shared interest, topic, or ability
learners with different levels of proficiency.

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5.3.4 Assessment Also in Phase 1 of the Roadmap, plans need to be initiated for
developing a new CEFR-aligned national EL examination for Year 6.
Aligning curriculum and pedagogy to the CEFR means that
The draft of this new exam should be ready by the end of Phase 1
assessment must be similarly aligned and teachers properly trained
and piloted early in Phase 2. Based on the response to the pilot,
to implement it.
improvements will need to be made so that a valid and reliable
CEFR-aligned Year 6 national exam can be implemented. In Phase 3,
it will be timely to review this first version of the national exam
Developing CEFR-aligned EL assessment and re-calibrate it against international standards so that the LPM
can be further assured of an internationally aligned national exam
In Phase 1 of the Roadmap, school-based assessment (SBA)
for primary school.
of EL learning and SBA tools used for Years 1 to 6 need to be
reviewed and brought into alignment with the learning standards
outlined in the new curriculum aligned to the CEFR. The nature of Upskilling EL teachers in the administration of school-based
the assessment, such as its content, the form it takes and whether assessment
it is formative or summative, must also be looked into to ensure The outcome of the exercise to align SBA to the CEFR has
that the assessment is consistent with the underlying philosophy to be shared with teachers through well-planned comprehensive
of the CEFR. The alignment exercise has to be led and facilitated dissemination or induction programmes. Teachers need to be
by the Examination Syndicate (LP). However, it would be crucial informed early about changes to the content, form and frequency of
for that agency to obtain advice and input from the CEFR experts assessment. It will also require teachers to have a sound command
employed for the alignment of curriculum standards. CEFR- of English as well as commensurate competency to appreciate
aligned SBA will be implemented in Phase 2 and closely monitored these re-aligned SBA assessments. It is therefore strongly proposed
to ensure that it is done effectively. This SBA will be reviewed in that all English teachers be upskilled in the development, use and
Phase 3 and necessary revisions made. It is hoped that nine years management of these assessments, with BPG, IPGM and ELTC as
of CEFR-informed EL learning and assessment will lead to valid the lead agencies responsible for the upskilling.
and reliable CEFR-aligned SBA for Years 1 to 6.

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In Phase 1 of the Roadmap, the EL Master Trainers identified In Phase 2, the commissioned body will need to conduct a
as key delivers of the curriculum will themselves need training so benchmark study on Year 3 and Year 6 pupils to establish the
that they are well informed in the implementation of CEFR-aligned impact of the initiatives on the English proficiency of primary
SBA. They will then go on to train other teachers in Phase 2 in pupils. The results of the study will indicate at that point
the hope of improving SBA at primary level. Teacher management whether the target levels of A1 for Year 3 pupils and A2 for Year 6
and administration of CEFR-aligned SBA will be monitored and pupils can be reached. The results with the most significance will
evaluated in Phase 3, the outcome of which will be used in the be those from the cohort of learners going through the CEFR-
improvement of those assessments. aligned curriculum from Year 1. This cohort is expected to be in
Year 1 in 2017 and Year 3 in 2020, the end of Phase 2. A benchmark
study report will be produced at that point as a checkpoint for the
Monitoring Progress entire initiative.

Throughout the three phases of the Roadmap, the ELE reform In the final phase of implementing the Roadmap, student
efforts in primary schools will have to be monitored in order to performance in English will be benchmarked against international
assess the progress being made towards creating a quality English standards. Again, it is the results of the 2017 Year 1 cohort that will
language education system. The monitoring will be done by the be of most significance; these pupils will be in Year 6 in 2023, when
ELSQC with the ELTC as the facilitating agency. they will take the CEFR-aligned Year 6 national examination. The
expected proficiency level to be achieved is A2. These results
In Phase 1 of the Roadmap, the ELSQC and MoE will need will be part of the impact study on the reformed Primary EL
to select an independent body with expertise in the CEFR to education system to be conducted by the commissioned body. It
be commissioned to carry out benchmarking and impact studies is hoped that by the end of the EL reform programme in 2025,
from the beginning of the Roadmap to its projected end in 2025. primary school pupils will be achieving A2, and that the primary
This body will need to review the existing curriculum as well as EL education system will have been transformed into one that
related materials and practices as a baseline from which to start effectively prepares learners for the greater challenges that await
the alignment exercise. The experts will have to remain available them in secondary school.
as resources and reference points.

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5.5 Recommendations and Implications An increase in learning hours for English in school;

The teaching and learning of other subjects in English;


For the successful transformation of ELE in Primary
schools, changes and new developments are recommended in Optimal institutional, parental and community support for EL
administration, teaching and learning, assessment, and linkages programmes and initiatives;
between school and community. The proposed changes and
Intensive and expedient training and upskilling for teachers
developments include but are not limited to the following:
to meet the requirements of curriculum reform and related
processes.
The adoption of the CEFR as a framework of reference for the
primary school EL curriculum, learning targets, teaching and
learning, and assessment;

The commissioning of an independent body of CEFR experts


to review and align the curriculum, pedagogy and assessment
to CEFR standards, and to conduct benchmarking and impact
studies;

The dovetailing of the primary English syllabus with the


secondary syllabus;

The purchase of CEFR-based EL books and materials;

The rigorous review, revision and coordination of current EL


initiatives and resources;

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6
Secondary

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Chapter 6: Secondary
T
he major goal of this chapter is to lend support to the
formulation of an English language roadmap for secondary
school education in Malaysia. The narrative in this chapter is
anchored on the premise that students will exit secondary schools as
confident, independent users of the language who then possess the
option to enter either the workforce or higher education institutions.

With the specific focus on secondary school education, this


chapter highlights the present status of English Language Education
(henceforth ELE) in Malaysia, identifies issues and gaps that
exist in the educational system at secondary level in relation to
contemporary language teaching research and approaches, and
proposes measures to improve the system by addressing the issues
and overcoming concerns that can be found. At relevant points
in the chapter, reference is made to the CEFR (see Chapter 3 for
a detailed description of the CEFR) which is used to benchmark
English language proficiency as prescribed in the MEB.

There are four sections in this chapter. Section 6.1 provides a


brief overview of ELE at the secondary school level in Malaysia
and focuses on recent policies and initiatives that have shaped ELE
in Malaysian secondary schools. Against this backdrop, section 6.2
narrows the focus of this chapter to three major areas of concern
that must be considered in formulating the English language
roadmap for secondary school education in Malaysia. They are:
(i) curriculum design, (ii) teaching and learning practices, and (iii)
assessment.

190
The discussion centres around how existing gaps in these areas and refined. Towards the latter years of secondary education, students
challenge contemporary initiatives and thrusts in ELE, especially become cognitively and affectively more mature to make decisions
the use of the CEFR as a benchmark for proficiency. The discussion regarding how and what they wish to learn. Individual differences and
leads to section 6.3 on proposals and recommendations on how to preferences also begin to emerge as important factors to be given due
address challenges in the aforementioned area of concern. This consideration in teaching and learning. In this way, secondary school
section of the chapter proposes steps to be taken in chronological education plays a vital role in the future of the students, both for them
order, according to the three waves prescribed in the Malaysian to become a contributing member of society as well as for their own
Education Blueprint 2013-2025 (henceforth MEB). Finally, personal future well-being.
section 6.4 summarises and concludes the chapter.
In line with the development of the secondary school student
as human capital and an asset to the nation, the English language is
6.1 Background recognised as an important international language of communication.
The language is taught as a compulsory subject for 200 minutes a
The secondary school level represents a critical stage in the week in secondary schools at each of the five levels for a total of 580
Malaysian education system. From one perspective, this level is the hours for the entire secondary school education period.
final stage before students either enter the workforce or further The present English language proficiency level of students in
their studies at tertiary level. The national examination that they Malaysian secondary schools, however, is worrying. The general trend
encounter during the third year of secondary school often determines has been that a large number of candidates fail English at the Lower
the kind of subjects they will learn in the remaining two years. Secondary level with 21% and 23.4% obtaining a Fail grade in the
Subsequently, performance on the national standardised English paper in the Lower Secondary examination (or PMR) in 2011
examination at the end of the fifth year of secondary education and 2013 respectively. The Cambridge Baseline Study, conducted in
will impact the students work options as well as opportunities for 2013 to determine the baseline proficiency levels of students according
higher education. to the CEFR, provides a snapshot view of students English language
proficiency. A test was given to 31,000 students from preschool up to
From another perspective, the secondary years are important years secondary school levels in all states in Malaysia.
when the students English language learning habits can be consolidated

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The results revealed that the English language proficiency level (2) Implementing school-based assessment in the lower secondary
achieved by secondary school students at the lower level (Forms school level as an attempt, not only to reduce the examination-
1 to 3) was A2, while those in the upper secondary school level oriented nature of the education system, but also to ensure
achieved B1 (p. 16). These results are disappointing as Malaysians that learning takes place more effectively.
have traditionally been considered proficient in English, even by their
(3) Introducing the English language set system that enables
international counterparts and the relatively low proficiency levels
teachers to group students according to various ability bands
confirm a deteriorating mastery of the language among students.
to address differentiated abilities of students. The set system
The Malaysian Ministry of Education is cognizant of the generally is also intended to motivate students to learn the language by
declining standards of the English language among secondary school catering to their actual learning needs.
students. In the MEB (2013, p. 4-11), the Ministry has declared its
(4) Conducting the Oral Proficiency and Speaking (OPS) English
intention of seeking to ensure that 70% of SPM candidates achieve a
programme in selected schools to promote aural-oral proficiency
minimum Credit in the English Language paper by 2025.
as a means to motivate students to use the language.
The importance of doing well in the English Language paper is
(5) Implementing the Peningkatan Pengajaran dan Pembelajaran
reflected in the proposal to make it a compulsory pass to earn the SPM
Bahasa Inggeris Sekolah Menengah (PPPBISM) Programme
certificate. To address the need to raise the proficiency level among
in schools with passing grades in English below the national
secondary school students, various initiatives related to the teaching
average. This programme is intended to raise the English
and learning of the English language have been implemented.
Language proficiency of Secondary School students through a
The major initiatives at the secondary school level in recent years specialised school support plan.
are:
The aforementioned initiatives, as well as current teaching
(1) Benchmarking student proficiency through the Cambridge Baseline and learning practices in place at the secondary school level have
study conducted in 2013 in order to determine proficiency levels of implications for English language education at other levels. They
secondary school students according to internationally recognised also present both opportunities and challenges for the formulation
standards. of a comprehensive English Language Roadmap that involves all
levels of education in Malaysia.

192
6.2 Issues and Gaps Integrated Secondary School Curriculum (KBSM) for English. This
will be replaced by the KSSM in 2017. The implementation of the
In this section, issues and gaps in the present secondary school Roadmap takes place at a time of transition from the KBSM to the
education system will be discussed in order to elucidate attainable KSSM.
goals to be set in the Roadmap. The discussion will be divided into In order to accommodate relevant outcomes prescribed by the
three broad interrelated areas of English language education at the CEFR into the new KSSM, curriculum planners must be aware
secondary school level, namely curriculum design, teaching and of the differences and similarities between the current secondary
learning practices, and assessment. school curriculum and the CEFR, especially in terms of emphasis,
presentation as well as content.

6.2.1. Curriculum From a broad perspective, a major difference between the


CEFR and the Malaysian National Curriculum (KBSM) is the way
The English language secondary school curriculum has gone in which they are presented. Two features of the CEFR distinguish
through several revisions and a new curriculum is expected to be it from the KBSM.
implemented nationwide in 2017. The implementation of this new
curriculum is timely as it provides the opportunity for the incorporation The first is the use of a global scale that describes student language
of the CEFR. However, curriculum related issues that need to be skills at different levels of the scale. Each level from A1 to C2 provides
addressed in order for the Roadmap to be successfully implemented clear and comprehensible descriptions that represent goals for
are discussed in the section below. language learners to achieve (see CEFR Global Scale in Chapter 3).
The descriptions also include contexts and the desired performance of
specific language related tasks. For example, the B1 scale is described
6.2.1.1 Differences in Emphasis between the National as the ability to
Curriculum and the CEFR. understand the main points of clear standard input on
At the secondary education level, a national curriculum already familiar matters regularly encountered in work, school,
exists for the teaching and learning of English and is referred to as the leisure, etc. ... to deal with most situations likely to arise
whilst travelling in an area where the language is spoken.

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... to produce simple connected text on topics which are In contrast to the KBSM which describes general goals in
familiar or of personal interest. ... to describe experiences communication for a period of five years, the CEFR descriptors
and events, dreams, hopes and ambitions and briefly give specify language abilities with levels of performance in a progressive
reasons and explanations for opinions and plans. manner from one level to another. In addition, the CEFR global
(MEB, p. 4-10). scale descriptors are carefully explicated and supported through
related elaboration found in the CEFR manual.

The KBSM, in contrast, provides the following four objectives A major benefit of the CEFR global scale consisting of six
that are used for the entire five years of the secondary school which levels is that teachers can easily understand the expected overall
are stated as follows: language learning progression of the students from one level to
another.
The English language curriculum enables learners to
The second distinct feature of the CEFR in relation to the
i. form and maintain relationships through conversation and
KBSM is its use of can do statements. This is also apparent in
correspondence; take part in social interactions; and obtain
the global scale described earlier. The description of the C1 level,
goods and services;
for example, states that at that level, learners can produce clear,
ii. obtain, process and use information from various audio-visual well-structured, detailed text on complex subjects, showing
and print sources; and present the information in spoken and controlled use of organisational patterns, connectors and cohesive
written form; devices (CEFR, p. 15).

iii. listen to, view, read and respond to different texts, and express This description emphasises mastery of ability as well as
ideas, opinions, thoughts and feelings imaginatively and conditions that specify how the ability is demonstrated. In
creatively in spoken and written form; and contrast, the KBSM specifications are comparatively broad and
less explicit such as Take part in social interactions by discussing
iv. show an awareness and appreciation of moral values and love plans and arrangements, solving problems, and making decisions
towards the nation. (Kementerian Pendidikan Malaysia, 2003, p. 8).

194
Although a further comparison does reveal some degree of Hence, while the specifications in the Malaysian secondary
alignment between the curriculum specifications for English in school curriculum are organised around broad areas of language
Malaysian secondary schools and the CEFR, there are significant competence, the CEFR is more specific in terms of learner
differences between the two. competencies, focusing on actual abilities and are stated as can
do statements which complement its more detailed description
While most can do statements in the CEFR can be matched
of language competence.
to items in the KBSM curriculum, not all matches are exact. Some
are approximations, and some cannot be matched at all. This is ii. Emphasis on Process as opposed to Outcome.
primarily because of the difference in emphasis between the
In contrast to the Malaysian secondary school curriculum, the
Malaysian school curriculum and the CEFR framework.
CEFR does not spell out how proficiency is to be acquired. Instead,
Among the notable differences that pose a challenge for the it emphasises the outcomes that should be achieved at the end of a
alignment of the Malaysian secondary school curriculum to the programme which are stated in terms of can do statements.
CEFR are:
For example, in the KBSM lower secondary school curriculum
i. Emphasis on language use. for Forms 1 and 2, steps in writing a simple report and the
processes in writing such a report are given - writing an outline,
The Malaysian secondary school curriculum consists of
revising, proofreading, etc. The corresponding CEFR descriptors,
specifications that are organised according to the various uses of
on the other hand, simply state: Can write very brief reports to
language, i.e. Interpersonal, Informational and Aesthetic; however,
a standard conventionalised format, which pass on routine factual
the CEFR descriptors are divided largely according to skills, strategies
information and state reasons for actions (B1.4.3). and Can
and competence, i.e. Aural Reception (Listening); Oral Production
describe how to do something, giving detailed instructions (B1.2.h).
(Speaking), with its interactive section (Spoken Interaction);
Visual Reception (Reading); Written Production (Writing), with Similarly, in pronunciation, while the curriculum specifications
its activities and strategies (Writing Interaction); Audio-Visual; of both lower and upper secondary schools include learning
Reception Strategies; Linguistic Competences; Productive/ basic phonetics for correct pronunciation, CEFR simply states:
Interactive Strategies; Writing in Response to Texts (spoken or Pronunciation is clearly intelligible even if a foreign accent is
written) and Sociolinguistic Competence/Appropriateness. sometimes evident and occasional mispronunciations occur (B1.7.5).

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The emphasis on outcomes as given by the CEFR allows teachers Similarly, the CEFR contains content not present in the KBSM.
to focus on the goals to be attained and the skills that students need It is important to especially pay attention to the CEFR descriptors
to master rather than on only conducting activities specified by the that are not in the curriculum specifications. Many of these are
curriculum that may or may not lead to desired outcomes. in the areas of Speaking and Spoken Interaction, areas that school
teachers say are often neglected in class because they are not
iii. KBSM curriculum-specific content.
heavily evaluated in the examinations.
The KBSM curriculum specifications include content that
Hence performance through discussions and interviews as
is not present in the CEFR descriptors. An examination of the
well as the use of Productive/Interactive Strategies are not given
Malaysian KBSM secondary school curriculum and the CEFR
due attention. These are the skills and abilities that are important
descriptors reveal that there are some curriculum specifications
in performing well in interviews for scholarships or jobs and enable
that are not found in the CEFR B1 descriptors. For example, the
students to function confidently in the wider world.
KBSM curriculum contains the following items: interpreting and
presenting information in non-linear texts; answering a variety
of questions on texts listened to; and identifying different points 6.2.1.2. Emphasis on a Standardised Curriculum
of view in a text; making inferences from texts that are read.
One of the major drawbacks of the Malaysian, standardised
In contrast, the CEFR only mentions the use of inference in
curriculum is its regimented and stepwise progression from one
identifying unfamiliar words from the context (B1.6.1).
level to another as well as its inherent limitation in effectively
There are also academic and thinking skills that relate to dealing with students who may require specialised attention,
language ability that go beyond simple proficiency emphasised whether in the form of remediation or enrichment.
by the KBSM that are not given as much emphasis by the CEFR
The KBSM curriculum does make references to remediation and
descriptors. Clearly, the KBSM is a national curriculum and it is
enrichment in the form of different levels of learning outcomes but
understandable that it must address some general needs within
it is unclear how teachers should implement the activities as either
the context of the nation. The national education philosophy also
remediation or enrichment activities. The following example from the
provides a general guideline that cuts across all subjects in the
Form 4 Curriculum Specifications demonstrates this lack of clarity in
Malaysian school curriculum.
these different activities.

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LEARNING OUTCOMES SPECIFICATIONS EXAMPLES / ACTIVITIES / NOTES

2.2 Process information by: A. Processing texts listened to To hone students listening skills, teachers
by: can set pre-listening, while listening and
a. skimming and scanning for specific post-listening tasks.
information and ideas; Level 1
- Pre-listening tasks include
b. extracting main ideas and details; i. Stating what the text is guessing the answers to several
about. questions.
c. discerning sequence of ideas;
ii. Noting important details - While-listening tasks include
d. getting the explicit and implicit meaning (e.g. place, time, date). completing the information,
of the text; detecting errors, sequencing.
iii. Asking and answering
e. predicting outcomes; questions. - Post-listening tasks include
checking True/False statements,
f. drawing conclusions; Level 2 sequencing, filling in details.
g. identifying different points of view; iv. Identifying main ideas and To guide weaker students by giving them
jotting down key words and an outline in which they underline key
h. using print and electronic dictionaries; phrases. words and main ideas.
i. interpreting non-linear texts such as Level 3 To teach higher-order skills, texts must
maps, charts, diagrams, tables, graphs; be chosen at a level that is manageable.
and v. Taking notes of the text Teachers must strike a balance between
heard the need for students to be stretched
j. making short notes and mapping out ideas and the need that the task given is
manageable. Use simple texts to teach
higher-order listening skills.

Figure 6.1 Differing Levels of proficiency in the Form 4 Curriculum SpecificationS

The standardised nature of the curriculum makes it difficult i. Encouraging student independent learning.
to cater to the needs of students with varying abilities. Measures
must therefore be taken to meet this challenge. The CEFR supports an individualised learning approach as
the performancebased descriptors provide learners with the
opportunity to reflect on their progression in language learning.
The CEFR promotes a more student-centred approach with
students taking more responsibility for their own learning.

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English Language Education Reform in Malaysia
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This is done by making the proficiency descriptors in the ii. Using English Language Electives/Subjects to meet
CEFR available to students and thereby allowing them to reflect individualised needs
on these descriptors and assess their own abilities based on these
A second strategy that can be used to address the challenge
descriptors. Related CEFR initiatives like the Language Portfolio,
of meeting individualised needs through a standardised curriculum
which has the development of the capacity for independent
is by effective use of English language electives. In the KBSM,
language learning as a major goal (Schneider & Lenz, 2001, p. 3),
two subjects English Literature and English for Science and
have also been developed to strengthen student ability to assess
Technology are currently offered in the English language as
themselves.
electives at the upper secondary level.
The Language Portfolio and the CEFR are referred to by
Both these subjects are related to CEFR benchmarks and
Trim (2007) as not separate projects, but aspects of a coherent,
descriptors to varying degrees. As upper levels of the CEFR (B2,
integrated programme (p. 43). Elements of such self-assessment
C1 and C2) are more academically oriented, English for Science
and independent learning should therefore be built into the KSSM
and Technology can be fairly well suited for students to meet some
curriculum in order to address individualised needs in learning the
of the descriptors at those levels.
language.
At the same time, while the curriculum specifications of the
In relation to the issue of individualised needs, the introduction
English Literature course may not be directly related to CEFR
of the KSSM and the call to align the curriculum to the CEFR
descriptors, it does allow for greater exposure to the language,
is also an opportune time to address the question of how a new
and may even help enhance and refine language ability attained
performance-based curriculum can accommodate pupils with
through general English.
special needs. A CEFR-informed curriculum can be carefully
structured to give due consideration to the language performance English Literature requires a good command of the English
that is attainable by special needs pupils. language and is therefore taken by students who are proficient in the
language and have a keen interest in literature. It should however be
noted that compulsory general English includes a literature component
with the aim of allowing students to

198
engage in wider reading of
2009 2010 2011 2012 2013
good works for enjoyment and
for self-development. They will English Literature
871 764 703 564 535
also develop an understanding No. of candidates
of other societies, cultures,
values and traditions that will Distinctions (%) 37.0 37.0 42.1 40.1 44.7
contribute to their emotional
and spiritual growth. Pass & Credit (%) 60.6 55.8 52.5 54.4 50.8
(Introduction to Sukatan Pelajaran
KBSM, 2000) Failures (%) 2.4 7.2 5.4 5.5 4.5

On the other hand, English for English for Science and


Technology 41,547 12,738 5,707 3,090 2,097
Science and Technology (EST) was
introduced in 2001 and is described in No. of candidates
the KBSM Curriculum as designed
to help students develop an ability Distinctions (%) 14 25.3 27.3 22.6 26.9

to grasp basic concepts and ideas in


Pass & Credit (%) 84.7 74.0 72.2 75.7 71.4
science and to understand methods
of scientific thought and enquiry
Failures (%) 1.3 0.7 0.5 1.7 1.7
in English common to all kinds of
scientific and technical discourse (pp.
1-2). This is therefore a subject taken
PERFORMANCE OF CANDIDATES IN
Table 6.1
by students who are in the Science
stream at the upper secondary level.
ENGLISH LITERATURE AND ENGLISH FOR
SCIENCE AND TECHNOLOGY (2009-2013)

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In recent years, the number of students who have opted to 6.2.2. Teaching and Learning
take these subjects has decreased. The number of candidates in
Teaching English in Malaysian secondary schools can be a
the SPM and their performance rates for both subjects since 2005
challenge if one is faced with students who have yet to gain a
are reported in Table 6.1. The declining number of candidates
functional grasp of the language. The main reason for this is that
in both these elective subjects calls to question the role these
the curriculum provides for a teaching approach that is grounded in
subjects play, especially in relation to the compulsory general
the assumption that students have a satisfactory foundation in the
English Language subject.
language after learning English for six years in the primary school.
However, both subjects allow for greater exposure to the
However, in reality, secondary school English language
language and may even help enhance and refine performance in the
teachers find themselves facing students who do not possess the
language. The issue then is how these subjects are to be positioned
proficiency level necessary to handle the content of the secondary
in relation to compulsory English. A possible solution would be to
school curriculum. Many students have not yet mastered basic
set higher CEFR levels for both these subjects than for compulsory
grammatical structures even after having gone through ten years
English (CEFR level B1). In this respect, the suggested target band
of learning English (Saadiyah Darus & Kaladevi, 2009).
level for students taking either elective is B2.
Several studies have also shown that many teachers have
While the needs of higher proficiency students may be met
resorted to using Bahasa Malaysia when teaching writing to limited
through these two subjects, it is also important to address the
proficiency students as it helps them produce better quality essays
needs of the less proficient students as well. This may be done
(see e.g. Siti Hanim Stapa & Abd Hameed Abd Majid, 2006;
by offering new English language elective subjects catered to the
Mohd. Sofi Ali, 2008).
level of less proficient students. Some subjects that are currently
being offered, such as Art or Physical Education, can be taught in Students are also reported to resort to their first language
English in order to provide students with more exposure to English when explaining an incomprehensible or difficult English passage
and greater opportunities to use it. (Razianna Abd Rahman, 2005). At the other extreme, there are
also students in secondary schools who have the potential to move
beyond the skills and specifications prescribed in the curriculum.

200
In all instances, teachers need to draw upon the appropriate 6.2.2.1. Difficulty in teaching Students of Differing Language
teaching and learning approaches to ensure that students are able Abilities, Backgrounds and Inclinations
to realise their potential in using the English language for social
Teaching a single national General English curriculum to a
interaction, personal expression and functional goals. Several
large population made up of students with different abilities,
important issues on the teaching and learning of the English
backgrounds and inclinations in a generally stepwise fashion may
language relate to classroom practices that have strayed from
lead to a significant number of students not attaining the goals
the main intent of learning a language for communication in the
of the curriculum. Students in Malaysian secondary schools range
first place. Our students are unable to operate autonomously
from the very proficient to those who do not possess the basic
(Koo, 2008), and instead play the role of empty vessels relying on
foundation to develop the skills prescribed in the secondary school
teachers to fill them with knowledge (see Naginder, 2006).
curriculum.
This automatically discourages and inhibits independent learning.
In fact, the Cambridge Baseline (p. 13) draws attention to the
The strong tendency to depend on teachers for their own learning is
wide range of achievement at different stages of school education;
further worsened by the practice of evaluating students based on their
that although on average Form 3 is described as at A2, this accounts
performance and ability to obtain good grades in the examination or
for only about 28% of the students while about 41% are below
display good writing skills (ibid).
this level and about 31% above it. According to the Cambridge
Current issues and common discourses with regards to the Baseline, this means effective teaching to a group as disparate as
teaching and learning of English language in Malaysian secondary the Form 3 group could only happen with differentiated instruction
schools is indicative of a need to reassess the approaches used using differentiation strategies (p. 13) providing support for the
to teach and learn the English language, and more importantly, weaker students and suitable activities for the more advanced ones.
conceptualise English language learning as a social activity and not
Although the KBSM curriculum provides clear directions, goals
just learnt through practice and schooling.
and objectives, the diversity in the student population presents
In order for a major language education initiative such as the teachers with a clear challenge. The Ministry of Education is
Roadmap to succeed at the secondary school level, the following aware of the disparity in student proficiency levels and has taken
issues in teaching and learning need to be addressed. steps to equip teachers with the ability to teach classes with

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English Language Education Reform in Malaysia
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diverse abilities. It has also included the introduction of the set Regardless of which set they are assigned to, students must
system for English language which assigns students into groups of also be allowed to interact with other students who are more
similar proficiency levels predetermined by a diagnostic test at the proficient through alternative methodologies such as collaborative
beginning of the academic year in Form One. and cooperative learning as well as team based learning that
draw upon social-psychological learning theories of Bandura
In this instance, the teachers task is more focused towards
and Vygotsky. These theories specify that language learning is
tailoring her pedagogical style to the level of skill and learning
most effective when learning is socially constructed and there is
requirements of her students (PPPM, pp. 4-1). The set system
interaction with more proficient individuals.
which allows differentiated instruction for students of varying
levels of proficiency has been successfully implemented in more
than half of all secondary schools at Form One, and to a lesser
6.2.2.2. Teaching to the Test
extent at Form Two.
The practice of teaching to the test is prevalent in Malaysian
While the structural change afforded by the set system can be a
schools. The MEB (pp. 4-2 4-4) addresses this issue with specific
catalyst for many other related remedial or enhancement activities,
reference to both the KBSR and KBSM; that historically, the full
such as the preparation of instructional manuals, writing of work/
potential of both curricula has not been brought to life in the
textbooks, as well as selection of supplementary readers or reading
classroom and examinations do not currently test the full range
materials, several concerns related to the widespread adoption of
of skills that the education system aspires to produce.
the set system must also be given due consideration. These could
be addressed at the school, state and even national level. Also, skills and content that teachers perceive will go untested
in the National Exams are often dropped from the lesson plan in
The question of enhancing secondary school teachers ability
favour of content that is more frequently tested. The Cambridge
to handle differentiated instruction within the set system would
Baseline Study in its executive summary (p. 15) also identifies a
also be clearer, more focused and organised. Care must be taken
similar problem in Malaysian schools.
to ensure that students do not feel segregated and made to feel
abandoned with the other less proficient students. A corollary to teaching to the test is the tendency for students
to become dependent on the teachers for their learning as

202
preparation for the examinations instead of independently seeking Valid examinations that reflect actual language use are vital in
opportunities to learn. order to promote positive washback in the classroom, including
the use of a more interactive language teaching approach.
The prevailing strand in Malaysian schools is the discourse
of privileging examination (Koo, 2008, p. 56). Due to the high
importance placed on national examinations, teachers tend to
6.2.2.3 Implementation of Teaching and Learning Initiatives
concentrate on teaching aspects of the language they believe
will appear in the examination and neglect the communicative Various departments of the Ministry of Education have carried
aspects of language learning. A consequence of this situation is out a number of teaching and learning initiatives with the goal of
the emergence of a new class of students who can pass exams raising student language performance. Some of the initiatives that
and continue to the tertiary level without actually being able to have been conducted in schools are the OPS-English programme,
use the English language productively in a communicative event the Set System and the introduction of the Teachers Resource Book
(Ambigapathy, 2002). for the Literature Component.

No matter how idealistic educational policy-makers may be These initiatives are important as they address concerns and
on insisting that teachers should teach to the curriculum and deficiencies and allow authorities to ascertain their effectiveness
not teach to the test, teachers remain focused on examination before they can be introduced nationwide. The issue then pertains
results when they teach due to a number of factors. Among to the execution of these initiatives that are sometimes carried out
others, schools are assessed according to their performance in without teachers being made fully aware of the rationale for their
public examinations. Apart from that, principals are also assessed introduction.
according to the performance of their schools in these public
examinations in the New Deals system or Baiah.

Given the direct impact of public examinations on teaching


and learning practices, the issue of inauthentic language use
in examination papers and the lack of focus on certain skills in
assessments such as listening and speaking need to be addressed.

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The emphasis on
outcomes as given by the
CEFR allows teachers to
focus on the goals to be
attained and the skills
that students need to
master rather than on
only conducting activities
specified by the curriculum
level.

The manner in which some of these teaching initiatives are The management and coordination of teaching initiatives should
implemented is also of concern. It is important that initiatives are involve determining how a teaching initiative is conceptualised,
carried out systematically without overly burdening the teachers. trialled, adopted and disseminated. Clear duration for each process
If teachers feel burdened and if they do not see the benefit of should be specified and a clearly stated decision be made regarding
an initiative, it will not be well received, regardless of how well- the initiative.
conceived the initiative is.

Teaching initiatives should be well managed and coordinated.


6.2.2.4 Teacher-Student Classroom Interaction
This is not only to avoid redundancy and having too many
initiatives being carried out in a school but also to ensure that an The estimated number of hours to master a language at the
initiative is systematically implemented and assessed before it is CEFR B1 level for secondary school students is possibly between
widely adopted or becomes policy. 550 to 600 hours, based on a Pearson recommendation that adults
require between 350-400 hours to achieve the same level. The
number of hours available for formal English language classes during

204
No Subject SPM/STPM Diploma Bachelor Masters PHD Total

Teachers trained in teaching


1 English and currently teaching 419 51 11,975 1,496 22 13,963
English*

Teachers trained in teaching


2 English and currently not teaching 16 1 169 35 1 222
English

Teachers trained in teaching other


3 subjects currently teaching English 191 47 4,059 508 10 4,815
(at Least 1 class)
Table 6.2 ELT AND EL TEACHERS IN SECONDARY SCHOOLS
AND THEIR HIGHEST QUALIFICATION
Table 6.2
ELT AND EL TEACHERS IN SECONDARY SCHOOLS AND
THEIR HIGHEST QUALIFICATION

Note: *The figure in row 1 = Masters & PhD include teachers with a first degree in teaching but with a post graduate degree in areas other than English as well.
The figure above is as of 30 April 2015

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English Language Education Reform in Malaysia
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the entire secondary school level as described in the introduction Another point of concern is the quality of teaching and learning
of this section is 580. that takes place in the classroom. This requires teachers to have the
pedagogical content knowledge to effectively utilise the time given
Therefore, it is imperative that English language teacher- for teaching and learning. This knowledge will ensure that effective
student contact time be strictly maintained. Consequently, techniques will be employed in the language classroom.
teacher participation in training, courses and meetings that take
them away from their classrooms should be minimised. Teachers However, teaching in Malaysian classrooms is highly
should also not be required to attend courses or implement new characterised by teacher-centred approaches and the chalk-
initiatives without taking their workload into consideration as and-talk drill method (Ministry of Education, 2003). The most
teaching must remain the core and central duty of teachers. Hence popular teaching method is also reported to be drilling using past-
the Melindungi Masa Instructional (MMI) policy that is intended to year examination questions, work sheets and exercise books
ensure that instructional time stipulated for the teaching of English (Ambigapathy, 2002). In fact, language classrooms require greater
is met should be strictly adhered to. individual pupil talk time (West, 1968) as opposed to teacher-
fronted classrooms.
Furthermore, optimal teacher student interaction can only be
achieved if the teacher has enough time for each student in the Similarly, task-based and performance oriented activities
classroom. It is reported in the MEB that the student teacher ratio should also be emphasised. The teaching and learning of English
for secondary schools is now 13.1: 1, the average class size is 29.8 should not neglect the socio-cultural elements of language learning,
(pp. 2-3) and the average hours taught per day is between 2.7 and nor be seen as learning a subject, focusing on the mechanics of the
2.9 depending on the number of students in the school (pp. 5-6). language without making connections to how it is used in the real
communicative situation (Razianna Abdul Rahman, 2005).
These figures are encouraging as language classes require more
student-teacher interaction than other content related subjects. 6.2.2.5 Qualification of English Language Teachers
It is critical that conditions conducive to such an interaction be Teaching English in Malaysian secondary schools is an enormous
maintained and perhaps even improved on. challenge for various reasons highlighted in previous sections. Teachers
must obviously be well-trained to meet the demands of a challenging

206
curriculum given the diverse background of the students. Although A major characteristic of secondary school education in
the majority of English language teachers possess the right training the Malaysian education scenario is the national standardised
and qualifications, there are still a significant number of teachers examinations which all students in the school system have to take.
who do not (see Table 6.2). Two such examinations are conducted the first, the PT3, is taken
by Form 3 (15-year old) students, while the second, the SPM, is a
There are valid concerns that English language teachers in
school leaving examination that is taken by Form 5 (17-year old)
secondary school who have not been trained to teach the subject
students.
are contributing to falling standards in the quality of English
language teaching and learning in the country. At the same time, The English language subject is offered in both these
there is also a need to determine whether schools face a shortage examinations together with a host of other subjects which are
of trained English language teachers, especially in rural and remote generally pre-determined by the school system. All students sit
secondary schools. In addition to ensuring that only qualified for the same English language paper regardless of their language
teachers teach English, there is also the concern that qualified proficiency.
English language teachers have to teach other subjects in addition
When examinations are foremost in the minds of teachers,
to English. This is a problem because time that should be dedicated
students become highly-dependent on their teachers in order to
to developing effective lesson plans and materials is spent working
perform well in examinations. Such a situation does not support
on the needs of other subjects.
learners taking charge of their own learning. A Report (ASLI-CPPS,
6.2.3 Assessment PROHAM, & KITA_UKM, 2012) commented that assessments
in Malaysia over-emphasised the importance of getting an A, i.e.
Assessment is an important component in the education
the Malaysian education system practices assessment for learning
process and it is carried out for a variety of reasons. Assessments
rather than assessment of learning.
allow teachers to determine how much students have learnt, and
they also help teachers provide students with further guidance and This means the education system focuses on year-end
support. However, an education system that over-emphasises assessment, or summative assessment that emphasises the
summative assessments is an exam-oriented system that creates comparison of students achievements with those of others
an unhealthy teaching-learning environment. (Stiggins, 2005).

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English Language Education Reform in Malaysia
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As the Ministry of Education refines and revises its secondary in line with the goals and educational approach espoused by the
school English language curriculum to incorporate knowledge and CEFR. However, SBA has not been favourably received by many
skills of the 21st century, it also ensures that the written, taught Malaysians.
and assessed components of the curriculum are fully integrated
Parents, in particular, continue to view the old system of
and benchmarked to prevailing international standards of practice.
summative examinations as the only way to determine if learning
Apart from upgrading assessment frameworks to increase items has taken place. Dissatisfaction over various aspects of the
that test higher order thinking skills, a more inclusive approach to implementation of SBA was expressed by teachers and parents
assessing students learning of the English language is introduced in alike which led to a review of the manner in which SBA was
the form of school-based assessment (henceforth SBA). The MEB administered in early 2014.
lays the plan for ending this exam-oriented culture in teaching and
School-based assessment is not a new concept and throughout
learning in Malaysian schools by introducing formative assessments
the history of its implementation, several concerns have been
alongside summative ones.
raised. Black and William (1998), for example, caution that if not
The new form of assessment will be conducted while the well implemented, SBA can lead to (i) an over-reliance on testing
teaching and learning process takes place rather than at the end rather than teaching and learning during class time, as well as
of it. The Ministry empowers secondary schools with standards- (ii) an over-emphasis on the managerial aspects of this form of
referenced school-based formative assessments which emphasises assessment. The implementation of SBA in Malaysian schools,
assessment for learning over assessment of learning. The following therefore, requires a thorough and careful preparation of all
is a discussion of gaps and issues concerning assessments at the relevant parties, most notably the teachers themselves.
secondary school level.
Although the Ministry of Education has assured teachers that
they would not be overwhelmed by the managerial aspect of SBA
by having to provide continual evidence and online reports, a more
6.2.3.1. Lack of Readiness for School-Based Assessment
critical concern must first be addressed. It has become apparent
The implementation of SBA in 2012 and the consequent that a major issue to be first resolved before SBA can be successful
move away from a focus on summative examination is very much was one of perception and beliefs about SBA. Many including

208
the teachers involved in the new assessment mode had minimal Their professional development is thus crucial in ensuring
knowledge of SBA practices and how they benefit the teaching that teachers are well-equipped with related knowledge that
and learning process. would assist them in conducting assessment. In addition, a more
comprehensive guideline covering assessments for both progress-
Implementing SBA requires teachers to follow steps that
and achievement- based purposes is urgently needed.
include preparing, administering and grading of an assessment as
well as the recording and reporting of assessment results. It is not Looi-Chin and Rathinasamy (2013) indicated in their research
surprising that teachers find SBA an added burden to their already that the Ministry of Education could devise an assessment
long list of responsibilities. framework in line with the curriculum framework that aims at
promoting teaching and student learning, beyond the confines of
There are however several procedures or steps that many
just pointing out what are covered in the public examinations.
teachers are just not competent in (Mertle, 2005), for example
preparing a test and developing valid grading procedures. Cizek Most Malaysians are familiar with a heavily exam-oriented
and Fitzgerald (1996) discovered that teachers had the tendency school system as national standardised examinations have been
to ignore the importance of test preparation by doing what they the norm for many decades. Consequently, the switch to SBA has
think is right rather than what is actually right. been received with much resistance and scepticism. There has
been a lot of pressure from parents and even school administrators
This is echoed by what was found to be prevalent among
not to lose sight of summative examinations such as the SPM and
Malaysian lower secondary teachers, where a majority of the teachers
the recently introduced PT3.
tend to practise what they think is right as they had no proper guideline
to rely on as reference (Looi-Chin & Rathinasamy, 2013). Malone As a result, many schools have opted to maintain the term
(2013), on the other hand, highlighted the need to increase teachers and year-end examinations, in addition to carrying out SBA. This
assessment literacy in order to monitor students progress. means English teachers are still expected to help students master
the techniques of performing well in examinations in addition to
For SBA to succeed in a language learning environment with
preparing, administering and grading SBA as well as recording and
a long tradition of summative assessment, teachers need to be
reporting assessment results.
assessment literate. It is apparent that teachers still lack theoretical
understanding of what constitutes good assessment practices.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Formative assessments carried


out through SBA and guided by CURRICULUM TEACHING & LEARNING ASSESSMENT
CEFR can do statements are
sufficient in assessing the teaching Differences in Students Lack of readiness
and learning of the English emphasis between of differing for school-based
Language. It may be argued that the national language abilities, assessment
school-based assessment appears curriculum and backgrounds and
to be more time-consuming
the CEFR inclinations Lack of emphasis
and subjective than traditional on specific
summative examinations, as it is Meeting Teaching to language skills
conducted throughout the school individualised the test
year and requires close observation
student needs Lack of readiness
of the students by the teachers.
through a Coordinating of for performance-
Nevertheless, the benefits in standardised teaching learning based assessment
terms of the more valid reporting curriculum initiatives
Lack of
of a students actual ability in the
Teacher student readiness for self
language and the motivation it
provides in learning far outweigh
classroom directedness
these difficulties. The challenges
interaction
in implementing SBA are large
Qualification of
but must be overcome if language
English language
education is to progress from the
assessment of mere language
teachers
knowledge to the assessment of
actual language ability.
Figure 6.2
Issues and Challenges in Curriculum,
Teaching & Learning, and Assessment.
210
6.2.3.2. Lack of Emphasis on Specific Language Skills 6.2.3.3. Lack of Readiness for Performance-based Assessment

Classroom practices in many secondary classrooms are mainly Performance based learning (PBL) and assessment (PBA)
characterised by students answering reading comprehension represent a set of strategies for the acquisition and application
questions and writing essays, with very little time given to listening of knowledge, skills and work habits through the performance of
and speaking exercises (Naginder, 2006). It is therefore not tasks that are meaningful and engaging to the students. PBA is
surprising that according to the Cambridge Baseline (pp. 18-29), well reflected in the CEFR, with can do statements describing
speaking is the weakest of the four skills and that spoken English is language performance.
an area of difficulty not only for students but also teachers.
As far back as the mid-90s, Stiggins (1995) described
Malaysian examinations at the secondary school level assess performance-based assessment as an essential ingredient in a
the four language skills to varying degrees and do not provide equal school assessment program (p. 239). He, however, cautioned
emphasis on the four skills. They largely assess the skills of reading that this form of assessment requires exercise and judgment by
and writing, and for this reason, teachers tend to prioritise these teachers who are well-trained and reliable. A further challenge
skills over listening and speaking in the classroom. would be to have PBA accepted by stakeholders.
The CEFR, however, is based on performance in a language The concept of performance based assessment is not new in
and therefore places emphasis on all four skills. The call to align the Malaysian secondary school context. The learning outcomes
the Malaysian English Language curriculum to the CEFR poses a and specifications described in the Malaysian Secondary School
challenge to the way proficiency in English is assessed in secondary Curriculum are expressed in ways similar to the can do statements
schools. Based on the CEFR descriptors, the performance of of the CEFR. These learning outcomes and specifications are then
students in all the four language skills should be assessed. interpreted and rewritten by teachers as behavioural objectives in
This will undoubtedly require that Speaking and Listening be their daily lesson plans.
given greater emphasis in school-based and national assessment.
However, there appears to be little effort in assessing whether
Increased emphasis on both these skills is expected to lead to
these behavioural objectives truly translate into actual language
increased time given to the development of speaking and listening
performance in classrooms. Numerous references on current
skills in the classroom.

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English Language Education Reform in Malaysia
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teaching methodology that is more performance-based which consequently, both frameworks inform each other (Lenz &
describe teaching through the use of tasks can be explored to Schneider, 2002). The ELP is generally a self-assessment tool
improve the quality of classroom teaching as well as assessment (see which according to Lenz (2004), aims to promote learner
e.g. Ellis, 2008, Fotos & Nasajji, 2007; Lewis, 1998; Nation, 2008). autonomy, and supports developing learning skills by providing
suitable guidance and instruments for the learners themselves
(p. 23). The challenge faced by Malaysian secondary schools is
6.2.3.4. Lack of Readiness for Self-Directedness to infuse self-assessment and other forms of related assessment
such as peer-assessment and portfolio assessment in the language
Learner autonomy and self-directedness feature prominently in classroom.
the CEFR. The various levels that constitute the CEFR framework
allow individual learners to assess and monitor their own language In terms of language assessment in Malaysian schools, greater
learning abilities. Although these learner characteristics are also feedback to the students from public examinations must be
espoused by the Malaysian Education System in the secondary provided in terms of score reports in order to encourage self-
school curriculum, the MEB notes that the element of self- directedness amongst the students. Students should therefore
directedness is still lacking in the average Malaysian secondary be made aware of their performance in specific skills and abilities
school student. as well as comparative information in relation to criteria and
performance of their peers rather than provided with only a single
The teacher as facilitator mantra is often put aside in favour letter grade.
of more teacher-centred lessons in order to prepare students for
examinations. The situation is sometimes exacerbated by the need
to focus on performance in examinations, and this does not lend 6.3. The Way Forward
itself to promoting ownership of learning among secondary school
students. The implementation of the Roadmap incorporating the CEFR
at secondary school level requires a comprehensive approach.
The CEFR was developed simultaneously with the European The way forward must be guided by the three major thrusts
Language Portfolio (henceforth ELP) which shares the use represented as Waves 1, 2 and 3 in the MEB. The approach
of language proficiency reference levels as a core element;

212
proposed in this section centres on the incorporation of the CEFR With this in mind, the first wave needs to be a phase during
and takes into cognizance, structural preparation, implementation which initial structural changes in the areas of curriculum, teaching
and monitoring of change, and also, assessment of the impact and learning and assessment are put into place so that significant
of the change. The Roadmap has been planned in three phases improvements are realised in the following phase.
which are linked to the MEB waves as illustrated in the secondary
education portion of Section C of this document.
6.3.1.1. Curriculum
6.3.1. Phase 1: Preparing for Structural Change (2015-2016)
The Malaysian secondary school curriculum is the cornerstone
The Malaysian education system at secondary school level
of any effort to align the educational system to the CEFR bands and
involves a large and sometimes unwieldy network that consists
descriptors. The necessary groundwork related to the curriculum
of many sections, divisions and departments. The call for change
must therefore be laid in order for a CEFR-aligned curriculum to
in the approach taken for English language education in Malaysia
take shape as well as provide direction to the entire Roadmap effort.
must ensure careful planning and preparation by all relevant bodies.
The MEB emphasises the importance of attaining internationally
recognised proficiency levels by benchmarking them to the CEFR.
As a public document, the MEB has laid the groundwork for i. Setting Appropriate CEFR-Based Targets
national awareness and dialogue regarding English proficiency Language proficiency according to the CEFR is based on six
levels. In the first wave, it is the various entities within the Ministry achievement bands that move from the lower A1 band right up to
of Education that need to provide the platform for engagement, the highest C2 band. Each band consists of a set of descriptors that
discussion and dissemination of information with specific regard specify outcomes in the four language skills for language learners.
to the anchoring of the English language curriculum to the CEFR. There is a need for the Malaysian secondary school English
Awareness and a general understanding among the general language curriculum to be closely aligned to the CEFR bands and
public and all relevant stakeholders, especially secondary school integrate the relevant band descriptors into the curriculum.
teachers, regarding the aspirations and targets of a CEFR-aligned
Roadmap are critical to its successful implementation.

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The Roadmap 2015-2025

Form 1 Form 2 Form 3 Form 4 Form 5

Phase 1 -------------- preparation for structural change --------------

Phase 2 A2 ----------------------------------------------> B1-80%*

Phase 3 B1 ----------------------------------------------> B1-100%

Note: 80% is an estimate and indicates the percentage that should have attained B1 at the end of the Phase.

FIGURE 6.3 PROPOSED MINIMUM TARGETS FOR CEFR LEVELS AT


SECONDARY SCHOOLs
The curriculum should specify the minimum band that students As can be seen in Figure 6.3, Phase 1 from 2015 to 2016 is
need to achieve at the end of the lower secondary and upper dedicated to preparation for structural change. During this stage,
secondary levels. At the same time, the curriculum should also CEFR A2 and B1 are set for lower and upper secondary school
maintain a reasonable degree of flexibility that can allow students students respectively based on the analysis of available documents
to move beyond the desired bands. and findings such as the Cambridge Baseline study and SPM English
results. This target is then communicated to other relevant agencies
The proposed minimum targets for the attainment of CEFR
within the Ministry of Education so related action can be taken.
levels at lower and upper secondary school in Phases 1 to 3 of the
Roadmap are presented in Figure 6.3.

214
In the second phase, from 2017 to 2020, the target CEFR level The attainment targets for the second and third phases also
of A2 is to be achieved at the end of the first year of the secondary take into consideration the performance of secondary school
school. This target is set based on the assumption that a large students based on the CELA study on benchmarking Malaysian
portion of the A2 level has already been reached at the primary secondary school students to the CEFR. In their 2013 study, 69%
school level. English language education at secondary level should of Form 3 students were found to be at A2 or below. Similarly,
then ensure that eighty percent of the students have attained a B1 55% of Form 5 students were found to be at A2 or below. The
level at the end of Form 5. average level for both Form 3 and Form 5 was A2. It is therefore
considered appropriate for A2 to be identified as the target for
Finally, in the third phase, the focus of ELE at all levels of
early lower secondary students during the second phase. This
secondary education is on the B1 level, ensuring all students
target will subsequently affect the attainment target for the upper
a minimum B1 at the end of Form 5. It should be noted that
secondary level as it was felt that only a portion (80%) of the B1
by 2025, the Ministry of Education aspires to have 70% of the
level can be attained at the end of the secondary school.
students attain a credit level in the English Language at the end of
their secondary education. Based on current student achievement As stated earlier in this chapter, an estimated 550 to 600 hours
levels it should be possible to achieve this goal by then. are required to get to B1, which translates to five years of teacher-
student contact in the secondary school English classroom. In
The minimum target level set for students to achieve during
the third phase, however, the A2 attainment target is set for the
their secondary school education is B1, which takes a learner over
end of the primary school and, therefore, the required amount of
the threshold from the category basic user to independent user.
teacher-student contact hours can be provided at the secondary
Level B1 is an appropriate level for all secondary school leavers as it
school for the students to progress from A2 to B1.
corresponds to a population of school leavers who are functional in
English should they choose to either pursue pre-university studies An advantage of A2 straddling the primary and secondary school
or enter the job market. Some students will of course go on to B2 years at Phase 2 is that there can be a better transition for students
or to higher levels required for performance in academic and work moving from the primary to the secondary school system. Teachers
contexts (personal communication, David Little, 2012). from both levels of education will be expected to cooperate in order
to ensure the progression of their students in English.

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English Language Education Reform in Malaysia
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It should be stressed that


the CEFR was initiated
as a self-assessment
document and, because of
this, is more likely to be
effective when students
are themselves self-
directed and willing to
perform self-assessments.

Among the key findings of a study by Evangelou et al. (2008) Technology to achieve these targets. Similarly, slightly different
was that bridging materials from the primary used in the targets can be set for special needs students. This may require
secondary school was a useful practice that could help in successful having to determine the extent to which the language curriculum
transitions. for these specific groups of students can be aligned to the CEFR
and whether alternative frameworks that specifically cater to the
It must be stressed here that these targets should be flexible
needs of these students can be referred to as well.
enough to incorporate the English Language needs of special
learner groups such as talented and gifted students as well as
special needs pupils. Careful thought must be given to the way
ii. Incorporating flexibility in curriculum goals
targets are set for these groups of students and this should be
benchmarked against international standards. The present KBSM curriculum for secondary schools is due to
make way for the KSSM. This presents an ideal opportunity for
A B2 target, for example, can be set for more proficient
curriculum planners to not only align the new curriculum to the
students who can be encouraged to take elective English
CEFR descriptors, but also to address specific issues that have been
subjects such as Literature in English and English for Science and

216
raised earlier in this chapter including the need to accommodate fully utilised. At the upper secondary school level, three subjects
students of diverse proficiency levels and with different language are offered in English. English is offered as a compulsory subject
learning goals. Changes to the curriculum in the first phase should for students from Forms 1 to 5. In addition to general English,
consider the needs of Malaysian students with varying levels of English for Science and Technology (EST) and Literature in English
proficiency. are currently offered as subjects in upper secondary and assessed
separately in the SPM examination.
Many initiatives carried out at schools are intended to address
specific concerns. For example, the set system is an initiative that Both these subjects are offered as electives in the Malaysian
groups students according to language proficiency and is intended secondary school curriculum. The goals and objectives of the
to allow teachers to deal with a more homogenous group of three subjects differ in their emphasis on various aspects of
students in terms of language proficiency. the language. In the English language subject, for example, the
focus is on communicative ability while in the EST and English
However, the set system prevents weaker students from
Literature subjects, academic and literary genres of the language
interacting with more proficient ones a key requirement
are emphasised respectively. The different focus of these subjects
in language progression according to approaches such as the
suggests that they need to be aligned separately to the CEFR. As
Vygotskian Zone of Proximal Development and Interaction based
secondary school students may consist of those who have already
theories of language learning. The set system appears to be in
progressed beyond B1, the curriculum must therefore make
place to address problems that should be resolved through the
provisions for these more proficient students.
curriculum itself.
It is possible that English, such as the EST and Literature in
Therefore, the introduction of the KSSM that is being
English, be redesigned to cater for the specific needs of students
developed in Phase 1 needs to properly address concerns that have
who demonstrate a level of proficiency beyond B1. B2 can be set
been identified through the implementation of recent initiatives
as the target for students who take these subjects at the upper
such as student diversity and lack of opportunity to speak in the
secondary level.
English language.
New elective subjects such as Critical Thinking and Academic
In order for the secondary school curriculum to address these
English may also be introduced and taught in English for more
concerns, the resources available to curriculum planners should be

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The Roadmap 2015-2025

proficient students, and provide them with a head start for further in English. Central to effective teaching and learning is the need for
studies. Similarly, remedial subjects can be offered to secondary competent and professional English teachers.
school students who have not attained A2 when they enter
The first phase should see long term plans in place to support
secondary education. A Gap Year can be implemented for this
the professional development of English teachers. In addition to
remedial programme.
being able to apply novel teaching and learning techniques, teachers
must also be assessment-literate in order to ensure that the CEFR
is appropriately applied in the English language classrooms.
6.3.1.2. Teaching and Learning
The teachers should become assessment-literate in order to
Central to the success of plans proposed in this Roadmap is
ensure that their students are able to effectively perform language
the role of teachers in the language classroom. The CEFR requires
related tasks as specified by the CEFR descriptors for each level.
a different approach to the teaching and learning of English in
Assessment literacy is especially important in the school-based
secondary schools. Proficiency in English is determined based on
assessment contexts as student performance is assessed directly
performance, as reflected by the can do statements.
by teachers in their classrooms.
The first phase should involve putting in place building blocks so
Additionally, teachers should be encouraged to reflect on their
that teachers, students and even parents are receptive to this new
teaching in order to improve quality and effectiveness as well as
approach to developing English language proficiency. The ELTC
build a culture of continuous self-improvement. Towards this end,
should be given a central role in training teachers and ensuring that
a network of support needs to be in place.
they are able to meet the demands of CEFR-informed teaching.
Since language learning is a highly personal matter, the students
motivation is a key driving force for language acquisition. The first
i. Preparing Teachers and Students phase should see the development of a plan that promotes greater
student self-directedness and autonomy. For this, there needs to
Initial initiatives in the first wave of the MEB such as the Pro-ELT
be greater transparency that avails to students, access to details of
programme for teachers and OPS-English programme for secondary
their assessment scores.
school students already signals the shift in emphasis to performance

218
Also, there is a need for appropriate questioning techniques in much opportunity at all to use it. Effective language learning
the classroom which encourage self-reflection and student input. requires interactive situations where learners use the language to
Furthermore, students should be educated about the proficiency communicate meanings and ideas.
levels and CEFR can do statements so that they understand
Language immersion programmes can provide valuable contexts
the goals of their language lessons. It should be stressed that the
where students can use the language in such a way. Programmes that
CEFR was initiated as a self-assessment document and, because
involve the community can also be designed to provide language-
of this, is more likely to be effective when students are themselves
rich contexts where language can be used meaningfully. It is also
self-directed and willing to perform self-assessments.
important to use authentic materials, including on-line materials,
The Language Portfolio utilised in many European nations in which enable independent learning beyond the classroom. These
line with the CEFR is intended to encourage self assessment and materials can complement the use of CEFR-aligned English
more independent and autonomous learners. Several descriptions language textbooks. The integrated use of these materials can
of this initiative are available and can be used as a model for the make a strong positive impact on language learning.
development of a localised version for secondary school students.

Students can be introduced to and encouraged to use this


6.3.1.3 Assessment
self-assessment tool as a means to develop individualised learning
capabilities. Teachers can also encourage student self-directed and Assessment is an important component in the educational process
independent learning by sharing the goals of their lessons with the that verifies the abilities of students and the effectiveness of the
students. teaching and learning process. Traditionally, summative assessments
have featured prominently in the Malaysian Education system.
However, the first wave of the MEB has seen formative assessments
ii. Providing a language-rich environment being featured prominently in secondary schools through the School-
based Assessment system. In addition to this emphasis on formative
Some schools lack the opportunity to use English in real and
assessments, the first phase also has to be a time for the following
meaningful contexts. In many rural areas, for example, students
plans to be put in place.
may only get exposure to English during English lessons without

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i. Aligning Secondary School Assessment to the CEFR Test tasks for the upper secondary school should also reflect
the types of performance associated with B1 of the CEFR.
In the secondary school years, English language proficiency is
Although formative school-based assessment is still applicable,
assessed through the School-Based Assessment (SBA), the PT3
especially in encouraging learning, summative examination at the
and the SPM examinations. In a CEFR-inspired roadmap, all
end of secondary school is more relevant in order to determine
these three forms of assessment should be aligned to the CEFR
whether targets have been achieved. It is therefore critical for this
in order to ensure that students are able to show evidence of this
examination, in particular, to be able to accurately assess student
proficiency in the English language.
language proficiency.
In this first phase, there is a need to examine each of the above-
mentioned assessments and determine how effectively they assess
the desired outcomes prescribed by the CEFR. There is also a need to ii. Establishing continuous validation processes
justify the need for an English Language paper in the PT3 summative
Realigning the various assessments to the CEFR requires
assessment in addition to formative assessments that are already in
the collective effort of various entities within the Ministry of
place at Forms 1, 2 and 3. When both school-based assessment and
Education. Of particular importance is the role of the Curriculum
summative standardised examinations are used at the same time, the
Development Centre and the Examination Syndicate. Both have
weightage provided to each must be clearly indicated.
to collaborate to ensure that the assessments in general, and all
Similarly, the tasks that are used for each type of assessment must test items in particular, accurately measure the learning that has
be determined and should reflect the tasks that are described in the taken place and the ability of the students to perform as prescribed
CEFR. School-based assessment, for example, can focus on tasks such by the CEFR.
as discussion skills and interviews which may not be as easily assessed
A loose collaboration between the major agencies involved in
through standardised and summative national level examinations.
the assessment process would render the assessment inaccurate
Similarly, the format of the English language PT3 examination needs
and misleading. Curriculum goals should be comprehensively
to be aligned to the CEFR, especially in terms of the test tasks used in
assessed in order to establish content validity of the assessment.
order to ensure that the grade awarded to students represents their
mastery of all skills, namely listening, speaking, reading and writing.

220
A continuous validation process should also be established iv. Assessment to encourage independent and autonomous
during the first phase of the Roadmap in order to maintain the learning
quality of assessments conducted at the secondary school level.
Teachers must also be skilled in the concept of assessment
To this end, it is highly recommended that an independent
for learning and how assessment can be used to encourage
assessment validation body be set up consisting of academics and
independent and autonomous learning among students. Practices
civil servants.
such as greater and more detailed disclosure of test performance
allow students to assess their own abilities and hence encourage
independent and self-directed learning.
iii. Upskilling English Language teachers in relation to
school-based assessment At the same time that teachers develop their assessment
literacy, formal standardised assessment must build in features that
Formative assessment which is largely school-based is an
encourage greater student self-directedness. Some of these features
integral part of the overall assessment of student learning. As
include a more detailed score reporting on test tasks as well as making
teachers will play a central role in school-based assessment, in-
normative performance measures available to all test candidates.
service training programmes must be conducted in order to raise
teacher awareness and develop skills regarding assessment.

Teachers must be trained to administer and accurately assess 6.3.2. Phase 2: Implementing and Monitoring Structural
students and how information obtained through assessment Change (2017-2021)
should be used to determine students level of performance as
At the onset of this phase, an English language curriculum that
well as to inform decision making. All teachers must attain a level
is aligned to the CEFR should be fully implemented in Malaysian
of assessment literacy that can allow them to accurately assess
secondary schools. This curriculum would inform the teaching
their students as well as for stakeholders to be confident with their
and learning practices, as well as assessment practices. Once
assessment in school-based assessment.
fully implemented, it is important that the structural changes are
closely monitored.

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6.3.2.1. Curriculum enhancement programmes are supporting iindividualised needs.


Data from these studies should then help improve delivery of these
During this second phase, there will be a need to assess how
programmes.
teachers are coping with the new curriculum. By doing so, the
necessary support can be extended to teachers to ensure that the
aims of the curriculum are achieved. This support is also applicable
6.3.2.2. Teaching and Learning
for English language teachers teaching English for Science and
Technology (EST) and Literature in English. Any decisions to The successful implementation of the CEFR-aligned curriculum
make significant changes to the CEFR-informed curriculum should is dependent on the teaching and learning process. Therefore,
only be made at the end of this phase and must be justified by data. English language classrooms practices must be closely monitored
during phase 2. Classroom observations should be carried out
Therefore, there is a need in this phase for a research-driven
with the aim of documenting best practices and where necessary,
monitoring process carried out by independent bodies such as
helping teachers overcome the various challenges they face.
universities and appropriate research agencies. There is the
likelihood that changes may need to be made to the curriculum Towards this aim, experienced English language teachers,
before the end of the second phase. In such a case, justification teacher trainers and academics, who are well-versed with the
must be provided for any amendments. challenges of teaching English to students in Malaysia, should be
included in all initiatives that are designed to improve the teaching
In this phase, there will be a need to pay attention to the
and learning process. The effectiveness of support networks
development of remedial and enhancement programmes. These
for English teachers to assist them in the transition to the new
programmes should be in place to support the needs of students of
curriculum must also be assessed at this phase.
varying ability levels, including those with special needs.
In addition to the impact on teachers, attention should also
The ability of students to demonstrate performance of can-
be given to whether the new CEFR-aligned curriculum has had
do statements at the B1 level would reflect the effectiveness of
positive effects on the students in terms of teaching and learning.
such programmes. However, again, there will be a need to carry
During phase 2, there should be greater evidence of students
out independent studies to ascertain how these remedial and
demonstrating independent and autonomous learning. For example,

222
there should be greater student understanding of the importance assessment should be stressed and be reflected in the emphasis
of and willingness to use the Language Portfolio which is meant given to SBA. The introduction of an English Language paper
to encourage independent learning. Other indicators of student in the PT3 appears to take emphasis away from the SBA and
independent learning include taking initiative to use the language, refocuses attention on summative assessments.
greater participation in language related activities both in and
The SBA should be anchored to the CEFR and teachers should
outside the classroom, as well as willingness to communicate in the
be able to determine the students CEFR band based on their
classroom without being cued.
performance in SBA. There is therefore a need in Phase 2 to further
consolidate the SBA system to ensure that this formative system
becomes the primary source to ascertain the ability of students
6.3.2.3. Assessment
in English at the lower secondary level. The SBA promotes an
In the area of assessment, the second phase should also see assessment for learning approach which is appropriate at the lower
the continuous validation of the alignment between secondary secondary level. However, an English Language paper in the SPM
school assessments and the CEFR. Evidence must be collected to examination at the end of the upper secondary education level
determine how well the secondary school assessments are aligned should be maintained as a final exit level summative examination.
to the CEFR. Such evidence is necessary in order to ensure that
The process of continuous validation of the alignment between
the bands achieved by secondary school students are recognised
secondary school assessment and the CEFR must be consolidated
by international agencies. The onus for collecting this evidence
at phase 2 of the Roadmap. The independent validation body
falls on the shoulders of the Ministry of Education and as such, an
created during the first phase of the Roadmap can coordinate and
appropriate entity must be responsible for this important task.
monitor the validation process.
The Roadmap has included the suggestion made in the
Among others, this body should commission studies that
Cambridge Baseline to develop new national examinations at key
examine the validity of formative and summative assessments
stages (Executive Summary, p. 24). While the entire Cambridge
in Malaysian secondary schools. The Cambridge Baseline study
Baseline proposal may not be feasible, especially in terms of costs
provided a useful starting point in examining the performance of
in developing new examinations, the importance of continuous
Malaysian students in English in relation to the CEFR levels.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

It is important that this study is followed up by a similar Reports from all relevant agencies such as the ELTC, ELSQC
study at the end of Phase 2 to determine to what extent the new and the independent assessment validation body should also
curriculum and accompanying structural changes have supported provide valuable information regarding the effectiveness of all
improvements in student performance in CEFR-informed activities. Administrator comments and teacher response to the
assessments. Roadmap will also be examined.

By the end of phase 3 and at the end of the secondary school


level, the secondary school English curriculum should be aligned
6.3.3 Phase 3: Scaling Up Structural Change (2022-2025)
to the CEFR levels and reflect the general aspirations of the CEFR
The final stage of implementing structural change involves within the context of the MEB. Language assessments at the
assessing the impact of the structural change itself and consolidating secondary school should reflect the CEFR levels and alignment
instructional efforts related to this structural change. The various with these levels be continually validated.
studies that have been carried out in Phase 2 should now inform
Students should demonstrate learning habits with a propensity
decision makers about the possible need to shift targets upwards
for independent and autonomous learning and exit the secondary
or even downwards, depending on data collected from Phase 2
school with the target minimum B1 level with more proficient
studies on curriculum implementation, teaching and learning
students achieving at least a B2 level.
practices, and assessments. The studies will reveal areas that need
improvement, and Phase 3 should be a time to examine these areas The implementation of school-based assessment should be
and take action to address them. enhanced with teachers given adequate training to raise their
assessment literacy and ability to accurately assess their students
Sources of strength and successes should similarly be noted
and provide appropriate remediation and enrichment. Increased
and consolidated where possible. Major sources of data to assess
opportunity for language interaction should occur during the
the impact of the Roadmap will be the SPM examination, the
English language lesson as well as through community engagement
results of the replicated Cambridge Baseline Study, the results of
and support.
the proposed assessment for non-examination classes during the
2015-2020 period, and SBA reports from schools.

224
Agencies within the Ministry of Education should be working level, and as described in the CEFR, this independent user should
in a co-ordinated and concerted manner to provide conducive be someone who is able to effectively express views and hold
conditions for the teaching and learning of the English language as ones own in social discourse.
well as for students to meet the targeted levels.
At the same time, the MEB emphasises student ability in
6.4. Conclusion international communication (MEB, p. 4-10). Secondary school
leavers are expected to be able to use the language in seeking
This chapter has identified some of the major gaps and issues
employment as well as performing in academic contexts. Achieving
that impact the successful implementation of the Roadmap ranging
B1 on exit from secondary school is an appropriate target, as it is a
from more basic needs and considerations to more elaborate
proficiency level that allows students to venture confidently into
concerns that involve structural change and change in mindset.
an English speaking workplace or higher education environment.
These issues and gaps have been described according to three
areas, namely, curriculum, teaching and learning practices as well The Roadmap for secondary school also acknowledges that
as assessment. some students are already proficient and can achieve B2, which
indicates greater ability to deal with more complex language-
Suggestions and recommendations on overcoming these
related tasks.
challenges are also presented as a means to ensure the success
of the roadmap and are reflected in a process that involves three
phases of implementation from 2015 to 2025. The Way Forward
section in this chapter has outlined various actions that need to be
taken and proposes outcomes that may be used as milestones and
measures of success. It is for all relevant agencies in the Ministry of
Education to act upon these recommendations in order to realise
the intended goal of secondary school English education

The goal of learning the English Language at Malaysian


secondary schools is to attain a B1 independent user proficiency

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English Language Education Reform in Malaysia
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7
Post-secondary

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Chapter 7: Post-secondary
T
his chapter presents a roadmap for post-secondary English
in accordance with the MEB Waves. Post-secondary
education refers to schooling after Form 5, when the Sijil
Pelajaran Malaysia (SPM) has been taken, and before tertiary
education at college or university. Options for students include
a two-year Sixth Form programme leading to the Sijil Tinggi
Pelajaran Malaysia (STPM), a one- or two-year Matriculation
programme or a foundation programme for a university degree, or
a Polytechnic vocational programme.

This chapter is divided into five sections: 7.1 provides a historical


overview of English education at post-secondary level, and draws
attention to implications for decision making; 7.2 highlights issues
relating to teacher competence and student performance, and
draws on four key sources: the MEB, the Cambridge Baseline1,
recent Malaysian University English Test (MUET) results, and
the Cambridge English evaluation of MUET 20152; 7.3 presents
a roadmap to facilitate effective English learning and improved
teacher performance; 7.4 focuses on the implications and
recommendations to be considered, and 7.5 summarises and
concludes the chapter.

1
Robinson M, Galaczi E D, Docherty C, King , A & Khalifa H. (2014). Supporting national
education reform: The Cambridge Malaysia Baseline Project. Cambridge English: Research Notes,
58, 50-44. See also the full report available at Cambridge Baseline 2013 Technical Report.pdf
2
Cambridge English Evaluation of MUET 2015, Ministry of Education, Malaysia & Cambridge
English Language Assessment, University of Cambridge.

228
7.1 Background routes to university such as the post-SPM Matriculation programme
and university degree-foundation programmes in private colleges
Before 1980, English was the medium of instruction in most
became available, the number of students entering Form 6 also
public schools, and Malay was a compulsory subject. Proficiency
declined considerably, resulting in a further decrease in the number
in English at post-secondary level was assessed by the Form 5
of students taking Literature in English. In 2013, for example, only
Cambridge English Language 121 paper, and in Forms 5 and 6 by
51 out of a total of 46,241 candidates took the STPM Literature in
the optional English Literature paper. The selection of English
English (1) paper 3. There was clearly a need for a reliable means
teachers, and recruitment for employment requiring English, often
to assess the English proficiency of the many students who did not
relied on performance in these two subjects. To a lesser extent,
take the literature paper.
a pass in the compulsory Form 6 General Paper was used as an
indicator of English proficiency for Sixth Formers. Concerns about the English proficiency of Malaysian students
led to calls for improvement 4. Since most learning resources
Between 1977 and 1980, English was replaced by Malay as
were available only in English, academics were concerned about
the medium of instruction in all public schools. The Malaysian
the ability of post-secondary students to cope with the demands
Certificate of Education (MCE) was replaced by the SPM, and
of tertiary education. Students needed to be taught to retrieve,
the Higher School Certificate (HSC) was replaced by the STPM,
interpret and apply information from English texts. Intensive
and a new national syllabus was introduced for English. Although
English programmes were accordingly designed by all universities
English Language 1119 was still available, SPM English became the
and colleges, while privately-run English language centres sprang up
national standard of English proficiency for both career decisions
throughout the country to support post-secondary programmes 5.
and post-secondary education.
However, these measures proved insufficient to raise standards of
The transition from English-medium to Malay-medium English among post-secondary students.
education led to a sharp decrease in the number of students taking
In 1999, the Malaysian Examinations Council introduced the
the optional Literature in English paper in Form 6. As alternative
MUET for post-secondary students 6. As a criterion-referenced
3
Laporan Tahunan 2013: Majlis Peperiksaan Malaysia, Indeepreneur. Available: https://books. 5
Hala Tuju Penajian Komunikasi dan Media di Malaysia, 2010, Majlis Ketua-ketua Pengajian
google.co.uk/books Komunikasi (COHECS), Jabatan Pengajian Tinggi Kementerian Pengajian Tinggi http://www.
4
Chai Hon Chan, 1977, Education and Nation-building in Plural Societies: The West Malaysian mohe.gov.my/portal/images/penerbitan/JPT/Pengurusan_ Pembangunan_ Akademik/Buku-
Experience, Canberra: The Australian National University. Buku_ Kajian Accessed January 2014.
6
For details refer to Malaysian Examinations Council 2006. Available http://www.mpm.edu.
my/documents/ Accessed August 2014

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proficiency test, the MUET was designed to measure the English tertiary education. It was thus hoped that the MUET would serve
language ability of students intending to take first degrees in as the Malaysian standard for post-secondary or pre-university
Malaysian institutions of higher learning. English proficiency, and provide higher education institutions with
a singular measure of English proficiency for programmes of study.
The test covers the four language skills: listening, speaking,
reading and writing. Performance in the four skills is aggregated In practice, as post-secondary English education takes a variety of
and rated on a six-point scale, Band 6 indicating high proficiency in forms, individual institutions choose how they wish to use the MUET,
English and Band 1 indicating low ability. Candidates also receive and decide on the minimum MUET band for their own programmes of
a statement of results for each of the four skills. study. As the MUET is the only Form 6 English language examination
administered by the Malaysian Examinations Council, it has become
The implementation of the MUET was swift, and soon all
the essential requirement for post-secondary English qualifications in
students intending to take first degrees were required to take the test.
Malaysia. The discussion in the next section presents a rationale for a
These included Form 6 students from government and state-owned
reliable set of national English proficiency standards.
schools, private school students, private-individual candidates,
undergraduates as well as matriculation and diploma students.
7.2 Issues and Gaps
Preparation for the test came in the form of in-class instruction
for those in formal post-secondary programmes (e.g. STPM, Diploma Changes in language policy and new routes to tertiary
or Certificate) as well as optional private tuition. It is important to education have created a number of problems in post-secondary
note that while the MUET is required for entry and/or exit from English language education. This section is concerned with
tertiary education, there is no curriculum available from either the the implications for post-secondary English. The discussion of
Malaysian Examinations Council or the Curriculum Development teaching and learning draws on three significant studies, namely
Centre of the Ministry of Education. The MUET remains just a test, MUET results from 2010 to 2013; the Cambridge Baseline; and
and classroom instruction prepares students for it. the Cambridge evaluation of the MUET which appeared in 2015.
The findings of the baseline study that are relevant here are test
The introduction of the MUET was intended to provide a
results and questionnaire responses from the 86 Form 6 teachers
measure of English proficiency, and lead to the provision of the
and 1,913 Form 6 students who took part.
intensive language instruction needed by pre-university students for

230
7.2.1 Curriculum The absence of a reliable set of curricular standards for the MUET
has led to varied interpretations of the MUET result. Some higher
Two significant curricular issues involving the MUET are the
education institutions regard the MUET as a mere formality, and
absence of a teaching-learning curriculum and the absence of clearly
admit students into their programmes of study irrespective of their
defined standards for interpreting MUET results. The consequence
grade. Other institutions admit candidates who are classified as
of having no teaching-learning curriculum is that instruction is
Modest Users of English (Band 3) into TESL programmes, or to teach
often reduced to preparation for the examination. Although the
English in schools or tertiary institutions.
recommendation of the Malaysian Examinations Council is for
students to be given at least 240 hours of instruction in English to In some institutions, the MUET result is used as an entry
prepare for the MUET, many schools and tertiary institutions do not requirement while in others it is used as an exit requirement. Still
keep to the guidelines. In the absence of a syllabus, post-secondary others use the MUET results for placement, i.e. to stream students
English learners may also not benefit from best practice in teaching for English. In the absence of a reliable curricular standard, the all-
and learning, or in the use of resources. important question remains unanswered whether students with
Band 2 (Limited User) or Band 1 (Very Limited User) are able to fully
In addition, MUET test specifications do not include language
participate in post-secondary and university studies.
requirements for post-secondary or higher education. There is no
instructional guide for language components such as linguistic range, It follows that the role of the MUET has become indeterminate.
vocabulary range, grammatical accuracy, phonological control, There is now a need for reliable and internationally benchmarked
orthographic control and sociolinguistic appropriateness. English language curricular and proficiency standards to support
progression from secondary to post-secondary education.
There are also insufficient teaching and learning resources,
possibly due to the absence of a post-secondary English curriculum
to inform the design of appropriate teaching and learning materials.
7.2.2 Teaching and Learning
The over-reliance on the part of students and teachers on model
MUET tests and commercialised test-preparation materials is not The baseline study findings regarding the performance of Form
only an indication of poor instructional practice but also a reflection of 6 students, together with the MUET results, indicate a worrying
a neglected component in post-secondary English education. trend in post-secondary teaching and learning. The baseline study

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examined teachers pedagogical


knowledge, their use of concept, On average at CEFR level A2/B1
Form 6
41% at A1/A2 and below; 53% at B1/B2; 6% at C1/C2
terminology and resources for lesson
planning, and their management of
On average at CEFR level A2
the teaching and learning process. Form 5
55% at A1/A2 and below; 43% at B1/B2; 2% at C1/C2
The study found that a number of
teachers had poor knowledge of On average at CEFR level A2
Form 3
instructional content, only 65% 12% below A1, 57% at A1/A2, 30% at B1/B2; 1% at C1/C2
demonstrating comprehensive
knowledge. Classroom observations On average at CEFR level A1
Year 6
32% below A1, 56% at A1/A2, 13% at B1/B2
showed that instructional practice
was generally poor, and that lessons
On average at CEFR level A1
tended to be teacher-centred, giving Pre-school
78% below A1, 22% at A1/A2
learners few opportunities to be
involved in meaningful and engaging
Table 7.1 Results of Cambridge Baseline Study 2013 (n=1,913)
communication.

According to the baseline study, the English proficiency of allocating funds towards the factors that have the highest impact on
teachers is insufficient to provide learners with a good model. The student outcomes, such as the training and continuous upskilling of
teachers averaged B2 on the CEFR scale, which just makes them teachers. (MEB, p. E-8.)
independent users with upper-intermediate proficiency. Only 52%
Secondly, the baseline study identifies weak performance by Form
could be described proficient users of English. Speaking also emerged
6 students, only 10% achieving CEFR B2. As shown in Table 7.1, a
as the weakest skill among English teachers.
significant 41% obtained A1 or A2 or below. More than 70% of the
This lack of English proficiency highlights the urgent need to build Form 6 students were performing below B2, (see Figure 7.2), which
capacity among post-secondary English teachers. It also confirms is the expected standard for English. Listening emerged as one of the
the suggestion that the Malaysian education system may not be weakest skills, 17% being still at A1 or below. For speaking, 31% were
at A1 or below, and another 24% at A2.

232
Form 6

Below A1
Form 5
A1

Form 3 A2
B1
Year 6
B2
C1
Preschool
C2
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

% learners achieving CEFR level

Figure 7.1 Student Performance at different levels of


Education in Cambridge Baseline Study 2013 (n=1,913)

The study also found that while students recognised the importance Monitoring and observation were found to be done often for
of English for employment and educational opportunities, they lacked administrative and documentation purposes required by education
the motivation to learn English. Feedback from their teachers showed departments, rather than to improve classroom practice. Teachers
that students do not in general put much effort into learning English, also pointed out that teaching quality and effectiveness is often
and that some have negative attitudes and low motivation. measured through student performance in MUET examinations, which
could lead to an overemphasis on examination preparation instead
The monitoring of instructional quality in Form 6 classrooms
of language learning. Although the time recommended for MUET is
has done little to contribute to teachers professional development.

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... some post-


secondary students
are proficient users
of English, others
are still operating
at a very basic or
beginner level ...

320 minutes a week for eighteen months, few schools implement this 54.6% for Reading. Just 17% reached at least Band 3 for Listening.
recommendation or keep to this aspect of instructional policy. In the year-end results for 2010, 46% of 91,154 candidates obtained
at least Band 3, and of these only twelve reached Band 6.
These results from the Cambridge Baseline Study are
confirmed by MUET results over a four year period. The analysis Less than half (45.54%) obtained at least Band 3 for Listening,
of the MUET results from 2010 to 2013 indicates that most post- 47% for Speaking and 55.46% for Reading. However, for Writing,
secondary students fall below the expected levels of performance only 33.23% obtained Band 3 or higher. Similarly, in 2011 the mid-
for tertiary education. Less than half of the students taking the year MUET results showed that only 41.86% of 85,490 candidates
MUET reach Band 3, which is set by most universities as the obtained at least a Band 3, and of these only nine reached Band 6.
minimum requirement for entry or exit.
The English performance of post-secondary students has not
Of the 81,743 candidates taking the test in mid-2010, only improved with time. As shown in Table 7.2, performance in the
33.89% reached Band 3 or higher, and of these only four reached November 2013 MUET was rather dismal, with two-thirds of all
Band 6. The results for each skill were equally discouraging: only candidates (66.86%) remaining in Bands 1 or 2, and more than half
28.31% reached at least Band 3 for Writing, 41.1% for Speaking, and (50.94%) in Band 2. This calls for immediate steps to improve
support for students in English at pre-university level.

234
Listening Speaking Reading Writing Total
Band
% % % % %

6 - Highly Proficient User 0.20 0.16 0.13 0.02 0.00

5 - Proficient User 2.01 1.21 2.45 0.66 0.41

4 - Satisfactory User 7.57 9.09 12.78 4.43 5.22

3 - Modest User 11.73 33.79 35.75 21.27 27.52

2 - Limited User 33.20 40.19 39.77 50.87 50.94

1 - Very Limited User 45.29 15.57 9.12 22.75 15.92

Table 7.2 Performance of candidates in November 2013 MUET(n=72,101)


S o u r c e : M a l ay s i a n E x a m i n at i o n s C o u n c i l , 2 0 1 3 A n n u a l R e p o r t

A possible explanation for these results is that students have not For example, many were unable to distinguish relevant from
learnt or have not been taught the language and thinking skills irrelevant information, make inferences, and paraphrase or
required for higher education. A close analysis of the November summarise information. Candidates were reportedly hesitant in
2013 MUET results shows that the majority of the candidates speaking English, and they lacked the vocabulary to express their
failed to demonstrate competence in tests of a number of language thoughts and elaborate their ideas. Ideas were often confined to
and higher order thinking skills. home, school or daily experience, and candidates revealed a lack

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of general knowledge and awareness of current affairs. Many secondary students are proficient users of English, others are still
candidates were unable to use accurate sentence structures or operating at a very basic or beginner level. If we do not identify and
appropriate registers in writing. address the English language needs of learners from a young age, we
will continue to face this enormous disparity among post-secondary
They were also unable to draw links between two or more students. Even the best teachers are unable to plan appropriate
texts, give commentaries or develop or support their opinions. The lessons to cater for such disparity in the same classroom.
analysis underlines the need to teach post-secondary students to
be able to reason, to extrapolate, and to creatively apply their It has also been highlighted in the MEB that low English
knowledge in novel, unfamiliar settings (MEB, p. E-11). proficiency among teachers results in low student performance.
Compounding the problem is the mismatch between subjects in
These figures raise concerns about educational equity, in which teachers are trained, and the subjects that they are assigned
view of the large differences in achievement according to locality to teach: 30% of English teachers have reportedly not been trained
(urban-rural schools), socio-economic status, gender, ethnicity to teach English. The MEB also reports (p. 110) that a significant
and discipline of study. In both the MUET and the baseline study, number of English teachers (n=7,500) who took the Cambridge
students from urban areas perform significantly better than those Placement Test (CPT) did not reach the minimum standard
from remote and rural schools, and those in science perform required to teach English.
significantly better than those in other fields.
Teaching and learning issues warrant immediate attention,
This highlights the need to raise standards for teaching and particularly because teacher quality influences the quality of the
learning English at post-secondary level. If we aspire to make language used in English lessons, and directly impacts learning
every post-secondary student proficient in English by 2025, as effectiveness. Despite several decades of instructional problems at the
proposed in the MEB, English programmes must develop student post-secondary level, we have disregarded the need to enable teachers
capacity in the language to equip them to work in the globalized to meet the demands of post-secondary English education.
economy (MEB, p. 108).
It should also be pointed out that current teacher education
The first issue is the range of performance: students in the programmes in IPGs and universities do less for post-secondary
same year are performing at vastly different levels; while some post- teaching than for pre-school, primary and secondary teaching. We

236
need high impact programmes for post-
secondary English language education
to give direct support to teachers and
students.

7.2.3 Assessment

The call to revamp national


examinations and school-based
assessments, and to benchmark student
outcomes and learning practices to
international standards (MEB, p.
E-11) has led to a number of studies at
the national level. The evaluation of
the MUET by Cambridge English in
2015 is relevant here, since it aimed
to make a comprehensive evaluation
of the MUET against international
Figure 7.2 Cambridge standards of performance at the post-
English evaluation of MUET 2015 against
secondary level. The study compared
Cambridge Certificate in Advanced English test the results of 500 candidates in the
MUET and the Cambridge Certificate in
Advanced English (CAE) test in order to
recommend changes for improvement.

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English Language Education Reform in Malaysia
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Group discussions
and presentations
provide students
with the platform
to express and
elaborate on
their ideas

The main finding of the evaluation was that the MUET over others. The range of Listening aspects is narrow, 85% of all
overemphasises grammatical structures, and gives little emphasis to items requiring expeditious listening. In addition, several issues
communication. It also overemphasises Reading at the expense of reduce the validity of the listening test: items have been found to
Listening, Speaking and Writing. More importantly, the study found have unclear keys, to be guessable, to assume knowledge, and to
that the MUET is an appropriate measure only for Bands 3 and 4; be based on incoherent test or personal opinion.
the same cannot be said for Bands 1, 2, 5 and 6 (see Figure 7.2).
There is a greater variety of items in the Reading component,
It was also found that there were some possible measurement including items testing inferencing, establishing propositional
errors in the MUET examination. For both Speaking and Writing, meaning, building a mental model, and involving word recognition
task and topic requirements reflect varying levels of difficulty, too and lexical access. However, the Reading component is also
much emphasis being placed on spelling and grammatical accuracy. problematic as it contains items that are guessable, based on
For Speaking, the wording of questions gives candidates insufficient personal opinion, as well as unclear keys and incoherent text.
scope to produce suitable language at the required level.
Cambridge English has recommended that the design of the
The Speaking test also offers a narrow range of topics, so that MUET be updated with reference to the CEFR and that steps be taken
familiarity with the topic could possibly advantage some candidates towards quality assurance in the design of test items and tasks used. It

238
is also important to note that student performance in the MUET may performance in English, poor assessment practices and a lack of
not be an accurate measure of their proficiency, in view of the many teacher confidence or knowledge of assessment must be addressed
design problems highlighted in the evaluation by Cambridge English. in order to bring about effective educational practices.
For instance, testing irregularities in the Listening component may
have caused poor performance in this component (see 7.2.2 above).
7.3 The Way Forward
The failure to assess performance accurately in the higher bands
(5 and 6) could cause problems for institutions that attach a great deal
of significance to the MUET. This highlights the need for reliability This section is concerned with conditions for the reform of
and validity in tests used in English education, especially those used for post-secondary English education, together with details of actions
entrance requirements to tertiary education. and outcomes at each phase of the implementation plan.

A related issue is the absence of ongoing formative assessment The following are the conditions for the reform of English
for post-secondary students. The MUET is a summative criterion- language education at the post-secondary level.
referenced proficiency test with no emphasis on coursework
(1) Curriculum: the design and development of an internationally-
or formative assessment. Coursework requirements such as
aligned teaching and learning curriculum for post-secondary
portfolios, analysis of readings and classroom presentations serve
English education, and its effective implementation and delivery.
as a means to help students identify their strengths and limitations,
and provide a guide to develop skills needing improvement. (2) Teaching and Learning: the implementation of CEFR-informed
pedagogy; the availability of CEFR-trained English language
Finally, the role of the teacher in formative and summative
teachers in every post-secondary classroom; and the availability
assessment has to be addressed. The baseline study found that
of internationally-aligned teaching and learning materials and
while teachers understand the role of assessment, they often face
resources for every post-secondary English teacher and learner.
challenges in terms of time, resources and confidence in their own
assessment practices. (3) Assessment: the availability of internationally benchmarked
English language tests for assessing the proficiency of
The study also found that teachers expressed their lack of
knowledge of assessment with regard to the validity, reliability candidates at post-secondary level; and the inclusion of on-
and fairness of tests. These underlying conditions leading to poor going, formative assessment formats to support learning.

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7.3.1 The Roadmap Teaching and Learning

In phase 1, efforts to build capacity among key deliverers will be


The Roadmap for post-secondary English education is organised in
scaled up. This means that all post-secondary teachers, coaches,
accordance with the three MEB Waves. Plans are presented in detail
MoE officers and administrators will be trained to implement the
for each phase for curriculum, teaching and learning, and assessment.
CEFR-aligned curricula, and for formal teaching and assessment.
Phase 1: Preparing For Structural Change 2015 to 2016 The requirement for teachers and trainers to achieve at least CEFR
C1 will be enforced. There will also be a need to build capacity
Curriculum for Master Trainers to use CEFR-informed pedagogy in training
and in the development of post-secondary teacher education
The key action is to develop a CEFR-informed curriculum for
programmes.
post-secondary English language education, with staged target
proficiency levels based on the outcomes of the baseline study In view of the immense variation in the performance of
and the evaluation of the MUET. With this curriculum in place, post-secondary students, teachers will have to be trained in the
classroom instruction will benefit from best practices in the field, methodology of differentiated teaching. This will be accompanied
and appropriate instructional guides can be developed for teachers. by large-scale efforts to adopt online learning materials and a
concrete ICT platform to support learning for all practitioners.
In addition, academic and technical language requirements for
tertiary education and differentiated teaching can be included in Assessment
post-secondary English education. This could be accompanied
The first stage is to develop a standardised CEFR-informed
by the setting up of an independent body responsible (a) for the
assessment system for post-secondary English. This will involve the
implementation and monitoring of the reform process at the post-
use of coursework and formative assessment to provide feedback
secondary level, (b) for enforcing compliance with the stipulated
to teachers and learners about areas of weakness or areas requiring
language engagement time in the classroom, and (c) for strategising
intensive learning or remedial support. At this point it will also be
methods to encourage an immersive English language learning
important to establish the extent of teacher knowledge in terms of
environment in post-secondary schools and institutions.
content and assessment practices with reference to the CEFR.

240
Phase 2: Implementing and Monitoring Structural techniques, and on the development by teachers and trainers of
Change 2017 to 2020 the content and pedagogical skills required for post-secondary
education. It will also be important to ensure that textbooks
Curriculum and other learning materials are aligned with CEFR instructional
pedagogies, content coverage and the skills emphasised in post-
In the second phase of the Roadmap, the focus will be on secondary English.
implementing and monitoring the CEFR-informed curriculum for post-
secondary education. Post-secondary teachers will need training to Teachers will also be required to integrate online learning
understand, implement and use the CEFR-aligned English curriculum, materials into their daily lessons so that learners receive a broad
and the training sessions must be monitored. Teachers have to be experience with the language. Special coaches and mentors will
made aware of the need to give equal emphasis to all four language monitor the ways in which in-class instruction integrates learning
skills, and to use language to develop higher order thinking skills. materials and online resources with CEFR pedagogy while meeting
the requirements of the new CEFR-aligned curriculum.
Finally, this phase will involve the development and
implementation of school and institution-based initiatives to Finally, the action plan will require a policy making at least C1
encourage the active use of English among students. proficiency obligatory for all post-secondary teachers, and improving
the language and teaching skills of teachers where necessary.
Teaching and Learning
Assessment
The focus of phase two for in-class instruction will be to build
capacity for teachers to use CEFR-informed pedagogy as they Efforts to raise the standard of assessment in post-secondary
engage with students. CEFR-informed pedagogy will also be used English education will include the implementation of a standardised
by Master Trainers as they implement a standardised curriculum CEFR-informed assessment framework. This will be monitored
for post-secondary English teacher education. closely to examine the nature of questions, and to ensure that
higher-order thinking skills are tested in the target language, and
As part of the initiative to engage every learner, the focus will be that a more varied form of testing is utilised. In this case, it will be
on monitoring and evaluating teacher use of differentiated learning necessary to upskill teacher knowledge of content and assessment

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English Language Education Reform in Malaysia
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practices in accordance with the post-secondary CEFR-aligned Teaching and Learning


curriculum, instruction and assessment practices.
Phase 3 will continue the emphasis on capacity building for
To complete the exercise, the monitoring of assessment practices teachers based on the evaluation of the effectiveness of post-
will benefit from research into the impact of CEFR-aligned curricula secondary teacher education programmes.This will involve
and pedagogy on learner proficiency, and to determine whether monitoring and evaluating the standardised curricula for English
variation in performance outcomes is reduced over time. teacher education, and evaluating the English proficiency of
teachers and trainers. The use of teaching and learning materials
and ICT facilities will be reviewed to check the implementation of
Phase 3: Scaling Up Structural Change 2021 to 2025 appropriate pedagogy including differentiated learning.

Curriculum Assessment

In the final phase of the Roadmap, the effectiveness of the The final phase of the Roadmap will require an evaluation of the
CEFR-informed curriculum will be evaluated with a view to standardised CEFR-informed assessment of post-secondary English.
revising target levels for post-secondary education. This will The resulting understanding of the assessment framework will provide
involve reviewing and revising CEFR descriptors, continuing an insight into ways of benchmarking student performance in English
capacity building for all post-secondary teachers, as well as against international standards, and how the framework itself has
monitoring, reviewing and improving school and institution-based impacted student performance in English at the post-secondary level.
initiatives relating to post-secondary English education.

The action plan will focus on evaluating and revising 7.4 Implications and Recommendations
CEFR-aligned teacher training by Master Trainers, the CEFR-
aligned English curriculum, teaching and learning practices, and This section draws attention to some of the implications of
assessment. All of this will provide an insight into the effectiveness the Roadmap outlined above, and makes recommendations for the
of the reform in post-secondary education. improvement of our post-secondary English education.

242
A variety of
activities such
as jigsaw reading
and gallery walks
cater for different
learning styles.

i. Develop a core CEFR-informed curriculum to meet the demands iv. Ensure that the agency responsible for monitoring practices
of post-secondary education. This requires a change of policy within the learning space is empowered to monitor and evaluate
from a test curriculum to a teaching curriculum, and calls curricular goals through the assessment of instructional practice,
for close collaboration between the Curriculum Development student achievement and the assertive use of performance data.
Division and the Malaysian Examinations Council.
v. Enlarge the pool of post-secondary English language experts
ii. Enforce CEFR C1 as the minimum proficiency level for all post- by building pedagogical capacity among present secondary
secondary English teachers. To make this possible, teacher teachers and by attracting English proficient pre-service
proficiency has to be improved by means of appropriate in- teachers. In addition, plan for ways to allow for greater
service training, remedial support and the provision of teaching flexibility in private-public mobility for seasoned educationists
and learning resources. and to offer more prestigious career opportunities for teachers.

iii. Establish a minimum proficiency level for post-secondary


students using a single internationally-recognised test. Individual
higher education institutions will retain the right to decide on
their own entry requirements for English.

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Language games
and enrichment
activities keep
lessons interesting
and motivate
students to
learn English.

7.5 Conclusion as well as the need for monitoring and reviewing current and future
practices concerning curricula, instruction and assessment.
This chapter has made a detailed description of post-secondary This Roadmap also promotes bilingual and intercultural education
English education in Malaysia. The first two sections highlighted a through curricular action7 aiming to raise competencies for students
number of issues relating to recent developments in the field, teacher as they enter an important phase in their education. It is hoped that
competence, student performance and the assessment of post- this chapter will support the teaching and learning process in order
secondary students. The third section has drawn on the findings of to encourage learners to think more about the components of their
recent studies and on the issues raised to provide a Roadmap for the [linguistic] repertoire, their intercultural competencies, the ways in
future of English education at the post-secondary level. which languages and cultures work, and the best ways of profiting from
The chapter has raised significant areas for development, such their personal or collective experience of using and learning English8.
as the need to develop a teaching curriculum, the need to establish All in all, it is envisaged that the CEFR will provide the means to
minimum levels of proficiency for teachers, trainers and students, bring together all such competencies that are required for teaching
and working not only in Malaysia but also internationally.
7
Beacco JC, Byram M, Cavalli M, Coste D, Cuenat M E, Goullier F and Panthier J, (Language
Policy Division), 2010, Guide for the development and implementation of curricula for
plurilingual and intercultural education. Document prepared for the Policy Forum The right of
learners to quality and equity in education The role of linguistic and intercultural competences
Geneva, Switzerland, 2-4 November 2010, page 20.
8
Ibid.
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8
University

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Chapter 8: University
T
his chapter is concerned with English Language learning and
teaching in public universities, and focuses on the production
of graduates equipped with sufficient proficiency in English
to meet the needs of a developed and globalised Malaysia in 2020.
It deals with undergraduate degree programmes other than degree
programmes in the Teaching of English, leaving the teaching
of English, along with other aspects of teacher training, to be
treated separately in Chapter 9. The Roadmap covers only public
universities at tertiary level, and so the contents of this chapter do
not necessarily apply to other institutes of higher learning such as
colleges and private universities.

8.1 BACKGROUND

This section considers the national problem of the poor English


communication skills of graduates from the point of view first of
universities themselves, secondly of employers, and thirdly of the
national agenda.

8.1.1 University English Language Learning and Employment

The essence of the problem at university level is that less than


half of the graduates produced each year by our public universities
achieve the level of communicative ability in English that is

246
required by potential employers. A national study, namely The The pressure to raise standards of English has been brought
Graduate Employability Blueprint 2012-2017 (henceforth GE about not only by changes in the world outside, but also by
Blueprint), commissioned by the Ministry of Higher Education, developments within the university sector itself. Universities in
found that more than half (54%) of undergraduate students from Malaysia are undergoing the twin processes of internationalisation
six Malaysian universities had only a limited command of English. and globalisation as universities across the globe form networks of
links in what is rapidly becoming a global higher education system.
English education at university level has in the past been
They are under increasing pressure to produce graduates capable
designed largely to enable students to handle academic content
of using English not only for local purposes within Malaysia, but
and activities in English, and for the students own personal
also for a variety of purposes at an international level.
development. In the present century, in the wake of globalisation
and the emergence of English as the global language, the purpose The increase in the number of overseas students brings
of English language education has to include making the students globalisation on to the campus and into the lecture room.
employable. The kind of graduate we now want to produce in our Universities now have to respond to the needs of a broad range
public universities is one who is employable in a globalised economy of stakeholders and take on additional responsibilities, including
in which English is the most important language of communication. the development of communication skills and other soft skills.
Although communication skills and other language-based skills are
While there is evidence that poor English competency
not linked specifically to English in principle, the practical reality
hampers the ability of graduates to communicate effectively in
in the modern world is that at an international level these skills do
the workplace, studies by Bennet (2014), Metcalfe (2011) and
have to be exercised in English.
others have consistently demonstrated that those who have a
good command of English are much more likely to advance in their There is a need to develop effective learning, language
careers, and enjoy the advantages of more highly paid jobs, more and communication skills for reasons of employability, career
social mobility, and greater social success. It is in the interests development and life-long learning. This means that high standards
of the students themselves to achieve the standard of English of English have to be complemented by a set of soft skills which
required for immediate employment on graduation commensurate are increasingly highly valued in universities worldwide.
with their academic qualifications, longer-term international
marketability, and life-long learning.

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English Language Education Reform in Malaysia
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8.1.2 The Expectations of Employers are related to the lack of English skills. According to the 2011 report
by Ainol Madziah Zubairi et al., English Language Competency for
There is a comprehensive body of literature dealing with the
Entry Level Employment: A Market Research on Industrial Needs,
attributes required of graduates on graduation and moving directly
Malaysian employers have expressed their dissatisfaction with the
into employment or on to postgraduate studies (Bridgstock, 2009;
general level of preparedness of graduates as prospective entry-level
Gedye, Fender & Chalkley, 2004; Kaur & Kaur, 2008; Omar, M.K.
employees. They have considerable reservations regarding graduates
et al., 2012; Rasul & A.P. Puvanasvaran, 2009; Trigwell & Dunbar-
nontechnical abilities or employability skills, particularly English
Goddet, 2005). These studies list attributes gathered through surveys
language proficiency.These concerns have been the subject of earlier
of former students in employment or through initiatives and research
studies (Isarji et al., 2008, Stapa et al., 2008; Suan, 2004).
conducted by universities driven by the employability agenda.

In the Malaysian context, industry players and employers are


specific about the need for proficiency in English. A study by Kahirol 8.1.3 The National Agenda
Mohd Salleh et al. (2010) found that communication skills in English
The definitive document on graduate employability is the GE
are necessary for effective communication and information sharing,
Blueprint, which clearly states that universities have always been
and are essential in international business circles. Several other
considered the cornerstone of a countrys supply of quality and
studies involving engineering and the service industry cite proficiency
talented human resources (p. 4). The GE Blueprint analyses this
in English as an important skill for candidates for higher positions
role of universities in the context of the demands of todays complex
in a company. Rozila Ahmad and Noor Azimin Zainol (2011) found
global employment market, and identifies urgent issues and challenges
work experience and proficiency in English to be requirements for
for graduate employability arising from these changes, in particular
managerial posts in Malaysian five-star hotels. In order to achieve
problems encountered by employers taking on fresh graduates. The
international employability, Malaysian graduates need a level of
most common problem for employers, reported by 55.8% of the
proficiency in English that will enable them to interact effectively with
companies surveyed, is a poor command of English. In view of the
other speakers of English.
crucial role played by universities in not only providing graduates with
Given the importance of English in the workplace, it is not qualifications but also making them employable, it is imperative for
surprising to find that employers complaints about graduates inabilities the universities to acknowledge and address the issue of poor English

248
language proficiency among their graduates. Universities should, as far the existing English language programmes and courses offered
as possible within the constraints of time and resources, ensure that at university, and existing initiatives to improve student language
the English language proficiency of their graduates on exit meets the proficiency in higher education.
demands of the current employment market. In fact, the GE Blueprint
emphasises the need for universities to take the lead and initiate a
review of current university curricula. 8.2.1 English Language Curricula

The role of universities in producing employable graduates requires English language education in universities can generally be divided
a system that encourages students to become more competent, into three categories: English Language proficiency courses, English
knowledgeable and creative, and to develop the necessary social and Language degree programmes, and Teaching of English as a Second
personal attributes. Students have to acquire these attributes as they Language (TESL) degree programmes. The concern in this chapter
progress through university. It is important that universities incorporate is with proficiency courses. Traditionally, English language courses
the development of these core attributes into their curricula, to ensure were offered in most universities to equip students with the necessary
that graduates are equipped with the required fundamentals before language skills for general, social, academic and occupational purposes;
leaving their universities. The onus is on universities to develop the but nowadays they tend to include more precisely targeted proficiency
Employability Attributes Framework (EAF), a holistic and integrated courses designed to prepare undergraduates for employment. These
curriculum based on GE core skills and on Graduate Employability courses are offered at different proficiency levels, and may be general,
Competencies (GEC) aligned with the needs of industry, and to bear specific or academic in nature.
this responsibility in mind in the development of the English language
curriculum (GE Blueprint, 2012). Although these language courses usually come under the category
of university-required courses, they differ in content and contact
hours from university to university, and as such there is no common
8.2 A REVIEW OF UNIVERSITY ENGLISH LANGUAGE curriculum for English language learning across public universities.
PROGRAMMES The report on English Language Teaching and Learning at University
Level (2013) highlights the wide range in English language curricula
Before identifying the issues related to English language teaching offered by public universities. Some universities offer only general
and learning at tertiary level, there is a need to examine critically English courses, some skills-based courses, and others a mixture of

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the two. The minimum number of credit hours allocated for English described as essential for entry-level employment. Recognising that a
language learning ranges from two to eight, generally to be completed learners active participation ensures greater success, universities have
within three to four years of undergraduate study. made considerable efforts to encourage learner autonomy in many
language programmes with the introduction of learner-centred, self-
Given the realities of the English language learning situation
directed and blended learning. However, Thang (2001, 2003 & 2005)
in public universities, it would be difficult to design and establish a
found that undergraduates from three public universities in Malaysia
common curriculum. What is possible, however, is to specify clear
were very much teacher-centred, which seemed to be the result
guidelines which would be regarded as desirable for any university
of a school system in which language teaching is itself still teacher-
language curriculum, and which if met will ensure that students
centered and students have been nurtured in a culture of exams
graduating from our public universities are more employable.
through formulaic learning.
The above-mentioned 2013 report also highlights the findings of
A paradigm shift is therefore required for undergraduates to move
a needs analysis carried out by UM, UiTM, UKM and UPM, which
away from being spoon-fed and embrace self-directed learning and full
confirms the findings of earlier studies that, in general, employers feel
learner autonomy. In line with such autonomy, students will be able,
university-level English language courses do not adequately prepare
at the end of their studies, to build their own language portfolios along
undergraduate students for the workplace, and that their English
the lines of the European Language Portfolio (henceforth ELP)
grades are not a true reflection of their English language ability in the real suggested by the Council of Europe. At this juncture, the Common
world. This concern was also part of the reason for the GE Blueprints European Framework of Reference (henceforth CEFR) descriptive
recommendation that universities review their existing curricula. scheme offers a useful starting point for revised English curricula at
universities (see Chapter 3 for a detailed description of the CEFR).
8.2.2 Teaching and Learning In this framework, a task-based approach to teaching and learning in
which use of the target language plays a central role is emphasised,
In response to the intiative by the Ministry of Higher Education in while its understanding of the learners role suggests that the
encouraging universities to move towards Outcome-Based Education development of learner autonomy (learning how to learn, assuming
(henceforth OBE) in order to ensure quality, the focus on teaching and proactive responsibility for the learning process) should be a priority
learning needs to be on learner autonomy. Learner autonomy produces (Little, 2009, p. 4).
independent graduates with the soft skills that most employers have

250
The proposed language portfolio fosters learner autonomy and from that for language teachers in schools; it has to address the specific
contains a scaled checklist of I can descriptors. Following Littles challenges confronting them as their students are young adults and
seminal paper at the ALTE Conference in November 2009, other require different approaches to learning and forms of assessment.
studies have been conducted on the use of the CEFR for curriculum,
Materials used for teaching and learning also differ from one
pedagogy, and assessment (see e.g. Papageorgiou, 2014; Santiago, 2012;
university to another. Some produce their own teaching materials,
Faez et al., 2011; Turnbull, 2011; Westhoff, 2007; Wu & Wu, 2007).
while others adopt or adapt materials that are available commercially.
In many universities, English language courses are taught by However, it is not known whether or not materials in current use draw
language teachers, language instructors and lecturers. Many but on the resources of the CEFR, and this highlights the need for clear
not all of these have some kind of teaching certification, and each guidelines to help universities review and align their teaching materials
university has its own criteria for employing language teaching staff, in accordance with a CEFR-aligned curriculum.
with the result that there are no common, specific, language teaching
qualifications or minimum English proficiency level required of To improve their English, university students need continuous
teaching staff across universities. Language teachers are assumed to engagement with the language. In the absence of a situation in
be the language role model for students, and so in order to achieve which students can be immersed in the language, universities
the aspirational target for graduates English language on exit, it is must create language engagement through an increase in learning
necessary for those teaching university English language courses to hours combined with a programme offering incidental learning
have a higher level of proficiency. In addition to a minimum level of in addition to planned instruction. At the present time, English
proficiency as a criterion for initial employment, the English language language education in most universities mainly takes the form
proficiency of teachers in service needs to be evaluated at appropriate of structured, credited courses that constitute part of a formal
intervals. However, this evaluaton is not known to be carried out by curriculum. Teaching and learning are carried out in formal classes,
any university. There is an assumption that language proficiencies do guided by carefully structured learning objectives and content
not change, and this is the possible reason for a lack of institutional outlines that have to meet MQA requirements.
emphasis on continuous professional development (henceforth
While there is a need for such formal, structured learning,
CPD) specifically for language teaching staff. It is also important to
students would also benefit from additional incidental learning
note that CPD for language teachers in universities has to be different
(i.e. learning a language while engaging in another primary

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English Language Education Reform in Malaysia
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Informal, stress-free
English language
activities outside the
classroom encourage
incidental learning while
increasing engagement
time with the language.

activity). Structured language courses should be complemented however, not every university is currently prepared to make the
by language activities beyond the classroom focused on the same kind of commitment.
communication of content rather than on specific aspects of the
In addition to an increase in learning hours and activities
language. One currently available example of an approach that
beyond the classroom, there is also a need to create an English-
combines structured courses with more project-oriented courses
rich environment in every university. Students would have greater
as well as activities beyond the classroom is the English Language
engagement with the language if English could be used as the
Experience (ELEx) package being implemented in Universiti Putra
medium of communication for more content courses, co-curricular
Malaysia. The three components of ELEx are designed to provide
activities, university bulletins and other informational materials.
formal, structured learning, and to encourage incidental learning.
English teaching and learning are currently the sole responsibility
Introduced in September 2013, it needs three years before the first
of a language centre or unit assigned with the task, but creating an
cohort of ELEx learners can be adequately assessed to evaluate
English-rich environment requires collaboration between a language
the effectiveness of the approach (Mardziah H. Abdullah et al.,
centre or unit and other entities in a university. To make such efforts
2015). Initiatives of this kind require institutional commitment to
possible and successful, institution-wide support is essential.
an increase in learning hours focused on English language learning;

252
8.2.3 Assessment employers. At present, however, there is no common exit test to
provide employers with the English language profile of prospective
Since there is no common curriculum used by universities recruits. It would be useful, therefore, to have the results of an exit
in Malaysia, there is also no common form of English language test as a record of the students proficiency in English to accompany
assessment for graduates. In view of the variety of English language their degree. It must be noted that there is no intention to make a
courses offered by different universities, assessment tends to be certain level of proficiency a condition for the award of a degree.
based on the learning outcomes for particular courses, and these do This means that a good student with poor English could graduate
not necessarily reflect the language proficiency or the communicative with, for example, a CGPA of 3.1 in Engineering and a CEFR Level
competence of the graduate. Graduates who obtain As in their English of A2 in English. The design and content of such a profile will require
language courses may nevertheless not have the ability to use English close liaising with employers to ensure that the language skills being
proficiently in real-life situations. Currently, universities use a variety developed and assessed correspond to the requirements of employers.
of methods to assess the English language abilities of undergraduates. Such liaisons will also provide useful feedback to universities on the
What is needed is a common framework of reference for assessing effectiveness of their English language programmes with respect to
English language proficiency across all universities, so that all the employability of their graduates.
stakeholders, including students and employers, know what their
Ultimately, the target is to produce graduates whose English
grades and qualifications actually mean. For graduates seeking to
language performance is benchmarked against international standards.
enter the international job market, it is absolutely essential to use
To achieve this target, the responsibiilty for monitoring progress
instruments of assessment and qualifications benchmarked against
towards a quality English language education system must lie with
appropriate internationally accepted standards, in this case the CEFR,
the universities themselves and with lead agencies such as Majlis
which will not only help to define language proficiency but also to
Peperiksaan Malaysia or the Malaysian Examinations Council to have
interpret students language qualifications.
a standardised internationally benchmarked exit test of English.
The intended outcome of English language programmes in general
The CEFR has an important role to play in assessment at this
is to provide students with the necessary skills to make themselves
level. The proposal for a test before graduation should focus on
employable. The general proficiency of students should be assessed
the alignment of skills required for employment with the CEFR
at the exit point, and a profile description made available to potential
descriptors in order to frame and develop appropriate assessment

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criteria. Central to the CEFR concept, and more important 8.2.4 An existing initiative for University English Language
than reliability, is the accuracy of decisions made in relation to a Programmes
standard, which in turn depends on the validity of the particular
Universities differ from schools in that whereas all schools are
standard, the criteria used to reach the decision, and the validity
required to follow a common curriculum laid down by the Ministry of
of the procedures used to develop those criteria.
Education (MoE), the curriculum to be followed in universities is the
Thus, what is assessed, and how performance is interpreted are key prerogative of the individual university. Each university has the right to
concerns for the Framework. There are three main ways in which decide what kind of English language programme to offer, if any, and
the CEFR can be used in assessment (Common European Framework what assessment tools are to be used to measure the English language
of Reference for Languages: Learning, Teaching, Assessment, Council of proficiency of its students.
Europe, p. 178):
This situation has resulted in problems addressed in the report
1. Specifying the content of tests and what is assessed entitled English Language Teaching and Learning at University Level
examinations: (MoE, 2012), which highlights the need for some general framework
2. Stating the criteria to determine how performance is to promote and facilitate cooperation in the organisation of English
the attainment of a learning interpreted language education across public universities in Malaysia. To facilitate
objective: this cooperation, the MoHE proposed a general structure for English
3. Describing the levels of proficiency how comparisons language education, presented in the report and summarised in Figure 8.1.
in existing tests and examinations can be made This guide enables universities to decide according to their own
thus enabling comparisons to be particular circumstances how best to plan, construct and evaluate
made across different systems of courses geared to the characteristics and needs of their students
qualifications: and targeted at a sufficient level of communication skills in English to
Even though assessments may take many forms in different parts satisfy language requirements for employability.
of the world, having a set of common standards such as the CEFR
gives an advantage as it makes it possible to relate different forms
of assessment and their results to one another using these common
standards.

254
BEYOND CLASSROOM LEARNING
Immersion in
English (Bands
4-6 CREDIT 1 & 2)
FORMAL LEARNING HOURS
STUDENT INTAKE

Extra-curricular
Intensive English activities
(Bands 1 & 2)
Self-Access English
General English Learning Language
MUET (Bands 3 & 4) GRADUATE
Industrial PROFILING FOR
BANDS EMPLOYABILITY
English for Placements EMPLOYABILITY
Employability (OPTIONAL)
(Bands 5 & 6) Icon Programme
and Peer Support
English for Specific Programme
Disciplines (On
request) Native Speaker
Support
Programme

AWARENESS-RAISING PROGRAMMES PUBLICITY NEW MEDIA

Figure 8.1 The Proposed Structure for English Language Education at University

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Immersive activities
focusing on
communication provide
the experience of
learning English in
a non-threatening
environment.

The bands referred to in the diagram are those used in any university and includes the four components designed for students
connection with the MUET, which measures English proficiency, at different levels of proficiency as measured by the MUET Bands:
and which provides entrance requirements for all Malaysian public
1. Immersion in English is offered to students in Bands 1 and 2.
universities (for a detailed description of the MUET, see Chapter
The aim is to provide the experience of learning English in a
7). The MUET has been and will continue to be the examination
non-threatening environment. The focus is on communication
for entry into public universities.
rather than formal details of the language.
The decision on the appropriate band(s) to be used as entrance
2. Intensive English provides support for students in MUET
requirements for particular university degree programmes is the
Bands 1 and 2 before they go on to general proficiency. It is
prerogative of the individual universities themselves. Often,
designed to help incoming students who have problems with
students MUET bands are used for placement purposes, in order
their English, and enable those not yet proficient in English to
to start them off at the appropriate level of language learning.
improve their basic language abilities. The focus is on developing
The general structure for this initiative has employability as its accuracy and fluency in speaking, writing and understanding,
target, using English as the means to achieve it. It can be adopted by with the necessary support in basic grammar and vocabulary.

256
3. General English is designed for students in MUET Band 3, and and interact as members of a particular social-cultural group, for
for those who have completed the Intensive English Course. example, as university students when they are at university, as
The aim is to help students improve their overall command members of a working community when they are employed, and as
of English in terms of general proficiency. The emphasis is on members of the international community when they communicate
the kind of English that they need in order to communicate with people from other countries, either locally or overseas.
either in speech or writing. The contents of these courses will
The task of raising standards has been made clearer by the
focus on general topics so that students will become more
CEFR. To ensure that the levels of proficiency attained by
interested in the lessons, leading in turn to an increased sense
Malaysian graduates are consistent with international standards,
of motivation in their studies.
the CEFR will be used as a framework of reference for English
4. English for Specific Disciplines (ESD) is designed to improve language learning and teaching in public universities in Malaysia.
and refine students knowledge of English, and their ability to
An important matter that needs attention is the common
function in an academic environment and other professional
national exam, MUET, used presently by all universities as
settings, and in specific subject-matter areas such as business,
an entrance or exit requirement for a programme of study.
medicine, law, science and technology, built environment,
Different programmes specify different MUET Band levels as the
engineering etc. The notion of formality in language use
English language entrance requirement. Although the MUET is
is to be explored at this level, and it is hoped that students
conceptually close to the spirit of the CEFR in that it is concerned
will become better equipped to use English appropriately and
about language proficiency in real situations, it was developed
professionally.
with greater emphasis on reading skills, as reading was perceived
5. English for Employability (EfE) is designed to develop further as the skill most required by undergraduates.
the English language and communication skills that students
However, as universities align their language courses and
need in order to communicate effectively in their social lives
programmes to the CEFR standards, it is clear that necessary
and in their professional careers.
modifications or changes are required to align the MUET with
Underlying the structure is a consistent philosophy. The overall the CEFR as well, and to ensure that the MUET bands match
purpose of learning English is to enable students to communicate closely with corresponding CEFR levels. With these changes and

257
English Language Education Reform in Malaysia
The Roadmap 2015-2025

alignment of the MUET, it will be


possible for universities to use MUET CURRICULUM TEACHING & LEARNING ASSESSMENT
results for placement in CEFR-
aligned courses and the MUET as an No common Teacher-centred Discrepancy
exit test for graduates. curriculum across pedagogy in most between graduates
all universities universities English competency
based on their
Programmes Teacher English language
and courses not Competence: no scores in university
8.3 ISSUES AND GAPS informed by a common minimum language courses
common standard proficiency level and their actual
or reference and competencies performance during
Malaysian universities are largely for teachers
autonomous with regard to the Course Credits range job interviews
academic programmes they offer, from 2-8 (80-320 Instructional No common
and since this autonomy extends notional hours) Materials: original, denominator
- insufficient for adapted materials for comparison
to the range and types of English
mastery of higher or textbooks based or reference
language courses that are offered to levels of proficiency on individual
undergraduates within each university, syllabi and course No alignment
issues relating to English language Minimum MUET outcomes with international
learning and teaching in the university
Band entrance standards
requirement not
are equally varied. However, as in
implemented for
schools, there are common issues that all programmes
plague English language curricula,
teaching and learning and assessment Lack of systemic
institutional support
(Figure 8.2).
for English language
development

Figure 8.2 Issues at University Level


258
8.3.1 The Need for Reform: Common Issues programmes. However, these minimum requirements are not
always adhered to, resulting in the admission of students whose
In reviewing English language education at university level, a
English proficiency is inadequate for the demands of the academic
number of common issues and needs have been identified in the
programmes in which they are enrolled. This situation presents
three key areas of language curriculum, teaching and learning, and
a great challenge to the curriculum, teaching staff and students
assessment.
themselves, as such students will require more contact hours
At present, there is no common English Language curriculum and more help in order to achieve proficiency levels expected by
across the universities, and having a common one may not be employers on leaving university.
viable as public universities have different programmes and are
Although language teachers in universities are seasoned
largely independent of one another. In addition, existing English
practitioners familiar with different types of curriculum and teaching
Language curricula or programmes have not been internationally
pedagogy, classroom pedagogy tends to be teacher-centred as
benchmarked by any public university, suggesting the need
students are more comfortable with teacher-directed learning.
for a common international framework of reference which all
With the introduction of OBE in most universities, there have been
universities can use to inform their curriculum.
attempts to move towards learner autonomy. However, as seen in
Another concern is the extremely limited number of credit and studies cited, this has not been the case in language classrooms.
contact hours that universities are willing to allocate for language
With the continued use of teacher-centred pedagogy, the
learning. Research has shown that it takes between 600 and 800
teacher or instructor as the role model for proficiency and
contact hours for a student to reach the higher levels of language
competency becomes more important. Yet minimum levels of
proficiency, but the number of credit hours available ranges
teacher proficiency and competencies required by universities
from two to a maximum of eight contact hours per week for 2-4
vary greatly, and no common minimum level of proficiency or
semesters over the entire three or four years of study, translating
teaching certification stipulated for instructors teaching English
only into 80 to 320 notional hours of learning.
courses across all universities has been established.
The MUET is the required English examination for university
Significantly, there are few continuous professional
entrance, and individual universities have the prerogative to
development programmes specifically meant for language teachers
decide on minimum MUET Band entry requirements for specific

259
English Language Education Reform in Malaysia
The Roadmap 2015-2025

in universities. University English


instructors are also responsible for all CURRICULUM TEACHING & LEARNING ASSESSMENT
materials used in their courses, and
these range from adopted textbooks, A common CEFR-informed A common
adapted and original materials international pedagogy international
which help achieve specific learning framework of framework of
reference for Teacher reference for
outcomes of courses; but it will be Competence:
necessary for them to ensure such
curriculum across interpreting
universities - A common performance across
materials are aligned to international
minimum entry universities
standards. Increased credit
hours for English requirement for Benchmarking of
There is also a lack of systemic proficiency teachers across student performance
institutional support for English universities against international
proficiency development in most
Implementation standards
of minimum - Continuous
universities, reflected in minimum
English entrance Professional Alignment of
credits for English courses, few requirement Development for student performance
activities conducted in English language teachers indicated by
beyond the classroom, and minimal Systemic grades with actual
institutional performance in
opportunities for students in certain
support for the job situations
programmes to engage with the development of
language in other courses. Institutional English proficiency A standardised exit
support needs to be established in order test to measure
to create English-rich environments in language proficiency
in universities and for students to truly
comprehend the international, global
nature of the language.
Figure 8.3 Necessary Conditions for Reform

260
Employers have drawn attention to language grades that do not 8.4.1 The Proposed CEFR-aligned Curriculum
reflect the performance of graduates at interviews. There is a great
It is clear that a CEFR-aligned curriculum is better able to
discrepancy between interviewees English competency and scores
inform language teachers, administrators and everyone involved
obtained for university language courses. Given the limited credits for
in language teaching in universities about the levels of proficiency
language learning, most universities offer courses with specific learning
and competency that their students can attain. According to the
outcomes, and the grades reflect internal assessment of courses taken
CEFR, the reference levels can be presented and exploited in a
by students rather than proficiency in real social situations.
number of different formats and in varying degrees of detail. A
Currently, there is also no common framework to interpret variety of language courses and programmes can be aligned to the
students language scores or performance across universities. CEFR.
Using a common international framework of reference will allow
The existence of fixed points of common reference (A1, A2,
employers to interpret students language performance across
B1, B2, C1 and C2) offers transparency and coherence, a tool
universities and against international standards. Some form of exit
for future planning, and a basis for the further development of
test based on the framework would also meet these needs.
curricula. Each CEFR level corresponds to particular language
tasks that students should be able to perform.
8.4 THE WAY FORWARD
For example, according to the CEFR global scale, a graduate who
has achieved C1 can understand a wide range of demanding, longer
In view of the issues and needs identified in the three key areas,
texts, and recognise implicit meaning, can express him/herself fluently
certain necessary conditions must be in place for the effective
and spontaneously without much obvious searching for expressions,
reform of English learning at university level. The most important
can use language flexibly and effectively for social, academic and
of these is the need for a common international framework of
professional purposes, can produce clear, well-structured, detailed
reference, which is the specific function of the CEFR.
text on complex subjects, showing controlled use of organisational
Figure 8.3 presents the necessary conditions for reform guided patterns, connectors and cohesive devices (CEFR, p. 24). Aligning
by the CEFR and inspired by the national agenda of graduate current language programmes to the CEFR will enable universities
employability. to have a common international framework of reference.

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English Language Education Reform in Malaysia
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Student-centred
and student-
led learning is
encouraged in a
CEFR-oriented
classroom.

8.4.2 CEFR-oriented Teaching and Learning Thus, a CEFR-oriented pedagogy encourages the learner
to be autonomous and proactively involved in a task-based
The introduction of the CEFR for language learning would
curriculum, which in turn enhances life-long learning towards
require in-depth training and continuous professional development
employability. This motivates the need and demand for an
of teachers in order to achieve effective pedagogy. The CEFR
internationally benchmarked minimum level of teacher proficiency
adopts learner-centredness in line with its action-oriented
and competency in order to achieve the aspirational target for
approach, which describes language use in terms of the individual
graduates at the exit point.
learner-users communicative capacity.

Autonomous learning is promoted and regarded as an integral


8.4.3 CEFR Targets
part of language learning, so that learners become increasingly aware
of the way they learn, the options open to them and the options that In view of the aspirational targets, universities will need to
best suit them. Students can be brought increasingly to make choices ensure that students have every opportunity to attain a high B2
in respect of objectives, materials and working methods in the light or C1 as required for employability. On its website, Cambridge
of their own needs, motivations, characteristics and resources.

262
English states that a qualification of CEFR level B2 shows that aligned to Levels B1 and B2 results on the CEFR, indicating that
one has the language skills to start work in an English-speaking people who achieve these levels are independent users. As these
environment. are the levels of proficiency generally considered adequate for
entry into universities, these findings indicate that the MUET is
Although the aspirational target for achievement and
appropriate as an entrance test.
employability at the end of Phase 3 or 2025 is a CEFR level high
B2 or C1, and entrance requirement is a low B2, universities However, the findings show that the test does not discriminate
may continue to have different entrance requirements for their as well at the lowest levels of Bands 1 and 2 and the highest levels of
programmes. Bands 5 and 6. This means that in order for the MUET to be used to
determine whether students in Bands 1 and 2 have attained a higher
To ensure improved language proficiency for graduates, the
proficiency and performed better on the test, the MUET needs to be
MoHE has stated that all undergraduates, regardless of their entry
refined or changed in order for it to be a valid and reliable test.
MUET levels, must exit the university at one level higher than that
with which they entered the university. This requirement is to be Given the need to review the MUET so that it can be used
implemented in 2016 with the 2016 intake of students who are as an appropriate exit test, an alignment exercise is already
expected to graduate in 2019/2020. underway. Universities could in the interim employ alternative
internationally standardised tests to indicate improvement in the
It is recommended that this requirement be applied to students
students proficiency levels. In addition, universities are free to
with MUET Entry Level Bands 1 to 3. Those with Bands 4 to 6
carry out complementary forms of assessment for the English
should not need to be re-assessed on the MUET but they should
courses offered.
show improvement.

As the MUET will be used as a guide for student placement


in CEFR-aligned programmes, the test needs to be aligned to the 8.4.4 The Roadmap
CEFR. An alignment exercise has already been undertaken, with
This section explains the general direction proposed for the
Cambridge English as an independent evaluator. Initial findings
university-level English Language Roadmap, the strategic plans
show that Bands 3 and 4 results based on the MUET are closely
and actions for each successive phase of the journey, and the

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Entry Exit
Point
English Language Education in Universities Point
low HIGH
B2 B2/C1
CEFR-INFORMED CURRICULUM + TEACHING & LEARNING + ASSESSMENT

Figure 8.4 Eventual target level of English Language Education in Universities

milestones which can be expected to have been achieved at the meantime, it is expected that students will enter and exit university
end of each phase. at levels below these targets.

The hope is for all students to enter university with at least a The target level of achievement for the first phase of the
low B2 on the CEFR scale. During their studies, they should be Roadmap (2015 - 2016) is a low B2, which corresponds to the ability
given an English language learning experience informed by the of an Independent User. As defined by the CEFR, independent
CEFR. Curriculum, pedagogy and assessment should all be based user proficiency indicates the ability to hold ones own in social
on can do statements appropriate for this university group. discourse. The target for the second phase (2017 - 2020) is a high
B2, which relates to a highly independent user. At this level,
The achievement hoped for at the end of their journey is for non-
students are able to handle discourse that is more demanding; they
TESL and non-English majors to graduate with levels of proficiency
have the ability to be flexible, and have control of the language
ranging from B2 to C1 (see Figure 8.4) and for TESL and English
elements for social, academic and professional purposes. In the
majors to graduate with levels ranging from C1 to C2. The concern in
third phase (2021 - 2025) the target is a high B2 or low C1, at
this chapter is, however, only with non-TESL and non-English majors.
least for students who enter university with CEFR B2. At the
These aims are not immediately achievable, and it may be end of their university careers, students are expected to exit the
at least 10 years before we can realistically expect students to university as independent, proficient users of English.
enter and exit university with the aspirational target levels. In the

264
8.4.5 Action Plans related tasks employees should be able to perform. Materials need
to be reviewed in the light of the curriculum review. In order to
The university-level English Language Roadmap is to be achieve the targets, it will be necessary to increase the credit
implemented with effect from 2015, and will be carried out in hours for English language learning,
four phases ending in 2028. The proposed phases are guided by
As a rule of thumb, some 200 hours of guided learning hours are
the MEB (2013 2025) and the GE Blueprint (2012 2017). The
required for an adult language learner to master one CEFR level.
timetabled actions of the university level Roadmap are presented
Slightly less hours are required for the lower levels of proficiency.
in Section C of this document.
The minimum total number of hours required by an adult learner
to attain a CEFR level C1 proficiency would be at least 800-1000
guided learning hours.
Phase 1: Preparing For Structural Change (2015 2016)
A student entering university with a high MUET Band 4 or 5
The first phase is intended to establish the CEFR as a common
should be able to attain a low C1 proficiency with a minimum of
framework for curriculum, pedagogy and assessment across all
6 credit hours (240 hours of student learning time). However, as
universities. The focus will be on reviewing existing curricula,
many universities entrance requirements for English are below
aligning them with the CEFR and GE competencies, and adapting
these bands, an increase in credit hours for English language
the CEFR for the Malaysian context.
learning would be required to enable students to meet the B2/C1
Adopting the CEFR as a common framework does not exit requirement.
necessarily translate into developing one common curriculum for
It is important, then, that universities observe the minimum
all universities. Each university will still have the autonomy to
English language entrance requirement and encourage incidental
determine its own course content, sequence of courses and learning
learning through exposure to English beyond the classroom.
outcomes, but the CEFR provides a frame of reference for setting
Institutional-level commitment will be needed to support
or calibrating course outcomes to meet target proficiency levels.
collaboration between the language proficiency unit and other
In developing or re-engineering learning outcomes, it would be entities in the university.
useful to incorporate input from employers about what language-

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Discussion and agreement are needed to specify the courses or During this phase, the CEFR will also be adopted as the
parts of courses, co-curricular activities, and other learning activities framework for assessment. Existing assessment methods and
that can be conducted in English. Interaction-rich activities such standards will be reviewed and aligned according to specific CEFR
as problem-based learning sessions, group investigative projects entry and exit targets. As there is no existing exit data on the English
and practical course components lend themselves well to the use proficiency of students at graduation, a CEFR-benchmarked test
of English as the medium of communication to allow for greater needs to be established to ascertain baseline proficiency levels for
engagement with and incidental learning of the language. During the roadmap. As this phase represents the beginning of the whole
this period, universities should also be developing and reviewing national CEFR-informed journey, the expected proficiency level
English language teaching and learning, and assessment tools. for students exiting tertiary education during this first phase will
be a low CEFR level B2.
The review of curriculum and materials will be accompanied
by the alignment of teaching and learning with the CEFR, so that
learning objectives are aligned with the CEFR targets. The spirit of
Phase 2: Implementing and Monitoring Structural Change
the CEFR will necessitate the promotion of autonomous learning
(2017 2020)
among students, as they will need to learn how to monitor their
own progress in the form of can do statements. The second phase will focus on implementing, developing
further, and/or monitoring efforts initiated in Phase 1.
These changes should bring about a systemic transformation
of English language learning accompanied by the creation of the The curriculum, having been reviewed and aligned to the
English-rich environment mentioned above. Existing English CEFR in the first phase, will be implemented in the second. During
Language teachers will be key agents in the process of change, this period, the curriculum will be improved to reach more CEFR
and thus, they will need to have a qualification in education and an targets. Following the review of materials in Phase 1, this phase
adequate level of proficiency. The current language qualification should see the development and adoption of course materials
for teachers therefore needs to be reviewed at this stage, followed aligned to CEFR standards and appropriate for the Malaysian
by the introduction of C1 as the minimum proficiency level. context. The minimum English language proficiency requirement
implemented in Phase 1 will now be reviewed.

266
In line with the implementation of the CEFR-aligned curriculum, During this period, the CEFR-aligned curriculum will be
CEFR-driven teaching and learning will be developed and reviewed in the light of feedback first from parties such as
implemented. Improvements in the quality of teachers and teaching teachers, students and institutions who are directly involved in
initiated in Phase 1 need to be complemented by CPD for teachers. the implementation process, and secondly from parties such as
Recertification of teachers English proficiency based on a CEFR- employers who are expected to benefit as a result.
referenced test has also to be made a criterion for promotion.
At this point, it will be appropriate to develop and conduct
During this phase, there needs to be monitoring of efforts initiated
an Employer Satisfaction Survey (ESS) to ascertain employer
in Phase 1 to promote learner autonomy and systemic efforts to
satisfaction with graduates English language performance, data
sustain the English-rich environments created in the first phase.
from which will provide feedback on the effectiveness of the
Appropriate assessment practices for the CEFR will be CEFR-aligned curriculum.
developed and implemented. CEFR assessment targets established
Feedback from Alumni on the curriculum would also be
in Phase 1 need to be enforced now. At this point, it will be time
very useful; appropriate questions could be easily incorporated
to develop and pilot a standardised CEFR-benchmarked test
into alumni tracer studies that are already being conducted by
for universities. An established CEFR-benchmarked test will
most universities. Problematic aspects of the curriculum will be
be conducted on a sample of university students to monitor the
identified and addressed in order to refine and strengthen it.
effectiveness of efforts so far undertaken. At the end of this phase,
it is hoped that graduates will be able to achieve a proficiency level The effectiveness of CEFR-driven teaching and learning
corresponding to a high B2 on the CEFR scale. will also be reviewed during this period, based on feedback from
teachers and students. The quality of language teachers will be
reviewed and appropriate upskilling efforts continued.
Phase 3: Scaling Up Structural Change (2021 2025)
During this phase, an established CEFR-benchmarked test will
The focus during the third phase will be on reviewing strategies
be conducted to monitor the language competence of the entire
and efforts implemented in Phases 1 and 2, and monitoring graduate
university graduate population at the exit point. Data from this test
attributes at the point of exit from university in line with the GE
and the ESS will be used to study the extent of the match between
Blueprint.

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student performance indicated by grades and actual performance 3 will validate the CEFR-informed efforts to develop the desired
in job situations. graduate attributes for employment in line with the GE Blueprint.

At this point, the standardised CEFR-benchmarked test for At this final stage of the roadmap, universities should also be
universities should be reviewed and validated. A CEFR level of validating the standardised CEFR-benchmarked test developed
high B2 to C1, in line with employers expectations of graduate during the third phase. At this point, universities should be able to
English language proficiency, should be considered the minimum take in students with low B2 at entry level, and bring them up to
English language requirement on exit from university. an exit proficiency level between a high B2 and C1 on graduation.

The Post-MEB Phase (2026 2028) 8.4.6 Expected outcomes


Based on data from the first three phases, the focus of the The roadmap for Universities identifies expected outcomes at
fourth and final phase of CEFR implementation (2026 2028) the end of each phase, and these will enable universities to assess
will be on validating the appropriateness of the Malaysian CEFR- the progress made in each phase. The outcomes are categorised
aligned curriculum, its attendant teaching and learning efforts, and under the three main areas of curriculum, teaching and learning
its assessment methods. and assessment. The target exit proficiency level at the end of
During this final phase of the university roadmap, we should each phase indicates the level at which it is hoped non-English
be establishing the external validation of graduate competency major graduates will exit the university.
in English for the university students who have gone through the In the first phase of the roadmap, graduates are expected to
CEFR-informed English Language education journey, by means of exit the university at a low CEFR B2 level. At this stage, the
an established CEFR-benchmarked test. CEFR GE competencies-informed Malaysian university curricula
It is hoped that the results will lead to the validation of the CEFR is developed, the CEFR adopted pedagogy and assessments across
curriculum, CEFR-informed teaching and learning and assessment universities are reviewed, and CEFR targets are established.
methods in Malaysia. The data from the ESS conducted in Phase

268
In the second phase, graduates are expected to exit university experience is inconsistent, often teacher-centred. In the same
at a high CEFR B2 level. At this stage, the CEFR-informed way, when requirements for teacher recruitment vary across
curriculum and CEFR-driven pedagogy are implemented. CEFR universities, language teaching differs too.
assessment targets and exit test are developed.
Furthermore, when there is no common denominator for
In the next phase graduates are expected to exit university at a comparison as well as reference of the assessment systems at
high CEFR B2-C1 level. This is the stage where the CEFR-aligned universities, reliability of student achievements is compromised.
curriculum and teaching quality and upskilling efforts are reviewed. Thus, these key elements need to be coordinated and standardised
Graduate attributes are ascertained and a CEFR-benchmarked to a common framework, if we want to address the concern for
test developed for universities in Malaysia. English language proficiency and ability among graduates.

In the Post-MEB phase, graduates are expected to exit Hence, to achieve the aspirational targets set for university,
university at a high CEFR B2-C1 level. At this stage, the Malaysian it is recommended that English language education in public
university CEFR-informed curriculum, pedagogy and assessment universities include the implementation of:
are validated, efforts to develop graduate attributes for employment
the CEFR as a common framework of reference for the English
are validated according to an Employers Satisfaction Survey, and
language curriculum, teaching and learning, and assessment;
graduate competency in English Language is externally validated
based on exit tests. an increase in credit hours for English language learning;

a minimum teacher proficiency level corresponding to CEFR C1;


8.5 Implications and Recommendations
the recertification of English language competency for the
promotion of teachers;
Several implications can be drawn from the discussion within
the chapter thus far. In essence, it was emphasised that the three an internationally benchmarked exit test for all graduates and
key areas, namely language curriculum, teaching and learning, and
institutional support for the creation of an English-rich
assessment, need a certain level of standardisation. Since there
environment.
is no common university curriculum, students language learning

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In addition, it is recommended that English language reform in to teach them is not going to work. The more realistic approach
universities be carried out in tandem with a move to educate the proposed here is to provide a general framework which universities
public about the CEFR. Employers in particular will need to be can draw upon to design their own English language programmes,
informed about what the various proficiency levels indicate, the and modify to suit their own circumstances. This approach is in
aspirations of the English Language Roadmap in implementing the keeping with the spirit of the CEFR, which provides a framework
CEFR as a common framework, and its impact on employability. but carefully avoids telling individuals and institutions exactly what
they have to do.

8.6 Conclusion Although the onus is on universities to provide their students


with suitable courses, this does not mean that students are
In Malaysia, as in many other countries, the higher education passive participants in their own education. Being employable also
sector is set the task of producing a highly educated workforce includes taking responsibility for ones own personal development.
able to operate in an increasingly competitive and globalised The emphasis on English teaching at university level therefore has
world. Since English is the language of the globalised world, this to be on enabling the students to become autonomous learners,
means in practice that universities have to produce graduates able to assess for themselves what they have to do to improve their
to operate internationally in English. English and attain the necessary skills, and to develop the study
skills required to learn independently during their university career
The key ability involved here is to communicate effectively in and later in the workplace.
English both within Malaysia and internationally, and take part in
interactive situations in speech and in writing. Employability is no In line with such autonomy, students will be able, at the end of
longer seen as an incidental outcome of higher education, but as a their studies, to have their own language portfolio, which will be
target that has to be reached by appropriate and realistic strategies. the documentation of their university English language experience
and achievements.
In view of the different institutional cultures of our public
universities, and the relative independence they enjoy, a top-down
approach informing the universities what English courses they
have to provide for their students, and when and how they have

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9
Teacher Education

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Chapter 9: Teacher Education

T
his chapter focuses on English language education from
the perspective of teacher education, covering both the
pre-service and the in-service training of English language
teachers. Within the context of this roadmap, English language
teacher education (henceforth ELTE) is an important component
as it impacts directly on the quality of English language teachers,
and on the quality of English language teaching and learning taking
place across the school and higher education system.

To raise the level of English to international standards, the


entire process of English language education including ELTE
has to be aligned to international standards of English language
proficiency and competencies. In line with the MEB, the CEFR is
adopted as the framework of reference for ELTE, which includes
the initial process of selection for teacher education programmes,
the pre-service ELTE curriculum, in-service training programmes,
and the accreditation of English language teachers.

The discussion in this chapter is based on the premise that


quality English education needs a continuous supply of trained
English language teachers who undergo planned continuous
professional development throughout their careers. The intake
of student teachers must be based on a standardised minimum
CEFR proficiency level. The exit proficiency levels for all English
language teaching graduates must be set at a minimum C1. This
means that the ELTE curriculum, including assessment, must be
aligned to this level.

272
It is also recommended that the minimum English language In general, teacher education in Malaysia has had a two-track
proficiency level of teacher educators be set at C2. All English system with teaching colleges training non-graduate teachers for
language professional development programmes must also be primary and lower secondary schools, and universities producing
benchmarked accordingly. teachers with degree qualifications and a postgraduate diploma
in education (for those with a non-teaching specific degree) for
This chapter is divided into the following sections: 9.1 provides a
secondary schools (Lee, 2002). Subsequently, some of the colleges had
brief background sketch of the development of teacher education in
twinning programmes with local universities for degree programmes.
Malaysia; 9.2 highlights issues relating to ELTE from three perspectives:
Now known as Institutes of Teacher Education Malaysia (ITEM),
curriculum, teaching and learning, and assessment, while taking into
they can award the degree of Bachelor of Teaching.
account both pre- and in-service ELTE; 9.3 discusses the actions that
need to be taken on the way forward with the roadmap; 9.4 discusses Following the conversion of English medium schools into
the implications and recommendations that need consideration; and national Malay medium schools, English was taught as a compulsory
9.5 summarises and concludes the chapter. subject in both primary and secondary schools. Over the last four
decades there have been numerous initiatives (see Appendix 9.A)
to enhance English language teacher education at pre-service and
9.1 Background in-service levels.

The early years of teacher training saw the establishment of These initiatives have taken place within the context of changes
teacher training colleges in Singapore, Melaka and Tanjong Malim. in education policy and the curriculum as well as the liberalisation
After the Second World War, the increased need for teachers of education in Malaysia. Four main approaches can be identified
brought about the establishment of more teaching colleges in these initiatives (see Appendix 9.A):
(Ministry of Education Malaysia, 1967). Teacher training was also
(1) The use of expatriate English language teachers through
carried out in the United Kingdom, in Liverpool and Brinsford
programmes such as the CfBT English teachers placement (1978-
Lodge in the 1950s and early 60s (Ibrahim Ahmad Bajunid, 2004).
1984) and A Level (1984-1988) projects, and the Fulbright English
Teaching Assistants Programme (from 2012).

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(2) The training of existing English language teachers and teacher Like past initiatives, recent ones have been geared towards:
educators through programmes such as the English Language
(1) improving English language education in schools.
Native Speaker Mentoring Programme (2011-2015), the Project
to Improve English in Rural Schools (PIERS) conducted by (2) enhancing teacher education both at pre-service and in-
CfBT (2006-2012), the Training of Trainers for English Language service levels.
Lecturers in Institutes of Teacher Education (ELITE-ToT), and
(3) increasing the number of English language teachers.
Professional Up-skilling of English Language Teachers (ProELT)
conducted by the British Council and subsequently several other However, the declining standards of English in schools, among
private training providers (from 2012). Malaysian graduates and among English language teachers suggest
that there are gaps and issues that need to be addressed with
(3) Pre-service English language teacher education both locally respect to the entire national English language education system.
and abroad, such as the six-year B.Ed. TESL (or equivalent) One of these issues pertains to ELTE, and the following section
programme in the UK (1984-1997), and the twinning identifies issues and gaps in this area.
programmes between Institutes of Teacher Education Malaysia
and partner universities in the UK and New Zealand.

9.2 Issues and Gaps


(4) The training of non-English language graduates through the
Kursus Perguruan Lepasan Ijazah (KPLI) and the Certificate in Despite the range of initiatives carried out over the years to
the Practice of English Language Teaching (C-PELT) for non- enhance ELTE, both at the pre-service and in-service levels, several
option English Language Teachers, and the Reinforcing English issues and gaps are apparent in the training and development of
Language Teaching for Non-Option English Language Teachers English language teachers.
(RELTNOTe) for non-option English Language teachers not
following C-PELT (Ministry of Education Malaysia, Frequently The following sections present these issues and gaps, which are
Asked Questions). generally related to the three inter-related components curriculum,
teaching and learning, and assessment (see Figure 9.1).

274
9.2.1 The Absence of Curricular Standards for ELTE at the
Pre-service and In-service Levels

Figure 9.1 The ELTE landscape is marked by a range of providers and


programmes which come under the purview of different agencies,
Issues
Curriculum such as the Institute of Teacher Education Malaysia (ITEM), MoE,
and Gaps Absence of curricular Teacher Training Division, MoE, Department of Higher Education,
in ELTE standards at the pre-service
and in-service levels (MoHE) and the Malaysian Qualifications Agency (MQA). With
Absence of English language different providers at both the pre-service level (e.g. Universities
proficiency standards in the and ITEM) and in-service level (e.g. Institut Aminuddin Baki (IAB)
ELTE curriculum
and the English Language Teaching Centre (ELTC)), there are
issues pertaining to the content and delivery of the different ELTE
curricula, and these are compounded by a lack of coordinated
communication structure between the various divisions within
Teaching & Learning
the Ministry of Education and Ministry of Higher Education, and
Inadequate use of English Assessment
as a medium of instruction Licensure assessment among the ELTE programme providers.
in ELTE
Absence of a
Inadequate teaching standardised entry At the pre-service level, ELTE is provided by 26 ITEMs (one
knowledge and ineffective and exit level ITEM is purpose-built for Bahasa Malaysia only) and more than 20
classroom practices benchmarked English
Inadequate management of language proficiency public and private universities. These institutions offer both pre-
in-service teacher training test. service and in-service programmes of different durations. In-service
and development
English language education programmes are provided by ELTC.

Pre-service programmes are teacher preparation courses,


mostly at the certificate and diploma levels, offered to school-
leavers who have chosen to be teachers. These courses are usually
long-term courses ranging between one and a half to three years

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Taught in Taught in Bahasa


Component Credit Weightage %
English Malaysia

Major 45 34

Professional studies ** 27 20
Practicum **** 14 11
Compulsory subjects 23 17
Electives 24 18

TOTAL 133 100

** may be conducted in English if the lecturers from the Education Department are proficient in English
**** in both languages as trainees will teach the major and one or two other non-English subjects which will be taught in Malay

Table 9.1
The Bachelor of Teaching (TESL) Primary Education
Programme at Institutes of Teacher Education

276
for a diploma. ITEs conduct both diploma and degree level courses It also makes reference to the Pedagogy Standards for English
for the teaching of English. Language Teaching (PSELT), which is built along six dimensions:
proficiency, English language curriculum, learners, methodology,
Apart from ITEs offering the Bachelor of Teaching (TESL),
management, and assessment. However, there is no consistency in
local universities offer a range of TESL programmes under different
the standards and type, depth and breadth of coverage for elements
names such as B.Ed. with Education (Hons), B.Ed. TESOL, B.A.
of English language structure and proficiency, principles of language
(TESOL), B.Ed. (Hons.), B.Sc. with Education, B.A. Eng. Ed.
learning, general and specific ELT pedagogy, and professional practice.
(Hons.), B.Ed. (Hons.) Primary Ed. and B.A. (Hons) English
Studies (see Appendix 9.B). Since there are numerous TESL Since there are no clear programme standards for ELTE, including
programme providers, the curriculum for ELTE varies from one language proficiency levels, subject knowledge (e.g. knowledge of
public university to another (e.g. Faculty of Education, University the language, how it is formed, used, taught and learnt), and no
of Malaya; Fakulti Bahasa dan Komunikasi, Universiti Pendidikan internationally aligned language curriculum for ELTE, the quality of
Sultan Idris; Kulliyyah of Education, International Islamic the output of such programmes cannot be guaranteed.
University Malaysia) and with the Teaching Institutes. Table
This is likely to have a knock-on effect in turn on the language
9.1 shows the components in the Bachelor of Teaching (TESL)
proficiency of students and also on the quality of teaching and learning
Primary Education Programme.
practices as indicated by the Cambridge Baseline. In this study, more
Whereas the 26 ITEs follow a standard curriculum, universities than half of the Form 5 students sampled achieved a CEFR A2
have autonomy in designing their curriculum within the guidelines and below, which categorises them as basic users of English. Low
provided by universities themselves and by the Malaysian Qualifications achievements in English language were also reported in the MEB:
Agency (MQA). Like other Bachelors degree programmes, the only 28% of students achieved a minimum credit in the 2011 SPM
TESL programmes at universities generally cover university, core English paper against Cambridge 1119 standards (MEB, p. E-13).
faculty, core programme and elective courses. The MQA stipulated
The Cambridge Baseline also found problems in teaching
in 2014 that by 2015 all Higher Education Providers (HEPs) offering
and learning practices in the classroom. These may be due to a
programmes in Education must adhere to the Education Programme
variety of factors, including the focus on teaching knowledge
Standards (EPS) laid down by the Pekeliling MQA Bil. 3/2014.
in the ELTE programmes. There are also problems regarding

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Overall the teacher demonstrates a good range of procedures and techniques and is able
BAND 4 to plan and deliver a very effective lesson. The lesson provides for learner interaction,
and challenges and engages the learners.

Overall the teacher has good control of a range of procedures and techniques, and is
able to plan and manage a useful lesson. More variety and challenge would increase
BAND 3
effectiveness and provide for more learner engagement and participation in the learning
process.

Overall the teacher is aware of and can plan and implement a range of appropriate
BAND 2 teaching procedures and techniques, but needs to do so more consistently and
effectively to maximise learner engagement and participation in the learning process.

Overall the teacher displays awareness of some appropriate procedures and techniques
but is unable to plan for and implement them consistently, and there is little evidence
BAND 1
of learner engagement and participation in the learning process to achieve learning
outcomes.

Table 9.2 TKT Bands as cited in the Cambridge Baseline 2013

278
teaching knowledge; for instance, the average Band for the ELTE curriculum. Although a Grade A in SPM English is now a
Teaching Knowledge Test (TKT)(see Bands in Table 9.2) was prerequisite for entry to TESL programmes, (Ministry of Education,
3, which included 65% of the teachers (p. 87). It was found (p. 2015b) this is not an internationally benchmarked qualification.
88) that more secondary school teachers (75%) reached Band 3
Further, as shown in Appendix 9.B, while the different
than primary school teachers (49%), which is consistent with the
institutions have similar general academic entry requirements,
findings for proficiency levels.
depending on whether students enter at SPM or STPM level or
The TKT focused on concepts and terminology for describing have prior working experience in the case of those taking post-
language and language learning and teaching, lesson planning and graduate courses, English proficiency requirements vary, although
use of resources, and managing the teaching and learning process common minimum requirements include MUET Band 4, or
(p. 87) and is scored on a four-band scale, on which Band 4 indicates IELTS 6, or TOEFL 550. In comparison, the minimum set by most
comprehensive and accurate knowledge of the focus areas, and European countries for language teacher education is CEFR B2 or
Band 1 restricted knowledge. C1. At entry level, the only standard requirement is the Malaysian
Educators Selection Inventory (MEdSI) which is a psychometric
It is important to note that only 1% of the teachers reached a
test for intending teachers. However, since there is no mandatory
Band 4, and 43% of primary teachers and 24% of secondary teachers
standardised English language assessment at entry level, levels of
reached only Band 2. One of the reasons for the lower achievement
proficiency amongst trainees differ considerably.
of primary school teachers in the TKT could be due to the type of
pre-service training they had received. The practice of accepting students with different English
language grades which are not benchmarked against a common
standard, and then offering them at best English language
9.2.2 The Absence of English Language Proficiency Standards proficiency courses which are again not aligned to common
in the ELTE Curriculum standards, is likely to produce teachers without the necessary
proficiency in the language they are trained to teach. As already
The range of English language proficiency among student mentioned, this can affect their teaching practices, and eventually
teachers and practising teachers reflects the absence of English the English language achievements of their students.
proficiency standards on entry to and exit from ELTE and in the

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In 2012 and 2013, all TESL trainees from the 26 ITEs sat for the Further, 60% claimed to have more than 11 years of teaching
Cambridge Placement Test (CPT). The results indicated that 65% experience (p. 8). The findings may thus show a higher average
failed to achieve the CEFR C1 required on graduation. Only a small proficiency because more proficient teachers took the test.
percentage attained C2: 6.4% in 2012, and just 3.7% in 2013. Since
Nevertheless, the findings do show that 63% of those teaching
2014, all TESL students have had to take the British Council APTIS
in urban schools achieved CEFR levels C1 and C2 compared to only
test, which showed that less than 50% of those in the Foundation
42% of those teaching in rural and remote areas. Secondary school
(PPISMP) and degree (PISMP) programmes were at C1 or C2.
teachers generally ranged from B2 compared to B1 for primary
In contrast, more than 70% of trainees on the twinning teachers. It was rather alarming to find that 28% of teachers teaching
programmes with overseas universities in the UK, Australia and in primary schools and 18% in rural and remote areas had CEFR levels
New Zealand scored C1 and above compared to less than 40% on of below B2. Even more disconcerting was the finding from the CPT
local training programmes. The difference in performance is most that 15.5% of English language lecturers in ITEs were at B1 or B2.
likely due to the different entry level requirements for English. The
All these results point to the lack of any standardised provision
entry requirement for the twinning programmes is a distinction
for English language proficiency in ELTEs and universities. What
in SPM English. The twinning programmes also give students the
is needed is for all trainees to take a standardised internationally
additional advantage of taking all their courses in English.
benchmarked English language proficiency programme to ensure
The Cambridge Baseline shows that Malaysian teachers that on graduation they meet the minimum level expected of
achieved CEFR B2 on average, Speaking being the weakest of English language teachers according to assessment criteria aligned
the four language skills, a finding which matches the finding that to international standards.
Speaking was also the weakest skill for students. The majority of
Without such standards, we are unlikely to achieve our
teachers (84%) achieved B2 to C2, 52% reaching C1 to C2, and
aspiration to improve the English language proficiency of students.
32% remaining in B2 (p. 78). This presents a rather positive picture
For example, research generally indicates that teachers use
of teachers proficiency levels; but as indicated in the study, the
teacher-fronted approaches because of their own inadequate
teachers that took the tests may not have been representative of language proficiency (Butler, 2004; Nakata, 2010; Richards, 2011).
Malaysian teachers in general, 40% having a BA and 10% an MA
in Education (p. 79).

280
Teaching is generally
not seen as a profession
of choice where only
the best candidates are
selected to undergo
training and retained in
the teaching profession.

The Cambridge Baseline Study suggests that English language 9.2.3 The Inadequate Use of English as a Medium of
teachers as a whole need to improve their own level of spoken English, Instruction in ELTE
in terms of accuracy, fluency and pronunciation. This is corroborated
Apart from the programme specific courses, which comprise
by reports from Heads of Departments and Schools that teachers
about 50-60% of the course structure (see Table 9.1 for examples),
need to improve their language proficiency, and it is consistent with
the medium of instruction is likely to be Bahasa Malaysia. This
the findings of the Ministrys study on the feasibility of making English
reduces the amount of exposure and use of English during the
a compulsory pass (EPRD, 2012) in the Form Five examination.
programme. This may be one of the reasons why trainees on the
The MoE study found that a substantial number of non-English twinning programme performed better in the APTIS test than
language option teachers are teaching English without the training those on local ELTE programmes (see section 9.2.2).
or the competency to teach the language with confidence. As
a consequence, opportunities to use English in the classroom are Public universities also vary in the use of English in the training
likely to be reduced as these teachers, especially those teaching curriculum. Some require students to submit assignments and tests
in vernacular schools, resort to the use of the mother tongue and for non-English subjects in Bahasa Malaysia. Private universities
teacher-fronted teaching. offering ELTE programmes, on the other hand, conduct the

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whole programme in English. The teaching practice component or A total of 78 classrooms in 41 schools were observed, and the study
Practicum also tends to be conducted in two languages as trainees reported the following observations on in-service teachers:
also have to teach another school subject, which is likely to be
Lessons were teacher-fronted.
presented in Bahasa Malaysia.
The teaching model was transmissive.

Teachers did not correct or provide feedback on learners use


9.2.4 Inadequate Teaching Knowledge and Ineffective
of English in class.
Classroom Practices
Teachers tended to avoid errors and students were encouraged
The Cambridge Baseline study raises an issue concerning
not to make errors.
teaching knowledge (see 9.2.1) and classroom practices. Only about
half of the primary school teachers (49%) reached Band 3 in the Tasks were not challenging.
TKT, with as many more reaching only Band 2, which suggests
relatively shallow knowledge of the items tested (see 9.2.1). This There was a lack of supportive teacher talk.
lack of knowledge becomes apparent during classroom observation There was a lack of skill in materials design to address
and interviews with teachers, where the predominant view communicative needs.
of learning in the lessons observed appeared to be that of a
transmissive input-output model. There was a lack of skill in developing differentiation activities.

Classroom observation was evaluated both qualitatively and The focus on teaching the skills of Reading and Writing will
quantitatively, the latter being based on four items contributing not help students gain comprehensive mastery of the language
to effective teaching. The majority of the teachers were placed in especially in Speaking, which was reported to be weak up to higher
Bands 2 (42%) and 3 (35%), and only 18% reached Band 4 (p. 92). secondary level and even among tertiary students. The study found
that teachers inability to provide feedback on language errors and
The observation focused on five items evaluated on a four- design appropriate learning tasks could be linked to their lack of
band scale: learning atmosphere, language and systems, classroom knowledge and competence in developing appropriate assessments.
management, use of English, and monitoring, feedback and correction.

282
Teachers teach to the test instead of structuring their teaching 3 (PT3) included the assessment of listening and speaking skills
to meet the language needs of students and improve their with reference to the CEFR. This was done to benchmark student
language proficiency. There was no demonstration of assessment proficiency level to international standards.
literacy among teachers, and this inadequacy could affect the
implementation of School-Based Assessment and its impact on
student achievement. 9.2.5 Inadequate Management of In-Service Teacher Training
and Development
In sum, classroom observations found that lessons were
teacher-dominated, and showed little understanding of the Numerous in-service training and development courses
concept of teacher and learner roles (p. 91). This observation concerning English language teaching are conducted throughout
is consistent with the finding in the SEAMEO INNOTECH the year at great costs. For example, the Ministry of Education
Report about teaching competencies standards that encouraging realigned RM300 million or 23% of its non-emolument budget
active and equitable student participation by varying roles in the towards activities with greater impact on student outcomes. The
instructional process (facilitator, coach, or audience) in relation activities include improving English language acquisition in the
to the content and purpose of instruction was a missing teacher classroom through Native Speakers and English Teacher Assistants
competency in Malaysia (SEAMEO INNOTECH, 2010). Such programmes ... (Ministry of Education, 2015b). In 2014, ELTC
classroom practices means that there is a lack of differentiated conducted a total of 31 types of courses in which 3,634 teachers
teaching and learning strategies to cater for students with different and other ELT practitioners were trained at various levels.
proficiency levels in the same class.
Among the recent short-term initiatives are the Professional Up-
Apart from practical teaching knowledge, theoretical skilling of English Language Teachers (Pro-ELT), the Native Speaker
knowledge of English and of language learning and teaching are Programme, Fulbright Teaching Assistants and School Improvement
important competencies for English language teachers. They must Specialist Coaches (SISC+). Under the Pro-ELT initiative, more
also be trained to teach and assess a CEFR-aligned curriculum. than ten thousand primary and secondary English language teachers
Some elements of this curriculum and assessment have already been have undergone training to improve their language proficiency.
implemented. In 2014, assessment for the Pentaksiran Tingkatan

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Type of Training and Development Sample Courses

Teaching of Phonics, Fun Learning through


Courses Supporting Curriculum Language Arts, Literature for Secondary School,
Change Reading Fluency, Digital Stories
Reaction to curricular and
policy changes Intensive Course in ELT (ICELT) Program
Courses Supporting System Intervensi Tambah Opsyen (PITO) certified,
Change School-based Assessment, Partners-in-Learning,
Project-based Learning in ELT

Specialist Certificate in Literacy Development for


Lower Primary Students, Specialist Certificate in
ELT Methodology for Primary School, Specialist
Specialist Certificate Courses Certificate in Developing Oracy Skills for Lower
Secondary Students, Specialist Certificate in
Teaching of Literature for Secondary School,
Up-skilling Courses for Specialist Certificate in Project-based Learning
Teacher-Leaders
Reinforcing ELT: Maximising Resources, Enhancing
Subject Leadership Courses Pedagogy (RELTmax), Mentoring & Coaching,
Contemporary Childrens Literature

Introduction to Basic Trainer Toolkit, English


Trainer Training Courses language Lecturers in Institutes of Teacher
Education-Training of Trainers (ELITE-TOT)

Table 9.3 Types of In-Service Teacher Training and Development


(Information from ELTC)

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MALAYSIA EDUCATION BLUEPRINT INITIATIVES
Wave 1 (2013-2015)
Wave 2 (2016-2020)
Turning around system by supporting teachers and focusing on core
Accelerate system improvement
skills
Actions/ Actions/
Concerns Outcomes Outcomes
Initiatives Initiatives
Set a minimum CEFR B2 for primary school teachers Review B2 Minimum
standard required CEFR C1 for secondary teachers as minimum proficiency level
for English proficiency for for all teachers
language teachers teachers raised to C1

In 2014, a total of 10,502 teachers were Monitor and A report


selected for the programme evaluate the on teacher
Low effectiveness of proficiency
Proficiency Based on APTIS:
The Professional the initiative and impact of
among 87.8% (519/ 591) teachers have initiatives
English Upskilling of successfully improved from Band B1 to B2. Benchmark
language English Language teacher
Teachers 43.1% (1,716/3,979 improved from B2 to
teachers C1). proficiency
(ProELT) levels against
2,244 out of 4,579 teachers that international
completed Pro-ELT and sat for the post- standards
Aptis test, improved one proficiency level.
166 teachers improved two proficiency
levels

Table 9.4 Short-Term Initiatives in the Malaysia Education Blueprint Related to ELTE

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MALAYSIA EDUCATION BLUEPRINT INITIATIVES


Wave 1 (2013-2015)
Wave 2 (2016-2020)
Turning around system by supporting teachers and focusing on core
Accelerate system improvement
skills
Actions/ Actions/
Concerns Outcomes Outcomes
Initiatives Initiatives
The quality FasiLINUS - In 2014, 7,750 Year 3 English language
of English facilitators for teachers and 327 FasiLINUS benefited from
language remedial English the training.
teaching language training
to English
language teachers
Native-Speaker In 2014, 360 native speakers from English-
programme speaking countries were placed as mentors
in 1,800 primary schools in remote areas.

Fulbright Since 2012, a total of 225 ETAs, were


Programme placed in 101 primary and secondary Monitor and A report on
English Teaching schools evaluate the the impact of
Assistants (ETA) effectiveness of initiatives on EL
A study by the Ministry found this
the initiatives teaching quality
programme has helped to increase
students interest and language learning,
especially in rural areas.

Expanded At the end of 2014, a total of 1,032 SISC+


Specialist Coach were tasked to coach teachers on content
(SISC+) and pedagogy in Bahasa Malaysia, English
Language and Mathematics.
A total of 312 SIPartner+ were appointed
to support school leaders in improving
administration and management.

Table 9.4 (cont.) Short-Term Initiatives in the Malaysia Education Blueprint Related to ELTE
(Information on Wave 1 from Ministry of Education, 2015)

286
This initiative was part of the MEB, and was based on However, as in the case of Pro-ELT, there appears to be a gap in
results of the Cambridge Placement Test (CPT) administered to the management of in-service training from the selection process
61,000 English language teachers, which was followed by a pre- to the monitoring of the effectiveness of the translation of the
test (APTIS) to identify teachers at B1 or B2 to attend Pro-ELT training into practice. This is despite the fact that the PSELT (see
(Professional Up-skilling of English Language Teachers, n.d.). Pro- section 9.2.1) was developed to help English Language teachers
ELT is conducted both face-to-face and online by external training identify their professional training needs as well as ascertain their
providers, and aims to increase teacher proficiency by at least one continuous professional development.
Band (based on a post-test).
In addition, it can also be a guide in planning, designing and
Other in-service training for ELTE offered to teachers can managing professional development of English Language teachers
generally be divided into two main types. The first is needs-based (Ministry of Education Malaysia. Frequently Asked Questions).
training, and context-specific responses as a reaction to curricular However, to date, there does not appear to be a concerted and
and policy changes (see Table 9.3), including MEB initiatives, which systematic effort to create professional training development plans
are as follows: and programmes.

Further, there appears to be no accountable, systematic and cyclical


(1) Professional Up-skilling of English Language Teachers (Pro-ELT)
processes to plan, implement, independently monitor and evaluate,
and review in-service programmes and initiatives. Considering
(2) Oral Proficiency in English for Secondary School (OPS-English)
the amount of money and time spent on these programmes and
(3) Program Peningkatan Penguasaan Bahasa Inggeris Sekolah initiatives, and their importance in contributing to the implementation
Menengah (PPPBISM) of the goals of the MEB, measures of achievement of learning and
programme outcomes cannot be based on merely anecdotal evidence
The second type of in-service training is for upskilling of teachers or on numbers of teachers trained (see Table 9.4).
(see Table 9.3).

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9.2.6 The Absence of a Licensure Assessment 9.3 The Way Forward

To date, there has been no concrete attempt to professionalise


The gaps and issues discussed in 9.2 point to the need to
teaching. Teaching is generally not seen as a profession of choice
establish a common standard for English proficiency at entry level,
where only the best candidates are selected to undergo training and
retained in the teaching profession. Higher Education qualifications in the ELTE curriculum, and throughout the ELT workforce across
are deemed sufficient to place teachers in schools. The current all levels of education. They also show the need for internationally
practice even allows teachers who are not English language benchmarked standards for curriculum content for ELTE which
specialists and who do not have a minimum CEFR B2 to teach will provide trainees with the knowledge of the structure of English,
English in schools. Unlike many other countries (e.g. the United and awareness of English as it is used in various communicative
States), and professions like law, accounting and engineering, contexts, as well as provide trainees with the competencies
there is no professional body or council that accredits and licenses required of teachers in the 21st Century.
teachers, in particular language teachers, as based on, for example,
Shift 2 of the MEB aims to ensure that every child is proficient
licensure assessment which is the use of a language assessment
in Bahasa Malaysia and the English language, and one of the
for determining that language teachers have sufficient proficiency
initiatives is to ensure that every student will be taught by a
in a language to be able to teach it (Norris, 2013, p. 554).
teacher who is proficient to international standards.
There is also no move to accredit ELTE programme providers
The MEB (Higher Education) extends student aspiration in
according to their ability to provide a curriculum that includes
language proficiency to being operationally proficient in Bahasa
developing trainees proficiency levels to a recommended standard
Malaysia and English from pre-school to post-secondary level to
of proficiency (Norris, 2013). Apart from the MEB initiative to
being proficient in both languages at the level of higher education
ascertain the level of English language proficiency among in-service
(Ministry of Education, 2015a). The latter is of utmost importance
teachers, there was previously no concerted effort to officially
to graduate employability as the lack of communicative skills and
set the minimum standards of proficiency required of in-service
English language proficiency is often cited among the main reasons
English language teachers, and to assess and accredit their levels
for graduates inability to get a job.
of proficiency periodically. There is no corresponding assessment
and accreditation for English language lecturers.

288
In this way, the MUET, SPM English grades or
the grading systems used for English by universities
and teaching institutions are not going to be sufficient Curriculum
measures of teacher proficiency. Instead, the MEB has Alignment of programme
standards for ELTE
recommended the use of the CEFR as a framework
Benchmarking of English
of reference to define operational proficiency. It is language proficiency standards
therefore necessary for all reforms aiming to support in the ELTE curriculum and in
in-service programmes
the execution of the MEB to be aligned to this common Periodic evaluation
framework.

Further, to ensure that the quality of teaching and


learning is improved and maintained, the quality of
ELTE at the pre-service and in-service levels must be Teaching & Learning Assessment
internationally benchmarked and periodically monitored Increased use of English as Stringent criteria at entry
a medium of instruction in level of ELTE
and reviewed. Systematically planned in-service training ELTE Standardised internationally
and development must be put in place and delivered Systematic CPD plan for benchmarked exit
in-service teachers examinations for English
efficiently. Such training must be mapped to a set of Enhanced teacher language requirements
for all teacher training
teaching competencies and aligned with the MTS and education qualification and
programmes
proficiency requirements
PSELT. Licensure assessment

The following sections discuss the conditions


required for enhancing ELTE in the country. These Figure 9.2

conditions are tied to the three areas of curriculum, Conditions for Reform for English
teaching and learning, and assessment (see Figure 9.2). Language Teacher Education

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9.3.1 Conditions for Enhanced ELTE Curriculum Apart from CEFR standards, all providers of pre-service
ELTE have to comply with the review, design and delivery of their
The existence of multiple ELTE programme providers has
programmes. Findings from the baseline study, including poor
resulted in an inconsistent curriculum for ELTE in terms of the
proficiency levels on the part of students and teachers, and poor
structure and content of the programmes, including a lack of teaching knowledge and practices, need to be addressed in the review
established standards for English language proficiency. This has of the ELTE curriculum. The programmes must be benchmarked to
resulted in varying levels of proficiency and professional competencies international standards, and should include elements of language
among English language teachers, and has had a knock-on effect structure (e.g. phonemic and grammatical awareness) and use,
on student proficiency levels and affected public confidence in the literature, pedagogy and professional practice including school
quality of English language education in the country. attachments and practicum. Elements of new technologies and
To ensure consistency in the output of ELTE across different innovations in teaching and learning as well as High Impact Practices
programme providers, the English language component should (Kuh & ODonnell, 2013) should also be incorporated.
be standardised, and benchmarked to common international With these standards in place, ELTE programmes in Malaysia
standards. The benchmark for the language component in this case will attain some degree of quality in ELTE and in the output. A
is the CEFR as proposed in the MEB to define the level of language professional standards body such as the ELSQC should look into the
proficiency required for professional and academic purposes. establishment of programme standards for pre-service ELTE to be
This would require the development of CEFR descriptors added to current standards for Education in general. With these
for English language teachers overseen by an independent body standards in place, ELTE programme providers can be required to
responsible for the implementation and monitoring of the CEFR undergo accreditation of their programmes at appropriate intervals
across ELTE. The English language programme in ELTE must bring to ensure that standards are maintained. External accreditation
trainees up to the required standards of English proficiency on exit. should also ascertain that curricula are aligned to the CEFR, and
also to international standards.
The establishment of such a programme also implies that English
language teacher educators in universities and ITEs must be able to
deliver such a curriculum, and be trained to assess trainees according
to the CEFR. Their own proficiency levels should be set at CEFR C2.

290
There is also a need for a coordinated
communication structure between the various
divisions of the Ministry of Education and the
Ministry of Higher Education, the MQA, and
all the ELTE programme providers at ITEs implementation
and universities in order for all these parties
to collaborate to produce an agreed and
standardised curriculum for ELTE meeting
MQA programme standards for Education
and consistent with the MTS and the PSELT. planning monitoring
The need for a more structured form of
collaboration between ITEs and universities
providing ELTE should be extended beyond
curriculum development to the sharing of
resources and knowledge as well as joint
research opportunities.
review evaluation

9.3.2 Conditions for Improved Teaching


and Learning

To ensure that English language teachers


maintain high levels of teaching knowledge
Figure 9.3
Cyclical Process for
and classroom practice and delivery, the Short-Term ELTE Training
ELTC needs to operationalise its Pedagogical
Standards (PSELT) and develop a
Programmes and Initiatives

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English Language Education Reform in Malaysia
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competency matrix for the professional development of all English to create a professional training development system to meet the
language educators across the different levels of education. CPD following conditions:
programmes should be planned and implemented using the school-
based model. (1) Train teachers to map, reflect upon and monitor their own
professional development and achievements.
In order for professional development programmes to be
meaningful and impactful, the selection of teachers or even teacher (2) Collaboratively identify teachers needs and competencies.
educators for training cannot be based on an other-selected basis
or purely as a reaction to policy or curriculum changes. Instead, (3) Allow teachers to choose for themselves courses to attend to
professional development for teachers should be planned from fulfil their needs, instead of having them selected by the state,
their first appointment, and periodically reviewed together with an the district or by the head of the school or the department.
assigned mentor and with teaching coaches and instructional leaders.
(4) Plan courses at the central level according to identified needs
A mentoring and coaching system should be put in place to help and gaps.
new English language teachers chart their development and to observe
(5) Provide clear and accessible support systems to enable effective
and adopt good classroom practices. An early mentoring system
classroom implementation of the knowledge and competencies
should also be put in place so that trainee teachers and new teachers
acquired during the courses.
can be mentored by excellent or master teachers. Such a CPD model
should be extended to language teachers in higher education. (6) Independently monitor and evaluate the effectiveness of the
courses in teaching and learning practices.
There is a clear need to have a more systematic professional
development plan to meet teachers professional needs and The programmes must be well-developed and appropriately
curricular needs in line with the PSELT. The present system of designed to produce high quality English language teachers able
reactive-oriented, other-selected in-service training is not the to transfer the knowledge and competencies acquired through the
best way to develop positive attitudes to professional development. programme into classroom practice, thereby improving the English
In order to move towards higher quality teaching and learning in proficiency and skills of their students. All in-service professional
the classroom, there must be a concerted and systematic effort development programmes should comply with established

292
standards (see 9.3.1), and should be aligned to specified CEFR experience and proven track record in ELTE training and
levels. Programmes offering certificate level qualifications should development, and their understanding of local ELT conditions. The
also move towards accreditation. success of programmes such as Pro-ELT cannot be determined just
by the pre- and post- tests, and should begin with and be followed
There should be a conscious effort to develop specialisms
by an evaluation of teacher classroom practices and student
to meet the needs of students at different levels of education,
performance based on quantitative and qualitative measures.
especially in the case of primary school teachers. These specialisms
could include early literacy skills, diagnostic skills, differentiated At the in-service level, there must be adequate opportunities
learning and reading conducted in collaboration with international for the use of English to provide trainees with maximum exposure
providers and accredited internationally. and experience of using English in a variety of contexts, and to
enable them to develop a deeper knowledge and higher competence
All programmes including short-term initiatives should undergo
in the language. English should be the medium of instruction in the
scheduled independent evaluation and review, ideally carried out
teaching and learning of additional subjects such as the Education
by independent international bodies which should also benchmark
component of the ELTE curriculum. Where possible, other
pre- and in-service programmes. There should be a planned cyclical
subjects can also be taught in English to provide trainees with a
process of implementation, monitoring, independent evaluation
stronger English environment.
and review (see Figure 9.3 and Section C).
ELTE at both the pre-service and in-service levels should
Data should be collected even at the planning stage of an
be based on outcome-based education and focus on student-
initiative or programme so that baseline data is available, and
centred learning and communicative methodologies. There must
comparisons can be made with control groups. Reliable and valid
be diversity in the way the curriculum is delivered and assessed
measures of achievement for specified learning and programme
in order to develop independent and reflective learning, as well
outcomes must be planned at the implementation stage, and not
as creative and critical thinking among trainees. Further, teaching
towards the end of a programme or initiative.
and learning in ELTE must be conducted by trained educators.
External training providers in any training programme must Measures must be taken to ensure that teacher educators in ITE
be carefully selected according to their qualifications, relevant have postgraduate qualifications, including PhDs.

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A mentoring and
coaching system should
be put in place to help
new English language
teachers chart their
development and to
observe and adopt good
classroom practices.

This move will also avoid hierarchical relationships between Notwithstanding the attributes and competencies that teachers
ITEs and universities offering ELTE programmes and avoid the need to possess, language teachers should first and foremost be
misperception that primary school education can be provided by proficient in the language that they are teaching.
less qualified trainers. In addition, the capacity building of Master
In the case of ELTE, there can be no compromise with regard
CEFR trainers needs to be carried out to ensure the successful
to levels of English proficiency either at the entry level, or at the
implementation of CEFR-aligned curricula, teaching and learning,
output level. In addition to the Malaysian Educators Selection
and assessment. English language educators must have higher
Inventory (MEdSI), and the ITEs criterion that only the top 30%
proficiency levels than the trainees.
of SPM holders should be admitted (Ministry of Education, 2015b),
there should be an added criterion in the form of a standardised
internationally aligned entrance test for ELTE programmes based
9.3.3 Conditions for Enhanced Assessment Systems for ELTE
on a CEFR level rather than an A grade in SPM or a MUET Band.
One of the critical success factors in the English language Strict criteria for the selection of teacher trainees will ensure
education landscape in Malaysia is the quality of teachers. teacher quality and lead to a rise in student .

294
There should subsequently be CEFR-compliant assessment Again, instead of leaving each ELTE programme to devise
throughout the ELTE programme to ensure that English language its own assessment methods, there should be a standardised
teacher trainees are being continuously assessed at international and benchmarked means of assessment such as the Teaching
standards, and preparing them to reach the minimum standard Knowledge Test (TKT).
for English language teachers, which should be moving towards a
In order to maintain standards, a national level licensure
minimum CEFR C1.
assessment (Norris, 2013, p. 554) should be put in place to license
Having assessment of this kind in place would require teacher and certify English language teachers at entry level followed by
educators to be trained to teach and assess according to CEFR re-certification at regular intervals to ensure that they not only
levels. ELT teacher educators should also be periodically accredited have the proficiency to teach English language at various levels of
as qualified trainers and undergo short stints of practical school education, but also have the professional competencies to do so.
attachments at regular intervals to keep them in touch with
The current practice of allowing teachers who are not English
professional practice. ELT educators should work together with
specialists and who do not have the minimum CEFR B2 to teach
those at universities as an ELTE community of practice to discuss
English language needs to be reconsidered. Initiatives should be
related issues and to share best practices.
taken to certify non-English language option teachers with CEFR
In order to maintain standards, in-service teachers who do C1 or C2 and at least ten years of experience of teaching English.
not meet minimum CEFR levels should continue to be trained
The minimum criteria for English teachers at all levels of education
such as is being done in the Pro-ELT programme. Having a one-
from preschool to institutes of higher education must be a Bachelor
time only post-test following the Pro-ELT programme, however,
of Education or Teaching specialising in English. The licensing and
is no guarantee of increased proficiency in English, nor can it be
accreditation of English language teachers should be extended to
assumed that teachers are able to transfer this into their teaching
language teachers at public institutes of higher education.
and learning practices.

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9.3.4 The Roadmap Select an independent international body to carry out


benchmarking and measure the impact of in-service teacher
Phase 1 (2015-2016)
education on teacher and student performance.
Curriculum
Teaching and Learning
Pre-Service
Pre-Service
Review and align ELTE Language curricula to the CEFR.
Use English as the medium of instruction for ELTE in additional
Align professional programmes to international standards. courses such as those in the Education component of the
curriculum.
Develop an ELTE curriculum to ensure delivery of all
professional and core courses in English. Implement student-centred methodology.

Select an independent international body to carry out Set a doctorate degree in Education as the minimum
benchmarking and measure the impact of pre-service ELTE on qualification for all English language educators by 2025.
teacher and student performance.
Set CEFR C2 as the minimum requirement for English language
Put in place a coordinated communication structure between teacher educators.
divisions of the Ministry of Education and other parties
involved for English curricular updates. In-Service

In-Service Develop a professional development matrix for different levels


of teachers by operationalising PSELT.
Set a degree in Education/Teaching specialising in English or
English with Education as the minimum qualification for all Plan and implement CPD programmes using the school-based
English language teachers by 2025. training model.

Identify and collaborate with international providers or Revamp the training approach cascade model to school-
benchmarks for specialist courses. based training.

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Design English language classroom observation methods for Re-certify non-English option teachers with C1 or C2 and 10
formative purposes. years of experience.

Put a mentoring system in place. Phase 2 (2017-2020)


Assessment Curriculum
Pre-Service Pre-Service
Set a common proficiency exit requirement for all ELTE Implement the CEFR-aligned English language curriculum.
programmes.
Monitor the implementation of the CEFR-aligned English
Adopt a common CEFR-aligned language proficiency exit test language curriculum.
for all institutions.
Use professional standards and benchmarking in programme
Propose a policy for the licensing and certification of new review, design and delivery.
English language teachers.
Monitor and review the effectiveness of efforts to sustain
In- Service coordinated communication.

Set CEFR C1 as the minimum proficiency requirement for all Benchmark teacher performance at the pre-service level
teachers by 2025. against international standards.

Assess teachers using CEFR-aligned proficiency tests and the In-Service


international Teaching Knowledge Test (TKT) and the TKT
practical component. Continue post-graduate courses especially for pre-school and
primary teachers.
Propose a policy for the licensing and certification of new
English language teachers followed by re-certification for all Benchmark teacher performance at the in-service level against
English language teachers every 5 years. international standards.

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Implement a degree in Education/Teaching specialising Monitor the implementation of student-centred strategies in


in English or in English with Education as the minimum in-service training programmes.
qualification for all English language teachers by 2025.
Implement and monitor English language classroom observation
methods for formative purposes.
Teaching and Learning
Pre-Service Assessment
Monitor the use of English as the medium of instruction in Pre-Service
ELTE.
Implement the common proficiency exit test for all institutions.
Monitor the implementation of student-centred strategies in
Implement the policy on the licensing of English language
ELTE.
teachers.
Implement a PhD in Education as the minimum qualification
for all English language educators by 2025.
In-Service
Develop programmes to achieve C2 proficiency among English
language teacher educators. Monitor and evaluate teachers English proficiency and
pedagogical competences according to international standards.
Enforce C2 as the minimum requirement.
Enforce C1 as the minimum requirement for English language
teachers.
In-Service
Implement the policy on licensing and re-certification for
Implement and monitor the PSELT support system. English language teachers.

Monitor and evaluate the CPD programmes that have been Continue the re-certification policy for non-English language
conducted. option teachers with C1 or C2 proficiency and 10 years of
experience.

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Benchmark teacher-performance against international Continue the implementation of the minimum requirement
standards. of a degree in Education/Teaching specialising in English or
in English with Education as the minimum qualification for all
English teachers by 2025.
Phase 3 (2021-2025)
Carry out an impact study on teacher performance.
Curriculum
Teaching and Learning
Pre-Service
Pre-Service
Revise the CEFR aligned English language curriculum based on
feedback and emerging technologies. Review the effect of English as the medium of instruction on
the English proficiency of teacher trainees.
Monitor the implementation of standards.
Review the impact of training.
Review the curriculum.
Continue implementing the minimum requirement.
Monitor and review the effectiveness of efforts to sustain
coordinated communication. Review the impact of the minimum requirement on the
performance of English language teacher educators.
In-Service
In-Service
School-based training run by specialist teachers.
Review and strengthen support the system for CPD.
English language teachers especially at primary level enrolled
in international specialist courses. Revise school-based CPD programmes.

Review and evaluate the impact of training.

Evaluate classroom observation methods.

Submit monitoring reports.

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Assessment A. Milestones for the end of Phase 1 (2015-2016) are as follows:


Pre-Service Curriculum
Review the validity and reliability of the CEFR-aligned Pre-Service
proficiency exit test.
A common CEFR- aligned English language curriculum adopted
Monitor the reports submitted.
Professional programme standards adopted
In-Service
An ELTE curriculum ensuring the delivery of all professional
and core courses in English
Continue the evaluation of teacher EL proficiency and
pedagogical competencies according to international standards. Effective communication and collaboration for curricular change

Continue the re-certification requirement for all teachers. An independent international body selected to carry out
benchmarking and impact studies for pre-service ELTE
Continue the re-certification policy for non-English language
programmes until 2025
option teachers with C1 or C2 and 10 years of experience.
In-Service

9.3.5 Milestones A degree in Education/Teaching specialising in English or in


English with Education accepted as the minimum qualification
According to the roadmap for ELTE, specific milestones are
to be reached over the three phases: Phase 1 (2015-2016), Phase 2 English language teachers, especially at primary level, enrolled
(2017-2020) and Phase 3 (2021-2025). The milestones are presented in international specialist courses
according to the phases and the three components, namely the
An independent international body selected to carry out
curriculum, teaching and learning, and assessment. These expected
benchmarking and impact studies for in-service training
milestones or deliverables are summarised in Table 9.5.
programmes until 2025

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Teaching and Learning Assessment
Pre-Service Pre-Service

English used as the medium of instruction in additional courses A common CEFR-aligned exit proficiency test adopted for all
ELTE programmes
Increased exposure to English on ELTE programmes
A common exit proficiency requirement enforced for all
Student-centred and communicative methodologies used in
institutions
training
The policy on licensing for English language teachers to teach
A doctorate in Education accepted as the minimum qualification
and certification of language proficiency for teachers is in place
Level C2 accepted as the minimum requirement
In-Service
In-Service
CEFR level C1 accepted as the minimum requirement
A standards-based professional development support system
A baseline is established for teacher EL proficiency and
developed for teachers at different stages of their careers,
pedagogical competences
from beginning teacher and developing teacher to competent
teacher and specialist teacher The policy on licensing and recertification for all English
language teachers is in place
School-based CPD programmes conducted
Proficient non-option English language teachers re-certified
Student-centred and communicative methodologies used in
training

English language classroom observation methods designed for


formative purposes

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B. Milestones for the end of Phase 2 (2017-2020) are as follows: Teaching and Learning

Curriculum Pre-Service

Pre-Service Monitoring reports submitted on the use of English as the


medium of instruction in ELTE
A CEFR-aligned English curriculum implemented
Extended exposure to the use of English and improved language
Reports with recommendations for improvement submitted
outcomes
All ELTE programmes aligned to professional programme
Monitoring reports submitted with recommendations for
standards across all providers
improved student-centred teacher training
More proficient English language teacher trainees
Enforcement of the minimum qualification requirement of a
Recommendations for sustaining collaboration for effective PhD in Education for all English language teacher educators by
curricular implementation 2025

In-Service CEFR C2 enforced as the minimum requirement for English


language teacher educators
Preschool and primary teachers with specialisms
Up-skilling programmes developed and implemented
Recommendations for advanced specialist courses

Enforcement of the required degree in Education or Teaching


specialising in English or in English with Education as the In-Service
minimum qualification for all English teachers by 2025
A viable professional development support system in place
A report submitted on teacher performance and
recommendations for improvement Appropriate courses in place for teachers at different stages of
their careers

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Recommendations to improve CPD programmes Teachers English language proficiency and pedagogical
competencies monitored and evaluated
Active and engaged teaching and learning at all levels in place
Monitoring reports submitted
English language classroom observation methods implemented
and monitored

Assessment C. Milestones for the end of Phase 3 (2021-2025) are as follows:


Pre-Service Curriculum
A common standardised proficiency exit test implemented and Pre-Service
monitored
Recommendations for improvement for the ELTE curriculum
The quality of English language teachers assured by means of
Updated English language Teacher Education curriculum
licensing
Recommendations for improved programme standards for ELTE
In-Service
Proficient English language teacher trainees
CEFR C1 enforced as the minimum requirement
Recommendations for sustaining collaboration
Teacher English language proficiency and pedagogical
competencies monitored and evaluated An impact report on teacher performance

Monitoring reports submitted A transformed English language pre-service teacher education


system
The quality of English language teachers assured by means of
licensing and re-certification In-Service
Continuation of the certification policy for non-English language High-calibre teachers
option teachers with C1 or C2 and 10 years of experience

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A cadre of English language teachers at primary and pre-school Competent English language trainers and teachers
levels with specialisms
Effective classroom observation method for formative
Make recommendations for improvement purposes

A transformed English language in-service teacher education


system Assessment
Pre-Service

Teaching and Learning Valid and reliable CEFR-aligned exit test for teacher proficiency
Pre-Service

The use of English as a medium of instruction enforced for In-Service


TESL programmes Proficient English language teachers with C1
Continued improvement of student-centred teacher training High-calibre English language teachers
High-calibre teacher educators Sustained high quality English language teachers
Up-skilling programmes to ensure that teacher educators have Report on the impact of the re-certification policy for non-
a minimum CEFR C2 English language option teachers

In-Service

An improved support system

Comprehensive career pathways

Improved school-based CPD programmes

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Phase 1 (2015-2016) Phase 2 (2017-2020) Phase 3 (2021-2025)

Curriculum
Pre-Service Pre-Service Pre-Service
Review and align ELTE language A CEFR-aligned English curriculum Recommendations for improvements in
curricula to the CEFR. implemented the ELTE curriculum
Develop professional programme Reports with recommendations for An updated English language Teacher
standards aligned to international improvement submitted Education curriculum
standards. All ELTE programmes aligned to Recommendations for improved
Develop an ELTE curriculum to ensure professional programme standards across programme standards for ELTE
delivery of all professional and core all providers Proficient English language teacher
courses in English. More proficient English language teacher trainees
Select an independent international trainees Recommendations to sustain
body to carry out benchmarking and Recommendations for sustaining collaboration
assess the impact of pre-service ELTE collaboration for effective curricular
on the performance of teachers and An impact report on teacher
implementation performance submitted
students.
A report on teacher performance and A transformed English language pre-
Put in place a coordinated recommendations for improvement
communication structure between service teacher education system
submitted
divisions of MoE for English language
curricular updates.

In-Service In-Service In-Service


Set a degree in Education/Teaching Pre-school and primary teachers with High-calibre teachers
specialising in English or in English with specialisms A cadre of English language teachers
Education as the minimum qualification Recommendations for advanced at primary and pre-school levels with
for all English language teachers by specialist courses specialisms
2025.
Enforcement of the required degree Recommendations made for
Identify and collaborate with in Education/Teaching specialising in improvement
international providers or benchmarks English or in English with Education as
for specialist courses. A transformed English language in-
the minimum qualification for all English service teacher education system
Select an independent international language teachers by 2025
body to carry out benchmarking and
assess the impact of in-service teacher
education on the performance teachers
and students.

Table 9.5 Milestones and Deliverables for ELTE

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Phase 1 (2015-2016) Phase 2 (2017-2020) Phase 3 (2021-2025)

Teaching & Learning


Pre-Service Pre-Service Pre-Service
English used as the medium of Monitoring reports submitted on the use The use of English as the medium
instruction in additional courses of English as the medium of instruction of instruction enforced for TESL
Increased exposure to English on TESL in ELTE programmes
programmes Extended exposure to the use of English Continued improvement of student-
Student-centred and communicative and improved language outcomes centred teacher training
methodologies used in training Monitoring reports submitted with High-calibre teacher educators
A PhD in Education accepted as the recommendations to improve student- Up-skilling programmes to ensure that
minimum qualification centred teacher training teacher educators have at least CEFR C2
C2 accepted as the minimum Enforcement of a PhD ibn Education for level are retained and/or improved
requirement English language teacher educators by
2025
CEFR C2 enforced as the minimum
requirement for English language
teacher educators
Up-skilling programmes developed and
implemented

In-Service In-Service In-Service


A standards-based professional Viable professional development support An improved support system
development support system for system in place appropriate courses in Comprehensive career pathways
teachers at various stages of their place for teachers at different stages of
careers: beginning teacher and their careers Improved school-based CDP
developing teacher to competent programmes
Recommendations to improve the CPD
teacher and specialist teacher programmes provided Competent English language trainers
School-based CPD programmes and teachers
Active and engaged teaching and
conducted learning at all levels in place Effective classroom observation
Student-centred and communicative methods for formative purposes
EL classroom observation methods
methodologies used in training implemented and monitored
EL classroom observation methods for
formative purposes designed

Table 9.5 (cont.) Milestones and Deliverables for ELTE

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Phase 1 (2015-2016) Phase 2 (2017-2020) Phase 3 (2021-2025)

Assessment
Pre-Service Pre-Service Pre-Service
A common CEFR-aligned exit proficiency A common standardised proficiency exit A valid and reliable CEFR-aligned exit
test adopted for all ELTE programmes test implemented and monitored test for teacher proficiency
A common exit proficiency requirement The quality of English language teachers
enforced for all institutions assured by means of licensing
The policy on licensing for English
language teachers to teach and the
certification of language proficiency for
teachers is in place.

In- Service In-Service In-Service


CEFR C1 accepted as the minimum CEFR C1 enforced as minimum Proficient EL teachers with C1
requirement requirement High-calibre English language teachers
The baseline for teacher English Teacher English language proficiency and Sustained high quality English language
language proficiency and pedagogical pedagogical competences are monitored teachers
competences is established and evaluated
A report submitted on the impact of the
The policy on licensing and Monitoring reports submitted re-certification policy for non-English
recertification for English language The quality of English language teachers option teachers
teachers is in place. assured by means of licensing and re-
Proficient non-option English teachers certification
re-certified Continuation of the-certification policy
for non-English option teachers with
C1 or C2 proficiency and 10 years of
experience
Teacher EL proficiency and pedagogical
competences are monitored and
evaluated
Monitoring reports submitted

Table 9.5 (cont.) Milestones and Deliverables for ELTE

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Strict criteria for the


selection of teacher
trainees will ensure
teacher quality and
lead to a rise in
student quality in
the long run.

9.4 Implications and Recommendations 9.4.1 Curriculum

It is essential to maintain quality in ELTE programmes at the


This section discusses the implications and recommendations
pre-service and in-service levels in order to train teachers highly
for ELTE in relation to the three components of the programme,
proficient in English and equipped with the linguistic, pedagogic
namely curriculum, teaching and learning, and assessment. The
and professional knowledge and skills to produce a new generation
consistent theme across these components is quality, constant
of Malaysians who are proficient in English.
monitoring and evaluation, and the pre-service and in-service
review of people, programmes and policy. At the pre-service level, ITEs and public universities as
providers of ELTE programmes must adopt the same benchmarked
standards if the quality of their programmes is to be maintained and
monitored. Specific professional programme standards for ELTE
should be developed collectively by the key stakeholders in ELTE,

308
namely the institutions involved, the English Language Standards At the pre-service level, a standardised exit test for English
and Quality Council (ELSQC), MQA, international partners and must be administered to ensure that only teachers with the
practising teachers. required proficiency levels are allowed to teach English. This is
where the concept of licensing comes in where entry level teachers
In line with the rest of the English language education system,
are accredited to teach English language at particular levels, with a
the English language curriculum in ELTE must be reviewed and
requirement to apply for re-certification at regular intervals.
revised, and aligned to the CEFR. Teachers must be trained to
teach and assess in accordance with the CEFR at different levels To improve the knowledge of English and teaching, the
of education. Similarly, in-service training must be carried out in minimum requirement for English language teachers should be a
accordance with the CEFR, and benchmarked to international Bachelors degree in English language teaching even at primary
standards. level, as recommended in the MEB.

Teacher educators and language instructors at universities From the time they enter the profession, teachers need to
selected as Master Trainers for the CEFR need to be accredited as follow a continuous development plan which is systematic, self-
training providers at pre-service and in-service levels. determined and mentored, if they are to feel empowered to
improve their professional knowledge and skills, and bring good
9.4.2 Teaching and Learning teaching and learning practices into their classrooms.

The most pressing matter in ELTE at the pre-service and in- In order to produce high quality teachers, teacher educators
service levels is the proficiency of teachers and their level of and training providers must be highly qualified and proficient in
teaching knowledge and non-facilitating classroom practices. English. They must also be trained to deliver a CEFR-aligned
Efforts to improve the proficiency of in-service teachers must curriculum using student-centred methods.
be increased and taken beyond pre- and post tests. The English
proficiency requirement should be B2 for primary teachers and C1
for secondary teachers in the short term, and C1 for all English
language teachers in the longer term.

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9.4.3 Assessment Following the requirement to comply with programme


standards, the setting of common entry and exit requirements
In order to maintain standards and quality among English
based on CEFR levels, as well as the licensing and the certification
language teachers, strict selection criteria and standardised exit
and recertification of teachers, ELTE will be streamlined across
examinations based on minimum CEFR levels must be introduced.
all programme and training providers. The periodic review of the
Such moves will create a sense of exclusivity among the English
ELTE programmes and CPD by independent bodies will ensure
language teaching profession.
the quality and continuing relevance of these programmes.
The licensing and certification and re-certification of trainees
A top performing English language education system requires
and teachers with the required proficiency levels who have taken
a high-calibre English language teaching force. The creation
internationally benchmarked ELTE programmes and training
of the latter has to start at the entry level by ensuring that the
sessions will not only further monitor and maintain the quality of
right recruits are selected and admitted into pre-service ELTE
English language teachers from preschool to higher education, but
programmes. The ELTE curriculum for these recruits must be of
also enable English language teachers to function as professionals.
international standards and delivered by highly skilled and qualified
teacher educators.
9.5 Conclusion The rigorous training including practical classroom experience
should lead to a standardised exit examination to assess whether
Policy commitment is imperative for the realisation of this the recruits have met the minimum requirements to be certified
Roadmap given the significance of its contributions to the or licensed as English language teachers. Certified teachers should
professionalisation and internationalisation of English Language ensure excellent classroom delivery which in turn should lead to
Teacher Education. The outcomes of this teacher training better student performance at every level of education including
roadmap will be internationally competent and proficient English higher education.
language teachers at all levels of schooling.

310
Students who are more proficient in English and who are able As depicted in Figure 9.4, ELTE has a major and general
to communicate in English will be more desirable employees, and impact on the national English language education system, and has
so help to increase graduate employability. In effect, the potential impact not only on student performance but on the future lives of
of the Roadmap and its initiatives for ELTE extends to addressing students beyond the classroom. For this reason, there is an urgent
at least three of the outcomes the MEB aspires to achieve with need to address the gaps and issues relating to ELTE in order to
respect to quality, equity and efficiency: put in place the conditions and actions required to revamp ELTE
at the pre-service and in-service levels.
(1) Increased quality in teacher education programmes and
CPD, English language teachers, English language teacher
educators, English language education, higher teacher
and student proficiency levels.

(2) Equity in English language education at all levels of


education from pre-school to higher education as a result
of increased quality, regardless of geographical location,
social status, gender and type of school.

(3) Access to quality English language education as a result


of (1) and (2), allowing students to develop their English
proficiency and skills, and empowering them with better
access to further knowledge at higher levels of education,
and to local and global employment and business
opportunities.

(4) Efficiency in the utilisation of resources to provide quality


ELTE at the pre- and in-service levels.

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English Language Education Reform in Malaysia
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ENTRY TEACHER PRE-SERVICE EXIT IN-SERVICE


TRAINEE SELECTION ELTE CURRICULUM & ASESSEMENT & LICENSED TEACHERS
Strict selection of English TEACHER EDUCATORS LICENSING Certified and licensed English
language teacher trainees Rigorous internationally - Standardised exit language teachers
benchmarked and CFER- Examination (CFER Level C1)
aligned curriculum delivered by - Licence to teach English
qualified and trained teacher
educators (CFER Level C2)

GRADUATE INCREASED STUDENT IN-SERVICE CPD & RE- IN-SERVICE


EMPLOYABILITY PERFORMANCE CERTIFICATION TEACHING & LEARNING
- Increase in graduate Higher student proficiency - Systematic, structured and Excellent classroom practices
employability levels and language skills across benchmarked CPD training and at all levels of education
- Increased ability to compete all levels of education upskilling programmes and regardless of location,
in the regional and global job - Re-certification of teachers national/national type schools,
market/business opportunities socio-economic status and
gender

FIGURE 9.4 Visual representation of the various components of ELTE

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English Language Education Reform in Malaysia
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SEC T ION C
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English Language Education Reform in Malaysia
The Roadmap 2015-2025

314
English Language Education Reform in Malaysia
The Roadmap 2015-2025

C
The Roadmap

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The Roadmap 2015-2025

The Roadmap

S
ection C puts forward the detailed implementation plan or
Roadmap, which has been developed to deal with the
general problems described in Section A, and the more specific
problems described in Section B. The term roadmap as used here refers
more appropriately and more narrowly to the detailed implementation
plan presented in this section. The plan includes but goes beyond the
alignment of curricula, teaching and learning, and assessment to the
CEFR to other developments such as a highly immersive English-rich
environment, optimal language engagement time, and parental and
community engagement. The plan takes for granted that we know
where we are now, how we got here and where we want to go,
and outlines the route that we have to follow step by step if we
wish to turn the hopes expressed in the MEB into reality with
respect to the teaching and learning of English in Malaysia.

The development of this Roadmap has been systematic, and it


is a consequence of a systematic approach that items of the same
type are grouped together in the same category. The first four
sections of this introduction consequently deal with lists: the seven
shifts, the three waves, the four modules including the five stages of
the innovation cycle, and three priority areas for intervention. The last
section presents conclusions and recommendations.

The first section deals with the shifts outlined in the MEB,
identifies those which are of most relevance to English language
education, and explains their relevance. The second section deals

316
with the MEB Waves, and explains how they can be implemented language teaching taken for granted in the CEFR. Textbooks and
in the reform of English language education. These two sections other learning materials need to be designed to support teachers
make explicit how the MEB has been taken into account in the in classrooms reorganised to develop communicative competence
preparation of the Roadmap. The remaining three sections go on in English, including the use of appropriate grammar and
to explain the structure of the roadmap presented in the tables, to pronunciation. The examination system needs to be reformed to
draw attention to priority areas that require intervention, and to ensure that students are tested on what they have been learning.
draw conclusions and make recommendations1.
Equal access is to be attained partly by ensuring that all
children have high quality textbooks and other learning materials,
1. The Seven MEB Shifts and partly by sending high-calibre teachers to the areas of greatest
need, including rural and remote locations. Teachers need the right
The MEB identifies eleven shifts which need to be undertaken kind of education to enable them to take action to help children in
in order to transform the education system. The shifts most danger of falling behind before their lack of progress manifests itself
relevant to English teaching are shifts 1, 2, 4, 5, 7, 9, and 10, and as a problem. They also need to be supported by a comprehensive
these are dealt with in turn below. remedial programme to narrow the performance gap between
groups of students, including not only urban and rural, but also
rich and poor, and boys and girls. Particular attention needs to be
Shift 1: Provide equal access to quality education of an paid to preschool English, so that children from backgrounds with
international standard little access to English are enabled to make a good start.

The first step towards quality education is to align the English


language programme and teacher education to the CEFR. A Shift 2: Ensure every child is proficient in bahasa Malaysia
logical approach would be to start with the curricula, including the and English language
KSSR and the KSSM, and then to reorganise teacher training, pre-
service and in-service, so that teachers are trained or re-trained to Shift 2 echoes the MBMMBI policy to uphold bahasa Malaysia
teach the curriculum according to the principles of communicative and to strengthen the English language. Bringing this shift about

1
An earlier version of the text of the fourth and fifth sections
has already appeared in the Agenda for Reform.

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will require the education system to accord Malay and English upskilling of English teachers needs to include English proficiency
appropriate and complementary roles. This Roadmap is concerned and greater opportunities for exposure to English alongside
according to its remit specifically with English, but it has been practical teaching competence. English teachers should also be
prepared on the understanding that a complementary Roadmap rewarded with internationally recognised qualifications for their
is in preparation for Malay. It is also assumed that much of this English proficiency and for their teaching knowledge and practice.
Roadmap for English, from high level thinking to matters of detail, Upskilling programmes need to be monitored and evaluated to
will apply mutatis mutandis also to Malay. ensure quality, transparency and accountability.

This shift when brought about will create a bilingual education


system (perhaps better described as a dual education system)
Shift 4: Transform teaching into the profession of choice
which includes literacy in Malay and English, and also caters
where appropriate for other Malaysian languages, and which uses This shift follows the creation of a high-performing education
Malay and English as media of instruction in suitable proportions, system, as already discussed above. The first step is to match
taking into account the special position of Malay as the national the number of trainees to the number of new English teachers
language and the language of unity. All trainee teachers should be required. This will make it possible to select the best of the cohort,
bilingual in Malay and English, although trainee English teachers and in principle those in the top third of the cohort. Restricting
need to maximise their engagement time with English. Where the number of entrants to the profession will by definition make
appropriate, some subject content to be determined by the the profession more exclusive, and therefore more desirable.
Ministry of Education should be taught in English. Recruiting trainees before they go on to tertiary education will
also cut out much of the waste involved in training those who fail,
Engagement time with English should be increased both within
drop out, or for some other reason do not become teachers.
the classroom by allocating more hours for English, and beyond the
classroom by means of cocurricular and out-of-school activities Intending teachers should undergo a rigorous form of tertiary
involving English in the context of a highly immersive English-rich education, and those who succeed should be given a national
environment. If children are to be proficient in English, then their professional licence authorising them to teach English in Malaysian
teachers must also be proficient in English, and this means that the classrooms, together with internationally recognised certification

318
of teaching skills and English proficiency renewable every five appointment of teacher aides would relieve teachers of work that
years. Teachers already in post should be given an opportunity could be done by less qualified people, and in the light of reports
to upgrade their training and certification. Training providers that teachers are already overburdened with administrative work,
should be required to show that they can deliver a high quality avoid some of the problems expected to follow the introduction of
educational programme covering all aspects of training required by school-based assessment.
the intending teachers. Teacher educators should be of comparable
academic standing to university academic staff.
Shift 5: Ensure high-performing leaders in every school
If teaching is to be a prestigious profession, then all teachers
must have achieved an appropriate level of education. There is Quality English teachers need quality leadership. It is therefore
no case for authorising unqualified people to teach, particularly essential that those appointed to the position of head teacher
at preschool and early primary levels. It is in preschool that the have the motivation and ability to coordinate the work of their
foundations are laid for later proficiency in English, and yet it is English teachers and others providing support for the teaching of
known from the preparations for LINUS 2.0 that nearly half of all English, in order to optimise the performance of their schools in
Malaysian children are already falling behind in Year 1. Malaysian the teaching and learning of English.
preschool children deserve to be taught by teachers qualified in
early learning and in the teaching of English to beginning learners.
Shift 7: Leverage ICT to scale up quality learning across
Teachers should also be allowed to focus on their core function
Malaysia
of teaching2. Like other professional people, they should make full
use of their special expertise, and do what only they can do. Many It should be the responsibility of the head teacher to ensure that
teachers will have the same problem in adjusting to new textbooks ICT is given its appropriate place in language learning in general, and in
and new ways of teaching English, and much duplication of effort the teaching of English in particular. In order to make this shift possible,
can be saved by providing them with day-to-day support in the teachers will need training in the use of ICT, and an understanding
form of resources or guides to enable them to find their way as of the relationship between computer-assisted language learning and
they take up the new approach to teaching and learning. The conventional language learning in the classroom.
2
This point is treated as Shift 5 on page 21 of the executive summary of the Cambridge
Baseline, which differs in this instance from the statement on page E-17 of the MEB.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

Shift 9: Partner with parents, community and private sector The area in which the greatest return on investment can
at scale be expected is in the education of English teachers. The cost of
teacher education can be reduced by matching the number of
The teaching of English should not be seen as the sole responsibility
those selected to the number required to enter the profession,
of the school, and an important role for the head teacher is to make
and by selecting them before they enter tertiary education, thus
use of the resources available in the community to optimise the
minimising the cost of training trainees who for one reason or
learning of English. Parents, retired teachers, and local companies
another do not enter the profession.
and other relevant bodies should be encouraged to organise extra-
curricular activities to provide students with informal opportunities
to engage with English and interact in English. Those with 2. The Three MEB Waves
appropriate qualifications should be permitted and even encouraged
to provide support for the teacher in the classroom. Students who The MEB includes a timetable for developments to take place
are sufficiently proficient in English could also be found a role in the by 2025 in the form of three Waves. In the case of English language
English classroom and beyond as a kind of community service, while education, these Waves are interpreted as follows:
they are waiting to begin their tertiary education.
Wave 1 (2013-2015) is currently underway, and involves
strengthening the current system. In the case of the English
language programme, this amounts to rebuilding the infrastructure
Shift 10: Maximise student outcomes for every ringgit
on which the programme is based. This includes partly the various
Savings are to be made by linking initiatives and other costly initiatives already discussed, and partly preparations for Wave 2,
ventures to a common plan, so that ventures are associated with including the setting of staged targets, the development of CEFR
explicitly stated expected outcomes within a time frame, and then descriptors, and capacity building. These preparations began
monitored and assessed for impact and value for money. In this with the setting up of the ELSQC in 2013, and the completion
way, overlap between ventures can be avoided, because the same of the Cambridge Baseline, also in 2013, and they have led to the
expected outcomes cannot be assigned simultaneously to two or preparation of this Roadmap.
more different ventures.

320
Wave 2 (2016-2020) is concerned with introducing structural 1 and Wave 2 does not constitute slippage, and on the contrary
change, including CEFR-aligned curricula, teaching and learning, brings work on the Roadmap into step with the Waves of the MEB
and assessment. A second benchmarking operation will be carried as soon as practicable.
out in 2017, to monitor progress, and to measure the impact of the
initiatives, and any change since the baseline study in 2013.
3. The Four Modules
Wave 3 (2021 2025) will be the time to scale up structural
change. This will also be the time to strive for excellence. A third The problem addressed by this Roadmap is a highly complex
benchmarking operation will be carried out in 2021 to measure the systemic problem. The solution to the problem is presented here
impact of the implementation of reforms undertaken in Wave 2. in the form of a comprehensive plan, covering the whole of the
The end of the implementation of the Roadmap will be marked English language programme from preschool to university, and also
by a final benchmarking study in 2025 to measure the extent to including teacher education. If the solution is to be comprehensible,
which the aims of the Roadmap have been achieved. it has to be broken down into separate modules. There are four
main modules:
This Roadmap has been produced on schedule in the course
of Wave 1, and itself requires preparatory work which is similar in General
kind to the work recommended in the MEB for Wave 1. However,
the Roadmap was completed in the course of 2015, and Wave 1 The English language programme from preschool to post-
is due to end on 31 December 2015. It is in practice impossible to secondary
complete the preparatory work for the Roadmap in the remaining The English language programme at university level
months of 2015. The solution to this problem is to modify the
timetable for work to be completed by the end of Wave 2 in 2020. English language teacher education
The preparatory work for the Roadmap is to be completed in what
is called Phase 1, which includes the remaining months of 2015 and
the whole of 2016. Phase 2 extends from 2017 to 2020, and Phase
3 corresponds exactly to Wave 3. The overlap between Phase

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

3.1 The Structure of the Roadmap by monitoring the effectiveness of the implementation. The labels
used in the general table which is replicated and contextualised for
Those aspects of the plan that apply throughout the
each level from preschool to teacher education in the Roadmap are
programme and to teacher education are brought together in
as follows:
the general section. For the other modules, each of the three
components curriculum, teaching and learning, and assessment Strong CEFR foundation to achieve international standards
is considered in turn. Conditions for reform are identified and
CEFR alignment
lead to recommended actions for reform. These recommended
actions for reform are ordered according to the three MEB waves, CEFR Implementation and monitoring
and each action is followed by the expected outcome.

A key stage in the development of the Roadmap was the


3.1.2 Preschool to post-secondary
identification of conditions for reform. These are the conditions that
have to be satisfied if our English language education system is to be The implementation plan needs to be worked out in principle for
justifiably considered to have been reformed. In order to satisfy a each of the components of the English language programme from
condition, the corresponding recommended actions must be carried preschool to post-secondary education. At the present stage of
out in such a way that the expected outcomes are achieved. Since planning, recommendations are made collectively for the different
reform must be brought about if our system is to be transformed, stages of education. As the plan is implemented, it will be necessary
these are also the necessary conditions for transformation. to work out in more detail the consequences of the collective
recommendations at each level of education, e.g. what optimal
engagement time means at preschool level or at secondary level.
3.1.1. General
1. Curriculum
The main general consideration is to align the whole of the
Internationally aligned curricula and learning standards
English language programme and the education of English teachers
to international standards in the form of the CEFR. Alignment has Quality implementation of preschool, primary, secondary
to be followed up by implementation in educational practices and and post-secondary curricula

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Optimal language engagement time 3.1.3 University

Effective primary, secondary and post-secondary remedial Recommendations at university level take a different form
programmes in view of the autonomy of universities, and in recognition of
the prerogative of universities to make their own provision for
Creating a highly immersive English-rich environment in
education at university level. The recommendations are in this
schools
case guidelines which it is anticipated universities would wish
2. Teaching and Learning to take into account in providing their students with the English
language skills that they will need on graduation.
CEFR-informed pedagogy from preschool to post-
secondary 1. Curriculum

Learning materials of International-standard for preschool Internationally aligned curricula


to post-secondary Optimal English engagement time
Integrated use of online learning materials Systemic institutional support for English proficiency
Teacher competence development

2. Teaching and learning


3. Assessment
CEFR-informed pedagogy
National exams of international standard from primary to
post-secondary A minimum English requirement for English teachers
across universities

3. Assessment

A common international framework of reference for


interpreting English performance across universities

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The Roadmap 2015-2025

Student performance benchmarked against international A common standardised internationally benchmarked


standards English exit exam requirement for all English language
teacher training programmes

3.1.4 Teacher Education Criteria for the further professional development of in-service
teachers include
English language teacher education is divided into two parts, Linguistically and pedagogically competent teachers
pre-service and in-service. Pre-service education has to start
with strict criteria for the selection of intending teachers, who Licensing and certification requirements
like teacher educators also have to be provided with the expertise
Upgrading basic qualifications for English teachers
to deal with the three components of the English language
programme: International standards of Malaysian English teacher
proficiency
1. Curriculum

An internationally aligned language curriculum for English


Teacher education (ELTE) 3.2 The five stages of the innovation cycle

2. Teaching and learning In view of the high cost of educational reform, it is essential
to measure the effectiveness and success of any innovation. It is
English as the medium of instruction
not enough to introduce an innovation in the hope that it will bring
Outcomes-based education about beneficial change, and then claim without sufficient objective
evidence that it has been a success. Claims that innovations are
English teacher education: qualification requirement successful and have positive impact must be treated with caution,
English proficiency requirement for teachers especially if they are not substantiated by compelling evidence.
This is because the literature on innovations in English language
3. Assessment teaching research worldwide is awash with claims for statistically
significant improvements brought about by initiatives of all kinds.

324
There needs to be an innovation procedure for the introduction
and evaluation of initiatives. The evaluation of success and impact
must be independent and based on measurable differences before
and after the implementation of the initiative, and progress must be
Planning compared with that of control groups. This applies to initiatives that
have been introduced in connection with MEB Wave 1, and to any
changes made in the course of implementation of this Roadmap.

As the implementation of the plan gets underway, it will be


necessary to set up a monitoring and evaluation system to ensure that
we create an internationally competitive Malaysian English language
education system. Starting with initiatives that have already begun,
Review Implementation the introduction of different parts of the plan needs to be subjected
to a rigorous cyclical procedure as shown in Figure C.1:

1. Planning

2. Implementation

3. Monitoring

4. Independent evaluation

Independent Monitoring 5. Review


Evaluation 6. Repeat the cycle

Figure C.1
A cyclical process for
short-term initiatives
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English Language Education Reform in Malaysia
The Roadmap 2015-2025

For example, sets for English are now at stage 2, and are in the Teachers need high quality textbooks to use in their teaching,
process of being implemented. The implementation needs to be and in the case of teachers with insufficient English proficiency, high
monitored (stage 3), and evaluated (stage 4) to see whether or not quality textbooks have the additional role of supporting teachers with
the introduction of sets is having the beneficial effects expected. materials from which they can themselves learn. The area in which
The evaluation is then followed by a review (stage 5). teachers need most support, and in which high quality textbooks can
provide the support needed, is differentiated instruction.

4. The Three Priority Areas for Intervention In order to create a high quality English teaching force, priority
must be given to capacity building for English teachers, including
This subsection is concerned with three matters that need to be pre-service and in-service training, so that teachers embark on
addressed as a matter of urgency and given priority in order to maintain their careers with a clear understanding of what is required of
quality and equality of access, and to uphold the principle of equity. them, and continue to develop their skills and abilities as they
progress in their careers.
4.1 Teacher quality
By 2025, English teachers should be required to reach Band 4
In the immediate term, it is essential to provide English teachers on the Teaching Knowledge Test within five years of appointment.
who have not attained a sufficient level of proficiency in English Teacher educators should be of the same academic standing as
with classroom support in the form of English language assistants university lecturers, and should have in addition to a high level of
and mentors, etc. However, the competence of assistants and proficiency in English at least a relevant MA on appointment, and
mentors must itself be assessed, in order to ensure that the support by 2025 those without a Phd should be registered for a PhD and
provided is of sufficient quality. required to obtain the PhD within a maximum of five years.
All English teachers should have at least a first degree which
includes education and English Language in some appropriate
combination, and by 2025 the minimum English language proficiency
requirement should be CEFR C1. Newly qualified English teachers
should be given a licence to practise and renewable certification.

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Guided Learning Hours for
Stage of Education Total Class Hours available CEFR Level
the next CEFR level

University (2-8 credit hours) 80-140 700-800 C1

Post-secondary Form 6 Unspecified 500-600 B2

Upper Secondary Forms 4-5 (KBSM) 253 500-600 B2

Lower Secondary Forms 1-3 (KBSM)) 380 350-400 B1

SK(SJK) Stds 4-6 (KSSR) 342 (570) 180-200 A2

SK(SJK) Stds 1-3 (KSSR) 285 (570) 90-100 A1

Table C.1
Hours allocated for English and
CEFR guided learning hours
4.2 The allocation of time for the learning of English The first figure for primary schools relates to National Schools,
and the figure in brackets to National-Type Schools; the figures
As a rule of thumb, some 200 hours of instruction are required
for universities represent the range. Column 3 shows the range
to bring a language learner up from one CEFR level to the next.
of the cumulative total number of hours of instruction (or guided
The number of hours currently available for English are presented
learning hours) estimated to be necessary to reach the target
in Table C.1.
CEFR level presented in column 43.
Column 1 lists the stages of education, and column 2 shows
The primary school figures may give the impression that
the corresponding number of hours currently available for English.
there is more than sufficient time to reach the target A1 and A2.
3
https://support.cambridgeenglish.org/hc/en-gb/articles/202838506-Guided-learning-hours

accessed 25 June 2015

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

However, the estimated figures in column 3 are for adult learners 1. The placement of high calibre English teachers to teach
in a learning environment in which they are exposed to English as beginning learners;
a means of communication outside the formal learning hours. It is
2. The creation of a highly immersive English-rich environment
important to recognise that these young learners are at an early
in school from the very beginning;
stage of development, and that they are learning English in addition
to Malay (National Schools) and also to their mother tongue 3. A rapid-response remedial teaching service to support
(National-Type Schools). They are likely to need more hours of less successful learners before their lack of progress becomes a
instruction in order to reach CEFR levels in English. Children in problem.
rural or remote schools will probably engage with English for only
The placement of high calibre effective teachers is necessary
30 to 60 minutes per day during English lessons in school, and have
because without a good foundation in English in the early years,
no access to or need for the language beyond the classroom.
children will find it more difficult to catch up later on, especially
Taking into account the reducing allocation of time for English those in rural and remote areas. A highly immersive English-
in the more advanced stages of education, every effort must rich environment should include high quality spoken materials to
be made to give English learners a good start with high quality enable young learners to exploit their innate language learning
provision for learning in preschool and primary school. Although ability in an informal manner outside formal teaching times. This
the target can be achieved just by getting children in the middle of is particularly important in order to take advantage of the natural
the A2 range up to end target level of A2 by the end of primary language learning ability which peaks in early childhood. Parents
school, attention also needs to be paid to the needs of children should be involved and other local resources utilised to integrate
above and below the A2 range. The number of high fliers reaching the use of English into everyday life.
at least B1 must be maximised, and of those not reaching A2 must
Providing students with a good early foundation in English
be minimised.
also facilitates a strategy to cope with the reducing allocation of
Essential measures to minimise the number of children failing hours in secondary and tertiary education. Students with a good
to reach A2 by the end of primary school include the following: foundation in English will profit from instruction in English, and
the teaching of other subjects in English. From a linguistic point

328
of view, the most suitable subjects are Physical Education and the part by the social circumstances into which they were born, and for
Arts (including Visual Arts and Music). In both cases, students are whom early intervention will open up greater chances in life, and
required to do things in response to spoken instructions, and will whose success will greatly benefit the nation in the longer term.
have a chance to practise grammar and vocabulary and develop
What we need is a system of remedial English language
their Listening and Speaking skills.
education which is not an add-on to the main programme, but
ICT can also be profitably taught in English, on the grounds that part of the main programme itself. Children should not be allowed
English is the resident language of computer-based technologies. to fail in English and then given support to help them recover
For selected schools science and mathematics can also be taught in from failure, but should be given support to stop them failing in
English. Having subjects like these taught in English will gradually bring the first place. Effective differentiated teaching will take us some
about dual language instruction which will improve students learning way towards this objective, and keep some children within the
of both English and Malay. However, this recommendation for the mainstream who would otherwise be regarded as failures.
increase in the engagement hours for English must be compatible with
In this connection, it has to be recognised that if the proposed
maintaining the position of Malay as the national language.
reduction in the number of hours allocated to English goes ahead,
the result will be not just increased failure in English, but cascading
failure in English. Since the cuts are planned at primary level, the
4.3 Remedial support
increased failure will begin in primary school and continue through
The counterpart to increasing success is reducing failure. Unless secondary school to tertiary education, and lead in due course to
the principle that all children must be given the chance to reach increased graduate unemployment. In response to increasing failure
the highest standard of which they are capable is incorporated into in English, either large numbers of children will be left behind for
the fabric of the English language programme, those most likely to no fault of their own, or else we shall have to mount a massive and
fail to reach their own potential will be the most vulnerable, and hugely expensive remedial operation to repair the damage.
will include the poor and those in rural and remote areas. From a
In order to provide an effective remedial support system,
national point of view, it is particularly important to cater for the
consideration should be given to the creation of a remove system
needs of those bright students whose lack of success is caused in
which goes beyond the temporary support provided under LINUS

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The Roadmap 2015-2025

2.0, so that children in danger of falling behind can be taken out of become English teachers, and that they are given the high quality
the mainstream for a substantial period, and given special attention training which alone will enable them to achieve excellence in
to provide them with the foundation in English they will need later their classroom performance. Entry to the profession must be
on in their educational careers. controlled, so that the number of recruits trained matches the
number of new English teachers required.

5. Conclusions and recommendations High-calibre English teachers need to work within the
framework of a high quality English language programme. Again,
We have before us an opportunity to create a world class English the solution to the problem is internationally well known, and it
language education system. The motivation for the preparation of involves aligning the whole programme to prevailing international
the present Roadmap is the realisation that unless we create a top standards. Curricula, teaching and learning, and assessment need
performing general education system, we are not going to achieve to be closely integrated into a single programme, so that students
our national aspiration to become a high-income developed nation, are faced with a coordinated set of learning activities at any one
or to become an educational hub for the region and beyond. In time, and as they progress through the programme, they tackle
view of the importance to this national enterprise of achieving appropriate activities of increasing difficulty and complexity. In
excellence in English, our English language education system has practice, these objectives are most effectively to be achieved by
to undergo systemic reform, and the special remit of this Roadmap aligning the whole programme to the CEFR, and maintained by
is to mark out the way ahead. Public attention has focused on bringing together under a single authority the different stakeholders
graduate unemployment and its connection with inadequate currently responsible for the different components curriculum,
English, but this is a symptom of the underlying problem that our teaching and learning including materials development, and
English education system is not at this stage designed to put us in assessment of the English language programme.
the position among the nations of the world to which we aspire.
It is in our national interest, and it is also a moral imperative in
It is internationally well known that in order to create a top accordance with the principle of equity, to narrow and if possible
performing education system, it is essential first to create a high- close the performance gaps between different groups of students.
calibre teaching force. We too must ensure that the right people We have to support the most vulnerable, so that by becoming

330
strong they cease to be vulnerable, and contribute to the prosperity And finally, it must constantly be borne in mind that the
and wellbeing of the nation. Among the most vulnerable are the ideas put forward in this document relate to only one half of the
very young, the poor, those with disabilities, and those in rural and MBMMBI policy. In order to survive and prosper as a nation in a
remote locations. All these groups need and deserve the very best globalised world dominated by English, we have no choice but to
of English teachers. And male and female students need to see become more international in outlook, and achieve high standards
the point of learning English, so that they are motivated to devote of English in order to communicate with the rest of the world. It
the years of effort required to develop the level of proficiency and is our responsibility to provide our young people with the English
language learning skills that will enable them to get a first job, and language skills they need to find employment commensurate with
then advance in their careers. their educational qualifications, and compete successfully in an
increasingly competitive international jobs market. Yet it is also our
There is never enough time to study English given the rival
privilege and our duty to promote Malay as our national language
claims of other subjects that must be included in the timetable,
and the language of unity.
and so the time that is available must be spent wisely on learning
activities that stimulate the interest of young people. Since time To ensure the successful implementation of the proposals put
is most available in the early years, before competition with other forward in this document, we make the following recommendations
subjects begins in earnest, the strategy should be to make as much for policy:
progress in English as possible in the early years, which is also the
(i) Teacher qualification:
time when the childrens natural language learning ability is at
its peak. Given a good start, children should be able to continue a. The minimum entry requirement to be set for teachers at
their learning of English as greater demands are made of them, all stages of education should be a first degree or equivalent
and what they are required to do in English becomes increasingly qualification combining Education and English Language;
difficult and complex. A strategy of this kind is needed because it is
b. The minimum proficiency requirement for English teachers
not possible in the real world to create the ideal situation in which
should be C1; those not having reached C1 being required
the number of teaching hours increases as students progress to
to undergo further proficiency training;
higher levels.

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

c. Teachers should be required to apply for renewed our ambition to become internationally recognised as an advanced
certification every five years. nation. And if we fail, the future will be bleak for us all; but it will
be bleakest of all for those who are already the most vulnerable,
(ii) International benchmarking:
for the children of the poor, and for the children of those in rural
The whole of the English language education system, and remote locations.
including curriculum, teaching and learning, and assessment
The most vulnerable members of our community are those
must be aligned to the CEFR at all levels of education.
who most need the support that can be given by a high quality
(iii) Monitoring standards and quality: education system that provides them with high standards of Malay
to give them confidence in using the national language, and with
The ELSQC should be empowered to make final decisions
high standards of English to enable them to join the international
on all projects, initiatives and ventures concerning the
community and make them feel part of it. The stakes are too high,
teaching of English in Malaysia to ensure that they are
and we shall not fail; and that is because we have a plan which
consistent with the Roadmap. All these projects, initiatives
when implemented will put us on course to bring our English
and ventures should be screened before submission by a
language education system up to the standards enjoyed by the
body authorised to make recommendations to the ELSQC.
most advanced countries in the world.
While the Roadmap summarised in this report has been in
preparation, countries across the world have been doing much the
same, and making plans to improve their English education systems.
Among the countries that see the necessity to raise the standards
of English attained by their young people is the United Kingdom
itself, the very historical home of the English language. Malaysia
cannot hope to succeed in an interconnected world dominated
by global English without bringing national standards of English
up to the standards now expected and required internationally.
If we do not take the opportunity now before us, we will fail in

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English Language Education in Malaysia
The Roadmap 2015-2025

THE ROADMAP

PRESCHOOL

PRIMARY

SECONDARY

POST-SECONDARY

UNIVERSITY

TEACHER EDUCATION

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

334
English Language Education in Malaysia
The Roadmap 2015-2025

THE ROADMAP

Preschool
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English Language Education Reform in Malaysia
The Roadmap 2015-2025

PRESCHOOL EDUCATION
THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (20132025)

C PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025) C


CONDITIONS LEAD CEFR EXIT
E FOR REFORM AGENCY
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
LEVEL (2025)
E

F Strong CEFR BPK Set CEFR Staged learning Implement Staged learning Evaluate and Appropriate A1 F
Foundation staged learning outcomes and monitor outcomes revise staged staged learning
to achieve outcomes based staged learning with DAP as learning outcomes
R international on Cambridge outcomes a reference outcomes
R
standards Baseline 2013 with DAP as a implemented with DAP as a
study as a guide reference and a report on reference
for preschool implementation
F F

O O

U Develop CEFR CEFR descriptors Validate the The CEFR Review and Final CEFR U
descriptors developed CEFR descriptors revise CEFR descriptors
suitable for the descriptors validated descriptors
N N
preschool stage
of learning
D D

A DAP-CEFR BPK Alignment of the English language Launching and monitoring of DAP- Review and revision of DAP- A
alignment curricula, teaching and learning, CEFR-aligned English language CEFR-aligned English language
T and assessment to DAP and CEFR curricula, teaching and learning, and curricula, teaching and learning, and T
assessment assessment
I I
DAP-CEFR ELSQC Setting up of an independent Monitoring of all actions required for Review of and report on outcomes
O implementation body responsible for the reform and efficacy of reform O
and monitoring ELTC implementation and monitoring of
N BPPDP the reform process N

THE ENGLISH LANGUAGE EDUCATION ROADMAP (2015-2025): PRESCHOOL

336
PRESCHOOL EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

Alignment BPK Adopt the CEFR as CEFR used as the Evaluate and A comprehensive Review the An improved A1
C of learning the reference for the reference for the monitor teachers report of the EL content document
C
standards development of the development of the comprehension of evaluation and learning
U content and learning content and learning the EL content and standards in U
standards for EL standards for EL learning standards the revised
R in the revised document R
Reinforce DAP as the DAP reinforced as the document based on the
reference for including reference for including evaluation
R pedagogical aspects pedagogical aspects R
report
in the content and in the content and
I learning standards for learning standards for I
Review and Final CEFR
EL EL
revise CEFR descriptors
C descriptors C
Provide the NPSC in Teachers are provided
English to encourage with the NPSC in both
U the use of English for bahasa Malaysia and U
the Thematic Module English
L L
Transition BPK Adopt DAP as Appropriate sample Evaluate and A comprehensive Review the A set of
from one the reference for schedules focusing on monitor the report of the schedules improved
U instructional JNJK planning daily instructional language implementation evaluation based on the schedules
U
language to schedules focusing on use of the schedules evaluation
M another instructional language focusing on report M
use instructional
language use

A highly ELTC Encourage an An emerging immersive Implement and An emerging Review and A highly
immersive immersive English English environment monitor school- highly immersive improve immersive
English-rich BKK learning environment based initiatives to English-rich school-based English-rich
environment in preschools with encourage a highly environment in initiatives environment in
in preschools school-based initiatives immersive English preschools preschools
environment

THE ENGLISH LANGUAGE EDUCATION ROADMAP (2015-2025): PRESCHOOL

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English Language Education Reform in Malaysia
The Roadmap 2015-2025

PRESCHOOL EDUCATION
THE ROADMAP (2015-2025)
C PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025) C
U CEFR EXIT U
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
R (2025) R
R Parental and PPD Design Programmes Launch parent Community Review Increased R
community programmes for parental and community engagement engagement effective EL
I engagement JPN to engage and community engagement programmes programmes engagement I
parents and engagement programmes launched time
C PIBG
the community designed
C
Monitor Monitoring reports
U in supporting
programmes submitted
U
preschool
L students EL L
Broader
learning (e.g.
U teacher aides)
opportunities to U
use EL in and
M outside school M

T TEACHING & LEARNING T


E E
DAP-informed ELTC Conduct courses Awareness and Provide continuous Inspectorate Monitor and DAP-informed A1
A pedagogy on understanding understanding professional trained in evaluate the pedagogy used A
C JNJK and using DAP of DAP raised development DAP-informed effectiveness of effectively C
H IPTA/USM principles to among In-service courses for the pedagogy pedagogy using H
inform practice and pre-service inspectorate to DAP principles
I I
teachers enable them to
N effectively monitor N
G and evaluate the G
effectiveness of
pedagogy using
& DAP principles
&

L Minimum BPSM Appoint Competent users, Continue A body of Review English


L
E qualification competent users particularly retired appointment of EL proficient the English language quality E
A for preschool IPTA/USM of English to local English competent users preschool teachers language quality achieved among A
R teachers: teach preschoolers teachers considered of English of preschool preschool R
English (focus on retired for post of teachers teachers
N proficiency local English preschool teacher N
I and academic teachers) I
N qualifications N
G G

THE ENGLISH LANGUAGE EDUCATION ROADMAP (2015-2025): PRESCHOOL

338
PRESCHOOL EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)
T T
E CEFR E
A CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
EXIT A
C FOR REFORM AGENCY LEVEL C
(2025)
H H
I Minimum BPSM Implement the Bachelors Appointment Review the Minimum I
N qualification degree as the minimum requirements appointment qualifications N
for preschool IPTA / qualification for preschool implemented qualifications for pre-school
G teachers: USM teachers to be achieved by of preschool teachers G
2025: teachers attained
& English &
proficiency a.Major English, minor
and academic Early Childhood Education
L qualifications or Preschool Education L
E E
A b. Major Early Childhood A
Education or Preschool
R R
Education, minor English
N N
I c. Double degree consisting I
N of English and Early N
Childhood Education or
G G
Preschool Education

ASSESSMENT
A A
CEFR- BPK Revise constructs and A revised National Monitor and evaluate Evaluation Review the A robust NPAT A1
S informed descriptors for performance Preschool Assessment CEFR-informed assessment reports on NPAT guided based on
S
LP
S assessment standards to incorporate Tool (NPAT) based the effective by the CEFR CEFR-informed S
assessment on phonics on a CEFR-informed use of CEFR- assessment
E (for 5+ age group) and assessment framework informed E
HOTs complemented by a assessment Developmentally
S glossary of terminologies by JNJK and linguistically S
appropriate
S relating to constructs, S
descriptors and concepts non-standardised
M used, guided by the CEFR and standardised M
assessment tools
E Provide exemplars of Exemplars of E
N developmentally and developmentally N
linguistically appropriate appropriate and
T assessment tools for linguistically appropriate T
standardisation assessment tools

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PRESCHOOL EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR
CONDITIONS LEAD EXIT
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
FOR REFORM AGENCY LEVEL
(2025)

ASSESSMENT

Institutional PPD Mobilise Standardised Train teachers to adapt Valid assessment Train teachers Developmentally A1
A support teachers assessment valid assessment tools adapted for all to create and linguistically A
for the JPN to develop tools for tools to create language skills developmentally appropriate
development collaboratively listening and developmentally and linguistically assessment
S of assessment standardised speaking and linguistically Professional upskilling appropriate tools created
S
tools assessment developed appropriate courses for teachers assessment tools
S tools for testing collaboratively assessment tools for with advisory support individually (or S
listening and all language skills (L, on (a) English collaboratively) for
E speaking skills S, R, W) language assessment, own (or shared) E
and (b) adapting use
and developing
S standardised Evaluate Evaluation report
S
assessment tools by assessment tools by JNJK to PPD
S ELTC and upskilling and JPN S
courses
M M

E E
Teacher BPSH Recruit EL option Supervise, monitor An evaluation report Evaluate teachers A report on
N competency EL option teachers and/or and evaluate teachers on teachers use of competency in teachers N
in preschool teachers and/ competent users competency in the exemplars and assessment - to competency in
assessment or competent of English (teach assessment to be assessment tools be carried out by assessment
T users of English and) conduct carried out by PPD, JNJK T
to (teach assessment JPN and JNJK
and) conduct
assessment

Assess pupils Pupils are more Assess pupils guided Pupils are more Conduct student Enforcement
guided by comfortable by the exemplars and confident in the use of portfolio of the use of
exemplars in the use of adaptations of valid language assessment student portfolio
language assessment tools assessment

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PRESCHOOL EDUCATION
THE ROADMAP (2015 - 2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

International ELSQC Conduct a A benchmark Carry out an Students achieve A1


standard of benchmark study study report impact study on minimum EL
Preschool EL for preschool the reformed proficiency target
education students to preschool EL
establish the education system
impact of
initiatives on the
EL proficiency of
preschool students

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The Roadmap 2015-2025

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The Roadmap 2015-2025

THE ROADMAP

Primary
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The Roadmap 2015-2025

PRIMARY EDUCATION
THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (20132025)

PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)


C C
CONDITIONS LEAD CEFR EXIT
E ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES E
FOR REFORM AGENCY LEVEL (2025)
Strong CEFR BPK Set CEFR staged Staged target Implement and Staged Evaluate and Appropriate Year 3: A1
F Foundation target proficiency levels monitor staged target levels revise staged staged target
F
to achieve levels for primary target levels implemented target levels levels Year 6: A2
R international education based and a report on R
standards on the Cambridge implementation
Baseline 2013
Develop CEFR CEFR Validate the The CEFR Review and revise Final CEFR
F descriptors suitable descriptors developed CEFR descriptors CEFR descriptors descriptors F
for every year at each descriptors validated
O stage of learning O

U U
Build capacity by CEFR Master Implement Teachers trained Evaluate and Effective
N training key deliverers Trainers (key and monitor in the CEFR revise CEFR CEFR training N
(teachers SISC+, MoE deliverers) CEFR training and reports training by Master programmes
EL officers) for the for teachers by on training Trainers
D implementation Master Trainers programmes D
of CEFR-aligned
A Form a CEFR CEFR Task Force Develop the The CEFR-M A
curricula, teaching
task force from CEFR-M (by the developed
and learning, and
the Master CEFR Task Force)
T assessment T
Trainers
I CEFR alignment BPK The alignment of English language The launching and monitoring of Review and revision of CEFR-aligned I
curricula, teaching and learning, and CEFR-aligned English language English language curricula, teaching and
O assessment to the CEFR curricula, teaching and learning, learning, and assessment O
and assessment
N CEFR ELSQC The setting up of an independent Monitoring of all actions required Review of and report on outcomes and N
implementation body responsible for the for reform efficacy of reform
ELTC implementation and monitoring of
and monitoring
BPPDP the reform process

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PRIMARY EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

internationally BPK Review and revise The primary Roll out CEFR- Gradual Review and The CEFR- Year 3:
C aligned the KSSR primary EL KSSR-EL aligned KSSR implementation of revise the aligned KSSR A1 C
curriculum curriculum (Years 1-6) curriculum primary EL the CEFR-aligned CEFR-KSSR primary EL
U and learning reviewed and curriculum in KSSR EL curriculum primary EL curriculum Year 6: U
standards revised stages for all stages of curriculum meets A2
R learning international R
standards
Align the reviewed The CEFR-KSSR Monitor and Recommendations
R KSSR EL curriculum to EL curriculum evaluate the for Improved R
the CEFR implementation of delivery of the
I the CEFR- aligned CEFR-KSSR primary I
KSSR EL curriculum EL curriculum
C Effective BPK Promote understanding Appreciation of Reinforce Increased Strengthen Curriculum C
implementation of the CEFR-aligned the significance understanding appreciation of the partnership implementation
ELTC
U and delivery of KSSR EL curriculum of the revised among teachers revised curriculum amongst all sustained by U
curriculum IPGM among teachers, school curriculum and school leaders stakeholders an effective
L leaders and parents to appreciate the to sustain network of L
BPG to appreciate the new EL curriculum curriculum stakeholders
IAB significance of the new implementation
U curriculum
U

M BPK Build capacity for Master Trainers Train primary Teachers well- Continue Improvement M
Master Trainers well trained school teachers trained and capacity in the use of
ELTC (key deliverers) to in the CEFR- to understand, confident in the building for all the CEFR-
IPGM understand, implement aligned KSSR EL implement and use implementation and primary school aligned KSSR
and use the CEFR- curriculum the CEFR-aligned use of the CEFR- teachers EL curriculum
BPG aligned KSSR EL KSSR EL curriculum aligned KSSR EL
curriculum through workshops curriculum
Monitor training Recommendations
for improvement

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PRIMARY EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

Effective BPK Ensure correct CEFR-aligned Improve interpretation CEFR Capacity Monitor and Improved delivery Year 3:
implementation interpretation and KSSR primary and implementation building review the of the CEFR- A1
and delivery of implementation EL curriculum of the CEFR-aligned workshops for implementation aligned KSSR
curriculum of the CEFR- toolkits KSSR primary EL teachers of the CEFR- primary EL Year 6:
C KSSR primary EL developed curriculum through aligned KSSR EL curriculum A2 C
curriculum by all in-service teacher curriculum
U teachers training U
Effective BPK Develop remedial Sound remedial Roll out and monitor Remedial Review and Improved remedial
R remedial programmes for programmes remedial programmes programmes for revise remedial programmes for R
programmes students yet to developed Years 4-6 rolled programmes for Years 4-6
R achieve set targets out and monitored Years 4-6 R
for Years 4-6
I BPK Monitor and Review A revised LINUS Conduct an impact An impact study Revise LINUS 2.0 Good remedial I
the LINUS 2.0 2.0 programme study of LINUS 2.0 report produced programme based programme for
C JNJK programme on the study Years 1-3 C
Optimal BPK Increase EL learning Similar EL Implement and Increased Review the Consolidation of
U language time for SRJK learning time monitor the use of language learning effectiveness EL learning time U
engagement schools (Years 1-6) to SRK schools increased language time implemented of increased EL
L time (Year 1-6) learning time and monitored learning time L
BPK Select other Subjects Implement the The teaching of Review the Dual language
U U
subjects to be selected to teaching of selected subjects in English effectiveness of programme in
ELTC taught in English be taught in subjects in English implemented the teaching of primary schools
M (e.g. Science or English subjects in English M
IPGM Monitor the Monitoring reports
Maths)
BPG implementation submitted Consolidate
the teaching of
subjects in English
Conduct in-service Teachers trained Continue in-service EL Training Review the Subject teachers
EL training for and proficient training for teachers programmes for effectiveness well-trained in
subject teachers in English subject teachers of the training using English to
in place programmes teach
Plan for pre-service Implement pre-
EL training for the service EL training for Revise the training Higher EL
subject teachers the subject teachers programmes proficiency among
involved involved primary students

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PRIMARY EDUCATION
THE ROADMAP (2015 - 2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)
C C
CURRICULUM
U U
A highly ELTC Encourage an An emerging Develop and An emerging highly immersive Review and A highly Year 3:
immersive immersive immersive implement school- English-rich environment in improve immersive A1
R BKK R
English-rich English learning English based initiatives to primary schools school-based English-rich
environment environment environment encourage the active initiatives environment Year 6:
R in schools in primary in primary use of English among in primary A2 R
schools with schools students schools
I opportunities Monitoring reports submitted I
for the Monitor the initiatives
C purposeful and C
contextualised
U use of English U

L Parental and PPD Design Programmes Launch and Programmes launched Review and Increased EL L
community programmes designed for monitor parent improve parent engagement
engagement JPN to engage parental and and community Reports submitted on and community time for
U opportunities for primary U
PIBG parents and community engagement engagement primary
the community engagement programmes students to use EL in and out programmes students
M in supporting of school M
primary students
EL learning (e.g.
teacher aides, EL
immersion camps)

TEACHING & LEARNING

CEFR- BPK Build capacity for Master Trainers Build capacity for Teachers familiar and Continue Improved Year 3:
informed Master Trainers well-trained in teachers to use CEFR- confident in the use of capacity teaching of A1
ELTC
pedagogy (key deliverers) CEFR-informed informed pedagogy at CEFR-informed pedagogy building for the CEFR-
BPG to understand pedagogy all levels by Master the CEFR to aligned KSSR Year 6:
and use CEFR- Trainers cascade to all EL curriculum A2
IPGM
informed pedagogy teachers at all primary
levels

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The Roadmap 2015-2025

PRIMARY EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)
T T
TEACHING & LEARNING
E E
Internationally- BBT Select Selection criteria Purchase and Textbooks in line Evaluate and revise the The selection of textbooks Year 3:
A aligned
BTP
international for the CEFR- monitor the with the aims of selection of textbooks and support materials A1 A
teaching CEFR-aligned aligned textbooks use of the the CEFR-aligned and support materials revised
C and learning BPK textbooks and support international KSSR EL curriculum for Years 1-6 Year 6: C
materials and support materials CEFR-aligned A2
H materials for textbooks and H
Appropriate CEFR- Improved student Effective student
Years 1-6 support materials engagement with EL
I aligned materials engagement with I
selected EL materials materials
N N
BBT Review existing Teaching-learning
G BTP teaching- resources reviewed G
learning and aligned
BPK resources Train EL
ELTC to ensure teachers to use
& alignment with teaching-learning &
CEFR EL teachers trained Evaluate teacher use Recommendations for more
resources to
to use teaching- of teaching-learning effective use of resources by
BBT Coordinate and A repository of all improve delivery
learning resources resources primary school teachers
L consolidate teaching-learning of the CEFR- L
BTP aligned KSSR EL
reviewed resources set up.
E BPK teaching- curriculum E
learning A directory of
A ELTC teaching-learning A
resources
resources produced
R R
BTP Adopt/Develop Online teaching- Integrate on-line Online materials are a
N effective online learning resources teaching-learning regular part of lessons N
teaching-learning made available materials into lessons
I resources I
N BTP Create a database and Database and web portal N
web portal of language / LMS made available
G ELTC needs and resources for as gateway to teaching- G
primary education learning resources for
primary education
Review and upgrade
the existing learning The existing learning
management system management system (LMS)
(LMS) reviewed and upgraded

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PRIMARY EDUCATION
THE ROADMAP (2015 - 2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)
T T
E CONDITIONS CEFR EXIT E
LEAD
A FOR
AGENCY
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL A
C REFORM (2025) C
H Teacher ELTC Train teachers to Teachers trained Monitor and Recommendations Review the training of Teachers competent Year 3: A1 H
I competence conduct remediation in remedial evaluate teacher for improvement teachers in remedial to meet the needs I
IPGM Year 6: A2
N for students with instruction use of remedial in teacher use instruction of students with N
learning difficulties instruction of remedial learning difficulties and
G G
and disabilities instruction disabilities

& &
Train teachers to Teachers trained Monitor and Recommendations Review the training of Teachers competent
enable differentiated to enable evaluate for improvement teachers in the use of to meet the needs of
L learning for varied differentiated teacher use of in teacher use appropriate pedagogy students at different L
E EL proficiency levels learning differentiated of differentiated including differentiated proficiency levels E
A in primary school learning learning learning A
R R
N Train teachers to Teachers trained Monitor and Recommendations Review training Teachers competent in N
develop aesthetic/ in developing evaluate the for improvement of teachers in the developing aesthetic/
I creative language aesthetic/ development in the development of creative language use
I
N use among students creative language of aesthetic/ development of aesthetic/ creative among students N
G use creative language aesthetic/ creative language use G
use language use

ASSESSMENT

A Assessments BPK Develop the CEFR- The CEFR-aligned Implement and CEFR-aligned Review and revise the Valid and reliable CEFR- Year 3: A1 A
S and national aligned EL school- EL SBA monitor the SBA for Years 1-6 CEFR-aligned SBA for aligned school-based
examinations LP based assessment CEFR-aligned implemented and Years 1-6 assessment for Years 1-6 Year 6: A2 S
S of (SBA) for Years 1-6 SBA for Years I-6 monitored S
E international to include all 4 skills E
S standard
S
S S
Develop a new Draft of a CEFR- Pilot, improve Valid and reliable Review the national Year 6 national exam
M M
CEFR-aligned aligned national and implement CEFR-aligned exam and calibrate reviewed and calibrated
E national EL exam Year 6 EL exam the CEFR-aligned national Year 6 against international E
N for Year 6 which national Year 6 exam standards N
T includes all 4 skills EL exam
T

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)
A A
CEFR EXIT
S CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL S
FOR REFORM AGENCY
S (2025) S
E ASSESSMENT E
S S
Upskill EL ELTC Train primary EL Master trainers Upskilling of all All teachers Monitor and Recommendations Year 3: A1
S teachers Master Trainers to well-informed in teachers in the trained in the evaluate teacher for the S
in the IPGM implement CEFR- the management management of management of management of improvement Year 6: A2
M administration aligned school- of CEFR-aligned CEFR-aligned SBA CEFR-aligned SBA CEFR-aligned SBA to the EL SBA M
BPG
E of school- based assessment SBA training for E
based (SBA) teachers
N assessment Improved SBA
N
T T

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

International ELSQC Select An Independent Conduct a Student Benchmark Students achieve Year 3: A1
standard of independent international benchmark study performance students EL EL proficiency
Primary EL international body identified on Year 3 and benchmarked performance targets Year 6: A2
education body/organisation to carry out Year 6 students against against
to conduct benchmarking and to establish international international
benchmark and impact studies up the impact of standards standards Transformed
impact studies. to 2025 initiatives on the Primary EL
EL proficiency of Education system
primary students Benchmark Study Carry out an
Report impact study on
the reformed
Primary EL
education system

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Secondary
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SECONDARY EDUCATION
THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (2013 2025)

PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)


C C
CONDITIONS LEAD CEFR EXIT
E ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES E
FOR REFORM AGENCY LEVEL (2025)
Strong CEFR BPK Set CEFR staged Staged target Implement and Staged Evaluate and Appropriate Form 3: B1
F foundation target proficiency levels monitor staged target levels revise staged staged target
F
to achieve levels for secondary target levels implemented target levels levels Form 5: B1/B2
R international education based and reports on R
standards on the Cambridge implementation
Baseline 2013 submitted
Develop CEFR CEFR Validate the The CEFR Review and Final CEFR
F descriptors suitable descriptors developed CEFR descriptors revise CEFR descriptors F
for each year of descriptors validated descriptors
O secondary education O
Build capacity by CEFR Master Implement and Teachers trained Evaluate and Effective
U training key deliverers Trainers (key monitor the in the CEFR revise the CEFR training U
(teachers SISC+, MoE deliverers) CEFR training and reports CEFR training programmes
N EL officers) for the of teachers by on training by Master N
implementation Master Trainers programmes Trainers
D of CEFR-aligned D
curricula, teaching Form a CEFR task CEFR Task Force Develop the The CEFR-M
and learning, and force from Master CEFR-M (by developed
A assessment Trainers CEFR Task A
Force)
T T

I CEFR alignment BPK Alignment of English language Launching and monitoring of Review and revision of CEFR- I
curricula, teaching and learning, and CEFR-aligned English language aligned English language
assessment to the CEFR curricula, teaching and learning, and curricula, teaching and
O O
assessment learning, and assessment
N CEFR ELSQC Setting up of an independent body Monitoring of all actions required for Review of and report on N
implementation responsible for the implementation reform outcomes and efficacy of
ELTC and monitoring of the reform process reform
and monitoring
BPPDP

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PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

internationally BPK Align the KSSM CEFR-aligned Implement the CEFR-KSSM Review and International Form 3: B1
C aligned secondary EL KSSM secondary C
CEFR-aligned EL curriculum revise the CEFR- standard CEFR-
curriculum curriculum to the EL curriculum implemented Form 5:
KSSM secondary EL aligned KSSM aligned KSSM
U and learning CEFR curriculum (2017) in stages for all secondary EL secondary EL
B1/B2 U
standards secondary levels curriculum curriculum
R R

R R
Effective BPK Promote Acceptance of Reinforce Acceptance of the Strengthen Curriculum
I implementation understanding of the the need for a understanding new curriculum partnership implementation I
ELTC
and delivery of need to align the CEFR-aligned EL among teachers amongst all sustained by
C curriculum IPGM KSSM EL curriculum curriculum by and school leaders stakeholders an effective C
to the CEFR among stakeholders of the importance to sustain network of
BPG teachers, school of the new curriculum stakeholders
U U
IAB leaders and parents CEFR-aligned EL implementation
to appreciate the curriculum
L curriculum
L

U U
BPK Build capacity for Well-equipped Train secondary Teachers familiar Continue Improvement
Master Trainers Master Trainers school teachers with the CEFR and capacity in the use of
M ELTC (key deliverers) for the CEFR- to understand, confident in the building for the CEFR- M
IPGM to understand, aligned KSSM EL implement and use implementation all secondary aligned KSSM
implement and use curriculum the CEFR-aligned of the CEFR- school teachers EL curriculum
BPG the CEFR-aligned KSSM EL curriculum aligned KSSM EL
KSSM secondary EL through workshops curriculum
curriculum

Monitor training

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR
CONDITIONS LEAD EXIT
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
FOR REFORM AGENCY LEVEL
(2025)

CURRICULUM
C C
Effective BPK Ensure correct CEFR-aligned Improve CEFR capacity- Monitor and Improved delivery Form 3:
implementation interpretation and KSSM secondary EL interpretation building review the of the CEFR- B1
U BPG U
and delivery of implementation curriculum toolkits and workshops for implementation aligned KSSM
curriculum of the CEFR- developed implementation teachers of the CEFR- secondary EL Form 5:
R ELTC B1/B2 R
KSSM secondary of the CEFR- KSSM EL curriculum
EL curriculum aligned KSSM curriculum
R by all teachers EL curriculum R
through provision of through the in-
I curriculum toolkits service training I
of teachers
C Optimal BPK Increase EL learning EL learning hours Implement and The increased Review the Consolidation of
C
language hours for all increased for all monitor the use language learning effectiveness of the EL learning
U engagement secondary schools, secondary schools of the increased time monitored the increased EL time U
time particularly Forms hours learning time
L 4-5 L

U U
Utilise existing EL Higher proficiency Implement Curriculum goals Review the Recommendations
optional subjects students register and monitor for optional EL effectiveness of for improvement
M (EST and Eng. for the optional EL the teaching subjects include achieving higher M
Lit) to cater for subjects of the optional focus on higher proficiency goals Higher EL
higher proficiency EL subjects to proficiency goals. for students proficiency (B2)
students. achieve higher in optional EL among students
proficiency Report on the subjects in EL optional
goals for higher teaching and subjects
proficiency implementation
students of optional EL
subjects

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SECONDARY EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

Optimal BPK Introduce new New elective Implement and The teaching of Review the Recommendations Form 3:
C language elective subjects subjects monitor the elective subjects effectiveness for improvement B1 C
engagement (e.g. Critical developed to be teaching of new in English of the teaching
U time Thinking and taught in English elective subjects implemented and of new elective Form 5: U
Academic English) in English monitored. A report subjects in English B1/B2
R on the teaching of R
the elective subjects Higher EL
R in English. proficiency R
among secondary
Increase in student students
I EL use I

C Select other Subjects selected Implement the The teaching of Review the A dual language C
subjects to be to be taught in teaching of the subjects in English effectiveness of programme in
U taught in English English selected subjects implemented the teaching of secondary schools U
(e.g. Science or in English subjects in English
Maths)
L Monitor the Monitoring reports Consolidate L
implementation submitted the teaching of
U subjects in English U

M ELTC Conduct in-service Teachers trained Continue the in- Training programmes Review the Well-trained M
EL training for and proficient in service EL training for subject teachers effectiveness subject teachers
IPGM subject teachers English of the teachers in place of the training in using English to
programmes teach

Plan for the pre- Implement the Revise the training Higher EL
service EL training pre-service EL programmes proficiency
of the subject training of the among secondary
teachers involved subject teachers students
involved

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SECONDARY EDUCATION
THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

Effective BPK Develop remedial Sound Roll out and monitor Remedial programmes Review and Effective Form 3:
C remedial programmes for remedial remedial programmes for Forms 1-5 rolled revise the EL remedial B1 C
programmes students yet to achieve programmes out and monitored remedial programmes
the set targets at each developed programmes for Forms 1-5 Form 5:
U secondary level for Forms 1-5 B1/B2 U

R JNJK Implement Gap year Gap Year for Implement and The Gap Year for Review and An effective R
(Remove Class) for students with monitor the low EL proficiency revise the remedial
R BPPDP students yet to attain CEFR A1 effectiveness of the students implemented Gap Year programme R
BPK CEFR A1 for incoming Gap Year for identified and monitored programme for Form
I Form 1 students low EL proficiency (to include 1 students I
students students with with low EL
CEFR A2) proficiency
C C
A highly ELTC Encourage an An emerging Develop and An emerging highly Review and A highly
U immersive immersive English immersive implement school- immersive English- improve the immersive U
English-rich BKK learning environment English based initiatives to rich environment in school-based English-rich
L environment in secondary schools environment encourage the active secondary schools initiatives environment L
in schools with opportunities in secondary use of English among in secondary
for purposeful and schools students schools
U contextualised use of
U
Monitor the initiatives Monitoring reports
English
M submitted M
Parental and PPD Identify opportunities Programmes Launch parent Programmes launched Review and Increased EL
community and design programmes for parental and community improve engagement
engagement JPN to engage parents and engagement Monitoring reports parent and time for
and the community in community programmes submitted on community secondary
PIBG opportunities for
supporting students EL engagement engagement students
learning (e.g. teacher designed secondary students to programmes
aides, home learning use EL in and outside
Monitor the school
programmes, EL programmes
immersion camps)

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T CEFR T
CONDITIONS LEAD EXIT
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
E FOR REFORM AGENCY LEVEL E
(2025)
A A
TEACHING & LEARNING
C C
CEFR-informed BPK Build capacity for Master Master Trainers well- Build capacity for Teachers familiar Continue Improved teaching Form 3:
H pedagogy Trainers (key deliverers) trained in CEFR- teachers to use and confident with the capacity of the CEFR- B1 H
BPG to understand and informed pedagogy CEFR-informed CEFR-informed building for aligned KSSM EL
use CEFR-informed pedagogy at all pedagogy the CEFR to curriculum at all Form 5:
I IPGM B1/B2
I
pedagogy with the focus levels by Master cascade to all secondary levels
N IPTA on developing student Trainers teachers N
self-directedness and
G a communicative and G
interactive teaching
approach

& &
Internationally- BBT Select international Selection criteria Purchase and Textbooks in line Evaluate and A revised selection
aligned CEFR-aligned textbooks for CEFR-aligned monitor the use of with the aims of revise the of textbooks and
BTP
teaching and and support materials for textbooks and the international CEFR-aligned KSSM selection of support materials
L learning BPK Forms 1-5 support materials CEFR-aligned EL curriculum textbooks L
materials textbooks and and support
E Appropriate CEFR- Improved student Effective student E
support materials materials for
aligned materials engagement with engagement with
Forms 1-5
A selected EL materials English A
R BBT Review existing Teaching-learning R
BTP teaching-learning resources reviewed
N resources to ensure and aligned N
ELTC Train EL teachers
alignment with the CEFR Recommendations
to use teaching- Evaluate
I on the more I
learning resources EL teachers teacher use of
Coordinate and A repository of all effective use
to improve the trained to use the the teaching-
N consolidate reviewed teaching-learning of resources by N
delivery of the resources learning
teaching-learning resources set up. secondary school
CEFR-aligned KSSR resources
G resources teachers G
A directory of EL curriculum
teaching-learning
resources produced

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

T CONDITIONS LEAD
CEFR EXIT T
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
E (2025) E
A TEACHING & LEARNING A
C Internationally- BBT Adopt/Develop Teaching-learning Integrate Resource Form 3: C
aligned effective teaching- resources made teaching- materials are B1
H teaching and BTP learning resources available learning resource part of daily H
learning (including on-line materials into lessons Form 5:
ELTC
I materials resources) lessons B1/B2 I
N Teacher BPG Train teachers to Teachers trained Monitor and Recommendations Review the Teachers N
competence enable differentiated in the use of evaluate teacher for improvements training of competent to
G ELTC learning for varied EL differentiated use of differentiated in teacher use teachers in meet the needs G
IPGM proficiency levels in learning and learning and of differentiated the use of of students
secondary school techniques techniques enabling learning and differentiated
IPTA enabling independent, self- independent, self- learning and
& Train teachers to independent and directed learning directed learning independent
&
enable independent self-directed learning
and self-directed learning
L learning among L
students
E E
A A positive ELTC Encourage a positive Pedagogy to Enhance student Recommendations Review student Students A
student student learning encourage a development for improving development in demonstrate
R language culture especially in positive student in independent student independent and greater R
learning culture terms of independent language learning and self-directed independence and self-directed independence
N and self-directed culture language learning self-directedness in language in language N
language learning language learning learning learning
I I
Development of Development of Monitor student
N related learning tools related learning development N
similar to the CEFR tools similar to the
G Language Portfolio CEFR Language G
Portfolio

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CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

ASSESSMENT

Assessments BPK Align EL school-based CEFR-aligned EL Implement and CEFR-aligned SBA Review and Valid and reliable Form 3:
and assessment (SBA) to SBA monitor CEFR- for Forms 1-5 revise CEFR- CEFR aligned B1
A examinations LP the CEFR for Forms aligned SBA for implemented and aligned SBA for school-based A
of international 1-5 and include all 4 Forms 1-5 monitored Forms 1-5 assessment for Form 5:
S standard skills Forms 1-5 B1/B2 S
Develop new CEFR-aligned EL Pilot, improve Valid and reliable
S CEFR-aligned EL examinations for and implement CEFR-aligned
S
examinations for Forms 3 and 5 CEFR-aligned examinations
E Forms 3 and 5 examinations for E
to include all 4 Forms 3 and 5
S skills S

S Adopt assessment Assessment Integrate Assessment Review and Students S


practices that practices that assessment practices that monitor demonstrate
encourage greater encourage practices that encourage assessment independent and
M student independence independent and encourage independent and practices self-directed
M
and self-directed self-directed greater student self-directed qualities related
E learning learning identified independence learning integrated to assessment E
and adopted and self-directed into SBA
N learning into SBA N

T Upskill EL ELTC Train secondary EL Master trainers Upskilling of all All EL teachers Monitor and Recommendations T
teachers in Master trainers to well informed in teachers in the trained in the evaluate teacher for improvements
administration IPGM implement CEFR- the management management management of management of to EL SBA training
of school-based IPTA aligned school-based of CEFR-aligned EL and CEFR-aligned SBA CEFR-aligned for teachers
assessment assessment (SBA) SBA implementation SBA
BPG with the emphasis on of CEFR-aligned Improved
performance-based SBA implementation
assessment and can of SBA that is
do statements performance-based
and reflects can do
statements

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THE ROADMAP (2015-2025)

A PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025) A


S CEFR EXIT S
CONDITIONS LEAD
S ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL S
FOR REFORM AGENCY
(2025)
E E
S ASSESSMENT S
S Establish ELTC Set up a special An independent Monitor the Improved validation Review the Recommendations Form 3: S
continuous independent body set up effectiveness of of assessments roles and for more effective B1
M validation body to validate to validate the independent with an improved responsibilities of implementation M
processes for assessments assessments validation body relationship the independent of the validation Form 5:
E B1/B2 E
CEFR informed and relevant between teaching validation body processes
N assessments agencies and assessment and relevant N
agencies
T T

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

International ELSQC Select an An independent Conduct a Student Benchmark Students achieve EL Form 3:
standard of independent international benchmark study performance students EL proficiency targets B1
Secondary EL international body/ body identified for Forms 3 benchmarked performance
education organisation to to carry out and 5 students against against Form 5:
conduct benchmark benchmarking and to establish international international B1/B2
and impact studies. impact studies up the impact of standards standards
to 2025 initiatives on the
EL proficiency of
secondary students A Benchmark Carry out an Transformed
Study Report impact study on secondary EL
the reformed education system
secondary EL
education system

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Post-secondary
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THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (2013 2025)

C PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025) C


CONDITIONS LEAD CEFR EXIT
E FOR REFORM AGENCY
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES
LEVEL (2025) E
F Strong CEFR BPK Set CEFR staged Staged target Implement and The staged Evaluate and Appropriate B2 F
Foundation target proficiency levels monitor staged target levels revise the staged target
to achieve levels for post- target levels implemented and staged target levels
R international secondary EL based a report on their levels
R
standards on the Cambridge implementation
Baseline 2013
Develop CEFR CEFR Validate the The CEFR Review Final CEFR
F descriptors suitable descriptors developed CEFR descriptors and revise descriptors F
for each year of post- descriptors validated the CEFR
O secondary education descriptors O
Build capacity CEFR Master Implement and Teachers trained Evaluate and Effective
U by training key Trainers (key monitor the in the CEFR revise the CEFR training U
deliverers for the deliverers) CEFR training and reports CEFR training programmes
N implementation of teachers by on training by Master N
of CEFR-aligned Master Trainers programmes Trainers
D curricula, teaching The CEFR-M D
and learning, and Form a CEFR task A CEFR Task Develop the
force from Master Force CEFR-M developed
A assessment A
Trainers

T T
CEFR alignment BPK The alignment of post-secondary The launching and monitoring of Review and revision of CEFR-
I curricula, teaching and learning, and CEFR-aligned English language aligned English language
I
assessment to the CEFR curricula, teaching and learning, and curricula, teaching and learning,
O assessment and assessment O
N CEFR ELSQC Setting up of an independent body The monitoring of all actions Review of and report on N
implementation responsible for the implementation required for reform outcomes and the efficacy of
ELTC and monitoring of the reform process reform
and monitoring
BPPDP

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CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

An BPK Develop a CEFR- A CEFR-informed Implement and The CEFR-aligned Evaluate the Recommendations B2
C internationally informed post- curriculum monitor the CEFR- curriculum effectiveness for the
C
aligned EL B.Matrik. secondary EL developed implemented
informed curriculum of the CEFR- improvement of
U curriculum KPT curriculum informed the curriculum U
curriculum
R R
Effective KPT Build capacity for Master Trainers Train post- Teachers well- Continue Improvement in
implementation Master Trainers well trained for secondary teachers trained and capacity the use of the
R and delivery of (key deliverers) the CEFR-aligned to understand, confident in the building for all CEFR-aligned R
curriculum to understand, post-secondary EL implement and use implementation post-secondary post-secondary EL
I implement and use curriculum the CEFR-aligned EL and use of the teachers curriculum I
the CEFR-aligned curriculum CEFR-aligned EL
C post-secondary EL curriculum C
curriculum
Monitor the training Recommendations
U for improvement U
L Optimal MPM Enforce adherence to Language Monitor the Language L
language language engagement engagement time adherence to engagement for all
engagement KPT time enforced language engagement four skills enforced
U U
time time for all four skills and monitored
M A highly ELTC Encourage an An emerging Develop and An emerging highly Review and A highly
M
immersive immersive English immersive English implement school immersive English- improve school immersive
English-rich KPT learning environment environment and institution- rich environment and institution- English-rich
environment in post-secondary based initiatives to in schools and based initiatives environment in
schools and institutions encourage the active institutions post-secondary
with opportunities for use of English among schools and
the purposeful and students institutions
contextualised use of Monitor the initiatives Monitoring reports
English submitted

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

T CONDITIONS LEAD
CEFR EXIT T
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
E FOR REFORM AGENCY E
(2025)

A TEACHING & LEARNING A


C CEFR-informed BPG Build capacity Master Trainers Build capacity Teachers familiar Continue capacity Improved teaching- B2 C
H pedagogy for Master well-trained in for teachers to and confident building for the learning practices H
IPGM Trainers to use CEFR-informed use CEFR-informed in the use of CEFR to cascade to at post-secondary
I KPT CEFR-informed pedagogy pedagogy at all CEFR-informed all teachers level I
pedagogy levels by Master pedagogy
N Trainers N
G EL teachers IPGM Establish Baseline Monitor teachers Teachers enrolled Monitor teachers Recommendations G
equipped to the baseline proficiency and trainers in upskilling and trainers in for improvement
teach at post- BPG proficiency of of teachers content and courses the classroom in the proficiency
secondary level KPT teachers and and trainers pedagogical skills and evaluate their and classroom
& trainers established proficiency performance &
Identify teachers of teachers and
requiring upskilling trainers
L L
Train teachers to Teachers trained Monitor and Recommendations Review the training Teachers
E use differentiated in differentiated evaluate for improvement of teachers in the competent to E
learning in post- learning teacher use of in teacher use use of appropriate meet the needs
A secondary EL differentiated of differentiated pedagogy including of students A
classrooms learning learning differentiated at different
R learning proficiency levels R
N N
Set CEFR level C1 C1 accepted as Enforce the The minimum Review EL teacher Recommendations
I as the minimum the minimum minimum requirement proficiency for improving I
requirement for requirement for requirement for EL enforced teacher proficiency
N post-secondary post-secondary EL teachers to have submitted
N
G EL teacher teachers level C1 proficiency G
proficiency

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T CONDITIONS LEAD
CEFR EXIT T
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
E (2025) E
A TEACHING & LEARNING A
C EL teachers Develop teacher MoE-approved Implement Post-secondary Evaluate the Post-secondary B2 C
equipped to education education post-secondary teacher education effectiveness of teacher education
H teach at post- programmes for training teacher education programmes post-secondary programmes
H
I secondary level post-secondary programmes programmes implemented and teacher education evaluated and I
teachers developed monitored programmes improved
N N
Monitor the Monitoring reports
G programmes submitted G

Internationally- BBT Select learning Learning and Implement and CEFR-aligned Evaluate the Recommendations
& aligned and resource resource materials monitor the use of learning materials effectiveness of for the
&
teaching BTP materials are aligned to the the CEFR-aligned in use in post- the CEFR-aligned improvement of
and learning KPT aligned to CEFR CEFR learning and secondary schools learning materials learning materials
L materials instructional resource materials and institutions
Improved student
L
pedagogies
E Monitoring engagement with E
Reports submitted EL materials
A A
R Allocate Improved Upgrade IT IT resources Further upgrade IT resources R
adequate and resources for resources to support effective of IT resources to enhance effective
N appropriate online learning improve online online learning improve online online learning N
resources to learning learning
I support online
Teachers make
I
learning Implement Monitor teachers
N teachers use of use of online efficient use of N
online learning learning materials IT resources for
G in post-secondary teaching English G
English lessons

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
A CONDITIONS LEAD A
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)
S S
S ASSESSMENT S
E Internationally MPM Design a A CEFR- Implement the The CEFR-informed Evaluate the Recommendations B2 E
benchmarked EL CEFR-informed informed CEFR-informed post-secondary CEFR-informed for improvement
KPT
S assessment for assessment assessment post-secondary EL assessment post-secondary to the assessment S
post-secondary framework: framework EL assessment framework EL assessment framework
S students include designed framework implemented framework submitted S
continuous
M assessment Monitor the Monitoring Reports The CEFR-informed M
implementation on the framework post-secondary
E submitted English assessment E
framework revised
N N
Build capacity Teachers able Monitor teachers Recommendations Provide teacher Teachers able
T among teachers to use the use of the for increasing support for to use the T
for CEFR- CEFR-informed CEFR-informed teacher capacity the improved CEFR-informed
informed assessment framework to use the CEFR- assessment framework
assessment framework submitted informed framework framework efficiently

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

International ELSQC Select an The independent Conduct a Student Benchmark Students achieve B2
standard post- independent international benchmark study performance students EL EL proficiency
secondary EL international body identified on post-secondary benchmarked performance against targets
education body/ to carry out students to against international international commensurate with
organisation benchmarking establish the standards standards exit standards for
to conduct and impact study impact of the EL post-secondary
benchmark and up to 2025 programme on A Benchmark Study Examine the impact English
impact studies. their proficiency Report of the reformed
post-secondary EL
education system

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University
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UNIVERSITY EDUCATION
THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (2013 2025)

PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)


C CEFR EXIT C
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
E (2025) E
Strong CEFR KPT Set CEFR target The target Implement and The target levels Evaluate and Appropriate B2/C1
F Foundation proficiency levels for levels monitor target implemented and revise the target levels F
to achieve university English confirmed levels a report on the target levels
R international language courses and implementation R
standards programmes based
on the Cambridge
Baseline 2013
F Develop CEFR CEFR Validate the The CEFR Review Final CEFR F
descriptors suitable descriptors developed CEFR descriptors and revise descriptors
O for university English descriptors validated the CEFR O
language courses and descriptors
programmes
U U
Build capacity by CEFR Master Implement and Teachers trained Evaluate and Effective
N training key deliverers Trainers (key monitor the in the CEFR revise the CEFR training N
(university teachers, deliverers) CEFR training and reports CEFR training programmes
lecturers) for the of teachers by on training by Master
D implementation Master Trainers programmes Trainers D
of CEFR-aligned
A curricula, teaching Form a CEFR task A CEFR Task Develop the The CEFR-M A
and learning, and force from Master Force CEFR-M (by developed
T assessment Trainers the CEFR Task T
Force)
I CEFR alignment Individual The alignment of English language The launching and monitoring of Review and revision of CEFR-
I
universities curricula, teaching and learning, and CEFR-aligned English language aligned English language
O assessment to the CEFR curricula, teaching and learning, and curricula, teaching and learning, O
assessment and assessment
N N
CEFR Individual The setting up of an independent The monitoring of all actions Review of and report on
implementation universities body responsible for the required for reform outcomes and the efficacy of
and monitoring implementation and monitoring of reform
the reform process

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PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

CURRICULUM

An Individual Adopt the CEFR A CEFR-aligned Implement and monitor The CEFR- Review An improved B2/C1
internationally universities as the framework curriculum in the CEFR-aligned aligned and revise CEFR-aligned
C aligned EL of reference for each university curriculum curriculum is the CEFR- curriculum* C
curriculum Council of the development implemented aligned
Language
U Deans
of university EL and monitoring curriculum U
curriculum reports are
EL curriculum submitted *Post-MEB phase:
R Review the existing reviewed and validation of the R
EL curriculum and aligned to curriculum
R align to international CEFR and GE R
standards (CEFR) and competencies
I GE competencies I
C Optimal EL KPT Recommend an The Implement the increase The EL Evaluate the The C
engagement increase in EL recommendations in EL engagement engagement effectiveness implementation
time Individual engagement time - are accepted time time is of the of increased
U universities U
an increase in credit increased increased EL engagement time
hours for EL learning engagement evaluated and
L time improved, and a L
report submitted
U U
M Minimum Individual Observe appropriate Appropriate Monitor and review A MUET band Observe CEFR B2 as M
English universities CEFR-aligned CEFR-aligned the minimum CEFR- equivalent CEFR B2 the minimum
language MUET bands as the MUET bands aligned MUET bands as to CEFR B2 as the EL proficiency
entrance Council of minimum EL entrance as minimum EL proficiency entrance accepted as minimum EL entrance
requirement Language requirements for EL entrance requirements the minimum proficiency requirement
Deans university programmes requirements EL proficiency entrance to university
MPM set by the institutions enforced Set a MUET Band entrance requirement programmes is in
equivalent to CEFR B2 requirement place by 2025
as the minimum EL
entrance requirement
for all courses.

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)
C C
CEFR EXIT
U CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL U
FOR REFORM AGENCY
(2025)
R R
R CURRICULUM R
Systemic Individual Create an English-rich An emerging Monitor and Recommendations Implement A sustained B2/C1
I I
institutional universities environment at the English-rich evaluate the for sustaining recommendations English-rich
C support for institutional level through environment effectiveness of an English-rich for a sustained environment C
EL proficiency collaboration between systemic efforts environment English-rich
U development the language proficiency to sustain an environment U
unit and other entities in English-rich
L the university environment L
U Implement English Activities U
activities beyond the implemented
M classroom beyond the M
classroom
T T
TEACHING & LEARNING
E E
A CEFR- Individual Review the Review Develop and The CEFR- Evaluate the Recommendations B2/C1 A
C informed universities appropriateness of completed implement informed effectiveness of for improvements C
pedagogy pedagogy for CEFR- CEFR-informed pedagogy CEFR-informed including
H Guidelines developed and
H
aligned curricula pedagogy pedagogy and improved
I for the implemented. revise pedagogy I
N development of N
CEFR-informed Monitor the Monitoring reports
G pedagogy implementation submitted G
& drawn up &
L Review the Course Develop or adopt Appropriate Review the Recommendations L
E appropriateness of materials and implement course materials effectiveness of for the E
A course materials for for the the use of new aligned to CEFR course materials improvement of A
the realigned CEFR realigned CEFR course materials standards adopted course materials
R curriculum or developed and
R
curriculum aligned to CEFR
N reviewed, standards and implemented N
I and a report appropriate for I
N submitted the Malaysian N
context
G G

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PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)
T CEFR EXIT
T
E CONDITIONS LEAD E
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
A (2025) A
C TEACHING & LEARNING C
H H
CEFR- Individual Review current English language Implement CPD Appropriate Continue High quality B2/C1
I informed universities English language teacher specifically for language CPD upskilling efforts English language I
N pedagogy teacher qualifications teachers in universities implemented teachers N
qualifications reviewed and
G recommendations G
& submitted &
L Student Individual Implement and integrate Student Monitor the Student learning L
autonomy in universities student autonomy in EL learning development of autonomy
E EL learning learning autonomy auto nomy in EL developed E
A implemented learning A
R A minimum EL Individual Set CEFR level C1 CEFR level C1 Recommend the Re- Review EL EL teacher quality R
requirement universities as the minimum adopted as re-certification of certification teacher quality reviewed and
N for EL requirement the minimum proficiency every 5 years implemented recommendations N
I teachers for teacher requirement for improving I
across proficiency Establish recertification Re- teacher quality
N universities using a CEFR-referenced certification as submitted
N
G international test as the the criterion G
criterion for promotion for promotion
accepted

ASSESSMENT

A common Individual Adopt the CEFR The CEFR Develop and implement The CEFR- Review the Improvements in B2/C1
international universities as the common adopted as CEFR-informed methods informed effectiveness of CEFR-informed
framework of framework for the common of assessment assessment CEFR-informed assessment*
reference for Council of assessment across framework for developed and assessment
interpreting Language universities assessment implemented
EL Deans
Set appropriate Monitor the Monitoring *Post-MEB phase:
performance
CEFR targets for implementation reports validation of
across
EL courses submitted university-based
universities
assessment

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
A FOR REFORM AGENCY
(2025)
A
S S
ASSESSMENT
S S
Standardised MPM/ Develop and A Malaysian Review and validate A valid and reliable B2/C1
E CEFR- Individual pilot a Malaysian standardised the standardised standardised E
benchmarked universities standardised CEFR- CEFR- CEFR-benchmarked CEFR-benchmarked
S exit test benchmarked exit benchmarked university exit test university exit test S
test for universities university exit
S test S
M M
Alignment Individual Conduct an Confirmation of the
E of student universities Employers alignment between
E
EL CEFR Satisfaction Survey the student EL
N grades with and Alumni Tracer
N
CEFR grades
T job-related Study to obtain and job-related T
performance feedback on Student performance
EL proficiency and
their performance in
job situations

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

Graduate Council of Conduct an EL proficiency Conduct an Graduate EL B2/C1


performance Language established CEFR- profiles for established CEFR- proficiency
benchmarked Deans/ benchmarked exit students at each benchmarked exit ascertained
against Individual test on a sample of university test for the total
international universities students student population
standards CEFR baseline at each university
Identify the proficiency levels
baseline proficiency of the students
levels of the
students

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THE ROADMAP (2015-2025)
MEB WAVES 1 - 3 (2013 2025)

PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)


C CEFR EXIT C
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
E (2025) E
Strong CEFR BPK Set CEFR staged Staged target Implement and The staged Evaluate and Appropriate C1
F Foundation target proficiency levels monitor staged target levels revise the staged target F
to achieve levels for English target levels implemented and staged target levels
R international language teaching a report on their levels R
standards programmes based implementation
on the Cambridge
Baseline 2013
F F
Develop CEFR CEFR Validate the The CEFR Review Final CEFR
descriptors suitable descriptors developed CEFR descriptors and revise descriptors
O for English language descriptors validated the CEFR
O
teachers descriptors
U U
Build capacity by CEFR Master Implement and Teachers trained Evaluate and Effective
training key deliverers Trainers (key monitor the in the CEFR revise the CEFR training
N (teachers, teacher deliverers) CEFR training and reports CEFR training programmes
N
educators) for the of teachers by on training by Master
D implementation Master Trainers programmes Trainers D
of CEFR-aligned
A curricula, teaching Form a CEFR task A CEFR Task Develop the The CEFR-M A
and learning, and force from Master Force CEFR-M (by developed
Trainers the CEFR Task
T assessment
Force)
T
I I
CEFR alignment BPK The alignment of the English The launching and monitoring of Review and revision of CEFR-
O language curricula, teaching and CEFR-aligned English language aligned English language O
learning, and assessment to the CEFR curricula, teaching and learning, and curricula, teaching and learning,
assessment and assessment
N N
CEFR ELSQC The setting up of an independent The monitoring of all actions Review of and report on
implementation body responsible for the required for reform outcomes and the efficacy of
ELTC implementation and monitoring of reform
and monitoring
BPPDP the reform process

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PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

PRE-SERVICE

Strict criteria IPGM Set strict criteria for Strict Implement the The selection Continue the use High-calibre EL C1
for the EL teacher trainees criteria for selection criteria criteria implemented of the selection teacher trainees
selection Universities selection and monitor the and monitored; a criteria
of teacher set and implementation monitoring report
trainees adopted submitted.
Assess the EL
teacher trainees The refinement of
the selection criteria

CURRICULUM

C An BPG Review and align EL A common Implement the The CEFR- Revise the Recommendations C1 C
internationally Teacher Education CEFR- CEFR-aligned EL aligned curriculum CEFR aligned EL for improvement
IPGM implemented
U aligned Language curricula to aligned EL curriculum curriculum based
An updated EL
U
language ELTC the CEFR: include EL curriculum on feedback
Monitor the Reports with Teacher Education
R curriculum for Assessment Literacy adopted
recommendations
and emergent R
EL Teacher implementation technologies curriculum
R for improvement R
education
submitted
(ELTE)
I I
Professional BPG Develop professional Professional Use professional All ELTE Monitor the Recommendations
C programme programme programme standards in programmes aligned implementation of for improvement C
standards for IPGM standards aligned standards programme to professional standards
U EL Teacher ELTC to international adopted review, design and programme U
Education standards delivery standards across all
L IPTA providers L
U MQA Develop an ELTE The ELTE Implement the The curriculum Review and revise Recommendations U
curriculum that curriculum curriculum implemented and the curriculum for improvement
M ensures delivery of all developed monitored
M
professional and core Monitor the A revised ELTE
courses in English implementation curriculum

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
T ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL T
FOR REFORM AGENCY
(2025)
E E
TEACHING & LEARNING
A A
English as the BPG Use English as the English used as Monitor the use Monitoring Reports Review the The use of C1
C medium of medium of instruction the medium of of English as on the use of English effect of English as C
instruction (in IPGM for EL teacher training in instruction in the medium of as the medium of English as the medium
H the delivery additional courses: the additional courses instruction instruction the medium of instruction H
ELTC
of the TESL Education component in of instruction enforced
I curriculum IPTA TESL curriculum Increased Extended exposure
on EL teacher for TESL I
exposure to to the use of English
N except Bahasa trainee programmes N
MQA English on TESL and improved
Malaysia) proficiency
programmes language outcomes
G G
Outcomes- All providers Implement student- Student- Monitor the Monitoring Review the Continued
based of ELTE centred methodology centred and implementation of reports with impact of improvement
& education Programmes communicative student-centred recommendations for training of student- &
for all levels methodologies strategies in improving student- centred
of schooling used in training training centred teacher teacher
training training
L L
EL teacher All providers Establish a PhD in A PhD in Implement The requirement is Continue High-calibre
E educator: of ELTE Education as the Education the minimum enforced implementing teacher E
qualification Programmes minimum qualification accepted as qualification the minimum educators
A requirement for all EL educators by the minimum requirement requirement
A
2025 qualification
R R
N EL teacher All providers Set CEFR Level C2 as the Level C2 accepted Enforce level C2 Level C2 enforced Review the Up-skilling N
educator: EL of ELTE minimum requirement for as the minimum as the minimum as the minimum impact of programmes
I proficiency Programmes EL teacher educators requirement requirement requirement the minimum are retained I
requirement requirement and improved
N Develop Up-skilling on EL teacher N
programmes programmes educators
G to achieve C2 developed and performance G
proficiency implemented
among EL teacher
educators

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A PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025) A


S CONDITIONS LEAD
CEFR EXIT S
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
S (2025) S
E ASSESSMENT E
S A standardised IPGM and Adopt a common A common CEFR- Implement A common Evaluate the Consolidation C1 S
internationally all providers CEFR-aligned aligned EL exit the common standardised common CEFR- of the common
S benchmarked of ELTE EL proficiency proficiency test proficiency proficiency exit aligned EL CEFR-aligned S
exit exam programmes exit test for all adopted exit test for all test implemented proficiency exit EL proficiency
M as the EL institutions institutions test exit test for all
M
requirement A common EL teacher training
E Set a common EL exit proficiency E
for all teacher Monitor the Monitoring reports Report with programmes
exit proficiency requirement
N training
requirement for all enforced
implementation submitted recommendations N
programmes for the common
T ELTE programmes T
EL test

IN-SERVICE
I IN-SERVICE ELTC Develop a A standards- Implement and The professional Review and An Improved C1 I
TEACHERS professional based professional monitor the development strengthen the support system
N development development PSELT matrix PSELT matrix PSELT matrix N
Linguistically matrix for different matrix developed support system support system in support system Comprehensive
- and levels of teachers for teachers at place: appropriate career pathways -
pedagogically by operationalising different career courses for
S competent teachers at
S
PSELT stages from
teachers different stages of
E beginning teachers
their careers
E
to developing
R teachers to R
competent and to
V specialist teachers V
I ELTC Plan and School-based Monitor and Recommendations Revise school- Improved school- I
implement CPD CPD programmes evaluate for improving the based CPD based CDP
C programmes using conducted the CPD CPD programmes programmes programmes C
the school-based programmes
E training model
E
conducted

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

I IN-SERVICE I
IN-SERVICE All providers Revamp the training Student- Monitor the Active and engaged Review and An effective C1
TEACHERS of ELTE approach: Cascade centred and implementation of teaching and evaluate the school-based
N Programmes model to school- communicative student-centred learning at all impact of training model
N
Linguistically for all levels based training methodologies strategies in school- levels training
and of schooling model used in training based training
- pedagogically Revise the Competent -
training model English
competent
trainers and
teachers
S teachers S
All providers Design EL classroom EL classroom Implement and EL classroom Evaluate Effective
of ELTE observation observation monitor EL classroom observation classroom classroom
E Programmes methods for methods designed observation methods methods observation observation E
for all levels formative purposes for formative for formative implemented and methods. methods for
of schooling purposes purposes monitored formative
R Monitoring purposes R
reports
submitted
V V
All providers Set CEFR level C1 CEFR level C1 Enforce C1 as CEFR level C1 Continue the Proficient EL
of ELTE as the minimum accepted as the minimum enforced as enforcement of teachers with
I Programmes proficiency the minimum requirement the minimum the minimum C1 I
for all levels requirement for all requirement requirement requirement
of schooling teachers by 2025
C C
All providers Assess teachers Teachers assessed Monitor and Teacher EL Continue the High-calibre
of ELTE using CEFR-aligned and the baseline evaluate teacher proficiency and evaluation of EL teachers
E Programmes proficiency tests and of teacher EL EL proficiency pedagogical teacher EL E
for all levels the international proficiency and and pedagogical competences proficiency and
of schooling Teaching Knowledge pedagogical competences monitored and pedagogical
Test (TKT) and the competences according to evaluated. competences
TKT practical established international according to
standards Monitoring reports international
submitted standards

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
CONDITIONS LEAD
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)

I IN-SERVICE I
IN-SERVICE BPG Identify and An action plan Implement the action EL teachers School-based A cadre of C1
TEACHERS collaborate with for working with plan to work with all levels with training run English teachers,
N ELTC international specialist teachers specialist teachers and specialist by specialist particularly
N
Internationally providers of and the children children training teachers primary and pre-
recognised IPGM
specialist courses: school levels, with
- specialisms early literacy Enrol EL teachers Pre-school Evaluate the specialisms -
IPTA
in language especially at primary and primary impact of
skills, diagnostic
teaching for level in specialist teachers with training Recommendations
skills, remediation,
S in-service reading etc. courses specialisms for improvement S
teachers, submitted
particularly Continue post-graduate
E primary specialist courses E
teachers especially for pre-
school and primary
R teachers R

Licensure BPG Propose a policy The policy on Implement the policy The quality Continue the Sustained high Band 4
V and re- for the licensing licensing EL on licensing and re- of English re-certification quality EL (Cambridge V
certification ELTC and certification of teachers to certification language requirement teachers English
for EL new EL teachers teach and the teachers TKT and
I requirements followed by re- certification assured Report on the TKT: I
certification for all impact of the re- Practical)
of language
EL teachers every certification policy
proficiency for
C 5 years teachers is in
for post-MEB C
place
E E
Re-certify non- Proficient non- Continue the Quality English Continue the
English option option English re-certification policy teachers re-certification
teachers with C1/ teachers re- policy
C2 proficiency certified
and 10 years
experience

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THE ROADMAP (2015-2025)
PHASE 1 (2015-2016) PHASE 2 (20172020) PHASE 3 (20212025)

CEFR EXIT
I CONDITIONS LEAD I
ACTIONS OUTCOMES ACTIONS OUTCOMES ACTIONS OUTCOMES LEVEL
FOR REFORM AGENCY
(2025)
N N
IN-SERVICE
- -
Basic IPGM Set a degree A degree in Implement The requirement Continue to High-calibre C1
Qualifications in Education Education the minimum enforced implement teachers
S for EL specialising in specialising in requirement the minimum
S
teachers English or in English English or in requirement
E with Education English with E
as the minimum Education accepted
R qualification for all as the minimum R
EL teachers by 2025 qualification
V Shared BPG Put in place a Effective Monitor and Recommendations Monitor and Recommendations
V
goals for EL coordinated communication and review the for sustaining review the for sustaining
I improvement
IPGM
communication collaboration for effectiveness of collaboration for effectiveness collaboration I
by all IPTA structure between curricular change efforts to sustain effective curricular of efforts
C education
ELTC
divisions of the MoE are in place a coordinated implementation to sustain C
stakeholders for EL curricular communication coordinated
E LP updates communication E
MPM
BPK

MONITORING OF PROGRESS TOWARDS A QUALITY ENGLISH LANGUAGE EDUCATION SYSTEM

An ELSQC Select an An independent Benchmark A report Carry out an An impact report CEFR: C1
internationally independent international body teacher on teacher impact study on teacher
international on teacher performance CE TKT:
competitive selected to carry out performance performance and
body to carry out performance Band 4
Malaysian benchmarking and against recommendations
English benchmarking and impact studies until international for improvement A transformed EL
assess the impact pre-service and
language 2025 standards
of pre-service and in-service teacher
teacher
in-service teacher education system
education
system education on
teacher performance

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Appendices

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PRESCHOOL

Appendix 4.A: Mapping of the NPSC with the CEFR

Learning Standards for


Content Standard 4+ 5+ CEFR
Listening and Speaking Skills
(BI1.1) (BI 1.1.1) (BI 1.1.2) No match found
Listen to and Listen to and identify common Listen to and identify sounds
discriminate sounds sounds around them. in the environment.
(BI 1.2) (BI 1.2.1) (BI 1.2.5) Can make an introduction
Listen to and understand Listen to and repeat simple greetings, Listen to and repeat greetings. and use basic greeting and
meaning of simple words e.g. good morning, good afternoon. (BI 1.2.6) leave-taking expressions.
(BI 1.2.2) Listen to and respond verbally to greetings. Can ask how people are
Listen to and respond verbally to (BI 1.2.7) and react to news.
simple greetings with guidance. Listen to and identify common Can understand everyday
(BI 1.2.3) objects in the environment. expressions aimed at the
Listen to and identify objects in the classroom. (BI 1.2.8) satisfaction of simple needs
(BI 1.2.4) Name common objects in the environment. of a concrete type, delivered
Name common objects in the classroom. (BI 1.2.9) directly to him/her in clear,
Listen to words said aloud and slow and repeated speech
respond accordingly, e.g.: by a sympathetic speaker.
show me the picture of a child eating
draw a f lower
stand up and touch your nose
(BI 1.3) (BI 1.3.1) (BI 1.3.2) Can describe him/herself,
Acquire and use simple Talk about familiar things and Talk about familiar experiences, favourite things what he/she does and
phrases and statements experiences with guidance. and activities around them with guidance. where he/she lives.
(BI 1.3.3)
Talk about the natural environment
with guidance.
(BI 1.3.4)
Talk about happenings around them.
(BI 1.4) (BI 1.4.1) (BI 1.4.3) Can understand instructions
Listen to and follow Listen to and follow one word Listen to and follow instructions, e.g. addressed carefully and
simple instructions instructions, e.g. Come. Please get me the book from the shelf . slowly to him/her and
(BI 1.4.2) (BI 1.4.4) follow short, simple
Listen to and follow simple instructions, Listen to and perform actions based on directions
e.g. Please stand up. instructions in activities and games.

382
Learning Standards for
Content Standard 4+ 5+ CEFR
Listening and Speaking Skills
(BI 1.5) (BI 1.5.1) (BI 1.5.3) No match found
Listen to and enjoy nursery Listen to and recite nursery Listen to, recite and act out nursery
rhymes, action songs, rhymes and action songs. rhymes, action songs and poems.
poems and stories (BI 1.5.2) (BI 1.5.4)
Listen to, recite and act out nursery Listen to and retell simple stories using
rhymes and action songs. aids: e.g. picture clues, visual props.
(BI 1.5.5)
Listen to and role play simple stories.
(BI 1.5.6)
Listen to and solve simple riddles.
(BI 1.6) (BI 1.6.1) (BI 1.6.3) No match found
Sing songs and recite Sing songs. Sing songs with the correct
rhymes and poems (BI 1.6.2) pronunciation and intonation.
Recite simple rhymes and poems. (BI 1.6.4)
Recite rhymes and poems with the
correct pronunciation and intonation.
(BI 1.7) (BI 1.7.1) (BI 1.7.3) Can produce simple
Tell simple stories Tell stories about personal Tell stories about personal experiences mainly isolated phrases
experiences with guidance. with or without guidance. about people and places.
(BI 1.7.2) (BI 1.7.4)
Tell stories using visual props with guidance. Tell stories using visual props
with or without guidance.
(BI 1.8) Dramatize familiar (BI 1.8.1) (BI 1.8.2) Role play familiar daily No match found
situations and stories Role play familiar daily situations with guidance. situations without guidance.
(BI 1.8.3) Dramatise familiar
stories without guidance.

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Learning Standards for


Content Standard 4+ 5+ CEFR
Listening and Speaking Skills
(BI 1.9) (BI 1.9.1) (BI 1.9.2) Can interact in a simple way
Perform a variety of Use simple sentences to carry Use simple sentences to carry but communication is totally
language forms and out a conversation: out a conversation: dependent on repetition
functions in a social context e.g.: e.g.: at a slower rate of speech,
to exchange greetings to exchange greetings rephrasing and repair.
to show appreciation to introduce oneself Can ask and answer
to show appreciation simple questions, initiate
to express feelings and emotion and respond to simple
(BI 1.9.3) statements in areas of
Use simple sentences to convey messages. immediate need or on
very familiar topics.
(BI 1.10) (BI 1.10.1) (BI 1.10.2) Can interact in a simple way
Ask simple questions Ask simple questions pertaining to oneself Ask simple questions pertaining to: but communication is totally
stories heard or read, situations dependent on repetition
(BI 1.10.3) at a slower rate of speech,
Ask simple Wh questions. rephrasing and repair.
Can ask and answer
simple questions, initiate
and respond to simple
statements in areas of
immediate need or on
very familiar topics.

Pre-reading Skills
(BI 2.1) Understand (BI 2.1.1) (BI 2.1.2) No match found
that printed materials Show awareness that print conveys Show awareness that print conveys
contain meaning meaning by doing Pretend Reading. meaning by doing Pretend Reading.
(BI 2.2) (BI 2.2.1) (BI 2.2.3) No match found
Acquire knowledge of print Handle books carefully. Recognise the basic features of a book.
and ethics in reading (BI 2.2.2)
Read print moving from left to
right and top to bottom.

384
Learning Standards for
Content Standard 4+ 5+ CEFR
Reading Skills
(BI 3.1) (BI 3.1.1) (BI 3.1.6) No match found
Identify letters of Recognise letters of the alphabet by their shapes. Name letters of the alphabet.
the alphabet (BI 3.1.2) (BI 3.1.7)
Recognise letters of the alphabet by their name. Sound out letters of the alphabet (basic phonics).
(BI 3.1.3) (BI 3.1.8)
Recognise small letters of the alphabet. Hear and sound vowel sounds.
(BI 3.1.4) (BI 3.1.9)
Recognise big letters of the alphabet. Hear and sound consonant sounds.
(BI 3.1.5)
Name letter of the alphabet with guidance.
(BI 3.2) (BI 3.2.1) (BI 3.2.4) Can recognise familiar
Read simple words Hear and pronounce simple words. Hear and say the initial sound names, words and very
with understanding (BI 3.2.2) of a word, e.g. cup. basic phrases on simple
Read simple words. (BI 3.2.5) notices in the most common
(BI 3.2.3) Read labels. Recognise and sound out simple everyday situations.
words, e.g. C u p for cup.
(BI 3.6.6)
Recognise and sound similar initial sound in
word, e.g. cup, cap, cat; man, map, mat
(BI 3.2.7)
Read familiar words printed in the surroundings
(BI 3.3) (BI 3.3.1) (BI 3.3.2) Can recognise familiar
Read phrases with Read simple phrases with guidance Read simple phrases. names, words and very
understanding (e.g. sit down, red ball). basic phrases on simple
notices in the most common
everyday situations.
(BI 3.4) (BI 3.4.1) (BI 3.4.2) Can recognise familiar
Read simple sentences Read simple sentences with assistance Read simple sentences, e.g. I like papaya. names, words and very
with understanding basic phrases on simple
notices in the most common
everyday situations.

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Learning Standards for


Content Standard 4+ 5+ CEFR
Reading Skills
(BI 3.5) (BI 3.5.1) (BI 3.5.2) No match found
Develop interest in reading Talk about stories (simple stories) being read. Talk about stories (stories with more
difficult words) being read.
(BI 3.5.3)
Relate stories read to others.
(BI 3.5.4)
Talk about illustrations in printed materials.
(BI 3.5.5)
Talk about prints from different media in
the environment (e.g. newspaper, story
books, computers screen, television,
pamphlet, wood engraving)
(BI 3.5.6)
Talk about different types of
books around them.
Writing Skills
(BI 4.1) (BI 4.1.1) No match found
Pre-writing skills Engage in activities requiring
eye-hand coordination.
(BI 4.1.2)
Draw lines, circles and patterns using gross
motor and fine motor movements.
(BI 4.2) (BI 4.2.1) (BI 4.2.3) Can copy out single words
Writing Skills Copy letters of the alphabet Write recognizable letters. and short texts presented
correctly in neat, legible print. (BI 4.2.4) in standard printed format.
(BI 4.2.2) Write simple words in neat, legible print.
Write recognizable letters with guidance. (BI 4.2.5)
Write simple phrases.

386
Content Level Pre A1 NPSC
a. Can make simple purchases where pointing (BI 1.2.1)
or other gesture can support Listen to and repeat simple greetings,
the verbal reference; e.g. good morning, good afternoon.
b. Can ask and tell day, time of day and date; (BI 1.2.2)
c. Can use some basic greetings; Listen to and respond verbally to
d. Can say yes, no, excuse me, simple greetings with guidance.
please, thank you, sorry; (BI 1.9.2)
e. Can fill in uncomplicated forms with Use simple sentences to carry out a conversation:
personal details, name, address, e.g.: to exchange greetings
nationality, marital status; to introduce oneself
f. Can write a short, simple postcard. to show appreciation
to express feelings and emotion
(BI 1.9.3)
Use simple sentences to convey messages.

Content Level Pre A1 NPSC


Overall Oral Production 1. Can produce simple mainly isolated (BI 1.7)
phrases about people and places. Tell simple stories.
Sustained Monologue (Describing Experience ) 2. Can describe him/herself, what he/ (BI 1.3)
she does and where he/she lives. Acquire and use simple phrases and statements.
Addressing Audiences 3. Can read a very short, rehearsed statement
e.g. to introduce a speaker, propose a toast.
Overall Written Production 4. Can write simple isolated
phrases and sentences.
Creative Writing 5. Can write simple phrases and sentences
about themselves and imaginary people,
where they live and what they do.
Overall Listening Comprehension 6. Can follow speech which is very slow and
carefully articulated, with long pauses
for him/her to assimilate meaning.
Listening to Announcements and Instructions 7. Can understand instructions addressed (BI 1.4)
carefully and slowly to him/her and Listen to and follow simple instructions.
follow short, simple directions

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Content Level Pre A1 NPSC


Overall Reading Comprehension 8. Can understand very short, simple
texts a single phrase at a time, picking
up familiar names, words and basic
phrases and rereading as required.
Reading Correspondence 9. Can understand short, simple
messages on postcards.
Reading For Orientation 10. Can recognise familiar names, words and (BI 3.2)
very basic phrases on simple notices in Read simple words with understanding.
the most common everyday situations. (BI 3.3)
Read phrases with understanding.
(BI 3.4)
Read simple sentences with understanding.
Reading For Information And Argument 11. Can get an idea of the content of
simpler informational material and
short simple descriptions, especially
if there is visual support.
Reading Instructions 12. Can follow short, simple written
directions (e.g. to go from X to Y).
Overall Spoken Interaction 13. Can interact in a simple way but (BI 1.9)
communication is totally dependent Perform a variety of language forms
on repetition at a slower rate of and functions in a social context.
speech, rephrasing and repair. (BI 1.10)
14. Can ask and answer simple questions, initiate Ask simple questions.
and respond to simple statements in areas of
immediate need or on very familiar topics.
Understanding A Native Speaker Interlocutor 15. Can understand everyday expressions aimed at (BI 1.4)
the satisfaction of simple needs of a concrete Listen to and follow simple instructions.
type, delivered directly to him/her in clear, slow
and repeated speech by a sympathetic speaker.
16. Can understand questions and instructions
addressed carefully and slowly to him/
her and follow short, simple directions.

388
Content Level Pre A1 NPSC
Conversation 17. Can make an introduction and use basic
greeting and leave-taking expressions.
18. Can ask how people are and react to news.
19. Can understand everyday expressions aimed at
the satisfaction of simple needs of a concrete
type, delivered directly to him/her in clear, slow
and repeated speech by a sympathetic speaker.
Goal-Oriented Co-Operation 20. Can understand questions and instructions
(E.G. Repairing a Car, Discussing a addressed carefully and slowly to him/
Document, Organising an Event) her and follow short, simple directions.
21. Can ask people for things, and
give people things.
Transactions To Obtain Goods And Services 22. Can ask people for things and
give people things.
23. Can handle numbers, quantities, cost and time.
Information Exchange 24. Can understand questions and instructions
addressed carefully and slowly to him/
her and follow short, simple directions.
25. Can ask and answer simple questions, initiate
and respond to simple statements in areas of
immediate need or on very familiar topics.
26. Can ask and answer questions about
themselves and other people, where they
live, people they know, things they have.
27. Can indicate time by such phrases as next
week, last Friday, in November, three oclock.

Interviewing And Being Interviewed 28. Can reply in an interview to simple


direct questions spoken very slowly
and clearly in direct non idiomatic
speech about personal details.

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Content Level Pre A1 NPSC


Overall Written Interaction 28. Can reply in an interview to simple
direct questions spoken very slowly
and clearly in direct non idiomatic
speech about personal details.
Correspondence 29. Can ask for or pass on personal
details in written form.
Notes, Messages & Forms 31. Can write numbers and dates, own
name, nationality, address, age, date
of birth or arrival in the country, etc.
such as on a hotel registration form.
Processing Text 32. Can copy out single words and short texts (BI 4.2.1)
presented in standard printed format. Copy letters of the alphabet correctly
in neat, legible print.
(BI 4.2.2)
Write recognizable letters with guidance.
(BI 4.2.3)
Write recognizable letters.
(BI 4.2.4)
Write simple words in neat, legible print.
(BI 4.2.5)
Write simple phrases.

390
Teacher Education

Appendix 9.A
Past English Language Initiatives

Programme/Project Dates Focus of Programme/Project Lead Agency/Partners


1. Cf BT Placement of UK English teachers in secondary schools Ministry of Education Malaysia MoE Schools
1978 to 1984 the Cf BT English teacher placement project. Division / the Centre for British Teachers CfBT
2. RUPEP The Rural Up-grading of English Project (RUPEP): an in-service MoE Schools Division / The Overseas
1980 to 1985 project to support English teaching improvement in Sabah. Development Administration ODA (now the
Department of International Development -
DFID / The British Council BC
3. 6-Year UK Preservice & Implementation of a pre- and in-service English teacher MoE Schools / Division / numerous
Inservice development project, with extensive training in the United UK higher education institutions / some
1983 to 1997 Kingdom (the so-called 6-year programme); some Canadian and USA institutions
parallel, smaller scale provision in Canada / USA.
This major collaboration played a key role in determining
some aspects of the B.Ed Twinning Project from 1992.
4. A-level Project The A Level Project: Placement of 100 UK teachers MoE Schools Division; CfBT
1984 to 1988 in 10 residential schools to teach A level for UK
university entrance; initially English, later maths,
sciences, economics, geography, history.
5. SAC The Self Access Centres (SAC) project for Teacher MoE Teacher Education Dision (TED) / UK ODA
1988 to 1991 Education Colleges. Maktab Perguruan IImu Khas (MPIK)
was the national centre for the SAC Project.
6. UKM/ITM/UK B.Ed. The development of the 6-year Universiti Kebangsaan Malaysia UKM / ITM / The British Council / the
TESL (UKM) and Institut Teknologi Mara (ITM) B.Ed Teaching UK Council for International Co-operation
1988 to 1993 English as a Second Language (TESL) Degree programme. in Higher Education - CICHE

7. Class Readers The Class Reader Programme for English in secondary schools. MoE Schools Division / BC / ODA
1989 on

8. KKSP The introduction of process-based coursework (including MoE - TED


1990 on English) in Teacher Education Colleges. KKSP
9. SAC for Primary schools Self-access project for English in Malaysian Primary MoE Curriculum Development Division
1990 to 1997 (SAC) schools (150 schools by 1997) including, in 1996, of the Ministry of Education BC
the Self-Access for Primary Support Programme.
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Programme/Project Dates Focus of Programme/Project Lead Agency/Partners


10. KBKK HOTS Incorporation of a critical / creative thinking skills MoE - TED
1992 on course into the curriculum (including English) in all
Teachers Education Colleges (KBKK HOTS)

11. B.Ed TESL Twinning & The English language B.Ed Teacher Education Project, MoE TED with Maktab Perguruan IImu
inservice project including Twinning; the training and education of a large number Khas MPIK and 5 UK higher education
1992 to 2002 of initial and in-service teachers on a development project, institutions / a New Zealand institution.
with programme components provided both in Malaysia and UK;
some parallel smaller-scale provision involving New Zealand.
12. PETEP Trainer Training The Primary English Teacher Education Project (PETEP) MoE TED / ODA DFID / BC / a UK
1993 to 1998 aimed at developing innovative training approaches in the primary institution of higher education.
pre-service English course to help develop teachers with the
personal and professional capacities for effective teaching and
learning in classrooms. Student-centred strategies, ref lective
practice and mentoring were some of the main elements covered.
13. MTDP Malaysia Trainer Development Programme TED-a UK institution of higher education
This was a follow-up project, initially known as TROT,
from the PETEP project to extend the training of trainers
to include teachers from schools. This includes a 3-week
course and also a masters for those who qualify.
14. TST The Teachers Support Teams Project - TST (also MoE Schools Division / ODA
1993 to 1997 referred to colloquially as Teachers Support Teachers), DFID / a UK institution.
a school-based in-service education and training designed
particularly to support under-qualified teachers in schools.
15. ESP English for Specific Purposes developments; the MoE Technical and Vocational Education Division
1993 to 1997 design / development of syllabus / materials for TAVED / Polytechnics / BC / external consultants.
Polytechnic departments and technical institutes
ESP for Vocational & Polytechnics.
16. CSED Civil Service English Development Project Institut Tadbiran Awam Negara
1994 to 1998 designed to develop English course provision for the INTAN (the National Institute of Public
training of the Malaysian civil service staff. Administration) BC / UK consultant.
17. Mentor Training The development of a mentor-training programme, MoE Education-Planning and Research
1995 on with master trainers provided with the skills needed Division EPRD / B / UK consultant.
to provide school-based training in mentoring.

392
Programme/Project Dates Focus of Programme/Project Lead Agency/Partners
18. 1997 to 1998 Secondary level English examination reform MoE Malaysian Examinations Syndicate / University
and revision. Cambridge and LPM of Cambridge Local Examination Syndicate.
19. ELI /ELTC The consultancy-based project to develop the design of MoE Director-General / Ministers Office / TED
1997 to 1998 an English Language Institute (ELI now ELTC) / British High Commission / BC / UK consultants.

20. PRODELT The Professional Development in English Language Teaching for Education Departments, Sabah and
1997 to 1999 Secondary School teachers PRODELT in Sabah and Sarawak. Sarawak / BC / UK consultants.

21. MTDP The Malaysian Development Project (MTDP) to develop a MoE TED / UK institutions (in
1998 to 2001 quality cadre of ELT trainers with skills, awareness and knowledge, the earlier stages) / BC.
able to provide effective in-service training to teachers in schools.
22. Literature Project Introduction of English literary texts to MoE Curriculum Development Centre CDC
2000 on strengthen literature in secondary schools.
23. First Steps The First Steps Structured Reading Programme for MoE TED / Curriculum Development Centre
2002 on Young Readers: to develop reading skills among primary
school children to enable them to read in English
24. EST The English for Science and Technology Programme: MoE TED and a UK Institution
2002 on to orientate secondary school teachers to the teaching
of English with a Science and Technology bias to
Form 4 and 5 students in S/T streams. (EST)
25. ETEMS Development of English for Teachers of Mathematics and MoE TED / the English Language
2002 on Science (ETeMS) programme, designed to enhance the English Teaching Centre ELTC.
Language competence of mathematics and science teachers to
enable them to teach using English as the medium of instruction.
26. UK-Link B.Ed TESL Following the UK Malaysia Twinning Project, and drawing on MoE TED / Institutions in UK,
2002 to 2012 its experience, a 10-year B.Ed Link Project for the training of Australia, New Zealand.
primary and secondary teachers of English (now underway).

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Teacher Education

Appendix 9.B
Universities Offering TESL Programmes

University English language Requirements Diploma Bachelor Masters PhD


(at least any one)

Universiti Malaya
IELTS 6
1 (Institute of
TOEFL 550
Graduate Studies)

IELTS 6
TOEFL 550 PBT
2 Universiti Malaya (UM) B.Ed. M.Ed. (CW) Ph.D. (R)
213 (CBT)
79-80 (IBT)

SPM credit M.Arts (Educ)


3 Universiti Sains Malaysia B.Ed. TESOL Ph.D. TESOL
MUET 4 TESOL

M.Ed. (CW)
Universiti Kebangsaan IELTS
4 B.Ed. M.Ed. (R) Ph.D. (R)
Malaysia (UKM) TOEFL
M.Ed. (Mixed)
1119 Credit
Universiti Putra IELTS 6 M.Ed.
5 B.Ed Ph.D. (R)
Malaysia (UPM) MUET 4 M.Sc.(R)
TOEFL 550
Universiti Pendidikan SPM credit 6 M.Ed. (CW)
6 B.Ed. (Hons) Ph.D. (R)
Sultan Idris (UPSI) MUET 4 M.Ed. (R)
M.Ed. (CW)
Universiti Teknologi IELTS 6
7 B.Sc. with Educ M.Phil. (R)
Malaysia (UTM) TOEFL 550
M.Ed. (Mixed)
SPM/SPMV Credit
Universiti Teknologi MUET 4 M.Ed.(CW)
8 Mara (UiTM) ASASI TESL CGPA 2.50 B.Ed.(Hons) M.Ed. (R) Ph.D. (R)
TTC Cert /Dip with 5-7
years teaching experience
University Malaysia IELTS 6
9 M.Ed. (R) Ph.D. (R)
Sabah (UMS) TOEFL 550
SPM A- PGCert TESOL M.A.ELT
III9 B B.Ed. TESOL
10 Nottingham University PGDip TESOL M.A. TESOL
IELTS 6.5 (Hons)
TOEFL (iBT)

394
University English language Requirements Diploma Bachelor Masters PhD
(at least any one)

SPM 2A
STPM LIT B
International Islamic
11 MUET 4
University Malaysia
IELTS 6
TOEFL 550

UNITAR International
12 Not specified M.Ed.
University

Universiti Tun Abdul


13 Not available M.Ed.
Razak (UNIRAZAK)

SPM C6
1119 C6
Universiti Tunku Abdul B.A. Eng Educ
14 MUET 4
Rahman (UTAR) (Hons)
IELTS 6.5
TOEFL 580

15 SEGI University Not specified B.Ed. (Hons)

Management &
16 Not specified Dip. TESL B.Ed.(Hons)
Science University

MUET 4
Universiti Selangor
17 UNISEL Foundation TESL B.Ed.(Hons)
(UNISEL)
UNISEL Dip TESL

IELTS 5.5
18 Asia e-University (AEU) B.Ed.
TOEFL 550

Open University
19 Not specified B.Ed. (Hons)
Malaysia (OUM)

B.Ed. (Hons)
Wawasan Open Primary Educ
20 Not specified
University (WOU) B.A. (Hons)
English Studies
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Glossary

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Glossary Of Key Terms

TERM EXPLANATION TERM EXPLANATION


Alignment The setting of the same learning targets in the Common European A common framework for language programmes
same order in education systems. Language Framework of Reference and for the education of language teachers. It is
education systems are in practice aligned to the for Languages (CEFR) best known for the proficiency scale from A1 to
CEFR (q.v.). C2, and for descriptors of achievement expressed
in the form of can do statements. As a common
Assessment literacy The ability and know-how to decide how best framework, the CEFR can be used to organise
to assess students effectively, including the use the curriculum, teaching and learning including
of appropriate assessment methods to obtain learning materials, and assessment.
evidence of learning and the acquisition of specific Communicative An approach to language teaching which seeks to
abilities, the correct use of assessment results, language teaching enable learners to use the language effectively in
and the analysis of assessment results to make communication.
accurate inferences and decisions. Construct An item to be assessed.
Benchmarking The comparison of specific performance with Constructivist The use of active techniques (experiments, real-
best performance. An education system can be world problem solving) to create more knowledge
benchmarked by comparing its performance with and then to reflect on and talk about what
the performance of the top-performing education students are doing and how their understanding
systems worldwide. Language education systems is changing. Teachers make sure that they
are in practice benchmarked against the CEFR understand the students preexisting conceptions,
(q.v.) as the exemplar of international standards. and guide the activity to address them and build
Calibration Adjustments made so that instruments measure on them.
the same things and have corresponding Continuous Professional A range of programmes or series of activities
measurements. Instruments of assessment are Development (CPD) through which professionals maintain and develop
calibrated when a grade on the marking scale their knowledge and skills.
of one corresponds accurately to a grade on the
Critical Period A critical period for language learning which peaks
marking scale of another. The prerequisite for
Hypothesis (CPH) between the ages of 3 and 5, which is also when
calibration is alignment (q.v.).
many children start learning English as a new
Cascade model A training model which involves the transmission of language.
information from a small initial group to successively
Developmentally Teaching and learning designed specifically in
larger groups. A small group known as Master
Appropriate Practice accordance with the age, development, and ability
Trainers are first trained themselves, and then sent
(DAP) of children.
out to train their own groups. The second group of
trainees become trainers and train their own groups, English language That part of the English language system (q.v.)
and so on. Cascading is the most efficient means of programme which consists of curriculum, teaching and learning
training large numbers of people. and assessment.

398
TERM EXPLANATION TERM EXPLANATION
English language system The whole system concerned with English In-service teacher Education intended to upskill or upgrade teachers
education, including the English language education already in teaching posts. Upskilling courses
programme (q.v.), teacher education, and normally range from a few days to a few
the administrative and logistical infrastructure weeks, and are often directed centrally by the
supporting English education. MoE and related to innovations or changes in
the curriculum. Upgrading courses range from
FasiLINUS LINUS facilitators appointed to support primary more than 3 months to more than a year, from
school teachers in Years 1-3 in implementing the certificate to diploma, from diploma to degree
basic English language literacy programme. They level and from first degree to masters and doctoral
also provide in situ coaching support for teachers levels. These are often conducted by Institutes of
on curriculum implementation and assessment. Teacher Education (ITEs) and universities, both
Formative Assessment A school-based form of assessment carried local and foreign.
out during class time and an integral part of Institute of Teacher The agency under the Ministry of Education
the instructional process in Malaysian primary Education Management that oversees the management of 27 Institutes
schools. EL teachers refer to the Performance (ITEM) of Teacher Education, a role formerly played by
Standards (which detail six levels of performance the Teacher Education Division at the Ministry of
with descriptors for each level) to help them Education.
ascertain pupils level of mastery of the various KSSR The Standards-based English syllabus which forms
learning standards. Methods of assessment include part of the 2011 modular Kurikulum Standard
checklists, observations, oral presentations, Sekolah Rendah (KSSR), or the Primary School
quizzes, questions and answers, task sheets or Standards-based Curriculum. Targeted curriculum
written assignments. standards for the four language skills, grammar
Graduate employability The ability of graduates to obtain employment and language arts are arranged in five modules: (1)
commensurate with their level of education, skills, Listening and Speaking, (2) Reading, (3) Writing/
knowledge and personal attributes, and to be Grammar, (4) Grammar/Writing (only Writing for
successful in their employment. Years 1& 2), (5) the Language Arts (except for
Years 1 and 2). Primary school English teachers are
Grammar The formation of complex words, the combination
expected to allocate one session per week to each
of words to form phrases, and the combination of
module to ensure a balanced treatment of the four
phrases to form clauses and sentences.
skills and provide opportunities to learn grammar
Incidental learning Unintentional, unplanned and mostly unconscious (Module 4) and use language learnt creatively
learning that results from other activities (Module 5).

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TERM EXPLANATION TERM EXPLANATION


Language engagement Being involved with a language and having a Performance-based A set of strategies for the assessment of the
sense of ownership while using it to accomplish assessment acquisition and application of knowledge and
communication and other goals. skills, through the performance of tasks that are
Licensure The licensing of teachers based on the certification meaningful and engaging to students and goes
of a competency, in this case, competency in beyond traditional assessment that focuses on
English. The license may need to be renewed testing the accuracy of student response on a
every five years or at intervals to be decided selection of questions.
by a licensing board, which may be an agency Phoneme The phonological units that make up spoken
appointed by the MoE. words. In phonics teaching (q.v.), phonemes
LINUS 2.0 A remedial programme introduced in 2009 to can be thought of as the speech sounds that
ensure that primary school pupils acquire basic correspond to the letters of spellings.
literacy and numeracy skills in Bahasa Malaysia by Phonics An approach to the teaching of reading in which
the end of Year Three. It was expanded In 2014 to the teacher teaches the learner to recognise
include English literacy, and renamed LINUS 2.0. written words by explaining the correspondences
MBMMBI The policy introduced in 2010 and entitled between the letters of the spellings of words and
Memartabatkan Bahasa Melayu dan Memperkukuh the phonemes (q.v.) of the pronunciation.
Bahasa Inggeris to uphold Malay and to strengthen Pre-service teacher The initial education of student teachers in ITEs
English education and universities before they are placed in schools
National Preschool (NP) Preschools in which the medium of instruction is to be teachers.
divided equally between Malay and English. Prosody Aspects of the pronunciation of a language other
National Preschool The standard referenced assessment instrument than phonemes (q.v.). Prosody is conventionally
Assessment Tool (NPAT) used to measure the preschool students said to include stress, rhythm and intonation.
achievement of content standards and learning Remedial Programmes Programmes that provide learning support for
standards as stipulated in the NPSC. The three pupils who lag far behind their peers. Teachers
indicators of success are: Has Mastered (Telah do not generally teach the same things again,
Menguasai), Is Mastering (Sedang Maju) and Has but provide more learning activities and practical
Not Mastered (Belum Menguasai). experiences appropriate for these pupils abilities
National-Type Preschool Preschools in which the medium of instruction and needs. Teachers may also design individualized
(NTP) is divided equally between Malay, English, and programmes with intensive remedial support
Mandarin or Tamil. to help pupils consolidate their generic skills in
learning, strengthen their confidence and enhance
the effectiveness of learning.

400
TERM EXPLANATION TERM EXPLANATION
Self-directed learning A learning situation in which students are driving Teaching to the test The use of actual test items in class as a means
the total learning experience, beginning with to prepare students for a test. This is considered
recognising a need to take their own initiative for harmful if it distracts teachers from the body of
their own learning without the assistance of others. knowledge or skills that the test represents, or if
School-based INSET In-service teacher development activities initiated the test format does not encourage the effective
by teachers within the school, including structured learning of important concepts being studied or
time-based programme-level, project-based or skills being learnt.
research-based activities related to the curriculum. The washback effect The effects of tests on individual teachers,
Examples are training of mentors for the school students or even whole classes and programmes,
or the collaborative planning of lessons, such which are positive or negative according to
as lessons study. Other forms of school-based whether they promote learning (e.g. through
INSET include on-going one-off free sharing encouraging the use of effective learning
sessions among teachers which may be related to strategies) or discourage learning (e.g. by focusing
pedagogy, good practices, soft skills and so on. too heavily on test preparation at the expense of
Strand A term used in reference to the six content other more beneficial learning activities).
components of the NPSC. T&L Teaching and learning, which are together
Systemic institutional Support and opportunities for the development of considered a single component of the English
support a specific concern (such as language proficiency) language programme.
not confined to one entity but made available
throughout an institution in various forms.
Teacher education The specialist education provided to intending
teachers to enable them to perform effectively as
professionals in the classroom. The term teacher
education is used in preference to teacher training
to draw attention to the intellectual and academic
challenge involved, and to avoid the low-level
implications associated with mere training.
Teacher Educators All educators involved in the training of English
language teachers from pre-service to in-service
at Institutes of Teacher Education (ITEs) and
universities.

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List of Abbreviations

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List of Acronyms / Abbreviations

ACRONYM/ ABBREVIATION TERM

ACoCD Arts and Co-curriculum Division (Bahagian Kokurikulum dan Kesenian)

B. Matrik Bahagian Matrikulasi

B.A. Bachelor of Arts

B.Ed. Bachelor of Education

B.Sc. Bachelor of Science

BBT Bahagian Buku Teks

BKK Bahagian Kokurikulum dan Kesenian

BPG Bahagian Pendidikan Guru (Teacher Training Division)

BPK Bahagian Pembangunan Kurikulum (Curriculum Development Division)

BPPDP Bahagian Perancangan dan Penyelidikan Dasar Pendidikan

BPSH Bahagian Pengurusan Sekolah Harian

BPSM Bahagian Pengurusan Sumber Manusia

BTP Bahagian Teknologi Pendidikan

CDD Curriculum Development Division (Bahagian Pembangunan Kurikulum)

CEFR Common European Framework of Reference (for Languages)

CfBT Centre for British Teachers

CGPA Cumulative Grade Point Average

CPD Continuous Professional Development

CPH Critical Period Hypothesis

404
ACRONYM/ ABBREVIATION TERM

DAP Developmentally Appropriate Practice

DEO District Education Office (Pejabat Pendidikan Daerah)

DNUI Department of National Unity and Integration (Jabatan Perpaduan Negara dan Integrasi Nasional)

DSMD Day School Management Division (Bahagian Penguruan Sekolah Harian)

EAF Employability Attributes Framework

ECCE Early Childhood Care and Education

ECCECM Early Childhood Care and Education Council of Malaysia (Alternative: National ECCE Council)

EL English Language (school subject), English language (language)

ELP European Language Portfolio

ELSQC English Language Standards and Quality Council (Majlis Penarafan Standard dan Kualiti Bahasa Inggeris)

ELTC English Language Teaching Centre

ES Examinations Syndicate

ESS Employer Satisfaction Survey

FELDA Federal Land Development Authority

GE Graduate Employability

GEC Graduate Employability Competencies

HEI Health Equity Initiative or Higher Education Institution according to context

HOTs Higher Order Thinking skills

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ACRONYM/ ABBREVIATION TERM

IAB Institut Aminuddin Baki

ICT Information and Communication(s) Technology

IELTS The International English Language Testing System

INSET In-service Teacher Education

IPG Institut Pendidikan Guru (Institute of Teacher Education)

IPGM Institut Pendidikan Guru Malaysia (Malaysian Teacher Education Institute)

IPTA Institut Pengajian Tinggi Awam

ITEM Institute of Teacher Education Management

ITEs Institutes of Teacher Education

JNJK Jemaah Nazir dan Jaminan Kualiti

JPN Jabatan Pendidikan Negeri

KEMAS Community Development Department (Jabatan Kemajuan Masyarakat)

LP Lembaga Peperiksaan (Examinations Syndicate)

MEB Malaysia Education Blueprint

MEC Malaysian Examinations Council

MoE Ministry of Education

MoHE Ministry of Higher Education

MPM Majlis Peperiksaan Malaysia (Malaysian Examinations Council)

406
ACRONYM/ ABBREVIATION TERM

MQA Malaysian Qualifications Agency

MUET Malaysian University English Test

NKEA National Key Economic Areas

NP National Preschool

NPAT National Preschool Assessment Tool

NPE National Philosophy of Education

NPSC National Preschool Standards-Based Curriculum (Dokumen Standard Kurikulum Prasekolah, 2010)

NTP National-Type Preschool

OBE Outcome-Based Education

PIHE Public Institutions Of Higher Education (Institut Pengajian Tinggi Awam)

PISA Programme for International Student Assessment

PISMP Program Ijazah Sarjana Muda Perguruan (Bachelor of Education Programme)

PPD Pejabat Pendidikan Daerah

PPISMP Program Persediaan Ijazah Sarjana Muda Perguruan (Bachelor of Education Preparatory Programme)

PSELT Pedagogical Standards in ELT

PTA Parent-Teacher Association

RISDA Rubber Industry Smallholders Development Authority

SED State Education Department (Jabatan Pendidikan Negeri)

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ACRONYM/ ABBREVIATION TERM

SIPartner School Improvement Partner

SIQA Schools Inspectorate and Quality Assurance (Jemaah Nazir dan Jaminan Kualiti)

SISC School Improvement Specialist Coach

SLA second language acquisition

SPM Sijil Pelajaran Malaysia (Malaysian Certificate of Education)

STPM Sijil Tinggi Persekolahan Malaysia (Malaysian Certificate of Higher Education)

T & L Teaching and Learning

TA Teaching Assistant

TED Teacher Education Division

TESL Teaching English as a Second Language

TESOL Teaching English to Speakers of Other Languages

TEYL Teaching English to Young Learners

TIMSS Trends in International Mathematics and Science Study

TOEFL Test of English as a Foreign Language

USM Universiti Sains Malaysia

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English Language Education Reform in Malaysia
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Contributors

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Contributors

No Name Institution

1 Prof. Dr Zuraidah Mohd Don Universiti Malaya

2 Dr Ranjit Singh Gill LeapEd Services

3 Dr Mohamed Abu Bakar English Language Teaching Centre

4 Ms Zainab Yusof English Language Teaching Centre

5 Prof. Dr Anna Christina Abdullah Universiti Sains Malaysia

6 Assoc. Prof. Dr Arshad Abd Samad Universiti Putra Malaysia

7 Assoc. Prof. Datin Dr. Mardziah Hayati Abdullah Universiti Putra Malaysia

8 Dr Kuldip Kaur Karam Singh LeapEd Services

9 Dato Dr Lee Boon Hua LeapEd Services

10 Ms Janet Pillai @Liyana Pillai Independent Consultant

11 Prof. Dr Gurnam Kaur Sidhu University Teknologi Mara

12 Dr Choong Kam Foong Inti International University

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13 Assoc. Prof. Dr Ganakumaran Subramaniam University of Nottingham, Malaysia Campus

14 Ms Fadzilah Khalilah Amin Independent Writer

15 Ms Clare Walker British Council

16 Dr Suraya Sulyman IPG Kampus Bahasa Antarabangsa

17 Dr Sivabala Naidu University of Nottingham, Malaysia Campus

18 Ms Sarina Salim English Language Standards And Quality Council,


English Language Teaching Centre

19 Assoc. Prof. Dr Tan Kok Eng Universiti Sains Malaysia

20 Ms Yeoh Phaik Kin IPG Kampus Pulau Pinang

21 Dr Chithra K.M. Krishnan Adiyodi English Language Teaching Centre

22 Ms Regina Joseph Cyril Bahagian Pembangunan Kurikulum

23 Ms Siew Siew Kim Bahagian Pembangunan Kurikulum

24 Dr Dahlia Janan Universiti Pendidikan Sultan Idris

25 Ms Sia Soh Guad SK Batu Unjur

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26 Ms Yong Wai Yee PPD Bangsar Pudu

27 Ms Chandrakala Raman PPD Kuantan

28 Mr Mohamad Najib Omar JPN Kelantan

29 Ms Ewe Choy Choo PPD Hilir Perak

30 Dr Aspalila Shapii Universiti Utara Malaysia

31 Datin Dr Raja Mazuin Raja Abdul Aziz IPG Kampus Bahasa Antarabangsa

32 Dr Ramesh Nair Universiti Teknologi Mara

33 Ms Leela James Dass English Language Teaching Centre

34 Ms Pamela Devadason SMK Taman Yarl

35 Ms Majeedah Mohd Shukor SMK Kepong Baru

36 Ms Eileen Jesse Ah Guan Bahagian Pembangunan Kurikulum

37 Pn Aimi Mahfuzah Kamalluden Lembaga Peperiksaan

38 Prof. Dr Fatimah Hashim Universiti Malaya

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39 Dr Hawa Rohany (Retired Assoc. Prof.) Universiti Teknologi Malaysia

40 Dr Lim Peck Choo Universiti Teknologi Malaysia

41 Ms Marina Abu Bakar Politeknik Melaka

42 Ms Mazlina Mohamad Aris Majlis Peperiksaan Malaysia

43 Ms Hooi Moon Yee Universiti Malaya

44 Dr Saidatul Akmar Zainal Abidin Universiti Teknologi Mara

45 Ms Amar Shobha Sarna IPG Kampus Ilmu Khas

46 Ms Yong Lee Choo IPG Kampus Bahasa Antarabangsa

47 Mr Terry Yap English Language Teaching Centre

48 Ms Cheok Oy Lin English Language Teaching Centre

49 Assoc. Prof. Dr Stefanie Pillai Universiti Malaya

50 Mr Malek Baseri IPGM

51 Dr Moses Samuel Universiti Malaya

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