SCIENCE AND TECHNOLOGY (2009-2013)
SCIENCE AND TECHNOLOGY (2009-2013)
English Language Education Reform in Malaysia The Roadmap 2015-2025
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.
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
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 teacher’s 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 A corollary to teaching to the test is the tendency for students to become dependent on the teachers for their learning as
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 Teacher’s 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 Bai’ah.
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.
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 speciied 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
No Subject
SPM/STPM Diploma
Bachelor
Masters
PHD
Total
Teachers trained in teaching
1 English and currently teaching
22 13,963 English*
Teachers trained in teaching
35 1 222 English
2 English and currently not teaching
Teachers trained in teaching other
3 subjects currently teaching English
10 4,815 (at Least 1 class)
Table 6.2 Table 6.2 ELT AND EL TEACHERS IN SECONDARY SCHOOLS ELT AND EL TEACHERS IN SECONDARY SCHOOLS AND THEIR HIGHEST QUALIFICATION 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
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 challenge for various reasons highlighted in previous sections. Teachers must obviously be well-trained to meet the demands of a challenging
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 qualiications, 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).
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 was one of perception and beliefs about SBA. Many including
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
Loo’i-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 (Loo’i-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.
English Language Education Reform in Malaysia The Roadmap 2015-2025
Formative assessments carried
out through SBA and guided by ASSESSMENT CEFR “can do” statements are
CURRICULUM
TEACHING & LEARNING
suficient 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-
teaching learning
based assessment
Nevertheless, the beneits in
standardised
terms of the more valid reporting
curriculum
initiatives
Lack of
of a student’s actual ability in the
Teacher student
readiness for self
language and the motivation it
classroom
directedness
provides in learning far outweigh
interaction
these dificulties. The challenges in implementing SBA are large
Qualification of
but must be overcome if language
English language
education is to progress from the
teachers
assessment of mere language knowledge to the assessment of actual language ability.
Figure 6.2 Issues and Challenges in Curriculum,
Teaching & Learning, and Assessment.
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.
English Language Education Reform in Malaysia The Roadmap 2015-2025
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; of language proficiency reference levels as a core element;
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.
English Language Education Reform in Malaysia 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 indings 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.
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.
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 CEFR descriptors, but also to address specific issues that have been subjects such as Literature in English and English for Science and
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
English Language Education Reform in Malaysia 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 irst 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
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 veriies 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 irst 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 irst 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
English Language Education Reform in Malaysia The Roadmap 2015-2025
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 irst 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 relect 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.
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.
English Language Education Reform in Malaysia The Roadmap 2015-2025
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, 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,
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.
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.
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
one’s 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
English Language Education Reform in Malaysia The Roadmap 2015-2025
English Language Education Reform in Malaysia
The Roadmap 2015-2025
Post-secondary
English Language Education Reform in Malaysia The Roadmap 2015-2025