ISE21/14-15

Subject:

education, English language teaching and learning

• In order to sustain Hong Kong's competitiveness as an international city and to facilitate effective communication and business exchanges with the Mainland, the Hong Kong Government has implemented the "biliterate and trilingual" language education policy aiming at nurturing students' English and Chinese language proficiency.
• According to the findings of a study released by the University of Hong Kong ("the HKU Study") in August 2015, over 50% of the Hong Kong population aged between 15 and 19 claimed that they could speak Cantonese, Putonghua and English in 2011, up from less than 20% in 1991. Also, 62% and 68% of the Hong Kong residents aged 12 and above claimed that they could speak English and Putonghua respectively. Nonetheless, the HKU Study estimated that only about 27% and 24% of the Hong Kong residents aged 12 and above were proficient i.e. being rated "quite well, well or very well" in oral English and written English respectively based on objective assessments.
• Similar to Hong Kong, Singapore has a bilingual education policy aiming at nurturing students' English and mother tongue language skills. The bilingual education policy of Singapore has been considered a success as the proportion of resident population aged 15 and above who claimed that they were literate in English increased from 56% in 1990 to 77% in 2010; and the proportion of resident population who claimed that they were literate in two or more languages increased from 40% in 1990 to 68% in 2010.^{1Legend symbol denoting Literacy refers to the ability to read with understanding in the specific language as claimed by the person.} In 2013, 89% and 97% of the secondary students attained pass level for English and Chinese language respectively in the Singapore-Cambridge General Certificate of Education (Ordinary Level) ("GCE 'O' Level") Examination.^{2Legend symbol denoting Secondary students who complete the four-year Express course, or the four-year Normal (Academic) course plus an additional year of secondary course can sit for the GCE 'O' Level Examination. Secondary students who complete the four-year Normal (Technical) course will sit for the GCE Normal (Technical) Level Examination.}
• In view of Singapore's successful language education experience, this issue of Essentials aims to provide an overview of the bilingual education policy in Singapore. As regards the issue of how English is taught and learnt in Hong Kong, with special reference to the Native-speaking English Teacher Scheme, it is discussed in another piece of Essentials entitled English language teaching and learning.

Bilingual education policy in Singapore

• Singapore has adopted its bilingual education policy since 1966. Under the policy, English, one of the four official languages, is taught as the first language and is the main medium of instruction in schools. The other three official languages, i.e. Chinese, Malay and Tamil, which are the mother tongue languages (MTLs) of the major ethnic groups^{3Legend symbol denoting In 2014, the resident population of Singapore comprised 74.3% Chinese, 13.3% Malays, 9.1% Indians and 3.3% other ethnic groups.}, have been taught as second languages in schools. All students are required to learn one MTL according to their ethnicity.
• The goals of English language teaching and learning in Singapore are to ensure that (a) all students can attain foundational skills, particularly in grammar, spelling and basic pronunciation so that they can use English in everyday situations; (b) the majority of students can attain a good level of competence in English speaking and writing for them to engage in various service industries; and (c) at least 20% of the students can attain high degree of proficiency in English so as to maintain Singapore's edge in various professions. With regard to the teaching and learning of MTLs, Singapore government's objectives are to support and enable students to learn MTL to as high a level as they are able to, and become proficient in using MTL in real-life settings to communicate effectively.

Key features of language teaching and learning under the bilingual education policy

Updating the curriculums on a regular basis

• The Ministry of Education ("MOE") of Singapore has conducted periodic reviews of its language curriculums to ensure that they are relevant to the changing socio-economic environment, home language usage situation and profile of students. The latest review of the English language curriculum was completed in 2006 leading to the reform of the English language syllabus in 2010. The latest review of the MTL curriculums was completed in 2010, leading to reform of the primary school MTL curriculums in 2015.^{4In Hong Kong, the latest English and Chinese language curriculum guides for primary and junior secondary levels were developed based on a curriculum review completed in the early 2000s. The English and Chinese language curriculum guides for senior secondary level were developed in 2007 to pave the way for the implementation of the new senior secondary academic structure in 2009, and they were subsequently updated in 2014. Schools are encouraged to develop their school-based curriculum based on the guides taking into consideration factors such as learners' needs and the school context.}
• The key feature of the reformed 2010 English language syllabus is the adoption of a systematic approach to teach language skills, using rich texts and a variety of language resources to give students meaningful contexts for learning and using English. At the primary level, the new teaching and learning approach is delivered through the Strategies for English Language Learning and Reading ("STELLAR") programme under which English is taught through stories and texts that appeal to children, with explicit grammar instruction.^{5The STELLAR programme was piloted in the lower primary levels in 2006 and implemented in all primary schools across levels in 2009. The objectives of the programme are to build students' confidence in speech and writing, and enhance their learning of English under an interactive and enjoyable environment.} Students learn English through reading stories, and discussing and sharing their views with the teacher and their peers. At the secondary level, the focus of the syllabus is on consolidating students' English language skills, particularly grammar and spoken English.
• The 2015 primary school MTL curriculums put emphasis on developing students' spoken and written communication skills with the adoption of authentic activities. There is also a greater use of information and communication technology in the teaching and learning process so that students can learn in a fun and purposeful way.

Catering for students with different learning abilities

• To cater for diversity in students' English learning ability, MOE offers English language learning at the standard and foundation levels for primary and secondary students streamed according to the existing streaming mechanisms.^{6Under the subject-based banding arrangement at the primary level, students may take a combination of standard or foundation level courses for English, MTL, Mathematics and Science in Primary Five and Primary Six based on their examination results at the end of Primary Four and Primary Five. At the secondary level, students are placed in Express, Normal (Academic) or Normal (Technical) course based on their scores in the Primary School Leaving Examination taken at the end of Primary Six.} The foundation level syllabus is specially designed for low progress learners, helping them build a strong foundation for developing proficiency in English for everyday situations and functional purposes.
• In addition, MOE has implemented the Learning Support Programme ("LSP") in all primary schools since 1998. Under LSP, primary schools provide learning support to students who are identified to have weak English language and literacy skills through a systematic screening process carried out at the beginning of Primary One ("P1"). According to MOE, around 12% to 14% of the P1 cohort is identified to require support each year. These students have to attend a 30-minute session conducted by a qualified teacher every day in a group of eight to 10 students.^{7Most primary and secondary schools in Singapore have classes of 40 or fewer students while P1 and Primary Two classes have 30 or fewer students. In Hong Kong, the average class size was 26.6 for primary schools and 30 for secondary schools in the 2014-2015 school year.} Students who fail in the school-based English language examination at the end of P1 will continue to receive support in Primary Two.^{8In Hong Kong, under the Early Identification and Intervention of Learning Difficulties Programme for Primary One Pupils, P1 students who are observed by the teachers to have learning difficulties at the commencement of a new school year may be provided with school-based learning support. Between 2010 and 2013, about 25% of P1 students were identified to have learning difficulties and provided with early support under the programme. According to the Government, 7% to 8% of these identified students showed persistent learning difficulties and required diagnostic assessment, indicating that the majority of the pupils had made progress with the early intervention. Nonetheless, results of the Territory-wide System Assessment ("TSA") in 2013 indicated that only 80% and 72% of Primary Three and Primary Six students attained basic competency in English language respectively. TSA is a survey of the performance of students at Primary Three, Primary Six and Secondary Three levels in English language, Chinese language and Mathematics.}
• The positive impact of the LSP and the STELLAR programmes was reflected by Singaporean students' performance in the Progress in International Reading Literacy Study ("PIRLS") which assessed fourth-graders' reading literacy.^{9PIRLS was a study established by the International Association for the Evaluation of Educational Achievement to assess the reading literacy in mother tongue language of a random sample of fourth-graders in each participating place. The study has been conducted every five years since 2001 and the latest study was conducted in 2011. While Singaporean students were tested in English in PIRLS, Hong Kong students were tested in Chinese in PIRLS.} The study indicated that the percentage of weak performers decreased from 24% in 2001 to 13 % in 2011 while the percentage of highly competent performers increased from 12% in 2001 to 24% in 2011. In 2013, 97% of Primary Six students completing the standard English syllabus attained Grade C or above in the Primary School Leaving Examination ("PSLE").^{10PSLE is the national examination that students in Singapore sit at the end of their primary school education. The highest grade for each standard subject is "A*" while the lowest grade is "E". Results of students taking the foundation subjects are not available.}
• Regarding the teaching and learning of MTLs, MOE offers the foundation level MTL courses and the MTL "B" curriculum for low progress learners at senior primary level and secondary level respectively. The MTL "B" curriculum emphasizes on developing students' oral communication skills through activity-based approaches. Students with ability and interest in learning MTL can take the higher MTL courses at senior primary and secondary levels.

Other measures or factors conducive to language teaching and learning

• As teachers are important role models and enablers of language learning for students, MOE has set stringent requirements on the qualifications and training of teachers. For example, language teachers, particularly those teaching at the secondary level, are preferred to be graduates majoring in the relevant language subjects and must have received training in teaching pedagogy. Teachers of English medium subjects who do not meet the exemption criteria of the relevant Entrance Proficiency Test ("EPT") have to sit and meet the requirements of the English language EPT before they are deployed to school, and in-service teachers are also required to attain 100 hours of professional development each year under the sponsorship of MOE.^{11In Hong Kong, the qualifications requirements for new English and Chinese language teachers in primary and secondary schools are quite similar to those in Singapore. As regards in-service teacher training in Hong Kong, all teachers, including language teachers, are only encouraged to attain 150 hours of continuing professional development in a three-year cycle.}
• In addition, Singapore has a language environment that is conducive to nurturing students' English language skills. Students have opportunities to use and practise English at school as English is the medium of instruction. Outside schools, students have access to a range of English media such as TV channels, newspapers and books. The National Library Board has developed book lists to help teachers and parents select age-appropriate books for students. Besides, it is observed that a growing proportion of resident population aged five and above speak English most frequently at home. The proportion grew from 23% in 2000 to 32% in 2010. In Hong Kong, the HKU Study indicated that 11% of residents aged 12 and above used English regularly to communicate with their family members at home.

Concerns about the education system in Singapore

• Despite the outstanding performance of Singaporean students in international studies of academic performance such as PIRLS, concerns have been raised on the examination-oriented education system and the streaming of students at a young age. There were comments that the education system had induced stress among students and prompted students to join private tuition classes.^{12See BBC News (2012) and Ministry of Education, Singapore (2013).}

Observations

• The language policy of Singapore aims to build residents' bilingual proficiency to sustain the nation's economic prosperity. The Singapore government has periodically reviewed its language curriculums to ensure that they are relevant to the latest local and global socio-economic developments and the needs of the students. The latest English and MTL language curriculums focus on teaching and learning the languages in real life contexts with the support of various teaching resources in order to engage and motivate students in the learning process.
• It is also observed that the English language and MTL curriculums have been designed to cater for students of different language background and learning abilities. MOE aims at ensuring that all students, including the academically-weaker students, are equipped with the foundation skills to use English and their MTLs in their daily life while the more capable students are enabled to develop higher level of language competency. Besides, the Singapore government has put efforts to enhance teachers' training and development, and cultivate a conducive language learning environment which are important factors of effective language education.

Prepared by Ivy CHENG
Research Office
Information Services Division
Legislative Council Secretariat
23 September 2015

Endnotes:

1.	Literacy refers to the ability to read with understanding in the specific language as claimed by the person.
2.	Secondary students who complete the four-year Express course, or the four-year Normal (Academic) course plus an additional year of secondary course can sit for the GCE 'O' Level Examination. Secondary students who complete the four-year Normal (Technical) course will sit for the GCE Normal (Technical) Level Examination.
3.	In 2014, the resident population of Singapore comprised 74.3% Chinese, 13.3% Malays, 9.1% Indians and 3.3% other ethnic groups.
4.	In Hong Kong, the latest English and Chinese language curriculum guides for primary and junior secondary levels were developed based on a curriculum review completed in the early 2000s. The English and Chinese language curriculum guides for senior secondary level were developed in 2007 to pave the way for the implementation of the new senior secondary academic structure in 2009, and they were subsequently updated in 2014. Schools are encouraged to develop their school-based curriculum based on the guides taking into consideration factors such as learners' needs and the school context.
5.	The STELLAR programme was piloted in the lower primary levels in 2006 and implemented in all primary schools across levels in 2009. The objectives of the programme are to build students' confidence in speech and writing, and enhance their learning of English under an interactive and enjoyable environment.
6.	Under the subject-based banding arrangement at the primary level, students may take a combination of standard or foundation level courses for English, MTL, Mathematics and Science in Primary Five and Primary Six based on their examination results at the end of Primary Four and Primary Five. At the secondary level, students are placed in Express, Normal (Academic) or Normal (Technical) course based on their scores in the Primary School Leaving Examination taken at the end of Primary Six.
7.	Most primary and secondary schools in Singapore have classes of 40 or fewer students while P1 and Primary Two classes have 30 or fewer students. In Hong Kong, the average class size was 26.6 for primary schools and 30 for secondary schools in the 2014-2015 school year.
8.	In Hong Kong, under the Early Identification and Intervention of Learning Difficulties Programme for Primary One Pupils, P1 students who are observed by the teachers to have learning difficulties at the commencement of a new school year may be provided with school-based learning support. Between 2010 and 2013, about 25% of P1 students were identified to have learning difficulties and provided with early support under the programme. According to the Government, 7% to 8% of these identified students showed persistent learning difficulties and required diagnostic assessment, indicating that the majority of the pupils had made progress with the early intervention. Nonetheless, results of the Territory-wide System Assessment ("TSA") in 2013 indicated that only 80% and 72% of Primary Three and Primary Six students attained basic competency in English language respectively. TSA is a survey of the performance of students at Primary Three, Primary Six and Secondary Three levels in English language, Chinese language and Mathematics.
9.	PIRLS was a study established by the International Association for the Evaluation of Educational Achievement to assess the reading literacy in mother tongue language of a random sample of fourth-graders in each participating place. The study has been conducted every five years since 2001 and the latest study was conducted in 2011. While Singaporean students were tested in English in PIRLS, Hong Kong students were tested in Chinese in PIRLS.
10.	PSLE is the national examination that students in Singapore sit at the end of their primary school education. The highest grade for each standard subject is "A*" while the lowest grade is "E". Results of students taking the foundation subjects are not available.
11.	In Hong Kong, the qualifications requirements for new English and Chinese language teachers in primary and secondary schools are quite similar to those in Singapore. As regards in-service teacher training in Hong Kong, all teachers, including language teachers, are only encouraged to attain 150 hours of continuing professional development in a three-year cycle.
12.	See BBC News (2012) and Ministry of Education, Singapore (2013).

References:

Hong Kong
1.	Bacon-Shone, J. et al. (2015) Language Use, Proficiency and Attitudes in Hong Kong.
2.	Education Bureau (2015).
3.	GovHK. (2013) LCQ13: Education for students with special educational needs.
Singapore
4.	Alsagoff, L. (2012) The development of English in Singapore: Language policy and planning in nation building. In: Low, E. and Hashim, A. (ed.) English in Southeast Asia: Features, policy and language in use. Amsterdam, John Benjamins Publishing Company.
5.	BBC News. (2012) Singapore wants creativity not cramming.
6.	Dixon, L. Q. (2005) Bilingual Education Policy in Singapore: An Analysis of its Sociohistorical Roots and Current Academic Outcomes. International Journal of Bilingual Education and Bilingualism, vol. 8, no. 1, pp. 25-47.
7.	Lee, K. Y. (2012) My Lifelong Challenge – Singapore's Bilingual Journey. Singapore, Straits Times Press.
8.	Ministry of Education, Singapore. (2006) Report of the English Language Curriculum and Pedagogy Review – Executive Summary.
9.	Ministry of Education, Singapore. (2008a) English Language Syllabus 2010 – Primary (Foundation) & Secondary (Normal [Technical]).
10.	Ministry of Education, Singapore. (2008b) English Language Syllabus 2010 – Primary & Secondary (Express/ Normal [Academic]).
11.	Ministry of Education, Singapore. (2009a) Press Releases: Infosheet on Improving Language and Communication Skills.
12.	Ministry of Education, Singapore. (2009b) Speeches: Experiences in Education Reform: The Singapore Story.
13.	Ministry of Education, Singapore. (2011a) Nurturing Active Learners and Proficient Users.
14.	Ministry of Education, Singapore. (2011b) Speeches: Speech by Mr Lee Kuan Yew, Former Minister Mentor and current Senior Advisor to Government of Singapore Investment Corporation at the Launch of the English Language Institute of Singapore (ELIS).
15.	Ministry of Education, Singapore. (2012) Press Releases: Learning of English to Develop 21st Century Competencies.
16.	Ministry of Education, Singapore. (2013) Highlights from Education Dialogue Session with Students: 19 July 2013.
17.	Ministry of Education, Singapore. (2014) 10-Year Trend of Educational Performance 2004-2013.
18.	Ministry of Education, Singapore (2015).
19.	Ruanni, T. & Tupas, F. (2011) English-knowing Bilingualism in Singapore: Economic Pragmatism, Ethnic Relations and Class. In: Feng, A. (ed.) English Language Education Across Greater China. Bristol, Multilingual Matters.
20.	Statistics Singapore (2015).