MEASURES TO HELP STUDENTS WITH LEARNING, EMOTIONAL OR BEHAVIOURAL PROBLEMS

CHAPTER 3 : SPECIAL EDUCATIONAL PROVISION:

3.2 MEASURES TO HELP STUDENTS WITH LEARNING, EMOTIONAL OR BEHAVIOURAL PROBLEMS

(a) Current situation

3.2.1 As mentioned earlier, any student, whatever their academic ability, may encounter learning, emotional or behavioural problems from time to time. They will need appropriate guidance and counselling to help them to learn more effectively and to overcome their emotional and behavioural problems.

3.2.2 School social work services are provided in primary and secondary schools. In the former, they are provided by Student Guidance Officers (SGOs) of ED who are teachers

having undergone training^* in guidance and counselling. They provide guidance to students and their parents, organise preventive programmes^** in schools and investigate cases where students are thought to have dropped out with a view to persuading them to return to school. The current manning ratio is 1 SGO: 3000 students in the urban area and 1 SGO to 2000 students in the rural areas. The cases handled by SGOs relate mainly to learning problems (see Annex 3A). When more difficult cases involving family or social problems are encountered, SGOs may refer them to the Family Services Unit of the Social Welfare Department (SWD).

3.2.3 In secondary schools, guidance services are provided by guidance teachers, with professional support from school social workers (SSWs) of voluntary agencies and the SWD. The services are designed to help students in their academic, personal, social and emotional development. A group of teachers, led by the guidance teachers, undertake guidance and counselling work and assist in the organization of activities of a developmental or preventive nature. Starting in 1982, one additional teacher was added to the establishment of standard Government and aided secondary schools for strengthening guidance and counselling work including careers advice. More complicated cases involving family or social problems may be referred by the guidance teachers to the SSWs. The SSWs assist students to understand and resolve their problems, to make the most of their educational opportunities

* Pre-service training comprises a four month full-time course which includes fieldwork in schools over a 10 week period. This course is followed by part-time training of five months in the organisation of preventive programmes and student support groups. In addition a 10 month part-time refresher course programme is available for experienced SGOs.

** Programmes in the form of seminars, talks and groups etc, which are conducive to the establishment and development of desirable and socially acceptable attitudes and habits, good human relationships, moral conduct and a sense of responsibility in society.

as well as to prepare them for adult life. The manning ratio is 1 SSW : 3000 students.

3.2.4 We believe that the professional support provided by the social workers is essential for SGOs and guidance teachers. The existing arrangement for making referrals to professionals outside the school system should be continued. We note that SWD has conducted a review of social work in both primary and secondary schools this year. An interim report was completed in July. it contained recommendations on SSWs but in relation to SGOs the Review Committee decided to await the outcome of our report before producing its final report.

3.2.5 At both primary and secondary levels, Educational Psychologists (EPs) are available on a referral basis to

-(a) diagnose students' intellectual, educational and psychological problems;

(b) provide professional support for students with learning and/or behavioural problems or for those who are gifted; and

There are currently 26 posts of EPs in ED and 9 posts in special schools in the aided sector.

(b) Whole School Approach

3.2.6 While the professional support provided by EPs, social welfare organisations, and relevant staff of ED are essential, we are mindful of the fact that all teachers play a vital part in helping students to recognise and overcome their problems. Being in the front line, teachers are often in a better position to identify students in need of help and

to offer initial assistance. Teachers, however, require the leadership of the school heads and the full support of the management, to create a positive environment in the schools in which students' problems are responded to in a positive and constructive manner. For example, by providing developmental and constructive programmes^* to facilitate personal development, social adaptation and adjustment in school. We call this the "whole school approach". We note that some schools have already adopted this approach and that it is proving successful. We would like to encourage more schools to follow suit and therefore recommend the adoption in Hong Kong of the whole school approach whereby all teachers in a school actively participate in assisting students to resolve their developmental problems.

3.2.7 We also note that many schools have, on their own initiative, already introduced various programmes to encourage good behaviour in a positive way amongst their students. These include programmes which help students improve their relationship with their peers and their sense of responsibility; schemes which generate and enhance self-confidence and a positive attitude among students; and merit recording systems, whereby teachers award merit cards to students who have behaved well. We welcome these school-based programmes and would like to see them continue

* Developmental programmes aim at meeting the different needs of students at various stages of their

development. Examples include orientation programmes for Secondary 1 students to enable them to adjust to their new school environment, and programmes on study and career choices for higher form students to help them plan for their future.

Constructive programmes aim at promoting students' self-acceptance and self-awareness, and developing healthy relationships between teachers and students. For example, students will be involved in the drawing up of regulations and rules to be observed in class, in the setting of common goals and considering how these goals can be achieved through teacher-student cooperation.

and extended. Accordingly, we recommend that resources be provided for schools to extend these programmes.

3.2.8 Our examination of the whole school approach and school-based programmes leads us to conclude that support services in schools should be school-based as far as possible. This is particularly important in view of the varying characteristics and needs of individual schools. In considering the problems relating to SGOs in primary schools, guidance teachers in secondary schools and EPs, we have borne these important points in mind.

3.2.9 The wastage rate^* for SGOs over the past three years has increased steadily from 15.2% in 1986-87 to 16.9% in 191986-87-88 and 20.1% in 1988-89. Compared to the wastage rate for primary teachers of 5.0% in 1986-87, 6.1% in 1987-88 and 6% in 1988-89, these rates are high. The ED has not been able to provide the guidance service to all primary students in Hong Kong despite the recruitment of about 40 SGOs each year over the past five years. As at March 1990 about 88000 students or 17% of the primary student population were not covered by the scheme and only 191 out of the full establishment of 235 posts, were filled. As fewer experienced Certificated Masters/Mistresses (CM) are interested in becoming SGOs, ED has found it necessary to recruit an increasing number of fresh graduates from the Colleges of Education to fill vacancies. This has implications for both the quality and effectiveness of the student guidance service.

* This means the rate at which SGOs leave the guidance service.

3.2.10 We note that for each case the SGO will need to interview the student and consult his or her parents and teachers. Home visits may also be conducted before appropriate guidance is given. This process is time-consuming and might take anything from a few months to over a year. SGOs also organise student support groups and preventive programmes and man ED's hot line for suicidal cases in primary schools.

(ii) Demand

3.2.11 Coupled with the problems outlined above is that of increased demand for the student guidance service. In addition to the demand for full coverage of primary schools, a marked increase in student problems in individual schools has been detected. A survey conducted by ED in 1985 revealed that teachers estimated about 5% of primary students needed guidance. In a second ED study in 1989, this figure. rose to 12%. The Student Guidance Scheme provides a valuable service but is unable to meet demand.

(iii) Implementation of the Whole School Approach

3.2.12 We note that the problems faced by primary students are mostly related to or manifested in their learning. For this reason we endorse ED's view that guidance work in primary schools should continue to be carried out by teachers who have received the necessary training. As pointed out in paragraph 3.2.6, under the whole school approach we envisage that guidance will be provided in schools by school-based guidance teachers working with other teachers.

3.2.13 As a first step in implementing this approach, we recommend that most of the SGO posts in ED be transferred gradually to schools as additional posts to enable school heads to choose one of their teachers to serve as the Student Guidance Teacher (SGT). Given the heavy workload and range of responsibilities which student guidance work involves, we

recommend that SGTs should be experienced teachers who have received the necessary training. (See paragraph 3.2.21) In addition to handling individual cases, the SGT will coordinate school support services and advise and help teachers to assist their students. Through this approach, we believe we can provide better quality support service for more students.

3.2.14 We considered carefully whether these posts should be at CM or Assistant Master/Mistress (AM) level. We decided against the option of providing schools with CM posts to enable school heads to release one of their AMs to serve as a SGT. This is because all the existing AMs already have specific duties, and could not take on guidance work as well. We therefore recommend that the posts to be provided to schools for SGTs be ranked at AM level. If this recommendation is accepted, ED will monitor whether the additional posts are used as intended for the whole school approach. If they are not, the posts should be withdrawn. If, however, a teacher at CM level were chosen by the school head to be the SGT, there should be no automatic promotion for that teacher to AM level. The teacher would have to gain five years' experience, at least two of which as a SGT, before being promoted. If he then reverted to teaching, he would not be allowed to retain the AM salary if there were no vacant AM posts in the school.

3.2.15 We discuss next two options for manning ratios for SGTs. The first is to provide one SGT to each standard school by improving the manning ratio from 1:3000 in the urban areas and 1:2000 in the rural areas to 1:1800 in 1992 and, after mixed-mode schooling^* is implemented in most

* The mixed-mode approach is one in which students from primary 1 to Primary 4 attend school for half a day only, while students in Primary 5 and Primary 6 attend school for the whole day.

schools, to 1:1350 in 1998^*. Schools with fewer students could continue to be served by SGOs centrally provided by ED who should be ranked at AM level. Under this option, the total number of SGTs and SGOs would be increased from 235 to 363 after eight years. 300 of these would be based in schools while 63 would remain with ED.

3.2.16 The second option is for one SGT to be shared by two or more schools under the same sponsoring body. The manning ratio would be changed to 1:2500 in 1992. This is in line with the average of the current manning ratio for the urban and rural areas. The ratio would be further improved to 1:1350 from 1996 ahead of the full implementation of mixed-mode schooling. Schools under the same sponsoring body with a student population of less than 2500 would be served by SGOs from ED or share one SGT employed by the sponsoring body. The number of SGTs and SGOs under this option would be increased from 235 to 363 in 1996. It would cost additionally $0.65 million in 1992 and $37.86 million upon full implementation. For both options, therefore, the number of SGOs and SGTs could ultimately be 63 and 300 respectively upon full implementation under the same manning ratio of 1 : 1350.

3.2.17 We consider that the first option is better since each standard school would have its own SGT right from the start. However, it would be expensive. We therefore recommend, as a first step, that the second option be adopted. It also has the advantage of flexibility whereby the sponsoring body may deploy SGTs in response to the varying needs of schools.

* A standard 24-classroom school building operated bisessionally with 48 classes has 1800 students. With the introduction of mixed-mode operation, such a school will have 36 classes and 1350 students. The ratio of one SGT for every standard 24-classroom school will apply to these existing schools and the new design 30-classroom schools which will have 42 classes and 1575 students.

3.2.18 To allow for a smooth transition, we recommend that the rate of implementation of the second option be dependent initially on the vacant posts in the Student Guidance Section and subsequently on the natural wastage rate of serving SGOs. Although we cannot predict the precise implementation rate, based on a 15%

wastage rate we envisage that it will take around 7 years for this option to be fully implemented (illustrated at Annex 3B).

3.2.19 We recommend that a review be conducted half way towards full implementation, ie in 1994, to assess whether the second option adequately meets students' needs and to consider whether or not the improved manning ratio of 1: 1350 should be adopted.

3.2.20 In keeping with the whole school approach, we recommend that SGTs should be made directly responsible to the schools they serve and/or to the sponsoring bodies concerned. This would enhance team work between SGTs and other teachers in the schools, and remove the mutual suspicion occasionally found between SGOs and schools at present.

3.2.21 Since the school heads may not be able to provide specialist professional support and training to SGTs, we recommend that the support and training elements of the Student Guidance Section in ED be strengthened. We note that ED envisages that a total of 15 additional posts will be required (Annex 3C refers).

These posts should be created as and when necessary.

3.2.22 The professional support staff would provide support and advice to SGTs, visit them in schools to help them handle difficult cases, and offer professional supervision and support to the SGOs. They would monitor the implementation of the whole school approach following the introduction of school-based SGTs. They would also organize regular meetings for SGTs and SGOs to discuss problems of

common concern and seminars on topics of interest. The training staff would provide training to the additional SGTs and SGOs and in-service training to assist primary school teachers in adopting the whole school approach.

3.2.23 Through our examination of this subject, we have learned that the existing delineation of policy responsibility for the provision of student guidance service in schools is somewhat unsatisfactory. While Education and Manpower Branch controls resources for funding and creating posts, the Student Guidance Scheme is part of the School Social Work service for which the policy responsibility currently rests with Health and Welfare Branch. We think that the introduction of SGTs provides an opportunity to rationalise the situation.

We recommend that the Government examine the question of policy responsibility between the two branches with a view to removing any duplication or confusion. At the same time the existing links between ED and SWD should be retained so that primary school cases involving family problems can continue to be referred to SWD and voluntary agencies as necessary.

3.2.24 The additional expenditure involved in implementing our recommendations for SGOs/SGTs are shown below ($ million at current prices)

-1991-92 92-93 93-94 94-95 95-96 96-97 97-98 98-99

-1.51 0.65 3.10 9.28 13.77 27.87 37.86 37.86

(d) Guidance Teachers

3.2.25 We note that a survey carried out by ED in 1987 revealed two major shortcomings in the development of guidance services in secondary schools. These were the lack of training opportunities for guidance teachers and the lack of resource support for them. In response to the findings, the following training options have been developed

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(i) In-service Certificate/Diploma Courses on counselling and Guidance run by the Extra-mural Studies Departments of the University of Hong Kong, the Chinese University of Hong Kong and the Hong Kong Polytechnic. An average of about 114 places are provided each year;

(ii) a two-year part-time Master of Arts Programme in Education (Counselling) run by the Chinese University of Hong Kong. There are 12 places on this course each year;

(iii) a two-year part-time course leading to a Master of Education (with one elective on educational guidance) run by the University of Hong Kong. There are about 12 places on this course each year; and

(iv) a refresher course run by the Northcote College of Education for serving secondary school teachers, one elective of which is on Counselling and Guidance. About 30 teachers take this elective each year.

3.2.26 As a result of these courses, we envisage that the number of trained guidance teachers could be increased from the current 155 to about 500 in 1992. We note that the policy aim is that there should be at least one teacher trained in counselling and guidance in every secondary school in Hong Kong.

3.2.27 In relation to the post-graduate courses at the universities, we understand that although the institutions would like to offer full-time courses, this has not been possible. This is because teachers are given no financial support to undertake courses locally. They are only able therefore to attend part-time courses. The problem is that sometimes the course programmes are not compatible with the

cycle timetable used in some schools. This means that some teachers have found it difficult to attend their lectures. The question of granting study leave and teacher training in general will be addressed in our next report on the teaching profession.

3.2.28 In respect of the lack of resource support for guidance teachers, we note that in July 1988 a Guidance Teacher Resource Centre was established by ED. At this centre, an advisory service is provided for guidance teachers and a library with materials on guidance work is available for these teachers' use. The centre is well used by guidance teachers. The Special Projects Section of the CDI (Chapter 2 refers) will also produce additional materials for use by these teachers.

3.2.29 These training and resource support measures are encouraging. But we believe that more should be done to improve the training given to guidance teachers. We therefore recommend that

-(i) the guidance and counselling element in courses at the Colleges of Education be strengthened;

(ii) more training opportunities for lecturers in guidance at the Colleges of Education be provided; and (iii) resources be provided for ED to commission the local tertiary institution to offer more courses and

places in guidance and counselling.

(e) Educational psychologists (EP)

3.2.30 As mentioned in paragraph 3.2.5, there are 26 EP posts in ED and 9 EP posts in aided special schools. In August this year one third of these posts was vacant. Another 38 EPs will be required over the next decade to extend the

Schools Support Scheme^* which started in 1986 and aims to help students with behavioural problems in secondary schools. In order to meet the needs of existing services, the Schools Support Scheme and other committed services in the Rehabilitation Programme Plan, the existing vacancies need to be filled and the 61 additional EPs provided - ie a total of 86 EPs. The projected demand for EPs up to 1997-98 is shown at Annex 3D.

3.2.31 The additional staff costs for the additional EPs is estimated as follows ($ million at current prices)

-1991-92 92-93 93-94 94-95 95-96 96-97 97-98 98-99 99-00 00-01

1.62 4.40 7.17 9.94 12.72 15.49 18.27 20.39 21.09 21.09

3.2.32 We note that there is a shortage of EPs in Hong Kong and at present only an average of four EPs graduate each year from the University of Hong Kong. There also are three Government training scholarships granted to EPs for overseas courses. There is clearly a need to increase the number of training places in Hong Kong for EPs. We recommend that the Government should explore with the tertiary institutions in Hong Kong means to overcome these problems with a view to expanding local training for EPs. In this regard, we note that in response to a request by SEM, the UPGC has approved the proposal by University of Hong Kong to introduce a degree of Master of Education (School Psychology) from 1991-92 with an annual intake of 12 students.

* The Schools Support Scheme is aimed at strengthening the guidance service in secondary schools by providing professional support and assistance to guidance teachers and teachers dealing with disruptive pupils in a positive manner. It also aims at introducing preventive techniques to teachers so as to build up a healthy environment which is conducive to learning. The pilot for this scheme was operated by a team of EPs and was completed in 1988. An overall evaluation of the scheme was then carried out and the results indicate that support from EPs was welcomed by schools.

在文檔中 EDUCATION COMMISSION REPORT NO 4 (頁 37-50)