Teacher-to-class Ratios and Related Matters
This chapter provides further information on the provision of school places, class size, class structures, teacher-to-class ratios and matters related to the ways in which schools will be resourced to support the new senior secondary learning programmes.
(A) Provision of School Places
Original Proposal
11.1 The number and positioning of secondary schools must be constantly reviewed to take into account the latest population projections and resource implications.
At this point in time, the projections indicate that there is no need to build new schools specifically for the implementation of the new “3+3+4” system.
Nonetheless, “floating classes” would continue to exist, in particular, in the double cohort year, i.e. the year with the last cohort of S7 students and the first cohort of SS3 students.
Support
11.2 In view of the declining population in the medium term, it is generally accepted that there is no need to build new schools for implementing the new “3+3+4”
system. However, some schools have asked for improvement programmes to provide additional classrooms.
Concerns
11.3 Since asymmetrical and symmetrical schools will continue to co-exist when the new system is implemented, there is concern whether processes are available to facilitate the placement of students to other schools if necessary at the end of S3 and for continuation to SS1.
The Way Forward
11.4 The Government’s aim is for most students to complete their secondary education in their own schools as far as practicable. However, to meet the abilities and interests of the wider student cohort, and the demographic changes across the territory, different class structures will exist in schools. This may include senior secondary schools offering a diversified curriculum which will continue to operate.
11.5 The need to provide additional classrooms for some schools will be examined on a case-by-case basis. Our long-term goal is to eliminate “floating classes”
in schools.
11.6 As some students in asymmetrical schools may need to change schools when promoting to SS1, the existing placement procedure will be revised under the NSS.
11.7 The existing JSEA System will be reviewed based on the following principles:
Not all schools need to participate in the new mechanism, since it is anticipated that the number of schools with an asymmetrical structure will be small.
The class structure and the curriculum programme of each school will determine their need to participate.
Some schools, including senior secondary schools, are likely to offer student places which match the changing interests and aptitudes of students as they progress from basic education to senior secondary education.
For students requiring placement to SS1, most of them are to be accommodated through “discretionary places”. As such, sufficient information on courses/programmes offered by schools needs to be made available for parents and students to help them make the best choices according to the needs of students and subject to availability of school
places.
There will have to be a safety net of central allocation so that all students who wish to do so can proceed to senior secondary education.
11.8 The JSEA System would be reviewed by 2006/07.
(B) Class Size
Original Proposal
11.9 The RASIH Working Group assumed a standard class size of 40 students for planning class structures and consequent staffing arrangements.
Support
11.10 The school sector, taking into account various factors, generally accepted the need to maintain the class size of 40 for senior secondary levels up to the double cohort year.
Concerns
11.11 While accepting the need to maintain the class size of 40, due to practical reasons, some schools hold the view that the benefits of the senior secondary curriculum, with its emphasis on more flexible elective choices, school-based approaches to assessment and student-oriented learning pedagogy, could not be fully realised in large classes. A class size of less than 40 is preferred.
11.12 The school sector proposes small group teaching for subjects in the new curriculum, in particular Liberal Studies which will involve more discussion and project work.
The Way Forward
11.13 The NSS system will be planned on the basis of 40 students per class. This policy setting underpins the resource arrangements necessary to implement the
new academic structure.
11.14 Supporting measures outlined below have focussed on improvements to the teacher to student ratio, leaving schools to make the necessary decisions to plan student learning in the most effective manner, including flexible grouping.
(C) Class Structures
Original Proposal
11.15 The principles of minimum disturbance to existing class structures, consideration of supply and demand of secondary school places on an overall territory-wide basis, a progressive approach to implementation and case-by-case examination of the school’s unique context will support class restructuring.
Support
11.16 The principle of minimum disturbance to the existing class structures is agreed.
Concerns
11.17 Class restructuring for some schools may lead to reduction in the number of classes and hence the staff entitlement, resulting in surplus teachers.
11.18 There are concerns about the balance of symmetrical and asymmetrical structures and thus the impact on student enrolments in individual schools.
11.19 The number and distribution of senior secondary schools in the future is a compounding factor in evolving class structures.
11.20 Some senior secondary schools have asked for allocation of S1 students, while some schools seek to turn into senior secondary schools.
The Way Forward
11.21 The principles outlined in para.11.15 will guide the class restructuring process.
EMB has already started and will continue to discuss with individual schools appropriate class structure for them taking into account the demand of school places, their current class structure, the physical constraints, and the need to ensure a broad curriculum is offered to students.
11.22 In order to realise the objective of a broad curriculum that provides reasonable choice of subjects to cater for individual interests and aptitude, a school must operate on a viable scale, with a threshold number of students and supporting resources. Schools need to have sufficient senior classes and a range of teacher expertise across the KLAs so that students will have a reasonable choice in their programmes. The most desirable class structures would be in the range of 24 to 30.
11.23 The restructuring of classes may result in the transformation of some secondary schools into senior secondary schools and some senior secondary schools into ordinary secondary schools or secondary school cum post-secondary colleges.
11.24 The current arrangements for approval of S1 and S4 classes and adjustment of the number of classes at other levels will proceed according to established policy so that resources can be redeployed more effectively for the implementation of “3+3+4”.
11.25 As outlined in the original proposal, to ensure continuity of curriculum for students sitting for the HKDSE examination, the number of SS3 classes will be the same as that of SS2 in the preceding year.
(D) Teacher-to-class Ratios and Related Matters
Original Proposal
11.26 Two proposals to subsume the top-up provisions in existing staff establishment into a revised teacher-to-class ratio were discussed in detail with the school sector. These are:
Proposal A - Subsuming all the following top-up provisions into the revised teacher-to-class ratios:
(a) additional teachers for split-class teaching;
(b) school librarian;
(c) additional Chinese language teacher(s);
(d) additional teachers for remedial teaching, counselling and extra-curricular activities; and
(e) additional non-graduate teachers under Education Commission Report No.5
Proposal B - Subsuming in the revised teacher-to-class ratios all the above top-up provisions except additional teachers provided for split-class teaching.
It was also proposed that schools be allowed a 5-year transitional period to absorb, through natural turnover any surplus teachers which might arise due to implementation of the new teacher-to-class ratio.
Support
11.27 Of the two proposals, there is more support from schools for Proposal A, as it provides higher stability, enhances flexibility and reduces administrative processes for schools.
11.28 During the consultation, different proposals emerged to meet the particular needs which arise from the senior curriculum and assessment framework.
These included a Senior Secondary Curriculum Support Grant, a Diversity Learning Grant for widening and diversifying student choices, and one-off resources to help professional preparation for the implementation of the new curriculum. There is widespread support for these ideas.
11.29 The 5-year transitional period for absorption of surplus teachers in individual schools concerned is in general supported as well as flexibility on the year of
commencement of the transitional period.
Concerns
11.30 There has been great concern about the proposed change in teacher-to-class ratios and the 4/5 rounding as it might lead to staff redundancy in some schools.
There is some concern about the ranking and promotion issues and the existing graduate to non-graduate ratio arising from the proposed teacher-to-class ratios.
11.31 There have been concerns raised about whether the total teaching staff available to the schools is sufficient to meet the objectives set out for the senior secondary reform.
11.32 Specific concerns have been raised about the implementation details for the proposed Senior Secondary Curriculum Support Grant and Diversity Learning Grant, the relationship of those resources to teaching staff establishment and arrangements for laboratory technicians and workshop teachers.
The Way Forward
11.33 Supporting measures are critical to the success of the reform. In providing the supporting measures, consideration will be given to the efficiency and effectiveness of measures, taking into account the overall resource commitment which can be afforded. Taking into account feedback from schools and available resources, the initial proposals have been revised.
11.34 Of the two proposals of teacher-to-class ratios, we suggest to adopt Proposal A.
This proposal supports schools in adopting more flexible planning processes and subject grouping arrangements which will be necessary to implement the new senior secondary curriculum and to better match the interests and needs of their students.
11.35 The revised teacher-to-class ratios in terms of teaching staff establishment for the NSS will be:
Up to the double cohort year
(a) 1.7 teachers per junior secondary class
(b) 1.9 teachers per senior secondary class in the new system and S5 of the current system
(c) 2.3 teachers per S6 and S7 class of the current system After the double cohort year
(a) 1.7 teachers per junior secondary class (b) 2.0 teachers per senior secondary class
11.36 In each of the above cases, the top-up provision for School-based Remedial Support Programme (SBRSP), Medium of Instruction (MOI), New Schools, School-based Curriculum Tailoring Scheme (SBCTS), Native-speaking English Teachers (NET) Scheme and Integrated Education (IE) will continue to be provided. In the meantime, we will continue to work on the proposal of providing cash grants for the improvement measures for academic low achievers and students with SEN based on a per pupil per annum basis. A combined rate for SBRSP and SBCTS and a separate rate for IE will be worked out for eligible schools at a later stage. Additional resources will be made available under Diversity Learning Grant to strengthen the support for students with SEN at senior secondary levels.
11.37 As for the calculation of staff entitlement, schools may keep the decimal entitlement in the form of a fractional Graduate Master (GM) post but the fractional post will not count towards the calculation of other posts (i.e.
promotion posts and graduate and non-graduate ratio). Alternatively, schools may opt for a cash grant and be allowed to encash the post in question under the conditions for the Grant as set out in para.11.39.
11.38 The overall provision of graduate to non-graduate ratio for teachers calculated under the new teacher-to-class ratios will be worked out by taking the average of ratio of graduate to non-graduate posts provided under (a) the existing
teacher-to-class ratio; (b) the top-up provisions under Proposal A in para. 11.26;
and (c) the graduate posts under the policy of expansion of graduate posts pursuant to the Policy Address 1993.
11.39 To provide further funding flexibility to schools to meet their needs in offering a diversified curriculum, schools will continue to be allowed to freeze up to 10% of the teaching establishment and draw a cash grant instead as under the existing practice of Substitute Teacher Grant. The feasibility of revising the grant is being explored. The grant may be used for employing teachers and supplementary staff, hiring services relating to student learning, subsidizing students' alternative studies, staff training and professional development.
11.40 With an overall increase in senior secondary students, the implementation of
“3+3+4” will require more teachers as compared with the current structure.
We need to employ about 1,200 additional teachers in the double cohort year, compared to the previous year. Careful manpower planning is needed to match current and future staffing needs with the class structure and curriculum plan of each school. The overall increase in demand for teachers arising from the implementation of “3+3+4” is separate from the impact on some schools of a change in class structure.
11.41 The roles and duties of laboratory technicians and workshop teachers under the new curriculum and assessment framework will have to be reviewed. There is a need for further discussion to identify the duties which should be undertaken by laboratory technicians and workshop teachers under the NSS system, to recognise the qualifications required for appointment, the qualifications possessed by existing laboratory technicians, workshop teachers and other support staff, and any training or professional development required.
11.42 In the case of workshop teachers, any considerations will take into account what might be defined as “workshop” in the future.
11.43 Key guiding principles will be to ensure that teaching staff are adequately supported by ancillary staff so that teachers are able to concentrate on core
teaching activities. In addition, consideration is given to feasible roles to be taken up by staff members in the future that require them to broaden their expertise to support student learning.
Additional Support for Schools
Senior Secondary Curriculum Support Grant
11.44 A cash provision equivalent to 0.1 teacher per senior secondary class calculated on the basis of mid-point salary of GM teachers will be allocated on a recurrent basis. In schools where surplus teachers may exist in the transitional years, the grant will be provided in the form of posts to be offset by surplus teachers until natural turnover brings the school’s establishment within the normal provision. These offsetting posts will not be counted towards teaching staff establishment (including promotion posts and graduate to non-graduate ratio).
11.45 Schools may use the grant flexibly for recruiting teachers or teaching assistants and buying services and/or learning and teaching materials to facilitate the implementation of the NSS curriculum, including Liberal Studies. The Senior Secondary Curriculum Support Grant will be flexibly administered and can be used in conjunction with Capacity Enhancement Grant and the Operating and Expenditure Block Grant.
Diversity Learning Grant
11.46 An annual provision will be available to encourage schools to offer a diversified curriculum. It will be provided to schools in the form of a cash grant. Since different schools might provide different courses/programmes to cater for the diverse needs of their students, an application process will apply. Schools will need to provide a 3-year plan (reviewed annually). In general, the following courses/programmes will be supported:
(a) COS
(b) Other languages such as French, German, Hindi, Japanese, Spanish and Urdu
(c) Collaboration with other schools to offer networked class in NSS subjects with low enrolment, but are important to individual student programmes, e.g. Visual Arts, Design and Applied Technology, Literature in English (d) Support for students with special educational needs studying in ordinary
schools
(e) Programmes for gifted students
Para. 5.44 of Chapter 5 outlines some of the principles which will support trial of the Diversity Learning Grant leading into the implementation of “3+3+4”.
11.47 The revised teacher-to-class ratio, the Senior Secondary Curriculum Support Grant and Diversity Learning Grant will raise the total investment per student in senior secondary education. This investment can only be achieved by the effective use of resources, particularly ensuring viable class structures for all secondary schools.
Teacher Professional Preparation Grant
11.48 EMB understands that significant professional preparation will be undertaken as we move forward to the first year of implementation and therefore has committed additional resources to support teachers and school leaders.
11.49 A one-off cash grant for schools equivalent to an additional GM per annum on average will be provided over 4 years, i.e. from 2005/06 to 2008/09 school years, to help schools create space for teachers and prepare for the implementation of “3+3+4” reform. The grant can be used flexibly by schools to: (a) assign an NSS coordinator to help coordinate the whole school planning, including professional development plan, towards “3+3+4”; (b) create space for professional development of teachers (e.g. employing supply teachers or additional teachers to share the teaching load or create planning time for teachers within the school or provide relief for teachers attending training); and (c) procure services that can increase the professional capacity of teachers. A separate one-off grant would also be provided for schools to procure necessary
Transitional arrangements
11.50 The 5-year transitional period to facilitate the absorption of surplus teachers in individual schools through natural turnover can start within two years before or after the implementation of NSS, i.e. beginning between September 2007 and September 2011 and continues for five years. If a school still has surplus teachers after the transitional period, EMB will give consideration on a case-by-case basis. Moreover, the Senior Secondary Curriculum Support Grant could be offset by surplus teachers while natural turnover takes its course.
11.51 All schools will be encouraged and supported to develop a Human Resource Plan which can guide school in decision-making and seeking support in implementing the NSS curriculum.
11.52 When there is a need to review and amend if necessary the Education Ordinance, Rules and Regulations, and Codes of Aid to facilitate the implementation of “3+3+4”, there would be appropriate consultation with the school sector.
11.53 In setting out the supporting measures to facilitate the implementation of the new “3+3+4” system, it should be understood that the context may change over the next few years in response to new needs to allocate resources in ways which can best allow schools to support student learning. Therefore, as now, the arrangements may be subject to review from time to time.
(E) Aided Special Schools
The Way Forward
Class size and class structure
11.54 The planned class size of various categories of special schools will be based on current policy settings. The class structures of special schools will follow the proposed academic structure of special schools as outlined in Chapter 6.
11.55 Students who are capable of and suitable for studying in ordinary schools will continue to have this learning opportunity. Special schools offering ordinary school curriculum will participate in SSPA and a revised JSEA System as deemed appropriate. Classes will be offered in special schools for students who are suited to the programmes of these special schools. As such, some special schools will adopt an asymmetrical class structure. The class structure of special schools not offering curriculum for ordinary schools, as far as possible, should ensure that the students have the chance to complete 6 years of secondary education in the same school.
Resource Arrangement
11.56 Resource allocation will focus on the needs of students with SEN and adopt the guiding principles consistent with resource allocation for all schools where appropriate, and with due regard to the overall provision available for education.
11.57 The principles for resource allocation would include arrangements to globalise staffing formula, the rounding practice of school staff provision, revised arrangements of the Substitute Teacher Grant; 5-year transitional period for absorption of surplus teachers, and more funding flexibility through the use of cash grants.
11.58 The appropriate level of resources will be determined after the NSS curriculum for students with SEN, the learning outcomes and assessment standards have been worked out and agreed with stakeholders.
11.59 The proposals set out here and in Chapter 6 will form the basis for detailed discussion with the sector in the second half of 2005, with a view to finalising the way forward for aided special schools by the end of 2005.