TASK FORCE ON PROFESSIONAL DEVELOPMENT OF TEACHERS

(1)

REPORT

March 2019

TASK FORCE ON

PROFESSIONAL DEVELOPMENT

OF TEACHERS

(2)

Contents

Executive Summary and List of Recommendations i

Chapter 1 Introduction Background

Terms of Reference of the Task Force on Professional Development of Teachers Review and Consultation

1

Chapter 2 Professional Ladder for Teachers

Current State of Play in Teachers’ Professional Development

Professional Ladder for Teachers in Other Regions Views of Stakeholders

The Task Force’s Deliberation and Recommendations

6

Chapter 3 All-graduate Teaching Force Current State of Play Views of Stakeholders

27

Chapter 4 Advancing Teachers’ Career Prospects, Enhancing School Management Ranking and Deployment Arrangements

Current State of Play in Teachers’ Career Progression and School Management Ranking Arrangements

Views of Stakeholders and the Task Force’s Deliberation and Recommendations

32

(3)

I. Manpower Arrangement of Senior Teachers

(a) Primary Schools (b) Secondary Schools

(c) Senior Teacher Deployment Arrangement

II. Ranking Arrangement of Principals and Vice-principals

(a) Salaries for School Heads and Deputy Heads in Primary Schools (b) Ranking of Principals in Secondary

Schools

(c) Ranking of Principals in Special Schools

III. Manpower of Vice-principals

(a) Manpower of Vice-principals in Primary and Secondary Schools (b) Manpower Arrangement for

Vice-principals in Special Schools Chapter 5 Commendation on Outstanding Teachers

Current State of Play Views of Stakeholders

69

Chapter 6 Conclusion 74

Appendix 1 Terms of Reference and Membership of the Task Force on Professional Development of Teachers

76

Appendix 2 Summary of Preliminary Recommendations in the Consultation Document of the Task Force

78

(4)

i

Executive Summary and List of Recommendations

The Government is committed to nurturing talents and enhancing the quality of education, and has invested substantially to implement various improvement and support measures. In 2017, the Chief Executive announced in her Policy Address that education experts would be invited to conduct reviews on eight key areas in education, including the professional development of teachers, so that the formulation of education policies would be led by professionals.

2. The Task Force on Professional Development of Teachers (the

‘Task Force’) was set up in November 2017 to study feasible options for establishing a professional ladder for teachers; the ranking arrangement of school management in primary, secondary and special schools; and the timetable for an all-graduate teaching force. The Task Force considers that the establishment of a Professional Ladder for Teachers is the cornerstone of teachers’ professional growth. The other two areas including the review of the ranking arrangements of school management and the timetable for an all-graduate teaching force, on the other hand, will be effective measures to support and promote the Professional Ladder. The Task Force has holistically considered these three areas in an integrated manner and formulated strategic and practicable recommendations from the perspective of overall effectiveness and benefits to the education sector.

3. The Task Force has examined the current state of play in the professional development of teachers in Hong Kong, and undertaken research and literature reviews to learn about the systems and practices in other regions. The Task Force has proactively reached out to, and interacted with the education sector to consult stakeholders’ views extensively, so as to better understand the challenges faced by schools

(5)

ii

and gauge feedback which has provided useful reference for the Task Force’s reviews and formulation of recommendations.

4. After completing an extensive consultation in September 2018, the Task Force submitted to the Government, in the first instance, its recommendations on the timetable for full implementation of the all graduate teaching force policy. These have subsequently been accepted by the Government and the policy will be fully implemented in public sector secondary and primary schools as from 2019/20 school year. The 2018 Policy Address has also announced that, in tandem with the implementation of whole-day primary schooling and the all-graduate teaching force policy, there is a need to rationalize the salaries for the school heads and deputy heads and strengthen the middle management level in primary schools. The Task Force has thus accorded priority to the deliberation of the two issues, and in November 2018 submitted to the Government an Interim Report with its recommendations on these areas, so that early consideration and follow-up could be made.

5. After thorough studies, extensive consultation and careful and iterative deliberation, the Task Force has since completed all the reviews under its Terms of Reference and formulated an entire suite of recommendations for enhancement of teachers’ professional development in Hong Kong. This is the full Report which has been prepared to set out in detail the Task Force’s consideration and all of its recommendations. Set out below is the list of Recommendations.

(6)

iii

List of Recommendations

Establishing a Professional Ladder for Teachers

(1) Establishing the Professional Ladder for Teachers in Hong Kong (Paragraphs 2.16 to 2.21)

(2) The Committee on Professional Development of Teachers and Principals (COTAP) to lead the development, promotion and implementation of the Professional Ladder for Teachers

(Paragraphs 2.22 to 2.23)

(3) Implementing the Professional Ladder for Teachers at Multiple Levels

(4) Enhancing the Arrangements of Training for Promotion (Paragraph 2.29)

All-graduate Teaching Force

(5) Full implementation of the all-graduate teaching force policy as soon as possible, with flexibility for schools

(6) Leveraging on the opportunity of the full implementation of the all-graduate teaching force policy, enhance teachers’ professional roles and duties, and foster the culture of professional development (Paragraph 3.11)

Advancing Teachers’ Career Prospects, Enhancing School Management Ranking and Deployment Arrangements

(7) Improving the manpower at the middle management level in public sector primary schools (including the primary section of special schools)

(7)

iv

(8) The calculation of promotion posts in public sector secondary schools (including secondary section of special schools) to take into account the additional teaching posts generated from the 0.1 increase in teacher-to-class ratio as from the 2017/18 school year (Paragraph 4.20)

(9) Schools to critically review senior teachers’ roles and duties and plan deployments for capacity building and professional growth (Paragraph 4.23)

(10) Improving the salaries for school heads and deputy heads in public sector primary schools (including special schools)

(11) The Education Bureau (EDB) should elucidate to the school sector at an early opportunity the standing conversion arrangement for the adjusted pay scales

(Paragraph 4.44)

(12) EDB should review the current arrangement and requirements for promotion to headship ranks in the primary sector

(Paragraph 4.45)

(13) Improving the demarcation arrangements for headship rankings in public sector secondary schools (including special schools)

(14) Improving the conversion arrangement for determining the headship ranking and provision of vice-principals in special schools with combined levels and special secondary schools

(15) Improving the manpower of vice-principals in public sector primary and secondary schools (including special schools) of larger scale

(8)

v

(16) Improving the manpower arrangements for vice-principals in special schools with combined levels

(Paragraph 4.72)

(17) Improving the arrangements for promotion to principal posts in special schools

(Paragraph 4.73)

Commendation on Outstanding Teachers

(18) Establishing commendation schemes at multiple levels to recognize teachers with outstanding performance

(9)

1

Chapter 1 Introduction

Background

1.1 Nurturing talents is the key to maintaining the competitive edge of Hong Kong and sustaining its advancement. A professional teaching force can effectively facilitate school development and provide quality education to our students. As our society is changing rapidly, the teaching profession must keep pace with the times and strive for continuous development so that we could better prepare our students for the challenges and opportunities of the 21^st century. An effective and strategic approach to supporting and promoting teachers’ continuing professional development is thus of paramount importance.

1.2 The Government is committed to nurturing talents and enhancing the quality of education, and has invested substantially to implement various improvement and support measures. In 2017, the Chief Executive announced in her Policy Address the setting up of task forces to carry out in-depth reviews on eight key areas of education, including professional development of teachers.

1.3 The Task Force on Professional Development of Teachers (the Task Force) was set up in November 2017 and is chaired by Dr Carrie Willis, with 18 members from primary, secondary and special schools, school sponsoring bodies, universities, teacher groups, as well as an expert on human resources and a representative from the Education Bureau (EDB). The Task Force is tasked to review issues relating to the professional development of teachers and make recommendations on enhancement measures. Adhering to the principles of “Led by Professionals” and “Listening to Views Directly”, the Task Force studies,

(10)

2

within its terms of reference, subjects of concern to the education sector and considers how best these could be practicably addressed.

Terms of Reference of the Task Force on Professional Development of Teachers

1.4 The terms of reference of the Task Force include studying:

(i) feasible options for establishing a professional ladder for teachers;

(ii) the ranking arrangement of school management in primary, secondary and special schools; and

(iii) the timetable for an all-graduate teaching force.

The membership and terms of reference of the Task Force are at Appendix 1.

1.5 The Task Force considers that the three specific areas of its work are inter-related with the establishment of a Professional Ladder for Teachers being the cornerstone of professional growth of teachers. The other two areas including the review of the ranking arrangements of school management and the timetable for an all-graduate teaching force, on the other hand, will be effective measures to support and promote the Professional Ladder. The Task Force holistically considers these three areas in an integrated manner and formulates strategic and practicable recommendations from the perspective of overall effectiveness and benefits to the education sector. The aims are to promote the culture of continuing professional development among the teaching profession;

enhance professional standards; accord due recognition to, and raise the professional status of teachers; as well as retain, attract and nurture

(11)

3

dedicated professionals for the continuous enhancement of the quality of education in Hong Kong.

Review and Consultation

1.6 Since its establishment, the Task Force has held 12 meetings. It has examined the current state of play in the professional development of teachers in Hong Kong, including the long-term strategies and initiatives formulated by the Committee on Professional Development of Teachers and Principals (COTAP). It has also undertaken research and literature reviews to learn about the systems and practices in other regions. The Task Force has proactively reached out to, and interacted with the education sector to better understand the challenges faced by schools.

Through the series of meetings and focus group discussions held, the Task Force has extensively gauged the views from the sector to support its study and deliberation.

1.7 A Consultation Document was issued in July 2018 to solicit the views from stakeholders on the Task Force’s 20 preliminary recommendations on enhancing the professional development of teachers (summary at Appendix 2). During the two-month consultation period, five focus group meetings and three public consultation and briefing sessions were organized to directly gauge the views of the stakeholders.

Some 400 participants, comprising representatives from school sponsoring bodies, teacher education universities, teacher groups, parent groups, primary, secondary and special school councils, as well as frontline teachers attended these sessions. In addition, over 80 written submissions were received. The stakeholders’ responsive feedback on the Consultation Document has greatly facilitated the work of the Task Force in formulating its various recommendations.

(12)

4

1.8 In respect of the Task Force’s recommendations on the all-graduate teaching force policy, there is a clear and strong consensus amongst the stakeholders who unanimously appeal in earnest for the policy to be fully implemented as soon as possible. Having carefully considered the rationale for, and practicality of implementation, the Task Force submitted to the Government in September 2018, in the first instance, its recommendations on the timetable for full implementation of the all-graduate teaching force policy. These have been subsequently accepted by the Government, and the Chief Executive has announced in her Policy Address in 2018 that the all-graduate teaching force policy will be implemented in one go in public sector primary and secondary schools as from the 2019/20 school year, but schools will be allowed flexibility to fully implement the policy within two years, taking into account their respective school-based circumstances.

1.9 The Policy Address has also announced that, in tandem with the implementation of whole-day primary schooling and the all-graduate teaching force policy in primary schools, there is a need to rationalize the salaries for the school heads and deputy heads and strengthen the middle management level in primary schools. The Task Force has thus accorded priority to the deliberation of these two aspects and submitted relevant recommendations in an Interim Report to the Government in November 2018 so that early consideration and follow-up could be made.

1.10 Thereafter, the Task Force has also formulated detailed proposals on the other areas of studies under its Terms of Reference. This Report gives a detailed account of the work undertaken by the Task Force since its establishment, and sets out all its recommendations which have been formulated after thorough study, extensive consultation and careful and iterative deliberation. Having completed its tasks under the Terms of Reference, the Task Force is pleased to submit this full Report to the

(13)

5

Government. The Task Force warmly looks forward to Government’s favourable consideration and acceptance of all its recommendations for the enhancement of the professional development of teachers in Hong Kong.

(14)

6

Chapter 2

Professional Ladder for Teachers

Current State of Play in Teachers’ Professional Development

2.1 The Government attaches great importance to teachers’

professional development, and has implemented various measures to enhance teachers’ professional competencies and sustain excellence in education. The EDB and the former Advisory Committee on Teacher Education and Qualification (ACTEQ) published the “Principals’

Continuing Professional Development Framework” (PCF) and“Teacher Competencies Framework”¹(TCF) in 2002 and 2003 respectively, to facilitate school-based professional development. To support teachers and principals in their planning of relevant continuous professional development (CPD), ACTEQ also formulated policies on teachers’ CPD, with a “soft target” under which all teachers, regardless of ranks and duties, are encouraged to undertake not less than 150 CPD hours in each three-year cycle.

2.2 In 2013, the Committee on Professional Development of Teachers and Principal (COTAP) was established. Building on the foundation laid down by ACTEQ, the objectives of COTAP’s work are to further improve initial teacher education, facilitate teachers’ CPD and promote school leadership. COTAP formulates long term strategies and direction for the professional development of teachers and principals and presents

1 Education Department. 2002. Guidelines for Principals’ Continuing Professional Development; and Advisory Committee on Teacher Education and Qualification. 2003. Towards a Learning Profession: The Teacher Competencies Framework and the Continuing Professional Development of Teachers. The two frameworks describe the professional competencies of teachers and principals in major working domains at each professional stage to provide teachers, principals and schools with references for planning continuing professional development activities. Course providers can design appropriate programmes to cater to teachers and principals’ needs and nurture their professional competencies.

(15)

7

advice in these respects to the Government. In 2015, COTAP published its first progress report² which sets out its vision, mission and strategies including an over-arching “T-excel@hk”³ project comprising eight key areas of focus. In 2018, to support and facilitate self-reflections of teachers and principals on their professional roles and CPD planning, COTAP has launched the “T-standard⁺” which portrays the respective professional roles of teachers and principals.

2.3 TCF and PCF illustrate the professional competencies, skills, knowledge and attitudes required of teachers and principals respectively at various professional stages and in respect of various professional duties.

“T-standard⁺”, on the other hand, designed on the basis of a student-centred approach, presents the vision and mission of teachers and principals at different stages of their professional growth. These frameworks and the T-standard⁺ provide, from multiple perspectives, useful guidelines for teachers’ professional growth and are well-received by the profession.

2.4 The Government has implemented ACTEQ’s recommended CPD policy as a basic requirement for the teaching profession. In addition, the pre-requisite for promotion of teachers also include requirements for professional development. To be eligible for promotion to higher ranks, in addition to the required teaching experiences or attainment of the Certificate for Principalship (CFP) within five years⁴, teachers are also required to have undertaken, within the last ten years⁵, relevant training

2 Committee on Professional Development of Teachers and Principals. 2015. Odyssey to Excellence : Progress Report

3 “T-excel@hk” : “T” represents the teaching profession, including teachers and school leaders. The over-arching project covers eight areas of focus including T-standard⁺, T-dataset^PD, T-train^ß, T-surf^24/7, T-craft³, T-share, T-applause, T-bridge. The eight areas are prioritized and implemented in phases.

4 CFP - With effect from the 2004/05 school year, aspiring principals have to attain the CFP, in addition to complying with the appointment conditions in force at the time, before they could be considered for appointment for principalship. The CFP process includes Needs Analysis, Preparation for Principalship (PFP) Course and Professional Development Portfolio.

5 Training Requirements - Promotion of Teachers in Aided Schools: To be eligible for substantive

(16)

8

course(s) as prescribed in the Codes of Aid. Diagram 1 illustrates the basic and promotion requirements of teachers’ professional development in Hong Kong.

Professional Ladder for Teachers in Other Regions

2.5 The Task Force has undertaken research and literature review on the systems and practices of teacher professional development in other regions, (including Australia, Canada, Mainland of China, Singapore and United Kingdom), as well as their approaches in implementing teachers’

professional ladder. All these regions have different education policies, social environment and culture, hence their systems of professional ladder

promotion to a higher rank in aided schools, the candidate must have undertaken relevant training course(s) as stated in the Codes of Aid, or other equivalent training course(s) acceptable to the Incorporated Management Committee / Permanent Secretary for Education. Relevant training courses include refresher training and management training courses offered by the Education Bureau or Teacher Education Universities. The minimum number of contact hours for refresher training course is 90 hours and for management training course, 40 hours.

(17)

9

for teachers show different strengths and foci. For example, in Singapore, teachers could pursue their professional development paths in different domains, such as teaching, school leadership and subject specialist; in United Kingdom, Australia and Canada, teachers’

professional development are referenced against the professional competence requirements at different stages of development; and in the Mainland of China, teachers’ promotion paths are linked to evaluation of teaching performance. A common feature in these regions is that they all have teachers’ professional standards that set out the required level of competencies in different domains of duties, to guide teachers in setting goals for professional development and self-advancement.

2.6 All these regions attach great importance to teachers’ professional conduct and values, which are set out clearly in their professional code or professional standards. For example, in Ontario Canada, care, respect, trust and integrity are prescribed as the ethical standards for the teaching profession; under the United Kingdom’s teachers standards, teachers are required to maintain high standards of ethics and behaviours within and outside schools; in the Mainland of China, teachers’ professional standards adopt a student-centred approach with teacher ethics as priority attributes (Table 1).

(18)

10

Table 1: Major Domains of Teacher Professional Standards in Other Regions

Major Domains of Professional Standards Singapore Ethical Educator, Competent Professional,

Collaborative Learner, Transformational Leader and Community Builder (Teacher Growth Model) United Kingdom Teaching, Personal and Professional Conduct Australia Professional Knowledge, Professional Practice,

Professional Engagement

Ontario, Canada Standards of Practices, Ethical Standards, Professional Learning Framework

Mainland of China Professional Concepts and Ethics, Professional Knowledge, Professional Competencies

2.7 Teacher education organizations in these regions generally plan professional development programmes and activities in alignment with their teacher professional standards, and teachers could participate in them based on individual developmental needs. Most regions conduct induction programmes for new teachers and some clearly prescribe CPD hours required of teachers. In some regions (e.g. Australia and United Kingdom), there are certification systems for teachers such as the National Teacher Certification and Chartered Teachers Status, which provide recognition to teachers’ professional competencies and status, but they are not directly linked to promotion.

2.8 Table 2 summarizes the teachers’ CPD arrangements in these regions and Table 3 outlines their promotion mechanisms. In each of these regions, their model of professional ladder for teachers is so structured with focused features to meet their specific objectives. The Task Force finds them of useful reference, especially the induction

(19)

11

programmes for new teachers and training for promotion under their CPD and promotion policies.

Table 2: Teacher CPD in Other Regions

New Teacher Experienced Teacher Principal

Singapore Induction Programme

Teacher Scholarship and Professional Development Courses are provided

Milestone Programmes in Leadership Track United

Kingdom

Mandatory Induction Programme

National Professional Qualification for Middle Leadership and National Professional Qualification for Senior Leadership

National Professional Qualification for Headship

Australia 1-2 years of Induction Programme

At least 20 hours of professional development activity to renew

registration (e.g. Victoria, Queensland)

School Leadership Programme

Ontario, Canada

Mandatory 1-year Induction

Programme and Fulfill Assessment

Teachers have to attain Additional Basic Qualification and

Additional Qualification to take up certain duties

Principal’s Qualification Programme and Leadership Practicum

Mainland of China

Teachers have to pass the Qualifying Examination before teaching

No less than 360 teacher training units in 5 years.

Training unit is the necessary requirement for teacher registration, appraisal and appointment

New or aspiring principals must participate in training no less than 300 units; serving principals must participate in no less than 360 units in 5 years

(20)

12

Table 3: Teacher Promotion Mechanism in Other Regions

Teacher Promotion Mechanism

Singapore Teachers can be promoted in three career tracks, i.e. teaching, leadership and subject specialists. Career advancement is based on performance and potential. Teachers can choose to move across different career tracks, as long as they satisfy the standards and criteria of the career track they aspire to.

United Kingdom

For promotion, teachers undertake National Professional Qualification for Middle Leadership, National Professional Qualification for Senior Leadership and National Professional Qualification for Headship. Teachers can focus on teaching subjects or pastoral care to become leading practitioners.

Victoria, Australia

Teachers can be promoted from range 1 classroom teachers to range 2 classroom teachers, learning specialists, leading teachers and principals. Teachers have to attain qualification and experiences before promotion.

Mainland of China

Teachers’ professional ranks include level 3 teachers, level 2 teachers, level 1 teachers, senior teachers and professor senior teachers. Teachers have to fulfill requirements on academic standards and experiences. Some posts require internship for 1-2 years and passing relevant evaluation.

Views of Stakeholders

2.9 Based on the feedback collected in the focus group meetings, public consultation sessions and from written submissions received, the Task Force finds that stakeholders hold positive views on the establishment of Professional Ladder for Teachers. They generally endorse the impact of implementation of the current policies on teacher CPD. The main views of stakeholders are summarized below:

 Stakeholders strongly agree with the preliminary recommendations put forward by the Task Force regarding the objectives and conceptual framework of a Professional

(21)

13

Ladder for Teachers in Hong Kong, especially on grounding it with professional values and conduct as the foundation, attaching great importance to teachers’ professional ethics.

 There is general agreement on integrating the Professional Ladder for Teachers and the T-standard⁺ in taking forward the strategies for enhancement of teacher professional development. The professional standards under T-standard⁺ portray the professional roles and visions of teachers and principals, which echo the very objectives and purposes of the proposed Professional Ladder for Teachers. Their integration could better synergize efforts for greater impact.

Continuous promotion of the T-standard⁺ is needed to facilitate better understanding and application, as well as promote self-reflection among teachers and principals.

 The majority of feedback supports the use of the Professional Ladder to facilitate teachers’ professional growth, and not as a tool for performance or promotion assessment.

 Stakeholders generally endorse that the current teachers’ CPD policies are clear under which most teachers actively participate in CPD activities. The “soft target” of no less than 150 CPD hours in each three-year cycle is considered appropriate.

 Given the large number of CPD activities available, stakeholders would like teacher training organizations to target more on teachers’ needs for professional development in various domains and stages of professional growth, offering more focused and relevant training programmes.

 Stakeholders are of the view that teachers’ training requirements for promotion should be relevant to teachers’

duties and responsibilities in the promotion posts, for example, catering for students with special educational needs,

(22)

14

teaching Chinese as second language etc., so that teachers would be equipped with the necessary knowledge and skills to cope with the work after promotion. Furthermore, stakeholders suggest that training of leadership competencies should be strengthened in the training arrangements for promotion, to nurture teachers to become competent members of the middle management and school leaders.

The Task Force’s Deliberation and Recommendations

2.10 Professional conduct and ethics are featured as the important components in teachers’ professional standards in all the regions studied by the Task Force. These reflect the core belief and consensus among the teaching profession. In Hong Kong, the TCF has stipulated the six core values⁶ which teachers should uphold, and the Code for the Education Profession of Hong Kong⁷ clearly describes the professional conduct required of teachers. The Task Force finds that, overall, the policies and related initiatives on teacher professional development implemented by the Government thus far, including the T-standard⁺ promulgated last year, have laid down a good foundation for the establishment of a Professional Ladder for Teachers in Hong Kong.

2.11 The Task Force is of the view that the establishment of the Professional Ladder for Teachers will further enhance the positive impact from past efforts, help explore new directions and dimensions for teachers’ professional growth, strengthen society’s recognition of the

6 The six core values are: belief that all students can learn; love and care for students; respect for diversity; commitment and dedication to the profession; collaboration, sharing and team spirit;

passion for continuous learning and excellence.

7 The “Code for the Education Profession of Hong Kong” was promulgated in October 1990 to provide guidelines for normative behavior and foster a sense of professionalism. The Council on Professional Conduct in Education has conducted public consultation on the Code in 2018, and a revised version is expected to be completed in mid-2019.

(23)

15

education profession and enhance teachers’ professional status. Having carefully considered stakeholders’ feedback, the Task Force concludes that the proposed conceptual framework of a Professional Ladder for Teachers presented in the Consultation Document is feasible, and should be implemented and actively promoted. In order that the objectives and purposes of the Professional Ladder may be realized, promoting professional growth and raising professional status, its implementation should be full-fledged to include efforts at all levels, involving the teachers, schools and systems.

2.12 Regarding application of the Professional Ladder, teachers could set goals with reference to it and the professional roles in the T-standard⁺ that are relevant to their respective stages of professional growth. They could then reflect on their own journey and map out their professional growth and development plans. Schools could make use of it to review the professional development needs of their teaching force, formulate school-based strategies to facilitate teachers’ professional growth at different stages. For example, schools could support new recruits to better understand what they are required in teaching, professional conduct and behaviors etc., and help nurture their professional competencies.

Schools could also encourage teachers with potentials to chart their career advancement based on their individual strengths and interests. Schools could evaluate the developmental needs of their middle management, in terms of their professional competencies and perspectives (e.g. awareness and appreciation of social and policy developments, global education trends etc.), and draw up appropriate school-based training and development strategies to enhance the effectiveness of school leadership.

For pre-service teachers undergoing teaching education, the Professional Ladder will be of useful reference to help them understand the basic competencies required of teachers and be better prepared for joining the profession. Using the Professional Ladder as the foundation, the EDB,

(24)

16

teacher education universities and professional organizations could provide the profession with more systematic and focused professional learning opportunities through progressive stage-based programmes and activities, targeting at teachers’ developmental needs at different stages and in different work positions.

2.13 Having reviewed the teacher professional development policies and related initiatives implemented so far, the Task Force considers that the culture of teacher professional development has taken root in Hong Kong. Teachers and principals generally engage actively in professional development activities and sharing of experience and expertise. Under the school-based management policy, schools organize professional development activities having regard to the needs of the schools and teachers, providing opportunities for collaboration and exchanges among teachers and establishing professional learning communities. The Task Force is of the view that in order to bring teacher professional development to a new height, it will be necessary to further promote self-initiated planning of professional learning and growth among teachers. With the growing complexity in teachers’ responsibilities, teachers must possess multiple professional competencies to meet the requirements in different work positions. School management will also need to have good leadership abilities to flexibly steer their team’s collaborations to cater for students’ diverse needs in learning and growth.

2.14 The Task Force considers that the establishment and promotion of the Professional Ladder for Teachers should be supported by other strategies at the same time, including the full implementation of the policy for an all-graduate teaching force, advancing the career prospects of teachers, enhancing the ranking and deployment arrangements at the school management level, and commendation schemes for outstanding teachers. Full implementation of the all-graduate teaching force policy

(25)

17

will raise the overall qualifications of teachers and offer the opportunities for teachers to take up a wider spectrum of professional duties, and through practical application and accumulation of experience, consolidate their professional competencies and develop their professional roles.

Enhancing the ranking and deployment arrangements for the school management will encourage the teaching profession to continuously pursue professional development, duly recognize the contributions of teachers and school leaders, help raise their professional status and will be conducive to schools’ long-term development. Commendation on outstanding teachers will foster in society a deeper understanding of the essence of professionalism and contributions made by teachers, and hence better recognition, which will in turn enhance teachers’ professional image and status. The Task Force’s recommendations on these aspects are detailed in Chapters Three to Five.

2.15 Having due regard to all the consideration set out above, the Task Force has formulated the following four recommendations on the establishment of the Professional Ladder for Teachers in Hong Kong:

Recommendation 1: Establishing the Professional Ladder for Teachers in Hong Kong

2.16 The Task Force proposes that a Professional Ladder for Teachers should be established in Hong Kong with the following two objectives:

i. enhancing teachers’ professional growth; and ii. raising teachers’ professional status.

Faced with the rapid changes in society, development in education and the changing needs in student learning and growth, teachers have to adopt a student-centred approach and adequately equip themselves with up to date subject knowledge, teaching skills, values and attitudes for

(26)

18

continuous improvement and self-advancement. The Professional Ladder for Teachers supports teachers in planning their professional development with reference to their individual learning targets and career development needs. In addition, the Professional Ladder reflects the fundamental belief and core values of the teaching profession, which are aligned with society’s expectations. This in turn will enhance recognition and respect of the profession in society, and raise its status.

2.17 The Task Force’s proposed Professional Ladder for Teachers comprises three components including:

i. three core elements in teachers’ professional growth;

ii. two essential dimensions in teachers’ professional development; and

iii. the three respective professional roles for teachers and principals under the T-standards⁺ as the goals.

2.18 The three core elements in teachers’ professional growth are:

 professional competencies,

 professional values and conduct, and

 aspiration for self-advancement through self-reflection.

These three core elements form the foundation of the Professional Ladder for Teachers. Teachers’ professional growth will hinge on the continuous advancement of professional competencies, upholding professional values and conduct in professional work and aspiration for self-advancement through self-reflection throughout the teaching career.

(27)

19

2.19 The two essential dimensions in teachers’ professional development are:

 professional growth and

 career development.

Under the professional growth dimension, teachers should take initiatives to renew their professional knowledge and skills at various career development stages and when taking up different positions. Under the career development dimension, teachers being promoted to various posts should thoroughly understand their new duties and requirements, and possess leadership competences to steer the developments of their teaching teams and the schools. Through relevant professional development activities, teachers will be able to achieve self-advancement, professional growth and their aspired career development.

2.20 The ultimate goal of teachers’ professional development should meet students’ needs, and benefit students’ learning and growth. The core principles of the “T-standard⁺”, which adopts a student-centred approach, are thus in alignment with the objectives of the Professional Ladder for Teachers. The three professional roles of teachers

“T-standard⁺” are:

 Caring Cultivators;

 Inspirational Co-constructors; and

 Committed Role Models.

The three professional roles of principals are:

 Ethical Enablers;

 Versatile Architects; and

 Visionary Edupreneurs.

2.21 Diagram 2 illustrates the conceptual framework of the proposed Professional Ladder for Teachers

(28)

20

(29)

21

Recommendation 2: COTAP to lead the development, promotion and implementation of the Professional Ladder for Teachers

2.22 To ensure actualization of the vision and objectives of the Professional Ladder for Teachers, the Task Force recommends that the development, promotion and implementation of the Professional Ladder be steered by COTAP, a standing committee with relevant professional experience. COTAP is responsible for planning the overall direction and long-term strategies for the professional development of teachers and principals. It has also obtained non-recurrent funding from the Government as from 2018/19 school year for implementing the T-excel@hk projects in the next 10 years. For COTAP to lead the implementation and continuous enhancement of the Professional Ladder, it could bring about more effective coordination of various teacher professional development initiatives and achieve better synergy and greater impact. The Task Force recommends that the EDB review and strengthen the membership of COTAP to cope with the additional complex tasks arising from the implementation of the Professional Ladder for Teachers.

2.23 The Task Force recommends that the EDB, COTAP and schools should deploy different channels such as teachers’ professional development activities and the public media, to continuously promote to stakeholders the objectives and content of the Professional Ladder, including the Professional Standards for Teachers and Principals under the T-standard⁺, and support teachers in planning and achieving their professional development goals. The Task Force also recommends that the TCF and PCF be reviewed and updated to keep abreast of the latest education development. The Task Force suggests that the EDB and teacher training organizations should make reference to the conceptual framework and content of the Professional Ladder, where appropriate, in

(30)

22

their design and provision of various modes of professional development programmes.

Recommendation 3: Implementing the Professional Ladder for Teachers at Multiple Levels

(I) At the Teacher Level — Promoting professional practices and reflective learning

2.24 The Task Force considers it important that teachers should understand the concept and objectives of Professional Ladder, as well as the three professional roles of teachers and principals under the T-standard⁺, which should be applied in their professional practice.

They could make good use of the qualitative and quantitative data available in schools to undertake self-reflection, to better understand personal strengths and areas for improvement, and decide on action plans for improvement. Teachers could also use the self-reflection tools under the T-standard⁺to review the progress of their professional development in each 1-2 school year cycle, so as to plan for the directions of their future learning and career development. The Task Force recommends that consideration could be given to use professional development portfolios to record progress of professional learning, bridge learning and practice, conclude on learning outcomes and support self-reflection.

The Task Force understands that a One-stop Portal is being developed under the T-surf^24/7 project of COTAP’s T-excel@hk umbrella scheme.

The Task Force suggests that consideration could be given to duly expand this platform to include the use of professional development portfolios by teachers and schools in support of reflective learning.

(31)

23

(II) At the School level — Enhancing School-based Measures

(1) Enhancing School-based Professional Development

2.25 The Task Force recommends that schools enhance school-based professional development policies by making reference to the Professional Ladder, for example, schools may consider:

 including the core elements of the Professional Ladder in the schools’ CPD programmes to encourage reflection and sharing;

 reviewing teachers’ participation in CPD in each 3-year cycle, monitoring and evaluating the effectiveness of the professional development activities organized;

 based on the schools’ major developments and their needs for nurturing talents, enhancing professional and leadership capacity by providing relevant training to teachers in different positions;

 in addition to school-based activities, strengthening inter-school collaboration and professional exchanges and jointly promoting the Professional Ladder.

(2) Assigning Designated Teachers to Co-ordinate School-based Professional Development

2.26 The Task Force recommends that schools should assign designated teachers to lead and coordinate school-based professional development. Taking into account schools’ development objectives and priorities, appropriate training activities at the whole school, group and individual levels could be planned to strengthen the quality of the

(32)

24

teaching force. The designated teachers could collect relevant data to review the development of the teaching teams with reference to the Professional Ladder, and together with the school leaders, formulate strategies for nurturing talents. The Task Force recommends that the EDB should enhance school supports for school-based professional development, by providing training programmes and activities to broaden teachers’ horizon and sharpen acumen in curriculum development, school development and teacher development.

(3) Enhancing Mentoring Support for New Teachers

2.27 The Task Force recommends that schools organize systematic induction programmes of one-to two-year duration for new teachers, the new blood to the teaching profession. Through learning from, and with experienced teachers, new teachers will be able to better recognize their professional identity and better appreciate teachers’ professional values.

The induction programmes could cover the daily school work, with experienced teachers providing guidance to new teachers; solving problems together on the core issues of professional values and conduct;

and supporting new teachers to face, and rise up to challenges with a student-centred approach as their core professional values. Induction programmes will be meaningful to both new and experienced teachers.

While new teachers will be supported in their transition into authentic teaching professional roles, experienced teachers will also benefit from the opportunities that shape them into school leaders for school-based professional development. The Task Force recommends that the EDB should proactively arrange relevant training courses for experienced teachers serving as mentors, so as to enhance the effectiveness of the induction programmes.

(33)

25

(III) At the System level — Enhancing support and training

2.28 With the full implementation of the all-graduate teaching force policy, all teachers, including those in the basic rank, could have opportunities to take up more diverse professional duties and share responsibilities in school development. School leaders, including those at the middle management levels, will need to lead teams of teachers flexibly and professionally to cater to the needs of student learning and growth. The Task Force recommends that the EDB, teacher education universities and professional organizations provide multi-faceted programmes, such as programmes on middle leadership, induction, professional learning communities and school-based support etc., to strengthen the leadership roles of the middle management, equipping them with the necessary knowledge, skills and competencies.

Recommendation 4: Enhancing the Arrangements of Training for Promotion

2.29 The Task Force recommends that the arrangements of training for promotion should be enhanced in three areas, including the training content, validity period of training undertaken, and provision of guidelines as set out below--

i) The Task Force recommends that the current content of training for promotion be reviewed. Consideration should be given to organize the training into core modules and elective modules. The core modules could focus on the necessary competencies required of school leaders, and teachers could select from elective modules focusing on the professional knowledge that cater to the specific needs in different positions. The content of the training programmes could be duly adjusted having regard to the level and

(34)

26

domains of various work positions, and the specific contexts in the primary and secondary schools.

ii) The validity period of training undertaken by teachers should also be reviewed. For example, consideration could be given to shorten such validity period to, say, five years, as in the case under the CFP. This would help ensure that teachers receive up-to-date training that is aligned with the latest social development and education trends and meets the needs in the promotion posts.

iii) The EDB should provide specific guidelines for teachers and schools to ensure that teachers receive training relevant to the promotion posts and are adequately equipped with the necessary professional competencies required of them.

The Task Force recommends that COTAP could be requested to follow-up on the detailed formulation and implementation of the enhancement of training for promotion.

(35)

27

Chapter 3

All-graduate Teaching Force

Current State of Play

3.1 Currently, there are two teaching grades in public sector primary and secondary schools: the graduate teacher grade and non-graduate teacher grade. It is Government’s long-term target to fully implement the all-graduate teaching force policy to attract talents to join the teaching profession. The ratio of graduate teacher posts in public sector primary schools was increased from 50% to 55% in the 2015/16 school year, to 60% in 2016/17, and then to 65% in 2017/18. In the public sector secondary schools, the ratio of graduate teacher posts has been increased to 85% as from the 2009/10 school year.

3.2 The timetable for an all-graduate teaching force is a matter of concern to the education sector. One of the Task Force’s Terms of Reference is to consider and recommend to the Government an appropriate and practicable timetable for the full implementation of the all-graduate teaching force policy.

Views of Stakeholders

3.3 There is a strong consensus and earnest appeal among the stakeholders in the sector for the all-graduate teaching force policy to be fully implemented as soon as possible. However, there are also concerns about whether the professional development of teachers and the readiness in schools could adequately support the pace of implementation. In secondary schools, the views are that they are ready for immediate full implementation of the all-graduate teaching force

(36)

28

policy, given that most teachers have acquired degree qualifications. In primary schools, there are views that schools may need to rearrange duties of teachers upon the full implementation of the policy, as it is common practice that Assistant Primary School Masters/Mistresses (APSMs) and Certificated Masters/Mistresses (CMs) are assigned different duties in school. Some consider that implementation of the policy by phases in two to three years would allow sufficient time for schools to make necessary arrangements. However, there are also views that primary and secondary schools should adopt the same pace of implementation, but flexibility could be allowed for school-based circumstances.

3.4 Some stakeholders have also expressed concern about the current arrangements in primary schools where APSMs are assigned the roles of subject panel heads or leaders for various administrative duties due to limited manpower of senior teachers. There are views that the manpower at the middle management level in primary schools should be increased to take charge of these leadership roles and duties when the all-graduate teaching force policy is implemented.

The Task Force’s Deliberation and Recommendations

3.5 The Task Force has taken note that it is the Government’s target to have an all-graduate teaching force in Hong Kong. The Task Force acknowledges that full implementation of the all-graduate teaching force policy will help raise teachers’ professional status, retain and attract talents, and further enhance the quality of education. The Task Force agrees that, with the series of education reform initiatives implemented in primary and secondary schools in the past and society’s high expectations on the teaching profession, teaching posts in the primary and secondary schools should be taken up by teachers with degree qualifications. This

(37)

29

will enhance the professional capacity of the teaching force, and they could better cope with the rapid changes in society and education development, as well as the changing needs in student learning and development. The Task Force agrees that the all-graduate teaching force policy should be fully implemented as soon as possible. The Task Force understands that schools might need time to prepare for implementation, but to different extent depending on circumstances in individual schools.

The Task Force considers that it will be more appropriate to allow schools some flexibility in the implementation having regard to their individual school-based circumstances.

3.6 The Task Force is of the view that schools should make use of the opportunity of full implementation of the all-graduate teaching force policy to review graduate teachers’ duties and responsibilities. Their professional duties should be enriched and they should be given exposure to a wider spectrum of professional duties, such as curriculum development, student assessment, guidance and discipline, student support, integrated education, etc. Graduate teachers should be encouraged to take on more proactive roles in pursuing professional growth and school development. Schools can build up the professional capacity of their teaching force by suitable arrangements of graduate teachers’ duties taking into account their experience and expertise.

3.7 The Task Force considers that the manpower at the middle management level in primary schools should be improved in tandem with the full implementation of the all-graduate teaching force policy, so that schools could plan their human resources holistically to support the effective coordination and execution of various education initiatives in schools (The Task Force’s consideration and recommendations in this respect are detailed in Chapter 4). The Task Force wishes to emphasize that while schools would benefit from a stronger middle management level, schools should provide basic rank teachers who possess experience

(38)

30

and expertise with opportunities for exposure to different aspects of school duties. This would be a good human resource management practice that helps develop teachers’ potential and facilitates their professional growth.

3.8 As regards the timetable and arrangements for the full implementation of an all-graduate teaching force policy, the Task Force’s recommendations are set out below:

Recommendation 5: Full implementation of the all-graduate teaching force policy as soon as possible, with flexibility for schools

3.9 The Task Force recommends that the all-graduate teaching force policy be fully implemented as soon as possible to raise teachers’

professional status, retain and attract talents, and further enhance the quality of education. The policy should be implemented in one go in primary and secondary schools (including special schools). Schools should be allowed flexibility to formulate their implementation plans to achieve full implementation by phases, taking into account school-based circumstances.

3.10 In view of that there is a strong consensus and earnest appeal among the stakeholders for the all-graduate teaching force to be fully implemented as soon as possible, the Task Force has, in the first instance, submitted to the Government its recommendations on the timetable and arrangements and these have since been accepted. In her 2018 Policy Address, the Chief Executive has announced that the Government would implement in one go the all-graduate teaching force policy in public sector primary and secondary schools in the 2019/20 school year and would allow schools to take into account their school-based circumstances to achieve full implementation within two years, if necessary.

(39)

31

Recommendation 6: Leveraging on the opportunity of the full implementation of the all-graduate teaching force policy, enhance teachers’ professional roles and duties, and foster the culture of professional development

3.11 Seizing the opportunity of the full implementation of the all-graduate teaching force policy, the Task Force recommends that schools should review the duties of teachers, enrich their professional responsibilities and arrange for suitable deployments, taking into account teachers’ experience and expertise, so as to give graduate teachers exposure to more diversified professional duties and responsibilities in school, to support their professional growth and encourage them to take on more proactive roles in school development. Enhancement of teachers’ professional roles and responsibilities could strengthen the professional capacity of the teaching force and foster the culture of professional development.

(40)

32

Chapter 4

Advancing Teachers’ Career Prospects, Enhancing School Management Ranking and Deployment Arrangements

Current State of Play in Teachers’ Career Progression and School Management Ranking Arrangements

4.1 Currently, it is common practice in schools to accord recognition to teachers of outstanding performance through promotion. The ranking structures for teaching staff in public sector schools can be grouped into the following categories as shown in Tables 4 and 5:

 Teachers at basic rank

 Teachers at promotion rank

 Vice-principals

 Principals

Table 4: Teaching ranks in public sector primary schools

Category of posts

Rank

[Master pay scale (MPS)]

Graduate grade Non-graduate grade Teachers at basic

rank

Assistant Primary School Master / Mistress (APSM)

[MPS 15-29]

Certificated Master / Mistress (CM) [MPS 14-24]

Teachers at promotion rank

Primary School Master / Mistress (PSM)

[MPS 30-33]

Assistant Master / Mistress (AM)

[MPS 25-29]

Deputy Heads Senior Primary School Master / Mistress (SPSM)

[MPS 34-35]

School Heads [Rank of school head posts determined mainly on the basis of the number of

approved classes]

Senior Primary School Master / Mistress (SPSM)

[MPS 34-35]

or

Headmaster / Headmistress II (HMII)

[MPS 35-39]

or

Headmaster / Headmistress I (HMI) [MPS 38-41]

(41)

33

Table 5: Teaching ranks in public sector secondary schools

Category of posts Rank

[Master pay scale (MPS)]

Graduate grade⁸ Non-graduate grade Teachers at basic

rank

Graduate Master / Mistress (GM)

[MPS 15-33]

Certificated Master / Mistress (CM)

[MPS 14-24]

Teachers at promotion rank

Senior Graduate Master / Mistress (SGM)

[MPS 34-39]

Assistant Master / Mistress (AM)

[MPS 25-29]

Senior Assistant Master / Mistress (SAM)

[MPS 30-33]

Principal Assistant Master / Mistress (PAM)

[MPS 34-36]

Vice-principals Principal Graduate Master / Mistress (PGM)

[MPS 38-41]

Principals

[Rank of principal posts determined mainly on the basis of the number of approved classes]

Principal Graduate Master / Mistress (PGM)

[MPS 38-41]

or

Principal II (Pr II) [MPS 40-44]

or

Principal I (Pr I) [MPS 45-49]

(i) Staffing provision at basic rank and promotion rank

4.2 The teaching staff establishment (posts at basic and promotion ranks) in public sector primary and secondary schools is determined by:

8 In government secondary schools, the corresponding ranks to GM, SGM and PGM are Assistant Education Officer, Education Officer and Senior Education Officer.