EDUCATION COMMISSION REPORT NO 4
(RETYPED DOCUMENT)
November 1990 Hong Kong
EDUCATION COMMISSION REPORT NO 4
THE CURRICULUM AND BEHAVIOURAL PROBLEMS IN SCHOOLS
November 1990 Hong Kong
MEMBERSHIP OF THE EDUCATION COMMISSION
Upon the expiry of its third term of office, the Commission was re-appointed for the period 1 January to 31 December 1989, and again for the period 1 January to 31 December 1990. Its membership since 1 January 1989 has been as follows -
Chairman - The Hon Rita Fan Hsu Lai-tai, OBE, JP (from 1 January 1990) Dr Sir Quo-wei Lee, CBE, JP (1 January - 31 December 1989)
Vice - Secretary for Education and Manpower (The Hon K Y Yeung, JP: from 1 July 1989;
Mr R G B Bridge, CBE, JP: 1 January - 30 June 1989)
Ex officio - Chairman, Board of Education (Mr Timothy Ha Wing-ho, MBE, JP: from 1 January 1990;
The Hon Rita Fan Hsu Lai-tai, OBE, JP: 1 July - 31 December 1989) Chairman, University and Polytechnic Grants Committee
(Mr Andrew Li Kwok-nang, QC, JP) Chairman, Vocational Training Council
(The Hon Stephen Cheong Kam-chuen, CBE, JP) Secretary for the Treasury
(Mr N W H Macleod, JP: from 1 March 1989; Mr J F Yaxley, CBE, JP: 1 January -28 February 1989)
Director of Education (Mr Y T Li, JP)
Members - The Hon Maria Tam Wai-chu, CBE, JP (1 January - 1 December 1989)
The Hon Selina Chow Liang Suk-yee, OBE, (from 1 January 1990)
The Hon Ho Sai-chu, OBE, JP
The Hon Szeto Wah (from 1 January 1990) The Hon David Cheung Chi-kong, JP Dr Kathleen Esther Barker, MBE, JP Mrs Angela Cheung Wong Wan-yiu Dr Paul J T Morris
Mr Tsim Tak-lung
Secretary - Principal Assistant Secretary for Education and Manpower (Ms Anne Shepherd : from 1 January 1990;
Mr A R Wells : 1 January - 31 December 1989)
TERMS OF REFERENCE OF THE EDUCATION COMMISSION
The terms of reference of the Commission are as follows -
(a) to define overall educational objectives, formulate education policy, and recommend priorities for implementation having regard to resources available;
(b) to co-ordinate and monitor the planning and development of education at all levels; and (c) to initiate educational research.
2. In carrying out these tasks, the Commission is to co-ordinate but not seek to direct the work of the Board of Education, the University and Polytechnic Grants Committee and the Vocational Training Council.
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TABLE OF CONTENTS
Page Chapter 1 Introduction
1.1 Introduction 1
1.2 The Government's educational strategy for the 1990's 1
1.3 Background to our investigations 3
1.4 Future tasks 6
1.5 Acknowledgments 6
Chapter 2 Curriculum Development
2.1 Introduction 7
2.2 The existing curriculum 8
a) Structure 8
b) Initiatives 9
2.3 Problem Areas 12
a) Introduction 12
b) Nature and suitability of the curriculum 13
c) The means of curriculum development 14
2.4 Proposals 16
2.5 Financial implications 20
2.6 Summary of recommendations 21
Chapter 3 Special educational provision: support services in schools
3.1 Introduction 24
3.2 Measures to help students with learning, emotional or behavioural problems 26
a) Current situation 26
b) Whole school approach 28
c) Student Guidance Officers 30
d) Guidance Teachers 35
e) Educational Psychologists 37
3.3 Summary of recommendations 39
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Chapter 4 Special educational provision: education enhancement measures
4.1 Introduction 41
4.2 Measures to help students who have learning difficulties 41
a) Remedial teaching 41
b) Schools with large intakes of students with learning difficulties 43 4.3 Measures to provide for students who are academically gifted 47
a) Definition 47
b) Prevalence 48
c) Proposal 49
4.4 Measures to help students who are unmotivated 53
or who have severe learning problems
4.5 Measures to help students who wish to transfer to pre-vocational schools 57
4.6 Summary of recommendations 59
Chapter 5 Attainment targets and related assessment in schools
5.1 Introduction 62
5.2 Background 62
5.3 Purposes of assessment 63
a) Formative purpose 64
b) Summative purpose 64
c) Evaluative purpose 64
d) Predictive purpose 65
e) Comparative and selective purpose 65
5.4 Current assessment practices in Hong Kong 68
a) Internal assessment in schools 68
b) The Hong Kong Attainment Tests 68
c) The secondary School Places Allocation 69
d) Hong Kong Certificate of Education Examination 70
5.5 Hong Kong's needs 71
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5.6 A framework of targets, levels and assessments at key stages 72
a) Key stages 73
b) Subject domains and levels of attainment 73
c) Attainment targets 75
d) Target-related assessment based on criterion-referencing principles 76
5.7 Implications of introducing a framework of 77
attainment targets and related assessments
a) Implications for research and development 77
b) Implications for teacher education 79
c) Effects on existing Hong Kong assessment 80
practices and implications for the future
d) Timing implications 82
e) Teaching and learning strategies 82
f) Financial implications 83
5.8 Summary of recommendations 84
Chapter 6 Language in education
6.1 Introduction 87
6.2 Reforms under ECR 1 and ECR 2 87
6.3 Review of current policy by Education Department 92
a) Report of the Working Group 92
b) Main issues 92
c) Recommendations of the Working Group 95
d) Public consultation 98
6.4 The framework for future reforms 98
a) Statement of guiding principles 98
b) Resolution of specific issues 99
c) The proposed framework 106
6.5 Implementation 108
a) Introduction 108
b) The assessments 108
c) Interaction between the proposed framework 113
and the Secondary School Places Allocation
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d) Bridging courses and language enhancement 114
e) Additional positive discrimination measures 118
f) Teacher education 118
g) Research 119
h) Administrative measures 119
i) Financial implication 119
6.6 Summary of recommendation 120
Chapter 7 Implementation of mixed-mode schooling in primary schools
7.1 Introduction 123
7.2 Background 123
7.3 Planning 126
7.4 Implementation: measures within schools 127
a) Staffing 127
b) Teacher re-deployment 131
c) Phasing in programme 131
7.5 Implementation: territory-wide measures 132
a) Teacher training 132
b) Provision of furniture and enhancement grants 132
c) Building of new schools 132
d) Phasing in of mixed-mode schooling by 133
Primary one Admission district
7.6 Timing 134
7.7 Financial implications 134
7.8 Summary of recommendations 135
Chapter 8 Triad related activities and corporal punishment in schools
8.1 Introduction 138
8.2 Triad related activities in schools 138
8.3 Corporal punishment 140
8.4 Summary of recommendations 142
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Chapter 9 Approach to this report and funding of recommended measures 143 Annexes
Annex 1A Behavioural problems in schools 145
Annex 1B List of panel discussions and programme of school visits 161
Annex 1C List of submissions from the public 164
Annex 2A Curriculum Development - the Curriculum 167
Development Council and the Advisory Inspectorate
Annex 2B Organization chart of the Curriculum Development Institute 169
Annex 2C Curriculum Development Institute 170
Annex 2D Proposed incentive grant to be introduced 172
in 1992-93 to further promote the adoption of the activity approach in primary schools
Annex 3A Nature of cases handled by SGOs in 1988/89 173
Annex 3B Implementation of the proposal for two or 174
more schools under the same sponsoring body to
share one SGT (assuming a 15% wastage rate of serving SGOs)
Annex 3C Additional support and training posts 175
required for the Student Guidance Section
Annex 3D Manpower projection of Educational Psychologists 176
Annex 4A School-based remedial support programme 177
Annex 4B Alternative models for provision of 180
school-based remedial support programme
Annex 6A Extract from Education Commission Report No. 2 181
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Annex 6B List of submissions from the public on 184
the Report of the Working Group set up to Review Language Improvement Measures
Annex 6C ILE Languages in Education Research and 187
Development Unit Projects
Annex 6D Research and development projects to be 189
managed and conducted by the ILE and supported by the Hong Kong Band Language Development Fund
Annex 7A Demand and supply of primary school 190
places (in terms of classrooms)
Annex 7B Extract from the Code of Aid for Primary 191
Schools - Duties of senior teachers in primary schools
Annex 7C Comparison of class structure 193
Annex 7D Model for phasing in mixed-mode 194
schooling in a 24-classroom school
Annex 7E Tentative plan for implementation of mixed mode operation 195
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List of abbreviations
A level Advanced level
AAT Academic Aptitude Test AM Assistant Masters/Mistresses AS level Advanced Supplementary level BoE Board of Education
CDC Curriculum Development Council CDI Curriculum Development Institute CM Certificated Masters/Mistresses D of E Director of Education
ECR 1 Education Commission Report No. 1 ECR 2 Education Commission Report No. 2 ECR 3 Education Commission Report No. 3 ED Education Department
EP Educational Psychologist
ERE Educational Research Establishment HKATs Hong Kong Attainment Tests
HKCEE Hong Kong Certificate of Education Examination HKEA Hong Kong Examinations Authority
HKSS Hong Kong Sea School
HT Head Teacher
ILE Institute of Language in Education IRS Intensive Remedial Services
JSEA Junior Secondary Education Assessment POA Primary One Admission
RRC Revised Resource Classes RTC Resource Teaching Centres
SEM Secretary for Education and Manpower SGO Student Guidance Officer
SGT Student Guidance Teacher
SSEE Secondary School Entrance Examination SSPA Secondary School Places Allocation SSW School Social Worker
ST Senior Teacher
SWD Social Welfare Department
TRA Target-related assessment based on criterion-referencing principles UPGC University and Polytechnic Grants Committee
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CHAPTER 1 : INTRODUCTION 1.1 INTRODUCTION
1.1.1 In this our fourth report, the Education commission is concerned mainly with examining, in the context of nine years of free and compulsory education, the curriculum and behavioural problems in schools. We think it would be helpful to begin by outlining the Government's strategy for the development of education in the 1990s.
1.2 THE GOVERNMENT'S EDUCATIONAL STRATEGY FOR THE 1990S
1.2.1 The development of education in Hong Kong over the past two decades has been characterised by a substantial and rapid increase in opportunities for subsidised basic education. The provision of places will shortly reach a level which is able to meet demand, except for the tertiary education sector. Accordingly, the Government in 1989 reviewed its strategy for the development of public sector education in the 1990s and, with the endorsement of Executive Council, this was announced by the Governor in his Address to the Legislative Council in October that year.
1.2.2 Insofar as tertiary education is concerned, the plans endorsed by Executive Council in 1988 envisage a growth in first-year, first-degree places from about 7% of the appropriate age group at that time to about 15% by the turn of the century. However, the circumstances of the 1990s require a further increase in the provision of such places at an earlier date. These factors include the continuing shift from manufacturing into knowledge-intensive service industries and, within manufacturing itself, the shift out of manual assembly into higher value-added production. These shifts increase the demand for better educated manpower, but meeting that demand is made more difficult in the 1990s by emigration. In 1989, therefore, the Government decided as a
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matter of priority not only to bring forward its 1988 targets but also to raise them substantially. The Government now aims to provide, by 1994-95, sufficient places for not less than 18% of the appropriate age group. Put another way, whereas the current provision of places is sufficient to accommodate only one out of three matriculants, by 1994-95 four out of five matriculants will be able to take up first degree courses at our tertiary education institutions.
1.2.3 Insofar as education in schools is concerned, the Government has already achieved free and compulsory education at primary (1971) and junior secondary (1979) levels. By the mid 1990s, there will be sufficient places at senior secondary level and in the technical institutes to accommodate 95% of all Secondary 3 leavers. In short, the Government will soon reach its targets in respect of the provision of places. This expansion of the public sector of secondary education during the late 1970s and 1980s was made possible initially by buying places from private schools some of which were less than satisfactory. This has inevitably affected the quality of the basic education provided in schools, whilst the transformation of a relatively selective school system to one that provides education for all has led to a decline in average standards. Efforts have been made to improve the quality of basic education, to raise the standard of the better bought place schools, to replace bought places in sub-standard private schools with purpose-built and well-equipped aided schools, to revise and update the common core curriculum to bring it into line with community needs*, and to improve the training of teachers.
But much more needs to be done, particularly in the fields of curriculum development, support services and teacher education.
* By introducing subjects such as computer studies and design and technology.
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1.2.4 The Government's strategy, therefore, is to expand the provision of first degree places at the tertiary education level without sacrificing quality, on the one hand, and to seek to improve the quality of the education we provide in our schools, on the other. We consider this strategy to be sound.
1.3 BACKGROUND TO OUR INVESTIGATIONS
1.3.1 Given that the Government is determined to expand the provision of first degree places in the tertiary education sector, it is essential that we seek to improve the quality of the education that we provide in our school system. In previous reports we have recommended some improvements to the Secondary 4 to 7 curricula. In this report we will concentrate on the quality of education covered by the compulsory system at Primary 1 to Secondary 3.
1.3.2 In July 1986, before the publication of our second report, we agreed to undertake a study of the problems arising from the introduction in 1979 of nine years of free and compulsory education. The study was to focus on two aspects of the school system, both of which had given rise to continuing public concern. They are, first, the appropriateness of the common core curriculum for students of differing abilities and, secondly, behavioural problems in our schools. Other tasks prevented us from pursuing this work immediately. We were concerned with the publication of and public consultation on our third report. Meanwhile we sought public comment on the subject areas to be covered by this report. It was not until late 1989 that we were able to begin our study in earnest.
1.3.3. One consequence of the introduction of free and compulsory education was the need to develop a common core curriculum. This was foreseen as early as 1974 and reflected in the White Paper on the Development of Secondary Education published that year. The common core curriculum was
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introduced in the late 1970s. It has played an important part both in defining the scope of public sector education and in maintaining a degree of homogeneity in the school system. Nevertheless, it is becoming increasingly clear that the common core curriculum has become somewhat fragmented and, while catering reasonably well for the majority of students, does not meet the needs of those at the extremes of the range of abilities. There is also a need to review the way in which the curriculum is developed and delivered (Chapters 2 and 4).
1.3.4 The expansion of the school system, from a relatively selective system to one that caters for about a million children, has also had the effect of transferring the behavioural problems of young people from other environments into schools. While we believe that behavioural problems in schools are well within the capability of trained teachers to cope with, we are nevertheless concerned over the rising incidence of these problems* and their tendency to be concentrated in some schools. Behavioural problems take many forms, ranging from minor breaches of discipline to serious criminal offences. Although they are not an unusual phenomenon, what is relatively new in our experience is the manifestation of these problems in schools and the effect they have on learning. We will therefore consider school-based measures to tackle these problems more effectively (Chapter 3).
1.3.5 In developing proposals and measures for improving the curriculum and for tackling behavioural problems, we were conscious of the complementary nature of both types of measures. We firmly believe that measures which improve the environment for learning will help to reduce the level of
* For a more detailed description of the problems, see Annex 1A.
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unruly and delinquent behaviour, while the availability of an adequate level of counselling and guidance will help students to benefit more fully from their education.
1.3.6 In addition to these major issues, we have taken the opportunity to deal with certain other related problems, some of which are the subject of great controversy. These include -
(a) the problems associated with assessing the performance of students and how this might be done more effectively (Chapter 5);
(b) the problems associated with the delivery of curriculum through a mixing of languages, and how these could be resolved (Chapter 6).
We have also -
(c) planned for the introduction of unisessional schooling at Primary 5 and 6 (Chapter 7); and (d) made a recommendation in regard to corporal punishment (Chapter 8).
1.3.7 Our discussions and our recommendations have been based on the following principles. First, we believe firmly that the existing policy of providing nine years of free and compulsory education should be maintained. Secondly, because this school system embraces the entire relevant age group, it should provide the education best able to meet the varying abilities and interests of the children within it. Thirdly, standards should be raised over time, by promoting improvements in learning and teaching, as well as in the monitoring and assessment of outcomes.
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1.4 FUTURE TASKS
1.4.1 Having advised on improvements to the quality of education in schools in this report, mainly in relation to the curriculum, our next task will be to study the problems affecting the teaching profession. Many of these are closely linked to the concerns of this report but in our view require treatment in a separate report. This will address issues such as the future supply of teachers, their education and training, and the way in which these services are delivered. Following ECR 5 we will take stock and decide where our next priorities lie.
1.5 ACKNOWLEDGEMENTS
1.5.1 During the course of our study, we conducted a visit to Singapore (in February 1989), and Japan and South Korea (in November 1989). We visited schools in Hong Kong and held panel discussion with principals., teachers and guest speakers (a list of schools visited and panel speakers is at Annex 1B). We also received over 50 submissions from the public on our areas of study (a list of these is at Annex 1C). We would like to express our gratitude to all concerned for their contributions.
1.5.2 The work of the Commission has involved many hours of discussion at meetings which have had to be accurately recorded. In addition to the preparation of a large number of working papers, the writing up of this report has been a major task in itself. We would like to record our gratitude to our Secretariat for their skilful and patient efforts on our behalf.
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CHAPTER 2 : CURRICULUM DEVELOPMENT 2.1 INTRODUCTION
2.1.1 In this chapter we review briefly the structure of the common core curriculum and the initiatives that have been introduced to improve its quality. We then identify the problems associated with the curriculum itself and the means by which it is developed. Central to our findings and recommendations is the need to create a full-time body of professionals dedicated to curriculum development.
2.1.2 The focus of this chapter was foreshadowed in our third report where we supported the medium term proposals, made by Education Department (ED) and endorsed by the Board of Education (BoE), for improving the system for developing school curricula. The most important of these was to establish a Curriculum Development Council (CDC), served by the Advisory Inspectorate of ED, with coordinating committees for each level of education and for textbook matters (Section D in Chapter 5 of ECR 3 refers). We agreed that the new arrangement should be reviewed in 1992. As for the long term proposals that an independent body might be established for curriculum development or that the Hong Kong Examinations Authority (HKEA) might assume responsibility for this work, we agreed with the BoE that consideration of these proposals should be postponed.
We undertook to publish a monograph on curriculum development in the two or three years following ECR 3.
We found, however, that as we progressed in our investigation of curricular problems, we could not properly consider the curriculum without also considering the curriculum development process. Accordingly, we have brought forward the review of curriculum development and included it in this report.
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2.2 THE EXISTING CURRICULUM (a) Structure
2.2.1 Established policy for the public sector of education provides that the curriculum should be broadly common to all students. It should engage the interest, as far as possible, of children of different ability.
The common core curriculum has thus been designed for students of all abilities at primary and junior secondary level. The idea is that all students study the same subjects and certain core areas in each subject. The common core curriculum is not a strait-jacket but rather a broad and balanced framework within which subject syllabi are continually developed. Schools are not compelled to use the common core curriculum. They are and will remain free to interpret and vary the syllabi, and to use teaching methods best suited to the needs of their students.
2.2.2 The common core curriculum for mainstream primary and junior secondary education is shown below -
Primary curriculum* Junior secondary curriculum
Chinese Chinese
English English
Mathematics Mathematics
Primary science Science
Health education Social studies/Geography/History/EPA
Social studies Chinese history
Music Music
Physical education Physical education
* For primary schools adopting the Activity Approach, the three General Subjects Primary Science, Health Education and Social Studies are generally taught through an integrated approach. Recently, the CDC has concluded that the integration of these subjects should be encouraged in schools which have not adopted the Activity Approach.
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Primary curriculum Junior secondary curriculum
Art and craft Art and design
Home economics/Design and technology Ethical/religious education
2.2.3 Pre-vocational schools follow a curriculum which at Secondary 1 to 3 draws about 40% of its content from practical and technical subjects, such as those listed below -
Commercial Practical/Technical
Office practice Engineering science
Book-keeping Metalwork
Typewriting Technical drawing
Commercial knowledge Electrical studies
Retail merchandising Automobile repairs
Textiles Printing
Accommodation and catering services Fashion and clothing
Construction Material fabrication
The remaining 60% of the curriculum is similar to that of other junior secondary classes.
(b) Initiatives
2.2.4 Against the structure that we have described we are aware that the ED, on the advice of the CDC, have initiated a number of measures designed to improve the quality of the common core curriculum. These are briefly described below.
(i) Activity Approach
2.2.5 The integration of subject content into themes is a common practice in primary schools using the Activity
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Approach. This is a less formal approach to learning which aims to promote active and self-initiated learning through purposeful activities conducive to the all-round development of the child. In line with the 1981 White Paper on Primary Education and Pre-primary Services, various grants have been given to schools to encourage them to adopt the Activity Approach. These grants enable schools to buy the furniture and equipment necessary to establish a setting more conducive to this approach and to produce the necessary teaching and learning aids. In addition, every year a grant is given for the purchase of art materials, reading materials and so forth to facilitate more creative learning activities in class.
2.2.6 In 1987, in collaboration with the Chinese University of Hong Kong, the Educational Research Establishment (ERE) of the ED conducted an evaluation of the Activity Approach at Primary 1 to Primary 3 levels. They found that students' interest and participation in learning increased, and that students' academic achievements were comparable to those of students in schools not using the Activity Approach. They also found that, in the lower ability group, the Activity Approach helped students to learn better.
2.2.7 Notwithstanding the usefulness and the benefits on the Activity Approach, its impact on primary education has been limited, since only 36% of classes at junior primary level use this approach. In the remaining classes, subjects are still taught separately.
(ii) Subject Integration
2.2.8 There have been a number of attempts to promote the integration of subjects in schools. Some examples at secondary level include the introduction of Integrated Science in 1973 and Social Studies in 1975.
2.2.9 Integrated Science, since its introduction in 1973 has proved to be very popular in schools particularly at
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Secondary 1 and Secondary 2 levels. This is demonstrated by the fact that about 98% of secondary schools offer Integrated Science at these levels. At Secondary 3 level, however, about 40% of schools revert to teaching Biology, Chemistry and Physics as separate subjects. Principals and teachers apparently believe that students wishing to study Science at senior secondary level and beyond do better to switch to separate Science subjects at Secondary 3.
2.2.10 In contrast, Social Studies, which was introduced two years later in 1975, has not been so well received. Only around 20% of secondary schools offer the subject. We understand that there are two reasons for this. First, many schools believe that the Hong Kong Certificate of Education Examination (HKCEE) results of their students who switch to separate subjects at Secondary 4 will be adversely affected if Social Studies, rather than the separate component subjects, is taught at junior secondary level. Secondly, teachers find Social Studies difficult to teach since it is a multi-disciplinary subject in nature while their education, especially at the tertiary level, has been confined to one or two disciplines. Thus, principals have difficulty in finding suitable teachers willing to teach this subject.
2.2.11 Despite the problems which have been encountered in promoting subject integration, we believe that there are several advantages to be gained through such integration. These are -
(a) through integration, related areas of learning now taught separately under different subject disciplines may be grouped together. The reduction in the number of subjects taught provides schools with more flexibility and curriculum "space" to design their school programmes and to accommodate cross-curricula subjects, such as environmental or civic education, should they so wish;
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(b) teaching may be readily related to students' experience through integrated studies. Students should therefore find these studies more interesting and relevant than a compartmentalised subject-based curriculum; and
(c) integrated studies draw knowledge from different subjects into a cohesive whole and can more readily apply it to practical examples. Since, as required in real life, students learn to solve problems using experience from different areas, they can learn more effectively.
(iii) The School-based Curriculum Project Scheme
2.2.12 This scheme was introduced in 1988 and aims to encourage schools, by means of grants, to adapt the centrally designed curriculum to suit the specific needs of their students. In the school year 1988-89 around
$659,000 was spent on developing 35 programmes in kindergartens, primary and secondary schools. In 1989- 90 another $847,000 has been committed to 54 programmes. However, due to the pressure of public examinations in Hong Kong few teachers apply the scheme to academic subjects. The majority are inclined to produce teaching materials rather than to develop curricula to meet the needs of students. Since it is only a small scale improvement scheme, its impact on curriculum development has been marginal.
2.3 PROBLEM AREAS (a) Introduction
2.3.1 Our review of the structure of the common core curriculum and the various improvements that have been made has led us to conclude that it has served Hong Kong reasonably well. It provides for curriculum continuity
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between different levels of education and ensures consistency of practice in schools. It thus minimises adjustment problems associated with students transferring from one school to another, and from one level of education to another. Nevertheless we have identified a range of problems which need to be addressed. These problems can be broadly grouped into two categories. There are, first, those which arise primarily from the nature and suitability of the curriculum and, secondly, those which relate to the means by which curriculum is developed and supported.
(b) Nature and suitability of the curriculum
2.3.2 The common core curriculum does not adequately meet the needs of some students, particularly those at either end of the ability range. Neither does it help students who are unmotivated or who are more inclined towards practical subjects. We consider that students with different aptitudes should be educated in different ways, and would therefore like to see alternative curricula being made available for these students. This subject is dealt with in Chapter 4.
2.3.3 Turning, now, to the problems affecting students who can benefit from the common core curriculum, the range of discrete subjects offered is too wide and this results in fragmentation and compartmentalisation of the curriculum. This may be attributable, at least in part, to pressure for introducing new content into existing subjects or for introducing new subjects. This pressure is to some extent inevitable, but clearly there is a need to balance this pressure against what the students can reasonably cope with. The answer, we believe, lies in pursuing further the integration of subjects at both primary level and junior secondary level where this is feasible.
2.3.4 We also consider that there is inadequate curriculum material and guidance to support the various initiatives that the ED has launched in the past. With an
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enhanced level of support the impact of these and other initiatives could be much greater.
(c) The means of curriculum development (i) Introduction
2.3.5 A description of the way in which the Advisory Inspectorate of the ED develops curriculum with the support and advice of the CDC is set out in Annex 2A. We see three major problems. First, there is no clear delineation of responsibility for curriculum policy matters between the central Government, on the one hand, and the ED and its advisers, on the other. Consequently, the responsibility for addressing curriculum problems is not discharged by any single body. Secondly, the CDC does not have a status commensurate with its important role in education and is, moreover, not as representative as it should be in spite of its size. Thirdly, at the implementational level there is no full-time professional body which concentrates on curriculum development and innovation. We discuss each of these points below.
(ii) Delineation of responsibilities
2.3.6 We are concerned that at present there is no clear delineation of responsibility in curriculum matters. We envisage that, in future, there will be two clearly defined levels of responsibility. The Secretary for Education and Manpower (SEM) will be responsible for putting major policy issues to the Commission and, together with our advice, to Executive Council. This central and strategic level would be responsible for -
(a) laying down and keeping under review the basic aims for education at different levels;
(b) formulating policies and programmes, and recommending priorities;
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(c) seeing how the education/vocational training systems function, and coordinating them where necessary;
(d) securing resources; and
(e) ensuring that value for money is achieved.
2.3.7 The implementational level, represented mainly by the Director of Education (D of E) and the Director of Technical Education and Industrial Training, would take on directions that may issue from the central level and be responsible for implementing these in their particular areas. Also at the implementational level, the Secretary of the University and Polytechnic Grants Committee (UPGC) will process requests from Government, made through SEM, for the UPGC's advice.
2.3.8 We understand that, in a separate study carried out within the Government Secretariat, the need for a clear delineation of responsibility between SEM and D of E in respect of all educational matters was confirmed. We welcome this.
(iii) Curriculum Development Council
2.3.9 Earlier we mentioned our concern that the CDC does not have a status commensurate with the important advisory role it plays in education. Given the leading position of the curriculum in influencing education, and thus the importance of its development in relation to the public examinations system, we consider that the CDC should be upgraded and its membership reviewed. Given too the need to maintain a balance between curriculum development and the public examination system, we also consider that the relationship between the CDC and the HKEA should be further strengthened.
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(iv) Full time professional body
2.3.10 As described in Annex 2A, the Advisory Inspectorate of the ED develops curriculum and assesses teachers through school inspections. While we accept the need for this link, the way in which it is currently maintained has certain inherent drawbacks. Given that the two tasks are housed in the same Division of the ED, there is no clearly defined core of professionals dedicated to curriculum development work on a full time basis.
When inspectors are required to give priority to their inspection and administrative duties, curriculum development programmes invariably suffer. More importantly, we consider that there is a conflict between the work of assessing the performance of teachers, on the one hand, and the work of designing curriculum and advising teachers on its implementation, on the other. We believe firmly that these two functions should be separated, and that the function of developing curriculum should be vested in a separate body operating full time.
2.3.11 We considered carefully whether this body should be independent or be part of the Government.
Some Members argued that curriculum development was a process requiring a great deal of creativity and flexibility and that as such it should not be subject to constraints imposed by Government procedures. Other Members, however, held the view that an independent body would not have the important link with schools which the ED currently maintains. On balance, we consider that a Curriculum Development Institute (CDI) should be set up as a new division of the ED. The advantage of this arrangement is that while the CDI will be granted a high degree of autonomy and accorded sufficient flexibility to carry out its work, current links with schools will be maintained by virtue of the CDI being a part of the ED.
2.4 PROPOSALS
2.4.1 We believe that our primary objective must be to create, as soon as practicable, a more effective means to
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develop and support curriculum. To this end we recommend the creation, in 1992-93, of a CDI as a Division of the ED. We envisage that the CDI will have the following features.
2.4.2 First, it will be accorded sufficient flexibility, in terms of financial and staffing resources, to review, initiate and support curriculum development. Accordingly, we recommend that it should be given a one-line vote in the ED Head of Expenditure. We also recommend that it should be able to employ, through open recruitment on contract terms, professionals from amongst both civil servants and experienced people from outside the civil service. We envisage that, ultimately, 60% of the posts will be filled through open recruitment*. Under this arrangement the CDI would be able to benefit from a regular infusion of new blood and new ideas to sustain the creativity and innovativeness required for good curriculum development.
2.4.3 Secondly, we recommend that the CDI should have the following main functions - (a) serving the CDC as its Secretariat;
(b) curriculum planning, including research, experimentation, innovation and evaluation;
* The CDI, to be headed by an Assistant Director of Education recruited openly, will have some 160 staff of which around 110 will be professionals and 45 clerical and general grade staff. It is envisaged that initially about two-thirds of the posts to be filled by open recruitment will be taken up by existing members of the Advisory Inspectorate. It is estimated that in three or four years time, when many of the civil servants concerned will have retired, all of these posts will be filled by contract officers recruited openly. The proportion of open posts will be reviewed on a regular basis. The staff required for developing the framework of attainment targets and target-related assessments is not included since the development of such a framework is still subject to policy approval.
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(c) providing and updating curriculum guides and subject syllabi;
(d) developing resource materials and managing resource centres;
(e) liaising with the HKEA, the ED Advisory Inspectorate and teacher training institutions on the development and evaluation of the curriculum; and
(f) reviewing textbooks and providing resource library services.
We visualise that in performing these functions the CDI will cooperate with the many professional educational bodies that are actively engaged in curriculum development.
2.4.4 Thirdly, the CDI will have a structure and organisation as set out in Annex 2B. The tasks of the seven sections in the CDI are outlined in Annex 2C.
2.4.5 We believe that the CDI will provide a more effective means of examining curricular problems and issues. With respect to those we have identified in Sections 2.2 and 2.3 above, we recommend that the CDI should take up the following tasks -
(a) to promote the adoption and use of the Activity Approach more extensively, together with the application of adequate incentives* ;
(b) to facilitate the further integration of subjects at primary and junior secondary levels;
* We envisage that, in addition to whatever the CDI might devise, incentives in the form of reading materials, class grants, material and equipment grants, study project grants, etc. will be required. Details are at Annex 2D.
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(c) to examine the feasibility of introducing a modular curriculum* at the junior secondary level; and (d) to consider, following completion of (b) and (c), the balance of the common core curriculum in
terms of the range of subjects to be covered in our system of free and compulsory education.
2.4.6 Subject to other curricular recommendations made elsewhere in this report being accepted, we also recommend that the CDI should deal with the following tasks, namely -
(a) to develop the curricula and provide materials to suit the needs of students at both ends of the ability range (Chapter 4);
(b) to further the development of the framework of attainment targets and target-related assessments recommended in Chapter 5;
(c) to examine the feasibility of introducing a Mastery Learning** programme;
(d) to develop the curriculum material necessary to support secondary schools in the process of adapting to the medium of instruction they have
* A modular curriculum contains a number of units of study called modules which are self-contained and have short-term objectives. This approach has several advantages including that of flexibility: core modules may be supplemented by complementary modules for the less able and extension modules for high achievers.
Moreover, topics such as information technology or tourism which do not fit into traditional disciplines may be taught through modules as part of certain subject groups.
** For a description of Mastery Learning, see paragraphs 5.7.18 to 5.7.20 in Chapter 5.
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chosen, particularly in respect of those which choose the Chinese language (Chapter 6).
2.4.7 In paragraph 2.3.9 we suggested that the CDC should be upgraded, its membership reviewed and its relationship with the HKEA be further strengthened. We recommend in this regard that the following action be taken -
(a) reconstituting the CDC to become a free-standing committee appointed by the Governor to advise the Government through the D of E on curriculum development;
(b) revising the membership of the CDC to include not only those representing the educational field as at present, but also those representing employers and parents; and
(c) ensuring that the size of the membership of the new CDC is manageable.
2.5 FINANCIAL IMPLICATIONS
2.5.1 The additional expenditure involved in setting up the CDI is estimated as follows ($ million at current prices) -
1992-93 Recurrent
Staff costs 24.99
Production consumables 0.60
Library resources 0.20
Administration costs 3.00
28.79 Non-recurrent
Audio visual equipment, 2.82
computer and office equipment
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It is not possible to estimate the running costs of the CDI in subsequent years because at this stage the scope and scale of curriculum development work to be carried out has not yet been established.
2.5.2 The recurrent expenditure involved in the proposal to provide further incentives, from 1992-93 onwards, to encourage more schools to adopt the activity approach is estimated as follows ($ million at current prices) -
1992-93 93-94 94-95 95-96 96-97 97-98
Committed
funds 4.30 4.58 4.87 5.16 5.45 5.74
Proposed additional funds
5.72 6.34 6.97 7.59 8.21 8.84
Total 10.02 10.92 11.84 12.75 13.66 14.58
2.6 SUMMARY OF RECOMMENDATIONS 2.6.1 In summary, we recommend that -
(a) a CDI be created in 1992-93 as a Division of the ED (paragraph 2.4.1);
(b) the CDI should be given a one-line vote in the ED Head of Expenditure (paragraph 2.4.2);
(c) the CDI should be able to employ, through open recruitment on contract terms, professionals from amongst both civil servants and experienced people from outside the civil service (paragraph 2.4.2);
(d) the CDI should have the following main functions - (i) serving the CDC as its Secretariat;
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(ii) curriculum planning, including research, experimentation, innovation and evaluation;
(iii) providing and updating curriculum guides and subject syllabi;
(iv) developing resource materials and managing resource centres;
(v) liaising with the HKEA, the ED Advisory Inspectorate and teacher training institutions on the development and evaluation of the curriculum;
(vi) reviewing textbooks and providing resource library services (paragraph 2.4.3);
(e) the CDI should take up the following tasks -
(i) to promote the adoption and use of the Activity Approach more extensively, together with the application of adequate incentives;
(ii) to facilitate the further integration of subjects at primary and junior secondary levels;
(iii) to examine the feasibility of introducing a modular curriculum at the junior secondary level;
(iv) to consider, following the completion of (ii) and (iii), the balance of the common core curriculum in terms of the range of subjects to be covered in our system of free and compulsory education;
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(v) to develop the curricula and provide materials to suit the needs of students at both ends of the ability range (Chapter 4);
(vi) to further the development of the framework of attainment targets and target-related assessments recommended in Chapter 5;
(vii) to examine the feasibility of introducing a Mastery Learning programme;
(viii) to develop the curriculum material necessary to support secondary schools in the process of adapting to the medium of instruction they have chosen, particularly in respect of those which choose the Chinese language (Chapter 6) (paragraphs 2.4.5 to 2.4.6); and
(f) with regard to the CDC -
(i) it be reconstituted to become a free-standing committee appointed by the Governor to advise the Government through the D of E on curriculum matters;
(ii) its membership be revised to include not only those representing the educational field as at present, but also those representing employers and parents;
(iii) ensure that the size of its membership is manageable (paragraph 2.4.7).
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CHAPTER 3 : SPECIAL EDUCATIONAL PROVISION:
SUPPORT SERVICES IN SCHOOLS 3.1 INTRODUCTION
3.1.1 In Chapter 2, we said that compulsory education has meant that the education system has to cater for students with a wide range of abilities, interests and needs. Clearly, each child's physical, mental and emotional development is subject to different hereditary and environmental factors. While most students may be grouped by age and taught in regular classes following a common curriculum, there is a proportion for whom the education provided for their peers is not wholly suitable. They need special educational provision to help them overcome any learning or behavioural problems they may have.
3.1.2 Special educational provision is defined differently in different countries. In the United Kingdom, for example, following the Warnock Report on Meeting Special Educational Needs* , any extra help which must be given to a child, either temporarily or permanently, to prevent or overcome an educational handicap is seen as special provision, wherever it is provided. The concept of special education is, therefore, quite wide and thus too the notion of children who might need it. The report recommended that the distinction between special and remedial education should be dropped and the assumption should be that perhaps as many as one child in five might need special educational help at some stage during his school career.
3.1.3 In Hong Kong, we generally define students who need special educational provision as those who have one or more of the following characteristics -
* Published in 1978, the report contains the findings of the Committee of Enquiry into Education of Handicapped Children and Young People.
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(a) physically disabled, including the deaf and the blind;
(b) mentally handicapped;
(c) maladjusted, including emotionally disturbed;
(d) academically unmotivated;
(e) with severe learning difficulties;
(f) academically less able; and (g) academically gifted.
We estimate that these students make up around 14% of the school population receiving compulsory education.
The needs of those in the first three groups could have been considered in this report but we felt that the subject was important and large enough to merit a separate report. We note, moreover, that the provision of services for the above groups of children falls into two different programme areas. We therefore confine our attention in this report to the needs of students in the last four groups the policy for which rests with SEM.
3.1.4 Apart from the special educational provision given to the groups mentioned above, special educational provision in the form of support services is available to any student who has learning, emotional or behavioural problems, at some stage during his schooling. These support services comprise counselling and guidance.
3.1.5 Through our study of the curriculum and of behavioural problems and our many discussions with people interested and involved in education, we have come to agreement on the following points -
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(a) all students, whatever their academic ability, should be provided with opportunities for guidance and counselling throughout their school career; and
(b) students with different interests, abilities and aptitudes should be offered education best suited to their needs and abilities.
3.1.6 We believe that the above can be most effectively addressed through - (a) the development of a school-based system of support; and
(b) the provision of special education opportunities in both mainstream schools and separate institutions.
In this chapter, we will be looking at those special support services which are available to all students whatever their academic ability. In the next chapter we will examine those services which are provided to groups of students to meet particular educational needs.
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
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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.
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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
(c) provide assistance through professional advice and support to teachers, SGOs and parents.
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
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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.
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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.
(c) Student Guidance Officers (i) Wastage
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 1987-88 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.
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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
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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.
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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.
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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
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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
