International Journal of Business and Economy (IJBEC) eISSN: 2682-8359 [Vol. 2 No. 4 December 2020]
Journal website: http://myjms.mohe.gov.my/index.php/ijbec
THE BEST PRACTICES OF ENGLISH TEACHER REDEPLOYMENT POLICY IMPLEMENTATION IN
MALAYSIA
Nor Hisham I1*, Hamidah Y2 and Khalip M3
1 2 3 Faculty of Management and Economic, Universiti Pendidikan Sultan Idris, Tanjung Malim, MALAYSIA
*Corresponding author: [email protected] Article Information:
Article history:
Received date : 1 December 2020 Revised date : 10 December 2020 Accepted date : 15 December 2020 Published date : 26 December 2020 To cite this document:
Nor Hisham, I., Hamidah, Y., & Khalip, M. (2020). THE BEST PRACTICES OF ENGLISH TEACHER
REDEPLOYMENT POLICY IMPLEMENTATION IN
MALAYSIA. International Journal Of Business And Economy, 2(4), 89-103.
Abstract: The quality of English teachers in schools is one of the contributing factors in students’ proficiency in the language. However, insufficient number of English teachers teaching in schools due to mismatch had been a major concern and redeployment policy was implemented to address the issue. Hence, the purpose of this study was to explore the teacher redeployment good practices that could contribute to minimize mismatch of English Language teachers in schools based on the experts’
opinion and consensus. This study examined the redeployment policy implementation strategies using Fuzzy Delphi Method (FDM) to analysed the data. 15 panel of experts responded to a Five-Likert linguistic scale survey questionnaire. The threshold value (d) must exceed 75% to verify the experts’ consensus, while the alpha-cut value of >0.5 was used to select the items. This study showed a high consensus among the experts with (d) values at 85.7% and all the alpha cut-values exceeded 0.60. The redeployment implementation strategy profile consists of the Teacher Selection Based on Professional Background (A = 0.79), Interventions (A = 0.78), Teacher
1. Introduction
The quality of English teachers in schools is one of the contributing factors in students’ proficiency of the language. However, the issues of insufficient number of English teachers teaching in schools due to mismatch had been a major concern for decades (BPPDP, 2012). The implementation of teacher redeployment policy sparked a lot of frustration among teachers especially those who were not very happy to be transferred to locations which was not to their advantages (BPPDP, 2012).
When redeployment process was not done effectively, schools would not get the rightful number of teachers. Schools would have to assign the non-optionists to teach the subject and this had impacted the quality of teaching and learning of English (BenDavid-Hadar, 2015; Hamidah, 2011).
Thus, the uncertainty of the policy outcomes could influence future processes of policy planning and implementation (Alaerts, 2020; Hoof, et al., 2019; Nurani et. al., 2018).
In 2010, The Ministry of Education Malaysia reinforced the implementation of redeployment policy following the policy ‘To Uphold Bahasa Melayu and to Strengthen the English Language’
or Memartabatkan Bahasa Melayu, Memperkasakan Bahasa Inggeris (MBMMBI). The Ministry aimed to strengthen the command of English by improving on the curriculum and provide sufficient and quality teachers and teaching materials (Ministry of Education Malaysia, 2013).
Redeployment of teachers was one of the initiatives implemented by the Ministry to address this issue. However, little work had been done to study the effective strategies in redeployment policy implementation. This research is important to explore the consensus of policy experts on the strategies of teacher redeployment and their opinions could highlight better insights to the best practices of the policy implementation strategies.
2. Literature Review
Educational Planning and Research Division (EPRD), Ministry of Education Malaysia reported that in October 2017, there were 33,262 English Language teachers in the primary schools and there were 28,671 English Language teachers who were teaching the subject in schools, whereas 4,591 teachers who are not English optionists, were teaching English subject in primary schools.
In the case of secondary schools, there were 18,295 English Language teachers and there were 16,663 were teaching the subject whereas 1,632 were not teaching English. On the other hand, 5,124 non-optioned English teachers were teaching English in the secondary school. Unless redeployment is effectively implemented, an estimated 4000 mismatches every year will continually affect the quality teaching and learning of English in Malaysian schools.
Keywords: Teacher Redeployment, Mismatch, Policy Implementation.
Redeployment policy was reinforced by the Minister of Education in 2010 as one of the ways to resolve problems of subject-teacher mismatch in the national schools. Professional Circular No.22/1998: Deployment and Transfer of English, Mathematics and Science Teachers Under the Terms of Service dated September 11, 1998 gives mandate to the school’s heads, district and state education officers to implement the policy. Redeployment of teachers in Malaysia refers to the process of relocating teachers from one school to another to minimize the mismatch between number of teachers and the available subjects taught in schools. The ultimate aim of this policy strategy is to improve the teaching and learning of English so that the students will benefit from the quality teaching and learning facilitation by the well-trained teachers (MOE, 2010; MOE, 2012). Based on a study done by the MOE on the deployment of teachers (BPPDP,2012), the biggest challenge in managing the exercise is when most of the time, the humanitarian factors become the major consideration of teacher redeployment. Teachers who refuse to be redeployed most often appeal for reconsideration to stay in the same school for various personal reasons like being far from husband, taking care of parents and health factor (BPPDP, 2012).
In Malaysia, redeployment issue is always bringing about the issues of quality teachers and quality student outcomes. In a study done by Ministry of Education Malaysia about teacher redeployment in 2005 listed the following issues;
• incomplete data of teachers
• supply and demand of teachers do not fit the needs of State Education Department
• location of posting to remote schools
• extra English teachers in the urban areas like Kuala Lumpur and Klang Valley
• teachers who postponed their posting order
• ‘frozen enrolment’
• vacancies in schools in the district
• unfeasible transfer of teachers
• politician interference
Based on the report, there were three significant issues related to the implementation of redeployment which are:
• family factors;
• place to stay; and
• security issues.
The main problem with redeployment implementation was the consideration of humanitarian issues. Policy implementers seemed to surrender to teachers’ appeal based on their personal reasons rather than to place more justification on the needs for the service when decisions on redeployment were made. Strategic distribution of teachers needs to be based on the requirement of the schools so that each teacher will be teaching the subjects they were professionally trained to teach. The gap reduction of teacher’s mismatch may give positive impact to students’ motivation hence improve performance. Furthermore, based on the classic theory of behaviourism by B.F Skinner (1974), teachers who did not teach the subjects that they were comfortable with would be emotionally and motivationally affected. Thus, it is essential that redeployment is properly managed so that the negative impacts on both teachers and students can be minimized.
The redeployment practices is currently based on the redeployment guidelines provided by the Ministry and the implementation is still very much based on the principles of the general transfer mechanisms. The Ministry of Education determined that all interstate transfer applications are implemented two times a year in January and June. The factors to be considered in the selection of teachers to be transferred include:
1. The interest of the service 2. Budget
3. Distribution of teachers to the urban and rural schools 4. Distribution of male and female teachers
5. Duration of service in the schools, district or states.
The School Management Division has also determined certain criteria for consideration for any application for transfer as follows;
1. Following spouse due to:
a. Promotion b. Transfer order
c. Common situation (application to location of spouse) d. Combined application (only for January transfer)
2. Chronic health problem
a. The applicant
b. Family (spouse or child)
3. Security Threats (must be accompanied by a police report)
a. Intimidation / threats to kill; or
b. Intimidation / threat of injury to self / husband / wife / children.
4. Meet Service period.
a. The qualifying period for transfer is served at least 3 years in the final state;
b. Approval of the application is subject to the requirements and vacancies in the state applied.
5. Divorce and Death (Enclosed with the letter of death and divorce)
a. Death of the husband / wife;
b. Divorce
Ministry of Education Malaysia reported that there are still issues of teachers who do not teach the subjects they are professionally trained in the school. The table below describes the scenario of mismatch of teachers’ professional options and the subject taught in schools for the four core subjects in 2012.
Table 1: The Mismatch of Teachers’ Professional Options and the Core Subjects Taught in Malaysian Secondary Schools
English Language
Bahasa
Malaysia Mathematics* Science**
No. of Option 18,941 34,618 31,341 35,174
Option & Teaching 80% 51% 59% 60%
Option & Not Teaching 20% 49% 41% 40%
Non-option & teaching 19.7% 35.4% 21.3% 9.7%
Source: BPPDP, KPM (2013); Data as of January 2013.
*includes Modern Mathematics and Additional Mathematics
**includes Physics, Chemistry, Biology, Science
There are still many schools, districts and states facing issues of mismatch of teachers (EPRD, 2013). Statistics shows that there were still more than 9 to 35 percent of non-trained subject teachers who were teaching the subjects. Whereas, there were still 20 to 49 percent teachers who are professionally trained to teach the subjects do not teach their option subjects.
Such scenario indicated the inefficiency in policy implementation. Scholars have highlighted several issues in policy implementation. According to Olavarria-Gambi (2017), inefficiency in policy implementation could also resulted from committee facing with challenges to understand the dynamic of policy implementation and what capacities, abilities, and strategies required to put into a concrete policy implementation. In addition to that, failure to understand the details of the policy led to more challenges in policy planning (Mavrogordato & White, 2017), policy draft, policy agenda, policy decision, and policy implementation (Nurani, Mardiyono, Supriyono, &
Wijaya, 2018). The relationship between different decision-making stakeholders can be the determining factor for policy implementation process especially when there is unclear common understanding of the goal and policy execution (Hoof, et al., 2019). Amstrong (2014) has also emphasized that deploying or redeploying people within organization should in ways that maximize the “added value” they can contribute and also develop “skills and talents” they possess.
Research conducted by Lauwerier & Akkari (2015) confirmed that tough conditions in workplace such as job security, low salary, and less motivation decreases teacher’s quality.
Students need qualified and well-trained English Language teachers to ensure effective learning of the subject and if the distribution of English Language teachers is not done effectively, the education system is losing out on its valuable resources ((Nadarajah, 2002) which is apparently will not be economical (Samer Al-Samarrai & Imam Setiawan, 2012).
Hence, experts’ opinion and consensus on the policy implementation strategies could help determine the best practices to be recommended. To achieve this, Fuzzy Delphi Method will be used to identify the best practices based on the priority strategies. Fuzzy Delphi Method (FDM) is a combination of the Fuzzy Set Theory and the Delphi Technique (Murray, Pipino & Gigch, 1985) which was introduced by Kaufmann and Gupta (1988). FDM is a popular method in decision making which combine the Fuzzy Theory and the traditional Delphi. FDM is not a new technique but it is an instrument that enhanced the existing Delphi Technique (Ridhuan et al., 2013). The strength of using FDM is that it is able to place the importance and positions of items based on the consensus of panel of experts, and accurate data can be obtained with only one round (Change, Hsu & Chang, 2013).
2.1 Problem Statement
Teacher supply is based on the projection of the current needs, however the distribution of teachers based on their options has been the ‘never-ending’ issue faced by the Ministry even though redeployment guidelines are prepared by the Ministry (BPPDP, 2010). The Ministry of Education reported that there were some challenges in terms of teachers’ compliance to the redeployment order when redeployment decisions have always influenced by humanitarian factors existing guidelines do not seem to be effective (MOE, 2010d; MOE, 2010c). The inconsistency in policy implementation has made it worse. Therefore, this study adopted the consensus of experts to determine the ranking of redeployment best practices that could possibly help in ensuring the effective implementation of the policy.
3. Method
This study adopted the exploratory sequential mixed methodology (Cresswell, 2012).
3.1 Samples
The participants were chosen via purposive sampling as agreed by Merriam (2010) and Robson (2002). In developing the questionnaires, three candidates for the interview session were redeployment desk officers from the district education offices. They were recommended by snowball sampling. 15 Delphi panel of experts helped in providing valuable feedbacks on the list of redeployment strategies via the questionnaires. For the purpose of this study, the panel of experts were officers from the education district offices, state education departments and divisions in the ministry who were the desk officers for redeployment and also school principals and the senior assistants. The selection of the respondents for the interviews and the experts for this study were based on the following aspects as suggested by Hsu and Sandford (2007):
i. the disciplinary areas of expertise in teacher redeployment policy;
ii. panelists’ background and experiences concerning redeployment policy implementation;
iii. capability of panelists to contribute helpful inputs and feedbacks; and
iv. panelists’ willingness to review their initial or previous judgments for the purpose of reaching or attaining consensus.
3.2. Procedures
The questionnaires for the Fuzzy Delphi approach were developed through information gathered via triangulation method. Adopting the triangulation method, the researcher combined the interview techniques, observation and document analysis in the data collection to provide input on the redeployment implementation strategies. The questionnaires was then piloted before it was sent to the Delphi panel of experts for their responses. The questionnaires were collected from each of the panel and percentage of agreement for each of the item were calculated to determine if the item(s) should remain in the list or should be omitted.
3.3 Data Analysis
Analysis of data using FDM consists of Likert-type surveys (Table 1) that are designed for the panel of experts to rate the items from the questionnaires. Using the FDM questionnaire survey form, the panel of experts finalized their decision on items to be included and items to be omitted from the list to develop the redeployment good practices. The list of items which have been agreed upon by panel of experts were then evaluated using Fuzzy Delphi technique to determine the rank of priority. The results of the analysis confirmed the rank of each item for the profile of redeployment good practices. FDM consists of two important criteria which are the Triangular Fuzzy Number and Defuzzification Process.
Table 1: Sample of Linguistic Scale 5 Point Linguistic
Scale m1 m2 m3
Strongly Agree 0.60 0.80 1.00
Agree 0.40 0.60 0.80
Moderately Agree 0.20 0.40 0.60
Disagree 0.10 0.20 0.40
Strongly Disagree 0.00 0.10 0.20
3.3.1. Triangular Fuzzy Number
Triangular Fuzzy Number consists of 3 values (m1, m2, m3) in which the minimum value, the plausible value and maximum value are shown in Figure 3.1 below:
m1=minimum value; m2=plausible value; m3=maximum value
Figure 1: Triangular Fuzzy Number
Similar to Likert scale, the Triangular Fuzzy number are used to translate the linguistic scales to a set of fuzzy number. The higher the scale, the higher the accuracy of the responses. The number of agreement scale is in odd numbers of 3,5 or 7 point of linguistic scales. The 5-point linguistic scales were used in this study as shown on Table 3.7.
3.3.2. Defuzzification
Defuzzification on the other hand is to determine the ranking for each of the variables or sub- variables. Defuzzification process uses Average of Fuzzy Number (A) to determine the ranking for each of the variables or sub-variables. There are 3 formulas to determine the positions of the agreement:
a) Amax = 1/3*(a1+am+a2) b) Amax = 1/4*(a1+2am+a2) c) Amax = 1/6*(a1+4am+a2)
This study used formula (a) Amax = 1/3*(a1+am+a2) to calculate the defuzzification values. The value of α-cut which is the median value for ‘0’ and ‘1’ uses the formula below:
α-cut = (0+1)/2 = 0.5
If the value of A is less than the value of α-cut = 0.5, the item will be omitted which indicates that the consensus of panel of expert rejected the item and vice versa.
3.4. Validity and Reliability
The questionnaires are carefully written and validated before submitting it to the panel of experts.
The researcher has put extra caution in the design of the questionnaire to ensure that each item produces the desired outcome, while at the same time avoiding bias. The internal and external validity has been reviewed by three panel of experts who have been selected before the questionnaires were being administered to the group of Delphi Panel of Experts.
According to Creswell (2008), reliability is about the accuracy and precision of a measurement procedure and the basis for reliability is consistency. To enhance the reliability of this study, the following processes are developed:
• The purpose of the study, as well as the process to be used, is discussed with each participant;
• The participants have access to the informed consent and the confidentiality agreement and they had their concerns addressed at all points prior to or during the study;
• The participants are informed that their participation is voluntary and that they can withdraw at any time without penalty;
• The participants are informed that there are no wrong or right answers;
• The participants’ identities are concealed and coded to ensure anonymity;
4. Results and Discussion
Based on the findings, experts’ consensus has confirmed the best practices of redeployment policy implementation. The panel of experts agreed with six best practices domains as described in Table 2. The items were redeployment guidelines, enforcement, intervention, the selection based on personal background; the selection based on professional background; and teacher readiness.
Table 2: Themes for Domain 1: Implementation Strategies
1. Redeployment Guidelines 2. Enforcement 3. Interventions
• Briefing about policy implementation
• Empowerment at all levels of educational management
• Frequency of implementation
• Frequency of database update
• Teacher selection to be done at school level
• Priority based on approved number of posts
• Set duration for voluntary redeployment process
• Directive redeployment order takes place after voluntary period
• Exception for redeployment
• Disciplinary action for non- compliance
• Selection process in closed session
• Priority on Teachers’ welfare
• Incentives
• Priority for non-optioned
• Advantage to voluntary redeployment
• Priority to those who do not contribute much to school
• Change of option
• Intervention programme for Additional Option
• Projection of English teachers based on needs
• Zero political support and outside pressure
• Create new post when necessary
• Offer contract English teachers in states without enough posts.
4. Selection based on Personal Background
5. Selection based on Professional
Background 6. Teacher Readiness
• Age
• Gender
• Bachelor or single parent status
• Few children
• Teachers’ ethnic background
• Communication skills
• Separated from spouse
• Long service in the same school
• Non-administrative post
• Optioned teacher but not teaching English.
• In time for promotion
• CPT with Grade A1 and A2
• Health
• Financial status
• Motivation
• Work satisfaction
• Self-Efficacy
• Spouses’ mobility
• Location of owned property
• Commitment to family members or parents
Based on the FDM analysis, all the domain items obtained more than 75% consensus of experts which were ranked by defuzzification value as shown in Table 4. The highest score was ‘Selection based on professional background’ (0.7858) followed by ‘Suggested Interventions’ (0.7774);
‘Teacher Readiness’ (0.7744); ‘Implementation of guideline’ (0.7659); ‘Selection based on personal background’ (0.7613); and finally the ‘Enforcement’ (0.7367).
Table 3: Ranking of Domain Items by Defuzzification Value
Domain Items of the domains Defuzzification
Value Rank
2 Selection based on professional background 0.7858 1
1 Suggested Interventions 0.7774 2
2 Teacher readiness 0.7744 3
1 Implementation of guideline 0.7659 4
2 Selection based on personal background 0.7613 5
1 Enforcement 0.7367 6
The items and sub-items of the six domains have been agreed upon by panel of experts and were evaluated using FDM to determine the level of priority recommended by the experts. The analysis of the 42 sub items from the six domains were arranged in Table 4. The rank of each item showed the level of consensus by panel of experts and score 1 represented the highest level of consensus based on the defuzzification value. The ranking of all the items and sub-items of the two domains were justified by their defuzzification values and the combination of all best practices were arranged in order as shown in Table 5.
Table 4: Sub-Item Score and Ranking by Defuzzification
Ranking Defuzzification Sub-Item
1 0.81 Priority based on the needs of option and approved number of posts in schools
2 0.80 To consider change of option to teachers with low proficiency (CPT A1 and A2) and have been teaching other non-option subject more than 3 years.
2 0.80 To implement PITO or option addition programme for non-optioned teachers who have taught English more than 3 years.
2 0.80 Location of owned property or residence
2 0.80 Commitment to sick parents or family members or disabled children 2 0.80 Staying far apart from spouse
2 0.80 English optioned but not teaching English subject 2 0.80 Create new post for English teacher when necessary 3 0.79 Selection process to be done in closed session.
3 0.79 Teacher’s level of contribution to students’ activities, school and community.
3 0.79 Physically and mentally healthy
3 0.79 Ability to communicate with community in future school 3 0.79 Not holding any administrative posts
Ranking Defuzzification Sub-Item
5 0.77 In time for promotion
5 0.77 Teacher selection is done at school level
5 0.77 Appointment of teacher must be based on the needs not on the number of graduates
5 0.77 Provide benefit to teachers who apply for voluntary redeployment i.e. choose the school to go.
6 0.76 Motivation level
6 0.76 Financial status
6 0.76 Bachelor or single parent status
6 0.76 Empowerment at all educational management levels 6 0.76 Set a duration for voluntary redeployment process 6 0.76 Offer contract English teachers where necessary 7 0.75 Frequency of implementation
7 0.75 Set criteria for exception to redeployment
8 0.74 Number of children (if married and/or have children)
8 0.74 Special incentives to teachers who apply for voluntary redeployment 9 0.73 Career satisfaction level
9 0.73 Issuance of redeployment order takes place after voluntary period ends.
10 0.72 Frequency of databased update
10 0.72 Minimized non-optioned teachers in schools 11 0.71 Disciplinary action enforces to non-compliance
12 0.68 Teachers’ ethnic background to match the background of future school / community
5. Conclusion
This study examined the redeployment policy implementation strategies of English Language teachers in the secondary schools in Malaysia. The finding of this study gathered the experts’
consensus to develop the list of redeployment best practices. All the items have been ranked based on the experts’ justification of the effectiveness and weightage of priority. The lists in Table 4 are the profile of the best practices of the policy that the policy implementers can use as guidance in the management of English teacher redeployment.
Overall findings from this study have some implications to MOE especially to policy makers and School Management Division of MOE as the responsible division to manage redeployment at the national level. Besides that, this study has also impacted the redeployment guidelines. These implications described below:
5.1 Implications to MOE
Finding of this study has also alerted the policy makers in MOE to review the redeployment guidelines which should be more comprehensive and practical by policy implementers as well as the stakeholders. Findings of this study have also discovered a barrier to the success of English Language teacher redeployment which was not only in terms of budget allocation. Among other implications are the empowerment that MOE gives to the lower level of the educational management. When empowerment given to the other level of education management, MOE needs to monitor the implementation as well. Constant monitoring of the policy implementation could help in achieving the policy targets.
5.2 Implication to Implementers
Policy implementers need to understand that the policy must not be done lightly but the enforcement should be taken seriously to ensure that the rate of compliance will remain high. The profile of the best practices can help to serve as guidelines for the policy implementers to ensure higher rate of policy implementation success. This study is also important for the policy implementers to ensure that the projection of English teachers to be done more carefully by taking into consideration the implementation of redeployment at all levels of education management.
Policy implementers should understand that the shortage of English Language teachers in schools will impact on the students’ performance in English Language subject as well as their proficiency.
The redeployment policy implementation best practices as in Table 5 has clearly ranked the best practices based on the policy experts’ professional justifications. The ranking of the items is the profile that policy makers may need to refer to as additional guidance in any policy decision making. The items which were ranked can help to guide policy makers in the formulation or review of the current redeployment guidelines.
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