Sustaining Learning

CAMBODIA: ENGLISH LANGUAGE PROVISION THROUGH TEACHER TRAINING PROGRAMS

Pit Chamnan Vice Chancellor

University of Phnom Penh

Audrey Cornish Field Manager

Quaker Service Australia University of Phnom Penh

ABSTRACT

Appropriate and adequate development of Cambodia as a fully contributory participant in the region depends to a large extent upon attainment of the aim of increased English language skills. It is necessary to consider Cambodian perceptions of how best to achieve this aim. The provision of more, and more advanced, English language teacher training programs is seen as vital. There are several areas which should be considered regarding provision of English language teacher training programs: preservice and retraining, consisting of inservice and onservice programs.

The Cambodian English Language Training Project has operated at the University of Phnom Penh since 1985 as a development project funded -by the Australian government. The project was later extended to become the Cambodian English Language Teacher Training Program in 1988. Its impact on Cambodian education - can only really be determined after June 1993, when the first graduates from the program will be able to enter Cambodian schools and universities as teachers of English. The intended and actual outcomes will also need to be compared and dete:rmined.

In spite of the efforts made to improve the quality of English language teacher education generally, there is still a great need for external assistance·, both financial, and in terms of specialist personnel and resources.

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This paper will consider the topic "English language provision through Teacher Training Programs" with special reference to Cambodia. However, in order to see the current situation in perspective, prior to discussing several different modes of English language teacher training provision, it is necessary to examine briefly the context of Cambodian education in general. This paper was originally submitted under the topic "clarifying the need for language programs", but it has been included in the conference under the topic "sustaining learning" . This term presents some difficulties within the Cambodian context. Recent Cambodian history, and its impact upon the education field, has left substantial gaps, which are in the process of being filled in the first instance by what may be referred to as "primary learning" or "basic learning". Only when this level of learning has been achieved to an appropriate level in accordance with the stated government policy of "Education for All", can such phrases as "sustaining learning" be applied to Cambodia.

Any consideration of Cambodia today should be seen in terms of reconstruction and development in every possible field i.e. individuals; families; society; culture; basic services; the economy; and the education system (among others) at all levels and in all its aspects.

In spite of the immense amount of effort by Cambodians themselves, this reconstruction still requires assistance in the form of funding, personnel and resources from varied sources, including bilateral and non-government organisation (NGO) programs.

It has been stated that "Despite achievements in the human resources sectors since 1979, social indicators in Cambodia are still at very low levels, even compared with neighbouring countries . The adult literacy rate is 35 per cent. One child in eight dies before reaching the age of one. Life expectancy is 49.7 years."

Cambodia still has a long way to go.

During the 197 5-7 9 period, Cambodia suffered almost total destruction of the education system and related resources. Nonetheless, as a result of efforts made by the authorities and the people, there is now a

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functioning educational system in place which covers all provinces. This system is divided into pre-primary, basic (sub-divided into primary [Grade 1-5], lower secondary [Grade 6-8] and upper secondary [Grade 9-11]) and post- secondary education, including vocational training and higher education.

Currently, the general level of instruction in Cambodian schools is poor. Training of staff is at a low level, with inadequately qualified trainers, inadequate resources, and buildings in a state of disrepair.

The Ministry of Education has pledged to carry on its "Education for All 11 national conference recommendations in order to provide greater access to primary schooling, and to enable all children to complete their primary education cycle.

One of the specific objectives of education policy is to develop the quality of education, particularly at the pre-school and primary levels. This involves not only the in-servicing of practising teachers to improve their knowlege of teaching methodology and classroom practice; but also the development of more appropriate preservice training courses.

In addition, curriculum development is required to upgrade current practice - the curriculum is inadequate and outmoded, and often relies upon pre-1975 approaches.

In spite of this, important steps are being taken to improve the overall education system. Cambodia is attempting to develop the primary school system in a positive and systematic way. These efforts have created some 4,500 primary schools since 1979. Many of these are inadequately housed and are totally lacking in resources, but demonstrate a strong commitment to education. There are over 40,000 primary teachers in Cambodia, who teach some 1.3 million pupils.

The primary school network covers the whole country except for the north east. It is government policy that education should be free of charge. However, with the financial difficulties being experienced by the government, this policy is being varied more and more.

Overall primary enrolment rates of 82% are reported, but this entails substantial variation e.g. Phnom Penh has an enrolment rate in excess of 90%, provincial centres 70%, and isolated rural areas can be as. ·low as 30% of the school age population.

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The secondary education system has almost 400 lower secondary schools with 12, ooo teachers and 250, ooo pupils, and 61 higher secondary schools with 1500 teacher and 45,000 pupils.

Post secondary education in 1991 involved 56 training institutions with 23,700 students, mostly training as teachers or medical workers .

Relatively few students (12 , 000 in 1992) were being trained as skilled workers . Vocational training and technical education are highly decentralised and encompass a total of 26 secondary technical colleges . These colleges are linked to a particular Ministry or are dependent upon local or provincial authorities. There are problems in programming at a national level because of the level of decentralisation. Access to vocational schools through a competitive examination is normally available to pupils who have completed the certificate of lower secondary education . A degree conferred by the Ministry of Education may be awarded after a varying number of years.

Higher education is provided through seven institutes, each under the responsibility of different sectoral Ministries (Education, Industry, Health, Agriculture and Information) .

The focus for both vocational and higher education has generally been on the production of numbers of graduates with little emphasis placed on quality . In meeting pre­determined outputs, post-secondary institutes produced the requested number of graduates. Employment of such graduates was guaranteed within the government bureaucracy, thus providing a stimulus for further enrolments each year. This has resulted in the training of a large number of people who could meet immediate needs within various economic sectors . However, there remains a shortage of qualified personnel in all sectors, which obviously affects the country's socio-economic development.

Adult education objectives include completing a census of literacy levels , opening literacy classes, improving the content of curriculum and ensuring that women are provided with t..he opportunity to develop literacy skills .

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There remains right across the education sector , however, a strong dependency on external financial and technical assistance.

Changes in government economic policy since 1988 , when there was a shift from a planned socialist policy to a market economy have meant concomitant changes in the provision of higher and technical education: manpower outputs are no longer determined centrally by the Ministry of Planning; job-guarantees for graduates are no longer given; and the quality and external efficiency of educational programs offered is being questioned more. This has meant that some areas of the education system are operating below capacity.

Teachers I like other Cambodian civil servants I are poorly paid. The average salary for a high school teacher of 30,000 Riels ($15 USD) per month means that teachers are often forced into finding other sources of income to supplement their salary. At times, salary payments are up to four months in arrears.

Preservice programs are now offered at both preschool and primary levels . However, there is an excess of about 3,000 teachers in the lower secondary area as a direct result of government policy. Before 1989 , when a new education policy was developed, the government concentrated on primary and lower secondary education, and a three year training program for lower secondary teachers was developed. However, with changes in land ownership and the transition to a market economy, families in the countryside needed more assistance from their children. This meant that fewer children were able to participate at lower secondary level. It is hoped that with peace and security , there will be an increase in the number of children in the lower secondary programs . This will assist in meeting the government policy of " Education for All , m" to the second level i.e. to Grade 8 .

. The Training Department of the Ministry of Education is seeking to increase the quality and performance within teacher education through improved preservice, inservice and onservice programs.

Preservice programs generally are restricted by the often inadequate level of training of the trainers themselves. Thus, training the trainers has become one important focus of the Training Department's approach.

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Inservice programs to improve the quality of teaching itself through curriculum development and improved methods of teacher assessment, have been promoted as a first step in the raising of standards generally. One such program was held in February l993, and brought together primary school principals for one month, to enable them to learn about new approaches to teacher assessment and curriculum development. The Ministry is hopeful that the impact of this program will be far reaching.

one area now being targeted as a result of that seminar is primary level onservice, where teachers will all receive two packages of training materials. The first will entail a scheme of work or mini-lessons, which the teachers can follow in order to improve their classroom techniques and approaches. Through this 11 successive approximation .. , the teachers will be able to improve in a logical and positive way. The second package of content material will be received later, and will encourage self-learning and group learning through what has been referred to by the Ministry as "sophisticated simplicity".

Provincial level follow-up of the onservice program is recognized as necessary, and is being planned by the Ministry. In addition, provincial Teacher Training Colleges will be set up as education centres to promote and support the program. The establishment of school clusters is also being planned, and a supervision system at district level is being put into place.

Moving from education generally to English language provision, it can be said that it is immediately apparent in Cambodia that there is a "high level of interest by the Khmer in English language... In addition, the "importance of proficiency in English for Cambodia to deal with countries in the region 11 is obvious.

It is estimated that there are currently some 238 teachers of English in 468 secondary schools compared with 1200 French. This is a direct result of the historical association between Cambodia and France.

There is at present no program of English language instruction at primary school level. English language was given official status as a recognised subject in secondary education in September l990, and in l99l, a Ministry Committee developed a curriculum framework for teaching English in secondary schools. The textbook

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used most frequently in both schools and private classes is English For Today {1965). A Year 6 (first year secondary school) textbook is currently being developed and trialled by the Textbook Committee and Quaker Service Australia {QSA), and should be ready for use in Cambodian schools by September 1993.

The Ministry has officially r ·ecognised two foreign languages for ~nclusion into high school curricula: English and French. These two languages are studied as the First Foreign Language {Years 6-8) or as the second Foreign. Language (Years 9-11).

There are several factors which adversely affect English · language development in secondary schools. The first, and arguably the most important, is the lack of adequately qualified teachers. Methodology used is often outmoded and reliant upon pre-1975 training. Even when teachers have been able to participate in retraining programs, large classes, with often up to 60 or 65 students, make new methodologies and communicative activities difficult to present and organise. There is a dearth of textbooks, and students often cannot afford to purchase the basic recommended text. Teaching materials are beyond the financial reach of most teachers, and most classrooms have no charts, maps or teaching aids. The conditions faced by the teachers themselves are poor: salaries are low, workplace conditions are of a low standard, and many teachers are forced to take up other employment to supplement their income. Private teaching is an option which many English teachers exercise.

At present, there are two models of providing English language development and classroom methodology for teachers: one is long term training and the other is short term retraining. There are obvious benefits accruing from each of these approaches. However, the pressing current need is to retrain as many teachers of English as possible in the shortest possible time. This will enable them to have an immediate positive impact upon the education sector.

The Training Department has identified three priorities for English language teacher education: upgrading of competency; training of teachers who are actually teaching, but not yet trained; and retraining of teachers of other subjects, with some knowledge of English, who would like to become English teachers. The upgrading of competency has been carried out for several years using a recyclage (retraining} model based

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on short courses offered mainly at central level. Since 1990, QSA has offered eight-week intensive retraining courses primarily directed towards teachers of English, but also including· some principals and Ministry officials. Such courses have concentrated initially on English language competence, but have also included teaching methodology and classroom practice. Two of the courses have been at Advanced level, and have involved the best students from the previous several programs. This approach has proven highly successful, and has been popular with both the participants and the Ministry.

The last two QSA retraining programs have been organised in Prey veng, at the Regional Teacher Training Centre, and have involved teachers from two provinces. The demonstrated need is overwhelming, and the expatriate teachers on the program agree that to take the courses to the provinces better meets the needs of local teachers. This is particularly true of women, who are often unable to leave families in the provinces to attend centrally run courses.

In addition, other international agencies (Volunteer Service Overseas and the Cambodian British Centre for Teacher Education) are offering short retraining courses for English teachers at provincial and central levels. Moreover, as well as teacher retraining, programs to train the trainers are being developed for regional Teacher Training Centres by a number of organisations.

It has been recognized by the Ministry of Education that improvement in the quality and capacity of the teacher trainers is vital to the appropriate and ongoing development of long term English language provision in Cambodia. It will also ensure program sustainability when external funding is no longer available.

With regard to post secondary education, English language i nstruction is not generally provided in preschool o r primary teachers' colleges. The secondary Regional Teachers' Training Centres (RTTCs) are currently only offering teacher retraining programs, because of an oversupply of teachers at this level. There have been no new intakes at preservice level into RTTCs since 1990 . As part of a one year course of study, teachers undergoing retraining programs are supposed to take some English. However, the provision of this is limited by the lack of appropriately qualified staff available.

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As for higher education, most tertiary institutions wish to include English in their programs, but there is a wide variation in provision of such courses at this level. At present, there is no English degree program at the University of Phnom Penh. However, there is a Bachelor of Education degree course, run by QSA, and a translating/interpreting course provided by a voluntary agency. In addition, another voluntary agency is coordinating the retraining of student teachers of Russian and Vietnamese to be English teachers.

Other colleges and faculties at the University use NGO teachers to support a variety of general English or English for Specific Purpose programs.

The English Language Teacher Training degree program at the University of Phnom Penh (UPPf is Australian government funded, and managed by QSA. However, the management of the UPP program is scheduled to change in June 1993, when it is expected that an Australian university will take over.

The English Language Teacher Training Program aims to provide teachers for upper secondary and tertiary levels. The five-year program involves three years of English language instruction and extension, with an increasing emphasis on teacher training in the last two years. There are currently 150 students in the program. It is anticipated that this number will increase, with a higher intake into Year 1 next year.

The first students to complete the five-year program will graduate in June 1993. Four of these . graduates will fonn the basis of Khmerisation of the English Language Teacher Training Program at the UPP. From September 1993, there will be a reduction by half of the current expatriate staff, and a concomitant rise in the number of Khmer counterparts. Accordingly, in the following year, the number of expatriates will decrease further, and the number of Khmer increase. As the Khmer staff gain in experience and confidence, it is anticipated that they will be able to take over more and more of the program.

Students enrolling in all faculties at the university must complete a preliminary year of study prior to commencing their specific study program. In spite of this, the Ministry of Education has recently given approval to truncate this program into a four-year course, leading to a Bachelor of Education (TEFL) . The

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new course will commence from September 1993. Approval for the shorter program was granted primarily on the basis that the English language level of students entering the course has risen substantially over recent years, and therefore the preliminary year was no longer seen as necessary.

Such tertiary programs are designed to produce graduates with a high level of English language competence, who should have an immediate, positive . effect upon the provision of English language teaching in Cambodian schools. However, the program is long term, and can only involve a limited number of participants. In addition, the actual outcomes of the course, and its success or otherwise, can only be determined once the first graduates are employed in the program itself, or in upper secondary schools.

Another difficulty which has emerged in the recent past, and is a direct result of political circumstances in Cambodia, is the local demand for high quality teachers and translators/interpreters by both the United Nations Transitional Authority in Cambodia (UNTAC) and NGOs. They offer salaries far in excess of local teacher salaries. Accordingly, there is a real danger that graduates of the degree program will be drawn away from teaching. This will be detrimental to Cambodia's desire to promote a rapid increase in the amount and quality of English language provision in schools and tertiary institutions. It has therefore been shown to be necessary to consider salary supplementation for Khmer counterparts to maintain them in the education sector. This will have implications for financing policy on the part of external funding organisations.

In spite of the difficulties facing the Ministry of Education in developing appropriate English language training and retraining programs, some positive steps have been taken. Short term retraining programs have been in place for several years, and more programs (including longer term ones) have been proposed by international agencies. All these programs have the ultimate goal of self-sustainability. A high quality B Ed (TEFL) program is operating at the university, and will produce well -qualified English language experts. However, complete self-sustainability of the university program may not be able to be achieved within the proposed two year time-frame. Nevertheless, the program experience to date indicates that it is not unrealistic in the longer term, provided that graduates can be maintained within the program, and that sufficient

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counterpart training can be offered, especially at the teacher training level.

Cambodian education, and English language teacher ~raining , have come a long way. However, there is still the need for much external assistance in terms of finance, personnel and resources . For the sake of Cambodia and her successful re-emergence as a fully contributory participant in the region, an increase in the provision of English language training is imperative.

REFERENCES

Asian Development Bank, International Monetary Fund, United Nations Development Programme, World Bank; Qmixrlia: Socio-Econanic Situation and Ir!Jn::rliate Needs; May 1992

Australian International Development Assistance Bureau: A Str.ategy for Australian English ranguage Trnining Assistance for ('arrilxrlj a: Praft for Circulation; July 1992

Australian International Development Assistance Bureau: Project Design DQcuJ:rent: university of P'.ono:n Penh English and Education Project; canberra March 1993

Educam Handbook 1993; Plma:n Penh 1993

Ministry of Education: Education Congress RePort 1992-1993 Extract: Objectives and Action: School Year 1992-93; Phnom Penh

Netherlands Organisation for International Cooperation in Higher Education (NUFFIC/OS) ; Cgrnbodia: Draft Project "Document for Assistance in Higher Education and Vocational Training; The Hague; January 1992

Quaker Service Australia and University of Technology Sydney; ErlJlish Taqruage Syllabus Pesign Project for the university of Pbnan Penh: Bachelor of E:lucation <TEFL> : Draft Proposal 24 February 1993

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