EDUCATION GLOBAL PRACTICE MAY 2023 THE MALAYSIA DEVELOPMENT EXPERIENCE SERIES Shaping First Steps A Comprehensive Review of Preschool Education in Malaysia CONNECT WITH US wbg.org/Malaysia @WorldBankMalaysia @WB_AsiaPacific http://bit.ly/WB_blogsMY MAY 2023 THE MALAYSIA DEVELOPMENT EXPERIENCE SERIES Shaping First Steps A Comprehensive Review of Preschool Education in Malaysia EDUCATION GLOBAL PRACTICE © 2023 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. 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Cover photo: © Sorapop/Bigstock Credit for non-WB images: Bigstock Cover design and layout: Good News Resources Sdn Bhd/www.gnrsb.com Table of Contents List of Figures ................................................................................................................................................. 7 List of Tables .................................................................................................................................................... 9 List of Boxes .................................................................................................................................................. 10 List of Country Examples .............................................................................................................................. 11 List of Recommendations ............................................................................................................................. 12 Acknowledgements ...................................................................................................................................... 13 Abbreviations ................................................................................................................................................ 14 Summary ........................................................................................................................................................ 16 CHAPTER 1 Introduction ................................................................................................................................................... 24 CHAPTER 2 Overview of Preschools in Malaysia ........................................................................................................... 28 2.1 A Brief History of Preschools in Malaysia ........................................................................................ 29 2.2 The Current Preschool Landscape .................................................................................................. 29 2.3 Curriculum and Standards for Preschools ....................................................................................... 30 2.4 The Development of Teachers and Leadership in Preschools ........................................................ 32 2.5 Governance Structure and Funding of Preschools .......................................................................... 33 CHAPTER 3 Review Approach ......................................................................................................................................... 36 CHAPTER 4 Access to Preschool Education .................................................................................................................... 44 4.1 Achieving Universal Enrollment in Malaysia .................................................................................... 45 4.2 The Current Situation ...................................................................................................................... 45 4.3 Priority Area 1: Increasing Enrollment Toward Compulsory Preschool Education .......................... 49 4.3.1 Key Issues and Challenges ..................................................................................................... 49 4.3.2 Recommendations ................................................................................................................. 52 4.4 Priority Area 2: Fee Assistance and Other Financial Incentives ...................................................... 60 4.4.1 Key Issues and Challenges ..................................................................................................... 60 4.4.2 Recommendations ................................................................................................................. 63 CHAPTER 5 Quality of Preschool Education ................................................................................................................... 66 5.1 Priority Area 3: Quality Assurance for Preschool Education Provision ............................................ 67 5.1.1 Overview of Preschool Quality Assessment Results .............................................................. 68 5.1.2 Key Issues and Challenges ..................................................................................................... 69 5.1.3 Recommendations.................................................................................................................. 70 5.2 Priority Area 4: Enforcing Minimum Qualifications for Preschool Teachers and Supporting Teachers to Acquire Them ........................................................................................... 73 5.2.1 Overview of Teachers’ Pathways Toward Achieving Minimum Qualification ..........................75 5.2.2 The Current Situation ............................................................................................................. 77 5.2.3 Key Issues and Challenges ..................................................................................................... 78 5.2.4 Recommendations ................................................................................................................. 80 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 5 5.3 Priority Area 5: Continuous Professional Development (CPD) for Teachers and School Leaders .......................................................................................................... 85 5.3.1 Leadership in Malaysian Preschools ....................................................................................... 87 5.3.2 Existing Effort regarding Continuous Professional Development (CPD) for Preschool Teachers ........................................................................................................... 87 5.3.3 Existing Effort on Continuous Professional Development for Principals................................. 89 5.3.4 The Current Situation ............................................................................................................. 90 5.3.5 Key Issues and Challenges...................................................................................................... 90 5.3.6 Recommendations ................................................................................................................. 91 5.4 Priority Area 6: Implementing a Developmentally Appropriate and Child-centered Curriculum........................................................................................................ 96 5.4.1 Preschool Curriculum in Malaysia ......................................................................................... 96 5.4.2 The Implementation of Preschool Curriculum in Malaysia ................................................... 100 5.4.3 The Current Situation ........................................................................................................... 100 5.4.4 Key Issues and Challenges ................................................................................................... 102 5.4.5 Recommendations ............................................................................................................... 102 5.5 Priority Area 7: Nutrition and Health.............................................................................................. 103 5.5.1 Existing Feeding Programs for Preschool Age Children in Malaysia ................................... 104 5.5.2 The Current Situation ........................................................................................................... 106 5.5.3 Key Issues and Challenges.................................................................................................... 106 5.5.4 Recommendations................................................................................................................ 107 CHAPTER 6 Enablers ...................................................................................................................................................... 110 6.1 Good Governance .........................................................................................................................111 6.1.1 Recommendations ............................................................................................................... 113 6.2 Financing........................................................................................................................................ 119 6.2.1 Prioritizing Equitable and Efficient Spending....................................................................... 119 6.2.2 Malaysia’s Current Public Expenditure on Preschool Education........................................... 121 6.2.3 Recommendations................................................................................................................ 122 CHAPTER 7 The COVID-19 Pandemic and Learning Loss ............................................................................................ 124 7.1 School Closures During the Pandemic........................................................................................... 125 7.2 Key Issues and Challenges............................................................................................................. 126 7.3 Recommendations......................................................................................................................... 129 CHAPTER 8 Conclusion ................................................................................................................................................... 132 References ................................................................................................................................................... 136 ANNEX 1: Comparison Table of Preschools ............................................................................................. 142 ANNEX 2: Number of Preschools, Classes and Enrollment by Sector .................................................... 144 ANNEX 3: World Bank Malaysia Preschool Survey 2021 Questionnaire ................................................ 145 ANNEX 4: List of Institutions that the Preschool Survey was Disseminated To ..................................... 152 ANNEX 5: Databases of Preschool and Childcare Information ............................................................... 153 6 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia List of Figures FIGURE 1 Number of (a) preschools, (b) classes, and (c) enrollment by providers in 2021* (number and percentage) 30 FIGURE 2 The split ECCE system in Malaysia 33 FIGURE 3 Government expenditure on pre-primary education as a percentage of GDP in 2017 35 FIGURE 4 Review approach 37 FIGURE 5 Survey respondents by category (number and percentage) 38 FIGURE 6 Survey responses to questions on universal preschool enrollment and preschool education quality in Malaysia 40 FIGURE 7 Lab participants by category (number and percentage) 42 FIGURE 8 Framework of targets, pillars and enablers 43 FIGURE 9 Preschool enrollment rate in Malaysia (%) 46 FIGURE 10 Enrollment rates for 4+ and 5+ year olds at preschools in Malaysia 46 FIGURE 11 Public and private preschool enrollments in Malaysia (number and percentage) 47 FIGURE 12 Number of private and public preschool classes 47 FIGURE 13 Malaysia’s preschool enrollment rate in 2019 (at its peak) as compared to high-income countries and regional peers 48 FIGURE 14 Survey responses to questions on universal preschool enrollment 50 FIGURE 15 Percentage of survey respondents who agreed that these factors are “very important” to increase enrollment 50 FIGURE 16 Readiness for compulsory preschool education by stakeholder and preferred starting age 52 FIGURE 17 Gross enrollment ratios in preprimary education, by free and compulsory status 53 FIGURE 18 Legal provisions for both free and compulsory preprimary education globally 54 FIGURE 19 Adjusted net enrollment rate one year before the official primary school entry age (%) 55 FIGURE 20 Enabling factors that supported successful reforms in making preschool education compulsory in Latin America 56 FIGURE 21 Fee assistance for preschool children 2009-2022 61 FIGURE 22 Public and private preschool enrollment in Malaysia 62 FIGURE 23 Percentage of survey respondents who agreed that these factors are “very important” to increase enrollment 63 FIGURE 24 Types of demand-side subsidies available for parents in Singapore 64 FIGURE 25 Singapore’s multi-pronged support to encourage the opening of more private preschools 65 FIGURE 26 Percentage of registered public and private preschools achieving the minimum standard as prescribed by the NPQS, 2015-2018 68 FIGURE 27 National average of NPQS scores by quality dimension, 2015-2018 68 FIGURE 28 Snapshot of MOE’s advertisement to offer Malaysian Diploma in Teaching Programme in ECCE in 2021 75 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 7 FIGURE 29 Structure of locally coordinated peer learning network 93 FIGURE 30 Breakdown of time use of medium of instruction in preschools by types of preschools 99 FIGURE 31 Change in brain development by age 103 FIGURE 32 Illustration of the recommended menu for children from 4 to 6 years of age by the MOH 105 FIGURE 33 Number of presc hools by type of provider (number and percentage) 111 FIGURE 34 The split ECCE system in Malaysia 112 FIGURE 35 Example of proposed taskforce structure and terms of reference 114 FIGURE 36 Example of how Malaysia’s ECCE framework can be set up under the option of transferring ECCE administration from 2 to 6 years under MOE 118 FIGURE 37 Summary of pros and cons of the two options to streamline ECCE governance 118 FIGURE 38 Government expenditure on pre-primary education as a percentage of GDP in 2017 121 FIGURE 39 Preschool spending as a percentage of MOE’s total expenditure 122 FIGURE 40 Timeline of opening/closing of preschools 125 FIGURE 41 Malaysia saw one of the highest periods of school closure in the region and amongst its peers 125 FIGURE 42 Children from low-income households remain less likely to engage in online learning activities 127 FIGURE 43 Main reasons for students not being engaged in online activities 127 FIGURE 44 Guidance documents for teachers under the KPMPerkasaKU program to address learning loss 129 8 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia List of Tables TABLE 1 Summary of recommendations in this review 18 TABLE 2 Summary of recommendations in this review, by implementable timeframe 22 TABLE 3 Organization of the National Preschool Standard-based Curriculum (NPSC) 31 TABLE 4 Number of preschool teachers who have obtained minimum qualification 32 TABLE 5 List of selected key stakeholders interviewed following the preschool survey 39 TABLE 6 List of participating institutions and agencies in the Preschool Education Review Lab 41 TABLE 7 Number of applications for MOE preschools in 2022 and available seats (4+ and 5+) 57 TABLE 8 Fee assistance for mainstream and special needs preschool students59 TABLE 9 Preschool launching grants 62 TABLE 10 Main indicators in the quality dimensions of the NPQS 2.0 67 TABLE 11 Selected tools to measure the preschool quality 71 TABLE 12 Five core areas of knowledge in early childhood education 73 TABLE 13 Minimum qualification requirement for preschool teachers by countries 74 TABLE 14 Overview of the pathways available for preschool teachers to meet the minimum qualification 77 TABLE 15 Number of preschool teachers who have obtained minimum qualification 78 TABLE 16 Tuition fee assistance for preschool teachers 2013-2015 79 TABLE 17 Example of staggered target for minimum qualification for preschool teachers 84 TABLE 18 Overview of provision of CPD for preschool personnel in selected countries 86 TABLE 19 The “Involvement in professional learning” dimension as part of the performance standards expected of an entry-level academic teacher 88 TABLE 20 Organization of the National Preschool Standard-based Curriculum (NPSC) 97 TABLE 21 Six learning strands of Preschool Curriculum of Malaysia 97 TABLE 22 Learning time in preschools 98 TABLE 23 Main learning areas in the National Permata Curriculum with comparable learning strands in the National Preschool Standard-based Curriculum (NPSC) 100 TABLE 24 Indicators in the nutrition quality dimension in NPQS 105 TABLE 25 Nutritional status (children under the age of 5) trend in Malaysia104 TABLE 26 Current rate of food assistance in public preschools (per child per school day) 107 TABLE 27 Comparison table of preschools under MOE, KEMAS, JPNIN and the private sector 142 TABLE 28 Number of preschools by the public and private sector in Malaysia 144 TABLE 29 Number of preschool classes by the public and private sector in Malaysia 144 TABLE 30 Number of preschool enrollment by the public and private sector in Malaysia 144 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 9 List of Boxes BOX 1 Selected responses on the awareness of the importance of preschool education 49 BOX 2 Selected responses on issues regarding the availability and location of preschools 50 BOX 3 Selected responses on the need to cater to students with specific needs 51 BOX 4 Selected survey responses on the affordability of preschools 60 BOX 5 Selected responses on NPQS assessment and inspection 70 BOX 6 Selected responses on awareness about the importance of early childhood education 80 BOX 7 Selected responses on public preschool teachers’ English proficiency 88 BOX 8 elected responses on preschool leadership 91 BOX 9 Selected responses on preschool curriculum 101 BOX 10 Selected responses on NPQS assessment and inspection 102 BOX 11 Selected survey responses on issues relating to a lack of coordination 113 BOX 12 Selected responses on the impact of the pandemic on learning 126 BOX 13 Selected responses on the impact of the pandemic on socioemotional development 126 BOX 14 Selected responses on the lack of infrastructure to support remote learning 128 10 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia List of Country Examples COUNTRY EXAMPLE 1 Latin America’s experience with compulsory preschool education 55 COUNTRY EXAMPLE 2 Accelerated School Readiness (ASR) programs as an effective, low-cost model to reach students with limited access to preschool education in Ethiopia and Kiribati 58 COUNTRY EXAMPLE 3 Singapore’s demand-side funding framework 64 COUNTRY EXAMPLE 4 Internal self-evaluations and external inspections in Australia 72 COUNTRY EXAMPLE 5 Recognition of prior learning (RPL) across OECD countries 76 COUNTRY EXAMPLE 6 Ireland’s training subsidy to assist existing ECCE staff to attain mandatory minimum qualification requirements 82 COUNTRY EXAMPLE 7 Hong Kong SAR, China’s financial support for kindergarten teachers’ professional qualification upgrade 82 COUNTRY EXAMPLE 8 Philippines’s use of legislation to enforce quality standards including teachers’ minimum qualification in preschools 83 COUNTRY EXAMPLE 9 New Zealand’s increasing funding for early childhood centers with more qualified personnel 84 COUNTRY EXAMPLE 10 Mandating and funding professional development for kindergarten staff in Japan 85 COUNTRY EXAMPLE 11 New Zealand funding institutions that provide continuous training for teachers working with minority or disadvantaged children 86 COUNTRY EXAMPLE 12 Hong Kong SAR, China’s support for teachers’ CPD 92 COUNTRY EXAMPLE 13 Sweden’s investment in preschool teachers’ professional development 95 COUNTRY EXAMPLE 14 Ireland’s Workforce Development Plan for the ECCE Sector 95 COUNTRY EXAMPLE 15 Finland’s free school lunch 108 COUNTRY EXAMPLE 16 Bhutan’s revision to its school-feeding program to curb micronutrient deficiencies 108 COUNTRY EXAMPLE 17 Singapore’s Early Childhood Development Agency (ECDA) 117 COUNTRY EXAMPLE 18 Increasing domestic financing in Mali by developing priorities in planning and budgets 120 COUNTRY EXAMPLE 19 France’s comprehensive remediation strategies 130 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 11 List of Recommendations RECOMMENDATION 1 Ensure at least one year of universal preprimary education by making it free and compulsory for Malaysian children by 2030, and increase public preschool seats to bridge the enrollment gap (Medium- to long-term) 52 RECOMMENDATION 2 Identify high-need areas to more effectively close gaps in enrollment rates (Low-hanging fruit) 57 RECOMMENDATION 3 Reach out to unenrolled children (Short-term) 58 RECOMMENDATION 4 Adopt more flexible measures to increase enrollment in rural communities (Medium- to long-term) 59 RECOMMENDATION 5 Ease licensing and renewal processes to capture more registered preschools (Medium- to long-term) 59 RECOMMENDATION 6 Increase financial support to parents and preschool operators (Low-hanging fruit) 63 RECOMMENDATION 7 Review the NPQS assessment method to include measurement of outcomes and to strengthen validity of the assessments (Medium- to long-term) 70 RECOMMENDATION 8 Clearly communicate the larger purpose of the NPQS as a developmental tool (Short-term) 72 RECOMMENDATION 9 Make DECE programs more accessible (Short-term) 80 RECOMMENDATION 10 Communicate clear policy directions on teachers’ minimum qualification (Short-term) 83 RECOMMENDATION 11 Make professional development easily accessible and affordable for all preschool personnel (Short-term) 91 RECOMMENDATION 12 Provide targeted support for critical learning needs (Short-term) 94 RECOMMENDATION 13 Mandate CPD for all preschool teachers and empower them to manage their own professional development (Low-hanging fruit) 94 RECOMMENDATION 14 Raise the status of the profession (Medium- to long-term) 95 RECOMMENDATION 15 Invest in teachers’ professional development and resources to improve the understanding and delivery of the curriculum (Short-term) 102 RECOMMENDATION 16 Supplement children’s nutritional needs in preschools (Low-hanging fruit) 107 RECOMMENDATION 17 Assemble a taskforce to address issues faced by preschool providers and implement recommendations in this report. (Low-hanging fruit) 113 RECOMMENDATION 18 Revive inter-ministerial discussions to harmonize and integrate the ECCE sector, covering the age group of 0 to 6 years. (Low-hanging fruit) 115 RECOMMENDATION 10 Review allocation to preschools to be more in line with current needs and to meet targets and aspirations set. Target funding for disadvantaged groups and provide means-tested assistance to low-income students, while gradually expanding coverage to all Malaysian children. (Short-term) 122 RECOMMENDATION 20 Improve budget execution by integrating existing interventions and reviewing available resources for maximum benefits and cost efficiency (Medium- to long-term) 123 RECOMMENDATION 21 Focus on remediation and intervention for learning loss (Short-term) 129 RECOMMENDATION 22 Increase parental involvement to support students at home (Short-term) 131 12 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Acknowledgements This report was prepared by the World Bank Group’s Education Global Practice, consisting of Aija Rinkinen (Senior Education Specialist and Task Team Leader), Tengku Nurul Azian binti Tengku Shahriman (Senior Consultant), Hayeon Kim (Consultant), Suet Li Liew (Consultant), Carmen Loo (Consultant), and Yin Yee Tham (Consultant), in collaboration with the Malaysian Ministry of Education (MOE). Li Shen Liew (Program Assistant) and Ruzita Ahmad (Program Assistant) provided support for the coordination of surveys, stakeholder interviews, and discussion labs as part of the development of this report. The team benefited from comments and advice at various stages of preparation from Elizabeth Ninan (Senior Education Specialist) and Sangeeta Dey (Senior Education Specialist). The report was prepared under the overall guidance of Toby Linden (Practice Manager), Ronald Mutasa (Practice Leader), and Yasuhiko Matsuda (Country Manager, Malaysia). In particular, the team would like to thank the Ministry of Education, specifically the Educational Planning and Research Division, for close ongoing collaboration with the World Bank. This report also benefited from productive discussions with staff members from various agencies and institutions, as well as subject matter experts and practitioners in the sector. A special note of thanks is extended to the participants of the Preschool Education Survey, Stakeholder Interviews, and Preschool Education Review Lab (see Table 5 and Table 6 in this report), whose inputs, knowledge, and experience have helped shaped this report. Disclaimer: The paper is based on an assessment made by the World Bank in 2021. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 13 Abbreviations ABIM Malaysian Islamic Youth Movement (Angkatan Belia Islam Malaysia) AGD Accountant General’s Department APEL Accreditation of Prior Experiential Learning ASR Accelerated School Readiness B40 Bottom 40 percent (of the population) BM Bahasa Malaysia BPSH School Management Division (Bahagian Pengurusan Sekolah Harian) CLASS Classroom Assessment Scoring System COVID-19 Coronavirus Disease 2019 CPD Continuing Professional Development DECE Diploma in Early Childhood Education DKM Malaysian Skills Diploma (Diploma Kemahiran Malaysia) DOSM Department of Statistics Malaysia DSD Department of Skills Development DSKP Curriculum and Assessment Standards Document (Dokumen Standard Kurikulum dan Pentaksiran) ECCE Early Childhood Care and Education ECDA Early Childhood Development Agency ECDI Early Childhood Development Index ECERS-R Early Childhood Environment Rating Scale EPRD Educational Planning and Research Division EPPE Effective Provision of Pre-school Education EPT English for Preschool Teachers EPU Economic Planning Unit GDP Gross Domestic Product GGA Acei Global Guidelines Assessment GTP Government Transformation Programme HiTS Healthy Meals in Schools HRDC Human Resource Development Corporation IAB Aminuddin Baki Institute (Institut Aminuddin Baki) IMPak Placement Instrument Kits IPG Teacher Education Institute (Institut Pendidikan Guru) JAIN State Islamic Religious Department (Jabatan Agama Islam Negeri) JKM Department of Social Welfare (Jabatan Kebajikan Masyarakat) JPN National Registration Department (Jabatan Pendaftaran Negara) JPNIN Department of National Integration and Unity (Jabatan Perpaduan Negara dan Integrasi Negara) KEMAS Department of Community Development (Jabatan Kemajuan Masyarakat) KIFAS Kindergarten Fees Assistance Scheme KWAPM Poor Students Trust Fund Assistance (Bantuan Kumpulan Wang Amanah Pelajar Miskin) MEB Malaysia Education Blueprint (2013-2025) MELE Measure Early Learning Environments MOE Ministry of Education MOF Ministry of Finance MOH Ministry of Health MOHE Ministry of Higher Education 14 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia MWFCD Ministry of Women, Family and Community Development MQA Malaysian Qualifications Agency NCDC National Childcare Data Centre NCDRC National Child Development Research Centre NECIC National Early Childhood Intervention Council NGO Non-governmental Organization NKRA National Key Results Area NPSC National Preschool Standard-based Curriculum (Kurikulum Standard Prasekolah Kebangsaan) NPQEL National Professional Qualification for Educational Leaders NPQS National Preschool Quality Standard (Standard Kualiti Prasekolah Kebangsaan) NQS National Quality Framework OECD Organisation for Economic Co-operation and Development PADU Education Performance and Delivery Unit PAS Parti Islam Se-Malaysia PASTI Islamic Bud Care Centres (Pusat Asuhan Tunas Islam) PdPR Home-based teaching and learning (Pengajaran dan Pembelajaran di Rumah) PEMULIH People Protection and Recovery of the Economy Plan PENJANA National Economic Recovery Plan PLC Professional Learning Community PPD District Education Offices (Pejabat Pendidikan Daerah) PTPTN National Higher Education Fund (Perbadanan Tabung Pendidikan Tinggi Nasional) RPL Recognition of Prior Learning SMPK National Preschool Information System (Sistem Maklumat Prasekolah Kebangsaan) SPARK Singapore Preschool Accreditation Framework STREAM Science, Technology, Religion, Engineering, Arts, and Mathematics UKM Universiti Kebangsaan Malaysia UM Universiti Malaya UNESCO United Nations Educational, Scientific and Cultural Organization UNICEF United Nations International Children’s Emergency Fund UPSI Sultan Idris Education University (Universiti Pendidikan Sultan Idris) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 15 Summary Summary Summary The potential benefits from supporting early childhood development range from healthy development to a greater capacity to learn and increased productivity in adulthood (UNESCO 2022). There is a large body of literature that has linked participation in early learning programs to positive short- and long-term economic and social benefits, related to school readiness, education attainment, health, crime prevention, employability, and productivity (Meloy et al. 2019). As a result, countries have worked to expand access to preschool provision, particularly in the past decade, with all regions of the world increasing preprimary enrollment. Malaysia has also achieved success in this area, increasing preschool enrollment rates from 67 percent in 2009 to 84 percent in 2020, and intensifying efforts over the last ten years to expand and improve preschool education. Despite undertaking various preschool education reforms and initiatives, issues of access and quality remain and continue to grow. The Malaysia Education Blueprint (2013-2025) set a target to achieve universal preschool enrollment by 2020, and Malaysia, along with many other developing countries, has yet to achieve this. The Blueprint’s target for all preschool teachers to obtain a minimum qualification of a diploma in early childhood care and education (ECCE) by 2020 also remains unachieved, with longstanding obstacles that have yet to be resolved. Findings from the World Bank’s preschool survey and stakeholder interviews carried out for this report point to a range of issues, such as a lack of preschool seat availability in certain areas, low awareness among parents on the benefits of sending their children to preschools, affordability of preschool expenses, low teacher quality, and concerns over the overlapping roles between the multiple ministries and agencies that oversee ECCE in Malaysia. This review is carried out in collaboration with the Ministry of Education (MOE) and is a comprehensive assessment of Malaysia’s current preschool education landscape. The review aims to identify the gaps between the targets and aspirations set by MOE and the Government under various policy documents and the outcomes to date. It also aims to deep-dive into the underlying reasons for these gaps, and seek solutions to close them and achieve the aspirations. More importantly, the review uses a three-step multi- stakeholder engagement strategy (Preschool Survey, Stakeholder Interviews, and the Preschool Education Review Lab) to solicit inputs and insights from key stakeholders across relevant ministries and agencies, as well as from the private sector and non-governmental organizations (NGOs), for a better understanding of the issues faced by all parties and the solutions they may have. This report synthesizes the findings from research, analysis, and stakeholder engagement activities, and is organized by a framework of targets, pillars, and enablers. The report is anchored upon the two main government-set targets of achieving universal preschool enrollment and having all preschool teachers obtain a minimum of a diploma in ECCE in Malaysia. Achievement of the two targets depends on two main pillars; (1) improving Access to preschool education to enable every child to have an equal head start in education, and (2) enhancing the Quality of preschool education to ensure students obtain optimal learning outcomes. These pillars are further broken down into priority areas based on careful analysis of the issues and concerns raised by stakeholders. Two cross-cutting and vital enablers are also discussed, namely (1) Governance, including the harmonization of ECCE licensing and provision, and (2) Financing. Important equity considerations are present across both the pillars and enablers. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 17 Summary TABLE 1: Summary of recommendations in this review ACCESS TO To achieve universal 1 PRESCHOOL preschool enrollment EDUCATION by 2025 Malaysia had set a target to achieve universal preschool enrollment by 2020, but this has not been achieved, and the goalpost has been pushed to 2025. The key barriers to increasing preschool enrollment include a lack of awareness on preschool importance, unavailability of seats in certain geographic areas and communities, and affordability. Increasing enrollment toward compulsory preschool education Ensure at least Identify high-need Undertake interim Adopt more Ease ECCE one year of areas by under- measures to exible measures licensing and universal prepri- taking a survey of provide preschool by allowing local renewal processes, mary education who and where education to communities to e.g. by providing by making it free the children are, unenrolled adjust the curricu- provisional and compulsory followed by a children, such as lum, teaching licensing, extend- for Malaysian detailed mapping through the methods and ing license children by 2030, of preschool seat provision of fast- spaces to local validity, and and increase demand and track programs needs in order to setting up more public preschool supply to more and the deploy- increase enroll- registration and seats to bridge effectively close ment of mobile ment in rural renewal centers in the enrollment gaps in enroll- preschool class- communities. rural areas. gap (Medium- to ment rates. rooms. (Medium- to (Medium- to long-term) (Low-hanging (Short-term) long-term) long-term) fruit) Fee assistance and other financial incentives Reintroduce demand-side funding and incentives, such as fee assistance and support for other preschool-related costs, to enable parents to Increase support to enroll their children in affordable private preschools. (Low-hanging fruit) parents and preschool operators: Implement nancial support for preschool operators, such as launching grants or additional funding assistance for operators who open preschools in high-need areas, to enable them to reduce their operating costs so they are able to lower fees or invest in better teacher training or materials. (Low-hanging fruit) 18 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Summary To ensure 100% of QUALITY OF preschool teachers 2 obtain a minimum of a PRESCHOOL Diploma in Early Child- EDUCATION hood Education (DECE) by 2025. There are multiple aspects of quality issues that Malaysia’s preschools face, including in quality assurance, teacher quality and professional develop- ment, curriculum delivery and understanding, and the nutrition and health of students. Quality assurance for preschool education provision Review the National Preschool Quality Clearly communicate the larger purpose of Standard (NPQS) assessment method to the NPQS as a developmental tool, and the include measurement of outcomes including types of post-assessment support that is early childhood development and school available for preschools, including how, when, readiness indicators; and to strengthen and by whom this support will be provided. validity of assessment through external (Short-term) assessment of preschools’ quality standards or other forms of assessment and data collection methods. (Medium- to long-term) Enforcing minimum qualification for preschool teachers and supporting teachers to acquire them Make DECE programs (Diploma in Early Childhood Education) Convey a strong, clear message more accessible by collaborating with higher-learning provid- to all stakeholders of the ers to offer seats in suitable modalities in high-need areas, government’s commitment to ramping up part-time courses, expanding the availability of ensure all preschool teachers the Accreditation for Prior Experiential Learning (APEL) meet minimum quali cations by pathways, and exploring the Malaysian Skills Diploma 2025. Consider staggering the pathway for in-service teachers to become quali ed; and minimum quali cation targets make DECE programs more affordable by reviewing the to help operators and teachers restrictions such as the age limit, eligibility of second-time facing constraints to ful ll this borrowers, and eligibility of part-time programs offered by requirement. (Short-term) private higher learning institutions for the national study loan scheme for DECE programs, and introducing means-tested tuition fee assistance for teachers. (Short-term) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 19 Summary Continuous professional development (CPD) for teachers and school leaders Make training easily Provide targeted Mandate CPD for all Elevate the status of accessible and support for teachers’ preschool teachers, the profession by affordable for all overall pedagogical including those from creating clearer career preschool personnel skills and critical the private sector, and pathways and provid- by leveraging techno- learning needs. This empower them to ing career advance- logical solutions, includes reintroducing manage their own ment opportunities by going the extra mile English pro ciency professional develop- developing a compre- for teachers in remote support for public ment. (Low-hanging hensive workforce areas, and raising preschool teachers, fruit) development plan for awareness of CPD and preparing teach- the ECCE sector. opportunities. Local ers to cater to special (Medium- to peer-learning education needs long-term) networks can also be students by equipping coordinated to them with the skills provide more and resources to meet hands-on, eld-based, diverse learning and contextualized needs. (Short-term) learning. (Short-term) Nutrition and Curriculum health Invest in teachers’ professional development Supplement children’s nutritional needs in and resources to improve their understand- preschools by regularly reviewing the food ing and delivery of both academic and assistance rate for public preschools by non-academic aspects of the curriculum. This evaluating its adequacy, extending the milk includes to provide additional guidelines and program for students from low-income examples, as well as pedagogical support to households, and providing mean-tested food teachers. (Short-term) assistance for children from disadvantaged backgrounds who are enrolled in registered private preschools. (Low-hanging fruit) 20 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Summary CRITICAL ENABLERS Two vital, cross-cutting enablers, governance and nancing, are critical to ensuring momentum and achieving success in the effort to improve access to preschool education and enhance. Enabler #1: Governance Assemble a taskforce comprising all Revive inter-ministerial discussions between preschool providers to address issues they the MOE and the Ministry of Women, face and implement recommendations in Family and Community Development this report. (Low-hanging fruit) (MWFCD) to evaluate the three options presented in this report to harmonize and integrate the ECCE sector, covering the age group of 0 to 6 years. (Low-hanging fruit) Enabler #2: Financing Review allocation to preschools to be more Improve budget execution by integrating in line with current needs and to meet existing interventions and reviewing avail- targets and aspirations set. Target funding able resources for maximum bene ts and for disadvantaged groups and provide cost ef ciency. (Medium- to long-term) means-tested assistance to low-income students, while gradually expanding cover- age to all Malaysian children. (Short-term) THE COVID-19 PANDEMIC AND LEARNING LOSS IN PRESCHOOLS Prolonged school closures due to the pandemic have heightened the risk of learning loss and severely impacted the socioemotional development of young children, especially those from vulnerable households. Focus on remediation and intervention for Increase parental involvement to support learning loss by rst assessing the students at home, by providing guidance, pandemic-related learning loss to deter- tips, and materials for parents to help with mine speci c needs of students, then by their children’s learning at home. implementing interventions such as rolling (Short-term) out an outcome-focused condensed curriculum, extending learning hours, and creating structured after-school or holiday programs. (Short-term) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 21 Chapter 1: Introduction TABLE 2: Summary of recommendations in this review, by implementable timeframe LOW-HANGING FRUITS Implementable within a year ACCESS 1. Identify high-need areas to more effectively close gaps in enrollment rates 2. Increase financial support to parents and preschool operators 3. Mandate CPD for all preschool QUALITY teachers and empower them to manage their own professional development 4. Supplement children’s nutritional needs in preschools SHORT-TERM RECOMMENDATIONS 5. Assemble a task force to ENABLERS Implementable within 1- 3 years address issues faced by preschool providers and implement ACCESS 7. Reach out to unenrolled children recommendations in this report 6. Revive inter-ministerial discussions to 8. Clearly communicate the larger QUALITY harmonize and integrate the ECCE sector, purpose of the NPQS as a developmental tool covering the age group of 0 to 6 years 9. Make DECE programs more accessible 10. Communicate clear policy directions on teachers’ minimum qualification 11. Make professional development easily accessible and affordable for all preschool personnel MEDIUM- TO LONG-TERM 12. Provide targeted support for critical learning RECOMMENDATIONS needs Implementable over 3 years or more 13. Invest in teachers’ professional development and resources to improve the understanding ACCESS and delivery of the curriculum 17. Ensure at least one year of universal pre-primary education by making it free and compulsory for 14. Review allocation to preschools to ENABLER Malaysian children by 2030, and increase be more in line with current needs and to meet public preschool seats to bridge the targets and aspirations set. Target funding for enrollment gap disadvantaged groups and provide 18. Adopt more flexible measures to increase means-tested assistance to low-income enrollment in rural communities students while gradually expanding coverage 19. Ease licensing and renewal processes to to all Malaysian children capture more registered preschools 15. Focus on remediation and COVID-19 20. Review the NPQS assessment QUALITY intervention for learning loss method to include measurement of 16. Increase parental involvement to support outcomes and to strengthen validity of students at home the assessments 21. Raise the status of the profession 22. Improve budget execution by ENABLER integrating existing interventions and reviewing available resources for maximum benefits and cost efficiency 22 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 1: Introduction Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 23 Chapter 1: Introduction CHAPTER 1 Introduction 24 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 1: Introduction A growing recognition of the importance of the early childhood period as a remarkable time of growth and brain development, has led to a rising focus on ECCE globally. The first five years of life are the fastest period of human growth and development, as 90 percent of a person’s brain development occurs by the age of five (UNESCO 2022). As children are greatly influenced by their surroundings and the people around them during this stage, ECCE is not merely preparation for primary education, but also aims to build a solid and holistic foundation for lifelong learning by developing their social, emotional, cognitive, and physical needs, and exposing them to different learning experiences. As such, a child’s earliest years present a window of opportunity to develop the foundations of a country’s human capital. Investing in early childhood education leads to a multiplier effect, affecting not only children and their parents, but also the society and the economy of the country. Investments made in young children will generate returns that accrue over a child’s life. Large literature indicates that preschool significantly benefits children’s learning outcomes, as early skills serve as a multiplier for later skills (POTUS 2015). Early childhood education also has long-term benefits such as that of long-term cognitive skills, socioemotional skills, and employability. Children who are enrolled in preprimary education have higher contributions to the labor force productivity as adults with multiplied future earnings potential (UNICEF 2019a). Access to affordable and high-quality ECCE can contribute to an increase in the participation of women in the labor force. Preschool attendance has been demonstrated to increase the probability of the mothers’ full-time employment, weekly hours of employment, as well as increasing their earnings (Bennett and Collette 2006). Providing better access to (and lowering the cost of) high-quality childcare not only benefits the mothers’ employment, it also increases the family income subsequently and improves children’s learning outcomes. Sending children to good quality preprimary education programs has the power to facilitate upward mobility up to two generations. High-quality and affordable ECCE can also result in other positive externalities. There is a large body of literature that has linked participation in early learning programs to positive short- and long-term economic and social benefits, related to school readiness, education attainment, health, crime prevention, employability, and productivity (Meloy et al. 2019). In Jamaica, for example, young children who suffered from stunting (stunted growth) but received high-quality early stimulation support earned 25 percent higher wages as adults, allowing them to ‘catch up’ with their non-stunted peers (World Bank 2016a). In the United States, studies of preschool programs that have followed students into adulthood find up to $17 returned in social benefits for every dollar invested (Meloy et al. 2019). This is because people who attend preschool are less likely to be unemployed or involved in criminal activity later in life, and more likely to graduate high school and earn higher salaries. ECCE is therefore acknowledged as a quality investment for the advancement of a country’s human resources, gender equality, and social cohesion (UNESCO 2022). These benefits, along with an expansion of the skilled workforce and higher individual earnings for mother and child, have positive impact on the economy in the medium and long-term. In response to the overwhelming evidence on impact, countries have worked to expand access to preschool provision, particularly in the past decade, with all regions of the world increasing preprimary enrollment. Malaysia is no exception. It has achieved significant success in the last ten years, increasing preschool enrollment rates from 67 percent in 2009 to 83.5 percent in 2020. There are also currently more than 16,700 government-established preschools in Malaysia, and more than 9,100 privately established ones. Government expenditure on preschool education operations has more than tripled, from RM247 million in 2010 to RM837 million in 2020 (AGD 2022). Various key national strategic policy documents, such as the Malaysia Education Blueprint (MEB) and the five-year rolling Malaysia Plans have emphasized the importance of ECCE as a critical building block of a good education system by setting targets and formulating initiatives to improve access and quality of preschool education. Despite efforts to expand and improve preschool education in Malaysia, issues of access and quality remain and continue to grow. The MEB set a target to achieve universal preschool enrollment by 2020, and Malaysia, along with many other developing countries, has yet to achieve this. The Blueprint’s target for Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 25 Chapter 2: Overview of Preschools in Malaysia all preschool teachers to obtain a minimum of a diploma in ECCE by 2020, also remains unachieved, with longstanding obstacles that have yet to be resolved. Findings from the World Bank’s preschool survey and stakeholder interviews carried out for this report point to a range of issues, such as a lack of preschool seat availability in certain areas, low awareness among parents vis-à-vis the benefits of sending their children to preschools, affordability of preschool fees and related expenses, and concerns over the overlapping roles between the multiple ministries and agencies that oversee ECCE in Malaysia. This review is carried out in collaboration with the Ministry of Education (MOE) and is a comprehensive assessment of Malaysia’s current preschool education landscape. The review aims to identify the gaps between the targets and aspirations set by MOE and the government under various policy documents and the outcomes to date. It also aims to deep-dive into the underlying reasons for these gaps and seek solutions to close them and achieve the aspirations. More importantly, the review solicits inputs and insights from key stakeholders across relevant ministries and agencies as well as from the private sector and NGOs, for a better understanding of the issues faced by all parties and the solutions they may have. Where relevant, the review also looks into good practices from various countries’ systems to provide a different perspective or insight into potential solutions that have been implemented elsewhere. For clarity, the review will focus on preschool education in Malaysia, rather than on overall ECCE. In Malaysia, ECCE is split into two types of services: childcare and preschools. Childcare is usually provided by nurseries and childcare centers, and covers children from the age of 0-4 years. Preschools, on the other hand, offer educational programs to children between 4-6 years (or ages 4+ and 5+), usually with the main aim of developing school-readiness for entry into mandatory primary schooling at 7 years (Rahmatullah et al. 2021). The two are governed by separate acts and institutions, as is further described in section 2.5. This review focuses mainly on preschools in Malaysia, although in some places, it will address ECCE where both childcare and preschool issues interlap. The review is organized into eight chapters and focuses on two main pillars of Malaysia’s preschool education landscape: (1) access and (2) quality. It begins with an overview of preschool education in Malaysia in Chapter 2, covering its history, current landscape, governance structure and funding, curriculum, and standards, as well as teacher and leadership development. The overview is aimed at framing the context for the issues in preschool education in Malaysia that are discussed in further detail in the following chapters. Chapter 3 elaborates on the approach and tools that this review has adopted, including the use of a three-step stakeholder engagement strategy (online survey, stakeholder interviews, and a collaborative preschool education review lab), as well as how the inputs solicited from these activities have been used to construct the review’s framework. Chapters 4 and 5 deep dive into both the issues and potential solutions under the access and quality pillars of preschool education in Malaysia. Chapter 4 covers the two main access issues: Increasing enrollment toward compulsory preschool education and Fee Assistance and Other Financial Incentives, while Chapter 5 covers four main quality areas: Minimum qualification for preschool teachers, Teacher and school leaders’ capability, Nutrition and health, and Curriculum. Chapter 6 elaborates the critical enablers that will be vital for the success of the potential solutions discussed in Chapters 4 and 5, which include Governance and Financing. Chapter 7 provides some insights into the learning losses experienced by preschool-aged children due to the COVID-19 pandemic, before the review concludes in Chapter 8. 26 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 2: Overview of Preschools in Malaysia Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 27 Chapter 2: Overview of Preschools in Malaysia CHAPTER 2 Overview of Preschools in Malaysia Chapter 2: Overview of Preschools in Malaysia 2.1 A Brief History of Preschools in Malaysia Preschool education in Malaysia was formally introduced in the early 1970s and was provided by multiple government agencies. The earliest registered preschools were set up by the Department of Community Development (Jabatan Kemajuan Masyarakat or KEMAS) in 1971, an agency under the then Ministry of Rural and Regional Development (now known as the Ministry of Rural Development) to cater to children in rural and suburban areas. In 1972, the Ministry of Education (MOE) drafted the first legal document1 which set out procedures for the registration of a kindergarten, its teachers, and board of governors. This was followed by the establishment of Perpaduan kindergartens in 1976 under the Department of National Integration and Unity (Jabatan Perpaduan Negara dan Integrasi Negara or JPNIN) in urban areas. The 1980s saw a rise in preschool educational services, as the private sector became actively involved, offering an alternative to government-run preschools as the demand for ECCE grew (Foong et al. 2018; Rahmatullah et al. 2021). The MOE became directly involved in the provision of preschool education in 1992, when it undertook a pilot project to set up 1,131 preschool classes annexed to existing primary schools (Ng 2010; MOE 2018). In 1996, preschool education was formally incorporated in the national school system under the National Education Act 1996 (Act 550), and the annex preschool project was eventually rolled out nationwide in 2002 (Ng 2010; MOE 2018). To provide for children with special needs, MOE also launched a preschool special education program in 2003, with the opening of three inclusive classes in the states of Kedah, Pahang and Selangor. The special education program has since been expanded overtime across the country to meet needs as they arise (MOE 2018). 2.2 The Current Preschool Landscape Today, there are more than 16,700 government-established preschools in Malaysia, and more than 9,100 privately established ones. 2 MOE and KEMAS are the main providers of public preschool education, each accounting for 24 percent and 33 percent of preschools in Malaysia in 2021 respectively. Another provider of public preschool education is JPNIN (7% of preschools). The private sector has also emerged as a significant provider of preschool education, operating 36 percent of registered preschools in 2021 (Figure 1a). The private sector’s role is even more sizeable when it comes to the number of preschool classes in Malaysia (Figure 1b), accounting for 59 percent of all preschool classes, while KEMAS and MOE account for 20 percent and 18 percent respectively. In terms of enrollment (Figure 1c), the private sector accounts for 52 percent of all enrolled students ages 4+ and 5+, while the public sector accounts for 48 percent. It is important to note, however, that preschool education remains optional and is not a prerequisite to enter Primary/Standard One of the national school system. Annex 1 provides a comparison table of selected types of preschools in Malaysia, and Annex 2 provides a breakdown of schools, classes, and enrollment between the public and private sectors. 1 Referred to as the Kaedah-kaedah Guru, Kaedah-kaedah Kindergarten dan Sekolah Asuhan (Pendaftaran) 1972 Warta Kerajaan P.U. (A) 414. 2 As per the categorization in the Malaysia Education Blueprint (2013-2025) Annual Reports, public preschools refer to those operated by MOE, KEMAS and JPNIN, while private preschools refer to those operated by the private sector, state Islamic religious departments (Jabatan Agama Islam Negeri or JAIN), and the Malaysian Islamic Youth Movement (Angkatan Belia Islam Malaysia or ABIM). By this categorization, ABIM and JAIN-run preschools represent 11 % of privately-run preschools, while ABIM and JAIN-run preschool classes account for 7% of privately-run classes. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 29 Chapter 2: Overview of Preschools in Malaysia FIGURE 1: Number of (a) preschools, (b) classes, and (c) enrollment by providers in 2021* (number and percentage) (a) Number of preschools (b) Number of classes MOE, MOE, 9,684 6,216 (18%) (24%) KEMAS, 8,272 Private, KEMAS, Private, (33%) 32,754 10,814 9,136 (59%) (20%) (36%) JPNIN, JPNIN, 1,781 1,781 (7%) (3%) (c) Enrollment Private, Public, 455732 423482 (52%) (48%) Sources: Figures 1a & 1b – MOE 2022; Figure 1c – PADU 2021. Note: * For enrollment data (Figure 1c), the Islamic Bud Care Centres (Pusat Asuhan Tunas Islam or PASTI schools) run by the political party, Parti Islam Se-Malaysia or PAS, are also included under the private sector. Data for PASTI schools is limited to enrollment only and not available for the number of preschools and number of preschool classes in Figures 1a and 1b. 2.3 Curriculum and Standards for Preschools The National Preschool Standard-based Curriculum (NPSC), which is to be adopted by all preschool providers, was introduced by MOE in 2010 and revised in 2017. The revision was undertaken to reflect the new policy demands under the Malaysia Education Blueprint (MEB), which was aimed at producing students with 21st-Century skills, with a focus on thinking and living skills. The new curriculum promotes higher-order thinking skills such as problem-solving, critical thinking, creativity, and reasoning, and includes the teaching of religious and moral values. It comprises three types of standards: Content Standards, Learning Standards, and Performance Standards in the Curriculum and Assessment Standards Document (Dokumen Standard Kurikulum dan Pentaksiran or DSKP) (Table 3). The NPSC also encompasses six learning strands, which are (1) communication, (2) science and technology, (3) personal competence, (4) humanity, (5) physical development and aesthetics, and (6) spirituality, attitudes, and values. These learning strands are interdependent and integrated with creative and innovative thinking to produce students that are knowledgeable, practice critical thinking, and embrace good moral values (MOE 2017). 30 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 2: Overview of Preschools in Malaysia TABLE 3: Organization of the National Preschool Standard-based Curriculum (NPSC) Content Standards Learning Standards Performance Standards Specific statements which A set of criteria or quality A set of general criteria which specify the essential knowledge, indicator of learning and shows performance levels which skills, and values pupils need to achievement which can be pupils need to show when they acquire and can perform by the measured. have acquired a particular skill, end of a schooling term. knowledge, or value. Source: MOE 2017 While the Education Act 1996 stipulates that all types of preschools are required to adopt the NPSC, implementation is often flexible for schools run by the private sector or non-MOE-operators. Private preschools can augment the NPSC with additional learning programs (such as Montessori, Reggio Emilia, other international programs, or locally developed multi-intelligence or religious-based programs), subject to approval from MOE. There is also no restriction on the medium of instruction used in any registered private preschool, although Bahasa Melayu or BM (the national language) and English must be introduced as part of the communication strand. Most public preschools have BM as the medium of instruction (except for vernacular public schools, which adopt the mother tongue of Mandarin Chinese or Tamil). Most private preschools use English as the medium of instruction, with exposure to BM and Chinese/Tamil to prepare the children for Primary 1 in National or National Vernacular schools. In 2018, KEMAS piloted the STREAM (Science, Technology, Religion, Engineering, Arts, and Mathematics) Module which emphasizes Science and Technology and the 4Cs (Communication, Collaboration, Cooperation, and Critical Thinking). The module was developed in line with the Fourth Industrial Revolution and incorporates interactive exercises based on themes related to several industries such as aviation, astronomy, oil and gas, health, and robotics. In 2013, MOE developed the National Preschool Quality Standard (NPQS), with inputs from representatives of the relevant organizations, including the ECCE council. The NPQS is an online self- assessment tool to assess the quality of preschools, to ensure the proper interventions and support are given to preschools that are not meeting minimum standards. The NPQS covers five key quality areas; (1) Governance, (2) Curriculum, (3) Teachers and Teacher Assistants, (4) Parent Teacher Interaction, and (5) Health, Nutrition, and Safety. The assessment was initially conducted annually for both public and private preschools, and the self-assessment data was submitted and verified by the School Inspectorate Department (Jemaah Nazir) of MOE on an annual basis for public preschools, while the ECCE Council verified the data for private preschools. However, the frequency of these verifications weakened over time. The NPQS aimed at providing preschools that did not meet the quality standards with the necessary information, assistance, and guidance to achieve them. When the NPQS online assessment was launched in 2015, 89.3 percent of the 21,819 participating registered preschools were found to have met the quality standards (Chung et al. 2018). Both the MOE and ECCE Council have worked together to conduct inspections on preschools to ensure that preschools meet the minimum standards set out. While the MEB targeted for 100 percent of registered preschools to be inspected by 2020, the reduction in funding for the inspection and support to schools over the years has impacted the effectiveness of the implementation and sustainability of NPQS. The NPQS is discussed in further detail in Chapter 5. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 31 Chapter 2: Overview of Preschools in Malaysia 2.4 The Development of Teachers and Leadership in Preschools In 2016, the Malaysian Cabinet set an ambitious target that all preschool teachers shall have a minimum diploma qualification in ECCE by 2020. This goalpost was missed and postponed to 2025. The requirement that all new preschool teachers must have a Diploma in ECCE is already in place. As of 2022, about half (51%) of the preschool teachers have not obtained a Diploma in ECCE (see Table 4). This implies that to achieve the government’s target, 22,509 teachers, the majority of whom are from the private sector, will have to complete their Diploma in ECCE within the next three years. Teachers have several pathway options to obtain the ECCE diploma or equivalent qualification, including via the Teacher Education Institutes (IPGs), as well as public and private higher learning institutions, or by obtaining the Accreditation of Prior Experiential Learning (APEL), or the Malaysian Skills Diploma in Care Supervision and Early Childhood Development Education offered by the Department of Skills Development. The ECCE Council also aims to professionalize ECCE, with the objective of raising the status and attractiveness of the profession, and providing better pay and career prospects to preschool teachers. Close to three-quarters (73%) of the private sector preschool teachers have not attained the minimum diploma qualification (Table 4), representing the bulk of the 22,509 teachers who have not yet obtained their minimum diploma qualification. Private preschool teachers also tend to have lower academic or professional qualifications compared to MOE preschool teachers, as well as limited opportunities to participate in professional development activities. Unlike MOE preschools, many private preschools also do not have teaching assistants or student management assistants to assist the preschool teachers (PADU 2018). TABLE 4: Number of preschool teachers who have obtained minimum qualification Number of academically Remaining teachers Total number of Agency qualified preschool teachers who need to become preschool teachers with a DECE qualified MOE 8,900 8,143 (91%) 757 (9%) KEMAS 10,447 6,062 (58%) 4,385 (42%) JPNIN 1,715 1,507 (88%) 208 (12%) Private Sector 23,436 6,277 (27%) 17,159 (73%) Total 44,498 21,989 (49%) 22,509 (51%) Source: PADU 2022a Principals of MOE preschools hold a National Professional Qualification for Educational Leaders (NPQEL 2.0) from the Aminuddin Baki Institute (IAB), a school leadership institute under the purview of MOE. The NPQEL is an in-service leadership and management training program that was modeled after the National Professional Qualification for Headship in England. It was introduced in 1999 and later made mandatory for all public-school principals in 2014. The NPQEL was revised in 2018 to NPQEL 2.0, and aims to produce school leaders with ten competencies; namely, strategic thinking, leadership change, decision making, problem solving, leading learning, capacity building, collaboration and networking, effective communication, leadership, and towering personality. MOE selects school leaders from those who have obtained their NPQEL certification and have registered interest to become a principal on the online e-Pangkat platform. Candidates identified to become principals will have to undergo a residency and immersion program (PRIme), which exposes and immerses them in school leadership and management, including through the shadowing of a current principal of the school in which the candidate is expected to assume headship (Gurcharan 2019). 32 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 2: Overview of Preschools in Malaysia Other types of preschools have different school leadership arrangements. KEMAS and JPNIN preschools are community preschools and are generally smaller, with some having only one or two classes. These preschools therefore have a senior preschool teacher as the de facto head of the preschool, overseeing the administration matters of the school. KEMAS preschool teachers report to Penyelia KEMAS or KEMAS Supervisors, who also oversee other KEMAS programs such as skills training for the larger community. In the private sector, most preschools are owner-operated or are established under a franchise arrangement. Typically, the franchisee/owner-operator plays the role of Principal, administrator, and sometimes also of the preschool teacher. In the more well-resourced and premium preschools, professional principals are appointed to administer the school and the teaching staff. 2.5 Governance Structure and Funding of Preschools In Malaysia, ECCE is governed under a split system where childcare and preschools are overseen by two ministries and regulated by different acts (Figure 2). Public and private childcare services are managed by the Department of Social Welfare (Jabatan Kebajikan Masyarakat, JKM ) of the Ministry of Women, Family and Community Development (MWFCD) and regulated by the Child Care Centre Act 1984, covering children from the ages of 0 – 4 years. Public and private preschools, on the other hand, are overseen by MOE and governed under the Education Act 1996, covering children ages 4+ and 5+. This kind of split structure has also been seen in other countries, such as in Portugal and in Singapore, prior to Singapore’s harmonization of its ECCE management under one agency in 2013. The governance structure of preschool education in Malaysia is discussed in further detail in Chapter 6. FIGURE 2: The split ECCE system in Malaysia ECCE Childcare Preschool Education (0 – 4 years) (4+ – 5+ years) Overseen by: Overseen by: Ministry of Women, Ministry of Education Family and Community (MOE) Development (MWFCD) Governed by: Governed by: Education Act 1996 Childcare Centre Act 1984 Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 33 Chapter 2: Overview of Preschools in Malaysia Other than being a provider, MOE’s role as an overseer and regulator of preschool education in Malaysia also includes the following responsibilities: 1. Develop policies and regulations on preschools, 2. Plan the capacity of preschools, both in the public and private sector, 3. Develop the National Preschool Standard-based Curriculum (NPSC) which specifies the knowledge, skills, and values that are expected to be acquired by the students at the end of their preschool education and oversees its implementation, 4. Develop national preschool quality standards, and carry out inspections and verification of self- assessments conducted by preschools, 5. Develop and maintain the National Preschool Information System to collate data and information on preschools including on capacity, enrollment, preschool teachers, etc., 6. Issue operating licenses and register private sector and NGO-run preschools, 7. Develop and carry out the professional development and capacity building of principals and teachers, 8. Inspect and monitor preschools and develop intervention plans to improve the quality of teaching and learning in preschools. In 2010, an independent ECCE council was established to support the development of preschool education in Malaysia and form a bridge between the relevant government bodies and the private sector. One of the main objectives of the ECCE Council is to enhance the professional development of preschool teachers in the private sector, as many of them have yet to obtain a Diploma in ECCE. The ECCE Council has been in constant collaboration with the MOE and the Ministry of Higher Education (MOHE) and higher education providers, in developing innovations in the ECCE Diploma such as online or blended learning, modular, and Accreditation of Prior Experiential Learning (APEL), to accelerate the upgrading of qualifications of preschool teachers. Preschool licensing efforts were also ramped up in a joint effort between MOE and the ECCE Council to have more preschools registered in the National Preschool Information System. The ECCE Council was also involved in the development of both the national preschool curriculum and quality standards to ensure harmonization of curriculum standards and quality assurance across public and private preschools. The Council also acts as a platform for private preschool operators to escalate issues and challenges and share best practices from the private sector to MOE (PADU 2017). In terms of funding, 64 percent of preschools in Malaysia are publicly funded and operated by multiple government agencies. Publicly funded preschools are managed by MOE (24%) and other government agencies such as KEMAS under the Ministry of Rural Development (33%), and JPNIN under the Ministry of National Unity (7%). The other 36 percent of preschools are privately funded or run by non-governmental organizations (NGOs). Despite most of Malaysia’s preschools being publicly funded, government expenditure on pre-primary education as a percentage of gross domestic product (GDP) is low relative to other upper- middle-income (e.g., Argentina Belarus, Bulgaria, Peru) and high-income (e.g., the United Kingdom, Australia, New Zealand, Chile) countries (Figure 3). 34 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 2: Overview of Preschools in Malaysia FIGURE 3: Government expenditure on pre-primary education as a percentage of GDP in 2017 % of GDP (2017) 1.2 1.15% 0.94% 0.72% 0.75% 0.7 0.63% 0.46% 0.48% 0.49% 0.54% 0.40% 0.41% 0.34% 0.25% 0.17% 0.22% 0.23% 0.2 0.10% 0.15% 0.02% Singapore Japan Malaysia Hong Kong Australia Colombia Netherlands Portugal Switzerland New Zealand Argentina Germany Uruguay Peru Norway Chile Bulgaria Belarus UK -0.3 Source: World Bank 2022 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 35 Chapter 3: Review Approach CHAPTER 3 Review Approach 36 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 3: Review Approach The review uses a three-step multi-stakeholder engagement strategy, in addition to traditional research and analysis, to provide a comprehensive account of the main issues in Malaysia’s preschool education and potential solutions to resolve them. In October 2021, the Preschool Education Review began with preliminary data collection, research, and analysis on the current preschool landscape in Malaysia. Shortly after, an online Preschool Survey was administered to a range of preschool education stakeholders, and this was followed by one-on-one interviews with selected key stakeholders to better understand the survey findings and narrow down priority areas for brainstorming in the Preschool Education Review Lab. The lab, which spanned three days, brought together the various parties involved for intense discussions to identify and agree upon the roadblocks toward achieving government-set targets in preschool education and ways to resolve them. The findings and recommendations from the research, analysis, and multistakeholder engagement activities were streamlined, refined, and reviewed by policymakers and World Bank global education experts, and then documented in this report. FIGURE 4: Review approach Three-step multi-stakeholder engagement: #1 #2 #3 Preschool Stakeholder Preschool Education Research Review Report Survey Interviews Review Lab Nov 2021 Dec 2021 Mar 2022 30 Mar – 1 Apr 2022 Apr - May 2022 Literature Online survey to 1-to-1 follow up Facilitated intensive lab Refinement of findings and review and gather information, phone/email/ discussions involving cross- recommendations based on ACTIVITIES analysis on issues faced by the online interviews sectoral stakeholders to inputs from the Lab, current key stakeholders with selected identify roadblocks, syndication with policy makers, landscape. and possible stakeholders. brainstorm and agree on review by World Bank global solutions. potential solutions. education experts and international case studies. Synthesis of information on past and current policy Issues, recommendations, A comprehensive report directions and interventions, current progress against and next steps collectively comprising international best targets, gaps, challenges and potential solutions, agreed upon in the Lab and practices and localised OUTCOMES supported where possible with data, as inputs to narrow presented to management recommendations that have down the priority areas for the Preschool Education representatives from MOE accounted for the views of Review Lab. and the World Bank. multiple stakeholders. Outcomes used as inputs in this review. Gathering of information and narrowing down Drill down on issues and potential solutions in priority areas, of priority areas writing and dissemination of report Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 37 Chapter 3: Review Approach In December 2021, an online Preschool Survey was administered and a total of 426 responses were received. The survey was disseminated to a set of preschool-related institutions and agencies (e.g., MOE, KEMAS, JPNIN, ECCE Council) which then freely circulated the survey to their teachers, members, and communities. As such, the exact number of people that the survey was circulated to, and the response rate, are both unknown. Respondents included teachers and preschool operators from both the public and private sectors, policymakers, teacher training institutions, and representatives from academia and civil society (see Figure 5 for the composition of responders).3 The survey sought the opinions of the various stakeholders around key issues on quality, access, and equity, including on achieving universal preschool enrollment , quality assurance and standards​, teacher training and support, and learning loss and the well- being effects from the COVID-19 pandemic​ . (See Annex 3 for the full survey and Annex 4 for the list of institutions that the survey was disseminated to.) FIGURE 5: Survey respondents by category (number and percentage) Teacher training providers and academia, 11 (3%) Civil society, 2 (0%) Policy makers, 11 (3%) Preschool operators, Teachers, school leaders and 355 (83%) management, 47 (11%) (Public: 96.6%; (Public: 4.3%; Private: 1.4%, Private: 95.7%) Unspecified 2.0%) Source: World Bank Malaysia Preschool Survey 2021 The survey illuminated several pertinent issues regarding the perception of access and quality of preschool education in Malaysia: i. Respondents rated their satisfaction with the progress in achieving universal preschool education in Malaysia at an average score of 3.7 on a five-point scale (Q1, Figure 6). – However, the average rating between the categories of respondents varied, with the teacher training providers, academia, civil society, preschool operators, school leadership and management (mainly from the private sector) rating the progress lower as compared to policymakers and teachers (mainly from the public sector). 3 Due to the heavy representation of public-school teachers in the survey responses (83% of total respondents), the stakeholder interviews and Preschool Education Review Lab that followed were conducted with more representation from other parties such as policymakers and preschool providers, to ensure that the final inputs into this review had been verified and agreed upon by all of the preschool-related stakeholders. Close to 60% of the lab participants (see Figure 7) came from the various policymaking institutions, such as MOE, KEMAS, MWFCD, and MOF, 17% were preschool operators, 15% were from teacher training institutions and academia, 8% from NGOs, and only 2% were teachers. 38 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 3: Review Approach – 96 percent of respondents agreed that achieving universal preschool enrollment is possible, although 37 percent thought that it could not be achieved within the next five years. – 95 percent of respondents thought that preschool education should be made compulsory. ii. In terms of quality, respondents rated the current quality of preschool education in Malaysia at an average score of 3.8 on a five-point scale (Q2, Figure 6). – However, similar to the question on enrollment, respondents from the teacher training providers, academia, civil society, preschool operators, school leadership and management categories (mainly from the private sector) rated lower than the average rating, while respondents from the policymakers and teacher categories (mainly from the public sector) rated higher than the average rating. This discrepancy in perceptions indicates a possible heavier lack of access to professional development, resources, and support in the private sector compared to the public sector. – 31 percent of respondents felt that the level of training and support they received in their schools was insufficient, and indicated a range of support required, including pedagogical training, curriculum understanding, catering to different needs of students, and administrative support. The survey findings are discussed in further detail throughout the paper. In March 2022, one-on-one stakeholder interviews were conducted to clarify and better understand the survey findings. Interviewees were selected to ensure representation of the various preschool providers. Selected interviewees are listed in Table 5. TABLE 5: List of selected key stakeholders interviewed following the preschool survey List of Selected Key Stakeholders Interviewed in March 2022: 1. Department of Community Development, KEMAS 2. Curriculum Development Division, MOE 3. Private School Division, MOE 4. School Management Division (BPSH ), MOE 5. Education Performance and Delivery Unit (PADU ), MOE 6. Professor Datuk Dr. Chiam Heng Keng (ECCE Expert, Founder and Past President of ECCE Council) 7. Associate Professor Dr. Lydia Foong (formerly with SEGI University, provider of ECCE Programmes) 8. Datin Professor Dr. Mariani binti Md Nor (President of the ECCE Council)​ 9. Sonia Chin (EXCO member of the Kindergarten Association of Sabah) 10. Rumba Rani (member of the Kindergarten Association of Sabah) 11. Puan Jameyah Sheriff (Advisor to KEMAS and ECCE Expert) Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 39 Chapter 3: Review Approach FIGURE 6: Survey responses to questions on universal preschool enrollment and preschool education quality in Malaysia Q1: How satisfied are you with the progress in achieving universal preschool enrollment? (On a five-point scale) Preschool operators, school leadership and Teacher training management: 3.4 Policy makers: 3.8 providers, academia: 3 1 5 Teachers: 3.8 Not satisfied at all Civil society: 3 Average response: Very satisfied 3.7 Q1a: Do you agree that universal preschool enrollment Q1b: Do you think that preschool education should be in Malaysia is possible? made compulsory? Yes, but not possible in the No, 5% No, 4% next ve years, 37% Yes, 95% Yes, in the next 5 years,59% Q2: How satisfied are you with the current quality of preschool education in Malaysia? (On a five-point scale) Policy makers: Teacher training 3.8 providers, academia: 2.7 Civil society: 3 Teachers: 3.9 1 5 Not satisfied at all Preschool operators, school Average response: Very satisfied leadership and management: 3.1 3.8 Q2a: Do you feel that the level of training and support Q2b: (Continued from previous question) If not, what you receive in your school is sufficient? type of support do you require? Pedagogical No, 31% training, 25% Other, 3% Administrative Duties, 20% Understanding of curriculum, Catering to 22% Yes, 69% the different needs of students, 30% Source: World Bank Malaysia Preschool Survey 2021 40 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 3: Review Approach A three-day Preschool Education Review Lab was held from the 30th of March to the 1st of April 2022, aimed at bridging multisectoral stakeholders, deep-diving into priority areas, and collectively resolving the issues to arrive with recommendations for consideration by MOE and policymakers. The lab brought together more than 80 participants from various preschool-related organizations and agencies from both the public and private sectors, all of whom offered varying perspectives and experiences (see Figure 7 for composition of lab participants and Table 6 for list of participating institutions and agencies). The lab participants reached an agreement in a plenary session on the priority areas before breaking out into groups to discuss the selected priority areas, identify the issues and roadblocks, and collectively develop the recommendations. The findings of the lab were presented by the participants to management representatives from both the MOE and the World Bank on the third day of the lab. TABLE 6: List of participating institutions and agencies in the Preschool Education Review Lab List of Participating Institutions and Agencies in the Preschool Education Review Lab: Public Sector Private Sector, NGOs and Associations 1. Ministry of Education (MOE) Associations, Councils & NGOs: • Educational Planning and Research Division 1. Early Childhood Care and Education (ECCE) Council (EPRD) • Preschool Management Unit, School 2. Malaysia Association of Professional Early Childhood Management Division (BPSH) Educators (MAPECE) • Policy and Strategic Planning Unit, Private 3. Kindergarten Association of Sabah (Persatuan Tadika Education Division Sabah) • Research and Planning Unit, Special Education 4. Childline Foundation Malaysia Division 5. PACOS Trust (an NGO that supports indigenous • Teacher Development Policy and Planning Sector, communities in the state of Sabah) Teacher Professionalism Division • GENIUS Division Teacher Training Providers: • Education Performance and Delivery Unit (PADU) 1. Open University • Inspectorate of Schools (Jemaah Nazir) 2. SEGI University 2. Ministry of Higher Education (MOHE) 3. DIKA College • Malaysian Qualifications Agency (MQA) • Universiti Malaya (UM) Preschool Operators: • Universiti Kebangsaan Malaysia (UKM) 4. REAL Education Group • Universiti Pendidikan Sultan Idris (UPSI) 5. WhyteHouse Education Group 3. Ministry of Women, Family and Community 6. Tadika Anglikan Penampang Development (MWFCD) • ECCE division 7. Protestant Church in Sabah (PCS) 4. Ministry of Finance (MOF) Subject Matter Experts: • National Budget Office 8. Professor Datuk Dr. Chiam Heng Keng 5. Economic Planning Unit, Prime Minister’s Department 9. Puan Jameyah Sheriff (EPU) • Human Capital Development Division 10. Datin Professor Dr. Mariani binti Md Nor 11. Dato’ Satinah Syed Saleh 6. Ministry of Rural Development • ECCE Division, KEMAS 7. Department of National Unity and Integration (JPNIN) • ECCE Unit Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 41 Chapter 3: Review Approach FIGURE 7: Lab participants by category (number and percentage) Preschool operators, Teachers, 14 (17%) 2 (2%) Teacher training Policy makers, providers and 49 (58%) academia, 13 (15%) NGOs, 7 (8%) Source: Author’s summary The lab discussed two pillars and two enablers that were arrived at after careful analysis of issues and concerns raised by stakeholders through the preschool survey and interviews (Figure 8). Discussions were anchored upon the two main government-set targets of achieving universal preschool enrollment and having all preschool teachers obtain a minimum qualification of a diploma in ECCE in Malaysia, and were split into two main pillars; (1) improving Access to preschool education to enable every child to have an equal head start in education, and (2) enhancing the Quality of preschool education to ensure students obtain optimal learning outcomes. Discussions regarding the Access pillar were further broken down into two priority areas: Increasing enrollment toward compulsory preschool education, and Fee assistance and other financial incentives. The Quality pillar, on the other hand, was organized into four priority areas: Minimum qualification for preschool teachers, Teacher and school leaders’ capability, Nutrition and health, and Curriculum. Two cross-cutting enablers were also discussed; namely, (1) Governance, including the harmonization of ECCE licensing and provision, and (2) Financing, as vital factors in the success of achieving the set targets. Equity considerations were also present across both pillars. These pillars and enablers, as well as the findings from the lab, are discussed in detail throughout this report. This review report synthesizes, summarizes, and refines the findings from research, analysis, and stakeholder engagement activities, and is organized by the same framework of targets, pillars, and enablers (Figure 8). Findings are streamlined and reviewed by policymakers within MOE and World Bank global education experts, before documented in this report. The report features the key, multifaceted issues faced by various stakeholders in expanding access to preschool education in Malaysia and improving its quality. It also lays out the recommended solutions to tackling these issues, using inputs from the research and stakeholder engagement activities undertaken. 42 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 3: Review Approach The three-step stakeholder engagement strategy provides a significant value-add to the recommendations in this paper in ensuring that the proposals account for the views of representatives from all the parties involved, many of whom have been a part of the preschool system for many years. The recommended solutions are also supported by international good practices and country examples where relevant. The review is a milestone in the World Bank’s journey to support the efforts by the Government of Malaysia and all concerned stakeholders to improve the access to preschools for all children, and to greatly enhance the quality of preschool education for Malaysia’s future generations. FIGURE 8: Framework of targets, pillars and enablers MAIN TARGETS 1. To achieve universal preschool enrollment by 2025 2. To ensure 100% of preschool teachers obtain a minimum of Diploma in ECCE by 2025 Pillar 1: Access Pillar 2: Quality • Priority Area #1 • Priority Area #3 Increasing enrollment towards Minimum quali cation for preschool compulsory preschool education teachers • Priority Area #2 • Priority Area #4 Fee assistance and other subsidies Teacher and school leaders' capability • Priority Area #5 Nutrition and health • Priority Area #6 Curriculum CRITICAL & CROSS-CUTTING ENABLERS Enabler 1: Governance Establishing a clear governance structure for ECCE to ensure smooth coordination and clear accountability. Enabler 2: Financing Identifying potential sources of funding to ensure sustainability of core activities to achieve intended outcomes. Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 43 Chapter 4: Access to Preschool Education CHAPTER 4 Access to Preschool Education Chapter 4: Access to Preschool Education 4.1 Achieving Universal Enrollment in Malaysia As awareness of the benefits of preschool education grew, Malaysia’s policymakers have sought to increase access to preschools for all Malaysian children. Since 2010, preschool education reforms and initiatives in Malaysia have taken shape and been implemented under the umbrella of a few key national agendas, mainly the specific National Key Results Area (NKRA) under the Government Transformation Programme (GTP) and the Malaysia Education Blueprint (MEB). These efforts are also consistently highlighted in the five-year national socioeconomic development plans. The MOE had targeted to achieve universal preschool enrollment by 2020 under the MEB, but this was not achieved. The aim was to give every child a good head start through equal access to preschool education, and to enable each child to achieve his/her full potential. This is in line with the United Nations Educational, Scientific and Cultural Organization (UNESCO)’s Education 2030 agenda and target 4.2 of the Sustainable Development Goal 4, which aims to ‘by 2030, ensure that all girls and boys have access to quality early childhood development, care and pre-primary education so that they are ready for primary education’ (UNESCO 2022). Prior to the MEB, the GTP had also set goals to increase the preschool enrollment rate to 87 percent by 2012 and 92 percent by 2015. In 2016, the 11th Malaysia Plan (2016-2020) re- emphasized the MEB’s target of achieving universal preschool enrollment by 2020. While these goals were not met, efforts toward pursuing them had resulted in significant improvements in preschool enrollment up to 2019. The most recent 12th Malaysia Plan (2021-2025) continued to aim to achieve universal preschool enrollment by 2025. Even though the journey toward universal preschool enrollment in Malaysia has not been perfect, it remains an important and worthwhile one to persist on. As an upper-middle-income country, Malaysia acknowledges the importance of an educated and skilled workforce to achieve high-income nation status. Developing an individual’s potential – and a country’s human capital – depends on giving children the best possible start in life. Preschool education is therefore not only a critical building block of a good education system, but also a contributor to future economic growth and prosperity. In addition to preparing children for primary school, preschool education builds a solid and broad foundation for lifelong learning and well- being (UNESCO 2022). The learning loss resulting from school closures due to the COVID-19 pandemic further exacerbates the need for quality preschool education that is easily accessible and affordable. 4.2 The Current Situation Through a range of interventions introduced in the last decade, overall preschool enrollment leaped from 67 percent in 2009 to 85.5 percent in 2016 and have remained relatively stagnant since then. In 2020, the enrollment rate dropped to 83.5 percent due to the COVID-19 pandemic (Figure 9). The breakdown of the enrollment rate between age groups indicates that the challenge is greater for the enrollment of children aged 4+ (Figure 10). While the overall preschool enrollment rate for the 4+ and 5+ age groups in 2020 was 83.5 percent, the enrollment rate for the 5+ age group was significantly higher at 90.2 percent, compared to the 4+ age group at 76.7 percent. In 2021, enrollment rates for the 4+ and 5+ age groups both declined further. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 45 Chapter 4: Access to Preschool Education FIGURE 9: Preschool enrollment rate in Malaysia (%) 84.2% 84.6% 85.5% 84.3% 85.4% 85.7% 83.5% 80.2% 81.7% 77.2% 72.4% 67.0% 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Sources: PEMANDU 2012; PEMANDU 2013; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019; PADU 2020; PADU 2021. FIGURE 10: Enrollment rates for 4+ and 5+ year olds at preschools in Malaysia 100% 95% 91.9% 91.9% 92.0% 90.9% 91.0% 90.7% 90.8% 90.2% 87.9% 88.3% 90% 84.9% 83.7% 85% enrollment Rate 80% 79.7% 80.7% 75% 79.4% 77.2% 77.8% 76.7% 76.5% 70% 72.6% 72.6% 65% 67.4% 4+ years old 68.5% 60% 5+ years old 55% 59.8% 50% 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 Sources: PEMANDU 2012; PEMANDU 2013; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019; PADU 2020; PADU 2021. Over the past decade, enrollment in private preschools has outpaced public preschools (Figure 11). In 2010, 54 percent of preschool students were enrolled in public preschools, while 46 percent were enrolled in the private sector. This trend has reversed since 2014, and by 2020 the share of enrolled students in the public sector was only 48 percent, while the share of enrollment in the private sector was 52 percent. However, there was a drop in enrollment in the private sector in 2020 for the first time during the decade, accompanied by a small increase in public preschool enrollment, possibly indicating a fall in demand for fee-paying private preschools during the pandemic, alongside a small rise in demand for free or heavily subsidized public preschools. 46 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education FIGURE 11: Public and private preschool enrollments in Malaysia (number and percentage) 500,000 53.0% 52.4% 53.0% Number of enrolled students 51.8% 51.3% 450,000 50.7% 50.6% 54.7% 52.6% 51.2% 400,000 54% 48.7% 47.6% 47.0% 47.0% 48.2% 49.4% 49.3% 48.8% 350,000 47.4% 300,000 45% 46% 250,000 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Public Private Sources: PEMANDU 2012; PEMANDU 2013; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019; PADU 2020; PADU 2021. The increase in enrollment rate over the last decade is largely due to the rapid opening of preschool classes, especially in private preschools (Figure 12). In 2013, there were 21,574 public and 27,289 private preschool classes nationwide. By 2021, private classes had grown by a staggering 20.7 percent (5,465 classes) to 32,754 classes, while public classes had only grown by 3.3 percent (705 classes) to 22,279 classes. The rise in private preschool classes can be largely attributed to the government’s efforts since 2013 to encourage the opening of private preschools and for parents to send their children to private preschools. This includes initiatives such as fee assistance, grants, and tax incentives. Awareness and advocacy campaigns were also undertaken by MOE to educate parents regarding the long-term benefits of ECCE and to enroll their children in registered quality preschools (PADU 2015). In 2021, the number of private preschool classes fell slightly from the previous year, as a result of closures due to the COVID-19 pandemic. Attendance dropped as many parents feared to send their children to preschool for health and safety reasons and/or found the fees unaffordable due to the drop in their household incomes. FIGURE 12: Number of private and public preschool classes 60,000 53,920 54,759 55,120 55,033 49,577 49,595 52,091 52,358 48,863 50,000 40,000 29,407 30,062 31,642 32,534 32,843 32,754 27,289 27,752 27,938 (56.5%) (57.4%) (58.7%) (59.4%) (59.6%) (59.5%) (55.8%) (56.0%) (56.3%) 30,000 20,000 21,574 21,825 21,657 22,684 22,296 22,278 22,225 22,277 22,279 10,000 (44.2%) (44.0%) (43.7%) (43.5%) (42.6%) (41.3%) (40.6%) (40.4%) (40.5) - 2013 2014 2015 2016 2017 2018 2019 2020 2021 Public Private Total Source: MOE 2022 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 47 Chapter 4: Access to Preschool Education Despite the increase in enrollment rate, Malaysia has yet to achieve universal preschool enrollment, and this goalpost has been pushed to 2025. The enrollment rates have remained stagnant from 2015 to 2019 and dropped in 2020 to 83.5 percent. In 2020, the Covid-19 pandemic intensified the issue as parents practiced caution in sending their children to school and many families had their incomes impacted. At Malaysia’s peak preschool enrollment rate in 2019 of 85.7 percent, it was still below the preschool enrollment rate of the high-income countries that Malaysia aspires to, and also below that of some ASEAN countries (Figure 13). The most recent 12th Malaysia Plan (2021-2025) had pushed the goalpost to achieve universal preschool enrollment from 2020 to 2025. FIGURE 13: Malaysia’s preschool enrollment rate in 2019 (at its peak) as compared to high-income countries and regional peers Sweden 99.9% Vietnam^ 99.9% U.A.E 99.9% Ireland 99.9% Poland 98.9% Finland 98.8% Thailand 98.7% Indonesia^ 95.8% Brunei* 94.3% Singapore 94.2% Estonia+ 93.2% Korea 89.3% Philippines 86.3% Malaysia 85.7% Cambodia* 70.5% Laos 69.2% Sources: UIS 2021; MOE 2022 Notes: † data from 2017; ^ data from 2018; * data from 2020 Findings from the Preschool Survey and Stakeholder Interviews narrowed down three factors as main barriers to increasing preschool enrollment. Respondents to the Preschool Survey cited a range of factors that hinder enrollment in preschools, which include the lack of public and parental awareness of the importance of preschool, especially for the 4+ age group; a lack of infrastructure and facilities; unavailability of seats in some areas; low teaching quality and manpower; low affordability; lack of seats to cater for indigenous and special needs students; differing learning philosophies between schools and parents; insufficient financing for operators; low-quality learning materials; non-compulsory participation in preschool; and licensing and compliance, as well as registration issues. Further interviews with stakeholders to gain better clarity of the issues narrowed the factors down to three main ones: (i) awareness of the importance of preschool education, (ii) the availability of seats and locations of preschools, and (iii) the affordability of preschools. To address these issues, two main priorities have been outlined and are discussed in the following sections. The first priority is Increasing Enrollment Toward Compulsory Preschool Education (Section 4.3), which will address the issue of preschool not being compulsory, and the availability of seats and locations of preschools. The second priority is Fee Assistance and Other Incentives (Section 4.4), which will address the issue of preschool affordability. 48 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education 4.3 Priority Area 1: Increasing Enrollment Toward Compulsory Preschool Education 4.3.1 Key Issues and Challenges A significant number of respondents from the Preschool Online Survey cited lack of awareness of the importance of preschool education as a key challenge to increasing enrollment (Box 1). This issue had been acknowledged and highlighted in the MEB, and over the years, MOE has conducted several nationwide awareness campaigns on preschool education and collaborated with NGOs and private agencies to minimize school dropout. For example, the Ministry launched the “Jom Daftar ” (Let’s Enroll) campaign in selected states with low enrollment rates in 2015 to boost preschool enrollment. In 2016, the Ministry also organized the nationwide “Running Kidz” campaign to further raise awareness on the importance of early childhood education and to promote enrollment using media engagements and public announcements. Despite these past efforts, 90 percent of the respondents agreed that increasing awareness of the importance of preschool education is key. Stakeholders indicated that the lower enrollment rate for 4+ age group can be partly attributed to a lack of awareness of the importance of at least two years of preschool education to prepare the children for primary school, and to the fact that preschool education is not compulsory to enter Primary/Standard 1 (Box 1). As a result, many parents prioritize preschool education for their children in the 5+ aged group to prepare them for Primary/Standard 1, reflected in the high enrollment rate of 90 percent for this age group. Other factors include lack of availability of seats in public preschools that primarily cater for the 5+ age group, and lack of affordability to place their children in private preschools. Parents who do not send their children to preschools are of the view the primary schools will reteach what is taught in preschools and would enroll their children directly into Primary/Standard 1. Selected responses on the awareness of the importance of preschool BOX 1 education “Rural communities still look down on the importance of preschool education.” “Rural area parents know little about preschools other than the TADIKA and TABIKA KEMAS.” “Many think that primary schools will reteach what is learned in preschool, and so parents opt to directly enroll their children into primary school.” Source: World Bank Malaysia Preschool Survey 2021 Despite the clear benefits of preschool education, it remains non-compulsory for entrance into Primary/ Standard 1 of the national education system. For the time being, preschool education in Malaysia is still not mandatory as there is no legal provision regarding this matter. This in itself is an obstacle toward increasing enrollment, as cited by respondents of the Preschool Online Survey and Stakeholder Interviews. An overwhelming 95 percent of the survey respondents agreed that preschool should be made compulsory. 96 percent thought that it is a possible goal to achieve, although 37 percent of those respondents though that it could not be achieved within the next five years (see Figure 14). Making preschool education compulsory in Malaysia, as has been done in 51 other countries such as Finland, Sweden, Ghana, Brazil, and the Philippines can not only raise awareness of the value of preschool education, but also signal the government’s earnestness and commitment toward ensuring that children receive this important head start, and increase enrollment at a quicker pace. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 49 Chapter 4: Access to Preschool Education FIGURE 14: Survey responses to questions on universal preschool enrollment Q1a: Do you agree that universal preschool enrollment Q1b: Do you think that preschool education should be in Malaysia is possible? made compulsory? Yes, but not possible in the No, 5% No, 4% next ve years, 37% Yes, 95% Yes, in the next 5 years,59% Source: World Bank Malaysia Preschool Survey 2021 A key challenge in increasing preschool enrollment is the lack of availability of preschools within the vicinity of parents’ homes and workplaces, especially for remote or rural areas. Survey respondents reported not just a lack of preschools in remote areas, but also difficulty in accessing these preschools due to their location being far from the villages, requiring a long walk or a boat ride to reach them, due to lack of transportation and road access to them. Parents living in urban or semi-urban areas also highlighted their preference for preschools closer to their workplaces (see Box 2). For MOE preschools, State Education Departments and District Education Offices (PPD) are responsible to propose new preschool classes based on the application and demand from the community, especially in high density populated areas. A more integrated approach across major providers including KEMAS and JPNIN is needed. Selected responses on issues regarding the availability and location of BOX 2 preschools “Preschools need to be opened nearer to the villages so that they’re easier to access via roads.” “Must open preschools in residential areas regardless of how many children are in that area.” “Need access at the workplace.” “Need preschools in rural areas where there is no public transportation.” Source: World Bank Malaysia Preschool Survey 2021 (translated) FIGURE 15: Percentage of survey respondents who agreed that these factors are “very important” to increase enrollment Percentage of respondents agreed as "very important" (n=426) Increasing awareness of the importance of preschool education 90.0% Opening preschools that meet the needs of Orang Asli and special needs students 79.7% Opening more preschools at workplaces 70.1% Opening more public preschools 66.7% Providing higher fee assistance for special needs children 63.2% Providing more government support for opening private preschools 44.5% Providing fee assistance to parents 43.0% Easing preschool registration for private preschools 42.8% Source: World Bank Malaysia Preschool Survey 2021 50 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education Stakeholders also reported the need to cater to students with specific needs. This primarily refers to children with special education needs and indigenous (Orang Asli ) children, as well as parents with preference for preschools in mother tongues. Close to 80 percent of the Preschool Online Survey respondents thought that opening preschools that meet the needs of special needs and indigenous children is very important (see Figure 15 above). This was corroborated by the ECCE Policy Implementation Review initiated by UNESCO and the United Nations International Children’s Emergency Fund (UNICEF) in 2007, which found that there are vulnerable groups, such as children with special needs, indigenous, and refugee children, who do not have equal access to preschool education (Ng 2010). BOX 3 Selected responses on the need to cater to students with specific needs “Need equal access for children in rural and Orang Asli areas.” (Translated) “Need a more flexible curriculum that caters to the level or situation of a community in a certain location, such as for Orang Asli students.” (Translated) “Children who have special needs do not have access to schools or centers that can specifically help them with early intervention.” “The needs of preschool for children in need have to be addressed. This includes children with disability, or children with learning disabilities such as autism, hyper activeness or ADHD.” Source: World Bank Malaysia Preschool Survey 2021 Cumbersome and lengthy registration and licensing procedures make it difficult for private preschools to operate legally. Findings from the stakeholder engagement activities indicate registration and licensing difficulties, including the long wait to get licenses approved, and the need to obtain approvals from the other bodies, such as the local and health authorities and the fire department for yearly renewals. The MOE has attempted to mediate these interagency issues by organizing townhall sessions involving local authorities, fire departments, and health authorities, but their effectiveness has yet to materialize. In the Preschool Survey, easing preschool registration was rated by 43 percent of the respondents as “very important” to increase enrollment (see Figure 15 above). Stakeholder engagement confirmed that it is difficult for private operators, particularly those in remote or rural areas, to travel long distances to apply or renew their licenses. Rural operators in Sabah, for example, must fly to Kota Kinabalu to renew their yearly licenses, deterring many of them to apply for renewal or even the license in the first place. Many remote and/or low-cost preschools also find the renewal fee costly. Unregistered preschools present several challenges, including difficulties to capture these schools and their students in national data, and the inability to regulate and support them. One of the factors that contributed to the stagnating enrollment rates since 2014, as reported by MOE, is the challenge in gathering data from unregistered preschools as well as childcare centers that offer preschool education, which is managed by MWFCD (PADU 2019). Difficulties and rigidities in obtaining licensing and registration deter many private preschools, especially those in rural and remote communities, from operating legally. This makes it difficult for MOE to regulate and monitor these schools, capture information on where they are and the number of students who attend them, and create awareness of their availability so parents can make informed decisions. In an effort to capture data on preschools nationwide, MOE has engaged registered private preschool operators to key in their data online on the National Preschool Information System (Sistem Maklumat Prasekolah Kebangsaan or SMPK ). For unregistered preschools, MOE collates the data manually with assistance from the District Education Offices whose officers will go down to the ground to collect data. The SMPK is a comprehensive preschool database used by MOE and government agencies Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 51 Chapter 4: Access to Preschool Education for monitoring and for parents to make informed decisions when choosing and enrolling their children in preschools. However, there remain many preschools uncaptured and more has to be done to ease the registration process for preschools to operate legally. “During the process of collecting private preschool data, the Ministry faced issues of institutions such as tahfiz centers (Islamic religious schools), childcare centers, creativity centers and tuition centers that offer preschool education without advertising their institutions as kindergartens or preschools. Furthermore, there are parents who send their children to unregistered preschools or home-schooled their children” (PADU 2019) 4.3.2 Recommendations RECOMMENDATION 1: Ensure at least one year of universal preprimary education by making it free and compulsory for Malaysian children by 2030, and increase public preschool seats to bridge the enrollment gap. (Medium- to long-term) MOE is currently considering compulsory preschool education for the 5+ age group to be achieved by 2030, in line with Sustainable Development Goal (SDG) 4.2. This is the minimum recommendation for all countries to implement SDG Target 4.2 to “ensure that all girls and boys have access to quality early childhood development, care and pre-primary education so that they are ready for primary education” by 2030. Across the world, 51 countries have made preprimary education compulsory. Among countries that have legislated compulsory pre-primary education for one year are Finland, Sweden, Brazil, Kenya, Kazakhstan and the Philippines, while examples of countries which have made preschool education compulsory for two years include Argentina and Ghana. The Education Policy and Research Division (EPRD) of MOE had conducted a survey of 2,199 parents, teachers, administrators, and providers to assess their readiness for compulsory preschool education in Malaysia and found overwhelming support for the policy, but with varying preferences on the preferred starting age (EPRD 2021) (Figure 16). FIGURE 16: Readiness for compulsory preschool education by stakeholder and preferred starting age 100% % of respondents within stakeholder group 80% 60% 40% 20% 0% Parents Preschool Standard 1 Administrators Providers teachers teachers Overall 3+ 4+ 5+ Source: EPRD 2021 52 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education Countries with free and compulsory preschool education showed higher increase in gross enrollment ratios on average and fared better in other related indicators. A study by UNESCO found that the average gross enrollment rate for countries that have free and compulsory preschool education had doubled from 41.4 percent in 1999 to 82.8 percent in 2018, while the average for those countries without free and compulsory preschool education increased at a much slower space – from a higher base rate of 52.9 percent in 1999 to 63 percent in 2018 (Figure 17). The study also reported that the implementation of compulsory preschool education led to better early childhood well-being as measured by UNICEF’s Early Childhood Development Index (ECDI), a 10-item index across four developmental domains: literacy-numeracy, physical, socioemotional, and learning. The median ECDI for the countries with a framework for compulsory preprimary education is highest at 84 percent, 16 percentage points higher than for those without a framework for compulsory preprimary education (UNESCO 2021). One global study also found that at least one year of free and compulsory preschool education is associated with a 10 to 12 percentage point increase in primary school graduation rates for low- and lower-middle-income countries (Earle et al. 2018). FIGURE 17: Gross enrollment ratios in preprimary education, by free and compulsory status 82.8 63.0 52.9 41.4 1999 2018 1999 2018 Countries with free and compulsory Countries without free and preschool education compulsory preschool education Source: UIS 2020 Making preschool education compulsory first and foremost requires policymakers to decide on and develop the policy, including the definition of legal provisions. Making preschool education compulsory in Malaysia requires the definition of legal provisions, such as whether the policy will include preschool education being free and/or compulsory, as well as the duration for which it will be made compulsory. Globally, there are 63 countries which offer free preprimary education for a varying number of years. Two- thirds (or 43 countries) of them have adopted legal provisions for one or two years of free preprimary education. A total of 51 countries have implemented mandatory preprimary education, with the majority (29 countries or 57%) opting for one year, 13 countries (26%) instituting two years, and the remaining nine countries (or 17%) implementing three or more years of compulsory preschool education. A total of 46 countries have instituted both free and compulsory preschool education, 80 percent of which are located in Europe, North America, Eastern and Central Europe, and Latin America and the Caribbean (Figure 18). Once the provisions of the policy are decided upon, strategic implementation plans have to be put in place swiftly to allow MOE and other stakeholders enough time to realize the policy by 2030. Stakeholders at the Preschool Education Review Lab had agreed on several concrete and immediate steps that can be undertaken once the terms of the policy have been determined, the first of which is to prepare a cabinet paper to obtain the government’s endorsement and commitment to meet the aspiration. The Government’s commitment to the goal is critical as policy and legal provisions will have to be introduced Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 53 Chapter 4: Access to Preschool Education and large expenditure will be required to fund the expansion and operation of the preschools. Next is to ensure that clear communications plans are in place to convey a strong message on the government’s commitment and steadfastness in achieving compulsory and universal preschool education, and garner public support. A clear next step is also to amend the Education Act 1996 to include the number of years of compulsory preschool education that could be implemented, and recognize it as part of formal education. FIGURE 18: Legal provisions for both free and compulsory preprimary education globally The total number of years of The majority of countries free pre-primary education (29 countries or 57 percent) varies across the 63 countries, opted for one year of pre- with two-thirds of countries primary education, while having adopted legal another quarter (13 countries or Free Compulsory provisions for one or two 26 percent) instituted two years (63 countries) (51 countries) years (68 percent or 43 of compulsory pre-primary countries). education. 9 countries (or 17 percent) implemented three or more years of compulsory preschool education. Free and compulsory (46 countries) Source: UNESCO 2022 Country experiences on compulsory preschool education show that legal provisions need to be supplemented by other strategic initiatives for success. Higher enrollment numbers are expected to occur after the institution of mandatory preschool education, but many issues could hinder this outcome. For example, if preschool seat availability does not rise to meet demand for preschools in high need areas, higher enrollment rates cannot materialize. There is also a need to ensure that the education and care provided are of high quality, or the potential benefits of higher preschool enrollment, such as improved school readiness, education attainment, graduation rates, and well-being, could be diluted. It is also of vital importance the efforts of all of the preschool stakeholders are coordinated and aligned toward the same goal, to ensure smooth implementation and reduce the risk of the target being missed. As exemplified in the experience of Latin America in Country Example 1, Malaysia’s implementation of a compulsory preschool education policy must be complemented by other strategic measures and enablers to ensure the goal can be successfully attained by 2030. The following are the main complementary strategies that can accompany the policy for Malaysia, some of which are also included in this report as recommendations: i. Ensure enough places to meet the shortfall in current enrollment (supply-side measures) – Once preschool education is made free or compulsory, the government must ensure that there will be enough seats, both in public and private preschools to meet the rising demand in enrollment as a result of the policy. – To do this efficiently, a mapping exercise to identify where the shortfalls in seat availability are is crucial (this is further elaborated on in Recommendation 2 below). In the mid to long-term, the government can then increase the number of public preschool seats accordingly. However, because this will most probably entail an increase in the budget and may take a long time, the government can support the private sector in providing these services in the short-term (more on this in Section 4.4.2). 54 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education ii. Increase government expenditure in preschool education – Not all countries showed a change in enrollment following an implementation of a legal framework. Implementation of these frameworks requires significant investment, planning, and operationalization commitments to make preprimary universally accessible and achieve the goals of compulsory preschool education. iii. Create an enabling environment to set the policy up for success – Scientific evidence can be leveraged to mobilize political will and get the larger public on board. – Coordination with all preschool partners to ensure all are aligned toward the same goal. Country Example 1: Latin America’s experience with compulsory preschool education Preschool education is compulsory at the age of 5 years in all Latin American countries, and in some countries, it is made compulsory at an even earlier age. Given the benefits of preschool education in mitigating the impact of inequality especially for children from disadvantaged families, the Economic Commission for Latin America and the Caribbean (ECLAC) established the goal of universal preschool education by 2015 [which in this case, meant raising the adjusted net enrollment rate of children between 3 and 5 years of age to above 90 percent] for all countries in the region. Laws on compulsory preschool have therefore been instituted throughout the region over the past two decades, with some countries enacting it earlier than others (Arrabal 2019). The rate of enrollment in the region has expanded from 2012 to 2015, but not all of the Latin American countries have achieved universal enrollment. A 2019 study found that countries such as Panama, Guatemala, Colombia, and El Salvador have preschool education enrollment rates that have remained below 90 percent in 2015. Countries such as Bolivia, Ecuador, Chile, Mexico and Peru, however experienced significant leaps in their enrollment rate between 2002 and 2015. The study also found that the Latin American countries that have achieved universal enrollment experience better scores in PISA tests (Arrabal 2019). FIGURE 19: Adjusted net enrollment rate one year before the official primary school entry age (%) 100 80 60 40 20 0 a a a or ua a ia il ca ay le r o a ru do az m al bi el in ic liv i Pe ad Ri u Ch ag m zu ex nt na m Br ua ug Bo lv ta te ge ar lo ne M Pa Ec Ur Sa s ua Co ic Ar Co Ve N G El 2002 2015 >90% Source: Arrabal 2019 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 55 Chapter 4: Access to Preschool Education Latin America’s experience with compulsory preschool education highlights the need to complement legal frameworks with productive spending, high-quality services, and engagement. Arrabal (2019) had also found that the adoption of compulsory preschool laws was not sufficient to create full participation in Latin America despite having the legal frameworks in place. Further, the effects of preschool attendance on the later academic performance have become more diluted over time, even for the countries that Additional commitments have improved their scores in the last rounds of the PISA tests (e.g. Argentina). ​ in government expenditure are required to enable the expansion of preschools and the provision of quality education to meet the expected higher enrollment numbers. In addition, high-quality services and engagement are needed to reach both the lower-income groups and the middle classes to guarantee access to those most in need, and to ensure the policy is enforced (Arrabal 2019). Figure 20 illustrates the factors that supported successful reforms in making preschool education compulsory in Latin America as reported by a study by UNICEF. FIGURE 20: Enabling factors that supported successful reforms in making preschool education compulsory in Latin America 1. Prioritizing the most vulnerable children. As part of the equity component, objectives in ECCE that supported access of vulnerable 3- 6-year-old children were de ned for different contexts (e.g., in Peru, Mexico, Chile and Uruguay). 2. Considering the opinions of children, families, and communities. In Peru, consultations took place, especially with rural communities within the framework of the Access program. 1. Achieving social and political 1. The in uence of international consensus regarding the most scienti c evidence. Countries were vulnerable. The decisions made able to mobilize political will to were part of broad national increase public investment and Demand agreements on education as the initiatives in favor of ECCE. key to achieve equity. E.g., in Peru and Mexico, priority was 2. Regulatory frameworks that given to disperse and indigenous favored the measures. Countries rural communities. set up favorable regulatory Supply environments that facilitated 2. Situation analysis as evidence momentum and progress in the to guide decisions. In all the implementation of ECCE measures countries assessed, the actions (e.g., Chile, Mexico, Peru, Uruguay). Enabling undertaken consistently responded to gaps in access to environment 3. Equity as a macro-objective. The or quality of early childhood decisions taken in ECCE were part education services, by de ning of larger processes aimed at objectives directly aimed at achieving advances in equity. E.g., overcoming existing barriers. the "general education reform" (Chile) and the "constitutional de nition of education as a right" (Uruguay). Source: UNICEF 2020 Chile’s significant leap in enrollment rates from 35.1 percent in 2002 to 97.5 percent in 2015 provides an example of the types of enabling policy and support that are needed for success. First, the government leveraged scientific evidence regarding the profitability and effectiveness of investments in early childhood development, using cost-benefit models and estimates from international literature to justify the expansion of early childhood education services to the most vulnerable groups.​Second, significant coordination efforts were observed between the Early Childhood Education Unit of the Ministry of Education, the National Board of Kindergartens (JUNJI) and the Integra Foundation, under the direction of the Ministry. This made it possible to achieve a unified vision of the system, as well as an effective division of competencies for the provision of early childhood education services. Another measure taken to ensure the sustainability of these efforts overtime was the strengthening and unifying of the institutions responsible for ECCE through the creation of the Undersecretariat of Early Childhood Education​​. Third, committed and sustainable funding allowed for continuous expansion and quality improvement of preschool services throughout the country. The investment funds were committed by the Ministry as a budget item that cannot be removed by future administrations. Finally, the government encompassed these measures under the Presidential Goal (2000-2006), which set a favorable regulatory environment and political will for changes to be implemented (UNICEF 2020). 56 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education RECOMMENDATION 2: Identify high-need areas to more effectively close gaps in enrollment rates (Low-hanging fruit) Before attempting to expand supply or boost demand for preschool education in Malaysia, it is crucial that a comprehensive mapping exercise is done to accurately identify where the needs are, and match supply to demand. Based on the data for applications and places available in MOE-run preschools in 2022 (see Table 7), some states such as Kelantan, Perak, Terengganu, Pahang, Sabah and Sarawak have a significant oversupply of seats, while states and/or territories with higher urban populations like Selangor, Kuala Lumpur, and Putrajaya have received a much higher number of applications as compared to available seats. This information, combined with the findings from the stakeholder engagement activities, indicates that demand exceeds supply in more urban and densely populated areas, while the supply of seats in rural areas may be abundant but sparsely located in areas where parents find too difficult or far to access from their homes or workplaces. This causes the seats in rural areas to remain unfilled. A low awareness of the importance of preschool education could also be a contributing factor to the lower demand in more rural states. TABLE 7: Number of applications for MOE preschools in 2022 and available seats (4+ and 5+) State/Territory Applications Seats Difference Johor 24,619 25,025 406 Kedah 13,312 15,300 1,988 Kelantan 13,655 18,350 4,695 Melaka 6,040 6,200 160 Negeri Sembilan 8,268 8,350 82 Pahang 15,566 19,000 3,434 Perak 15,821 21,900 6,079 Perlis 2,245 3,100 855 Pulau Pinang 7,984 8,550 566 Sabah 22,936 34,000 11,064 Sarawak 20,534 38,075 17,541 Selangor 37,864 26,550 -11,314 Terengganu 9,764 12,250 2,486 WP KL 7,862 4,600 -3,262 W.P. Labuan 1,054 825 -229 W.P. Putrajaya 1,706 1,150 -556 Total 209,230 243,225 33,995 Source: PADU 2022b A more detailed mapping needs to be done on a district level and for all types of preschools, in order to ascertain the exact needs on the ground. There is a need to gather accurate data of where and who are the children who are not yet enrolled into preschools for more effective and targeted interventions. In addition to direct applications from the community, information on demand for public preschool seats can be collected via surveys distributed by authorities such as the National Registration Department (JPN ), the Department of Statistics Malaysia (DOSM), PPDs, and village heads or other district and local authorities. The MOE can collaborate with other ministries such as the MWFCD and the Ministry of Rural Development to combine and coordinate their data sets to better capture a more accurate picture of enrollment needs, and subsequently plan and budget for new MOE preschool classes. The National Preschool Information System (SMPK ) can also be modified to allow for unregistered preschools, including home schools and NGO- or religious body-run establishments, to report their enrollment into the system. Overall, a better cooperation between all providers is needed in order for more accurate data sharing and demand-supply planning for preschool education. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 57 Chapter 4: Access to Preschool Education RECOMMENDATION 3: Reach out to unenrolled children (Short-term) While the policy on compulsory preschool education is being developed, undertaking interim measures to reach out to unenrolled children can prepare and put Malaysia on the right track for when the policy is introduced. These interim measures can be low-cost and easy to put together for quick results. Consensus from the Preschool Education Review Lab narrowed two potential interim initiatives to reach out to high-need children: i. Provision of fast-track programs for those who have limited access to preschools – Similar to the Accelerated School Readiness (ASR) programs implemented in Ethiopia and Kiribati (see Country Example 2), Malaysia can consider programs that require no additional infrastructure and are lower in costs as an interim strategy while expanding supply of seats. – This can start with a household survey to identify the pockets of students who are not yet in preschool education, and then place them in holiday programs with a condensed curriculum in existing schools, with teachers who are paid an extra fee. This ensures they are more prepared to enter Primary/ Standard 1 despite not being enrolled in preschool. ii. Use of mobile preschool classrooms and existing spaces in high-need areas – Building physical classrooms and schools takes time and resources. Fluctuating birth rates and migration may also affect the planning for more permanent infrastructure development. – Having classrooms that are mobile, which can take the form of containers or buses that have been approved for safety, can expand preschool provision in less time and with fewer resources used, especially in rural and remote areas. – Similarly, service providers and policymakers can consider opening preschools in existing spaces such as longhouses, community halls, or places of worship. This is more relevant in rural areas where classes may be small in size, or where there is limited road access for the entry of mobile classrooms. Country Example 2: Accelerated School Readiness (ASR) programs as an effective, low-cost model to reach students with limited access to preschool education in Ethiopia and Kiribati Several countries are using ASR programs to fast-track the expansion of preschool education in the poorest or hard-to-reach communities. In Ethiopia, where it is being piloted in the Benishangul Gumuz region, ASR consists of a 150-hour accelerated readiness program for children entering Grade 1 (7 years of age) who have not attended a “0 class” (preprimary). Schools conduct a household survey to identify those children who are eligible to enter Grade 1 but have not attended a 0 class. For schools that have existing 0 classes, children who have not attended preschool attend a two-month summer program run by teachers who are paid an honorarium. For schools that do not have 0 classes, children will participate in the same 0-class preliteracy and prenumeracy program during the first two months of Grade 1, in place of the regular curriculum. Ethiopia’s ASR initiative requires no additional infrastructure or human resources and provides a low-cost alternative for local governments with limited resources as an interim strategy to expand services while the one-year preprimary program is being expanded. Similarly, Kiribati is also implementing ASR as a temporary measure, while the government develops a program to offer a full year of preprimary education to all children. Source: UNICEF 2019a. 58 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education RECOMMENDATION 4: Adopt more flexible measures to increase enrollment in rural communities (Medium- to long-term) Participants in all three of the stakeholder engagement activities strongly expressed the need to adopt more flexible measures to better understand the needs of rural communities to increase their participation in preschool education. Findings reveal that rural community parents may not send their children to preschools not only because they are too far away, but also because the schools may not serve the needs of the communities. There is therefore a need to ensure that the voices of the rural and indigenous communities are heard when it comes to providing access to preschool education. For example, the preschool curriculum can be evaluated to allow for adaptations to local needs in the communities. More flexibility should also be allowed to establish classes in community spaces such as longhouses and community centers. Local people in these communities can be developed to lead and teach, so that they can return and teach children in their own communities. Small community schools can also be established within villages with local teachers to teach children in their own dialects or languages. KEMAS currently does this for indigenous communities by electing teachers within the community to teach in their schools. As a result, more meaningful education that serves the needs of these communities can be provided, encouraging enrollment in rural areas. Collaboration with NGOs working in these communities may be needed to facilitate the understanding of their needs. RECOMMENDATION 5: Ease licensing and renewal processes to capture more registered preschools (Medium- to long-term) In addition to the financial incentives to the private sector, the government must also ensure the processes to set up and register private preschool businesses are facilitative and straightforward, to encourage the opening of legally run private preschools. If the licensing processes are too cumbersome, it would deter private operators to open preschools or they may operate illegally, limiting MOE’s ability to monitor and regulate them, prohibiting them from obtaining government aid or support, and leaving them uncaptured in national data. Some of the issues that have been constantly raised through the stakeholder engagement activities are the long wait to get licenses approved, the need to obtain approvals from the other bodies (such as the local and health authorities and the fire department) before the license is granted, the requirement for yearly renewals, and registration and renewal centers that are located too far away from rural areas. Cognizant of these challenges, the MOE is finding ways to ease licensing processes for private operators, including the development of an online channel for new preschool registration that is currently underway. Another potential and effective solution that the government can consider is to provide provisional licensing for all centers offering preschool education, even if they do not fully comply with MOE’s licensing requirements. This will enable MOE to recognize their efforts, capture data on these preschools and student enrollment, and allow these centers to access government support and incentives as they work toward eventually obtaining a full license. MOE and local authorities can also collaborate to find ways to ease regulatory burdens, especially for yearly renewals. For example, the validity of licenses could be extended from one year to three or five years if schools meet a set of minimum requirements, and procedures for rural schools could be eased by reducing the number of checks required in certain years. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 59 Chapter 4: Access to Preschool Education 4.4 Priority Area 2: Fee Assistance and Other Financial Incentives 4.4.1 Key Issues and Challenges Affordability of school fees and other related preschool costs is a key challenge in increasing enrollment, especially for lower-income families. Findings from the survey, interviews, and the preschool lab corroborate the financial issues faced by families in paying school fees and costs related to transportation, uniforms, and books (Box 4). Further, household incomes have been negatively affected by the pandemic, affecting low-income households in particular. A World Bank survey on the COVID-19 impact among Malaysian households found that children from lower-income households are also more affected in terms of their education, reporting lower attendance in school and were also less likely to continue learning from home during the pandemic (World Bank 2021). In an interview with a low-cost preschool in Sentul, fees from RM180 ($414) a month were subsidized further or suspended due to economic situation of parents. Parents who can no longer pay for private preschools may lead to increased dropout rates. BOX 4 Selected survey responses on the affordability of preschools “Many parents cannot afford the high school fees in private schools” “Parents who cannot afford the high fees are forced to send their children to babysitters or care homes instead.” “The costs of sending children to preschools, such as transportation costs, are a burden.” Source: World Bank Malaysia Preschool Survey 2021 (translated) The high growth in preschool enrollment between 2009 and 2014 can partly be attributed to an array of financial assistance and incentives provided during the period, one of which was the introduction of fee assistance for students in 2010. The enrollment rate rose rapidly from 67 percent in 2009 to 80.2 percent in 2012, and continued to rise, although at a slower pace, when the fee assistance allocations were at their highest in 2013-2015, driven by higher growth in enrollment in the 4+ age group. The fee assistance was available to parents from lower-income families with a household income of RM500 ($113) or less per capita per month to encourage enrollment in private preschools. In 2013, the fee assistance was extended to special needs preschool students. The higher allocation of the fee assistance for special needs students was a recognition of the higher cost incurred to cater to them, including the need for specialized teachers, facilities, and learning materials. Table 8 shows the fee assistance provided to mainstream and special needs preschool students. A sliding scale feature was implemented, whereby students from families with higher household income per capita received less fee assistance per month, reducing inequities on access to preschool education. 4 This report uses an exchange rate of 1 USD = 4.41 MYR (the rate at the time of writing) to approximate the value or the Ringgit figures in USD. 60 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education TABLE 8: Fee assistance for mainstream and special needs preschool students Fee assistance for mainstream preschool students Fee assistance for special needs preschool students Household income Fee assistance/ month Household income Fee assistance/ month per capita per capita < RM300 RM150.00 < RM400 RM500.00 RM301 – RM400 RM112.50 RM401 – RM600 RM400.00 RM401 – RM500 RM75 RM601 – RM800 RM300.00 > RM500 Not eligible RM801 – RM1,000 RM200.00 > RM1,000 Not eligible Sources: PEMANDU 2009; PEMANDU 2014. From 2010 to 2017, the government had allocated a total of RM166 million ($38 million) in fee assistance, benefitting over 227,479 students and boosting enrollment rates. In 2016, the allocation for fee assistance halved to RM18 million ($4 million) from its peak of RM36.8 million ($8.3 million) in 2014 (see Figure 21 below). The last year that the fee assistance was made available was 2017 , and the preschool enrollment rate has not only been stagnant since then but has fallen in 2020 to below 2014 levels. The fee assistance ceased in 2018, but was renewed in 2021 and 2022 with significantly lower allocations than before (Figure 21). In 2021 and 2022, the fee assistance program was only allocated RM1.3 million ($295,000) and RM1.1 million ($249,000) respectively. The fee assistance is provided for disadvantaged students identified through the eKasih National Poverty Data Bank. In 2021, significantly fewer students, only 1,811 of them, received the assistance, which amounted to only about RM688 ($156) per student for the entire year, significantly less than the amount allocated in the previous fee assistance program of RM150 ($34) per month for a child whose household income per capita is less than RM300 ($68) per month (see Table 8 above). The current fee assistance program is also provided at a flat rate to students from families in the bottom 40 percent of the population (B40) and is not scaled, which means students who are eligible all receive the same rate of fee assistance. FIGURE 21: Fee assistance for preschool children 2009-2022 2017 2020 84.3% 83.5% 41,109 Preschool 34,477 35,376 32,772 32,378 enrollment rate in 2009 23,260 67% 14,122 13,985 Fee assistance 1,811 1,160 ceased RM1.0m RM1.1m RM10.9m RM11.1m RM11.6m RM29.2m RM36.8m RM30.7m RM18.0m RM18.0m 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018-2020 2021 2022 Fee assistance provided Number of students bene ting from fee assistance Sources: PEMANDU 2009; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 61 Chapter 4: Access to Preschool Education Other supply-side financial incentives that encouraged the opening of private preschools and allowed private schools to charge lower fees have also ceased. These include the provision of financial incentives such as the five-year tax exemption on statutory income and an industrial building allowance at the rate of 10 percent a year for operators of private preschools registered with MOE. Between 2010 and 2015, the government also provided launching grants of between RM10,000 ($2,268) to RM20,000 ($4,535) each to 1,972 preschool operators to encourage the opening of new private preschools (Table 9), contributing to the increase in private preschool seats. All of these incentives were aimed at encouraging the involvement of the private sector in providing preschool education to Malaysian children, reducing the opening and operating costs of private preschool operators, improving service quality, and facilitating more affordable private preschool education for low- and middle-income families. However, these incentives were discontinued (the launching grants ceased in 2015 and the tax incentives ceased in 2017) due to MOE’s financial constraints. There were also concerns that the launching grants gave rise to opening of new preschools, which closed soon after receiving the grants. TABLE 9: Preschool launching grants 2010 2011 2012 2013 2014 2015 Launching Grants 4,880,000 5,000,000 5,000,000 N/A N/A N/A Provided, RM (USD1.1 mil) (USD1.1 mil) (USD1.1 mil) Number of private preschools benefiting 344 500 356 259 261 252 from launching grants Sources: PEMANDU 2009; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019. Both the demand-side and supply-side incentives that were implemented enabled the private sector to flourish. The outcome of this fee assistance to low-income families was not only the encouragement of parents to enroll their children in affordable private preschools, but also the thriving of private preschool providers, who opened more private preschool classes to accommodate the higher demand and serve needs where the public sector could not. The fee assistance, combined with other supply side incentives such as the launching grants, boosted the growth in enrollment and seats in the private sector. Private preschool enrollment grew by 41.3 percent from 2010 to 2020, outstripping the growth of public preschool enrollment over the same period of 11.8 percent (Figure 22). From 2013 to 2021, the public sector opened 705 new classes while the private sector opened 5,465 new classes over the same period (see Annex 2). FIGURE 22: Public and private preschool enrollment in Malaysia 500,000 474,379 476,017 464,004 455,732 448,885 450,000 421,863 426,246 400,897 404,106 406,333 400,000 378,618 426,246 420,979 420,352 421,663 423,482 364,039 412,098 413,675 386,936 350,000 332,005 322,526 300,000 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Private pre-school enrollment Public pre-school enrollment Sources: PEMANDU 2012; PEMANDU 2013; PADU 2014; PADU 2015; PADU 2016; PADU 2017; PADU 2018; PADU 2019; PADU 2020; PADU 2021. 62 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education In response to the COVID-19 pandemic, the government re-initiated financial aids to private preschool operators. Through the National Economic Recovery Plan (PENJANA), a one-off grant amounting to RM5,000 ($1,134) was provided to registered private preschools to help them re-establish their operation and to promote preschool enrollment that had declined during the pandemic. A one-off grant amounting to RM3,000 ($680) was also extended to unregistered private preschools, with the condition that the preschool get registered by a set deadline in the year (MOE 2020a). The move is aligned to the MOE’s aim to encourage registration among private preschool operators. Registered private preschools continued to receive financial support from the government amounting to RM3,000 ($680) through the People Protection and Recovery of the Economy Plan (PEMULIH) economy stimulus package in 2021. 4.4.2 Recommendations RECOMMENDATION 6: Increase financial support to parents and preschool operators (Low-hanging fruit). While the government works toward compulsory preschool education and increasing free seats in public preschools, financial support to parents to enroll their children in private preschools, and to preschool operators to increase seat availability in high-need areas, can help bridge the enrollment gap in the short to medium term. For parents, reintroduce demand-side funding and incentives to enable parents to enroll their children in affordable private preschools. Government support is crucial, especially in recent times, as parents struggle with fees during the COVID-19 pandemic and with public preschool seats remaining limited. For the first time in a decade, private preschool enrollment dropped from 476,017 students in 2019 to 455,732 students in 2020, parallel to a small increase in public preschool enrollment from 421,663 students in 2019 to 423,482 students in 2020, possibly indicating a fall in demand for fee-paying private preschools during the pandemic, and a small rise in demand for free or heavily subsidized public preschools. Fee assistance for low-income families is especially relevant to mitigate the economic difficulties and widening learning disparities caused by the pandemic, as socioeconomically disadvantaged children are more likely to drop out of preschools due to learning, well-being, and financial challenges. Reducing the costs of private preschools can ensure that children from low-income families who cannot get seats in free or heavily subsidized public preschools can still obtain quality preschool education in the private sector. In the preschool survey, respondents agreed that fee assistance is a “very important” factor to increasing enrollment (Figure 23). FIGURE 23: Percentage of survey respondents who agreed that these factors are “very important” to increase enrollment Percentage of respondents agreed as "very important" (n=426) Increasing awareness of the importance of preschool education 90.0% Opening preschools that meet the needs of Orang Asli and special needs students 79.7% Opening more preschools at workplaces 70.1% Opening more public preschools 66.7% Providing higher fee assistance for special needs children 63.2% Providing more government support for opening private preschools 44.5% Providing fee assistance to parents 43.0% Easing preschool registration for private preschools 42.8% Source: World Bank Malaysia Preschool Survey 2021 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 63 Chapter 4: Access to Preschool Education The fee assistance program needs to be reviewed and its budget increased to reduce the gap in learning disparities. The current fee assistance allocation of RM1.1 million ($250,000) is insufficient to assist parents, and needs to be increased to a more reasonable level that will ensure private preschools are more affordable for families from vulnerable households and communities that could not secure a seat in public preschools. A means-tested and scaled fee assistance program based on household income, as implemented before from 2010 to 2017, should also be considered to ensure that the most assistance is going to the families who most need it. The sliding scale from before will have to be reviewed to take into account current income thresholds and prevailing inflation rates. The assistance can also be extended to parents who attend non-registered schools, especially for those operating in low-income or rural communities. Monetary support for other preschool-related costs, such as learning materials, extracurricular activities, uniforms, and transportation can also be provided to low-income families. Existing assistance schemes under the ministry, such as the one-off Poor Students Trust Fund Assistance (Bantuan Kumpulan Wang Amanah Pelajar Miskin or KWAPM ) for primary and secondary school students can be reviewed and extended to preschool children. Country Example 3 presents Singapore as an example of a country which has adopted three types of demand-side fee subsidies for parents to ensure low-income families can afford to send their children to preschool. Country Example 3: Singapore’s demand-side funding framework In 2014, Singapore’s Ministry of Education begun providing demand-side subsidies for children enrolled in childcare centers and kindergartens. This initiative was implemented alongside several other measures, such as the opening of more public kindergartens and the funding of selected private operators, to address the inequity in access and affordability of preschools in Singapore, which were heavily dominated by private operators, including religious and non-profit organizations. Singapore spent S$1 billion (or $730 million) on early ECCE in 2018, and this doubled to S$2 billion (or $1.5 billion) by 2020. The kindergarten and childcare subsidies provided are dependent on factors such as household income and whether parents work or have a valid reason not to work. Three types of subsidies are available for parents under the Kindergarten Fees Assistance Scheme (KIFAS); (i) a means-tested basic subsidy, (ii) a means-tested additional subsidy for further assistance to low-income families, and (iii) a means-tested yearly start-up grant to cover the initial yearly costs of children starting preschool, such as for registration fees, school uniforms, and materials. FIGURE 24: Types of demand-side subsidies available for parents in Singapore Types of subsidies available for parents Monthly Additional subsidy for • $150-300/month Basic household income Full-day childcare Kindergarten • Higher subsidy for working mothers / single father subsidy $3,000 and below $467 $170 $3,001 to $4,500 $440 $156 • Up to $467/month for full day childcare or $170 Additional for half day kindergarten* $4,501 to $6,000 $340 $111 subsidy • Mean tested; lower income families receive more $260 $6,001 to $7,500 $91 • Amount reviewed and revised up over the years $7,501 to $9,000 $190 $71 while income eligibility criteria widened $9,001 to $10,500 $130 $51 KIFAS Start • Up to $240 / year; mean tested $10,501 to $12,000 $80 $21 Up Grant • Yearlygrant to help cover the initial costs of Above $12,000 $0 $0 enrolling a child in a kindergarten (e.g. registration fee, deposit, school uniform, With the subsidies, families with household income insurance, education material fee and below $3,000 in Singapore pay only $3 per month for supplementary fee). full day preschool childcare at a fee-capped centre. Source: ECDA 2022b 64 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 4: Access to Preschool Education For private preschool operators, especially those in high-need areas, increase support by reinstituting past supply-side financial incentives and introducing new ones. The private sector is currently the largest provider for preschool education and can be incentivized to set up more preschools, especially in challenging geographical areas where the government is not able to serve, or to provide more seats for students with specific needs. When the MEB was launched in 2013, it had targeted that the private sector, including NGOs and other organizations, would run 70 percent of the new preschools needed to be set up to achieve the universal preschool enrollment rate goal (MOE 2013b). In the Preschool Education Review Lab discussions, stakeholders agreed that past incentives for private preschools such the launching grants can be reinstituted to help realize this intended public-private partnership in increasing access to preschool education, as well as cushion the impact of the COVID-19 pandemic, where many private preschools faced financial difficulties and closures, as evidenced by the first decline in private preschool classes in 2020 in almost a decade. Re-introduction of these incentives can be modified to mitigate risks that emerged in the past. One-off preschool launching grants between RM10,000 ($2,268) to RM20,000 ($4,535) were provided between 2010 to 2015 to encourage the set-up of new private preschools. The initiative benefited 1,972 operators and created more preschool seats to meet demand. However, according to interviews with stakeholders, this incentive was abused in some cases where operators used the grants to open schools and closed quickly afterward. This initiative can be reintroduced with mechanisms to discourage this from reoccurring. For example, to obtain set-up grants, the Early Childhood Development Agency (ECDA) in Singapore requires that new preschools operate for a minimum of five years upon licensing. Other requirements for the ECDA’s grants include for schools to set up in areas with unmet childcare demand, have their fees capped, and attain the Singapore​Preschool Accreditation Framework (SPARK) certification within two years of licensing and remain certified for three years afterward (ECDA 2022). The government can also do more to attract private operators to open preschools in high-need areas where it may not be profitable from a business standpoint. For example, additional government funding in the form of grants can be provided for private preschools operating in high-need areas or serving low- income students that fulfill minimum standard requirements. To reduce operating costs, the government can provide free or discounted operation space for private operators and NGOs in existing public spaces, such as in unoccupied government-owned spaces or community centers in or near high-need areas. These types of financial aid can not only help preschool providers operate in high-need areas, but also allow them to free up resources to reduce fees or invest in quality improvements such as teacher training and better teaching materials. Singapore, through the ECDA, offers multi-pronged support with similar incentives to encourage the opening of more private preschools (Figure 25). FIGURE 25: Singapore’s multi-pronged support to encourage the opening of more private preschools Types of support available to preschool operators in Singapore Anchor Operator • Preschools and childcare centers under the schemes receive government funding to increase Scheme access to good quality and affordable early childhood care and education, especially for children from lower income or disadvantaged backgrounds. • Both schemes require operators to keep their fees within prescribed fee caps and to achieve quality Partner Operator criteria, such as attaining the Singapore Preschool Accreditation Framework (SPARK) certification Scheme and ensuring continuing professional development for their early childhood (EC) professionals. Infrastructure Support • Development, furniture and equipment grants for social service agencies (SSA) operators in public Grant housing, SSA or commercial operators in areas of demand, and in community or sports facilities. Portable Rental • Recurrent funding support to defray expenses. Subsidy • Rental cost subsidies of 40-80% Teaching and Learning • Recurrent funding support to defray expenses Resource Grant • $5,000 / year Source: ECDA Singapore 2022 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 65 Chapter 5: Quality of Preschool Education CHAPTER 5 Quality of Preschool Education Chapter 5: Quality of Preschool Education 5.1 Priority Area 3: Quality Assurance for Preschool Education Provision In Malaysia, the National Preschool Quality Standard (NPQS) is used by all public and registered private preschools to self-assess, reflect, and improve the quality of preschool education provision. The quality standard was developed by MOE with inputs from representatives of the relevant organizations, including the ECCE Council. The MOE’s School Inspectorate Department is accountable for coordinating, executing, supervising and improving the use of NPQS. The NPQS was first developed in 2013 and piloted in 2015. In 2018, the quality standard was reviewed and the revised NPQS 2.0 was introduced in 2021. The NPQS covers five key quality dimensions which are (1) teachers and teacher assistants, (2) governance, (3) curriculum, (4) parent-teacher interaction, and (5) health, nutrition, and safety. With the exception of the teacher quality dimension being measured using only objective indicators, all other dimensions are measured with both objective and subjective indicators. Table 10 provides an overview of the main indicators used in measuring preschool quality in the NPQS. The NPQS online self-assessment tool was developed for preschools to self-assess themselves on an annual basis, with the intention that interventions and support can be given to preschools that are not meeting minimum standards (MOE 2021b). The threshold value of the minimum standard was established at 50.23 points, based on ratings by the evaluators having gone through several stages of evaluation, and was considered reasonable in view of the challenges faced by the preschool sector (PADU 2019). TABLE 10: Main indicators in the quality dimensions of the NPQS 2.0 Main indicators in the quality dimensions of NPQS 2.0 Teacher/Teaching assistant/Student Preschool – Parent Health, nutrition, Governance Curriculum management Interaction and safety assistant • Teaching • Supervision • Provision • Formal activity, • Health checkups experience and monitoring of learning communication, resources and meeting • Facilities • Academic and • Financial audit with parents including sickbay, professional • Students’ toilets, sinks qualification • Awards and mastery of • Collaboration recognition pillars of with community • Student insurance • Participation learning in continuous • Classroom • Learning professional observations • Lesson planning environment learning • Food preparation • Classroom management practices • Assessment • Safety within school premise Source: MOE 2021b (National Preschool Quality Standard Instrument 2.0) Note: Indicators in the quality dimensions listed are non-exhaustive. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 67 Chapter 5: Quality of Preschool Education 5.1.1 Overview of Preschool Quality Assessment Results The latest available data show that the participation in the self-assessment exercise is high, and nearly all preschools in Malaysia have achieved the minimum quality standards as prescribed by the NPQS. In 2018, 98.8 percent of registered preschools have met the minimum quality standards (see Figure 26 for the percentage of preschools meeting minimum quality standards since its inception). Average NPQS scores have increased from 68.10 points in 2015 to 74.29 points in 2018 (PADU 2019). FIGURE 26: Percentage of registered public and private preschools achieving the minimum standard as prescribed by the NPQS, 2015-2018 98.80% 98.80% 97.30% 91.10% 2015 2016 2017 2018 (n=21,819) (n=23,171) (n=23,285) (n=23,469) Sources: PADU 2017; PADU 2018; PADU 2019 A closer look at the scores trend of the quality dimensions shows positive improvement over time in governance, curriculum, and school-parent interaction, but weaker performance in the teachers and health, nutrition, and safety dimensions (PADU 2019). Figure 27 below illustrates the breakdown of NPQS scores according to the five quality dimensions from 2015 to 2018. FIGURE 27: National average of NPQS scores by quality dimension, 2015-2018 88.97 88.26 86.8 81.72 78.97 78.21 76.5 75.28 74.39 73.92 73.34 69.03 68.96 67.42 65.88 65.85 60.79 58.08 53.63 50.56 DK1 DK2 DK3 DK4 DK5 2015 2016 2017 2018 Source: PADU 2019 Notes: DK1 = Quality of Teacher/Teacher Assistant/Student Management Assistant Dimension, DK2= Quality of Governance Dimen- sion, DK3 = Quality of Curriculum Dimension, DK4 = Quality of Preschool – Parent Interaction Dimension, DK5 = Quality of Health, Nutrition and Safety Dimension 68 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education Teacher quality is consistently the weakest dimension in preschool quality, albeit the most important quality indicator. The dimension scored the lowest, ranging from 50.56 percent to 60.79 percent between 2015 to 2018. The dimension measures teachers’ academic and professional qualifications, as well as opportunities to attend and deliver lectures, courses, or workshops. The private preschools scored lower in the teacher quality dimension, as many of the teachers in the private sector do not hold a minimum of a Diploma in ECCE, and have limited opportunities to attend professional development workshops and courses, unlike teachers serving in public preschools (PADU 2019). The quality of health, nutrition, and safety in preschools has remained largely stagnant over the years with scores ranging from 65.85 percent in 2015 to 67.42 percent in 2018 (PADU 2019). The meal assistance provided at MOE preschools at the cost of RM2.00 per child per day for Peninsular Malaysia and RM2.25 per child per day in East Malaysia (MOE 2013a), should be reviewed to provide more nutritious and healthful meals to the students. The meal assistance allowance was last reviewed in 2012, and has not been revised in a decade to reflect inflationary pressure and rising food prices, due to COVID-19, supply chain disruptions, and global conflicts. The review should evaluate whether the allowance is sufficient to meet the nutritional and developmental needs of children in preschools, particularly those from the low-income households. 5.1.2 Key Issues and Challenges The NPQS rightfully focuses on structure and processes, but the linkage to outcomes is missing. The NPQS measures both contextual factors such as pupil-teacher ratios and classroom building requirements, as well as aspects contributing to teaching and learning and student outcomes, including teachers’ pedagogical skills, classroom practices, curriculum implementation, and teachers’ professional development (UNICEF 2019a). While the expected outcome of preschool education is comprehensively stated in the national preschool curriculum, it is not measured in the NPQS. There is insufficient check-and-balance in the implementation of NPQS to ensure objectivity of assessment, and to direct interventions and support for preschools which need them to promote continuous improvement. The NPQS is currently used as a self-assessment tool. Guidance on the use of the quality standard is provided to preschools in a cascading manner. The Schools Inspectorate of the MOE conducts courses regarding the content and implementation of NPQS, targeting representatives of agencies delivering preschool education. These representatives then transfer the information to preschool principals, operators, and teachers, and provide guidance in person. The NPQS implementing agencies including MOE, KEMAS and JPNIN verify the NPQS self-assessment for preschool institutions managed by their respective agencies. Private preschools’ self assessments are also verified by the MOE Schools Inspectorate and Private Education Division. These verification work is implemented based on annual planning and funding allocated to the respective agencies. The number of verifications conducted are limited. While some support visits were conducted by the state education departments and PPDs for preschools not meeting minimum standards, funding was also inadequate for interventions to be implemented, with no structured monitoring and support framework in place (PADU 2019). In 2020, the NPQS verification inspections were affected by the transition from NPQS to NPQS 2.0. Travel restrictions imposed due to the COVID-19 pandemic also halted inspections from 2020 to 2021. The MOE Schools Inspectorate planned to resume the annual verification inspections in the forthcoming year. Operators and teachers did not see the value of NPQS as a quality assurance and improvement tool, as little support and intervention were provided to address the quality issues identified (World Bank Malaysia Preschool Survey 2021). When asked in the survey to consider the factors contributing to the quality of preschools, monitoring and support were seen as least important. Notably, survey respondents (who were mostly teachers), commented that the NPQS was not helpful, given the ample paperwork required, as little support or intervention was provided after the assessments. Interviews conducted with private preschool operators also suggested that self-assessments had not been conducted accurately and Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 69 Chapter 5: Quality of Preschool Education truthfully. Some operators completed the assessment instrument just to abide to the instructions to do so, and made sure they scored enough to meet minimum standards, without reflecting on the quality of their services for improvement (see Box 5). The verification of the self-assessment is also largely based on documentation compiled by the preschools and teachers as evidence of meeting quality standards, and does not adequately include actual observation of teaching and learning in the classroom, and engagement with and feedback from teachers and parents. BOX 5 Selected responses on NPQS assessment and inspection “There is too much side tasks especially in filling up the SMPK and NPQS.” “Eliminate NPQS system, filings and MOE inspectorate visits that are burdening. Ask the parents or villagers if you want to see students’ achievements.” Source: World Bank Malaysia Preschool Survey 2021 (translated) “Recently, the health officer came to check my school. I have to spend few hundred ringgits to do things, so it meets their requirement for their standard SOP practices. Arrows [to guide the movement of students within the school grounds] must be clear, must be in two colours, so I must take out all my arrows, change it to two colours, one colour in, and one colour out.” “They spent a whole day in the school wanting all these paperwork, proof of whatever they have keyed in, which is a very tedious process. When I fill up these things, I will just fill up to make sure I pass… I don’t think it will give you a clear picture of quality.” Source: World Bank Malaysia excerpt from transcript of interview with private preschool operators 2022 5.1.3 Recommendations RECOMMENDATION 7: Review the NPQS assessment method to include measurement of outcomes and to strengthen validity of the assessments (Medium- to long-term) As part of the MOE’s effort to continuously review the NPQS assessment to ensure its usefulness for schools and ultimately its positive impact on student outcomes, the MOE can consider the following enhancements. Firstly, the MOE can consider including child development outcomes and school readiness indicators as part of the NPQS. These include basic literacy and numeracy, and physical, socioemotional, and other developmental indicators. These indicators are currently being measured only at a later stage of schooling. Secondly, external assessment of preschools’ quality standards should be reinstituted, in addition to the self-assessment by schools. To manage the cost of these verification exercises, a small proportion of preschools can be chosen randomly every year for verification. Schools scoring at the lower and upper extreme on the NPQS can also be inspected for coaching and improvement purposes, and for sharing of best practices with other preschools. The MOE can also explore other forms of assessment and data collection considering the complex nature of quality measurement. Three main mechanisms mainly used in ECCE are (1) direct observation, (2) self-reporting by qualified informants, and (3) reviews of existing documentation (World Bank 2016b). Combining the different mechanisms can collect more information and improve the effectiveness of quality measurement. Table 11 provides examples of commonly used tools, which have been validated and adopted in at least one country. Lastly, as 98.8 percent of preschools are already meeting the current minimum standards, there is scope for increasing the bar. The existing threshold of 50.23 percent can be raised to encourage excellence in preschool provision. 70 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education TABLE 11: Selected tools to measure the preschool quality Tool Description Domains Length Cost Countries CLASS Pre-K is an Training costs observation-based tool vary from $670 that assesses classroom 10 dimensions of to $1,500 per 80 minutes quality in settings classroom quality Mainly used in Classroom (suggested): four for children aged 36 across these three person for two the United States. Assessment months to kindergarten. domains: emotional to five days of Also used in Scoring System classroom All observers are support; classroom training. Manuals Chile, Finland, (CLASS) Pre-K observations of required to receive organization; and cost $50 each, and Portugal 20 minutes each prior training and are instruction support and a pack of 10 encouraged to use scoring forms videorecorded footage. costs $25. Developed at the University of North Used in Austria, Carolina at Chapel Hill, Bangladesh, Seven domains: ECERS is designed to Canada, Chile, space and assess group programs England, furnishings; for children aged 2 to 5. Germany, Greece, personal care The tool is mostly used Hungary, Iceland, routines (health Early Childhood for policy development, Two to three $19.95 for the India, Italy, and safety); Environment program evaluation, hours; contains 43 manuals and $59 Republic of Korea, language and Rating Scale improvement advocacy, items and seven for the training Portugal, Russia, reasoning; (ECERS-R) and training. ECERS-R subscales videos. Singapore, Spain, activities; includes classroom Sweden, and interactions; observation and a seven Caribbean program structure; teacher’s interview from countries. A and parents and the enumerator. The Spanish version staff. enumerator or observer of the tool is should receive prior available. training. The MELE The MELE is used to addresses measure the quality environment and of early learning materials; teacher- Measure Early Depends on environments for child interactions; Used in Learning how module is children aged 3 to 6. pedagogy and Free Nicaragua, Environments adapted by each It includes a classroom approaches to Tanzania (MELE) country observation tool, learning; family teacher/ director survey, and community and parent survey. engagement; inclusion; and play. Used in more The assessment than 35 countries, The GGA is an includes including Canada, instrument designed to environment and Guatemala, India, help ECCE professionals physical space, systematically assess curriculum content Kenya, Mexico, Acei Global the quality of their and pedagogy, Peru, Sierra Guidelines programs. GGA is educators and N/A Freely available Leone, and mostly used for self- caregivers, Thailand. Assessment (GGA) assessment by centers, partnerships Available in to design new early with families and Arabic, Chinese, childhood programs, communities, English, French, or to improve existing and children with Greek, Nepali, programs. special needs. Russian, and Slovak. Source: World Bank 2016b Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 71 Chapter 5: Quality of Preschool Education RECOMMENDATION 8: Clearly communicate the larger purpose of the NPQS as a developmental tool (Short-term) The larger purpose of NPQS as a developmental tool needs to be clearly communicated with a clear post-assessment supporting structure for both public and private preschools. The MOE including the state and district education offices, JPNIN, KEMAS and the ECCE Council are responsible to ensure the understanding of the NPQS, provide support and problem solve alongside preschool operators. Continuous guidance, close engagement and effective communication are key to developing high quality preschool institutions. The MOE can work with the ECCE council to strengthen understanding of NPQS among private preschool providers. Schools need to be assured there will be no adverse consequences for not meeting the minimum standard, but instead have the clarity on the types of support that will be made available to them, with specifics on how, when, and by whom these will be provided. The School Inspectorate can work with the state and district education office network to provide structured support to both public and private schools within their oversight. The ECCE Council can also create a peer support network among private preschools to promote sharing of best practices and peer learning. Country Example 4: Internal self-evaluations and external inspections in Australia The early childhood education and care provision in Australia is guided by the national benchmarks set out in the National Quality Standards for ECCE, which is a key aspect of the National Quality Framework (NQS). In Australia, both internal self-evaluations and external inspections are conducted to monitor the quality of services and staff. ECCE providers self-assess their performance and quality against seven quality areas of the NQS; comprising educational program and practice, children’s health and safety, physical environment, staffing arrangements, relationships with children, collaborative partnerships with families and communities, and governance and leadership. ECCE centers are required to develop quality improvement plans and submit them to the relevant regulatory authority. The plan includes an assessment against the NQS and national regulations and prioritized areas for improvement, which must be updated annually. The plans will be used by the regulatory authority to independently assess and rate the ECCE centers against the quality benchmarks. These ratings must be displayed at the center and are published publicly to help families choose the right ECCE service for their child. Immediate action will be taken by the regulatory authority against centers that does not meet any one of the quality areas. A range of resources including reading materials and e-Learning modules are available to help centers meet the quality standards. Source: ACECQA 2022 72 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education 5.2 Priority Area 4: Enforcing Minimum Qualifications for Preschool Teachers and Supporting Teachers to Acquire Them Early childhood education requires specialized skillsets and content knowledge in a variety of learning and development areas. The qualifications, education, and professional development that a preschool teacher receives translate to increased pedagogical quality, which improves children’s outcomes. Research has shown the importance of preschool teacher training that includes understanding of a child development and learning. Teachers must have the ability to develop children’s perspectives, elicit their ideas, and be able to praise, comfort, question, and be responsive to them. Further, their competencies in leadership, problem solving, and development of targeted lesson plans, are important skills and traits to facilitate high-quality early childhood and care services and outcomes (OECD 2012). Table 12 introduces the core knowledge areas needed by early childhood educators as outlined in the Malaysian Qualifications Agency (MQA)’s program standards. TABLE 12: Five core areas of knowledge in early childhood education Child Development Administration and Management • Child growth and development • Administration and management • Observation and assessment • Program planning and development • Guiding young children Curriculum and Learning Environment Families and the Community • Early learning and early environments • Partnership with families • Curriculum planning and development • Partnership with community • Language, communication, and literacy Professional Development • Early mathematics • Early science and technology • Professionalism • Social studies • Professional practice • Creative arts • Spiritual and moral values • Health, safety, and nutrition • Special needs (including the gifted) Source: MQA 2014 The qualification of preschool teachers is a key factor in ensuring the quality of early childhood education provision. All teachers should be professionally trained to teach at the chosen level of education and be academically qualified in the subject areas they are expected to teach (Taguma et al. 2012a). A high school leaver, or a doctorate graduate in other fields would not have sufficient and relevant qualification to teach preschool children. In a meta-analysis of 48 studies, a statistically significant, positive correlation was found between teacher qualifications and the quality of the early childhood education and care. Specifically, higher teacher qualifications are related to improvements in supporting children’s development, including ability to facilitate free play and group time; provision for children with disabilities; support development of language, reasoning skills, and communication; and provide opportunities for interaction among children (Manning et al. 2017). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 73 Chapter 5: Quality of Preschool Education Raising the minimum qualifications of a preschool teacher will also enhance the status and value of the profession. With higher qualifications, preschool educators can seek better pay and benefits, which will have a positive impact on staff attraction and retention. Higher numbers of qualified ECCE professionals would result in better ECCE provision as well as pay and career opportunities, making it more attractive for school leavers and graduates to enter and stay in the profession. Most countries require preschool teachers to have a minimum of a bachelor’s degree or equivalent qualification. In most countries, preschool teachers become qualified to teach at the end of their initial teacher education (see Table 13 for minimum qualification requirement for preschool teachers by countries). Other countries have different qualification requirements. In the Slovak Republic, preschool teachers are qualified to teach with an upper secondary diploma, but teachers with a bachelor’s or a master’s degree are becoming increasingly common. In Austria, preschool teachers graduate at ISCED level 5 after a two-year short-cycle tertiary program. At the other end of the spectrum, preschool teachers in France, Poland, and Portugal are required to have a master’s degree or equivalent to teach (OECD 2017; OECD 2019a). TABLE 13: Minimum qualification requirement for preschool teachers by countries Increasing levels of education Short cycle tertiary Bachelor’s degree or equivalent Master’s degree education (ISCED level 6) or equivalent (ISCED level 5) (ISCED level 7) Austria Australia Finland Lithuania Russia France Republic of Korea Belgium Germany Luxembourg Slovenia Iceland Singapore Brazil Greece Mexico Spain Italy Canada Hungary Netherlands Sweden Poland Chile Israel New Zealand Switzerland Portugal Czech Republic Japan Norway Turkey United Kingdom Denmark Latvia Philippines United States Estonia Sources: OECD 2017; OECD 2019a Requiring preschool teachers to have at the minimum a Diploma in Early Childhood Education (DECE) qualification is the first step to elevating the quality of preschool education provision in Malaysia. The Government of Malaysia has begun effort to put in place a minimum qualification requirement for all preschool teachers since the 2010s. The target to raise the minimum qualification of all preschool teachers to DECE by 2020 was first suggested in the Malaysia Education Blueprint 2013-2025 (MOE 2013b). The minimum qualification requirement was agreed by the Cabinet in 2016 and the MOE subsequently issued a press statement to announce the enforcement starting 2020. Operators were reminded to hire preschool teachers with minimum DECE qualification in new hiring decisions starting 2017, and in-service preschool teachers were asked to pursue further education to acquire the qualification. Operators were also reminded to look into teachers’ welfare so they can pursue their further education (MOE 2016a). The aim of this minimum academic requirement is to ensure that preschool teachers are competent in applying the appropriate methodologies and approaches to nurture young minds (PADU 2018). 74 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education 5.2.1 Overview of Teachers’ Pathways Toward Achieving Minimum Qualification Various pathways with varying degree of affordability and accessibility are available for all aspiring preservice and in-service teachers to obtain their DECE qualification. The program typically takes two to four years to complete. The duration of the course depends on whether there is any practicum as a prerequisite for graduation. Applicants can apply using their Malaysian Certificate of Education (SPM) or equivalent qualifications to fulfill the course entry requirement. Prior experiential learning along with other assessment are also recognized for admission. The DECE is offered by 67 accredited public and private higher learning institutions in the country, available in both conventional and open and distance learning modes of delivery, as well as both full-time and part-time modes of study (MQA 2022). The part-time or distance learning modes enable the teacher to continue working, which will assist in funding their studies. The total tuition fee ranges from RM10,000 to RM16,000 in public higher learning institutions, and from RM13,000 to over RM32,000 in private higher learning institutions 5. Within the ministry, teachers specialized in another subject area can participate in the Add-On Option Intervention Programme (Pelan Intervensi Tambah Opsyen, PITO) to specialize in early childhood education to teach at preschools (PADU 2019). The “Diploma in Teaching Programme specialising in Early Childhood Education” offered by the MOE’s Teacher Education Institute presents another relatively affordable option for in-service teachers. The Diploma program caters to teachers serving in preschools operated by KEMAS and JPNIN as well as private preschools (PADU 2019). The program is offered at an affordable fee of RM8,060, which is considerably lower than those offered by private higher education providers, and can be completed over the school holidays (MOE 2021d). This program allows teachers to continue to teach and earn an income while pursuing their further education. By 2019, 4,250 KEMAS preschool teachers graduated from the program through the holiday course mode, where teachers could teach as usual and attend the program during school holidays (KEMAS 2019a). In 2021, the ministry continues to encourage private preschool teachers to enroll in the two- year program (see figure 28 for a snapshot of the advertisement). FIGURE 28: Snapshot of MOE’s advertisement to offer Malaysian Diploma in Teaching Programme in ECCE in 2021 Source: MOE 2021e (Ministry of Education’s Private Education Division’s social media) 5 Tuition fee range stated is derived from World Bank staff compilation of the most recent tuition fees as advertised by higher learning providers. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 75 Chapter 5: Quality of Preschool Education The MQA, the entity responsible for quality assurance of higher education in the country, also recognizes prior experiential learning for admission into higher learning institutions, course credit exemptions, and awarding of academic qualifications. Accreditation of Prior Experiential Learning (APEL) is a systematic process of identification, documentation, and evaluation of previous experiential learning. APEL assessment involves the knowledge gained by the individual through informal education or previous experiences (MQA 2022). Recognition of prior learning (RPL) is commonly used. Country Example 5 shows the use of Recognition of Prior Learning (RPL) in ECCE across Organisation for Economic Co-operation and Development (OECD) countries. MQA has recognized innovations in the APEL scheme, which now has three categories for more flexibility for in-service teachers to attain DECE, namely APEL.A, APEL.C and APEL.Q. Teachers who do not meet the admission prerequisite for DECE programs can use their working experience to gain admission through the APEL.A plan. Teachers can also use working experience to get up to 60 percent of credit exemptions to shorten their DECE course and reduce tuition expenses through APEL.C plan. Teachers with sufficient relevant working experience who could demonstrate their knowledge and competencies through evaluation and assessment such as portfolio, tests, workplace observation, and capstone projects could be awarded with the DECE academic qualification through the APEL.Q plan (MQA 2022). Country Example 5: Recognition of prior learning (RPL) across OECD countries Recognition of prior learning (RPL) is used by various countries to recognize professional development, or any skills and knowledge acquired through informal and nonformal learning. Countries use RPL as a tool to upskill their ECCE workforce, recruit personnel, and provide qualification to unqualified staff. In England and Scotland, unqualified ECCE staff can be qualified based on their prior knowledge and skills. In Japan, prior learning is not formally recognized but can be used to recruit personnel. New Zealand recognizes prior learning to recruit ECCE staff, while Finland recognizes prior learning to provide qualifications to unqualified staff in family day care and those in caring positions. Source: Taguma et al. 2012a In tandem, the Department of Skills Development (DSD), the regulating agency for skills training in the country under the Ministry of Human Resources, offers the Malaysian Skills Diploma (DKM) in Early Childhood Care and Development Supervision, and in Preschool Teaching and Education Administration, which can be obtained through training in an accredited institution (DSD 2021). This pathway caters to students with Skills Certificate qualifications and can be completed within a year. These programs are benchmarked as Level 4 on the National Occupational Skills Standard and takes 2,400 to 3,600 hours of training and three months of industry attachment to complete (DSD 2014). Students are assessed based on their ability to demonstrate learning outcomes in theory and through industry-based practical applications (DSD 2021). Table 14 presents an overview of the pathways available for preschool teachers to meet the minimum qualification. 76 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education TABLE 14: Overview of the pathways available for preschool teachers to meet the minimum qualification Programs Provider Indicative total Completion Recognition of Open and Part-time Recognized program cost time prior learning distance mode of study qualification learning mode for preschool of delivery teachers Higher Education (regulated by the MQA) Public higher APEL.A  RM13,000- Diploma in Early learning 2 – 4 years APEL.C     RM32,000 Childhood Education institutions APEL.Q  Diploma in Preschool Private higher APEL.A  Education RM10,000- learning 2 – 4 years APEL.C     RM16,000 institutions APEL.Q   MOE’s Teacher APEL.A  Full time Diploma in Teaching Education RM8,060 2 years APEL.C    during school Institute APEL.Q  holidays Skills Qualification (regulated by the DSD) Malaysian Skills Diploma in Early Childhood Care  and Development Private ≤RM8,000 Recognition Pending Supervision accredited (fully funded Information not Information not 12-14 months of prior recognition by training options available available Malaysian Skills achievement MOE providers available) Diploma in Preschool Teaching and Education Administration Other routes Additional Option MOE’s Teacher Certificate for in-service Professionalism free 10-12 weeks    Yes teachers in MOE Division Sources: MQA 2022 (MQA Qualifications Register); DSD 2021 (DSD Standard Registry); MOE 2021d (MOE’s Offering of the Malaysian Diploma in Teaching Program in ECE at IPG); Authors’ compilation from publicly available program information. The Government also provides financial assistance to incentivize teachers to upgrade their qualifications and to alleviate their financial burden to complete the DECE program. The government provides study loans through the National Higher Education Fund (Perbadanan Tabung Pendidikan Tinggi Nasional, PTPTN) to facilitate teachers to pursue DECE programs. However, the PTPTN loans have some restrictions, such as an age limit and institution eligibility, which hinder teachers from tapping into the fund. In addition, tuition assistance amounting to RM1,000 per year was provided in the past for a three-year study period from 2013 to 2015. This aid represented 16 percent to 25 percent of the overall cost of the DECE program (PADU 2014). 5.2.2 The Current Situation The minimum qualification requirement for preschool teachers is not enforced. In response to the anxiety among many private preschool operators whose teachers have yet to acquire the minimum qualification by 2020, the then-Deputy Minister of Education assured that the minimum qualification will not be enforced but instead be encouraged, and no punitive actions will be taken against unqualified teachers or operators (Oriental Daily 2020). As of 2022, about half (50.6%) of the preschool teachers in Malaysia do not have a Diploma in Early Childhood Education (DECE) yet. The MOE has raised the minimum pre-service training qualification for all its teachers to a bachelor’s degree, and most of its preschool teachers have already met the minimum degree qualification. KEMAS on the other hand has included the DECE as a requirement for new hires since 2016 (Malaysia House of Representatives 2016) and aims to further elevate the qualifications of its teachers. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 77 Chapter 5: Quality of Preschool Education Going beyond the minimum DECE requirement, KEMAS sets a target to have 12 percent of its teachers having a bachelor’s degree in ECCE by 2020, 25 percent by 2025 and 30 percent by 2030 (KEMAS 2019b). Among the 22,509 of preschool teachers who have not met the minimum qualification requirement, 76 percent are from the private sector (Table 15 shows the breakdown of teachers by academic qualification and agency). Over half of private preschool teachers, with the exception of those that have obtained a DECE, only hold high school certificates (PADU 2017). The MOE has reset the goalpost to ensure all preschool teachers obtain a minimum DECE qualification by 20256 . To meet the 2025 target set by MOE, at least 7,500 teachers must obtain their Diploma in ECCE qualification annually, from 2023 to 2025. TABLE 15: Number of preschool teachers who have obtained minimum qualification Total number Number of academically qualified Remaining teachers who Agency of preschool preschool teachers with a DECE need to become qualified teachers MOE 8,900 8,143 (91%) 757 (9%) KEMAS 10,447 6,062 (58%) 4,385 (42%) JPNIN 1,715 1,507 (88%) 208 (12%) Private Sector 23,436 6,277 (27%) 17,159 (73%) Total 44,498 21,989 (49%) 22,509 (51%) Source: PADU 2022a 5.2.3 Key Issues and Challenges Accessibility of the diploma programs, particularly for those residing out of the Klang Valley region and those without internet access, may have hindered teachers from enrolling and completing their studies. Out of the 71 accredited diploma programs, only 22 can be enrolled part-time that would allow teachers to keep their jobs and income while studying, but two-thirds of these institutions are concentrated in the Klang Valley region, leaving limited options for teachers located in other states. Only three higher learning institutions, all of them private, offer open and distance learning that would allow teachers to complete the Diploma remotely (MQA 2022). Research shows that the lack of support from operators for time off to study and take exams is hindering teachers from pursuing their diploma qualification (Foong et al. 2018). The affordability of the diploma programs remains a challenge, given the relative low wages and inadequate income safety net among preschool teachers. MOHE and MQA have made great strides in the past few years to lower the cost of DECE and make more modalities of studies available by more providers. More needs to be done by 2025 to meet the aspiration for all preschool teachers to be qualified. The tuition fees between RM10,000 to RM32,000 may not be affordable for preschool teachers, who often earn an average monthly wage of RM1,4007. While the Government provided tuition fee assistance amounting to RM1,000 annually, the initiative benefited only 1,346 teachers between 2013 to 2015, and ceased in 2016 due to financial constraints and limited number of beneficiaries (see Table 16). Currently, in-service preschool teachers who plan to enhance their qualifications to the diploma level will have to self-fund their studies, tap on available PTPTN study loans, or withdraw from their Employees’ Provident Fund retirement savings. 6 Stakeholder interviews with MOE revealed that an internal target has been set, while no public announcement has been made yet. 7 According to JobStreet’s salary insight database last updated in March 2019, the monthly salary of a kindergarten teacher in Malaysia ranges between RM1,000 to RM2,500, and averages at RM1,400 (JobStreet 2019b). For comparison, a HR and Admin Executive commands a monthly salary of RM2,900 on average (JobStreet 2019a), and the starting salary of a MOE preschool teacher including allowances is approximately RM2,938 at the same time period (JPA 2016). 78 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education TABLE 16: Tuition fee assistance for preschool teachers 2013-2015 2013 2014 2015 Number of private preschool teachers 383 179 784 benefiting from tuition fee assistance Total tuition fee assistance disbursed RM 383,000 RM 179,000 RM 784,000 Sources: PADU 2014; PADU 2015; PADU 2016; PADU 2017 The ease of accreditation of prior experiential learning, its cost, and the number of accredited providers could be further improved to cater to teachers with many years of preschool teaching experience. Research shows that challenges to obtain APEL due to stringent exemption requirements are among the many barriers private preschool teachers face (Foong et al. 2018). Currently, there is only one sole higher learning institution that is accredited by the MQA to award the DECE academic qualification through the APEL.Q scheme for in-service teachers based on assessments and validation of their working experience (MQA 2022). The total fee for this APEL.Q program is approximately RM10,000. There is no clear link between acquiring a higher academic qualification and a brighter career prospect for many teachers. For most private preschool teachers, the cost to pursue the DECE qualification outweighs its foreseeable benefits such as salary increment or promotions, and hence there is no incentive to upgrade their qualifications. There is also no concrete adverse consequence for teachers or operators who disregard the Government’s call to meet the minimum qualification. The Government’s previous announcement to enforce the minimum qualification requirement, and its subsequent decision to not enforce it, sent mixed signals to the industry players. Without government intervention and support, as well as clear incentives and consequences in place, the sector may not respond in the desired direction. Parents do not demand and pay for better-qualified teachers. The general awareness about importance of early childhood education is still low, especially among disadvantaged households (see Box 6). By extension, the demand for quality of early childhood education provision and the professionalism of its practitioners is weak. Responding to the market demand, smaller-scaled private operators catering to children from lower- middle-income families see no business value in hiring better-qualified teachers or to support their teachers to upgrade their qualifications. The awareness of the importance of early childhood education, and the status of early childhood education as a profession, are intertwined. There is strong evidence that higher staff qualifications lead to enriched stimulating environments and better pedagogical practice, and they ultimately lead to better learning outcomes (Litjens and Taguma 2010; Shonkoff and Philips 2000). The OECD report (OECD 2011) also highlights that higher qualifications are found to be strongly associated with better child outcomes. The Effective Provision of Pre-school Education (EPPE) study from the United Kingdom, which is the first major European longitudinal study of a national sample of young children’s development, has shown that the ECCE setting that has staff with higher qualifications, especially with a good proportion of trained teachers on the staff, shows higher quality, and their children make more progress (Sylva et al. 2004). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 79 Chapter 5: Quality of Preschool Education Selected responses on awareness about the importance of early BOX 6 childhood education “Rural communities still underestimate the importance of preschool education.” (Translated) “Primary school will teach back what the children learned from preschool, so parents will think to directly enroll to primary school” “There is a lack of awareness among parents to send their children to preschool because they consider the children too young and just playing.” (Translated) “Parents still think that early childhood education is just a waste of money.” Source: World Bank Malaysia Preschool Survey 2021 5.2.4 Recommendations RECOMMENDATION 9: Make DECE programs more accessible (Short-term) Teachers should have access to options to complete their DECE, without disrupting their income, while allowing them to balance work, family, and other commitments. The MOE can use the wealth of data already available in the SMPK to identify the location of unqualified teachers, and subsequently seek to understand the accessibility barriers for them to enroll in accredited higher learning institutions. These barriers can include physical distance, financial constraints, lack of access to internet and technology tools, and inability to take time off work to study. This information can be mapped against the accredited learning providers and seats available to identify the supply gap. The Government can coordinate with public and private higher learning providers to offer admission in suitable modalities in high-need areas. The MQA and the DSD as accreditation bodies can work with learning providers to open more programs that will be delivered in part-time and open and distance learning modes, while safeguarding their quality standards. Distance learning can be prioritized as the preferred mode of learning for in-service teachers, especially those located further away for city centers to allow them to complete their studies without incurring excessive traveling time and expenses. Blended learning incorporating asynchronous, self-paced learning can be explored to allow teachers with intermittent internet connectivity to access learning materials in their own time and circumstances that are most optimal to them. The MOE can work with the IPGs and public higher learning institutions to offer distance-learning programs to provide a more affordable distance-learning option for teachers located in rural areas. The IPGs that are equipped with accommodation facilities can prioritize teachers serving in remote areas who could not access distance or blended learning for their courses that are conducted in-person during school holidays. Seats can be increased at public institutions offering relatively more affordable DECE programs. The Ministry of Higher Education and public higher learning institutions can be engaged to increase seats for diploma or degree courses in ECCE. The capacity of the IPG campuses accredited to offer DECE programs can be maximized, and their personnel and resources can be redeployed to prioritize DECE courses for the coming three years to support the MOE’s policy direction. Public higher learning institutions and IPGs can expand their DECE programs to be delivered part-time or through blended learning, at an affordable fee. The effectiveness of the holiday course mode adopted by the IPGs can also be reviewed to ensure its compatibility with private preschools teachers, as private preschools often have shorter school holidays compared to public preschools. 80 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education The Government can work with both public and private higher learning institutions to explore ways to reduce cost and lower tuition fees. This include leveraging remote learning or developing peer support networks to reduce costly one-on-one guidance. Blended learning incorporating asynchronous, self-paced learning allow more teachers to participate at the same time, which could help to lower the cost of delivery for learning providers and for the cost savings to be passed on to teachers in the form of lower tuition fees. In-person instructional hours for teacher trainers can be optimized for higher impact activities such as practicum and coaching. Accreditation for Prior Experiential Learning (APEL) should be made available by more learning providers. The MQA can take a proactive role to expand the APEL pathways. This includes accrediting more institutions to provide credit exemptions and to award qualifications based on prior experiential learnings. This can be done by providing consultation support to higher learning institutions in their licensing application process to be accredited to offer APEL, expediting these applications, and waiving related costs for these institutions. Increased competitions among providers can lower the accreditation cost for teachers. There is also room for greater flexibility in APEL, as MQA imposes strict requirements on documentation to demonstrate learning outcomes and for exemptions to be obtained on program modules, which is a barrier to many of the older and more experienced teachers. The framework and approach employed to assess teachers’ accumulated experience, knowledge, and skills for qualification accreditation can be reviewed and simplified to enable more providers to award them at a lower assessment cost and lower fees. The MOE and the MQA can also work together to promote awareness on APEL pathways for teachers, and provide consultation support for teachers to apply for APEL for admission, credit exemptions, and qualification recognition. The Malaysian Skills Diploma is another alternative for teachers to be trained in specific skills according to the National Occupational Skills Standard. The MOE needs to work with the DSD to ensure the standards of the DKM in Early Childhood Care and Development Supervision, and DKM in Preschool Teaching and Education Administration programs, are at par with the DECE as a minimum qualification for preschool teachers. Like the APEL for MQA-accredited academic qualification, the two Skill Diplomas can also be obtained through Recognition of Prior Achievement by the DSD, a faster and cheaper option for teachers with existing working experience who could demonstrate their skills through assessments and documentation such as portfolios and reports (DSD 2022). The national study loan scheme can be further enhanced to fund teachers’ cost of diploma studies. The loan is capped at RM4,750 annually for part-time diploma courses at public higher learning institutions and RM5,050 at private higher learning institutions, which is largely sufficient to cover tuition fees. Currently, PTPTN loans for part-time diploma courses are only available for applicants below 45 years of age. For private higher learning institutions, only learners enrolled in five selected institutions are eligible for the study loan for part-time programs.8 Those who have previously obtained a PTPTN study loan are only eligible to borrow again if they are pursuing a higher level of education (PTPTN 2022). The MOE can work with PTPTN to review these restrictions and provide exemptions for in-service teachers pursuing their DECE. The age limit for loan eligibility can be extended, considering the national retirement age at 60 and the national aspiration to promote lifelong learning. The eligibility for loans should also be expanded to include all accredited higher learning providers and to include second-time borrowers. The Government can consider introducing means-tested annual tuition fee assistance for in-service preschool teachers enrolling in accredited DECE programs. Between 2013 to 2015, tuition fee assistance amounting to RM1.3 million benefited 1,346 teachers. The assistance can be better targeted by using teachers’ monthly wages to determine the eligibility and amount of the fee assistance. Further study would need to be conducted to understand the demographics of unqualified preschool teachers, derive a suitable assistance amount, and estimate the budgetary impact of this assistance. 8 PTPTN study loans for part-time programs offered by private higher learning institutions are only available for those enrolled in Open University Malaysia, Wawasan Open University, Universiti Tun Abdul Razak (UniRazak), Asia E Universiti, and UNITAR. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 81 Chapter 5: Quality of Preschool Education Preschool operators can also be encouraged to support their teachers’ further education. Research shows that private preschool teachers face many barriers such as inadequate financial assistance and incentives to fund or subsidize the DECE, and lack of support from ECCE operators for time off to study and take exams (Foong et al. 2018). Teachers seeking to obtain their DECE qualification require support from the ECCE centers, by giving them leave or time off to study and sit for examinations. ECCE centers can also invest in their teachers by providing subsidies or interest-free loans for the tuition fees, which can be repaid through salary deductions after the Diploma is obtained, with the incentive of higher pay commensurate with their higher qualifications. Country Example 6: Ireland’s training subsidy to assist existing ECCE staff to attain mandatory minimum qualification requirements Ireland mandated all staff in Early Years services to have full Level 5 qualifications, and all Preschool (ECCE) Room Leaders to have a full Level 6 qualification from September 2015 onward. To support established ECCE services to get all their staff appropriately qualified within a limited timeframe, the Ireland’s Learner Fund was established to give financial support in the form of training subsidies to staff to complete their qualifications. As a result, more than 6,500 staff (in a workforce of 27,000) were supported by the Learner Fund from 2014 to 2019 to undertake a qualification at European Qualifications Framework (EQF) Levels 4, 5 or 6 (6 is Degree level). Exemptions from the minimum qualifications were given to personnel retiring within the next seven years. Sources: OECD 2021b; Early Childhood Ireland 2021 Country Example 7: Hong Kong SAR, China’s financial support for kindergarten teachers’ professional qualification upgrade The Hong Kong SAR, China government provides financial support for all teachers and principals to upgrade their professional qualifications from 2007-08 to 2011-12. The financial support is available for those employed in government-funded programs as well as in private independent kindergartens. Teachers and principals can claim reimbursement for up to 50 percent of the course fees for an approved certificate or degree course in early childhood education or certificate course for kindergarten principals from the Education Bureau, capped at HK$60,000. Source: Rao et al. 2018 82 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education RECOMMENDATION 10: Communicate clear policy directions on teachers’ minimum qualification (Short-term) The Government must convey a strong, clear message to all stakeholders about its commitment to ensure all preschool teachers meet minimum qualifications by 2025. The previous enforcement of the minimum DECE qualification requirement for preschool teachers was weak. There was inadequate implementation and enforcement, and hence the compliance rate from the private sector was low. The Government should strongly consider including the minimum qualification into the Education Act. This demonstrates strong political will to elevate teachers’ standards, and helps to ensure better enforcement and compliance in the long run regardless of leadership changes. A circular can be sent to state and district offices, as well as private institutions, to clearly communicate the policy change. A comprehensive communication plan can be prepared to announce the minimum requirement as a public, high-profile target. The announcement should be accompanied with detailed information about types of qualifications that are recognized for preschool teachers, pathways to become qualified, financial assistance available to them, and consequences if they fail to achieve minimum qualification by the deadline. The MOE can work with the ECCE council to increase awareness of the target, its importance, and rationale to encourage preschools and teachers to work toward it. Country Example 8: Philippines’s use of legislation to enforce quality standards including teachers’ minimum qualification in preschools In 2012, the Philippines institutionalized one year of compulsory preschool education and empowered the Department of Education to prescribe the necessary qualifications for the hiring and accreditation of kindergarten teachers. To ensure the quality preschool education, including those provided by private preschools, the Department of Education Government subsequently introduced the policy guidelines on the minimum qualification for all preschool teachers nationwide. The minimum qualification of preschool teachers is as follows: • Bachelor in Early Childhood Education • Bachelor of Science in Preschool Education • Bachelor of Science in Family Life and Child Development • Bachelor in Elementary Education with specialization in Preschool or Early Childhood Education • Bachelor in Elementary Education major in Teaching Early Grades; or • Equivalent degrees As of 2019, 100 percent of preprimary teachers in the Philippines are qualified according to its national standards. Sources: Republic of Philippines’s Kindergarten Education Act (2012); Republic of Philippines’s Department of Education Order No. 81 (2012); UNESCO Institute for Statistics (2021) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 83 Chapter 5: Quality of Preschool Education To help operators to visualize and operationalize the change, the Government can consider staggering the minimum qualification requirement targets. Table 17 illustrates an example on how the target can be staggered over the coming three years. There is research evidence that less-qualified staff can improve their practices when they are working with highly trained colleagues (OECD 2017). In New Zealand, the Government staggered the compliance with the qualification requirement within a preschool setting with a target of 50 percent by 2007, 80 percent by 2010 and 100 percent by 2012 (OECD 2019a). Staggered targets also help the individual operators to check if they are on-track to achieving the target by 2025, and consciously change their human resource management strategies from time to time to meet these targets. This also allow the MOE to intervene early in exceptional circumstances; for example, for preschools operating in remote areas with difficulties in hiring trained professionals, or to upskill teachers in rural areas with limited internet access by providing additional support on a case-by-case basis. Exemption can also be considered for teachers retiring in the near future. This ensures enforcement is coupled with support for operators and teachers who face constraints in accessing teacher training, without compromising on quality standards for teachers. TABLE 17: Example of staggered target for minimum qualification for preschool teachers Year 2023 2024 2025 Minimum proportion of teachers within a preschool 50% 80% 100% that meet minimum qualification Source: Authors’ summary Country Example 9: New Zealand’s increasing funding for early childhood centers with more qualified personnel New Zealand recognized the importance of qualified teachers for quality provision of services and created a funding mechanism that provides access to free early childhood education, incentivizes teacher qualification, and promotes fair wages for preschool teachers. In New Zealand, all early childhood education providers receive a funding subsidy for up to 30 hours a week for every child, from birth until the age of five. Children then start attending school from the age of 6. All early learning service providers must employ a specified proportion of qualified teachers to meet their licensing requirements, depending on the type of early learning service. These centers receive additional funding according to the proportion of qualified teachers they employ. Centers with more qualified teachers receive higher funding. The table below provides an example of the funding scale for all-day education and care services catering to children between two to five years old. Proportion of certified teachers in Funding rates per child hour a center (including GST; effective 1 January 2022) 0-24% $4.28 25-49% $5.15 50-79% $6.46 80-99% $7.49 100% $8.29 To be eligible for these higher funding rates, the centers must also pay these qualified teachers not less than specified minimum salary rates. Sources: Education Counts 2021; Ministry of Education of New Zealand 2022 84 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education 5.3 Priority Area 5: Continuous Professional Development (CPD) for Teachers and School Leaders Continuous professional development (CPD) sustains the learnings from initial teacher education and allows teachers to stay updated on professional developments and best practices. Given the rapid changes in student demographics, the length of most teachers’ careers, and the need to update knowledge and competencies, initial teacher education cannot be expected to prepare teachers for all the challenges they will face throughout their careers (OECD 2019a). Specialized training in early childhood education with ongoing professional development strengthens the skills needed for preschool teachers to understand how young children learn and develop, and build relationships with children and their families (UNICEF 2019a). CPD should be made available and mandatory as a requirement for teachers to stay and develop in the profession. Mandatory professional development can ensure that teachers remain updated on their knowledge of ECCE and child development and support the quality of their teaching (Taguma et al. 2012a). Countries differ in the mandatory nature of the professional development for preschool teachers, its funding method, training content and format, and the incentives it is associated with. In countries like Austria, Estonia, Finland, Japan, and Spain, CPD is mandatory at the individual level and the cost is shared among the government, employer, and the teacher. In Mexico and Oklahoma, United States, for example, professional development is mandatory and completely funded by the government. Allowing for choice of training content and format enables teachers to choose training provisions that best meet their needs and encourage higher participation rates (Taguma et al. 2012a). The traditional model for CPD is to take a course or a class. Even though the approach is still very useful for some topics, it is no longer the only form of CPD. A variety of new ways of learning have arisen, and many of them are based on networking, peer learning, tutoring, and working together in everyday situations such as project-based learning. Country Example 10: Mandating and funding professional development for kindergarten staff in Japan In Japan, uptake of professional development is mandatory for kindergarten staff, with training costs shared among the government, employer and the individual teacher. A wide range of incentives is provided to encourage kindergarten staff to take up professional development. This includes study leave, partial financial support to cover training costs, and the award of higher qualifications through professional development. Japan remunerates staff pursuing training and hires substitutes to replace them while they are away on training. Source: Taguma et al. 2012a School-based professional development is an effective model for teachers to acquire and validate practical knowledge during their day-to-day work. It includes methodologies in which teachers take active roles in professional development, such as mentoring, coaching, and facilitation. It is school-based and helps teachers to develop the knowledge and experience needed to tackle problems identified in practice. Building a support network is promoted to ensure forming a community of practice and sustaining the change process. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 85 Chapter 5: Quality of Preschool Education Teachers’ motivation to participate in professional development is also influenced by the incentives to do so. This includes the availability of financial support to enroll in trainings, the possibility to obtain a higher qualification through it, support in the form of time-off or study leave to participate in training, and the prospect of a salary increment or promotion (Taguma et al. 2012a). Table 18 below provides an overview of CPD for preschool staff in selected countries. TABLE 18: Overview of provision of CPD for preschool personnel in selected countries Provides funding Provides study Prospect of higher support leave or time off salary or promotion Australia Yes No No England Yes No No Finland Yes Yes No Germany No Yes Yes Japan Yes Yes No Republic of Korea Yes No Yes Mexico Yes No Yes Poland Yes Yes Yes Source: Taguma et al. 2012a Many countries offer professional development opportunities for preschool teachers, but the take-up rates are often low. Common reasons for the low take-up rate are as follows: firstly, information about training opportunities is not well-known or the benefits of participating in them are not clearly articulated. Secondly, the CPD organized is disconnected from teachers’ needs and interests. Thirdly, even when teachers are informed and motivated to pursue CPD, their employers are reluctant to send them for training. It is often argued that training leads to the possibility of a higher level of qualification, prompting teachers to ask for salary increments or leave for higher-paying jobs elsewhere (Taguma et al. 2012a). Country Example 11: New Zealand funding institutions that provide continuous training for teachers working with minority or disadvantaged children Access to CPD for ECCE staff in New Zealand is mandated. ECCE centers are responsible for implementing CPD for their staff, and much of the cost is funded by the Government. In the past, ECCE personnel were given the choice to self-select for participation in professional development activities. This however resulted in some centers over-participating in professional development while others did not participate at all. The government then revised its professional development funding approach to require training providers to go into targeted communities and identify training programs that best meet the needs of those communities. A new centrally funded professional development program was also developed targeting ECCE staff catering to children from the government’s priority groups: Maori, Pasifika, and low-socioeconomic communities. Similarly, these centrally funded professional development providers are required to carry out a needs analysis in targeted communities, and plan for a program that best meets the needs of the communities. This new approach to providing professional development is more collaborative in nature, and better address teachers’ needs. Source: Taguma et al. 2012a 86 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education School leadership plays an important role in supporting professional development, but has received little attention from regulators, early childhood educators, and researchers. Leadership is critical to ensuring the quality of preschool provision and teachers, as school leaders strengthen staff performance and directly influence staff’s participation in continuous professional development (CPD) (Taguma et al. 2012a). Leadership is also critical in maintaining teacher quality through motivation, teamwork, information sharing, and professional staff development (Bennett and Collette 2006). Professional development for school leaders is equally important to drive change that leads to positive student outcomes. The role of a school leader extends far beyond that of an administrator. Principals set the direction of their schools, safeguard the quality of teaching practices, shape teachers’ professional development, enable teachers and students to perform their best, and connect with parents and members of the community. Developing school leaders requires new types of training and professional development for them to exercise distributed leadership and lead effectively (Schleicher 2012). 5.3.1 Leadership in Malaysian Preschools For MOE preschools, as preschool classes are typically built annexed to a primary school, the principal oversees both the primary school as well as the preschool. The principal’s role includes administrative, health and welfare, safety, financial, curricular and co-curricular matters relating to the preschool he or she oversees. The principal would have to ensure the preschool curriculum is implemented fully, conducting observations of its application at least twice yearly and periodic inspection of preschool classes. The principal includes preschool teachers as part of the larger school’s financial and curricular committees. It is the principal’s responsibility to ensure that each class has a Student Management Assistant or Temporary Daily Assistant to assist the preschool teacher, and in the absence of the preschool teacher, a relief teacher will be arranged. The principal also chairs the preschool student selection committee (MOE 2018). Other types of preschools have different school leadership arrangements. KEMAS and JPNIN preschools are community preschools and are generally smaller, with some having only one or two classes. These preschools have a senior preschool teacher acting as the de facto head of the preschool, overseeing the administration matters of school. A KEMAS supervisor is tasked to oversee multiple KEMAS preschools, as well as other KEMAS programs such as skills training for the larger community. For JPNIN kindergartens, a coordinating committee comprised of teachers and community members is set up, and a JPNIN officer acts as advisor to the committee (Ministry of National Unity 2021). In the private sector, most preschools are owner-operated or are established under a franchise arrangement. Typically, the franchisee or the owner- operator plays the role of principal, administrator, and sometimes also as a preschool teacher. In the more well-resourced and premium preschools, professional principals are appointed to administer the school and the teaching staff. Private preschool principals, unlike their peers in the public sector, have to manage a range of other matters such as licensing and renewals, finance personnel’s social security benefits, and meeting demands from fee-paying parents. 5.3.2 Existing Effort regarding Continuous Professional Development (CPD) for Preschool Teachers The MOE mandates teachers to clock in at least seven days of professional development yearly. In 2016, the MOE also launched a comprehensive teacher professionalism development plan aimed at upgrading teachers’ skills and performance. The Plan includes job descriptions of teachers by job grades, competency standards and performance standards for all teachers, and an integrated performance assessment framework. See Table 19 below for a description of the professional learning dimension as part of the performance standards for an entry-level academic teacher. Schools can organize in-house training to fulfill these days, either by conducting workshops on curriculum changes, exam prep, or inviting external speakers (MOE 2016b). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 87 Chapter 5: Quality of Preschool Education TABLE 19: The “Involvement in professional learning” dimension as part of the performance standards expected of an entry-level academic teacher Key Outcomes Descriptor for a Grade 41 Implementer Involvement in Professional Learning • Attend meetings related to academic or school achievement improvement, or official duties as directed by the principal To understand the needs and requirements of learning and • Contribute to the improvement of teaching and learning, school, professional development and apply and the field of education them within themselves and their • Receive guidance to improve teaching and learning including the peers to improve their knowledge and DG41 new teacher development program skills and contribute to the culture of learning. • Be a member of the subject panel to improve teaching and learning • Engage and participate in Professional Learning Community for teaching and learning improvement • Engage in the implementation of action research for teaching and learning improvement • Exploring teaching and learning approaches to improve knowledge and practice in pedagogical skills • Undergo formal and informal professional learning to support and expand knowledge and skills in teaching and learning Source: MOE 2016b (Master Plan for Teacher Professionalism Development) The MOE also promotes the implementation of Professional Learning Communities (PLCs) for more school-based professional development. While most teachers and principals are aware that there are benefits of having a PLC culture in school, many cited constraints such as an overwhelming amount of paperwork and lack of time as reasons for not being able to complete PLC sessions (Saad et al. 2017; Keong et al. 2016). The MOE also provided upskilling to improve teachers’ English proficiency. The National Preschool Curriculum Standard requires teachers to use English as the medium of instruction for 600 minutes a week, which pose a challenge for preschool teachers with weaker proficiency and who are not confident in using English in teaching and learning (see Box 7). The English for Preschool Teachers (EPT) upskilling program was introduced to support teachers in improving their English proficiency. In 2018, 100 preschool teachers participated in the program, which showed positive results. Preschool teachers who attended the program improved their English proficiency to the B1 level on the Common European Framework Reference for Language (PADU 2019). BOX 7 Selected responses on public preschool teachers’ English proficiency “Lack of English language proficiency among preschool teachers.” “Please bring us a specialized English teacher to help improve the proficiency in the language.” “Preschool English teachers need to be dedicated teachers so that students are not confused between BM and English reading.” “In preschool, teachers need to teach English while in the mainstream grade levels, English teachers are specifically assigned to teach English.” Source: World Bank Malaysia Preschool Survey 2021 (translated) 88 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education KEMAS, the other major public preschool provider in Malaysia besides the MOE, also provides CPD for its teachers. Under the KEMAS Early Childhood Education Quality Plan 2020-2030, KEMAS has put in a place a target for 6,000 of its teachers to participate in professional development training in pedagogy, child psychology, English proficiency, STREAM curriculum, and digital skills between 2021 and 2025, and another 7,000 in the following five years. KEMAS is also planning for its teachers to be attached in other preschools as a means of improving their knowledge and experience (KEMAS 2019b). Teachers from the private sector are also encouraged to partake in CPD. The MOE’s guidelines for the establishment, registration, and operation of private preschools suggest that teachers and teaching assistants in private preschools participate in trainings, courses, workshops, seminars, and other professional development activities to increase their knowledge and skills in early childhood education (MOE 2021a). However, MOE does not impose a mandatory requirement for private preschool teachers to participate in professional development and training. The ECCE Council and the Malaysian Association of Kindergartens are among bodies that coordinate professional development opportunities for private operators and teachers. The ECCE Council organizes roundtable discussions, workshops, forums, and field visits as part of its mission to enhance the professional development of early childhood educators, setting training standards, understanding issues affecting the education and development of young children, and fostering networking between stakeholders in the sector (ECCE Council 2017). The Malaysian Association of Kindergartens organizes preschool skill training courses for kindergarten operators and teachers with a membership fee as low as RM20 per year. Trainings are conducted during school holidays and culminates toward skills certification (Malaysian Association of Kindergartens 2022). 5.3.3 Existing Effort on Continuous Professional Development for Principals The principals who oversee MOE preschools are typically school teachers who have been professionally trained as school leaders and then appointed to the role. Principals of MOE preschools hold the National Professional Qualification for Educational Leaders (NPQEL) from the Aminuddin Baki Institute (IAB), a school leadership institute under the purview of MOE. The NPQEL is a mandatory in-service leadership and management training program for all aspiring public-school principals. The NPQEL was revised in 2018 and aims to equip school leaders with 10 core competencies; namely, strategic thinking, leadership change, decision making, problem solving, leading learning, capacity building, collaboration and networking, effective communication, leadership, and towering personality. MOE selects school leaders from those who have obtained their NPQEL certification, who will then undergo a residency and immersion program (PRIme) which includes shadowing the current principal of the school in which the candidate is expected to assume headship (Bishen Singh 2019). The IAB also offers various types of training programs and leadership courses for school principals. There is increasingly more focus on preschool leadership in recent years. Guided by the Preschool Management Guidelines, the IAB developed five training submodules and conducted courses targeted at preschool principals to strengthen their capacity in managing preschools. These submodules encompass various aspects of preschool leadership and governance including policies, leadership and management, filing and financial management, curriculum management and collaborations. In 2022, 14 preschool courses were conducted, benefiting 427 preschool principals. While the preparatory program for principals is comprehensive, their CPD is often self-determined and self-tracked (MOE 2013b). Principals can participate in various types of training programs and leadership courses offered by the IAB. They also have access to coaching and support from School Improvement Partners (SIPartners+), especially if they are serving in a low performing school (Kuriaya 2016; Abdul Rahman and Hamzah 2017). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 89 Chapter 5: Quality of Preschool Education There are no structured leadership requirement or professional development for school leaders in KEMAS, JPNIN, or private preschools. The role of the supervisor in KEMAS preschools and committee advisor in JPNIN preschools is more supervisory in nature, rather than to provide instructional leadership and professional development of teachers. There is hence no requirement for ‘headship’ qualification in these preschools. Similarly in the private sector, there are no mandatory prerequisites to becoming a preschool principal, and there is a lack of professional development programs for them. 5.3.4 The Current Situation Teacher quality remains the weakest dimension as assessed through the NPQS. As discussed in section 5.1.1, the lack of opportunity to attend professional development workshops and courses among private preschool teachers is one of the main factors behind the low score in the teacher quality dimension. A significant proportion of teachers feel that they are not receiving adequate training and support in school. In the World Bank preschool education survey in 2021, 83.3 percent of respondents agreed that CPD and capacity building for teachers are very important factors contributing to the quality of preschools. The survey respondents also highlighted specific challenges related to teacher quality, including their English proficiency and pedagogical skills, as well as their capacity to deliver the entirety of the preschool curriculum. Teachers expressed their desire for more pedagogical training, especially with regards to implementing the curriculum while remaining adaptive to the diverse needs of students. However, 30 percent of the teachers also feel that they are not receiving adequate training and support in school. The school leader’s instructional leadership is also a critical need, as pointed out by many teachers in the survey. With most survey respondents being teachers, school leadership ranked top among factors that contribute toward the quality of preschool education. 85.8 percent of respondents rated “training and capacity building for principals” as a “very important” factor in increasing the quality of preschools. 5.3.5 Key Issues and Challenges There is no standardized policy and oversight for teachers’ CPD in the preschool subsector in Malaysia. Different preschool providers are adopting their own professional development strategies, and presumably for some operators, none at all, which poses a risk to the quality of preschool education that a child receives. The annual seven-day minimum professional development policy adopted by the MOE for its teachers does not apply to preschool teachers from other public agencies or from the private sector. Preschool teachers in the private sector face barriers to pursue ongoing professional development. If CPD is not promoted as part of the work culture in a center, teachers often lack support from preschool operators in terms of funding for training, and time-off from work to attend training programs. There are also often no incentives to participate in ongoing professional development. Preschools with 10 or more Malaysian employees are registered with the Human Resource Development Corporation (HRDC) of the Ministry of Human Resources and pay a monthly levy. Other preschools can register as members and pay a fixed percentage of the levy voluntarily. HRDC-registered employers can claim for training expenses incurred from the monthly levy they contribute, and have access to other training schemes funded by the unused levy common fund and government grants. Not all operators and teachers, including those already registered and paying the levy, are aware of these claimable courses and the processes to apply for them. Ensuring teachers’ pedagogical skills remain relevant against the backdrop of changing needs is a key challenge to improving quality of preschool education. In the World Bank preschool education survey in December 2021, significant proportion of respondents suggested addressing challenges relating to various aspects of pedagogical skills as key to improving quality of preschool education. Teachers raised concerns 90 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education about their capacity to cover the wide range of areas in the curriculum, teach multiple subjects, and cater to multiple age groups and varied developmental pace among children. English proficiency among public preschool teachers remains a challenge. In the survey, teachers also raised concerns about their English proficiency to deliver the curriculum using English as the medium of instruction. MOE preschool principals are generally perceived as lacking in understanding of early childhood education, and devote little time toward providing leadership and guidance for preschool teachers. Typically, there are only one to two preschool classes in the primary school it is annexed to, and by extension, only two to four preschool teachers and preschool student management assistants. Preschool enrollment is on average less than one-tenth the enrollment of primary school students in a school. In addition to that, preschool education has yet to be made compulsory. Given the differences, preschool teachers, students, and their needs unfortunately can get sidelined easily. In the survey, respondents highlighted that principals lack knowledge of early childhood education and are not attentive toward the operation of preschool classes in their school (see Box 8). BOX 8 Selected responses on preschool leadership “Remove preschools from day schools. Have all district preschools administered by a dedicated officer who is assisted by a few officers who are knowledgeable and experienced in the field of early childhood education.” “Administrators need to be aware of developments that take place in the preschool.” “Governance should be given to those who are knowledgeable and qualified in early childhood education.” “Comprehensive preschool-related training and exposure should be provided to the top management in the school.” Source: World Bank Malaysia Preschool Survey 2021 (translated) 5.3.6 Recommendations RECOMMENDATION 11: Make professional development easily accessible and affordable for all preschool personnel (Short-term) Guided by the competency standards for teachers and school leaders, the MOE can work with stakeholders to collectively outline relevant training areas. The MOE competency framework serves as a guide for training content curation. The competency standards defined at the individual level for preschool teachers can include knowledge of learning strategies, communication with children, and teamwork (Taguma et al. 2012a). The MOE’s Teacher Professionalism Division can lead a public-private coordination effort to review the competency standards for preschool teachers, and develop a reference document for training areas and learning objectives. The training areas can then be reviewed annually to ensure they meet current learning needs. For example, demand for online pedagogical skills heightened during the COVID-19 pandemic when home-based teaching and learning (PdPR) was implemented. Preschool operators and teachers will be more willing to participate in CPD if they find them relevant to their needs. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 91 Chapter 5: Quality of Preschool Education Country Example 12: Hong Kong SAR, China’s support for teachers’ CPD Under Hong Kong SAR, China’s Free Quality Kindergarten Educational Policy (FQKEP), the teachers’ continuous professional development policy, along with a Teacher Competencies Framework and a Principal Competencies Framework, was developed. The frameworks list the skills and knowledge required by kindergarten teachers and principals. The Teacher Competencies Framework includes domains related to learning and teaching, child development, school development, and professional relationships and services, whereas the Principal Competencies Framework includes leadership, management, and networking, in addition to the domains covered in the teachers’ framework. Teachers and principals can plan their professional development according to their needs with reference to these frameworks. The Education Bureau plays a role in developing unified standards for the teaching profession, which includes attributes, values, and conduct expected of teachers and principals. The Education Bureau provides school-based professional support services, including learning and teaching strategies guidance to cater to the needs of in-service teachers. Kindergartens are supported through regular visits by School Development Officers from the Education Bureau, who conduct collaborative planning and classroom observations to address the needs of schools and teachers. Source: Rao et al. 2018 The MOE can coordinate with training providers to curate a wide selection of training activities and resources for preschool teachers and principals. There is an ongoing effort by the MOE’s Teacher Professionalism Division to digitally catalog professional development courses offered by different divisions in the MOE for public preschools. Such effort is commendable, and the MOE should consider extending both the professional development resources and the information about them to other preschool providers. Guided by the training areas outlined in the reference document, the ECCE taskforce referred to in section 6.1.2 of this Report can tap on the expertise of the Teacher Professionalism Division, Institute of Teacher Education, Aminuddin Baki Institute, and English Language Teaching Centre, as well as public and private institutions of higher learning, the ECCE Council, kindergarten associations, and outstanding operators and teachers, to create training activities and resources according to the outlined training areas. A wide selection of training programs allows preschool operators or teachers to select based on their needs or to address specific competency gaps. Involving the operators and teachers in the curation of training also help to ensure its relevance. An annual training calendar can be published publicly with promotion from MOE, KEMAS, and JPNIN, as well as the ECCE Council and kindergarten associations to help both operators and teachers plan for their professional development. Technological solutions should be leveraged to offer mass open online upskilling courses for public and private preschool teachers and principals. Remote teaching and learning during the pandemic have accelerated teachers’ digital proficiency and made remote professional development possible. Content can be delivered at scale with minimal individualized guidance and support and be delivered as self-paced mass 92 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education open online courses using reading materials, podcast, and recorded videos. Discussion forums and guided assignments can be integrated using learning management platforms (such as Google Classrooms, Chamilo LMS, Edsby, or Moodle) to encourage exchange of ideas. Peer assessments guided by marking rubrics also help to reduce the marking time for instructors. Distance learning or asynchronous delivery enables many teachers to access the training at the same time in their own pace, while significantly reducing the instructor time and training cost incurred, hence making it a more affordable option for teachers. Video conferencing tools and social media streaming sites can be used to deliver training content that requires live teaching and facilitation, instead of physical classroom-based training, to reduce training and traveling costs. The MOE should go the extra mile for teachers and principals in remote areas so they too can have access to quality professional development. The cost savings from utilizing online alternatives nationally can be channeled to education district offices to meet the needs of preschool educators in areas with limited accessibility. With guidance from the Teacher Professionalism Division, the education district offices can be empowered to provide on-site trainings for preschool educators in remote areas. Upskilling courses can be organized at IPG campuses during weekends and school holidays, with transportation assistance provided for teachers traveling from remote areas. Senior teachers can also be trained as master trainers, who can then return to their schools and train other teachers in the vicinity. Awareness among public and private preschool teachers and principals regarding the availability of CPD opportunities can be promoted. The ECCE Council, with its network of preschool associations and operators, can support the MOE in collating information about free public resources for teachers. A one- stop site with links to CPD resources, courses, and events can be hosted on MOE’s web portal. Short video clips on exemplary pedagogical practices and preschool leadership management can also be included on existing platforms like the e-Guru portal as teachers and principals’ reference resources. The MOE’s Educational Resources and Technology Division can play a role in organizing these resources. The MOE can also consider hosting these materials on tried-and-tested, free, and user-friendly platforms like Coursera instead of developing new platforms. Locally coordinated peer learning networks can complement centrally provided trainings by providing more hands-on, field-based, contextualized learning. The professional learning community practices and strategies commonly adopted by primary and secondary teachers can be replicated for preschool teachers and leaders. The officers in charge of preschool education in the PPDs can play a coordinating role to connect neighboring preschools providers, including MOE, KEMAS, JPNIN, and private operators, as a professional learning community, and to facilitate the creation and sustaining of the community for teachers and for school leaders. Preschool teachers and leaders can be empowered to take lead in creating training content and supporting each other. Figure 29 provides an illustration of a locally coordinated peer learning network. FIGURE 29: Structure of locally coordinated peer learning network Of cer in charge of preschool at PPD PLC grouping 1 PLC grouping 2 MOE MOE KEMAS Private Private MOE KEMAS JPNIN Private preschool 1 preschool 2 kindergarten preschool 1 preschool 2 preschool kindergarten kindergarten preschool (neighboring schools) (neighboring schools) Source: Authors’ summary Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 93 Chapter 5: Quality of Preschool Education RECOMMENDATION 12: Provide targeted support for critical learning needs (Short-term) In order to improve teachers’ overall pedagogical skills and their ability to cater to students with diverse learning needs, including those with special educational needs, more targeted pedagogical training and resources could be developed. Preschool teachers’ overall pedagogical skills and needs need to be assessed first to ensure they receive the right type of support in their teaching. Following that, consistent and targeted support can be provided to meet the gaps in their pedagogical abilities, as well as to learn new pedagogical practices. To support teachers with skills to manage diverse learning needs, there are also existing resources available; for example, the pedagogical skills training to manage special education needs in classrooms offered by Genius Kurnia that are free and available to all. The state education departments’ Special Education Sector can also provide support for both public and private preschools within the respective states. The Teacher Professionalism Division can work with the private sector to collate existing resources, develop new resources, and include them in the one-stop site for CPD resources as proposed in recommendation 11. The expertise of  organizations such as the National Early Childhood Intervention Council (NECIC) can also be tapped into. This ensures that teachers are equipped with the skills and resources to meet diverse learning needs, and are able to modify their teaching and learning methods to support their students in a holistic and more personalized way. To improve English proficiency among teachers, given the positive track record of the previous English proficiency support program, similar efforts can be re-introduced. In 2018, the English for Preschool Teachers (EPT) program was conducted to aid preschool teachers in improving their English proficiency and increasing their confidence in using the language in teaching and learning. It was reported that teachers achieved mastery at CEFR B1 level in English proficiency after attending the program. The Programme for English Language Teachers (ProELT) has also reported successes in the past (PADU 2019). Similar intensive English proficiency upskilling programs for public preschool teachers can be reintroduced. This can be delivered by the English Language Teaching Centre with other training providers. The English subject teachers in the school which the MOE preschool classes is annexed to can also be leveraged as part of a peer support program for teachers to improve their operational proficiency in English. RECOMMENDATION 13: Mandate CPD for all preschool teachers and empower them to manage their own professional development (Low-hanging fruit) The MOE can consider mandating minimum hours for Continuous Professional Development for all preschool teachers, including those from the private sector. Teachers’ minimum qualifications and CPD can be included as prerequisites for preschool licensing approval and renewal. Learning through different platforms including those provided by the MOE, locally coordinated professional learning communities, and massive open online courses such as those offered by higher learning institutions or Coursera should be recognized. The CPD does not need to be limited to workshop attendance and classroom training, but can include support to teachers in their pedagogy in the classrooms with observation and coaching, team-based learning, and peer support, which can be conducted internally. This is aligned to the MOE’s aspiration in the third wave of implementation of the Education Blueprint in 2021 to 2025, that as much as 60% of teachers’ professional development should be self-initiated. Teachers can (and are expected to) plan and prioritize their own professional development according to their needs. The ministry can consider making selected critical upskilling courses compulsory, and then allow schools and teachers to manage their own professional development according to their needs. 94 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education Country Example 13: Sweden’s investment in preschool teachers’ professional development The costs of teacher professional development in Sweden are shared among the government, the employer, and the employee. Financial support to subsidize training costs and loss of salary, study leave, and attainment of higher qualifications are among the incentives provided to encourage ECCE staff to participate in professional development. Sweden allocated SEK600 million between 2009 to 2011 to support preschool teachers’ and childminders’ continuing education to enhance their pedagogical competence. Through the program, thousands of preschool teachers enrolled in further education courses at the university level Teachers continue to receive 80 percent of their salary while pursuing further education, co-funded by the government and the preschool. The courses focused on children’s linguistic and mathematical development and assessment of preschool activities. Source: Taguma et al. 2012a RECOMMENDATION 14: Raise the status of the profession (Medium- to long-term) More can be done to elevate the professionalism of preschool educators. As Malaysia moves toward making preschool education compulsory, a pool of qualified and highly motivated teachers is required to educate a higher number of children. A comprehensive workforce development plan for the entire ECCE sector will be required to address the challenges faced by the ECCE workforce. To attract high-quality preschool teachers, the challenges faced by them will have to be studied in greater detail, including their salaries and the provision of income safety nets for them, especially those who work part-time and in the private sector. The career pathways and opportunities in preschool is also not clear and well-articulated, particularly for teachers in the private sector. Early childhood education as a career needs to be professionalized to raise its status and attractiveness, in tandem with better pay and career prospects. A media campaign providing public recognition of the important role of preschool teachers will uplift the status of the profession and raise the esteem and pride of the teachers, motivating them to obtain higher qualifications and stay in the sector to contribute to the children’s development and well-being. It will also raise awareness among parents about the importance of quality preschool education and teachers to create a stronger market demand for teacher quality. Country Example 14: Ireland’s Workforce Development Plan for the ECCE Sector Ireland’s development of a graduate-led workforce includes a commitment to develop a comprehensive Workforce Development Plan for the ECCE sector. The Plan aims to achieve a graduate-led workforce (up from 25% graduates in 2019 to 50% by 2028) by raising the profile of the profession; establishing a career framework and leadership development opportunities; shifting toward a more gender-balanced and diverse workforce; introducing a national program of CPD opportunities for practitioners; incentivizing employers to attract and retain staff; and introducing minimum qualification requirements for early and school-age childcare. A multisectoral stakeholder consultation process took place in 2020 to develop the implementation plan. Source: European Commission 2020 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 95 Chapter 5: Quality of Preschool Education 5.4 Priority Area 6: Implementing a Developmentally Appropriate and Child-centered Curriculum A good curriculum framework helps to ensure consistency in the quality of provision of preschool education services by providing guidance to educators, allowing them to adapt it to local needs while balancing the diverse expectations of stakeholders, with the aim of ensuring continuity of learning for students, and facilitating parental involvement (Taguma et al. 2012b). Curricula ideally include clear standards while allowing flexibility for teachers to respond to local contexts and encourage innovation and sharing among preschool providers (UNICEF 2019a). At the program level, the pedagogical or curriculum framework helps teachers to clarify their pedagogical aims, keep student progression in mind, provide a structure for their lessons, and focus observation on the most important aspects of child development (Taguma et al. 2012b). Education systems differ in their curriculum framework coverage and approach. Most countries aiming to deliver integrated early childhood education and care services use a curriculum framework that covers the learning and development from age 0 to compulsory schooling instead of separate frameworks for care and education. Curriculum descriptions in general can be categorized into input- or outcome-based approaches. Some curricula are more outcome-based and focus on preparing children for primary schooling, while other curricula emphasize holistic development. By identifying specific child outcomes or developmental goals, teachers are better supported to identify children’s needs, development, and learning processes (Taguma et al. 2012b). The content of a well-designed preschool curriculum promotes holistic learning and development. Most OECD countries combine academic learning with acquisition of soft skills and socioemotional skills in their curriculum. Literacy, numeracy, physical education, science, and arts are included in the curriculum for almost all OECD countries. Music, play, and practical skills are also commonly included (Taguma et al. 2012b). Newly emerging subject matters responding to changing needs such as ICT skills are also increasingly being included in the curriculum (OECD 2017). As countries become increasingly multicultural, some countries have also included learning of foreign languages or citizenship as a prescribed element in their framework (Taguma et al. 2012b). Preschool education usually adopts play-based, child-centered, and active learning strategies to create a nurturing learning environment (UNICEF 2019a). Unguided playtime is commonly included and given importance in the curriculum framework, and for some countries, embedded in other content areas to stimulate learning through play (OECD 2017). A preschool curriculum that is aligned to the primary curriculum or beyond, and with a curriculum that may exist for even younger children, ensures coherence and continuity in learning and development, and facilitate transition to the next level. Only half of the countries with available data have aligned their primary curriculum with the preschool curriculum. Studies in Malawi and Chile suggest that the positive impact of preschool programs may dissipate over time unless there is good coordination of curricula (UNICEF 2019a). 5.4.1 Preschool Curriculum in Malaysia As Malaysia adopts a ‘split system’ in ECCE, the governance and administration, including the use of a national curriculum, is different for care and for education for young children. Nurseries or childcare centers use the Permata National Curriculum for children below four years old (Prime Minister’s Department 2013) whereas preschools use the National Preschool Standard-based Curriculum (NPSC) for children between 4 to 6 years of age (MOE 2017). 96 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education The standard curriculum for preschool education in Malaysia has undergone several major reviews and reforms in the past decade. Preschool education was included as part of the continuum of the national education system following the enactment of the Education Act 1996 (MOE 2015). The national preschool curriculum was first developed in 2003, based on the national principles and the national philosophy of education, and was revised in 2010 and in 2017. The current National Preschool Standard-based Curriculum (NPSC) was developed to meet current demand to promote higher-order thinking skills including problem- solving, critical thinking, creativity, and reasoning; to encourage outdoor activities for healthy physical and cognitive development; and to introduce students to global citizenship and global issues including the environment, safety, and health (MOE 2017). The NPSC is organized by content standards, learning standards, and performance standards. The curriculum is outcome-based and balances between preparing children for school and promoting holistic development (MOE 2017). See Table 20 for the description of the standards in which the Curriculum and Assessment Standards Document is organized. TABLE 20: Organization of the National Preschool Standard-based Curriculum (NPSC) Content Standard Learning Standard Performance Standard Specific statements which specify A set of criteria or quality A set of general criteria which the essential knowledge, skills, indicator of learning and shows performance levels which and values pupils need to acquire achievement which can be pupils need to show when they and can perform by the end of a measured have acquired a particular skill, schooling term knowledge, or value Source: MOE 2017 The national preschool curriculum encompasses six main learning strands to promote holistic learning and development, these are (1) communication, (2) spirituality, attitudes, and values, (3) personal competence, (4) physical development and aesthetics, (5) science and technology, and (6) humanity. The learning strands in the Malaysian curriculum are comparable to the preprimary curriculum content in most other education systems. See Table 21 for the main learning strands in the preschool curriculum. Good use of language as medium of instruction, environmental sustainability, good values, science and technology, patriotism, creativity and innovation, entrepreneurship, information and communication technology, global sustainability, and financial education are also emphasized across the curriculum (MOE 2017). TABLE 21: Six learning strands of Preschool Curriculum of Malaysia Domain of Learning Subject areas and descriptions Communications Communication support emphasizes verbal and non-verbal communication skills in interaction and basic literacy as a foundation for learning. This strand comprises the BM and English languages that must be learnt by all preschool students. For students in Chinese or Tamil National Type Schools, they are required to learn the Mandarin Chinese or Tamil language. The content and learning standards are organized by listening, speaking, reading, and writing skills. Spirituality, Attitudes The Spirituality, Attitudes and Values Strand gives priority to the appreciation and Values of religious practices, beliefs, attitudes, and values. Islamic Education is studied by Muslim students, while Moral Education is studied by non- Muslim students. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 97 Chapter 5: Quality of Preschool Education Personal Competence The Personal Competence strand emphasizes the development of socioemotional, interaction skills, as well as social skills among students. The development of leadership and personality is fostered through curricular and extracurricular activities. Physical and Aesthetic As part of the physical development and healthcare strand, students Development improve their gross and fine motor skills, object manipulation skills, and rhythmic movements. They also learn about health, safety, and nutrition. As part of the creativity and aesthetic strand, students learn about music, drama, and visual arts, to nurture imagination, creativity, talent, and appreciation of arts among students. Science and Technology In Early Science, students expand their scientific knowledge, skills, and attitudes, and learn to explore the living environment, properties of objects, and physical environment around them. In Early Mathematics, students learn about basic mathematical concepts, including basic operations, money, time, shapes, and space. Humanity The Humanity strand emphasizes the mastery of knowledge and practice of the local, national, and global community and environment as well as the appreciation of patriotism and unity. Students learn about themselves and their family, community, country, culture and heritage, environment, and the world. Source: MOE 2017 The curriculum stipulates four hours of preschool daily with specific minimum weekly learning time allocation for some learning strands and subject areas. A big proportion of time is allocated for integrated learning where teachers integrate different learning strands, skills, and values in teaching and learning. It includes daily routine activities such as singing and making conversations totaling 300 minutes a week, as well as 500 minutes of learning activities for the learning strands and subject areas which allow students to carry out exploration and experimentation, solve problems, and think critically. The curriculum also placed a high emphasis on spirituality and moral values, where 120 minutes a week have been allocated for Islamic Education or Moral Education. This is far higher than Early Mathematics at 40 minutes a week and BM and English, which have each been allocated 60 minutes of learning time a week (MOE 2017). TABLE 22: Learning time in preschools Minimum weekly time allocation (minutes) by the main medium of instruction used in preschools Learning Area Malay language Other languages Malay language 60 60 English language 60 60 Mandarin Chinese/Tamil language - 60 Outdoor activities 120 120 Islamic studies/Moral education 120 120 Early Mathematics 40 40 Integrated learning 800 740 Total 1200 1200 Source: MOE 2017 98 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education The curriculum recognizes the role mother tongues play in effective and successful learning and ensures that teaching and learning consider the different backgrounds of students, including defining the use of BM, English, Tamil, and Mandarin Chinese as instructional languages. The mediums of instruction and its usage time are specified in the curriculum. In a week, preschools using the BM language as its main medium of instruction must use the BM language as the medium of instruction for a minimum of 600 minutes and English for at least another 600 minutes. For vernacular preschools using other languages as medium of instructions, they must use the BM language as the medium of instruction for at least 400 minutes a week and English for at least 400 minutes (MOE 2017). See Figure 30 for an illustration of the breakdown of the use of medium of instructions in preschools. FIGURE 30: Breakdown of time use of medium of instruction in preschools by types of preschools Mediums of instruction in preschool (language, minutes per week) Preschools using the BM language as main Vernacular preschools using other language as medium of instruction main medium of instruction English Malay English Malay 400 400 600 600 Vernacular 400 Source: MOE 2017 The curriculum advocates the use of play as it adopts a child-centered approach to meet academic and learning standards (MOE 2017). Research evidence has shown that children enrolled in play-based learning programs developed a stronger foundation for learning compared to their peers who were enrolled in didactic teacher programs. Play-based curricula designed with children’s developmental needs in mind are more engaging and fun, and more effective in developing academic and attention skills (Taguma et al. 2012b). As such, inquiry-based, integrative, thematic, project-based and contextualized teaching and learning strategies are encouraged in the curriculum. School-based assessment takes place continually both formally and informally to determine students’ mastery and inform follow-up actions toward improving student learning. Teachers use their professional expertise to plan, construct items, administer, check, record, and report students’ mastery, guided by the performance standards in the Curriculum and Assessment Standard Document. The assessments encompass all learning domains in the curriculum, including the cognitive, affective, and psychomotor aspects. Assessment data is recorded at the school level to inform students, parents, teachers, and operators, and to improve teaching and learning, and is not collected or analyzed centrally. The standard curriculum for preschool, primary, and secondary education are aligned in their framework design, aims, and focus. There is also general alignment between the preschool curriculum and the Permata curriculum for younger children. Both curricula are guided by the national philosophy of education, aim toward school readiness, and emphasize play-based approach. Their content areas are loosely similar, with a heavier focus on childcare practices, as well as physical and psychomotor development, and sensory development in the Permata curriculum. See Table 23 for a comparison of the main learning areas in the National Permata Curriculum and the comparable learning strands in the NPSC. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 99 Chapter 5: Quality of Preschool Education TABLE 23: Main learning areas in the National Permata Curriculum with comparable learning strands in the National Preschool Standard-based Curriculum (NPSC) Main learning areas in National Permata Main Learning Strands in National Curriculum Preschool Standard-based Curriculum (NPSC) • Personality, socioemotional • Personal competence (socioemotional, interaction skills and social skills) • Attitudes and values • Spiritual development • Spirituality • Development of early language, • Communication (communication skills, communication, and literacy languages, and basic literacy) • Physical and psychomotor development • Physical development and healthcare • Development of creativity and aesthetics • Creativity and aesthetics • Early development of mathematics and logical • Science and technology (including early thinking science and early mathematics) • Sensory development and understanding of • Humanity the world environment Sources: Prime Minister’s Department 2013; MOE 2017 5.4.2 The Implementation of Preschool Curriculum in Malaysia All preschools, both in the public and private sector, must follow the national preschool standard-based curriculum. Prior to the launch of the revised curriculum, the MOE had conducted extensive awareness campaigns and training-of-trainer sessions throughout the country to ensure that its implementation was well-received and understood by all preschool stakeholders. All preschool operators, both in the public and private sector, must at the minimum adopt the NPSC. In addition to the national curriculum, KEMAS piloted the STREAM module in 2018, with an emphasis on science and technology and the 4Cs (Communication, Collaboration, Co-operation, and Critical thinking). The module was developed in line with the skills demand of the Fourth Industrial Revolution, and incorporates simulations or interactive exercises based on themes related to several industries such as aviation, astronomy, oil and gas, health, and robotics. Currently, the STREAM Module has been piloted in 14 KEMAS preschools, with a target to increase coverage nationwide in the coming years (KEMAS 2022). Private preschools often introduce additional curricula in addition to the national curriculum, such as Montessori, Reggio Emilia, or UK Early Years. Some private preschools also offer in-house developed multi-intelligence and enrichment programs. There is also no restriction on the medium of instruction used in registered private preschools but Bahasa Melayu (the national language) and English must be taught as part of the communication strand. 5.4.3 The Current Situation The preschool curriculum covers a comprehensive range of age-appropriate learning areas. In interviews with selected early childhood educators and curriculum experts in Malaysia, it was agreed that the curriculum is based on holistic development philosophies and principles that emphasize developmentally and culturally appropriate practices. The educators and field experts also agreed that the current curriculum is aligned with children’s developmental process (Taha et al. 2020). 100 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education The curriculum quality dimension scored relatively high on average among preschools in the NPQS. This result is echoed by a study involving 269 randomly selected private kindergarten teachers in a Selangor district, where it was found that the majority of the teachers reported a high level of knowledge about the preschool curriculum in terms of its philosophy and core principles, as well as its curriculum content (Masnan et al. 2021). However, in the World Bank preschool education survey some respondents, mostly teachers, felt that the implementation of the preschool curriculum can be improved to focus on the most important skills. When asked about challenges to increasing quality of preschool education, curriculum priorities were raised. This included the perception that there were too many subjects being taught, while core skills like reading, writing, and arithmetic were not allocated enough attention. Some respondents, on the other hand, pointed out that preschools were too academically oriented while psychomotor, social, and thinking skills were sidelined (see Box 9). This might however point to the teachers’ struggle in integrating the different learning strands and components of the curriculum in their lessons, viewing them as individual subjects to be taught and learnt in siloes. BOX 9 Selected responses on preschool curriculum “So many subjects to be taught in one day.” “Reduce additional learning areas such as civics, road safety, reproductive and social health education, because the curriculum itself encompasses all these things.” “The content of the preschool curriculum is too much. In addition to the existing core learning areas, civics, road safety, smarter phonics, and the Common European Framework of Reference for Languages are also added.” “Preschool education should focus on developing the interest of preschool students to learn instead of being stuffed with many learning areas in the syllabus such as safety education, civics. Safety and civics education has already been taught all along through themed learning.” Source: World Bank Malaysia Preschool Survey 2021 (translated) The national preschool curriculum has been reviewed and revised on a regular interval and another review is currently underway. The MOE periodically and systematically reviews its curriculum learning and content standards to ensure its relevance to current skill demand, and to ensure that the breadth and depth of content covered in the curriculum are appropriate. The private sector as well as teachers are involved in the development and design process of the curriculum revision. The MOE develops resources to support teachers in implementing a developmentally appropriate and child-centered curriculum. Alongside the curriculum, an accompanying teacher’s guidebook and a teacher’s kit for the language component was disseminated. The guidebook covers comprehensive aspects of teaching and learning including teaching and learning approaches, ways to optimize and organize the use of learning space, ways to support preschoolers in managing the transitions they face in different developmental phases, assessment methods, and lesson planning, with theoretical explanation, practical examples and step-by-step guide (MOE 2016c). Other resources such as big books and posters were also developed. The MOE through its various YouTube channels also uploaded videos with a variety of content, including explanations regarding the curriculum, teaching and learning guides for preschools’ learning centers, as well as lesson recordings of teaching best practices, with each video garnering from hundreds up to millions of views. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 101 Chapter 5: Quality of Preschool Education 5.4.4 Key Issues and Challenges Effective implementation of play-based approach in lessons is a challenge. In study involving 60 teachers from MOE, KEMAS, JPNIN, and private preschools, it was observed that while teachers were aware about the emphasis on play-based approach in the curriculum, they faced difficulties in adopting the approach, and felt pressured to meet the prescribed content and learning standard, preferring instead a direct instructional approach. Among the challenges raised were the time allocated to adopt play in teaching, classroom management issues, space constraints, teachers’ pedagogical skills, and the lack of support from school administrators and parents who prefer direct instructional methods and prioritize academic mastery over holistic development. The study also observed that teachers interpreted play as merely games or physical activities and were unsure on how to help children learn through play. Similarly, ECCE experts in Malaysia suggested that teachers’ competence in implementing play-based approach and their ability to plan active, child-centered learning experiences that included exploration and experimentation needed to be strengthened (See Box 10; Puteh and Ali 2013; Taha et al. 2020). BOX 10 Selected responses on NPQS assessment and inspection “I really feel that this approach is only good in the document, only on paper. I know that in NPSC, the approach is strongly recommended. In reality, many teachers do not practice and that includes me. The principal always reminds me to make sure that all pupils can read and write before they go to primary school. So, I use books to teach children reading.” “If I use the approach, I will not be able to ensure that all pupils can read before they go to primary school. Play-based is okay if all children start schooling at age of 4 years. If they go to kindergarten at age 5 or 6, they won’t have enough time to learn reading and writing.” “Curriculum is play-based .... teachers should be playing her role as a scaffolder … she may be planning… for a water play… teachers may arrange for them to play with things that can soak water, and things that do not soak water… Playing is not just playing per se... we want kids to experiment, ... to explore…so teacher has to plan for that learning environment.” Source: World Bank Malaysia Preschool Interview 2022, excerpts from transcript of interviews with preschool teachers 5.4.5 Recommendations RECOMMENDATION 15: Invest in teachers’ professional development and resources to improve the understanding and delivery of the curriculum (Short-term) The MOE should continue its effort to supplement the curriculum document with guidelines and examples of pedagogical practices to help teachers to understand the aims of the curriculum and implement it better. Trained preschool teachers are likely be able to refer to the overall curriculum framework to plan their daily lessons and content, and should be entrusted to do so. Untrained and less-qualified teachers in contrast can benefit from more guidance and reference resources. Examples of pedagogical practice in the form of exemplar lesson plans, and lesson videos , can illustrate how different learning strands and components of the curriculum (including the non-academic aspects) can be integrated in a lesson. They depict how abstract pedagogical skills may look in practice, and suggest ways to adapt activities to children’s needs and mastery level. These examples should not be prescriptive but should instead aim to provide guidance to teachers, giving them the flexibility to adapt the curriculum according to their students’ needs and local contexts (OECD 2017). As a continuation from the multisectoral curriculum development and design process, the MOE’s Curriculum Development Division and Teacher Professionalism Division can work with KEMAS, as well as the ECCE Council and other private preschool associations, to develop these reference resources. As teachers begin to better understand the curriculum and become more proficient in delivering it in classrooms, the MOE can collate and disseminate best practices. Considerations should also 102 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education be given to determine the reach and effectiveness of these resources, and continually find ways to create engaging content for readers and viewers. Extending pedagogical support through classroom observation and coaching may help teachers to better translate play-based pedagogy in practice. A child-centered model requires teachers to balance wide-ranging child development areas (Taguma et al. 2012b). The play-based pedagogical approach heavily emphasized in the curriculum requires teachers to take on a more facilitative role in the classroom. This places great demand on teachers’ pedagogical skills and their confidence in using the play-based approach in an integrated manner (Puteh and Ali 2013). Through professional learning programs, MOE can support teachers’ pedagogy by giving them exposure and confidence to move away from teacher-centered learning toward a holistic and integrated student-centered learning. The professional learning programs should not be limited to workshop attendance and classroom training, but be extended to include support to teachers in their pedagogy in the classrooms with observation and coaching. Existing classroom observation and coaching support by the MOE, state departments, as well as district offices, can be extended by including other non-MOE preschool providers in the form of a local support network. The expertise of School Improvement Specialist Coaches (SISC+) in the PPDs who coach primary and secondary school teachers can also be leveraged for transferable pedagogical skills. 5.5 Priority Area 7: Nutrition and Health Globally, malnutrition – undernutrition, hidden hunger, and overweight – undermines the capacity of millions of children to grow and develop to their full potential. Energy, protein, fatty acids, and micronutrients during early childhood are important for brain function. A well-nourished child can interact with the environment and caregivers in ways that promotes further development. Children, however, often are not taking enough nutrients and diversity in their diet, and they tend to consume too much sugar, salt, and fat, which can lead to malnutrition. In 2018, almost 200 million children under five globally suffered from stunting (low height-for-age) or wasting (low weight-for-height), while at least 340 million suffered from hidden hunger (deficiencies in micronutrients). Another 40 million children are overweight (UNICEF 2019b). Beyond the first 2 years of a child’s life, there is now a paradigm shift to also focus on children’s developmental and nutritional needs in the next 7,000 days of their life. Children have specific needs during middle childhood and adolescence, and school meals and school feeding fortified with micronutrients are essential for school-age children from 5 to 14 (WFP 2020). A child’s brain development peaks during middle childhood (see Figure 31; Lee et al. 2014). This makes preschool an opportune time for nutritional intervention. FIGURE 31: Change in brain development by age Pa ssoc Pr rie ia a ef Se ta tio ro la n n nt so nd co Change in brain development al rim te mp co m le o rte po x to x ra rc l or te x Rise in Gonadal Hormones Regional peak and decline in synapses, neuromodulators, neurotrophins, cerebral blood ow and metabolism Myelination 0 6 12... 2 4 6 8 10 12 14 16 18 20 22 Age in months Age in years Source: Lee et al. 2014 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 103 Chapter 5: Quality of Preschool Education Malnutrition during early childhood adversely affect school performance and lifelong economic opportunities, and present health risks into adulthood. Children who are hungry at school struggle to concentrate and complete tasks, and tend to score worse on cognitive tests. Undernutrition is associated with poorer cognitive and educational outcomes in later childhood and adolescence, and has critical education and economic consequences at the individual, household, and community levels. Deficiencies in micronutrients such as iron reduces children’s ability to learn, and is linked to lower test scores (OECD and WHO 2020). Obese children also perform significantly worse in school, and are more likely to be bullied in (and be absent from) schools. The association between obesity and poor academic performance remains significant even after controlling for mediating and confounding factors such as family income, life satisfaction, and bullying (OECD 2019b). Children can still catch up during the middle childhood age between 5 to 9 after early stunting. One study conducted in Peru found that stunted children who caught up by the time they reached 6 years of age performed as well in cognitive tests as non-stunted children. Despite the clear evidence of its benefits, school-age children around the world commonly miss breakfast, depriving them of a meal that supports cognition, especially among undernourished children (UNICEF 2019b). School-based feeding programs and nutrition interventions play a key role in providing nutritious meals to vulnerable children, and in promoting healthy diets and nutrition among children (UNICEF 2019b). Children spend almost one-third of their day in the school, making schools an important and strategic avenue to support healthy eating habits and provide nutrition interventions. Healthy eating practices that are nurtured in preschool will affect the pattern and status of children’s eating into adulthood. Hence, preschool play an important role in ensuring that preschoolers get nutritious food for optimal growth and development, and cultivate these healthy living habits (MOH 2022). Many children from poorer backgrounds rely on food provided at school for nutrition. Children from poorer households tend to lack healthier food options, termed as being in ‘food deserts’, or in ‘food swamps’, where they are confronted with an abundance of high-calorie, low-nutrient, processed foods. Poorer families also tend to consume lower-quality food that costs less. The most disadvantaged children face the greatest risk of malnutrition and rely on schools for nutritious meals (UNICEF 2019b). 5.5.1 Existing Feeding Programs for Preschool Age Children in Malaysia Meals for children enrolled in public preschools are provided and heavily subsidized by the Government. MOE, KEMAS, and JPNIN preschools receive public funding to provide meals, typically a breakfast and a morning snack, for their students. The meals provided must be clean, nutritious, and balanced, and prepared based on the guidelines from the Ministry of Health (MOH) to meet the appropriate caloric and macronutrient requirements. Preschools are generally also not allowed to serve any unhealthy food that contains monosodium glutamate, artificial flavoring, canned food, processed food, carbonated beverages, and foods with high sugar content (Ministry of National Unity 2021; MOE 2018). The MOH nutritionists are involved in the development of menus and recipes for public childcare centers and preschools (MOH 2016). Private preschools are subjected to the same food nutrition and safety requirements prescribed by the MOH, albeit without public funding. The MOH provides comprehensive guidelines for the preparation of food for young children according to their age groups that include menu planning, food preparation, and food presentation (MOH 2018). Figure 32 below provides an illustration of the recommended menu for children from 4 to 6 years of age by the MOH. Preschools that prepare food within their premises must obtain a food handling certificate from the MOH. Preschools who procure cooked food from external suppliers must also ensure that the supplier has a food handling certificate (MOE 2021a). If guidelines are followed, the preschool food assistance program can supply about one-third of a child’s daily nutritional needs. 104 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia (200ml) 02.LayOut:Layout 1 7/11/19 12:11 PM Page 31 Chapter 5: Quality of Preschool Education 1 mangkuk mi sup FIGURE 32: Illustration ofMi Menu thesup recommended menu for children Menu from 4 to 6 years Nasi putih, ikan kembung masak kicap, sayur bayam dan lobak merah goreng of age by the MOH 1 2 /half a pear biji buah lai A slice of watermelon 1/2 potong tembikai A 1 glass of kosong gelas air water Agelas 1 glassair ofkosong water (200ml) (200ml) (200ml) (200ml) 1/2 ekor ikan kembong ½ mackerel fish cooked masak with kicap soy sauce 4 sudu makan bayam 4 spoons of stir-fried dan lobak merah spinach with carrots digoreng /2 senduk 11scoop 1½ of nasi whiteputih rice 1 mangkuk A bowl mi sup of noodle soup Source: MOH 2018 Nasi (Food putih, Preparation ikan kembung Training masak kicap, Module sayur bayam for Nurseries, dan lobak merah Kindergartens and Preschools) Menu Nota: goreng Makanan yang dicadangkan boleh dihidangkan bersama sup ayam atau sup sayur dengan menggunakan stok ayam/ ikan bilis buatan sendiri. Rujuk topik Panduan The NPQS also encompass the nutrition aspect in its quality dimensions. The indicators are largely input- Penyediaan Stok. based, instead of outcome-based, stating the procedures and documentations that operators, teachers, and / potong tembikai 1 2 1 gelas air kosong Modul Latihan Penyediaan Makanan di Taska, Tabika dan Prasekolah 31 student management assistants need to comply (200ml) with to meet the standard. See Table 24 for the indicators for nutrition in the NPQS. / ekor ikan kembong 1 2 masak kicap TABLE 24: Indicators in 4 sudu makan the nutrition quality dimension in NPQS bayam dan lobak merah digoreng Indicators 1 / senduk nasi putih 1 2 Description of full implementation Food preparation • Menu provided complies with the recommendations by MOE or MOH Nota: practices preschool in dicadangkan Makanan yang boleh dihidangkan bersama sup ayam atau sup sayur • dengan menggunakan stok ayam/ ikan bilis buatan Menu sendiri. appropriate to the needs of students (religion, beliefs, values, is Panduan Rujuk topik Penyediaan Stok. and customs) • Current menu is displayed Modul Latihan Penyediaan Makanan di Taska, Tabika dan Prasekolah 31 • Food preparation is according to the menu provided • Rules on food preparation and serving are adhered • Teaching assistant or student management assistant has attended food management course Policies/procedures/ • Policies, procedures, or regulations are documented regulations on food • Current regulations on food hygiene are complied with brought in from outside • Menu provided complies with the recommendations by MOE or MOH • Menu is appropriate to the needs of students (religion, beliefs, values, and customs) • Parents or guardians are informed Involvement of students in • A duty roster of food serving activities is prepared food serving activities • Students on duty are guided during food serving • Students are guided to practice eating etiquette • Students place their used cutlery in dedicated area after meal • Students tidy up or clean their eating area Source: MOE 2021b (National Preschool Quality Standard Instrument 2.0) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 105 Chapter 5: Quality of Preschool Education The MOH also works closely with the various public agencies providing preschool education to implement nutrition programs and promote healthy eating among young children. The objective of the MOH’s healthy eating promotion effort is to provide a healthy menu in preschool, improve nutrition knowledge and healthy food preparation skills among parents, teachers, and food handlers, and to continually assess the nutritional status of preschool children (MOH 2022). In line with its strategy outlined in the Malaysian National Nutrition Action Plan 2016-2025, targeted nutrition education activities have been carried out. Various nutrition education materials, teaching aids and interactive games were developed and disseminated for use in preschools, and periodic nutrition surveillance for children aged 4 to 6 years old in government preschools were also planned (MOH 2016). 5.5.2 The Current Situation The health, nutrition, and safety dimension on the NPQS has shown little improvement over years and is among the weakest quality dimension, only after the teacher quality dimension. As of 2018, preschools on average scored only 67.42 on NPQS’s health, nutrition, and safety dimension (PADU 2019). In the survey conducted among stakeholders in the preschool subsector in December 2021, respondents considered health and safety aspects of preschools as among the top factors contributing to the quality of preschools. Most alarmingly, 14.1 percent of children under five in Malaysia is underweight, 21.8 percent suffer from stunting, 9.7 percent from wasting and 5.6 percent are overweight and obese, with the trend worsening over the years. Underweight and stunting among children is more prevalent among children in rural areas than urban areas, among bumiputera Sarawakians than other ethnicities, and among the bottom 40 percent household income category (MOH 2020). See Table 25 for an overview of nutritional status among children in Malaysia from 2011 to 2019. In the absence of a severe food shortage, the national prevalence of wasting globally is generally below five percent, but the prevalence of wasting is higher in Malaysia than this threshold. Peer countries like Brunei and Singapore, on the other hand, have attained the Global Nutrition Target of reducing and maintaining childhood wasting to less than five percent (OECD and WHO 2020). Malaysian children are much less healthy, considering Malaysia’s relatively high GDP per capita. TABLE 25: Nutritional status (children under the age of 5) trend in Malaysia 2011 2015 2019 Underweight (low weight-for-age) 11.6 12.4 T 14.1 T Stunting (low height-for-age) 16.6 17.7 T 21.8 T T Wasting (low weight-for-height) 12.4 8.1 9.7 T T Overweight and obesity (high BMI-for-age) 6.5 7.6 T 5.6 Sources: MOH 2011; MOH 2015; MOH 2020 (National Health and Morbidity Surveys 2011, 2015, and 2019) 5.5.3 Key Issues and Challenges Inflation may have rendered the current rate of preschool food assistance provided in public preschools inadequate. As there are multiple public agencies providing preschool education with their own budgets, the food assistance rates are not standardized. KEMAS preschools are currently allocated with a much higher daily budget for preschoolers’ meals, at RM3.00 per child in Peninsular Malaysia and RM3.25 per child in East Malaysia, compared to the MOE preschools at RM2.00 and RM2.25 per child in Peninsular and East Malaysia respectively (see Table 26 for the current rate of food assistance in public preschools). The MOE preschool food assistance (Bantuan Makanan Prasekolah) rate was designed based on market prices ten years ago in 2012. Inflation over years have made the food assistance rate severely inadequate to provide nutritious and balanced meals for children in preschools. Food prices have also risen due to the COVID-19 pandemic, supply chain disruptions, and global conflicts and disruptions. In a feasibility study on compulsory preschool education conducted by EPRD in 2020, it has been suggested that the rates of the preschool food assistance be revised up in line with the inflation of raw materials. 106 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education TABLE 26: Current rate of food assistance in public preschools (per child per school day) Location MOE preschools KEMAS preschools Peninsular Malaysia RM2.00 RM3.00 Sabah/Sarawak/Labuan RM2.25 RM3.25 Last revision year 2013 2020 Sources: MOE 2013a; Malaysia House of Representatives 2019 5.5.4 Recommendations RECOMMENDATION 16: Supplement children’s nutritional needs in preschools (Low-hanging fruit) The school feeding program is a research-backed, cost-effective measure to prevent worsening health outcomes among children. Evidence from around the world shows that school feeding programs have positive impacts on human and economic development in health and nutrition, education, and agriculture (Muda 2020). The food assistance rate at MOE preschools needs to be reviewed to evaluate if the allowance is sufficient to meet the nutritional and developmental needs of children in preschools, particularly those from the low-income households. The food assistance rate should be reviewed annually or at regular intervals to adjust for inflation. Any formula and eligibility criteria that may be developed should be standardized across public preschool providers. The School Milk Program (Program Susu Sekolah) currently benefiting students from low-income households in MOE primary schools can be extended to public preschool students in addition to the food assistance program to further supplement a balanced diet for young children. The School Milk Program was first implemented by MOE in 1983 to provide adequate nutrition and a balanced diet to students as well as to cultivate good eating habits. The program is targeted at primary school students with household incomes below the national poverty line, indigenous students, as well as students with special needs. Under the program, students receive 200ml of full-cream, unflavored pasteurized milk every school day. A study on the effectiveness of the milk program in 2013 found positive impact on students’ health, school attendance and academic achievement. Another study in 2014 found that the program contributed to increase in student height, bone density, and bone quality among primary school students (MOE 2020b). Extending the program to MOE preschools would incur minimal logistical changes, as most (99.4 %) of MOE preschools are annexed to a primary school. Further, based on the latest data available in 2018, most (94.1 %) primary schools are already participating in the school milk program, where procurement is conducted centrally by the MOE and milk packets are supplied to schools directly. Extending the program to KEMAS and JPNIN preschools owned by government agencies would also be feasible, as there are established procurement, storage, and administration guidelines that can be followed and adapted, and the distribution can similarly be managed by the milk supplier. To ensure that nutrition for children from disadvantaged backgrounds who are enrolled in private preschools are not overlooked, the MOE can study the cost implications and mechanisms of providing means-tested food assistance for these children. The meal assistance can be added to the preschool student fee assistance discussed in Chapter 4.4, using the same means-tested eligibility criteria and verification mechanisms, and disbursed together for ease of administration. Further study would need to be conducted to understand the demographics of students enrolled in private preschools and estimate the budgetary impact of this assistance. Private preschools without public meal assistance can also leverage MOH’s nutrition science expertise to ensure that this group of children also has nutritious meals in preschool. The MOH currently implements Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 107 Chapter 5: Quality of Preschool Education the Healthy Meals in Schools (HiTS) program in schools on a request basis. As part of the program, the MOH’s Nutrition Science Officers design daily nutritious meal menus that consist of a balanced group of carbohydrates, proteins, vegetables, and fruits, and meet 20 percent to 30 percent of students’ daily caloric and nutrient requirements. The menus are designed to appeal to students, taking into account their local culture and feedback from parents. The menus and their pricing are discussed with the schools, meal providers or canteen operators, and parents for mutual agreement. The meals are prepared by the meal providers and paid for by parents. The MOH’s Nutrition Science Officers monitor the implementation of the program once every three months, and revise the menu or provide training to meal providers as and when needed (MOH 2019). The MOH can review its capacity to extend the HiTS programs and offer its expertise to private preschools. Country Example 15: Finland’s free school lunch In 1948, Finland introduced the free school lunch, which is frequently cited as one of the success factors of the Finnish education system. Finnish legislation guarantees all students from preprimary until upper secondary education the right to a free, balanced meal on every school day. A good school meal consists of: • a warm main course (dishes with fish, meat, vegetables; beans and sprouts as part of vegetarian diet) • a side of vegetables (salad, grated vegetables, or fresh vegetable pieces) • bread and table spread • a drink (skimmed or semi-skimmed milk, buttermilk), and • water In addition to the free school lunch, children taking part in before- and after-school activities or school club activities receive a snack. Snacks are used as a pedagogical tool in teaching children about proper nutrition, table manners, and food culture. The Finnish Government recognize that regular meals are important to students’ well-being, healthy growth and development, and their ability to learn. Meal breaks also provide students with a chance to interact with each other. Students can also participate in planning and implementing school meals, which fosters involvement and community spirit. Source: Finnish National Agency for Education 2022 Country Example 16: Bhutan’s revision to its school-feeding program to curb micronutrient deficiencies Micronutrient deficiencies are a major challenge in Bhutan. Iron deficiency contributes toward a high prevalence of anemia among adolescent girls in Bhutan. In 2017, a government analysis revealed that Bhutan’s school menus under its school-feeding program, which benefited almost half of its total student population, were deficient in many micronutrients, particularly iron, B vitamins, and zinc, and did not provide adequate dietary diversity. Recognizing these challenges, several initiatives have been launched. Rice, the Bhutanese staple food, has been fortified and is now supplied to all schools. School menus are also reviewed to increase diversity and nutrition in meals. Source: UNICEF 2019b (The State of the World’s Children 2019 Report) 108 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 5: Quality of Preschool Education Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 109 Chapter 6: Enablers CHAPTER 6 Enablers 110 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers 6.1 Good Governance Good governance is a critical enabler to better preschool access and quality in Malaysia. Preschool education is currently offered by multiple public and private operators, with more than 16,700 government-established preschools, and more than 9,100 privately established ones. MOE and KEMAS are the main providers of public preschool education, each accounting for 24 percent and 33 percent of preschools in Malaysia in 2021 respectively. The private sector has also emerged as a significant provider of preschool education, operating 36 percent of registered preschools in 2021 (Figure 33). FIGURE 33: Number of preschools by type of provider (number and percentage) Number of preschools MOE, 6,216 (24%) KEMAS, 8,272 (33%) Private, 9,136 (36%) JPNIN, 1,781 (7%) Source: MOE 2022 Under the split ECCE system, childcare and preschools in Malaysia are overseen by different ministries and regulated by different acts (Figure 34). Public and private childcare services are managed by the Department of Social Welfare (Jabatan Kebajikan Masyarakat, JKM ) of the Ministry of Women, Family and Community Development (MWFCD) and regulated by the Child Care Centre Act 1984, covering children from the ages of 0 – 4 years. Public and private preschools, on the other hand, are overseen by MOE and governed under the Education Act 1996, covering children ages 4+ and 5+. This kind of split structure has also been seen in other countries, such as in Portugal and in Singapore, prior to Singapore’s harmonization of its ECCE management under one agency in 2013 (this is further described in Country Example 18 below). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 111 Chapter 6: Enablers FIGURE 34: The split ECCE system in Malaysia ECCE in Malaysia Childcare Pre-school Education (< 4 years) (4+ to 5+ years) Overseen by: Overseen by: Ministry of Women, Family and Ministry of Education (MOE) Community Development (MWFCD) Governed by: Governed by: Education Act 1996 Childcare Centre Act 1984 • Covers children under the age of 4 • Covers children in the 4+ and 5+ age • Types of Taska (childcare center) includes groups those at home, in institutions, workplaces • Follows the National Preschool Standard- and communities based Curriculum (NPSC) • Operators must complete the Basic • 15 square feet per student at a minimum Childcare Course (KAAK) • Teacher-student ratio of 1:15 to 1:25 • Space required depending on type of depending on height level of school, 1-2 Taska, 26.9 to 37.6 square feet per child teaching assistants per 15 students • Teacher-student ratio of between 1:3 to • Teachers attend pre-service training and 1:10 depending on age obtain a minimum diploma in ECCE • Teachers attend PERMATA training Source: Authors’ summary The split system and the multiple providers present several challenges in improving the access and quality of preschool education in Malaysia. For example, stakeholder engagement activities reveal consistent concerns across various stakeholders on bureaucratic issues, as many operators run a hybrid model of offering both preschool and childcare (e.g. preschool in the morning and childcare services in the afternoon). This requires licensing required from two separate ministries, with different standards and requirements. Currently, MOE can only process applications for preschools for the 4+ and 5+ age group, while ECCE centers for children from 0-4 years fall under the preview of MWFCD. As a result, many private preschools operate without licenses from both ministries given the challenges in registration and obtaining a dual license. Hybrid operators who want to obtain both licenses also must have separate premises with separate entrances, which is not practical in many settings (Box 11). The situation also leads to other issues arising from a lack of coordination. Existing literature on ECCE in Malaysia and findings from stakeholder engagement activities all point to the common theme of insufficient coordination between the different ministries involved in ECCE. This has implications on data collection, curriculum, teacher training, quality assurance, licensing, monitoring and enforcement, and funding allocation. For example, data on preschools is gathered by MOE via the National Preschool Information System (Sistem Maklumat Prasekolah Kebangsaan or SMPK ), while data on childcare centers is gathered by the National Child Development Research Centre (NCDRC) and Sultan Idris Education University (UPSI) via the National Childcare Data Centre (NCDC). There have yet to be any efforts to combine or coordinate these datasets. While both preschool and childcare teaching curriculum have education components in it, these have also yet to be harmonized. 112 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers BOX 11 Selected survey responses on issues relating to a lack of coordination “No continuity from taska (childcare center) to tadika (preschool). I run ECCE for children aged 2 to 6. I am required to have two buildings, one for childcare and one for preschool because they came under two different ministries…. Parents with children in both age groups have to shuttle between the kindergarten and childcare center.” “The registration process can be cumbersome with many departments in separate ministries. There are also inconsistent requirements and changing personnel to deal with which causes the process to take years.” Source: World Bank Malaysia Preschool Survey 2021 Good governance and policy coordination between all of the stakeholders involved is a significant enabler for the success of many of the recommendations in this paper. Studies have found that more concentrated efforts toward integrated services and better governance can improve both access and quality of ECCE, with the most successful ECCE systems integrating broad-based goals for “childcare” with specific “early education” aims. Integrated systems are found to have increased public investment in ECCE, improving access to, and the equity and quality of, ECCE services (Bennett 2011). The fragmentation of responsibility in split management systems, on the other hand, can create inequality through uneven levels of quality provisions and the lack of coherent goals. Measures to improve access to preschool education and its quality can only materialize and bear fruit if all of these stakeholders are on board, committed, supportive of each other, and well-coordinated to move in an aligned direction. The measures in the following section are aimed at achieving this. 6.1.1 Recommendations RECOMMENDATION 17: Assemble a taskforce to address issues faced by preschool providers and implement recommendations in this report. (Low-hanging fruit) The taskforce can be chaired by a high-level official from MOE and represented by representatives from key preschool providers as members. Through the taskforce, members can work together to mobilize and implement efforts to resolve any issues faced by preschool providers, such as those on licensing procedures, multisectoral curriculum review and development, collation and dissemination of reference resources and best practices for teachers, and data collection, as well as implement the recommendations outlined in this Review. The taskforce can also form specialized workgroups under it to focus and deliberate on specific areas. An example of the taskforce structure and terms of reference is illustrated in Figure 35 below. In 2018, a similar set-up called the Special Committee for Integrated Regulation of the Establishment and Operation of Early Childhood Education Institutions in Malaysia (Jawatankuasa Khas Bagi Mengawal Selia Secara Bersepadu Penubuhan dan Operasi Institusi Pendidikan Awal Kanak-Kanak Di Malaysia) was established, but has been inactive since. The committee aimed to coordinate efforts among preschool providers and was chaired by the Director General of the MOE, with membership from MOE, MWFCD, KEMAS, JPNIN, JAIN, ABIM, and the ECCE Council. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 113 Chapter 6: Enablers FIGURE 35: Example of proposed taskforce structure and terms of reference Suggested TORs for the proposed preschool taskforce Suggested Terms of Reference for Taskforce: 1. The Chairperson shall be the Objective: To coordinate and DG of MOE. implement efforts amongst preschool providers 2. The Secretariat shall be from MoE, who shall be responsible for invitations and convening the meetings. Chairperson: Director General (DG) of MOE Secretariat: 3. Members of the Taskforce to include representatives of Members: Preschool ECCE providers in the • MOE Management country, but other Unit, School representatives can be invited - School Management Division (BPSH) Management when the need arises. Division (BPSH), - Private Education Division (BPSwasta) 4. The meetings shall be held MOE • MWFCD (JKM) every quarterly either in person, virtually or a hybrid of • KEMAS in person and virtually. • JPNIN 5. Specialized workgroups shall be created when the need • JAIN arises to deliberate on • ABIM speci c concerns and mobilize efforts to address • ECCE Council them. Source: Authors’ summary Under the taskforce, regularly convened and specialized working groups can be set up to discuss and resolve specific issues mentioned in this Report. As recommended in Section 4.3.2, one of the key steps in expanding access of preschool education is to identify areas of high need via the mapping of demand and supply of preschool seats. This process can be significantly facilitated if a specialized working group involving key preschool providers, such as MOE, KEMAS, JPNIN, and representatives from the private providers such as ECCE Council, is set up. The working group can collaborate with government agencies to undertake a household survey to pinpoint who and where the unenrolled children are, map the demand and supply, and identify areas of high need accurately to ensure openings of new preschools are well targeted. A coordinated working group will improve communications among all stakeholders and swiftly identify areas where the government can provide support effectively. 114 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers RECOMMENDATION 18: Revive inter-ministerial discussions to harmonize and integrate the ECCE sector, covering the age group of 0 to 6 years. (Low-hanging fruit) As there are multiple providers of preschool education and childcare in Malaysia, there could be fundamental differences in policy aims, which can at times create unevenness in operational and regulatory procedures such as licensing, funding and subsidy streams, and teacher training (Tan 2017). While MOE’s current oversight over the entire preschool education landscape has helped to harmonize preschool offerings across the different providers in terms of curriculum standards and quality assurance, a more integrated approach on ECCE covering children from 0-6 years, harmonizing aspects such as policymaking, licensing, data collection, government funding, curriculum, and teacher qualification and training can result in more holistic oversight and regulation. The Preschool Education Review Lab had discussed three possible options to streamline the governance of ECCE in Malaysia: • Option A: Establish a formal high-level coordinating agency with oversight from MOE and MWFCD and representing all ECCE providers, • Option B: Redefine preschool education to encompass a younger age group, and to transfer the management of this age group to a single ministry, MOE, and • Option C: Expand preschool education to encompass ages 2 and above, but to leave the scope of childcare (0-4 years) untouched. Option A suggests establishing a formal high-level coordinating agency with oversight from MOE and MWFCD and representing all ECCE providers. Lab participants agreed that this option may be the quickest and more efficient one, as it can be set up without making changes to the existing Education and Childcare Acts, which may take a long time and require strong political will. The agency can promote better coordination and harmonization of ECCE offering in areas like curriculum, funding, licensing, data collection, and engagement with stakeholders. However, the setup of a new agency requires separate funding and resources to be channeled to it, and may entail a change in staffing structure as departments under relevant ministries are moved to this agency. The ECDA in Singapore is an example of this reform, and it was established to ensure that ECCE offering is integrated and harmonized in all aspects, be it licensing and regulating, capacity planning, curriculum development, teacher qualification and training, funding, and subsidies, for Singaporean children from under the age of 7 (the ECDA framework is described in Country Example 17). Similarly, Mexico established a system called the National System of Day Care Centers to foster coordination across the different agencies that oversee various aspects of ECCE. Estonia also has a unitary child care and education system under the Ministry and Education and Research, responsible for services throughout the entire ISCED Level 0. The purpose of the coordinating agency in Option A is to harmonize and integrate early childhood policies and practices of ECCE programs for better governance. This high-level agency would be overseen by the heads of both ministries and composed of a board of preschool stakeholder representatives. The agency would have power to decide upon and implement policy and regulatory changes related to the harmonization, governance, and oversight of ECCE as a whole. There are several pertinent efforts that the agency could start to work on, which include but are not limited to: i. Providing licensing to both childcare centers and preschools as the ECDA in Singapore does, mitigating the current issues that operators face in applying for licenses from two separate ministries and streamlining the process to make it less cumbersome. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 115 Chapter 6: Enablers ii. Determining when and how preschool can be redefined to include students in the younger age group (e.g. 2 years to 6), in line with many practices globally where preschool education is recognized to start from as early as between 12 to 18 months. As this will result in change in legislation and shift of governance of the younger age group from MWFCD to MOE, the discussion among the stakeholders will result in an outcome more in the medium- to long-term timeframe. iii. Creating a single harmonized ECCE curriculum for childcare and preschool education to ease and streamline training and implementation​ . Currently, new preschool teachers attend preservice training and are required to obtain a diploma in ECCE, while new early childhood caregivers attend the PERMATA training, which also includes elements of preschool education training. The curriculum of these training programs can be streamlined, so that preschool teachers who want to teach at childcare centers can do so without obtaining additional but repetitive training, and vice versa. The GENIUS and the School Management Division of the MOE have begun to look into this, although no decisions have been made. iv. Improving data sharing among data-collecting agencies and collaboration to encourage the private sector to report data for better insights into the ECCE landscape. With or without the streamlining of ECCE, data across all agencies should be shared regularly in order to effectively address the needs on the ground. The MOE gathers data on preschools via the National Preschool Information System (Sistem Maklumat Prasekolah Kebangsaan or SMPK ), which is a comprehensive preschool database for monitoring and for parents to make informed decisions when choosing to enroll their children in preschools. Data on childcare centers, on the other hand, is gathered via the National Childcare Data Centre (NCDC), which is a collaborative effort between the National Child Development Research Centre (NCDRC) and Sultan Idris Education University (UPSI). The coordination of data collection efforts under both the SMPK and the NCDC must be undertaken to yield a more accurate and comprehensive information system that would allow policymakers to make more informed policy decisions and identify priority areas for intervention. A further description of both databases can be found in Annex 5. Option B would redefine preschool education to encompass a younger age group, and to transfer the management of this age group to a single ministry, MOE. This could be done by redefining preschool education to start from a younger age (e.g. from 2 to 6 years) and shifting the governance of ECCE for this age group from the MWFCD, who currently manages childcare, to MOE, who manages preschool education. ECCE programs that cater for children under the age of two, however, would remain under the MWFCD. Figure 36 offers an illustrative example of how Malaysia’s ECCE framework could be set up under this option. This option offers a more integrated approach to organize policy goals and combine resources, as it recognizes that preschool education starts as early as 2 years of age in line with international practices, and improves ease of licensing, curriculum planning, policy, and standards. It would, however, require the buy-in from both ministries which could take time, a change in staffing structure, and amendments to the Childcare Centre Act 1984 and the Education Act 1996. This approach has been adopted by Finland, which transferred the administration and steering of ECCE services from the Ministry of Social Affairs and Health to the Ministry of Education and Culture in 2013. If adopted in Malaysia, preschool education from the ages of 2 to 6 years could be managed by the MOE while childcare for those under the age of two could continue to be managed by the MWFCD. The pros and cons of both the options presented are summarized in Figure 37. 116 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers Country Example 17: Singapore’s Early Childhood Development Agency (ECDA) Singapore had a similar split system challenge to Malaysia and moved to harmonize the ECCE landscape by establishing the Early Childhood Development Agency (ECDA). The ECDA was aimed at coordinating the relevant stakeholders and resources between the Ministry of Education, which was managing preschools, and the Ministry of Social and Family Development, which was managing childcare. The ECDA was set up in 2013 to integrate and regulate early childhood services across the entire ECCE sector. It is an autonomous agency, jointly overseen by the two ministries but administered under a unified agency. The ECDA centrally oversees and develops the policies and practices for ECCE programs catering to children below the age of 7. These programs are administered by the Ministry of Education kindergartens and privately-run ECDA-licensed preschools and childcare centers. Oversight body of ECCE in Singapore Ministry of Ministry of Social & Family Education (MoE) Development Early childhood development agency (ECDA) MoE kindergarten ECDA licensed ECDA licensed (MK) pre-schools child care centres 2-7 years (pre-school) 2-18 months (children) 18 months - < 7 years (pre-school) The ECDA serves as the singular regulator and developmental agency overseeing ECCE across kindergarten and childcare centers in Singapore. It oversees the key aspects of children’s development below 7 years, aiming to develop children who are curious, active, and competent leaders. Its roles cover the licensing and regulating of these kindergartens and childcare centers, quality assurance, training and continuing professional development of early childhood professionals, provision of subsidies and grants to ensure preschool education is affordable, public education and outreach, as well as the uplifting of the professionalism of the ECCE sector in Singapore. Role of ECDA in Singapore ECDA serves as the regulator and developmental agency, overseeing ECCE, across kindergarten and childcare centres in Singapore Desired outcomes Key responsibilities: e Motor • Oversee measures to raise quality of ECCE programme, guag S Develo kills on Lan nd a pme nt racy i including regulation, quality assurance and provision of at of Lite N um uc W ry e early childhood development resources ld Ed th ove Teachers as or ra isc cy facilitators of ool e D • Facilitate training & continuing professional T learning i Des mes of Pre-sch Creat s and Deve development of early childhood professionals Social onal Emotp on Expre ive ired Outcomes o tic integrated ssi lo ment Children are Aesthe • Master plan for infrastructure of manpower resources to i approach to and support early childhood sector learning curious, active and e h competent engaging children • Provide subsidies and grants to keep quality pre-school learners utco in learning through programmes affordable, especially for low and middle holistic development a purposeful play c eO authentic fE income families children as learning g d a constructors of uc through t yS • Conduct public education and outreach to raise knowledge at quality io e parents' awareness and support for their child's K interactions n development L ea r ni n g D i s p o s i t i o n s • Uplift the image and professionalism of early childhood sector through strategic partnership and programme Early years development framework < 3 years Nurturing Early Learner (NEL framework) Source: ECDA 2022b Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 117 Chapter 6: Enablers FIGURE 36: Example of how Malaysia’s ECCE framework can be set up under the option of transferring ECCE administration from 2 to 6 years under MOE Childcare Centres Preschools Age < 2 years old 2-6 years old Ministry < 2 years old 2-6 years old Act Childcare Centre Act, 1984 Education Act, 1996 Source: Author’s summary FIGURE 37: Summary of pros and cons of the two options to streamline ECCE governance - Better co-ordination and - Separate funding and harmonization of ECCE resources need to be offering in areas like channeled for the agency Option 1: A formal curriculum, funding, policy - Requires a change in staf ng coordinating agency coherence, data collection and structure as departments for preschool working with stakeholders under separate Ministries will education - Can be set up without be moved to this agency requiring a change in legal framework - A more integrated approach - Requires amendments in two to organize policy goals and laws and buy-in from multiple Option 2: combine resources ministries which will take time Transferring and resources Requires a administration of - Recognizing that preschool change in staf ng structure ECCE from 2-6 to a education starts as early as 2, single Ministry in line with international - Requires political will for the practices, with clearer amendments in laws delineation of roles and responsibility - Improves ease of licensing, curriculum planning, policy and standards Source: Authors’ summary 118 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers Option C would expand preschool education to encompass ages 2 and above, but to leave the scope of childcare (0-4 years) untouched. This option offers a partial or halfway alternative to Option B, redefining preschool education to start from 2 years onward under the oversight of MOE, but allowing overall childcare from 0 to 4 years to remain under the scope of MWFCD. It therefore allows for the recognition that preschool education starts as early as 2 in line with international practices, and facilitates ease of licensing, curriculum planning, policy, and standards for preschool providers who want to offer programs for those aged 2 and above. This option is less cumbersome, as it only requires the amendment of the Education Act 1996 and leaves the Childcare Centre Act 1984 as it is. However, it creates an overlap between oversight and resources, as both MOE and MWFCD can offer programs to those aged between 2 and 4, forgoing the integrated approach that Option B seeks to deliver. Discussions on the harmonization of the ECCE sector, which started in 2019 but made little headway, can be restarted to study the feasibility of these options. In 2019, both the ministers of MOE and MWFCD commenced a dialogue to harmonize ECCE in Malaysia. These discussions can be revived at a ministerial level, involving both MOE and MWFCD, to deliberate and determine the best option for Malaysia, and a way forward to streamline and integrate ECCE policies and practices for better governance, regulation, monitoring and oversight, and ultimately, better outcomes for preschool providers, teachers, students, and parents. 6.2 Financing Early childhood education provides the highest return on investment compared to all other education levels as it raises enrollment to primary school, improves efficiency and learning outcomes (UNICEF 2019a). Increased government investment in ECCE can potentially result in annual returns ranging from 8 percent to 17 percent, which largely accrue to the wider society (EIU 2012). This investment has positive returns to not just the child, but also to the parents, the society, and the economy as a whole. 6.2.1 Prioritizing Equitable and Efficient Spending Public investment in ECCE is an important guarantee for equity. Without sufficient public spending, access to high-quality ECCE programs is limited to affluent families, and this increases the gap between families from different income groups. Countries with insufficient public funding of ECCE have higher financial burdens, with more parents sending their children to private providers, or lower participation rate in the labor force as others may prefer to stay home (UNICEF 2019a). Not only will public spending on ECCE lead to more equal access, but it also reduces segregation of children by increasing participation for all children regardless of income groups and improves quality for the entire system. Further, children from families who can afford preschool education may also be affected when public spending on ECCE is low. The lack of seats in public preschools and the lack of high-quality options that are affordable corner parents into whatever limited options that are viable to them. If there is a lack of understanding about the long-term benefits of preschool education, parents may tend to underinvest, especially given the immediate higher costs involved in enrolling in private preschools. This will impact the children involved as well as the society and economy in the long-term, as elaborated in earlier chapters. While securing adequate funding is important, it is not a guarantee for success and must be complemented with other strategies to ensure greater efficiency. Governments will also have to thoroughly review how available resources are allocated, and if they are used efficiently and equitably. Other strategies include lowering the unit cost of other education levels through innovation and efficiency, and ensuring marginalized communities are prioritized in education outreach and public resources (UNICEF 2019a). Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 119 Chapter 6: Enablers Country Example 18: Increasing domestic financing in Mali by developing priorities in planning and budgets The example of Mali is one that showcases how a low-income country can increase domestic financing by deploying three key strategies: 1. Establishing clear priorities 2. Conducting a thoughtful and inclusive planning process, including financial modeling 3. Taking a progressive approach to increasing budgets Mali began working on a Ten-Year Education Development Program called PRODEC2 in 2015, which provided a timely opportunity to reflect on the state of the country’s preprimary subsector. It also allowed the government to review the budget allocation by the Ministry of Education to this subsector, which was set at only about 0.01 percent of the overall education budget. In preparation for PRODEC2, key studies and analyses were conducted, including: • Financial modeling, which suggested several costing and financing options for quality early childhood education services • An early learning assessment that examined the knowledge and skills of children entering primary school, while revealing key characteristics of preprimary services (including access, demographics, types of settings) • A preprimary subsector diagnostic exercise, which analyzed the strengths, weaknesses, and capacity gaps across all aspects of the subsector, including workforce, quality assurance, curriculum, and others. These well-strategized and well-timed processes resulted in a budget increase for pre-primary education from a 0.01 percent share of the total education budget to at least 3.9 percent, a remarkable achievement for the preprimary subsector, and one that flowed naturally from the establishment of preprimary education as a priority and the subsequent planning. Source: UNICEF 2019a 120 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers 6.2.2 Malaysia’s Current Public Expenditure on Preschool Education In Malaysia, 64 percent of preschools are publicly funded and operated by multiple government agencies. Publicly funded preschools are managed by MOE (24%) and other government agencies such as KEMAS under the Ministry of Rural Development (33%), and JPNIN under the Ministry of National Unity (7%). The other 36 percent of preschools are privately funded or run by non-governmental organizations (NGOs). Despite more than half of Malaysia’s preschools being publicly funded, government expenditure on preprimary education of 0.15 percent of GDP (approximately RM2 billion or $454 million) in 2017 is low relative to other upper-middle-income (e.g. Argentina Belarus, Bulgaria, Peru) and high-income (e.g. the United Kingdom, Australia, New Zealand, Chile) countries (Figure 38). It also falls significantly behind what is suggested by the OECD, which for ECCE spending is to account for at least 1 percent of GDP (OECD 2021a). FIGURE 38: Government expenditure on pre-primary education as a percentage of GDP in 2017 % of GDP (2017) 1.2 1.15% 1.0 0.94% 0.8 0.72% 0.75% 0.63% 0.6 0.54% 0.46% 0.48% 0.49% 0.40% 0.41% 0.4 0.34% 0.22% 0.23% 0.25% 0.17% 0.2 0.10% 0.15% 0.02% 0.0 e n sia ng UK lia a s l nd Ar nd a y y ru y ile ia s ga nd ru an ua wa bi in or pa ar Pe ra Ch Ko la a ay nt la m rtu ap m ug rla lg Ja al or st er Be al ge lo er Ze Bu Po ng Au N ng he Ur itz M Co G Si et Sw Ho ew N N Source: World Bank 2022 The MOE spent only 1.8 percent of its total education budget on preschool education in 2020. Preschool education accounted for 1.8 percent (RM948 million or $215 million) of MOE’s total expenditure (RM52 billion or $12 billion) in 2020 (Figure 39), and about 0.34 percent of total government spending (RM276 billion or $63 billion). This percentage has risen in the past decade, driven by the rise in operations spending. However, spending on preschool food assistance and per-capita grants remains stagnant despite the significant rise in preschool enrollments since 2010. Development expenditure on preschool education has also been insignificant, aside from a boost in 2011 and 2012. In 2020, 99.7 percent of MOE’s spending on preschool education (RM948 million or $215 million) was for operating expenditure (emoluments: 8.6%; supplies and services: 0.7%; grants and fixed charges: 11.4%), while a mere 0.3 percent was for development expenditure. As public preschools are operated by multiple agencies in Malaysia, there is spending on preschool education outside of MOE’s budget, although at relatively small amounts. Preschool education spending by KEMAS, which operates the largest share of public preschools, only accounted for 1.1 percent (RM29 million or $7 million) of the Ministry of Rural Development’s total operating expenditure (RM2.7 billion or $612 million) in 20189. 9 There are other pockets of government spending on preschool education that are not reflected here as their breakdowns are unavailable in the Federal Government Expenditure Statements. This includes spending on JPNIN preschools, spending on preschool education by other ministries such as the Ministry of Rural Development, fee assistance, and other grants/subsidies. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 121 Chapter 6: Enablers FIGURE 39: Preschool spending as a percentage of MOE’s total expenditure Total preschool 1.8% 1.8% 1.7% 1.7% expenditure as a 1.6% 1.6% 1.6% % of MOE's total 1.4% 0.2% 0.2% expenditure: 0.2% 0.2% 0.4% 1.2% 1.2% 0.2% 0.5% 0.1% 0.2% 1.0% 0.1% 0.2% 0.2% 0.1% 0.2% 0.2% 1.6% 1.6% 1.4% 1.4% 1.4% 1.0% 1.2% 1.0% 1.0% 0.7% 0.8% 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Preschool Operations Preschool Food Assistance Per capita grant for preschool Preschool Development Expenditure Total Expenditure on Preschool Education Sources: AGD, 2022 6.2.3 Recommendations RECOMMENDATION 19: Review allocation to preschools to be more in line with current needs and to meet targets and aspirations set. Target funding for disadvantaged groups and provide means-tested assistance to low-income students, while gradually expanding coverage to all Malaysian children. (Short-term) Evidence suggests a sustainable and equitable preschool system necessitates significant public funding, without which there are likely to be issues of quality and unequal access (OECD 2006). The government can therefore develop a clear and consistent strategy for efficiently allocating resources to preschool education that is directed toward achieving high-quality pedagogical goals, in addition to expanding access to preschools. The MEB (2013-2025) had done this for the whole education sector, with the government committing and following through to spend 16 percent of the total federal budget on overall education annually (MOE 2013b). With increased demand for seats in public preschools enrollment, allocation to preschools has not changed much in the last decade, and this needs to be reviewed in order to improve the access to and quality of preschool education. While an aim to provide universal coverage for preschool interventions is ideal, with limited public resources, countries should aim to target the most vulnerable first (World Bank 2014). Evidence has shown that children most in need are the least likely to have access to preprimary education, with barriers such as household economic status, maternal education level, and geographical location (UNICEF 2019a). On average, the richest children from low-income countries are eight times more likely than poorest children to attend an early childhood education program (UNICEF 2019a). To improve access to preschool education for the most disadvantaged, public resources should be first directed to them through alternative and targeted efforts to ensure that any financial burden is alleviated for the poorest families first, and that they benefit foremost from extended services and additional years of preschool. Several recommendations throughout this review (particularly in Chapter 4) have outlined ways to determine where these disadvantaged groups are, understand their issues, and target them for a variety of interventions. However, it is important to ensure that sufficient funding is channeled to these interventions. 122 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 6: Enablers RECOMMENDATION 20: Improve budget execution by integrating existing interventions and reviewing available resources for maximum benefits and cost efficiency (Medium- to long-term) Under tight budget constraints, integrated services and interventions can help reduce the unit cost of providing services and ensure coherence in delivery of interventions. An example is to leverage synergies between the different preschool providers to pool resources and capacity, such as for teacher training and provision of curriculum resources. The MOE, ECCE Council, and KEMAS have each developed comprehensive guides for teachers; these can be combined and used collectively with better coordination. Within MOE, the different interventions and support to out-of-reach children can also be combined across departments, and when working with the district education offices, to improve efficiency of resources. While it is important to consider increasing overall allocation for preschools, it is just as important to ensure existing resources are used equitably and efficiently. Programs and services related to preschools need to be evidence-based and evaluated periodically to ensure they deliver optimal results. Furthermore, it is also crucial to galvanize support for the prioritization of preschool education in the Ministry’s leadership. This improves alignment and ensures budget allocation for one year of preschool education is prioritized, making earlier levels of education available to all children. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 123 Chapter 7: The COVID-19 Pandemic and Learning Loss CHAPTER 7 The COVID-19 Pandemic and Learning Loss Chapter 7: The COVID-19 Pandemic and Learning Loss 7.1 School Closures During the Pandemic The COVID-19 pandemic has resulted in prolonged school closures in both public and private preschools. Closer analysis of the standard operating practices issued by the National Security Council (Majlis Keselamatan Negara) and MOE shows that public preschools have been impacted the most, as detailed in Figure 40 below. This creates inequity among those enrolled in public and private preschools, compounded by the fact that public preschools have been prioritized for children from the lower socioeconomic and from remote/rural communities. In total, public preschools in Malaysia were closed for around 42 weeks, which is one of the longest periods in the region (Figure 41). FIGURE 40: Timeline of opening/closing of preschools 2020 18 Mar 1 July 14 Oct 31 Dec 2021 13 Jan 5 Mar 12 May 1 June 3 Oct All All Private preschools Private All Public All preschools All preschools preschools opened. Public preschools preschools preschools closed except preschools are closed reopened preschools opened opened. reopened closed, for private reopened intermittently in Oct, Public private preschools closed nationwide preschools preschools who has on 9 November remain closed allowed to students’ open parents working in essential services Sources: National Security Council 2020; MOE 2020c FIGURE 41: Malaysia saw one of the highest periods of school closure in the region and amongst its peers Weeks of school closures 70 60 50 42 40 30 20 10 0 Viet Nam China Chile Lao PDR Indonesia Colombia Peru Malaysia Cambodia Myanmar Source: UNESCO 2021b Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 125 Chapter 7: The COVID-19 Pandemic and Learning Loss 7.2 Key Issues and Challenges The pandemic has had impacts on both students and the operations in preschools. The prolonged school closures may heighten the risk of learning loss due to remote learning, lower motivation to learn, and lower attendance rates. A majority of respondents from the Preschool Online Survey answered that the learning and well-being of students has been affected by the pandemic. During the period of school closures, home-based teaching and learning (Pengajaran dan Pembelajaran di Rumah, PdPR ) was conducted by schools, and this is often a new experience for young children enrolled in preschools. For students who are only beginning to learn how to read and write, transitioning to home-based remote learning delayed learning progress and may have halted learning altogether (Box 12). Teachers who answered the Survey also reported a sharp increase in dropout rates, lower motivation to learn, and low attendance rates. BOX 12 Selected responses on the impact of the pandemic on learning “Children’s learning progress has been delayed and they’re unable to catch up at their development level.” “Basic skills of listening, speaking, reading, writing and counting are severely affected.” “Children stopped learning during the pandemic.” “Remote learning is not effective as many students were uncontactable.” “Some parents chose to stop their children from attending online classes which disrupted learning” Source: World Bank Malaysia Preschool Survey 2021 Aside from the loss of learning, school closures caused by the pandemic may have severe impact on the socioemotional development of young children. Preschool students’ social, emotional, and psychomotor developments may be affected from being at home, as young children may find the sedentary nature of being in front of screens for long hours to be difficult. Preschool students rely on schools to provide an environment for social interactions, and remote learning limits the amount of such social interactions, as well as physical play and learning with their peers. (Box 13) Selected responses on the impact of the pandemic on socioemotional BOX 13 development “Children’s social skills and psychological growth are impaired due to a lack of interaction among peers. Some of them seem to shy away when they finally come back to the physical class. The long period of virtual learning has caused some sight-impairment and children began getting hooked to IT gadgets.” “All aspects of gross and fine motor skills, social skills and communication skills have been affected.” Source: World Bank Malaysia Preschool Survey 2021 126 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 7: The COVID-19 Pandemic and Learning Loss The pandemic has impacted all children, but those from low-income households felt the impacts of the pandemic more acutely than the rest. With public preschools closed longer than private ones, children who attend public preschools face higher risks of learning losses and impact on their well-being. The World Bank’s High-Frequency Phone survey found that children from low-income households were less likely to be engaged in online learning activities (Figure 42). For children who are not engaged in online learning, some of the main reasons given are no internet access, lack of interest, and no parental supervision (Figure 43). Parents from low-income households might have had to work more than one job during the pandemic, which could result in difficulties supervising children’s learning at home. Similarly, respondents of the Preschool Online Survey reported that engagement with online learning is low due to infrastructure challenges, such as lack of access to the internet or to a stable connection, the availability of learning devices, and the lack of support of parents in their remote learning (Box 14). It is therefore likely that students from vulnerable households will see their learning opportunities decline, and disparities between advantaged and disadvantaged students will further widen. Furthermore, the impact of the closures extends beyond education, as many children who are enrolled in public preschools also rely on school for daily nutrition, security, and safety. Public preschools offer free meals and a more conducive and consistent learning environment for students who may lack these at home. In physical settings, teachers are also able to provide welfare checks and services more easily than in remote settings. FIGURE 42: Children from low-income households remain less likely to engage in online learning activities Engaged in online classes or used mobile learning apps, by household income, percentage of households with children engaged in at-home learning 100 90 80 70 60 50 RM2,000 and below RM2,001-RM4,000 RM4,001-RM10,000 More than RM10,000 May-June 2021 October-November 2021 Source: World Bank 2021 Reasons children are not learning in past 30 days, percentage of FIGURE 43: Main reasons households for students with children not not engaged being engaged in at-home learning in online activities October - November 2021 No internet/lack of stable... Child not interested in online... No parental/adult supervision Not sure School didn't offer No device No access to teacher or tutor No suitable programs for... 0 10 20 30 40 Source: World Bank 2021 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 127 Chapter 7: The COVID-19 Pandemic and Learning Loss Selected responses on the lack of infrastructure to support remote BOX 14 learning “For students who have internet issues, or a lack of device due to having too many siblings, they are totally loss in their learning during the Covid-19 crisis.” “Parents are not able to provide devices to preschool children, most of them are working and students don’t have mobile phones at home.” “Students cannot attend classes, hard to access learning modules and parents can’t afford to provide school supplies at home.” Source: World Bank Malaysia Preschool Survey 2021 The government has responded to the issues that arose from the pandemic with several initiatives, such as deploying various educational platforms, tax incentives, and subsidies. Digital Educational Learning Initiative Malaysia (DELIMa), Cikgootube, EduWebTV, and DidikTV were all launched during the pandemic to support home-based learning, though most of the initiatives did not directly benefit preschool students given the limited content for them. A tax relief of RM2,500 ($567) for the purchase of personal computers, smartphones and tablets, and subscription of internet was given, but it did not benefit lower-income families which earned below the taxable income tax threshold of RM2,833 ($642) per month (after EPF deduction). Under Budget 2021, under the Jaringan Prihatin scheme, B40 individuals that qualified for Bantuan Prihatin Rakyat (BPR) could claim between RM180 ($41) to RM300 ($68) in form of monthly data plan or smartphone subsidies. There was also a free 1G internet data plan provided daily to all customers by telecommunication companies, which started in April 2020 and was extended to December 2021 under the People Protection and Recovery of the Economy Plan (PEMULIH), to increase access to online learning using mobile phones. These data and smartphone subsidies have now been discontinued. School closures have a significant impact on private preschools with fixed costs such as teacher salaries, rental of premises, and other operational costs. Respondents from the Preschool Online Survey who operate private preschools cited pressures from parents to reduce monthly fees given the switch to remote learning. Further, a preschool operator interviewed during the Stakeholder Interviews reported that despite already-low fees of RM180 ($41) per month, fees were also further subsidized or suspended due to the parents’ economic situations. The ECCE Council, during the lab, shared that other private operators reported falling enrollment rates during the pandemic. This also resulted in permanent closures of private preschools that were not able to further sustain their operations. The government introduced several wage subsidy programs for businesses like private preschools, such as that of the National Economic Recovery Plan (PENJANA) with a subsidy of RM600 ($136) per employee for businesses in movement-restricted areas starting June 2020 (discontinued in 2022). A one-off grant amounting to RM5,000 ($1,134) was provided to registered private preschools to help them re-establish their operation and to promote preschool enrollment, and a smaller grant amounting to RM3,000 ($680) was also extended to unregistered private preschools that were registered by October 2020 (MOE 2020a). In June 2021, the PEMULIH program provided a one-off RM3,000 ($680) aid to 4,400 childcare centers under MWFCD and over 8,000 private pre-schools under MOE, to aid sanitization and disinfection needs (MOF 2021). 128 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 7: The COVID-19 Pandemic and Learning Loss 7.3 Recommendations RECOMMENDATION 21 :Focus on remediation and intervention for learning loss (Short-term) Early literacy is severely affected by school closures, which will result in children being ill-prepared to enter primary school. Without proper remediation and intervention, this learning loss will compound, making it harder for this generation of students to catch up in later years. Hence, the primary focus should be to ensure effective remediation is in place for the entire cohort, with specific interventions for those who were not able to attend online classes during the pandemic and/or have dropped out of preschools due to the pandemic. As a crucial first step, the MOE could use the assessment of the pandemic-related learning loss to determine the specific needs of preschool students as they re-engage in face-to-face learning. A comprehensive assessment would enable more accurate decision-making related to curriculum and other necessary adjustments. In September 2021, the MOE announced the KPMPerkasaKU program to strengthen literacy, numeracy, and classroom assessment in school. This program is aimed at encouraging teachers to first assess current mastery level of Primary/Standard 1 to Form 4 students and implementing a “Catch Up Plan” for students who need further interventions (MOE 2021c). Alongside this announcement, the MOE included guidance documents that teachers can use to support learners who are at different mastery levels (Figure 44). To further strengthen this existing program, the government could also consider expanding the Catch Up Plan for incoming preschool students and developing accelerated learning programs that include a condensed curriculum and frequent formative assessments of learning progress. This is especially crucial at Primary/ Standard 1 to support children who have not been attending preschool classes during the pandemic. FIGURE 44: Guidance documents for teachers under the KPMPerkasaKU program to address learning loss Source: MOE 2021c Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 129 Chapter 7: The COVID-19 Pandemic and Learning Loss A condensed curriculum focuses on prioritizing outcomes instead of covering all content knowledge, and includes essential skills and knowledge that are common across all subject areas. An evaluation of the current curricula to determine the prioritization of necessary outcomes and core subjects could also mitigate learning losses for entire cohorts, not just for disadvantaged students. Furthermore, disadvantaged students who are most affected by the school closures can also benefit from more individual support and remedial programs to catch up on lessons that they were not able to participate in at home. The MOE can also consider extending learning hours, create structured after-school programs or weekend/holiday classes with targeted instructions in early literacy and numeracy to support students who are entering Primary 1. Intensive “high dosage” tutoring and coaching can also be offered at the start of Primary 1 for students who have missed early literacy and numeracy milestones. To reduce the burden on preschool teachers, the MOE can consider deploying preservice teachers in teacher training institutes who can earn their practicum hours or university students who can earn credit, to support with the tutoring of students needing extra support. Country Example 19: France’s comprehensive remediation strategies To support students in catching up on lost learning, France first set up assessments both nationally and locally. These assessments are done through engagement with parents, student self-assessments, and remote assessments. Next, they provide support to summer camps/schools and to children to attend them. To support students in catching up on lost learning before the start of the next school year, France invested €200 million to put in place Operation Learning Vacation (‘Vacances Apprenantes’) for 1 million students. The objective of the operation is to respond to the students’ need for social interaction as well as academic needs and gaps before the school starts. Over 1.5 million additional teaching hours will be deployed for students in all levels with priority to those who are struggling in key grades (1st, 6th, and 10 th grade). The Ministry of Education is also providing institutions with additional training (e.g. kindergarten teachers can take the M@gistère training that supports the development of a secure environment to better learn). Student self-assessments to determine the loss of learning that has occurred 130 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 7: The COVID-19 Pandemic and Learning Loss The ministry’s guides for each grade that underscore the prioritized objectives and topics to allow a focus on essentials Source: UNESCO 2020 RECOMMENDATION 22: Increase parental involvement to support students at home (Short-term) The MOE can support parents by providing guidance, tips, and materials to help with their children’s learning at home. While schools have reopened, the learning loss that has occurred requires more holistic intervention from both schools and parents. During the pandemic, many teachers prepared take-home learning packages followed by regular check-ins with parents, and this is an effort that should be continued now that schools have reopened. Parental involvement in their children’s learning is key to supporting their development in school. The Preschool Online Survey respondents, however, highlighted that parents who may be less educated may not know how to support learning at home. Hence, guidance and awareness, whether in the forms of easy-to-digest formats or through teacher engagement, will be crucial in increasing parental involvement. Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 131 Chapter 8: Conclusion CHAPTER 8 Conclusion 132 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 8: Conclusion With growing evidence and recognition for the importance of early childhood education, Malaysia has increased efforts to expand access to preschool provision in the past decade. Significant success has been achieved with preschool enrollment rates increasing from 67 percent in 2009 to 84 percent in 2020. Expenditure on preschool education operations has more than tripled, from RM247 million in 2010 to RM837 million in 2020. ECCE is an important agenda for the country, with ongoing initiatives in various key national strategic policy documents, such as the Malaysia Education Blueprint (MEB) and the five-year Malaysia Plans. Despite efforts to expand and improve preschool education in Malaysia, issues of access and quality remain and continue to grow. The MEB’s target to achieve universal preschool enrollment by 2020 has yet to be achieved. Further, the MEB’s target for all preschool teachers to obtain a minimum diploma in ECCE by 2020 also remains unachieved, with longstanding obstacles that have yet to be resolved. These missed goalposts are due to several issues, such as a lack of preschool seat availability in certain areas, affordability of preschool, overlapping roles between multiple ministries and agencies, lack of collaboration between the government and preschool providers, low teacher salaries, lack of available and affordable diploma programs, the quality and availability of professional development for teachers, and lack of clarity over the MOE’s quality assurance framework. This review focuses on preschool education in Malaysia rather than on overall ECCE. Based on the World Bank Preschool Online Survey, the Stakeholder Interviews, and the Preschool Education Review Lab, there are 35 proposed recommendations in total to improve preschool education accessibility, equity, and quality. These recommendations acknowledge the government’s efforts in preschool education, but highlight the need to thoroughly evaluate and improve the execution of existing initiatives. To improve access of preschool education in order to achieve universal enrollment, the government should consider ensuring at least one year of universal preprimary education by making it free and compulsory for Malaysian children. Countries with free and compulsory preschool education showed higher increase in gross enrollment ratios on average and fared better in other related indicators. Legal provisions of the policy need to be decided upon, followed by strategic implementation plans including clear communications to convey the government’s commitment to preschool education and a review of government expenditure in preschool education. The government has targeted to achieve universal preschool education by 2025. However, given the stagnant progress in the last few years, concrete steps as set out in the Report’s recommendations need to be taken to ensure this target will be achieved. Other short-term recommendations to support universal enrollment are to undertake a detailed mapping exercise of preschool seat demand and supply to identify high need areas and effectively close gaps in the enrollment rates; carry out interim measures to reach out to unenrolled children through the provision of fast- track programs and the deployment of mobile preschool classrooms; adopt flexible measures to increase enrollment in rural areas by allowing local communities to adjust the curriculum, teaching methods, and spaces to their needs; and ease licensing and renewal processes to capture more unregistered preschools. Increasing financial aid to parents and preschool operators could also greatly support the government’s efforts toward universal preschool enrollment. For parents, the government could reconsider reintroducing demand-side funding such as fee assistance to enable parents to enroll their children in affordable private preschools. Economic difficulties and widening learning disparities caused by the pandemic have resulted in a drop in private preschool enrollment and with insufficient seats in public preschools, this means low-income families have no other viable preschool options. For preschool operators, the government could increase support by providing supply-side financial incentives to reduce operating costs, such as launching grants, funding support for those operating in high-need areas or serving low-income students, or discounted operating spaces in underused public spaces. To improve the quality of preschool education, the MOE should first convey a strong, clear message to all stakeholders about its commitment to ensure all preschool teachers meet minimum qualifications by 2025. This clarity in policy must then be complemented with better enforcement and more accessible Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 133 Chapter 8: Conclusion and affordable DECE programs to ensure current teachers, especially those in private preschools, are incentivized to obtain their diploma. MOE can also stagger this requirement to encourage operators to meet the targets and provide support when needed. Other recommendations to ensure minimum qualifications are met are to expand alternative ways for in-service teachers to become qualified and to raise the status of the profession. In raising the quality of teachers and school leaders, more accessible and affordable trainings need to be made available for both public and private preschool personnel. With the many providers in preschool education, the MOE’s state and district leaders together with ECCE Council and preschool associations can play a more active coordinating role to improve local peer learning networks. The MOE should also consider if a policy to mandate Continuous Professional Development among private preschool teachers can be introduced, alongside ensuring sufficient choices of affordable trainings are available. Targeted support should also be provided for teachers based on their needs in improving their pedagogical skills, whether it’s in general pedagogies, meeting diverse learning needs of students, or in improving their level of English proficiency. Other recommendations to improve the quality of preschools include better implementation of the current quality assurance system (NPQS), higher allocation for food allowances, and increasing support for teachers to better translate the aims of the curriculum into practice. The MOE should improve its communication of how NPQS can be used more effectively as a developmental tool that is intended for self-initiated continuous improvement. The current food allowance has not been reviewed since 2013, and with current inflationary pressures, the rate of RM2.00 - RM2.25 ($0.45 – $0.51) per student is insufficient and should be reviewed. Finally, the MOE could consider improving curriculum delivery by investing in more high-quality teachers’ professional development, and extending pedagogical support through classroom observation and coaching. COVID-19 has had significant adverse effects on learning caused by prolonged school closures. To mitigate learning loss and impact on students’ well-being, especially among the disadvantaged, the MOE’s current KPMPerkasaKU program can be further strengthened and expanded to include preschool students. The MOE could consider a condensed curriculum that is well communicated to teachers and better support teachers to assess learning loss and adapt teaching and learning according to the different needs of students. The MOE could also introduce other supplementary programs after school or over weekends and holidays with targeted instructions in early literacy and numeracy. Good governance and strong financing are not merely complements to the measures recommended in this paper, but critical enablers of their effective implementation and achievement of Malaysia’s preschool education goals. The situation of a split system of ECCE in Malaysia and the multiple providers of ECCE, as it currently stands, presents several challenges in improving the access and quality of preschool education. Therefore, good governance and policy coordination between all of the stakeholders involved is a significant enabler for the success of many of the recommendations in this paper. This paper describes three possible options through which the government could better streamline ECCE governance to harmonize oversight, regulation, licensing, and policy development; (i) by establishing a formal coordinating agency, (ii) by redefining preschool education and transferring management to a single ministry, or ii) by expanding preschool education to encompass ages 2 and above but to leave the scope of childcare (0-4 years) untouched. The success of any of these options ultimately hinges upon the political leadership and will at the highest levels of government, and in the relevant ministries, to improve the governance of ECCE in Malaysia and ensure a more integrated, harmonized, and coherent ECCE sector. A strong commitment to fund the improvements in preschool education effectively and efficiently is also extremely vital in ensuring that the measures can be carried out appropriately and that their benefits are fully materialized. Finally, given the multisectoral aspect of ECCE and preschool education, strengthening cooperation with all stakeholders can support most of the recommendations above. The lab has gathered participants from both the government and the private sector (including NGOs), which included most key players in 134 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Chapter 8: Conclusion preschool education in Malaysia such as the MOE, KEMAS, ECCE Council, universities, and ECCE experts. The recommendations provided in this paper are a culmination of the suggestions provided by both the public and the private sectors, signaling an important step in solidifying stakeholder cooperation in ECCE. Leveraging the momentum that the lab has generated, a strong and collaborative way forward is to consider a similar taskforce as the previously-established (but currently inactive) Special Committee for Integrated Regulation of the Establishment and Operation of Early Childhood Education Institutions in Malaysia, as recommended in Chapter 6.1. The taskforce should comprise representatives from the various preschool providers from the public and private side, who can come together to resolve longstanding issues by implementing some of the recommendations outlined in this report. As the MOE embarks on the last wave of the MEB, we are now presented with an opportunity to accelerate the progress of many of the reforms planned. While the spotlight may be on the MOE, the work can be better accomplished through stronger support and cooperation of other stakeholders involved in ECCE in Malaysia. 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Retrieved from: https://datatopics.worldbank.org/education/ Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 141 ANNEX 1: Comparison Table of Preschools TABLE 27: Comparison table of preschools under MOE, KEMAS, JPNIN and the private sector MOE KEMAS JPNIN Private Sector* Entry • Ages 4+ to 5+ • Ages 4+ to 5+ (priority • Ages 4+ to 5+ (priority • Ages 4+ to 5+ require- • Malaysians only for 5+) for 5+) • Open to all fee-paying ments • Malaysians only • Malaysians only parents • A preschool student selection committee, • Students whose comprising the household income is Principal, Senior less than RM1500 per Assistant, Preschool month teacher, student management assistant, and a community representative approves applications based on merit (due to limited seats) Target Children from suburban, Children from suburban, Children from urban and Children from all fee- rural and remote areas rural, and remote areas suburban areas covered paying families from low-income families from low-income families under the “Rukun Tetangga” scheme - a friendly neighborhood scheme Fee • Free • Nominal • Nominal • Fees chargeable structure • Annual - RM20 • Monthly - RM10 • NGO-run private • Insurance - RM10 • Religious module - preschool • Monthly - RM5 to RM10/month (Muslims • Monthly - RM90 to RM25 only) RM125 • Uniform - RM60 • Franchise-type preschool* • Monthly – starting from RM280. Additional fee if includes day care. Operating • 4 hours per day, 5 days • 4 hours per day, 5 days • 4 hours per day not • 4 hours per day, 5 days Hours per week per week exceeding 20 hours per week • Can run sessions in • Can run sessions in per week • However, for private morning or afternoon morning or afternoon preschools that depending if school depending if school operate on two runs on one or two runs on one or two licenses; (1) preschool sessions a day sessions a day in morning and (2) • Morning session: 8am mind enrichment - 12pm or 7.30am – programs in afternoon, 11.30pm students would be able to stay on in the • Afternoon session: afternoon for the mind 12.00pm -4.00pm or enrichment programs 12.30pm – 4.30pm • KEMAS introduced “Tabika Transit” in 2018, to provide day care or learning facilities for preschoolers from 1pm to 5.30pm from RM0 to RM250 per month 142 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex MOE KEMAS JPNIN Private Sector* Average 25 25 to 30 5 to 35 More than 12, less than class size 30 Teacher: 1 teacher/1 teacher 1 teacher/1 teacher 1 teacher/1 teacher 1 teacher/1 teacher Student assistant: 25 students assistant: 25 students assistant: up to 35 assistant: on average 25 Ratio students students Teacher Yes Yes Yes Yes, in bigger, more Assistant expensive preschools. Curriculum National Preschool NPSC supplemented NPSC • NPSC augmented with Standard-based by new STREAM Montessori, UK Early Curriculum (NPSC) Module with higher Years Programmes, emphasis on Science thematic approaches, and Technology and the or multiple 4Cs (Communication, intelligences Collaboration, Co- • Often includes operation, and Critical emphasis on 3Rs Thinking). • Classes taught in English, BM, or Chinese • Includes computer skills, music, drama, crafts, physical education, and Islamic or moral education Facilities MOE preschools The quality of preschool Preschool environment The quality varies from adopt standardized environment varies, is moderate, low-cost to premium specifications on depending on the improvement required preschools. On average, classroom size, facilities, building/space on infrastructure, the facilities are good to cleanliness and safety. allocated. On average environment, cleanliness, excellent, with play areas As the preschools are the infrastructure, safety. Facilities and adequate space annexed to primary environment, cleanliness, insufficient to carry to carry educational schools, the students and safety are good. educational activities activities. enjoy the same facilities Equipment is sufficient with children. as the primary school. to carry out educational activities with children. Physical Classes are annexed to Classes are conducted Classes are conducted Classes are conducted surround- primary school buildings in community halls in community halls in rented or owned ings built and maintained by (rented or provided (rented or provided free), premises ranging from the MOE. free), housing estates, housing estates, private residential homes, low- private property, (rented) property, (rented) shop rise office blocks, to shophouses, or in houses or in Government shophouses. Government premises. premises. Support Placement Instrument Do not accept children of Some private preschools services Kits (IMPak) are used to special needs cater for inclusive assess students if they education, while others have special education do not take special needs needs to be placed students, depending on in special education the teaching and learning schools, special resources available. integrated programs/ inclusive education programs Meals Twice a day – 1 break and Twice a day – 1 break and Twice a day – 1 break and Twice a day – 1 break and 1 full meal 1 full meal 1 full meal 1 full meal Sources: Ministry of Education; Ministry of National Unity; Ministry of Rural Development; Various Preschool Franchise Operators; Mustafa and Mohamed 2013; Mamat et al. 2019 Note: *Franchise preschools such as Q-Dees, Little Caliphs, REAL Kids, Smart Reader in Malaysia Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 143 Annex ANNEX 2: Number of Preschools, Classes and Enrollment by Sector TABLE 28: Number of preschools by the public and private sector in Malaysia Year Public Public (%) Private Private (%) Total 2013 16,204 68.1% 7,592 31.9% 23,796 2014 16,289 67.4% 7,893 32.6% 24,182 2015 16,379 66.8% 8,156 33.2% 24,535 2016 16,412 66.3% 8,351 33.7% 24,763 2017 16,462 66.2% 8,419 33.8% 24,881 2018 19,798 70.2% 8,398 29.8% 28,196 2019 16,352 65.1% 8,758 34.9% 25,110 2020 16,503 64.7% 8,988 35.3% 25,491 2021 16,269 64.0% 9,136 36.0% 25,405 Source: Malaysia Education Statistics, MOE. Note: Public sector includes MOE, KEMAS, and JPNIN preschools. Private sector includes private as well as JAIN and ABIM preschools. TABLE 29: Number of preschool classes by the public and private sector in Malaysia Year Public Public (%) Private Private (%) Total 2013 21,574 44.2% 27,289 55.8% 48,863 2014 21,825 44.0% 27,752 56.0% 49,577 2015 21,657 43.7% 27,938 56.3% 49,595 2016 22,684 43.5% 29,407 56.5% 52,091 2017 22,296 42.6% 30,062 57.4% 52,358 2018 22,278 41.3% 31,642 58.7% 53,920 2019 22,225 40.6% 32,534 59.4% 54,759 2020 22,277 40.4% 32,843 59.6% 55,120 2021 22,279 40.5% 32,754 59.5% 55,033 Source: Malaysia Education Statistics, MOE. Note: Public sector includes MOE, KEMAS, and JPNIN preschools. Private sector includes private as well as JAIN and ABIM preschools. TABLE 30: Number of preschool enrollment by the public and private sector in Malaysia Year Public Public (%) Private Private (%) Total 2010 378,618 54.0% 322,526 46.0% 701,144 2011 400,897 54.7% 332,005 45.3% 732,902 2012 404,106 52.6% 364,039 47.4% 768,145 2013 406,333 51.2% 386,936 48.8% 793,269 2014 412,098 49.4% 421,863 50.6% 833,961 2015 413,675 49.3% 426,246 50.7% 839,921 2016 426,246 48.7% 448,885 51.3% 875,131 2017 420,979 47.6% 464,004 52.4% 884,983 2018 420,352 47.0% 474,379 53.0% 894,731 2019 421,663 47.0% 476,017 53.0% 897,680 2020 423,482 48.2% 455,732 51.8% 879,214 Source: Malaysia Education Blueprint (2013-2025) Annual Reports from 2013-2020, PADU. Notes: Public sector includes MOE, KEMAS, and JPNIN preschools. Private sector includes private as well as PASTI, JAIN and ABIM preschools. 144 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex ANNEX 3: World Bank Malaysia Preschool Survey 2021 Questionnaire Survey on Preschool Education in Malaysia The World Bank in collaboration with the Ministry of Education (MOE), plans to review the current preschool landscape. Under the review, we will undertake a gap analysis between the aspirations and targets set by the Government under various policy documents, and the outcomes to-date, deep dive into the underlying reasons for the gaps and recommend solutions to close the gaps. We hope to gather inputs from key stakeholders across relevant Ministries and agencies as well as from the private sector to gain better understanding of the issues faced and solutions proposed. This survey seeks broad insights on preschool education in Malaysia and will be followed by an interview and a 3-day lab to discuss and formulate interventions and implementation strategies. Your response will be kept confidential. The World Bank will conduct its analysis based on an aggregated dataset. We collect personal data from you to provide you with agenda, knowledge resources (e.g. pre- reading) and report related to the Review, and to contact you for a follow up interview if needed. Any identifying personal data in this questionnaire will be securely safeguarded by the World Bank and will be deleted within 12 months from the date of collection of the data. Your participation in the survey is entirely voluntary. If at any point there are any questions you do not feel comfortable answering, you can choose not to answer them. Background of Respondent * Required Name: * Organization: * Role in organization: Contact information * Email: Phone number: Contact person for interview (if different from respondent) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 145 Annex Preschool Education in Malaysia: Challenges and Solutions Access to Preschools Malaysia aims to achieve universal preschool enrollment to ensure every child is prepared before entering primary school. Some pockets of the society including urban poor, children residing in rural or remote areas, Orang Asli children and children with special needs do not have adequate access to preschool education. 1. How satisfied are you with the progress in achieving universal preschool enrollment? * Mark only one oval. 1 2 3 4 5 Not satisfied at all Very satisfied 2. Do you agree that universal preschool enrollment in Malaysia is possible? * (Enrollment rate was 83.5% in 2020) Mark only one oval. Yes, in the next 5 years Yes, but not possible in the next 5 years No (If no to the above question, why?) 3. Do you think that preschool education should be made compulsory? * Mark only one oval. Yes No (If no to the above question, why?) 146 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex 4. How important do you think these factors are in increasing access to preschools? * Mark only one oval per row. Not Somewhat Very important important important Open more public preschools Fee assistance to parents Increasing awareness of the importance of preschool education More government support for opening private preschools (grant, tax incentives etc) Ease in preschool registration for private preschools Open preschools that meet the needs of Orang Asli and special needs students Higher fee assistance for special needs children More preschools at workplaces 5. What other factors do you think are important in increasing access to preschools in Malaysia? (if any) 6. In your opinion, what are other challenges in increasing access to preschools? (Please include both general challenges and challenges specific to your work/organization) 7. Based on the challenges above, what policy changes/ initiatives are required to achieve universal preschool enrollment? 8. Additional data to support recommendations above (if available, you can also email them to sliew@worldbank.org) Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 147 Annex Equity During the Covid-19 Crisis Due to the pandemic, both public and private preschools have transitioned to home-based teaching and learning (PdPR). This greatly affects students from more disadvantaged backgrounds due to limited internet connectivity, access to devices and parental support. 9. In your opinion, how severe was the loss of learning for preschool students during the Covid-19 crisis? * Mark only one oval. 1 2 3 4 5 Not affected Severely affected 10. Based on your work and experience, what are the impact of the Covid-19 crisis on preschool students and preschools? Short-term impact Medium-term impact 11. How has your organization supported the loss of learning during the Covid-19 crisis? 12. What can be done to lessen the impact of the loss of learning due to the Covid19 crisis? Short-term recommendations Medium and long-term recommendations 13. Additional data to support recommendations above (if available, you can also email them to sliew@worldbank.org) Quality of Preschools 14. How satisfied are you with the current quality of preschool education in Malaysia? * Mark only one oval. 1 2 3 4 5 Not satisfied at all Very satisfied 15. How familiar are you with the National Preschool Quality Standards (NPQS)? * Mark only one oval. 1 2 3 4 5 Not familiar at all Very familiar 148 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex 16. How important are these factors in increasing the quality of preschools? * Mark only one oval per row. Not Somewhat Very important important important Increase the number of preschool teachers with minimum Diploma in ECCE Improve the current preschool curriculum Robust monitoring and tracking with support for preschools not meeting NPQS minimum standards Increase resources for facilities in public preschools, including facilities for special needs students Improve the health and safety aspects of preschools Continuous professional development and capacity building for in-service teachers Training and capacity building for preschool leaders Better teaching and learning materials Increase amount for subsidized meals (for public preschools) Better coordination between different preschool stakeholders Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 149 Annex 17. What other factors do you think are important in increasing quality of preschools in Malaysia? (if any) 18. In your opinion, what are other challenges in increasing the quality of preschools? (Please include both general challenges and challenges specific to your work/organization) 19. Based on the challenges above, what policy changes/ initiatives are required to increase the quality of preschools? Short-term recommendations Medium and long-term recommendations 20. Additional data to support recommendations above (if available) Aspiration 21. Please complete this sentence. “My vision for preschool education in Malaysia is..” The Teacher Experience Please answer the following questions if you are a teacher working in a preschool. 22. Are your students’ well-being affected by the pandemic? * Mark only one oval. 1 2 3 4 5 Not affected Severely affected 23. How has the pandemic affected your students’ well-being and learning? 24. How would you rate the parental involvement in your classroom? Mark only one oval per row. Not involved Somewhat Very at all involved involved Prior to the Covid-19 pandemic During the Covid-19 pandemic (at-home learning) 150 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex 25. Do you have a Diploma in ECCE (or higher qualification)? * Mark only one oval. Yes No 26. If not, what challenges do you face in obtaining the qualification? 27. Do you feel that the level of training and support you receive in your school is sufficient? * Mark only one oval. Yes No 28. If not, what types of support do you require? Check all that apply. Understanding of curriculum Catering to the different needs of students Administrative duties Pedagogical training Other: __________________________________________________ Other comments, data and elaboration: I acknowledge and agree to the processing of my personal data by the World Bank for the purposes of organizing the Preschool Education Review and relevant reporting activities. Thank you for taking the time to fill out this survey! Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 151 Annex ANNEX 4: List of Institutions that the Preschool Survey was Disseminated To 1. Ministry of Education​ - Educational Planning and Research Division (EPRD) - Preschool Management Unit, School Management Division (BPSH) - Preschool Sector - Policy and Strategic Planning Unit, Private Education Division - Research and Planning Unit, Special Education Division - Teacher Development Policy and Planning Sector, Teacher Professionalism Division - GENIUS Division - Education Performance and Delivery Unit (PADU) - Malaysia Institute of Teacher Education - Aminuddin Baki Institute - Inspectorate of Schools (Jemaah Nazir) 2. Ministry of Higher Education - Policy Planning and Research Department - Governance Division of Public and Private Higher Learning Institutions 3. Ministry of Women, Family and Community Development​ - ECCE Division 4. Ministry of Finance​ - National Budget Office 5. Economic Planning Unit, Prime Minister’s Department (EPU)​ - Human Capital Development Division​ 6. Ministry of Rural Development - ECCE Division, KEMAS​ 7. Department of National Integration and Unity (JPNIN)​ - Early Education Unit 8. ECCE Council​ 9. Public and private preschool teacher training providers: - Universiti Pendidikan Sultan Idris - SEGI University​ - DIKA College​ 10. Private and NGO preschool operators, for example ​ - Peter and Jane​ - KDU​ - Brainy Bunch​ - REAL Education​ - Pusat Asuhan Tunas Islam (PASTI)​ 11. Subject Matter Experts ​ - Prof. Datuk Dr. Chiam Heng Keng​ , ECCE Expert, Founder and Past President of ECCE Council - Puan Jameyah Sheriff, advisor to KEMAS and ECCE Expert - Datin Prof. Dr Mariani Bt Md Nor, ECCE Expert​ 152 Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia Annex ANNEX 5: Databases of Preschool and Childcare Information Database Owner/ Objective Data Collected Users Agencies-in Charge National Owner: MOE An integrated Preschool Data: MOE, State Preschool information Number and Education Information Collaborators: system at the location of Departments, System KEMAS, JPNIN, national level that schools and District Education (Sistem Private Sector aims to ensure classes, teacher Offices, KEMAS, Maklumat Kindergartens access to data at data, teacher JPNIN, private Prasekolah all levels centrally, education, preschools Kebangsaan for monitoring student or SMPK) and coordination enrollment, between student stakeholders. achievements (reading, writing, counting, and reasoning) National Collaborative effort Collects Childcare Data: MWFCD, MOE, Childcare between the National comprehensive Number of JPNIN, KEMAS, Data Centre Child Development data on children teachers, number Terengganu (NCDC) Research Centre (0-3 + years), of childcare Family (NCDRC) and Sultan educators, and centers, teacher Development Idris Education childcare centers qualifications, Foundation University (UPSI). to facilitate student (YPKT) stakeholders enrollment, BMI, to plan and physical growth implement programs that are structured and comprehensive to ensure a holistic development for children, from birth to 4 years old and the development of their potential Shaping First Steps: A Comprehensive Review of Preschool Education in Malaysia 153 CONNECT WITH US wbg.org/Malaysia @WorldBankMalaysia @WB_AsiaPacific http://bit.ly/WB_blogsMY