In this latest post in the Leading Futures Series, edited by Alma Harris and Michelle Jones, Zongyi Deng and S. Gopinathan shine a spotlight on the success of Singapore’s school system and argue that the country’s success comes from educational policies and practices that have helped to develop social cohesion, economic development, and nation building. As Deng and Gopinathan suggest, reforms that aim to borrow “best practices” must consider the social, cultural and institutional contexts of which they are a part.
Singapore has been widely recognised as one of the world’s top-performing systems. Its extraordinary record of students’ performance in international comparative studies of achievement includes: first in problem-solving, second in mathematics, and third in science and reading (PISA 2012); second in mathematics, fourth in science and fifth in reading (PISA 2009); first in science (both primary 4 and secondary 2 levels) and second in mathematics (primary 4 level), and third in mathematics (secondary 2 level) (TIMSS 2007); and fourth among 45 education systems (PIRLS 2006). What explains the top rankings in the current PISA tests? What lessons, if any, could Singapore offer other countries who want to improve on their educational performances?
As with other high-performing countries, answers to these two questions can be found in a body of literature (reports, books and articles) written by international organizations like the OECD and the World Bank, consultancy firms like McKinsey and Grattan, and educational spokesmen and scholars like Pasi Sahlberg and Pat Tee Ng. Singapore is said to have a high- quality teaching force ensured and enhanced by high standards of teacher recruitment, effective teacher preparation and professional development. The school system is run by high-quality school leadership developed through careful selection, leadership experiences and professional development programmes. In addition, the country sets high academic expectations and standards for its students and monitors the performance of schools against those expectations and standards. Furthermore, Singapore is noted to have implemented educational reform to promote student-centric and ICT-enhanced pedagogy that encourages deep learning, critical thinking and creativity.
Overall, this body of literature adopts the “best practice” approach to explaining the educational success of a high-performing system wherein a set of particular characteristics are identified and translated into best practices for borrowing worldwide. However, whether the identified characteristics are causally linked to the system’s superior performance in PISA is an open question, with little or no empirical evidence to justify the identification. In addition, lacking in such explanation are those factors beyond school—educational history, family aspirations, parental involvement, private tuition, etc.—that could play a part in PISA success, particularly in Asian countries.
In our latest article (Deng & Gopinathan, 2016), we provide an alternative explanation for Singapore’s education success and, in so doing, question such an approach to explaining the education success of a high-performing country. From a historical perspective, education has played a vital role in the success story of Singapore—the remarkable transformation from a fishing village to a first world country over four decades. Such a transformation has much to do with the effective implementation of a set of educational policies and reforms by a strong and competent government. Among these policies were the bilingual policy in the 1950s which encourages Singaporeans to be proficient in both the English language and in their respective ethnic mother tongues (Chinese Mandarin, Malay, and Tamil), and the streaming policy in the late 1970s which track primary and secondary students into various streams based on their examination results. The implementation of the bilingual policy entails a commitment to equality with respect to language rights of the three main ethic groups and a recognition of the necessity and value of English as an international language to Singapore. The streaming policy, modified and adjusted over the years, has reduced attrition and early school leaving. In addition, the government mandated and implemented a uniform and common curriculum (taught in English) centered on the study of mathematics, science and languages, with technical subjects as a supplement, and made a firm commitment to the principle of meritocracy. Universal free primary education and curriculum standardization were achieved by the late 1970s and early 1980s, respectively. In short, educational policy and practice in Singapore has functioned as a means for social cohesion, a vehicle for economic development, and for nation building.
While it has been sometimes fashionable to decry the significance of school education in the West, and indeed be skeptical about the role schools can play in social, civic, and even economic functions, in Singapore there are few such doubts (Gopinathan, 2007). This leads to our questioning of the employment of PISA results as the prime yardstick of the educational performance of an education system. The primary function of school education as conceived in PISA is economic—developing competencies for the economy in the 21st century. Such a conception entails a narrowing of the function of education, thus reducing the social and civic significance of an education system.
The historical perspective also brings to light two basic features of the system that may better help explain Singapore’s high rankings in PISA:
First, the national curriculum stresses the development of students’ competences in mathematics, science and languages – the three subjects tested in PISA. Second, a commitment to academic rigour and standards, underpinned by the principle of meritocracy and enforced by a system of national high-stakes examinations (PSLE [Primary School Leaving Examination], ‘O’ and ‘A’ levels), has lifted the floor under the quality of teaching and learning for all student groups throughout the school years (Deng & Gopinathan, 2016).
However, the national curriculum, together with the high-stakes examination system, has steered classroom practice towards a kind that is still largely traditional and didactic in nature, directed towards the transmission of curriculum content and examination performance. Since the mid-1980s the government has attempted to alter such a traditional practice through educational reform. The most progressive and radical reform came in 1997 when then Prime Minister Goh introduced the framework of Thinking Schools, Learning Nation (TSLN). Subsequently, a plethora of reform initiatives have been rolled out in schools, which aim at producing pedagogical changes characterized by: (1) more opportunities for constructing knowledge, higher-order thinking, and innovation; (2) more meaningful use of ICT for teaching and learning; (3) more time on interdisciplinary learning and a greater emphasis on knowledge application.
What has been the impact of reform initiatives on conventional classroom practice? What is the present nature of pedagogy in Singapore’s classrooms? According to the findings of Centre for Research in Pedagogy and Practice (CRPP) in the National Institute of Education (NIE),
Notwithstanding multiple reform initiatives to encourage the TSLN’s pedagogical vision, pedagogical practice in Singapore’s classrooms has remained largely traditional, directed towards curriculum content delivery and examination performance. There is very little evidence of sustained teaching for higher order thinking, meaningful use of ICT, students’ constructing knowledge, and interdisciplinary learning (Deng & Gopinathan, 2016)
This finding, in fact, is consistent with what is found in the international literature about the inability of reform to alter conventional classroom practice.
It is therefore questionable that the success of Singapore in PISA can be attributable to the government’s implementation of educational reforms aimed at transforming classroom pedagogy. In fact, if TSLN’s reform initiatives had an impact on classroom practice, it would probably have led to a fall in students’ performance in PISA. There is empirical evidence in Finland and Canada (Quebec) confirming that when the traditional and teacher-centred pedagogy is replaced by a student-centric, constructivist one, the PISA results of a system decline (Sahlgren, 2015).
The CRPP’s empirical findings reveal a distinct kind of ‘hybrid pedagogy’ that serves to explain in part Singaporean students’ success in PISA:
- Classroom teaching is largely driven by content coverage and preparing students for semester-end and high-stakes examinations, with the primary focus on the transmission of knowledge and skills contained in the national curriculum (represented by teaching and examination syllabi).
- Accordingly, classroom teachers tend, to a large degree, to rely on whole-class forms of lesson organisation, with whole-class lectures and question-and-answer sequences (IRE) as the dominant methods. They also depend heavily on textbooks and instructional materials and provide students with a significant amount of worksheets and homework, with a special focus on their mastery of specific procedures and problem-solving skills.
- When teachers do make limited use of constructivist pedagogical methods – such as checking prior knowledge, monitoring understanding and providing formative feedback – they largely do so for the purpose of getting students to know the correct answers rather than developing their conceptual understanding and higher order thinking. Classroom talk, largely dominated by teachers and used mostly for checking content mastery, does not lead to extended conversation and critical thinking on the part of the students (Deng & Gopinathan, 2006; also see Hogan, 2014).
And, this pedagogy is regulated and shaped by a centralized education system, with a national curriculum that prescribes what is to be learnt and taught. It is also powerfully driven by high stakes examinations which stream students into various school types and curriculum tracks based on their examination performances.
In view of such pedagogy and its underpinning cultural and institutional arrangements, Singapore’s superior performance in PISA no longer appears to be a miracle. Here comes a paradox. Singapore’s pedagogy is still largely conservative, directed toward the transmission of predetermined content and examination performance. Yet PISA is strongly forward-looking and future-oriented, with the ambition of testing skill in authentic contexts deemed essential for the 21st century. If this is true, then Singapore’s pedagogy must be seen as functioning well in preparing students for the 21st century. However, it has been widely recognized that such pedagogy is ineffective in developing individual talents, critical and innovative thinkers for the knowledge-based economy.
The paradox exists because of the uncritical acceptance of PISA by many politicians and policy-makers. PISA tests, framed by the test taking situation and in the form of paper-and pencil items, do not live up to its promise of testing real-life skills and competencies in authentic contexts. Furthermore, the claim that PISA measures the competencies needed for 21st century, Stefan Hopmann argues, is unwarranted and questionable; OECD provides neither sufficient justifications nor systemic research evidence for it.
In conclusion, the social, cultural and institutional contexts of schools in Singapore, and the kind of pedagogy regulated, supported, and constrained in such contexts, are vital in understanding Singapore’s top rankings in the current PISA tests. It is therefore questionable that one can borrow “best practices” from a system without a careful consideration of the social, cultural and institutional contexts of which they are a part. Furthermore, the OECD’s claims that PISA results provide the prime indicator of the educational performance of a country and that PISA measures skills needed for life in the 21st century are questionable and contested.
Notes on Authors
Zongyi Deng is an associate professor at National Institute of Education, Nanyang Technological University.
S. Gopinathan is an adjunct professor at the Lee Kuan Yew School of Public Policy, National University of Singapore.