Proceedings of the International Conference on Special Education

Vol.1 (2015) / e-ISSN 2948-4731 (735-744)

SEAMEO Regional Centre for Special Educational Needs

INCLUSIVE EDUCATION PROGRAM IN

MALAYSIA: EVOLUATION IN POLICY AND
CHALLENGES

Maizatul Azmah Ab. Latiff (maizatulazmah@yahoo.co.uk)

Fakulti Pendidikan Teknik dan Vokasional, University Tun Hussein Onn, Malaysia

Wan Azlinda Wan Mohamed (azlinda@uthm.edu.my)

Fakulti Pendidikan Teknik dan Vokasional, University Tun Hussein Onn, Malaysia

Mohd Azrani Asran (mohd_azrani@yahoo.co.uk)

Sekolah Kebangsaan Putrajaya Presint 18(1)

Abstract
Inclusive education was strengthened through the Malaysia Education Blueprint
20132025. However, there are some issues encountered in its implementation in schools.
Questions of how the development of Inclusive Education Programme in Malaysia and
what are the issues faced in implementing the Inclusive Education Programme in schools
have been raised. Therefore, the objective of this study is to identify the development of
inclusive education and issues encountered in its implementation in Malaysia. This
research was the analysis of documents and information obtained and compiled based on
six categories: pre-independence, post-independence, education development during the
era of new economic policy, education development during the era of national
development policy, education development during the era of national vision policy and
education development through the national key result areas (NKRA). The study also
examines at the evolution of inclusive education starting from preindependence to date,
and is limited in Malaysia only. The study found that the evolution of inclusive education
in Malaysia as an international education and support requirements of the Education for
All (EFA) and receives special attention from the government through Malaysia
Education Blueprint 2013-2025. There are three issues in the implementation of inclusive
education, which are inconsistencies in the implementation of Inclusive Education
Programme, collaborative parties involved in the school and the adaptation.

Keywords: Issues of Inclusive Education Programme, students with special education

needs, development of Inclusive Education

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DOI : https://zenodo.org/record/6898656
Published by https://publication.seameosen.edu.my/index.php/icse/issue/view/1
© 2015 SEAMEO SEN
 Proceedings of the International Conference on Special Education
Vol.1 (2015) / e-ISSN 2948-4731 (735-744)
SEAMEO Regional Centre for Special Educational Needs

Introduction
The Ministry of Education (MoE) gives emphasis on special education students,
indigenous students, and other minority groups such as the Orang Asli and Penan, gifted
students, and students in under-enrolled schools to have the opportunity to get an
education that is relevant to their needs. Therefore, special education needs students in
Malaysia currently can choose from three different schooling options. There are (1)
Special Education Schools for students with hearing and vision/or learning disabilities;
(2) Special Education Integration Programme (SEIP) for students with special education
needs attending class in mainstream schools that have special classes; and (3) Inclusive
Education Program (IEP) which is one to five special education needs students learning
in mainstream classes (MoE, 2013).

In 2012, 89% of special education needs students are a part of the Special Education
Integration Programme, 5% are enrolled in a special education school and only 6% of
special education needs students are placed in an inclusive programme. Thus, in the
Malaysia Education Blueprint 2013-2025, the action plan has been prepared to provide
flexible, relevant and high quality of special education and IEP. This is because by
Salamanca Statement and Framework for Action on Special Needs Education (1994), the
most high-performing education system is already practicing inclusive approaches to
special education. The statement mentioned that students with special education needs
should have access to mainstream schools. School-oriented mainstream inclusive
education programme is the best way to fight discrimination against special education
needs students. Thus, in Wave 1 (2013-2015), MoE is targeting a 30% increase in
enrollment of student special education needs that are registered following the Inclusive
Education Program.

The MoE have placed much effort to adopt a policy whereby schooling options for
special education needs schools will be linked by carefully identified competency levels.
This means that high-functioning special education needs students who can cope with the
mainstream curriculum and assessment, are encouraged to attend in the Inclusive
Education Programme. Moderate-functioning students with special needs will be
attending Special Education Programme. Low-functioning students with special needs are
also encouraged to attend in special education schools that allow them to learn the
simplified curriculum and are more focused on basic skills and social skills. Checklist
detection Pengesanan (SSP) Perkembangan Bayi, Kanak-kanak (0-6 tahun), (MoE,
2014), which is the instrument of evaluation to identify the level of competence of
students and place them in the appropriate schooling options have also been constructed.
The several efforts such as involving more vocational skills, improving infrastructure and
equipment in mainstream schools and special schools, improving special education
service center facilities, providing basic module training of special education at the
Institute of training modules with the differentiated level of expertise (from basic to
expert), and Teacher Education (IPG) and Public Higher Education Institutions (IPTA),
providing in-service provides specialized curriculum and assessment in accordance with
the level of student abilities.

In Wave 2 (2016-2020), an initiative in Wave 1 will scale up provisions of early

intervention services and increase inclusion programme within mainstream preschool
settings. Teacher training programmes will continue to be strengthened and cooperation

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between government and non-government agencies will also be improved. Some

workshops and programmes for students will be held in collaboration with International
organizations.

In Wave 3 (2021-2025), initiatives from the waves 1 and wave 2 will be evaluated. A
roadmap for the future will be developed. Those entire action plan aims to ensure that
every special education needs student gains access to a high quality education that is
relevant with their specific needs. By 2025, it is targeted that 75% of students with special
needs are enrolled in inclusive programmes so that all teachers are also equipped with
basic knowledge of special education.(MoE, 2013).

Problem Statements
Inclusive Education Programme started getting extensive attention and is listed in the 25
major initiatives Malaysian Education Blueprint 2013-2025 (MoE, 2013). The main goal
of Inclusive Education Program is to enable all children regardless of race, background,
economic status and disabilities have the same right to education with no exception to
students with special needs. All these children should have a barrier-free learning
environment. On October 1 1994, an inclusive education Implementation Guidelines was
issued. On 7th September 1995, Surat Siaran (BS-PK) 8501/036 / Jld.11 (17) as a letter
of instruction was issued (MoE, 1994; MoE, 2014) and after that, no aggressive actions
was implemented. Therefore, this study aims to identify the development of Inclusive
Education Programme before homogenization by the Ministry of Education (MoE) until
now. To answer this question, this study will discuss the evaluation of Inclusive Education
Programme starting from pre-independence and the implementation issues.

Aims
Generally the aims of this study is to identify the evolution of inclusive education in
Malaysia and issues encountered in its implementation by focusing on the implementation
of the incompatibility issues, collaborative in school and adaptation in an inclusive
classroom.

Literature
Inclusive education is transformed as a result of re-conceptualization of special education
in the late 1980s by UNESCO and the University of London (UNESCO, 1988). There are
some researchers that have studied the development of Inclusive Education Programme
in Malaysia, which are Ang, (1999); Bosi, (2004); as well as Muhammad and Wan
Mahmud, (2010).

According to Concepts and Methods of Teaching with emphasis on Inclusive

Education, Inclusive Education is a programme that integrates special needs students into
the regular school system. Therefore, students with special needs will enjoy the
opportunity and learning as felt, understood and enjoyed by their peers in the classroom
in a mainstream school. Thus, Inclusive Education Programme should be given attention
by all parties for responding to the call of Education for All (EFA) and create awareness
in a society (Ang, 1999).

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Referring to The Pilot Implementation of Inclusive Education In Malaysia: A review

by Bosi (2004), a study of teachers and school administrators about the concept of
inclusive education, understanding regarding inclusive education policies and their
altitude over the implementation of pilot Inclusive Education Programme has been
implemented. The advantages of this study were to involve non-pilot and pilot schools
through survey and interview methods. The study found that the constraints of mainstream
teachers and school administrators are a class of workloads and conditions that are not
conducive for students with special needs (Bosi, 2004).

Thus, Muhammad and Wan Mahmud (2010) on The Implementation of Inclusive

Education Program Autistic Students in A Primary School: A Case Study noted that
efforts to provide educational opportunities for students with special needs into
mainstream classes has also experienced positive changes and the Inclusive Education
Programme has become the goal of efforts to provide opportunities to all students
regardless of disability and deformity. Therefore, all schools and students have
opportunities to excel. Thus, the access, equity and quality in school can be improved.
The autistic students were join in full inclusive approach and accompanied by a resource
teacher for every class.

According to the Interim Strategic Plan 2011-2020, (MoE, 2010), Inclusive Education
is a comprehensive education that is based on the involvement of all children. The
underlying philosophy of inclusive education is the belief that every child, whether they
have physical developmental disorders/mental, intelligent and disabilities are entitled to
education like a normal child.

Therefore, in general Inclusive Education means that a normal child or children with
special needs are assessed and marginalized children should be educated together in a
mainstream situation. This means that they do not pursue purely academic ability, but
they also learn about life itself.

Methodology
In this study, researchers used document analysis. Documents used in the study are
journals, books, reports from the Ministry of Education, legislative materials,
proceedings, conference and so on. Researchers studied intensively progress in
implementing inclusive education in Malaysia for a long time from pre-independence to
educational development through the national key result areas (NKRA).

Results
In this study, researchers will discuss the development of inclusive education
preindependence to educational development through the national key result areas
(NKRA) and issues encountered in its implementation.

Pre-Independence: Education during the British occupancy (1924-1957)

In 1926, special education was conducted among volunteers for visual disability (Lee and
Low, 2014) and at that time St. Nicholas Primary School opened to students with visual
disabilities by the Anglican Church in Malacca. Later, St. Nicholas moved to Penang. In
1948-1950, Princess Elizabeth School in Johore opened for visually impaired children.

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Post Independence: Education during the post-independence (1971-1990)

Prior to independence and six years later, a school for hearing disabilities students opened
in Penang (Tambi, 1997). Around 1960, a special education student from St. Nicholas
Penang began to be integrated into mainstream schools. In this program, four students
were involved, with two pupils integrated in Girls' School St. George and two pupils
integrated in Penang Free School (Tambi, 1997).

In 1962, the MoE introduced a programme of convergence (integration) and

implemented it at national level (Tambi, 1997) for students with visual and hearing
disabilities. This means that there are two systems of education for children with visual
disabilities practiced in Malaysia, namely "Residential System" and "IntegrationSystem"
(Mohd, 1992). Inclusive Education Program began in 1962 when the Special School Deaf
Children Federation faced a shortage of classrooms and accommodation. Therefore, the
MoE opened up opportunities for hearing disabilities students in English Primary School,
Jalan Kuantan, Kuala Lumpur (Mohd, 1992).

In 1964, many changes and improvements in special education were done after the
Special Education Unit at Schools Division was established. However, according to Ang
(1999), the beginning of the 70s and 80s showed a trend change where the development
of special education was towards re-segregation. This is because at that time, students
with special needs rationale views should be given education in special environments,
special services and special programs. Many special schools for students with visual and
hearing disabilities was built throughout Malaysia.

In 1979, the Cabinet Committee Report reviewed the implementation of the

educational policy which represents another major step that places emphasis on the
development of Malaysian society who are willing to face the future. This report provides
a holistic view of education which aims to create a balanced student intellectually,
spiritually, emotionally and physically. The report also reiterated Malaysia's goal of
student education-focused education system holistically, and provide for the future of the
country. Cabinet Committee Report, Chapter IV also focus on the education of disabled
children:

"With the realization that the government should be responsible for the education of
handicapped children, is recommended the government to take over full responsibility for
the education of the organizations that operate them at this time. In addition, participation
by voluntary bodies to advance the education of disabled children should be encouraged.
"
(Cabinet Committee Report, Chapter IV 1979)

For Integrated Education Programme, under the operating State Education

Department, Federal Territory (JPN) unofficially opened two special classes for pupils
with learning difficulties in January 1988 (Abdul, 1996). However in October 1989, once
again there was a change in the policy regarding special education. This is because the
approach is not an appropriate segregation and contrary to the declaration of the United
Nations Organization (1983) about people with disabilities. In this declaration, students
with special needs are also being exhorted to be placed in a normal environment in regular

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schools and have the same right to receive the same education as peers. Developed
countries like United States, United Kingdom, Australia, New Zealand and so also joined
students with special needs in inclusive class. However, the results of segregation program
that was carried out was found to be satisfactory for students with special needs that are
given the opportunity to integrate with mainstream students (Ang, 1999)

Drastic development occurred in the last decade of the 20th century through the
development of education in the Era of the National Development Policy (1991-2000). In
1993, three students were placed in lower 6 class of SM Methodist (male) Kuala Lumpur.
In 1994, Malaysia participated in the "World Conference on People with Special Needs",
which was held in Salamanca, Spain from 7 to 10 June 1994. In this declaration, inclusive
education further emphasized and recognition raised when a large number of delegates
representing 92 governments (including Malaysia) and 25 international organizations
made a joint statement supporting the implementation of inclusive program (Ang, 1999).
At the same time a seminar was held in Pulau Langkawi, which also emphasizes the
inclusive education of children with special needs are given equal opportunities to
education in the same environment with mainstream students.

Inclusive Education Programme pilot project subsequently introduced in December

1994 and involved 14 primary schools throughout the country (Bosi 2004; Tambi, 1997).
On October 1, 1994, an inclusive education Implementation Guidance was issued to
schools that implemented the program. After that in March 1995, the MoE launched
"Towards an Inclusive Program Completion Insight Education" by emphasizing the
concept of "Education for All" (MoE, 1995)

In September 1995, Surat Siaran (BS-PK) 8501/036 / Jld.11 (17) dated 7th September
1995 (MoE, 2014) was issued to schools throughout the country for the purpose of
implementation and guide the implementation of Inclusive Education Programme.
Progress and rapid changes again occurred when the Special Education Unit upgraded to
the Department of Special Education in October 1, 1995 (MoE, 1995). Following this, the
Programme for Inclusive Education Learning Issues in secondary schools was
implemented.

Special education and inclusive education grew continuously in Malaysia when the
Education Act 1961 was revised and renamed as the Education Act 1996. Special
Education was also given special attention by allocating The Education Regulations 1997.
In 1999, Inclusive Education Programme at technical schools were also implemented
(Shaari, 2005).

Development of Education during the Era of National Development Policy (2001-2010)

In Educational Development during the Era of the National Development Policy
(20012010) through the education development plan (2001-2010) and the Education
Development Master Plan (2006-2010), the focus is on improving access, equity, quality,
efficiency and effectiveness of educational management. The five core principle is also
in line with the aspirations of the National Dialogue. Action in implementing is important
and no one should interfere with the implementation of the initiative or affect the progress
of other aspirations.

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Development of Education through the National Key Result Areas (NKRA) 2010-2012
Interim Strategic Plan 2011 to 2020 (MoE, 2010), Chapter 12, page 87 states that one of
the aspects highlighted in the democratization of education is access to education for all
in accordance with Article 28 (1) of the Convention on the Rights of the Child, namely:

"Children have a right to an education, and be the duty of the state to ensure that free and
compulsory primary education, promote secondary education in various forms readily
available to every child and to make higher education accessible to all on the basis of
place of capabilities."
Interim Strategic Plan 2011 to 2020 (MoE, 2010)

Education Development Plan (2013-2025)

The evolution of the Inclusive Education Program continues along with the Malaysian
Education Blueprint (2013-2025) and it has become one of the 25 key initiatives. Then in
2013, the Guidelines for the Implementation of Inclusive Education Programme was
distributed throughout the country and the related Letter of Release issued on May 16
2014 (MoE, 2014). Also, in 2013, The Education (Special Education) Regulations 2013
reviewed and Regulations of Education (Special Education) 1997 PU (A) 532/1997
replaced and Inclusive Education redefined as:

“Educational programme for pupils with special educational needs which is attended by
pupils with special educational needs together with other pupils in the same class in
government school or government-aided schools"

Issues of implementation of Inclusive Education Programme

Inconsistencies in the implementation of Inclusive Education Programme
Inconsistencies in the implementation of Inclusive Education Programme not only in
Malaysia but also in other countries occurred because of the strategies and methods of
Inclusive Education Programme in each country is different (UNESCO, 2002). This
inconsistency is caused by every country having its culture and traditions vary with even
differences also occurring by state, city, county and school (Susanto, 2010).

In Indonesia, the implementations of inclusive programmes have involved the

government sector and the private sector. Private sectors also allow parents to provide a
personal assistant for their child inclusive (Susanto, 2010).

In Malaysia the implementation of Inclusive Education Programmes vary by school.

This is because there is no clear procedure on how to implement the inclusive programme
in Malaysia (Ali, Mustafa and Low, 2006). Special Education Schools are governed solely
by the Division of Special Education, and Special Education Programme Integration is
governed entirely by the State Education Department respectively (Wijaya, et al., 2010).
Although the Inclusive Education Programme was implemented in 1962, "Guidelines for
the Implementation of Inclusive" was only be issued on October 1, 1994 (MoE, 2004) and
'Guidelines for Inclusive Education Programme Students with Special Needs "was
released in 2013 in a trial edition (MoE, 2013). This shows there is still no absolute
uniformity of the implementation of Inclusive Education Programme in Malaysia
especially in their operational procedures.

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Collaborative parties involved in school

According to Kasim (1999), the effectiveness of the teaching and learning process is
dependent on collaboration of the school, administrators, teachers, parents and pupils. In
the United States, cooperation and collaborative professionals such as psychologists,
speech and language therapists, and counselors are part of the school system (Low, 1990).
In Malaysia, cooperation and collaborative professionals such as psychologists, speech
therapists, administrators, teachers, parents and students are still unstructured. The
administrator in Sabah was found to have less relevant in-depth knowledge of the Special
Education Programme integrated in their school (Yasin, Salleh, Toran, Tahar and
Ibrahim, 2010).

Reviews by Ibrahim (1998) found that mainstream primary and secondary teachers
have a negative attitude towards Inclusive Education Programme. This is due to a lack of
exposure on Inclusive Education Programme for teachers in mainstream schools. A study
conducted by Bosi (2004) on 54 primary school teachers involved with Inclusive
Education Programme of 6 zones in Malaysia found that only 18 teachers attended a
seminar, training, short courses and briefings on the Inclusive Education Programme,
while 36 teachers have never attended any courses, briefings and training on Inclusive
Education Program. Similarly, a study conducted by Matt (2010), found that mainstream
teachers feel uncomfortable. They complain that the inclusive students will make their
burdens increased (Bosi, 2004).

Adaptation
Education in Malaysia is still suffering from a lack of variety in terms of expertise in the
field of special education (Ahmad, 2003), especially in the aspect of adaptation. There are
teachers who are not willing to adapt to the teaching and learning methodologies.
Adaptation cannot be done due to lack of teachers with the experience, exposure, skills
and training. A study conducted by Tahar, Alias and Majzub (2010) to 400 special
education teachers found that 71.85% of special education teachers in SEIP have adapted
to the teaching learning. While Majzub (2011), found that most teachers do not have the
skills to make the adaptation of the teaching process.

Limitations and Delimitations of the study

In this study, the researchers limit the study only on the Inclusive Education Programme
in Malaysia and evoluation development of Inclusive Education pre-independence to
date. The weakness of this study involves the analysis of documents from the years after
independence from documents published and does not include government documents
that were confidential. Delimitation in this study is only based on the inconsistency of
implementation, teacher collaboration at school and adaptation in an inclusive classroom.

Importance of Research
This study is expected to provide an overview and preliminary information about
Inclusive Education Programme to researchers who are interested in the present
development of education in Malaysia. It could also explain the changes that occur in
terms of the legislation, act, and policy for Inclusive Education Programme in Malaysia

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for pre-service teacher in Malaysia. It can even act as a reference and guide for all those
involved in planning and implementing Inclusive Education Programme.

Conclusion
Inclusive Education Programme development in Malaysia are in line with the Education
for All (EFA) target groups. These three issues highlighted often arises when a new
program is executed. Among the problems that occur are: (1) communication system and
a lack of effective coordination of the various parties; roles, functions, less accountability
and less expertise; (3) little or no in-service courses to improve the level of
professionalism and; (4) low additional allocation for the purchase of teaching and
learning materials. Therefore, it is expected that in the Malaysia Education Blueprint
2013-2025, Inclusive Education Programme (IEP) can be strengthened. In Wave 1 (2013-
2015), MoE implemented the policy of school choice for students with special needs at
level of competency, assessment instruments and screening process to identify the level
of student competence and placed them in the appropriate schooling options, involvement
of more vocational skills, improve infrastructure and equipment in mainstream schools
and special schools, improve service center for special education facilities, provide basic
module training of special education at the highger education and Institutions, providing
in-service training modules with different levels of expertise (from basic to expert), and
provides a special curriculum and assessment in accordance with the level of student
abilities. In Wave 2 (2016-2020), an initiative in Wave 1 will be increased, and even
directed to inclusive education teacher training program will be further strengthened and
cooperation between government and non-government agencies, international
organizations are improved. In Wave 3 (2021-2025), evaluation and consolidation
initiative needs to be done to develop a blueprint for the future. Therefore these volunteers
aim to make each student with special needs have access to high quality education that is
relevent to their specific needs, teachers that are knowledge about special education, and
75% of students with special needs enrolled in inclusive programs by 2025 (MoE, 2013).

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