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International Journal of Inclusive

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Inclusion in Brunei Darussalam: the role

of teacher education
a
Teng Leong Koay
a
Sultan Hassanal Bolkiah Institute of Education, University of
Brunei Darussalam, Brunei Darussalam
Published online: 27 Jul 2012.

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 International Journal of Inclusive Education, 2014
Vol. 18, No. 10, 1029–1037, http://dx.doi.org/10.1080/13603116.2012.693396

Inclusion in Brunei Darussalam: the role of teacher education

Teng Leong Koay∗

Sultan Hassanal Bolkiah Institute of Education, University of Brunei Darussalam, Brunei

Darussalam
(Received 23 September 2009; final version received 2 October 2011)
Downloaded by [University of Saskatchewan Library] at 14:10 19 March 2015

In 1994, Brunei Darussalam adopted an inclusive educational policy and began a

number of educational reforms to support the implementation of inclusion within
the regular mainstream education system. These reforms include teacher
education, which has witnessed the establishment and expansion of training and
education opportunities for teachers to equip themselves with the knowledge and
skills to promote inclusion at pre-service and in-service levels. This paper begins
by describing how teacher education has changed over the past decade to
support and promote inclusive education in Brunei Darussalam. It describes the
multi-pronged strategy adopted by the Sultan Hassanal Bolkiah Institute of
Education (SHBIE) to include the component of inclusive education within its
teacher education programmes. Relevant research conducted by the academic
community at the SHBIE to evaluate the quality of inclusion efforts as well as to
inform the further development and implementation of the inclusive educational
policy is also shared.
Keywords: inclusion; inclusive policies; special education teacher preparation;
evaluation of inclusive practices

Introduction
Brunei Darussalam is an independent Islamic Sultanate located in the northern part of
Borneo in Southeast Asia. It is an oil-rich country with a land area of 5765 km2 that
shares its borders with the Malaysian state of Sarawak. The capital, Bandar Seri
Begawan, is located in a district known as Brunei-Muara, one of the four districts that
make up Brunei Darussalam (the other districts are Tutong, Belait and Temburong).
The population of Brunei Darussalam is estimated at 406, 200, comprising 60.7%
Malays, 11.0% Chinese and 28.3% other races (Department of Statistics 2009).

Inclusion in Brunei Darussalam

In the last few decades, commitment to the education of children with special edu-
cational needs (SEN) has strengthened globally. The Declaration on the rights of dis-
abled persons (United Nations 1975) called on nations to support human rights,
education, integration, employment and conditions for the economic and social pro-
gress for persons with disabilities. The Convention on the rights of the child (United

∗
Email: tengleong.koay@ubd.edu.bn

# 2012 Taylor & Francis

 1030 T.L. Koay

Nations 1989) reaffirmed the right of all children to equal education without discrimi-
nation within the mainstream education system. United Nations Educational Scientific
and Cultural Organisation’s (UNESCO’s) World conference of education for all in
1990, held in Jomtien, Thailand, highlighted the basic learning needs of all children
and drew attention to the unmet needs of students with special needs. UNESCO desig-
nated the year 1992 as the ‘year of special needs in the classroom’. Many ministries of
education around the world responded by increasing their assistance to children with
special needs in schools. Two years later, the 1994 Salamanca statement and frame-
work for action on special needs education (UNESCO 1994) urged governments to
adopt the principles and practices of inclusive education. The Convention on the
rights of persons with disabilities (United Nations 2001) called for the engagement
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of people with disabilities in inclusive and accessible programmes.

In line with world trends towards inclusion, Brunei Darussalam embraced the
concept of inclusion in 1994, as stated in its Special education policy guidelines:
‘All children are able to learn given an appropriate learning environment. Appropriate
learning environments can be created within the inclusive school. The inclusive school
is one that provides appropriate instruction for all children based on their level’ (Special
Education Unit 1997, 1).
In his opening address at the first national conference on special education in 1996,
the then Minister of Education of Brunei Darussalam stressed that ‘the special edu-
cation or special needs agenda in Brunei Darussalam is an essential element of the
drive for education for all. The emphasis is on inclusive education where the aim is
to respond to the needs of all children’ (Abdul Aziz et al. 1996, 2).
The implementation of inclusive education was given a further boost in 2005 by the
then Minister of Education of Brunei Darussalam, who in his foreword to the Pro-
gramme and abstract book of the second international conference on special education
stated that ‘Brunei Darussalam has recently become the 191st member state of the
UNESCO. In doing so, we have again demonstrated our commitment to education
for all and the implementation of inclusive education’ (Abdul Rahman 2005b).

Teacher education initiatives for inclusive education

Inclusion goes beyond merely integrating students with SEN in regular education
classes. In the inclusion process, the commitment on the part of society, at large, and
the school community, in particular, the head teachers/principals, classroom teachers,
parents and the multidisciplinary team, to include every student is crucial. This was
reinforced by the then Minister of Education in his opening address at the first national
conference on special education in Brunei Darussalam in 1996: ‘In order for the student
with special needs to succeed socially, emotionally and academically, there must be a
shared responsibility and commitment on the part of all those who are directly involved
in the education of that student.’ (Abdul Aziz et al. 1996, 3).
It was acknowledged that a high level of professional competence was required in
the education of children with special needs. This was highlighted by the Minister of
Education during his opening address at the 2005 second international conference on
special education: ‘His Majesty’s Government gives importance to providing trained
and qualified educators to ensure the success of inclusive education in the country’
(Abdul Rahman 2005a, 2).
One of the first steps that Brunei Darussalam took after embracing inclusive edu-
cation was the establishment of the Special Education Unit (SEU) in 1994. The SEU
 International Journal of Inclusive Education 1031

was directed by the Ministry to organise services for students with SEN with assistance
from Special Educational Needs Assistance (SENA) teachers, the school-based team
(SBT) and regular classroom teachers. The initial focus of the SEU after its establish-
ment was the training of the SENA teachers. Since 1995, the SEU and the University of
Brunei Darussalam (UBD) have jointly conducted a 1-year in-service certificate in
special education programme to prepare regular teachers to become SENA teachers.
The certificate in special education programme equips teachers with basic knowledge
and skills to identify and assist learners with SEN.
SENA teachers act as resource persons to classroom teachers and are the key
persons in the delivery of special education programmes and services in the inclusive
school system in Brunei Darussalam. To date, 263 SENA teachers have been trained
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and deployed state wide to both the primary and secondary schools. In Brunei Darus-
salam, SENA teachers play an important role in meeting the needs of the individual stu-
dents with special needs in the inclusive classroom. SENA teachers have been trained to
carry out the following duties in their schools:

. identify students with SEN,

. prepare an educational plan (EP) in collaboration with the classroom teachers and
parents,
. submit the EP to the SBT for approval; each SBT consists of the head teacher/
principal, classroom teachers, parents of the students concerned and other rel-
evant agencies, where necessary, and
. implement and monitor the EP.

In 1999, the Sultan Hassanal Bolkiah Institute of Education (SHBIE), UBD, the sole
teacher education institution in the country, adopted a three-pronged strategy at pre-
service, in-service and postgraduate levels to include inclusive education in its training
programmes (Sim, Koay, and Liew 1999).

Pre-service preparation
Within pre-service teacher training in special education, SHBIE offers a core course in
Inclusive Education to all students in the 3-year Diploma in Primary Education, the
4-year Bachelor of Arts in primary education and the 4-year Bachelor of Education
in primary teaching english as second language. This course introduces student teachers
to the concepts and policy of inclusive education, equips them with teaching and man-
agement skills to cater to students with SEN and prepares them to work collaboratively
with SENA teachers and parents of students with SEN. Methods of teaching children
with learning problems in several curriculum studies and methods of teaching
courses have been included in the programmes. In addition, several ‘helpful other
courses’ with special education content could be chosen by students as electives.
Students enrolled in the secondary programmes such as Bachelor of Arts in education,
Bachelor of Science in education and postgraduate certificate in education are
offered the choice to study a special education elective, entitled ‘children with
special learning needs’.
In 2007 and 2008, the SHBIE prepared proposals to mount the pre-service Diploma
in Special Education and the Bachelor of Education (special education) (Abosi and
Koay 2008). This was the first time that efforts had been made to prepare special edu-
cation teachers at the pre-service level. However, after the SHBIE had been upgraded
 1032 T.L. Koay

into a Graduate School of Education in 2009, these teacher education programmes at

the pre-service level have been discontinued (Loo 2010). This development will
have far-reaching consequences on the provisions for students with disabilities
within mainstream classes as there will be no longer any training of SENA teachers
in the country.

In-service upgrading
At the in-service level, the certificate in special education programme equips teachers
with basic knowledge and skills to identify and assist learners with SEN. The admission
requirements for this programme are a teacher’s certificate of education or higher edu-
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cational qualifications and a minimum of 3 years of teaching experience. The Bachelor

of Education (special education), a 3-year in-service programme, is a path through
which SENA teachers can upgrade themselves professionally. It enables SENA tea-
chers to acquire additional knowledge and skills about SEN and learning assistance.
In 1999, the Bachelor of Education (special education) had its first intake of 23
SENA teachers. A 6-month introductory course on inclusive education is also
offered annually by the SEU in collaboration with the UBD. It aims to enhance the
implementation of inclusive education in private schools. This course comprises 20
lecture/workshop sessions.

Postgraduate specialisation
The Master of Education in special education, a 1-year full-time programme, is a part of
the professional development continuum of special education personnel. This pro-
gramme provides advanced knowledge and skills in the field of special education
and encourages local projects and research. It aims to equip graduates with the knowl-
edge and competence to fill managerial and consultative roles in the Ministry of Edu-
cation and the SEU. In 1999, the Master of Education in special education had its first
intake of six upgrading SENA teachers. By the end of 2010, 14 SENA teachers had
obtained their master’s degree. With the upgrading of the SHBIE into a Graduate
School of Education in 2009, a proposal to mount the Master of Education in inclusive
education was submitted at the end of 2010 and planned to be implemented in 2012.

Teachers’ continuing professional development in special education

The SEU organises monthly in-service workshops, meetings, discussion sessions and
seminars for SENA teachers to keep them abreast of the latest skills and knowledge
on special education. A ‘train the trainer’ model is used and the SENA teachers are
encouraged to provide relevant support and professional development activities for
classroom teachers within their respective schools. In-service sessions, workshops
and conferences are designed to ensure that the content is directly relevant to SENA
teachers’ needs. The sessions include strategies for the teaching of slow learners, stu-
dents with high support needs, co-teaching, making inexpensive teaching aids and
using educational technology for children with SEN. The sessions are delivered by
staff of the SEU, invited speakers from the UBD and other local and foreign agencies.
Aside from the courses mounted by the SEU, foreign consultants have also been invited
to conduct short training courses for SENA teachers. In 1998, a specialist in hearing
impairment from Canada trained 13 SENA teachers, and in 1999, a specialist from
 International Journal of Inclusive Education 1033

the Specialist Teachers Training Institute, Kuala Lumpur, was invited to train 12 SENA
teachers to work with students with visual impairment.
Special education workshops and seminars are also organised each year for teachers
from government and private schools. The SEU conducts various workshops on posi-
tive learning and teaching techniques for teachers. The workshops are designed to help
teachers refine existing skills and knowledge and develop more inclusive strategies.
Teachers learn how to enhance student development, identify those with learning pro-
blems and implement special education programmes. For instance, the remedial work-
shops were organised in 2005 and 2006 with the following aims: (a) to provide
classroom teachers with basic remedial teaching techniques in Malay and mathematics
to promote learning within regular classrooms, (b) to enable teachers to deliver a
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student-centred teaching programme and provide early intervention to lower primary

students in the basic skill areas of Malay and mathematics, (c) to create a learning
environment which will increase the likelihood of success and achievement, thereby
preventing student frustration and failure, (d) to lay a solid foundation in the basic
skill areas for all students and (e) to design and implement educational programmes
for students with SEN. In February 2009, a seminar on behavioural intervention for
children with autism and other learning difficulties by a consultant from Vancouver,
Canada, an expert in applied behaviour analysis, was organised by the SEU in conjunc-
tion with the NGO Learning Ladders Parents Support Group. This training was
attended by all SENA teachers and parents who had children with autism spectrum
disorders.
The SEU also conducts SBT workshops for teachers in schools. The aim of these
workshops is to create awareness in educating students in an inclusive setting and
encourage educators to work collaboratively to provide better and more appropriate ser-
vices to learners with SEN. School principals and head teachers are invited to partici-
pate in these presentations and workshop sessions on special education as they play key
roles in promoting inclusive education in their schools, organising relevant professional
development for their staff and enhancing the SBT to ensure that all children have
access to appropriate facilities and suitable learning opportunities. These workshops
cover the topics of the concept of inclusive education, roles and responsibilities of
the SENA teacher, Learning Assistance Programme (LAP) and SBT.
The SEU also organised the national conferences on special education in 1996 and
1999 and the first and second international conferences on special education in 1997
and 2005, respectively. Through these conferences and national seminars, teachers
were exposed to new knowledge which they could apply in their workplaces. They
also had a chance of sharing the practices and teaching techniques that they had used
to support their students with SEN. The first and second national seminars/workshops
on special education were organised in 2007 and 2009 to provide teachers with skills
and knowledge in teaching students with high support needs and dyslexia, respectively.

Research on inclusive education in Brunei Darussalam

There is an emerging body of research on inclusive education in Brunei Darussalam
that is shedding light on the state of inclusive practices in schools as well as at tertiary
levels. Many of these research studies have been completed by postgraduate and under-
graduate students enrolled at the UBD as partial fulfilment of the requirements of their
Master of Education (special education) and Bachelor of Education (special education).
These research studies, though preliminary in nature, have contributed to painting quite
 1034 T.L. Koay

a positive picture of schools’ responses to inclusive education (e.g. Alus 2001; Abdul
Aziz 2001; Abdullah 2000; Mak 2001; Noraini 2010; Norhayati 2010; Osman 2000;
Pang 2001; Raudah 2006; Saibah 2000; Siti Zaleha, Amran, and Bradshaw 2005;
Siti Zaleha and Koay 2010; Taibah 2003).
Omar et al. (2004) surveyed six groups of respondents from 96 schools on the effec-
tiveness of the LAPs in primary schools in Brunei Darussalam. The results indicated
that head teachers, parents, classroom teachers and pupils with special needs were sup-
portive of the LAPs. This was reinforced by the SENA teachers who felt that their
schools appreciated their contributions in the implementation of educational pro-
grammes for pupils with special needs.
A major study examining the attitudes and perceptions of learning assistance tea-
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chers (SENA teachers) and regular teachers towards inclusive education was initiated
in 2000 by Koay, Sim, and Elkins (2004) with the specific intention of recommending
possible improvements to policy and practice regarding inclusive education in Brunei
Darussalam. The participants of the study comprised 56 upgrading SENA teachers, 96
practising SENA teachers, 308 regular teachers with experience in teaching children
with special needs and 308 regular teachers with no such experience. The findings
showed significant differences between the SENA teachers and regular teachers in
their attitudes and perceptions towards inclusion, perceived self-efficacy, perceived
desirability, feasibility and frequency of use of instructional adaptations for inclusive
classrooms and perceived actual and ideal collaborative roles of SENA teachers and
regular teachers. In general, an invariant order was found, with upgrading SENA tea-
chers having the highest means and regular teachers with no experience teaching
special needs students having the lowest. There were various qualitative differences
between the SENA teachers and regular teachers in their open-ended responses
related to perceptions of inclusive education examples of classroom adaptations for
instruction, supports needed and barriers encountered when using these adaptations,
examples of collaborative roles for inclusive classrooms and supports needed and bar-
riers encountered during collaborative efforts. It was observed, however, that the strat-
egies that they suggested were very similar and not very innovative.
While the findings imply that the current programmes and activities for inclusive
education are apparently proceeding in the right direction, they have also been sugges-
tive of some specific changes that could contribute towards improving policy and prac-
tice, not only in schools but also for teacher education in Brunei Darussalam. For
example, in developing innovative strategies for teaching and managing children
with special needs, special attention needs to be paid to the collaborative relationships
between SENA teachers and regular teachers. Research into specific collaborative
arrangements, including in-depth case studies, is still needed.
Koay et al. (2006) investigated the perceptions of both SENA and regular teachers
towards including students with special needs in the regular school environment. The
findings of this study of teachers’ perceptions towards including students with special
needs provide some evidence of the progress of inclusive education while also delineat-
ing some areas to look into to improve the success of inclusive education in Brunei
Darussalam.
More recently, Amran et al. (2008) and Koay, Mundia, and Mak (2009) reported
and discussed the views of 230 primary school regular teachers and 51 SENA teachers
who attended and evaluated mathematics and Malay remediation workshops that were
organised to address the problems faced by students with problems in learning math-
ematics and Malay. In general, the teachers agreed that the remedial strategies for
 International Journal of Inclusive Education 1035

low achievers from these workshops were useful and could be applied to help these
pupils. The teachers also recommended that such workshops should be conducted
for regular teachers in all the four districts in Brunei Darussalam.

Challenges of teacher preparation in special education

Formal teacher education programmes and continuing professional development in
various forms have been undertaken by the SEU and the UBD over the last decade.
However, there are still many challenges in the training of special education teachers.
There is a need for continual professional development of regular education teachers
so that they will be equipped with the knowledge and skills to deal with children with
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SEN in regular classrooms. Koay, Sim, and Elkins (2004) in their study found that
regular education teachers required basic knowledge and skills in teaching students
with SEN. Regular in-service training at the school and district levels in the form of meet-
ings, seminars, sharing sessions and workshops should be organised and made compul-
sory. In this way, teachers can upgrade their knowledge and skills and develop new ones.
Specialist training is also needed to enable SENA teachers to work effectively with
students who have communication, hearing or visual impairments, intellectual or phys-
ical disabilities and other types of SEN. Koay, Sim, and Elkins (2004) reported that
SENA teachers required more knowledge and skills, especially in handling students
with high support needs and on how to collaborate with regular teachers. More teachers
are required to enhance the localisation of services in accordance with national policies.
The study also surfaced the need for training on how to enhance cooperation and col-
laboration between SENA and regular teachers as well as members of the SBT in the
development and implementation of special education programmes in inclusive
schools.
The training of all teachers, administrators and Ministry of Education staff and the
raising of awareness about special education in the community are crucial in the
implementation of inclusive education. Alus (2001) and Pang (2001) found that tea-
chers and school principals who had taken or attended special education courses or
workshops had more positive attitudes towards inclusion of students in regular class-
rooms than those who did not take or attend such courses or workshops. Changes in
thinking and attitudes towards children and towards learning have to occur and
move towards the perspective that all children can learn and that every student is a
unique individual (Omar and Csapo 1996).

Conclusion
The provision of special education supports and services for students with special needs
within regular schools has grown at a steady rate in Brunei Darussalam since 1994. To
inform the future direction and development of inclusive educational policy and prac-
tice in Brunei Darussalam, it is important that current practices related to school and
tertiary levels be monitored and evaluated. As inclusive practices occupy a greater
part of teachers’ work in regular schools, a more comprehensive body of research is
needed to monitor, inform and improve current inclusive education efforts in the
school system. Brunei Darussalam has made significant strides in promoting the prac-
tice of inclusive education within its mainstream schools in the past decade. Further
research, when strategically planned and developed, can certainly help in the future
development and improvement of inclusive education in Brunei Darussalam.
 1036 T.L. Koay

While Brunei Darussalam has come a long way towards developing teacher training
programmes which include special education, many and even greater challenges lie
ahead. Perhaps the greatest challenge would be the introduction of a comprehensive
evaluation and feedback system that would continuously monitor the efficacy of the
training programmes and respond appropriately and adequately to the emergent and
unmet needs of all teachers. It would then be obvious that nothing short of a total
system approach would suffice in confronting the problems of inclusive education. It
would be useful to consider the possible involvement or input of all stakeholders in
the process of developing or re-developing the training programmes – teacher educa-
tors and Ministry of Education officers, school administrators and teachers, specialists
and regular classroom teachers, parents and the community, as well as children, both
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with and without SEN.

Notes on contributor
Dr Teng Leong Koay is an Associate Professor in Special Education at the Sultan Hassanal
Bolkiah Institute of Education, University of Brunei Darussalam. He has contributed signifi-
cantly to the development of Special Education/Inclusive Education in Brunei Darussalam.
Besides teaching, he pursues an active programme of research in special education with a
focus on inclusive educational practices and has published widely. Dr. Koay has been invited
as a speaker and workshop facilitator/presenter in several countries in the Middle East (Qatar:
2007, 2008, 2009 and Kuwait, 2010), Indonesia (2009) and Malaysia (2010, 2011, 2012).
In June– July, 2010, he was also appointed a Visiting Professor to the Sookmyung University,
South Korea.

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