Balancing Educational Standards: Government Intervention and Quality Assurance in Singapore's Private Education Institutions (PEIs)

Alan Go, Founder, RISE Education Management

The growth of global student populations and the rise of PEIs

In recent decades, the global education sector has undergone significant transformations, primarily driven by the increase in student enrolment, the rise of private education institutions (PEIs), and the evolving demands of the job market. In March 2024, ISC Research and EdWeek revealed that the worldwide enrolment in private international schools has exceeded 6.9 million students, indicating a 10 percent increase compared to the enrolment five years prior. There has been a growth of 8 percent in the number of schools, resulting in a total of 14,010. The combined tuition fees of these schools total more than USD 60.9 billion annually, representing a substantial increase of USD 9 billion compared to five years ago. Significantly, Asian countries are experiencing significant expansion, especially in western Asia, southern Asia, southeastern Asia, and eastern Asia. According to Caffrey (2024), these regions are characterized by the largest concentration of international schools and are currently undergoing substantial growth. 

Data from Singapore shows an increase in student enrolment in Private Education Institutions (PEIs) from 121,000 in 2020 to 138,800 in 2022, followed by a small decrease to 136,300 by 2023. Although there has been a small decline in enrolment in 2023, the significant point to note is that the market value of the industry has risen by approximately 11.74% from USD 2.3 billion in 2020 to USD 2.57 billion in 2023 (CPE, 2020, CPE, 2022, CPE, 2023). Education has become a fundamental element of national development strategies in numerous countries, with the objective of cultivating a highly educated and proficient workforce that can propel economic expansion.

The aforementioned changes have required a thorough reassessment of the extent to which government intervention should be involved in the private education industry, especially in a country like Singapore where the education sector plays a crucial role in both the economy and national progress.

Important questions about the quality of education provided by PEIs

The demand for higher education is primarily driven by the youth population aged 18-23. Projections indicate that there will be 380 million students by 2030 and 594 million by 2040, leading to substantial growth in educational institutions worldwide (Amber, 2023). The increase in student populations worldwide has been driven by the acknowledgement of education as a crucial investment in human resources, resulting in improved health, enhanced productivity, and elevated income levels.

The 2019 ASEAN Intergovernmental Commission on Human Rights (AICHR) conducted a Thematic study on the right to education in promoting access to tertiary education in ASEAN. During the meeting, it was acknowledged that the right to education is crucial for development and empowerment, as recognized in global and ASEAN declarations. The meeting acknowledged that although there has been substantial expansion in tertiary education throughout ASEAN, various policies and sociopolitical factors impede the attainment of consistent quality and equal access. The task of aligning laws and programs to ensure significant educational outcomes and international competitiveness still poses challenges (SEAMEO Regional Centre for Community Education Development, 2019).

However, this expansion raises significant enquiries regarding the caliber of education offered by Private Education Institutions (PEIs) and the government's responsibility in guaranteeing that these establishments adhere to acceptable benchmarks.

Government intervention in the education sector

The ongoing discourse revolves around the degree of governmental involvement in the field of education. A study conducted in the Philippines demonstrated that when the government intervenes in the education market, it has a substantial effect on the benefits of schooling, particularly for disadvantaged groups. This highlights the importance of implementing specific educational policies to address the needs of these groups (Sakellariou, 2006). Similarly, a study conducted in the UK found that government intervention, such as increasing school hours and providing financial support for education in both public and private schools, can help alleviate the negative consequences of school closures (Mahler, 2024). Advocates for greater government intervention contend that it is essential to protect human progress from the potential adverse effects of privatization, in which the pursuit of financial gain may undermine the quality and availability of education. Conversely, there is a viewpoint that excessive regulation can impede innovation and compel institutions to engage in illegal activities or encourage unethical behavior (Kakade, 2021). Heyneman (2014) argues that government intervention should prioritize equitable access to high-quality education by addressing the shortcomings of public schools, providing support for affordable private alternatives, and integrating these schools into wider educational policies and statistics. This approach facilitates the equitable distribution of responsibilities between the public and private sectors in addressing educational requirements.

Government intervention in Singapore's education system

The USA-based National Center on Education and the Economy (NCEE) highlights Singapore's education system as centralized, with the Ministry of Education overseeing all aspects. Key features include clear goals, equitable funding, strong accountability, comprehensive support systems, rigorous teacher development, and a well-aligned vocational and technical education system, ensuring high performance (NCEE, 2024). The total expenditure of Singapore education in FY2024 is projected to be USD 11.29billion, which is USD 514.26 million or 4.8% higher than the revised FY2023 expenditure. USD 10.81billion or 95.8% is for operating expenditure and USD 474.47 million or 4.2% is for development expenditure according to Ministry of Finance (2024). It must be noted that private education sector does not receive any funding from the education budget, unless its supported by government initiatives.

Committee for Private Education (CPE)

The Committee for Private Education (CPE) is a statutory board under the Singapore Ministry of Education (MOE) that oversees and regulates the private education sector in Singapore in accordance with the Private Education Act 2009. CPE operates as part of SkillsFuture Singapore. CPE, initially established as a statutory board, enforces the Enhanced Registration Framework (ERF) to guarantee fundamental operational standards for Private Education Institutions (PEIs). Although registration with CPE is obligatory, it does not imply endorsement or accreditation. CPE, backed by SkillsFuture Singapore, prioritizes consumer education, student services, and the improvement of standards in the private education sector. The Enhanced Registration Framework (ERF) requires all Private Education Institutions (PEIs) to fulfil specific requirements for registration, while the EduTrust Certification Scheme provides an optional certification for institutions that exhibit elevated standards in important areas such as academic excellence, student well-being, and financial security. PEIs are required to safeguard course fees by implementing designated schemes. Adhering to these standards is crucial for PEIs to uphold their operational licenses and provide reputable educational services (Training Partners Gateway , 2024;Ministry of Education, 2024).

The Impact of the EduTrust-Certification scheme on quality assurance

The EduTrust Certification Scheme is a quality assurance framework managed by the Committee for Private Education (CPE) in Singapore. It is designed to assess and ensure that Private Education Institutions (PEIs) meet high standards in academic processes, student protection, and financial stability. The scheme is voluntary but mandatory for PEIs enrolling international students. Institutions that achieve EduTrust certification demonstrate a commitment to quality and continuous improvement. The certification is valid for one to four years, depending on the level of achievement, and requires ongoing compliance with stringent requirements (Training Partners Gateway , 2024).

Is Singapore’s EduTrust-Certification scheme beneficial as a government intervention on PEI sector?

As of August 12, 2024, there are 306 private education institutions (PEIs). Among these, 127 PEIs have earned EduTrust-certification, with 100 holding the prestigious 4-year EduTrust certification, 25 holding the 1-year EduTrust-Provisional and 2 holding 4-year EduTrust Star. The fact that there are only 127 EduTrust-certified institutions, with only 102 holding 4-year certification, suggests that most of the Private Education Institutions (PEIs) either fail to meet the rigorous criteria or are relatively new establishments that have not yet obtained certification. Institutions with EduTrust, particularly the 4-year certification, gain a significant competitive advantage by demonstrating quality and dependability to both domestic and international students.

Figure 1: The EduTrust Framework depicts the EduTrust Certification Scheme, which assesses Private Education Institutions (PEIs) in Singapore based on important factors including academic procedures, corporate governance, student safeguarding, and quality control. The framework comprises seven criteria that encompass leadership, external recruitment, student services, academic rigor, quality assurance, and performance outcomes. The emphasis is placed on ongoing enhancement and attaining favorable educational outcomes. It is recommended that PEIs regularly assess their systems and processes to identify areas of strength and weakness, to uphold high standards and consistently provide quality education (CPE, 2023(a)).

Benefits and shortfall of EduTrust-Certification scheme

Having worked in the PEI sector since 2010 and held leadership positions in various institutions as both senior management and advisor, I have directly observed the substantial impact of the EduTrust-Certification Scheme on the private education industry in Singapore. The scheme's stringent criteria have significantly elevated standards across the industry, compelling institutions to give priority to quality control, student protection, and financial stability. Here are some important factors regarding its impact and challenges:

Positive Impacts:

• Quality Assurance: EduTrust has set a definitive standard for educational excellence, compelling Private Education Institutions (PEIs) to implement stringent criteria in academic instruction, student support, and institutional administration. This has resulted in a more dependable and uniform private education sector.
• Market Differentiation: Market differentiation is achieved through EduTrust certification, which serves as a branding tool that enables certified institutions to distinguish themselves in a highly competitive market. It is especially important for attracting international students, as they often see EduTrust as an indication of credibility and reliability.
• Continuous Improvement: Continuous improvement is a key focus of the EduTrust scheme, which has motivated Private Education Institutions (PEIs) to consistently evaluate and improve their practices. As a result, this contributes to improved student performance and enhances the long-term standing of the institution.

Challenges:

• Voluntary Participation: EduTrust is a scheme that is not mandatory, even though it offers advantages. Consequently, due to the lack of participation from certain PEIs, there are disparities in the educational standards within the sector. Institutions that do not participate may not be obligated to meet the same standards, which could potentially undermine the overall reputation of the PEI sector.
• Employer Recognition: Although EduTrust certification indicates high quality, the absence of a centralised authority in Singapore that universally acknowledges qualifications from Private Education Institutions (PEIs) poses a difficulty. Employers are responsible for independently evaluating the worth of these qualifications, leading to differing levels of recognition and acceptance.
• Global recognition: Considering that the EduTrust certification scheme is specific to Singapore, it may not be universally acknowledged as a global standard of recognition. As a result, PEI's international partnerships may be hindered.

The EduTrust-Certification Scheme has unquestionably played a crucial role in improving the standard of private education in Singapore. However, to maximize its impact, it is essential to have greater participation from PEIs and stronger systems for recognizing and approving the qualifications they offer. Overcoming these challenges has the potential to elevate Singapore's reputation as a hub for exceptional private education.

Taking ideas from ISO 21001:2018 (Educational Organizations Management Systems) in enhancing quality assurance in PEIs

Given the limitations of the current regulatory framework, and for a more global standard standing for Singapore PEIs, one potential solution is the establishment of a sectoral Self-Regulatory Organization (SRO) within a network of PEIs. This SRO could spearhead initiatives in Total Quality Management (TQM) standards that are aligned with internationally recognized education quality standards, in particularly using the ISO 21001:2018 (Educational Organizations Management Systems (EOMS)) showed in Figure 2.

According to Ugwulashi & MBA (2021) the ISO 21001:2018 EOMS is a management system standard specifically designed for educational organizations. It provides a framework for improving the quality of educational services, enhancing student satisfaction, and aligning educational objectives with societal needs. The standard emphasizes learner-centered approaches, continual improvement, and accountability, offering guidelines for effective management of educational processes, leadership, and organizational performance. ISO 21001:2018 EOMS aims to ensure that educational institutions operate efficiently and effectively while meeting the evolving demands of students and other stakeholders. ISO 21001:2018 EOMS, is an upgraded versions is tailored for educational organizations, is broader and deeper than ISO 9001:2015, featuring specific terms like "learner" and "curriculum." It emphasizes active customer involvement, making it more suitable for educational institutions (Wibisono, 2018).

Comparing EduTrust-Certification Scheme and ISO 21001:2018 EOMS

Adopting elements of ISO 21001 could enhance the effectiveness of quality assurance practices in PEIs by incorporating risk-based thinking and placing greater emphasis on leadership and learner needs. This approach could lead to improved student graduation outcomes and better alignment between the skills taught in PEIs and the needs of employers.

Analysis of EduTrust Scheme and ISO 21001:2018 EOMS

Figure 3: A comparison between EduTrust and ISO 21001 revealed that the EduTrust scheme offers advantages such as personalized support for Private Education Institutions (PEIs) in Singapore, a prestigious reputation to attract international students, and a robust focus on quality management. However, it is burdened by fluctuations in the quality of education and lacks a centralized system of recognition. On the other hand, ISO 21001:2018 EOMS can be used worldwide and provides a comprehensive method, promoting uniformity in educational quality. Nevertheless, it does not adequately address specific local needs and poses challenges due to complex implementation requirements. EduTrust is limited to Singapore, while ISO 21001:2018 is a universal standard that can be implemented by educational institutions worldwide.

• ISO 21001: Is a global standard that establishes a framework for educational organizations. It focusses on promoting risk-based thinking, effective leadership, and a learner-centric approach. Its purpose is to equip students with the necessary skills and knowledge to succeed in the future job market, by ensuring that educational methods are in line with industry requirements and international benchmarks. The emphasis on leadership and learner outcomes facilitates the cultivation of crucial skills necessary for the contemporary labor force, including critical thinking, adaptability, and lifelong learning.
• EduTrust: Designed exclusively for Private Education Institutions (PEIs) in Singapore. Its main objective is to ensure the provision of high-quality education by enforcing strict academic standards, corporate governance, and student welfare. The main objective of this is to meet local regulatory requirements and market demands, while also enhancing branding and ensuring continuous improvement. This framework excels in ensuring institutional quality and consistency, but it may have limitations in addressing the wider, global dimensions of future workforce demands when compared to ISO 21001.

Preparing students for future-of work

ISO 21001 is particularly well-suited for equipping students with the necessary skills for the future of work due to its global applicability, emphasis on leadership, and comprehensive approach to guaranteeing educational effectiveness. It ensures that institutions not only meet current educational needs but also anticipate and adapt to future industry trends. EduTrust, while adept at maintaining local quality standards, falls short in terms of thorough readiness for global standards and innovative education.

Recommendation for Singapore PEIs

In order to adequately prepare students for the future job market, it is recommended that Private Education Institutions (PEIs) integrate the benefits of both frameworks. Implementing the global standards and risk-based thinking outlined in ISO 21001 can enhance leadership, curriculum design, and learner outcomes, even if complete adoption of the ISO standards is not feasible.

PEIs should consistently adhere to EduTrust's rigorous local standards to guarantee the delivery of top-notch education and conformity with regulations. By combining the global perspective of ISO 21001 with the particular focus of EduTrust, Private Education Institutions (PEIs) can create a robust and future-oriented educational system that prepares students for success in both local and international markets.

Conclusion

Considering the changing education landscape in Singapore, particularly in Private Education Institutions (PEIs), it is crucial to strike a delicate balance in government intervention to uphold educational excellence and encourage innovation. The EduTrust-Certification Scheme has greatly elevated the benchmarks in the Private Education Institution (PEI) sector, providing a strong framework for achieving high academic standards and ensuring effective institutional governance. Nevertheless, the widespread applicability and future-oriented emphasis of ISO 21001:2018 indicate that integrating aspects of this standard could further augment the capacity of PEIs to equip students for the upcoming workforce.

By integrating the stringent and customized criteria of EduTrust with the extensive and universally acknowledged structure of ISO 21001:2018, private educational institutions in Singapore can attain superior education standards and enhance their global competitiveness. This hybrid approach would guarantee that institutions not only fulfil local regulatory requirements but also conform to global industry trends, ultimately equipping students with the aptitude and expertise necessary for triumph in an increasingly interconnected world.

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