Teachers’ Voices on the Challenges of the Implementation of

Communicative Approach in Regards to the 2013 Curriculum

Yenny Rahmawati

UIN Syarif Hidayatullah, Jakarta, Jl. Ir. H. Juanda No.95 Ciputat,Indonesia

Keywords: Communicative Approach, Teachers’ Perception, Challenges, 2013 Curriculum

Abstract: The Indonesian ELT current curriculum (the 2013 Curriculum) adopts communicative Approach (CA) as its

basis foundation. Despite the fact that this approach has been adopted for some years, some research studies

showed that it does not bring any significant improvement to the learner’s outcome. There are several reasons

underpinning the failures of the implementation of CA in regards to the 2013 curriculum. This study is,

therefore, aimed at investigating the EFL Indonesian teachers’ perspectives on the challenges they faced in

the implementation of communicative approach in their classrooms along with the 2013 curriculum. Four

participants were involved in this study that were given questionnaires and interviewed for data collection.

Qualitative design by case study was used in this study and the results indicated that all teachers in this study

encountered challenges when implementing the concept of CA along with the 2013 curriculum, i.e. students’

low motivations, the teachers’ role, the class size, the teachers’ income, and the availability of English

materials.

1 INTRODUCTION

The development of English as a global language

has strengthened its position as a lingua franca. As a

consequence, most countries in the world – especially

non-English speaking countries - consider English as

an important language to be learnt. This condition

impacts on the educational system in many countries;

some have English as a medium of instruction, while

others have English as a compulsory subject at

school.

Where English is a second or a foreign language

in their counties, many teachers try to adopt teaching

approaches suggested by the West. As Musthafa

(2001) argues, English is believed to belong to the

West, therefore the teaching approaches should be

based on the ‘owners’ of the language. One of the

most popular teaching approaches, CLT, is based on

the understanding of what constitutes a goal which is

widely adopted by teachers in Asian countries (Li,

2000).

The more current notion of communicative

competence was first introduced by Hymes in the

mid-1960s (Berns, 1990; Brown, 2007; Trosborg,

1986) and subsequently greatly influenced language

teaching. Hymes (1979) states that communicative

competence is interrelated with the knowledge of

language and the ability to use that knowledge

appropriately. He proposed the idea that “there are

rules of use without which the rules of grammar

would be useless” (1979, p.15). By this, he

emphasized that there are other important elements to

be mastered besides grammatical rules.

Communicative competence sees language as a

whole, not as an isolated system. It connects the

language to the “nature of communication”

(Trosborg, 1986, p.7). In addition, Canale (1983)

stresses that “communicative competence refers both

to knowledge and skills using this knowledge when

interacting in actual communication” (p.5). In other

words, competence does not only include

grammatical competence but also social competence

to interact with the community or culture.

Communicative competence has several

components. These components were first specified

by Canale and Swain (1980), later to be revised by

Canale (1983). The first component is grammatical

competence; this competence deals with the ability to

know the form and meaning of the language, which

involves the knowledge of grammar, spelling,

pronunciation, and vocabulary. Second, the

component of sociolinguistic competence includes

the ability to use the linguistic competence properly

in communication in different sociolinguistic

Rahmawati, Y.

Teachers’ Voices on the Challenges of the Implementation of Communicative Approach in Regards to the 2013 Curriculum.

DOI: 10.5220/0009928614211428

In Proceedings of the 1st International Conference on Recent Innovations (ICRI 2018), pages 1421-1428

ISBN: 978-989-758-458-9

1421

contexts. The third component, discourse competence

comprises the ability to integrate grammatical

competence and meanings into oral and written form.

Strategic competence, the fourth component is the

ability to sustain conversation by using

communication strategies such as risk-taking,

negotiating and reduction strategy. All of the

aforementioned competencies are essential elements

in communication. By knowing the context and the

culture of the interlocutor, it would be easier to get

into a conversation and to minimize

misunderstandings during the conversation.

Communicative Language Teaching (CLT) as the

application of communicative competence in the

classroom has also been accorded great attention from

the educational world. I, once, thought that the

approaches suggested by the West must be

appropriate and suitable in every context. However, I

found myself ‘trapped’ in the maze of myriad

promotions of the concept. I tried to implement this

concept in my classroom, but often found myself

referring back to my ‘traditional’ method of teaching,

which I believed my students were most comfortable

with. As an example, at that time, I had my students

work in groups, as CLT suggests that group work is

beneficial in the classroom to achieve the intended

learning objective (Richards, 2005). However, in my

context it was hard to implement this concept. I had

about 40 students in my class and grouping students

was not easy. It took time to organise the group, and

the classroom became very noisy. I found myself

becoming frustrated at my vain attempts to make the

students listen to me, and I also received a complaint

from the teacher next door because of the noise. This

is what Dardjowidjojo (1997, as cited in Jazadi 2004,

p.4) called the “pragmatic constraint” that big classes

have, which could prevent a teacher from performing

well.

Since Indonesia got its independence, the

educational curriculum has already changed for

several times: (1) 1945’s grammar translation-based

curriculum, (2) 1958’s Audio-lingual based-

curriculum, (3) 1975’s revised Audio-lingual based-

curriculum, (4) 1984’s structure-based

communicative curriculum, (5) 1994’s meaning-

based communicative curriculum, (6) 2004’s

competency-based curriculum, (7) 2006 KTSP

competency-based curriculum, (8) 2013

Curriculum competency-based curriculum

(Sahirudin, 2013).

The current ELT curriculum in Indonesian

schools adopts Communicative curriculum which is

actually similar to that of used in the previous

ones. This curriculum is actually aimed at

answering problems faced by the previous

curriculum, which focuses on the competency-based

curriculum with improving students’ characters

formation. The promotion of the concept of

communicative through ELT materials has spread

widely throughout the country. The popularity of this

concept keeps increasing as many teachers apply the

concepts in their classroom. However, the use of

communicative approach has also brought some

concerns for teachers in their classroom practice.

Some problems are related to the readiness of

Indonesian teachers to implement the concept

(Suwandi & Bharati, 2007), while others concern

about teachers’ lack of confidence, students’

motivation, the lack of availability of authentic

materials and the issues of authentic assessments

(Dardjowidjojo, 2002; Musthafa,

2001).

In Indonesia, CLT is probably seen as appropriate

to respond to the dissatisfaction of the previous

methods. However, it appears that in practice the

communicative approach has never really been

applied. This is because the “guidelines given by the

government were very structural” (Dardjowidjojo,

2000, p.25). A research study on English teachers in

secondary schools in Java Island by Hamied (1997, as

cited in Rudianto, 2007) indicates that only 19.6% of

teachers stated that they used the communicative

approach. This is because the teachers encountered

some constraints in the implementation, such as lack

of facilities, students’ ability and authentic materials.

Indonesia has experienced changes in relation to

its national curriculum. The school curriculum is

designed and developed centrally by the Ministry of

National Education-Curriculum Centre of the

Ministry’s Office of Research and Development

(Ministry of National Education Republic of

Indonesia, 2003).

Since its independence, Indonesia has changed its

curriculum seven times using three different

approaches. Lie (2007) summarises the curriculum

applied in Indonesia as follows:

Table 1: Indonesian ELT Curriculum.

Starting

year

Name of curriculum Approach

1945 Unknown

Grammar-

Translation

1968 Oral Approach Audio-Lingual

1975 Oral Approach Audio-Lingual

1984

Communicative

Approach

Communicative

1994

Meaning-Based

Curriculum

Communicative

2004

Competence-Based

Curriculum

Communicative

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2006

KTSP (Kurrikulum

Tingkat Satuan

Pendidikan-The

School Level

Curriculum)

Communicative

2013 2013 Curriculum Communicative

The latest curriculum is the 2013 Curriculum

created as the development of KTSP and an answer

of some dissatisfaction of the previous curricula, one

of which is not answering the 21

century needs or

knowledge-based society. The competencies to

achieve are spiritual, social, knowledge and skill. It is

Culture at the beginning of 2013 or in the Academic

Year of 2013/2014. As one of the centralized

curricula, this new curriculum tries to balance the

hard-skills and the soft-skills by using learning

scientific approach aimed at producing productive,

creative, innovative, and affective Indonesian people

through the integration of knowledge, skills, and

attitude (Paparan Wamendik, 2014). These

integrations is based on the Indonesia rank at TIMSS

(Trends in International Mathematics and Science

Study) study and PISA (Program for International

Student Assessment), in which in 2011 Indonesia

only achieved level 3 out from the 6 levels in a

cognitive area related to the level of critical thinking

(2014).

However, the implementation of this centralized

curriculum is problematic for some teachers. A

research study conducted by Suparman (2007) in one

secondary school in Lampung, Indonesia, reveals that

the teachers in his research encountered a number of

challenges in implementing this centralized

curriculum. These challenges relate to (1) teachers’

qualifications (some of the teachers had not graduated

from an English education major), (2) teachers’

understandings and knowledge of the curriculum, and

(3) the teacher-student ratio, with only four teachers

for 24 classes with 45-50 students in each class. In

addition, Lie (2007, p.6-7) argues that “a one-size-

fits-all curriculum would simply not work for the

Indonesian setting”. Indonesia is a big country with

many different cultures. Therefore, one centralized

curriculum will not fit all regions of Indonesia.

I believe some research have been

conducted in Indonesia under the topic of CLT.

However, I found it difficult to find these research

studies, especially at the primary and university

levels. This might be because research publication in

Indonesia is still limited; on-line journals are also

difficult to get. For this reason, I do not have any data

related to the implementation of CLT at the primary

and university levels. For these reasons, it is

worthwhile to observe and analyze the practice of

communicative approach in regards to the

implementation of the 2013 curriculum seen from the

teachers’ perspectives.

2 METHODOLOGY

This research aimed at revealing the challenges

faced by the four English teachers (two females and

two males) at secondary schools in Tangerang Selatan

when implementing the concept of communicative

approach along with the practice of the 2013

curriculum. The participants were selected on the

criteria: 1) the teachers should have at least 2 years of

experience of teaching EFL setting, 2) they indicated

that they have experiences dealing with

communicative approach in their classrooms, and 3)

they should have willingness to get involved in the

study.

This study is qualitative in nature by case study;

the data were gained through interviews, and

questionnaire. The questionnaire was used to gain a

general understanding from the teachers about

English teaching in Indonesia and the concept of CLT

as well as to develop the interview questions. The

questionnaire was divided into three parts with

sixteen questions in total. Part 1 sought personal

information. It consisted of six questions and was

designed to gain general information about the

participants’ personal and educational background.

Part 2 was designed to obtain the participants’

perceptions toward CLT. The participants were asked

to put a tick(s) in the appropriate column(s) that

corresponded to their answers and to write comments

regarding the answers. Part 3 contains open-ended

questions and was designed to further explore the

participants’ perceptions of ELT and the concept of

CLT.

Nineteen questions were generated for the

interviews. All of the interviews were then

transcribed in preparation for identifying descriptive

data and conducting analysis. The places of

interviews were chosen by the participants

themselves, and the interviews were audio-taped.

Each interview took about one hour per-participant.

In these interviews, I allowed my participants to

choose whether the interviews would be conducted in

English or in Bahasa Indonesia. The main reasons I

gave them this choice were to give the participants the

freedom to choose the language they felt most

comfortable with and to reduce the language barrier

in conveying the meaning.

Teachers’ Voices on the Challenges of the Implementation of Communicative Approach in Regards to the 2013 Curriculum

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After in-depth interviews had been conducted, all

data were transcribed for analysis. While reading all

the data, subthemes were created corresponding to the

research questions. In this process, the data were

modified and reduced the potential subthemes until

similar general subthemes that conformed to the

research questions were found. The data from the

questionnaire and interviews were used to triangulate

the findings. In addition, extracts from the

questionnaire and interviews were used to support the

findings.

3 FINDINGS

There are several challenges in the

implementation of the communicative approach

along with the practice of the 2013 curriculum. All

the teachers in the study share similar ideas on the

problems they faced.

3.1 Students’ Motivations

The data revealed that all teachers in the study

were concerned with their students’ motivation in

learning English. They mentioned that the students

often had low motivation in learning English.

The students are not

motivated to memorize the

vocabulary and to learn

English... (Teacher A, public

Junior high School)

It is really hard to give them

motivation... most of them come

to the English class because there

is a schedule for that. (Teacher B,

private Junior high school)

They do not participate [in the

discussion] because some of them

have low motivation to learn

English. (Teacher C)

The teachers explained that most students seem to

lack the awareness of the importance of English. This

might be caused by the status of English as a foreign

language in the country. They stated that, as a foreign

language, English was a compulsory subject and was

tested in the examination; it appears that the students

learned English for these purposes only. This

perception is similar to what has been explained by

some researchers (Li, 2000; Segovia & Hardison,

2009; Yu, 2004), who contend that their students lack

interest in learning English as it is not their language.

Furthermore, Dardjowidjojo (2002, p.123)

identifies the reason for some Indonesian students

having low motivation in learning English as being

because “they learn English because they have to, not

because they want to”. In fact, in most areas in

Indonesia, English is considered as a difficult subject

– even more difficult than Maths. Due to the above

reasons, many students tend to lack the motivation to

learn English.

As a consequence of being a foreign language in

Indonesia, English is rarely used for daily needs

(Musthafa, 2001). Bahasa Indonesia has a strong

position as it is used as a national and official

language; therefore, the students tend to prefer using

Bahasa Indonesia to English in class activities.

Nevertheless, all of the teachers in this study

contended that the students needed to be introduced

to English, as it is the language commonly used in the

global arena. At this point, it appears that the teachers

were aware of the status of English as a global

language, where English acts as the language of

business, information, and technology.

I acknowledge there may be some other factors

that cause students’ low motivation to learn English,

which could be related to the teachers themselves.

However, I do not have any data regarding this, as I

only sought the perceptions of the teachers.

3.2 The Teachers’ Role

The participants shared a similar view regarding

the role of the teacher in the classroom. They

confirmed that in their classes, the teacher was seen

as a ‘god’, the one who knows everything. As a

figure, they felt that teachers were treated as very

special; everything they said would directly be

accepted by the students. These conditions, they said,

often happened across all levels of education in

Indonesia, even at the university level, where the

students are paradoxically expected to be critical and

analytical.

Indonesia is one of the countries that has high

levels of power distance and collectivism (Kameo,

2007). In this type of country, the students are

normally taught to be dependent on others, especially

on older people or people with a higher position, such

as parents and teachers. Parents and teachers are seen

as the most respected people in the community,

children or students have been taught to obey them.

Due to the high status of the teacher, students are

often seen as having a lack of initiative in the class

activities (Kameo, 2007). The teachers also added

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that being quiet is a part of being polite in the

students’ local culture. As a result, many students

considered being quiet as a sign of respect for the

teacher.

Some students are shy and

quiet. I think... it is a part of the

national culture in which the

teacher teaches while the students

obey everything [what the teacher

says], keep silent, only listen and

rarely ask a question. (Teacher C,

public senior high school)

From the interviews, the teachers in this study

seem to agree with the above notion of cultural

values. They indicated that good students were those

who were quiet and respectful toward the teacher.

Additionally, they stated that the students tended to

depend on the teacher to provide them with the

English materials and English environment/exposure.

The first component of this view is quite the

contrary to the concept of the role of the teacher in the

2013 curriculum and CA developed by many

researchers. The 2013 curriculum urges teacher to

actively involve students in the activities during

teaching and learning processes. School is part of

society which gives well planned educational

experience where students can implement what they

get from school into real society and utilize society as

a learning resource (The Ministry of National

Education and Culture, 2013). Therefore, teachers

should implement activities that sharpen their critical

thinking. The teachers need to create activities that

involve the process of scientific approach with based

the students as the center of the teaching and learning

processes. Further, the concept of CA suggests the

teacher performs as a facilitator (Harmer, 2001;

Richards, 2005), rather than the source of

information, to assist students in the learning

processes.

These teachers’ perceptions, however,

corroborates Ellis’ (1996) view that, in EFL settings,

teachers act as a source of information as they provide

the English environment for the students. In addition,

a study in Bangladesh by Chowdhury and Phan Le Ha

(2008) reveals that, in this context, some teachers are

more comfortable with their role as a source of

information and enjoy gaining respect from the

students. Furthermore, in Indonesia, “a guru (teacher)

is culturally to be digugu (trusted) and ditiru

(imitated)” (Dardjowidjojo, 2002, p.122). Therefore,

shifting the role to a facilitator may be seen negatively

by many teachers.

3.3 The Class Size

The sitting arrangement in our

schools, it is hard moving the chairs.

So, it is bit difficult... too many

students here... I have around 40

students in one class, it is really hard,

I prefer having 15-20 students in a

class. (Teacher D, Private senior high)

All of the participants explained that working in

groups was not always a good idea, since Indonesia

still had a common problem, which were big classes.

The average number of students in most Indonesian

schools is 40 students in each class. The seats are

arranged so that students sit in rows and the teacher

sits at the front of the class. This condition causes

difficulty in making small groups, because the

benches or the chairs are difficult to move. I assume

that this situation influences the teachers’ choices of

activity to apply in their classrooms. From the

questionnaire and interview, the teachers mentioned

that pair-works, teacher-questions and student-

answers and lectures were the types of activities that

were most commonly applied in the. According to

them, these activities were considered as the most

possible and easiest ones to apply.

The teachers also added that because there were

too many students in the class, it was hard for them to

monitor the students. Sometimes, they assumed that

all of the students understood the lesson by just asking

questions to one or two students as representatives to

check their understandings. Dardjowidjojo (1997, as

cited in Jazadi 2004; 2002) calls this a “pragmatic

constraint” where big classes potentially restrict the

teacher from performing well in the classroom.

All of the teachers in this study also admitted that

cheating and depending on one participant only arose

when students did the classroom activities.

There are always only few students

who give active participations in

class, that’s why I often have to ask

them to participate in the class

activities. (Teacher C, private senior

High School)

The teachers stated that this was because they

could not check each student individually, due to the

large number of students in the class. It seems that the

teachers were fully aware that big classes potentially

caused problems for them in managing their

classrooms. This problem is similar to what Fietchner

Teachers’ Voices on the Challenges of the Implementation of Communicative Approach in Regards to the 2013 Curriculum

1425

and Davies (1992) state, namely that a large class

which allows six or more students in a group will

create a situation where students do not participate

fully.

However, the teachers realised that they could not

do anything regarding the classroom size. I assume

this is because Indonesia is the third most populous

country in the world, hence, many young people

study at school. A governmental report in 2008

revealed that there were 52,188,520 students in total

studying at primary, secondary and university levels

in Indonesia with the average number of 38 students

in one class (Badan Penelitian dan Pengembangan –

Research and Development Department, 2008). This

statistic reflects that it is very difficult for both the

government and the schools to reduce the number of

students in one class.

3.4 The Teachers’ Income

Another concern found from the public institution

teachers (Teacher A and Teacher D) is their income.

The teachers mentioned that their salary was not

enough to earn a living. This fact has been one of the

problems in Indonesia’s education system. Generally,

teaching is still regarded to be a poorly paid

profession compared to other government

employees’ professions. Therefore, they explicitly

suggested that the government provide a higher salary

to the teachers:

The government should give

higher salary to the teachers to

motivate them; if you can

motivate the teachers then the

teachers can motivate the

students... (laughing). (Teacher

D, Public senior high school)

Salaries for public teachers appointed by the

government are allocated in the national budget;

therefore, their salaries depend heavily on the

country’s financial resources. As for private teachers,

the salary is managed by the institutions themselves,

and is usually higher than the salary of the public

teachers.

It seems that the insufficient salary affected the

teachers’ teaching performance, as they said that to

overcome this problem they had to teach at two or

three different places. The teachers admitted that

working in more than one place requires much

energy, which influenced the preparation for

teaching, such as preparing the materials.

Dardjowidjojo (2002) states that by working in more

than one place, the teachers have little time to do

academic and extracurricular work, such as preparing

the materials and giving attention to each individual

student.

3.5 The Availability of English

Materials

All of the teachers complained about the lack of

English resources in their schools.

We don’t have a lot of English

reading materials in this school.

Most students in Indonesia come

from medium to low-level society,

so the price of the books is too

expensive for them. (Teacher A,

public junior high school)

In the interview, these teachers indicated that they

relied on particular textbooks for teaching, those

prescribed by the government. However, the

textbooks cost the students a large amount of money,

thus, not all of the students could afford them. As a

consequence, a number of students studied without

textbooks. This condition, according to these

teachers, caused difficulty for them in delivering the

materials, because these students would disturb other

students to share their books or allow them to borrow

the textbooks.

While some students did not have access to

textbooks, the teachers, and the students, in general,

also had difficulty obtaining books written in English.

They added that their libraries were not equipped with

sufficient English reading books and cassettes for

listening activities. This might be because it is very

difficult to find books written in English by local

publishers. Imported books, on the other hand, are

usually available only in big cities, and with high

prices; thus, only schools with sufficient funding

resources can obtain them.

Another concern remarked by the teachers is the

absence of a language laboratory. The secondary

school teacher, admitted that her school did not even

have this facility, though the rest of the public school

teachers said that they did have a language laboratory.

However, these teachers stated that the language

laboratory did not function well. When I interviewed

the senior school teacher at the public school, I had

the opportunity to observe their facilities, including

the language laboratory. I found that the school had

only one language laboratory to be used for 32

classes. It follows that not all of the students had the

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opportunity to have listening activities in the

laboratory.

It should be acknowledged that such facilities

significantly help both teachers and students to

achieve the learning aims. I believe having these

facilities would make it easier for the teachers to

implement the concepts of CLT and to have effective

and efficient teaching and learning processes. The

language lab or audio-visual devices will likely help

students practise their English skills. The library

should provide students with information related to

the teaching materials, the use of which is expected to

improve their language skills. This perspective, the

importance of facilities, is often neglected when

talking about CLT. It might be because theories of

CLT emerged from developed countries, where

sufficient facilities are taken for granted in their

schools. Because of the quality and scarcity of

teaching/learning facilities, in developing countries,

such as Indonesia, CLT seems very hard to

implement.

These problems, by contrast, were not found in the

private schools. They explained that their schools had

more than one library and language laboratories,

which can be used any time they wanted. One teacher,

who teaches at a private primary school, stated that

her school has sufficient reading materials in English

and good support facilities. As for the senior high

school teacher, the school also had adequate English

resources and facilities.

In the case study presented, there seems to be a

gap between private and public schools. This might

be because private institutions are allowed to request

funding from students/parents to cover

4 CONCLUSIONS

The data revealed that all of the teachers in this

study encountered some difficulties in implementing

the concepts of CA in regards to the 2013 curriculum

in their classrooms. The teachers from all levels of

education indicated that they encountered challenges

in the following aspects: students’ motivation, the

role of the teacher, and the availability of the English

resources.

The concept of the teacher as a facilitator has also

been challenged by the school teachers in this study.

They argued that the role of the teacher in the

classroom was a source of information, as in EFL

settings the teacher was the only one to provide an

English environment for the students. Meanwhile, the

availability of authentic materials is one aspect that

tends to be overlooked. The participants of the study

argued that authentic materials are a crucial

component for ensuring the effectiveness of teaching

and learning process.

This study has revealed some critiques of the

implementation of CA in Indonesian education.

While the study can only represent the participants’

views, it may indeed reflect the views of many other

teachers, whose experiences would need to be

addressed through professional development.

Whether or not these perceptions are widespread

would need to be tested in a larger-scaled study.

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