Chapter 3 continued
The range of provision of adult education at the community level
The description provided in Come in Cinderella of the range of
community-based ACE provision remains generally applicable to the present
situation. Evening colleges, community adult education centres, neighbourhood
houses and organisations such as the Workers Educational Association (WEA)
continue to deliver a wide range of education and training to adults across
the country. The patterns of participation discussed above have not changed
dramatically since Cinderella, although some modification has occurred
in response to the Commonwealth's policy and funding focus on vocational
training.
The institutionalised public education providersuniversities, TAFE colleges
and schoolscontinue to offer some courses to adults as part of a continuing
education or community outreach program. But increasingly the provision
of courses is undertaken as a commercial activity, geared to earning income
for the institution. This affects not only the types of courses offered,
but also limits their availability to people who can afford to attend.
Where universities and TAFE colleges offer public lectures and open seminars,
it is often part of a broader promotional strategy designed to garner
support amongst professional and business groups for the institution or
department. The Committee acknowledges that there are still institutions
that offer open access programs as part of their community service obligations,
but these are frequently at risk of being subsumed by more commercial
interests.
The community-based providers continue to provide a range of programs
across four broad areas:
- adult basic educationto develop skills such as literacy and numeracy;
- general and liberal coursesgeared at personal enrichment or general
interest;
- vocationally oriented education; and
- public education courseseg land conservation and health awareness.
[1]
However, there appears to be a shift in the relative proportions of ACE
provision in each of these categories. This has arisen largely from an
increased ACE involvement, through competitive tendering, in the delivery
of labour market and vocational training programs. The number of ACE providers
becoming registered under the Australian Recognition Framework (formerly
NFROT) is growing, and it is estimated that around 10 per cent
of all registered training providers in Australia are ACE providers. [2]
There has also been a notable increase in community-based provision of
ESL and literacy/numeracy programs.
It is difficult to gauge the extent of shifts in the pattern of provision
across the four broad areas of activity. A number of submissions either
stated or implied that the increased involvement of community-based providers
in ANTA-funded, accredited training has been at the expense of their general
education programs, with both the range and volume of these programs being
diminished.
However, the 1994 Adult Education Survey [3]
indicates that while job-related education extended its reach, the liberal
arts, personal development courses held steady. This survey examines participation
of adults in courses provided by a broad range of providers, from formal
education institutions, to private sector trainers, to government departments
and community-based ACE centres. In terms of the volume of provision,
the Survey concluded that, of courses taken up to mid-1994:
- The formal education sector provided 28 per cent. This
high level of provision by schools, universities, and TAFE's is one
of many indications that adult education is complementary to formal
education
- Adult education centres provided 10 per cent. These not-for-profit
specialist organisations include Neighbourhood Houses, WEA's and Adult
Education Centres
- Business colleges provided 3 per cent of the courses
- Private teacher provided 14 per cent of the courses
- Enterprises provided 25 per cent of the courses in-house
- Trade unions and professional associations provided 6 per cent
of the courses
- Charitable and volunteer organisations provided 6 per cent
of the courses. These providers range from St John's Ambulance, to local
churches, to museums
- Government departments provided 10 per cent of the courses.
[4]
The following table, reproduced from the 1994 Survey, not only sets out
the range of provision available, but shows clearly the different levels
of participation in courses by those with various levels of formal education.
* Statistically significant difference in means
Source: Australian Adult Education Survey, 1994
This clearly indicates that early school leavers have significantly lower
participation in adult education than those with Year 12 or tertiary education
qualifications.
Also of interest is the following table listing the courses offered by
the various types of provider. It is perhaps not surprising that the provision
of computer-related courses has increased dramatically in recent years.
The proportion of computer-related courses provided by community-based
providers as a percentage of their overall provision is quite high, being
greater than or equal to the proportions provided by private training
providers, government agencies and professional associations, and not
far below the proportion offered by formal education institutions.
Type of course as percentage of overall provision
| Course Provider |
Compt |
On the job |
Prof |
For Lang |
Literacy |
Health |
HSC |
Arts |
Crafts |
Pers Dev |
Other |
| Formal Educ |
17 |
7 |
15 |
9 |
2 |
5 |
5 |
9 |
16 |
4 |
12 |
| Adult Ed Centre |
14 |
2 |
3 |
9 |
3 |
9 |
0 |
6 |
40 |
7 |
8 |
| Business College |
27 |
7 |
15 |
3 |
1 |
5 |
4 |
3 |
11 |
12 |
11 |
| Firms, in house |
17 |
42 |
12 |
1 |
1 |
7 |
0 |
1 |
3 |
12 |
3 |
| Private Providers |
14 |
12 |
15 |
6 |
2 |
7 |
0 |
4 |
21 |
14 |
6 |
| Union, Prof Assoc |
2 |
26 |
32 |
2 |
0 |
12 |
0 |
3 |
4 |
7 |
12 |
| Voluntary Assoc |
3 |
6 |
8 |
4 |
0 |
33 |
0 |
15 |
12 |
6 |
13 |
| Government |
13 |
34 |
19 |
1 |
3 |
10 |
3 |
1 |
6 |
7 |
3 |
Source: Australian Adult Education Survey, 1994
It remains the case that, apart from public or community-based ACE providers,
adults also learn through:
formal education, at work, in their churches, trade unions and
other associations, through libraries and other cultural institutions,
by travelling, through the print and electronic media, from the Internet
and a growing menu of open learning options. [5]
The Role of Libraries, Museums and Galleries in ACE
In Come in Cinderella the Committee noted, but did not elaborate
upon, the provision of adult education by a number of organisations which
would not normally classify themselves as adult education providers. These
include libraries, museums, art galleries, zoological and botanical gardens,
special interest clubs, support groups and so on. For its present inquiry,
the Committee sought explicit input from, and comment upon the educative
role of, libraries, galleries and museums in particular. This confirmed
the Committee's view on the increasingly valuable contribution of these
agencies to the development of a learning society.
The public library system is an extraordinarily important and valuable
component of our incipient system of lifelong learning. In spite of
persisting funding constraints the library services continue to champion
the cause of literacy and to promote access to cultural, scientific,
current affairs, and other types of knowledge and understanding. Because
their role as an adult learning organisation tends to be in some respects
`incidental', it is easily ignored. In the Association's view they are
a vital community service and valued ally of community providers of
adult learning opportunity.
The role of museums and galleries in inspiring, supporting, and
in some cases providing adult learning opportunity is less obvious,
but also, we believe, of great value. We are sorry to find that the
educational function of our cultural institutions has suffered considerably
in recent times from resource constraints. The projection of major collections
and performances to non-metropolitan Australia is of particular value
in nourishing artistic and cultural appreciation and understanding of
rural Australians and ought, we believe, receive a high priority. The
efforts of the national Science and Technology Centre in getting `on
the road' are a good example. [6]
The Committee considers that libraries are already a key link in the
web of education and information services that must be available to adult
learners. In particular, libraries have a major role in facilitating access
to information technology by members of the general public. The work of
the NSW State Library in this regard is mentioned elsewhere in this report,
and similar efforts are being undertaken in local and regional libraries
across the country.
Public libraries are often the first point of referral for community
groups and those undertaking adult education. The services offered range
from making facilities available for classes, providing instruction on
the use of the library and information resources, information skills development,
to running funded structured programs. [7]
Almost all libraries which contributed to this inquiry highlighted the
increasing demands on their services from school students and from adults
involved in either formal award courses, or general adult education, or
pursuing major projects such as family histories. There is a strong emphasis
on facilitating access to information technology, and this invariably
involves library staff in providing training for clients on the use of
computers.
Libraries often work closely with local adult education providers across
a wide range of programs. For example, as well as mainstream services,
the Warringah Library Service provides information literacy tutorials
for Skillshare and AMES students, support for a bi-lingual educators course,
and for volunteers involved in Tongan homework centres. [8]
The Upper Murray Regional Library has a long tradition of developing partnerships
with local adult education providers, contributing to programs ranging
from Australian literature to local history. The Library's work in the
Second Chance program of literacy tutoring received a national
award during International Literacy Year. Literacy programs are high on
the list of activities undertaken by many libraries, but they do not exhaust
the range of education services provided.
Libraries frequently reported a steep rise in the use of their services
by older people, particularly in relation to courses being studied through
the University of the Third Age and similar organisations. Again support
and training in computer use is an important dimension of libraries' service
to this cohort of adult learners.
The Committee considers that, in an increasingly networked technological
environment, the distributed network of public libraries is an ideal partner
for ACE providers and to the education system generally. In the report
of the Cultural Ministers Council entitled Navigating the Economy of
Knowledge, it is pointed out that the network of State and local public
libraries comprises 1400 local access points, and seven regional nodes
for each State and Territory, providing `an extensive cultural and communications
infrastructure for skill transfer and wealth creation'. It is important
that recognition be given by the Commonwealth to the role played by the
public libraries in supporting education and training, especially at a
community level. This role cannot be maintained, nor developed further,
without improved levels of resources.
As well as public libraries, other institutions such as galleries and
museums make a major contribution to adult education. A useful summary
of the various ways in which these organisations deliver education was
presented to the Committee by representatives of the National Gallery
of Australia.
Adult and community education in museums and galleries may take
four main forms. The first is the training programs provided for volunteers
in museums and galleries. The second is the educational programs and
events for the community and these are both on-site in museums and galleries
and nationally through outreach services. The third is specific services
tailored to the needs of specialist interest groups and the fourth is
educational resources in print, audio and visual form. [9]
The training of volunteers is an important function. Training courses
are often quite structured, ranging from short introductory to intensive
12-month courses. Some galleries and museums hold weekly or fortnightly
sessions for their volunteers involving them in a range of activities.
There is a vast army of volunteers in museums and galleries who
are learning new skills or continuing to use their specialist skills
long after they cease paid work. They might be in conservation departments,
restoring or maintaining historic boats, for example; or they might
be in museum research libraries with curators doing a whole host of
vital tasks. [10]
The larger galleries and museums usually operate quite sophisticated
education programs in associated with their general and special exhibitions.
They are often free of charge or provided on a cost-recovery basis and
there are usually concessions granted to cardholders.
Special needs are also taken into account. Many centres have aids
for the hearing impaired or services for the visually impaired, and
so on. Many centres are developing audio tours for their collections
in several languages, so that repeat visitors can slowly build up a
very thorough knowledge of large collections. Structured series are
offered, for example, a group or program of structured talks about specialist
topics, such as the recent series conducted at the National Library
with Australian writers and the series currently offered every Tuesday
night at the National Gallery about Australian art. [11]
Many galleries and museums provide tailored programs for specialist groups,
such as Fine Arts Societies, the University of the Third Age and so on.
Outreach programs might be delivered to members and friends in galleries
or museums, to occupants in nursing homes interested in a particular craft,
and to rural women studying art.
The fourth area where museums and galleries provide structured learning
opportunities for the adult in the community is in the development of
learning resources. They take a variety of forms such as magazines, guides
to galleries and museums (some in different languages), guides to exhibitionsincluding
books, catalogues and videos which can be borrowed or bought for sale.
The major cultural institutions often produce floppy disks about exhibitions,
CD-ROMs, radio and television programs, as well as many articles in the
popular press.
The many regional galleries and museums make a notable contribution to
adult education in their regions, but also contribute more broadly with
the increasing number of `cultural tourists' seeking out opportunities
to learn about local history, environmental and cultural matters. The
regional museum at Albury-Wodonga is typical of the modest but effective
institutions which welcome thousands of Australians through their doors
each year.
We are the very tangible history lesson, and that is reflected
in the wide variety of people who come and use our service. We provide...
a cultural background to the entire region... We provide insight into
history from early times and Aboriginal history. We look at migrant
history through the Bonegilla Migrant Reception Centre, which was here,
and we also look at various cultural things around it. We have just
done a series of craft based exhibitions with the Albury-Wodonga Arts
Council, and that has been a most successful exercise.
We try to support anything we have with activities that people
might want to be involved in: workshop types of activities, what we
call `public programs', for want of a better term, which are attended
in varying degrees by the community... People come because they get
to a stage where they want to learn more about something. [12]
An indication of the extent of the contribution made to the general informal
education of Australians may be gleaned from the statistics which demonstrate
a high level of attendance at, and involvement in, galleries and museums.
Very briefly, attendances at Australia's 283 larger museums and
galleries in 1993-94 totalled 16.4 million, with an additional 2.5 million
people attending travelling exhibitions shown at another 18 museums
and galleries. Between 1990 and 1994, 33 new art galleries and museums
were opened in Australia. Between 1992 and 1994, there was a 16 per cent
increase in the number of exhibitions shown in museums and art galleries.
[13]
Perhaps the most revealing statement of the state of play with regard
to the educational role of galleries and museums was provided in evidence
by the Education Manager of the National Gallery:
The museum or gallery today encourages debate. It is no longer
a temple; it is very much a forum. [14]
Public education
The term `public education' refers to educational activities, usually
sponsored by government agencies, which are designed to promote awareness,
understanding and occasionally the skills of citizens in relation to important
issues in the public arena. A typical example is health educationLife
Be In It, or AIDS education for example. All governments are gradually
spending more on educating citizens to attend more carefully to their
own health and fitness, through exercise, stress management, good nutrition
and so on. Environmental education is another area of public education
which has received considerable attention over the past decade.
A survey based on 1994 Budget data from twelve Commonwealth government
portfolios suggested that `Commonwealth expenditure on public education
is in the range $110-$200 million.' [15]
The range of programs upon which these amounts have been expended is extensive,
as the following sample of topics demonstrates:
- mental illness
- Aboriginal reconciliation
- violence against women
- rural and agricultural issues
- occupational health and safety
- electoral education
- consumer rights
- marriage and family education
- breast cancer.
The essay which accompanied the above-mentioned survey raises a number
of issues which the Committee regards as relevant to the present inquiry.
For example, does the apparent increase in government expenditure on public
education campaigns amount to an acknowledgement that the resolution of
many problems confronting contemporary Australia will only come about
through the mobilisation of citizens' energies and actions. Or are such
campaigns just knee-jerk reactions to political hot spots as they emerge
onto the political landscape? And how do such issues emerge in the first
place?
The question of how much of the current public education effort is `short-term,
reactive and educationally superficial' [16]
is an important one to pose. If the motive is short term political buffering,
the strategies used will be very different from those which apply if there
is a long term commitment to change through education. To date, it seems
that governments' public education activity `has been dominated by the
mentality and methodologies of marketing, rather than education, and that
advertising agencies, rather than educationalists have designed the strategies.'
[17] The distinction between the two
approaches is essentially that between the `selling' of government decisions
and policies, and the cultivation of an informed but critical citizenry.
In the Committee's view, there is a place for both kinds of activity
in public education campaigns. However, its main concern here is the enhancement
of adult education and training. The Committee therefore emphasises the
educative approach to public campaigns, which sets out to provide relevant
information to people in ways and in contexts which are conducive to critical
reflection and informed decision-making. The Committee believes that the
ACE sector has much to offer in this respect.
There are some 2000 providers of ACE in Australia, specialising
in the initiation, design, delivery and evaluation of learning opportunities
for adults. Many of them are already substantially involved in public
education activity on their own initiative. Collectively, the ACE sector
has a capacity to partner with government in active public education
programs... This fourth sector of education is a nation-wide distribution
system managed by people with skills and experience in adult learning
processes, who work closely with their local communities and are committed
to the ideals and values of `active citizenship'... They also have a
significantly undeveloped potential for contributing to public education.
[18]
The Committee believes that it is very much in the Commonwealth's interest
to explore further the potential contribution of the ACE sector to public
education. This will require a more careful analysis of the levels of
funding being spent by government agencies on public education programs,
and of the effectiveness of the methodologies currently employed. Consideration
could then be given to the desirability, and feasibility, of better awareness
and coordination across the whole of government of the total Commonwealth
public education effort.
The Committee RECOMMENDS that the Commonwealth government:
- undertake a precise analysis and costing of the public education
activities of government departments and agencies;
- convene a national workshop of key government departments,
information agencies and representatives of the ACE sector to
explore public education practice, and the implications for
more effective and coordinated delivery of Commonwealth public
education programs.
|
Footnotes
[1] Submission no 56, vol 4, p 127 (DEETYA)
[2] Submission no 56, vol 4, p 126 (DEETYA)
[3] M D R Evans. Australian Adult Education
Survey 1994, DEET, 1995, pp 1, 11, 13, 15, 28, 29
[4] MDR Evans. Australian Adult Education
Survey 1994, p 20
[5] Submission no 34, vol 3, pp 97-98 (AAACE)
[6] Submission no 34, vol 3, p 98 (AAACE)
[7] Submission no 68, vol 5, p 66 (Australian
Library and Information Association)
[8] Submission no 50, vol 4, p 38 (Warringah
Council)
[9] Transcript of evidence, Canberra,
1 August 1996, pp 44-45 (Ms Brinton)
[10] Transcript of evidence, Canberra,
1 August 1996, p 45 (Ms Brinton)
[11] Transcript of evidence, Canberra,
1 August 1996, p 46 (Ms Brinton)
[12] Transcript of evidence, Albury,
pp 310-311 (Ms Close)
[13] Transcript of evidence, Canberra,
1 August 1996, p 45 (Ms Brinton)
[14] Transcript of evidence, Canberra,
1 August 1996, p 45 (Ms Brinton)
[15] Crombie et al. Educating the public,
p 6
[16] Crombie et al. Educating the public,
p 8
[17] Crombie et al. Educating the public,
p 8
[18] Crombie et al. Educating the public,
p 10