Standing Committee on Employment, Education
and Workplace Relations
This document has been scanned from the original printed submission.
It may contain some errors.
Submission 98
House of Representatives Standing Committee on Employment Education
and Training
Inquiry into the Appropriate Role of Institutes of Technical and Further
Education
EXECUTIVE SUMMARY
1 INTRODUCTION
2 TERM OF REFERENCE 1: THE APPROPRIATE ROLES OF INSTITUTES OF
TECHNICAL AND FURTHER EDUCATION
The structural arrangements through which TAFE NSW fulfils its roles
System-wide services supporting the roles of the TAFE institutes
Key issues in the current role of TAFE and its institutes
Changes in the TAFE vocational education profile
Further education in TAFE
General education in TAFE
Commercial activities in TAFE
Training for employment
Efficiency and funding
TAFE NSW and the training market
TAFE and vocational education in schools
TAFE regional co-operation with other providers
The future role of TAFE Institutes
Meeting the needs of industry in a changing world
Customer satisfaction with TAFE institutes
3 TERM OF REFERENCE 2: THE EXTENT TO WHICH THOSE ROLES SHOULD OVERLAP
WITH UNIVERSITIES
The interface between the sectors
Co-operative arrangements
Sharing resources
Research
The benefits of strategic co-operation
Pathways
Recognition and credit transfer
The Australian Qualifications Framework and TAFE delivery of higher
education
University admissions criteria
4 CONCLUSION
5 ATTACHMENT A - The New South Wales Marketing Commitment
EXECUTIVE SUMMARY
New South Wales is committed to playing a major role in ensuring that
all Australians have fair and equitable access to training programs of
the highest quality, to create not only their own future but that of the
nation. We are working in partnership with industry to ensure the training
system is relevant, flexible and innovative, to position NSW at the leading
edge of social and economic development.
To that end, we are promoting the growth of a vigorous training market,
in which the demands of industry, employers and individuals are fully
satisfied. Training organisations are working actively with their clients
to ensure the skill needs of industry are met. We are at the forefront
of implementation of the National Training Framework, as participants
in a national training market not limited by State and Territory boundaries.
The maintenance of a strong public provision in vocational education
and training is regarded by the NSW Government as vital to the growth
and vigour of this market. It is also vital to achieving NSW regional
development priorities by assuring support for economic development in
the State, fostering the growth of vocational skills and knowledge in
the community and meeting community service obligations.
TAFE NSW institutes deliver quality, customer focused vocational education
and training services, that are both efficient and responsive to regional
development needs. This is achieved in an environment of strategic co-operation
with the University and school sectors.
The focus for discussion of the role of TAFE NSW institutes is therefore
provided by the imperatives of national vocational education and training
policy, specifically
- responsiveness to industry and customer needs
- the need for growth in training
and the key elements of vocational education and training policy which
are particular to New South Wales:
- a commitment to strengthening and maintaining public provision of
vocational education and training
- the achievement of effective resource management to improve education
and training outcomes
- social justice
- strategic co-operation and productive competition
- educational quality
- ensuring that vocational education and training supports the needs
of the State's distinctive regions.
The future of TAFE institutes in NSW is envisaged as quasi-independent
institutes, carrying a specified level of delegation and accountable
for performing against clearly specified outcomes, and competing vigorously
with other providers in the training market. Shared curriculum development
and curriculum resources will guarantee consistency of quality across
the State, thus assuring the integrity and standard of the TAFE testamurs
each institute will award.
This submission responds to the first term of reference on the role
of TAFE by exploring a number of issues that are relevant to any consideration
of the appropriateness of the current TAFE role. These include far
reaching changes in the workplace, the development of new industries,
the strengthening of vocational education in the schools, the operation
of TAFE in a competitive environment, regional issues such as cross
border cooperation and the continuing responsibility of TAFE to meet
some non vocational community educational needs.
It concludes that there will continue to be an important role for
TAFE as we move into a period of strongly expanding demand for vocational
education and training driven by the knowledge economy, changing technology,
the link between education and training and income and the increasing
outsourcing by firms of their training.
The precise role that TAFE will play in this era will be determined
by strategic and commercial decisions driven by developments in the
economy, continuing change in the workplace and a variety of other
factors including changes in public policy.
In making decisions in this environment, TAFE will continue to be
guided by government commitments to community service obligations,
including the continuing provision of opportunities for those members
of the community who are at risk; particularly, those at risk through
their lack of a sound general education or the lack of the specific
knowledge and skills that will make them employable.
In this new era, TAFE flexibility and responsiveness will be more
important than ever, as will TAFE efficiency; however, responsiveness
and efficiency while necessary will not be sufficient. TAFE will need
quality curricula and quality teaching if it is to satisfy the aspirations
of the community and maintain its leadership in vocational education
and training.
There are important questions about the relationship between TAFE
and higher education, as set out in the Inquiry's second term of reference.
This has been given added relevance by the release of the final report
of the Review of Higher Education Financing and Policy, chaired by
Roderick West.
The NSW submission to the "West Review" discussion paper
"Learning for Life" stated that NSW believes there is merit
in TAFE NSW, through its network of institutes exploring the provision
of innovative awards, which may include appropriate degrees either
in conjunction with Universities or separately. This important issue
is currently being examined within the NSW education and training
portfolio.
The submission cites a range of examples of excellent cooperation,
between NSW TAFE and the Universities of this state in the sharing
of resources. Such arrangements give the community a wider access
to programs than would otherwise be possible; in addition, the community
benefits from the savings that flow from these agreements.
The current selection policies and processes of Universities disadvantage
TAFE graduates. The need for further improvements in credit transfer
is raised also as another factor in the easier movement of TAFE graduates
into Universities.
TAFE will need to adjust its offerings to take more account of the
increasing number of University graduates entering its programs, so
that these students gain the maximum credit for the skills and knowledge
they bring with them.
Within the context of the terms of reference of the Committee, this
submission raises questions about the national policy framework for
vocational education and training, that could affect the ways in which
TAFE can fulfill its role.
The decision of the Commonwealth Government in 1997 not to fund further
expansion of the vocational education and training system is raised
in the submission as it will inhibit the capacity of TAFE and private
providers to respond to the vocational education and training needs
of an increasingly sophisticated New South Wales economy; in particular,
at a time when this state is increasingly emerging as the preferred
regional centre for new areas of industry and commerce.
There is a brief explanation, in the submission, of the recent changes
to the management of education in New South Wales, changes that the
Government has introduced in order to strengthen co-operation among
the sectors and to increase efficiency. It is believed that these
changes will provide a powerful stimulus for further improvements
in New South Wales TAFE.
1 INTRODUCTION
New South Wales welcomes this inquiry. It notes that the inquiry
is timely, given the recent review of higher education. It notes also
that this is the first national review of the role of TAFE since the
Kangan Inquiry of 1973.
Since its inception as a formal system in 1889, the TAFE system in
New South Wales has played a significant role in the welfare and prosperity
of this state. It has succeeded in this, not by standing still but
by growing and developing in response to the changes in the community
and in industry.
Since Kangan, not only has TAFE grown substantially but also it has
undergone major changes in its funding, organisational structures,
educational policies and educational programs. These changes have
come about through the implementation of national reforms in vocational
education and training, continuing reforms in public sector management
and TAFE's responses to the changing needs of the community and industry.
Inquiries into TAFE have occurred regularly at the state level over
the more than 100 years of its history. Most of these inquiries have
wrestled with the questions of determining an appropriate role for
TAFE and developing an approach to vocational curriculum that would
meet the needs of a changing workplace and industry development.
In responding to the terms of reference of the Inquiry, this submission
will provide a perspective on these and other issues in the light
of the demands that will be placed on public vocational education
as we move beyond this century.
2 TERM OF REFERENCE 1: THE APPROPRIATE ROLES OF INSTITUTES
OF TECHNICAL AND FURTHER EDUCATION
2.1 The structural arrangements through which TAFE NSW fulfils
its roles
The role of TAFE NSW and its structures have been subject to two
reviews during the term of the present Government. The 1995 review
included an examination of the levels of authority and autonomy of
institutes and their functional relationships to TAFE's corporate
services area. This review involved the development of models, consultation
with stakeholders within the New South Wales vocational education
and training sector and the consideration of approaches to managing
the delivery of publicly funded vocational education and training
in other states and territories.
The decision taken as a consequence of this review was for institutes
to have a high level of delegated authority with system coherence
in order to achieve economies of scale on the one hand and responsiveness
to local customers and regional development needs on the other.
In December 1997, the Government created the Department of Education
and Training, which brought school and vocational education and training
together under a single organisation. TAFE institutes retain their
high level of delegated authority, and TAFE system coherence is sustained
by state-wide policy frameworks and support services in such areas
as curriculum, equity and student services
The integration of strategic and support services for all sectors
of education and training at the State Office level has reduced duplication,
increased efficiency and enhanced system coherence and student pathways
between the sectors.
The Minister for Education and Training is advised by the TAFE Commission
Board established under the Technical and Further Education Commission
Act, 1990. The function of the Board is to review and make recommendations
to the Minister on a range of policy and planning issues relating
to services, the efficiency and effectiveness of operations and management
of services, commercial activities and the relationship of TAFE with
other education sectors.
Each TAFE institute in New South Wales is led by a Director, who
is supported by a senior management team. TAFE NSW institutes have
advisory councils drawn from industry and the community whose role
is to focus and enhance the planning and delivery of courses and services,
to ensure that they meet the requirements of their local industry,
students and communities.
The institutes operate in a co-operative framework in accordance
with state-wide policies and procedures.
2.2 System-wide services supporting the roles of the TAFE institutes
A range of state-wide services is provided to institute staff and
students to achieve more customer focused, responsive delivery. Some
of these services are aimed at helping students during their time
of study in TAFE, others are about ensuring consistent, high quality
courses and teaching programs to TAFE students in colleges, enterprises
or overseas locations. The state-wide services ensure economies of
scale in the application of resources.
2.3 Key issues in the current role of TAFE and its institutes
In 1997, 424,450 students enrolled in TAFE courses, compared with
about 1 million students in NSW schools and 198,000 in higher education.
At a national level, TAFE NSW is the largest provider of workforce
training in Australia as well as a substantial provider of other educational
programs.
Though the priorities for TAFE are set by the State, TAFE operates
within national policies and practices that flow from the implementation
of the ANTA Agreement to which all states are signatories.
The TAFE system in NSW is also governed by a charter which requires
it to "provide technical, further, basic and pre-vocational education".
In responding to this charter, it must:
- meet the needs of individuals and the skill needs of the workforce
- recognise the changing nature of the working environment and
the need for new skills and retraining
- provide programs that are relevant to the needs of industry,
business, students and other groups
- promote effective and efficient use of resources through co-operation
with other providers.
2.3.1 Changes in the TAFE vocational education profile
The responsiveness of the TAFE system to community demand for vocational
education opportunities is demonstrated by the growth in mixture of
its programs over its history and in the continuous introduction of
new courses into the TAFE portfolio. This in recent years has seen
in New South Wales the introduction of courses in areas such as aquaculture,
environmental practice in the building industry, multi media and telecommunications.
Some of the more dramatic increases in enrolments in the period 1994
to 1997 have occurred in information technology, an increase of 18.5%;
personal and community services, an increase of 16.3%; arts and media,
an increase of 25.5%.
The increase in student numbers in full fee courses has been dramatically
increasing by 136.6 % in the same period.
This was not simply additional effort as can be seen in the decline
of a variety
of traditional vocational programs and in the reconfiguration of
the further education aspect of some TAFE activities eg. by repositioning
such programs as home fashion classes to be more aligned with industry
as garment production.
2.3.2 Further education in TAFE
In 1991 this part of TAFE's operations in NSW was transferred to
the Adult and Community Education sector which has taken over all
of the further education programs from TAFE.
2.3.3 General education in TAFE
Though further education is no longer a priority, NSW TAFE has maintained
a strong presence in the delivery of general education for those seeking
"second chance" education through its Outreach and similar
provision. It has done so because of the great success of this program
over many years in providing the opportunity for a wide variety of
adults to renew their education and move into vocational courses enabling
them to re-establish themselves in employment.
2.3.4 Commercial activities in TAFE
An area in which TAFE institutes have clearly changed their role
over recent years is in their commercial activities. These have enabled
institutes to offer a range of tailor made programs and services that
could not be provided for within their resources. This has had the
benefit of opening up opportunities for TAFE staff to acquire up-to-date
knowledge of developments in industry and exposure to new production
processes, equipment and new products.
The hundreds of full fee courses, paid consultancy services and materials
development programs demonstrate the willingness of individuals and
companies to pay for TAFE services even when there are alternative
suppliers.
The provision of custom made programs designed to meet very specific
needs has resulted in different forms of delivery e.g. the delivery
by satellite of training for State Rail, the provision of training
by internet for the fire services and the provision of training on
the Olympic site.
This specialised training has been provided by individual institutes
for a range of customers as diverse as McDonalds, Kent Brewery, ICI,
Nortel, AMP, NRMA, Toyota, Alcatel, MM Cables, Coca Cola Amatil and
so on.
TAFE NSW has won major national training contracts in competition
with other TAFE providers and with private providers. These include
programs for the armed services and for Telstra.
Recently, in the face of fierce competition from the private sector
as well as the public sector, TAFE NSW gained the right of being the
official supplier of training services to employees and volunteers
of the 2000 Olympic Games.
TAFE NSW has established itself in the overseas market with its success
in winning a variety of contracts in vocational education and training
in the Middle East, Asia, South-East Asia, the Pacific and Central
America.
These contracts have been won against competition from other Australian
providers and the Germans, British, Canadians and Americans; in addition,
to these programs, that require on site delivery, there has been a
steady growth in the number of overseas students enrolling in TAFE
institutes in New South Wales.
2.3.5 Training for employment
NSW recognises students as central to the business of vocational
education and training. Training is especially important for those
for who are seeking employment, and those who are employed but seek
part time places to learn new skills so that they can change their
jobs. These are the majority of TAFE students.
Full time pre-employment programs do not produce graduates who are
instantly workplace competent. What has always been well understood
is that such graduates can within a reasonable time in the workplace
be brought up to workplace speed. These programs would provide an
important source of labour for employers and supplement on the job
training as well as providing opportunities for some young people
that otherwise would have difficulty gaining employment.
The demand for full time programs over many years is clear evidence
of the public perception of these programs. The success, over many
years, of private and public providers placing graduates from such
programs into employment is evidence of the recognition by employers
of the effectiveness of this form of education.
2.3.6 Efficiency and funding
A commitment to efficiency in the public sector is part of the policy
platform of the NSW Government. Through public sector reform and improved
management practice the Government has sought to increase both the
quality and quantum of services delivered through agencies such as
TAFE NSW. This process is ongoing.
There are significant differences, however, between the State and
the Commonwealth on how the future development of an efficient vocational
education and training system is to be managed.
In recent times, the Commonwealth has made significant funding reductions
in the sector nationally, through reductions to the Australian National
Training Authority, cuts to labour market programs, and the decision
to require States and Territories to fund further growth in the system
out of efficiencies. Such reductions obviously have significant implications
for TAFE institutes and are a source of concern to the State.
New South Wales considers that value for money and effectiveness
are at least as important a consideration as price in determining
efficiency. Further, training offered through both public and private
providers must be appropriate to the State's demographic and industry
profiles (which in New South Wales are both very diverse), its culture
and the cost structures of the State.
The notion that achieving extra efficiencies will automatically make
available resources to fund growth is questioned. While some growth
will be funded through the creation of efficiencies, there are areas
for growth which cannot be funded through efficiencies.
This may be because of the scale of the growth required as in the
need, for example, to provide institutionally based pathways to an
AQF qualification for young people out of work. It may also be because
of the magnitude of capital expenditure required to meet particular
industry needs, as in some new technology areas. In some cases operational
effectiveness will generate savings to the system by producing better
customer service; eg the placement by TAFE NSW of its course information
handbook on the internet.
2.3.7 TAFE NSW and the training market
On 20 May 1998, the NSW Minister for Education and Training announced
the NSW Training Market Commitment (see Attachment A). The commitment
describes the role NSW proposes to play in supporting a vocational
training market by meeting the needs of industry, employers and those
undertaking technical and further education. It springs from consultations
with stakeholders in vocational education and training and will fuel
TAFE NSW's services to the public, employers, apprentices, trainees
and the community.
In brief, the commitment states that NSW will not be beaten on value,
relevance or quality of training; that we will meet, or better the
contestable market mechanisms which have been set up elsewhere; that
we will ensure training delivered in NSW is tailored to meet the needs
of the client and is designed to develop the skills that industry
needs; and that we will provide comprehensive, accurate and timely
information about training options to all clients.
The principles of service quality and education and training for
all underpin the NSW efforts to be more effective, to deliver tangible
benefits and to provide a world class service to the consumers of
training.
2.3.8 TAFE and vocational education in the schools
There were 38,000 school students enrolled in accredited vocational
education courses in NSW in 1997, of whom 18,000 were being taught
by TAFE staff. TAFE has provided this service to the school system,
both government and non-government, since 1985.
While much has been achieved, the current provision of vocational
education and training (VET) in schools is less than perfect. This
is the case in all States, not just NSW. There is criticism by industry
of the quality and experience of teachers and of the standard and
relevance of school facilities for vocational training. School courses
do not clearly link with the new regulation and training package regimes.
Few progress much beyond AQF Level 1. Drop out rates are high, and
in general those students who include vocational education in their
Higher School Certificates perform below the norm. Throughout Australia,
VET in schools has often been driven by well intentioned supply siders;
it has not been industry driven or had the resources to be particularly
market responsive.
Further, there is Australia's long history, inherited from the UK,
of demarcation between education and training, with technical training
as a second class option. VET programs have low status for University
entrance requirement purposes. Few school teachers understand vocational
education and training or have a substantial commitment to it. General
education leading to University has been a potent vehicle for sustaining
the Australian dream of occupational and class mobility.
The notion of two vocational destinies is supported by deep prejudices
and misconceptions conferring arbitrary and different values on the
ways human beings learn and understand.
We believe there is no respectable case to be made in learning or
educational theory for separate general education and VET packages
at school level, nor are there other valid arguments for such a division.
Comprehensive education enhances both.
The new NSW Department of Education and Training (DET), which provides
a single management structure for both schools and TAFE, now has the
opportunity to work across the board with TAFE, Group Training Companies,
employers, regions, schools, parents and communities to provide a
world class vocational education and training spring board for young
people across NSW.
School and TAFE facilities, staff, curriculum resources and expertise
are now part of an integrated education and training agency. The potential
flexibility in administration and resource allocation, the concentration
of expertise and the streamlining of professional services and support
made possible by this single organisation have the capacity to greatly
improve outcomes for students and other clients, including industry.
There is an exciting opportunity for the introduction of industry
driven vocational education for all schools, if the various stakeholders
in education and training are courageous and far sighted enough to
grasp it.
The New South Wales Government's white paper - Securing their
future: Recommendations for the Reform of the Higher School Certificate
- released in 1997, repositions vocational education and training
courses in the HSC. Completion of the HSC and the first year of a
traineeship is now probably within the reach of all.
The reforms to the Higher School Certificate support the policy that
public provision of vocational education and training for NSW school
students is appropriate for all students in the Higher School
Certificate and should be accessible to all, including those who move
from secondary to higher education. It is not designed only for students
who are defined as 'non-academic'. The development of broader skills
is an integral part of vocational courses.
The establishment of DET allows us to reposition government schools
and TAFE, in partnership, to have a central role in the vocational
education and training system in New South Wales, without compromising
general education in public schools. We will focus the Department's
infrastructure for vocational education and training (recognition;
programs; planning; funding) on establishing real pathways for students
in government schools, without preventing access to programs for non-government
schools and private providers where appropriate. We will phase out
both the current school delivered and Joint Secondary School TAFE
courses, and replace them with new programs drawn from appropriate
industry areas, based on AQF outcomes and training packages as available.
Drawing on an integrated properties portfolio and a single staffing
resource, we propose to provide access for students to specialist
vocational education and training expertise and facilities across
the state, including through the Open Training and Education Network
(OTEN).
2.3.9 TAFE regional co-operation with other providers
In the second part of this submission, there is a detailed discussion
of the co-operative arrangements between TAFE in New South Wales and
the Universities.
Apart from this co-operation, there are other situations in which
it is in the public interest that TAFE co-operate closely with other
educational providers. Two good examples of this are the State border
areas of Albury-Wodonga and Tweed Heads-Coolangatta.
In 1994 ANTA funded a cross border planning project to examine the
needs for vocational education and training in the north east of Victoria
and the adjacent southern region of New South Wales.
The subsequent report recommended that a memorandum of understanding
be created between the then Wangaratta Institute of TAFE, Wodonga
Institute of TAFE and the Albury campus of the Riverina Institute
of TAFE. Subsequently, Wangaratta declined to proceed with the negotiations.
The agreement that covered the border operations of the other two
institutes was signed in 1996 by the two State ministers. It called
for co-operation between the two TAFE bodies in planning and delivery,
resource use and the tendering for contracts of training.
This agreement has led to a wide range of co-operative activities
and resource sharing e.g. in promotion, staff exchanges, curriculum
and materials development, planning of physical resources and course
provision.
As proof of its commitment to the spirit of the agreement, the NSW
government has placed no restrictions on interstate providers tendering
for NSW traineeship funding.
Though there has been cross border movement of students between New
South Wales and Queensland for a long time, it was ANTA special funding
in 1994 that saw a more formal move towards cross border co-operation
in the Tweed Heads-Coolangatta.
This led to a range of initiatives, including joint operations at
Coolangatta, joint staff development programs, joint curriculum development
and planning.
As part of the co-operative arrangements, NSW has established relationships
with Griffith University to supplement those with Southern Cross and
New England.
There will always be parochial tensions over cross border operations.
Despite these occasional flurries, New South Wales is convinced that
with goodwill the interests of the communities on both sides of any
border can be advanced through sensible co-operation.
2.4 The future role of TAFE institutes
It is envisaged that the eleven NSW TAFE institutes (excluding OTEN)
would each become a Quality Endorsed Training Organisation under the
Australian Recognition Framework. They would carry a level of delegated
responsibilities and would be accountable for clearly specified performance
outcomes to be reported on annually.
Over their long history, TAFE institutes have been the most accessible
and most flexible of the education and training providers. They have
played a critical role in anticipating and responding to a broad range
of industry and community needs, with quality assured educational
programs ranging from basic vocational and general education skills
to higher education programs for technician, managerial and professional
level employment.
In their envisaged future role as Quality Endorsed Training Organisations,
the institutes would function in an environment of collaborative independence.
They would share in the co-operative development of curriculum and
curriculum materials through the Educational Services Divisions, thus
ensuring maintenance of the consistent high quality of curriculum
and curriculum support across institutes which has played such an
important part in TAFE's success. They would also market themselves
under the TAFE brand and logo and offer awards in the form of TAFE
testamurs.
2.4.1 Meeting the needs of industry in a changing world
The development of industry competency standards is a great step
forward for those providing vocational education and training. Despite
this positive development, there still remain problems in determining
and verifying the standards that are appropriate to today's industry
practice. An issue that remains is how appropriate these standards
will be in meeting the emerging needs of a particular industry.
A related issue is the training problem that arises for emerging
industries when they find that public training resources are not available
to them as readily as they would want. This problem is a significant
cause of the negative remarks that are heard from industry about TAFE's
lack of responsiveness.
In recent times, TAFE has tried a variety of approaches to respond
to these problems. As an example, New South Wales, with Commonwealth
support, has made an innovative attempt to respond to training needs
in the rapidly developing and expanding telecommunications industry.
This has led to the development on a TAFE campus of the Optus Communications
Training Centre. The presence of the Centre on a TAFE campus makes
available to TAFE teachers and students $14 million of state of the
art equipment as well as the expertise of Optus staff. Optus benefits
from having the college facilities and services available to its trainees.
The increasing training presence of TAFE staff in workplaces is a
further sign of the attempts by TAFE to come to grips with emerging
technologies and their skill requirements.
2.4.2 Customer satisfaction with TAFE institutes
This evidence emerges through the national studies of student satisfaction
on the one hand and employer satisfaction on the other. Both of these
present a very positive view of TAFE. They support the results of
similar studies that have been carried out over the years that have
concentrated on TAFE within the boundaries of the state concerned.
A recent development in such studies has been the use of independent
consultants to produce results that can be bench-marked nationally
by institute. A number of independent studies have been carried out
by Service Management of Australia and have looked at a range of institutes
in TAFE NSW.
The overall rating achieved by Western Institute of TAFE NSW was
95.4% with New England Institute of TAFE achieving a rating of 94.5%
satisfaction by students. Other institutes which have been surveyed
and achieved high ratings are South Western Sydney with 87.1%, OTEN
with 74% and Northern Sydney Institute which has raised its satisfaction
index over the 1995 to 1997 period.
Both the New England and South Western Sydney Institutes of TAFE
recorded high level of satisfaction by business clients - 85.2% and
79.6% respectively.
The overall ratings received by these institutes are the highest
rating obtained among the twenty-six institutes in which the survey
has been conducted. Perhaps of even more interest is the fact that
the institutes were rated by their students as the best service provider
when asked to choose among TAFE, banks, fast food providers, supermarkets,
high schools and Universities.
The most important point to emerge from these studies is the consistent
high regard in which TAFE students across Australia hold the education
they receive at TAFE and the staff and institutions that deliver it.
The profiles of the students e.g. their maturity and employment, add
force to the value of these results.
3 TERM OF REFERENCE 2 :THE EXTENT TO WHICH THOSE
ROLES SHOULD OVERLAP WITH UNIVERSITIES
3.1 The interface between the sectors
The relationship between the higher education and vocational education
and training sectors in New South Wales has been strategic and dynamic.
It has historical links given that both the University of New South
Wales and the University of Technology, Sydney grew out of the technical
education system.
Not only did technical education in New South Wales give birth to
these Universities; the technical education system provided professional
level vocational education for major sections of Australian commerce
and industry up until the creation of the Colleges of Advanced Education.
In some fields, such as Podiatry, it was providing that level of education
until very recently.
When considering therefore any possible role for TAFE in higher education,
it needs to be emphasised that TAFE was producing professionally trained
workers for some fifty years before most of the Universities in Australia
came into existence. These graduates demonstrated the quality of their
education in TAFE by their successful performance at the highest levels
in our community.
There are currently three major issues relating to the interface
of the sectors: the first relates to pathways and credit transfer
between the sectors, the second to the provision of higher level vocational
education, (it is in this area that overlaps are most likely to occur)
and the third is in the area of the sharing and joint use of resources.
It is our view that the most useful way to address these issues is
from the perspective of strategic co-operation which allows for the
most efficient use of scarce resources. This includes building a flexible
system of lifelong learning, characterised by flexible pathways between
the sectors.
By implementing the principle of strategic co-operation between Universities
and TAFE institutes, sectoral boundaries and "overlaps"
fade in significance. This does not mean however that there are and
there should continue to be significant differences between the sectors.
The prime difference relates to their core roles, with Universities
responsible for generating and transferring knowledge which impacts
in the economic, intellectual, social and cultural spheres, while
TAFE institutes focus on vocational education and training for operative,
trade and technician level occupations and "second chance"
basic and general education. The areas of overlap are peripheral to
the core business of the sectors, and in general the sectors operate
in a complementary rather than competitive mode.
Differences exist with respect to funding sources and arrangements
and legislative frameworks. The vocational education and training
sector, for example, operates within the framework of the ANTA Agreement
and the VET Funding Act, while the higher education sector
operates within the Higher Education Funding Act and related
Commonwealth legislation. In addition, each University is established
under its own State legislation and has significant control over its
assets and estates.
The differences between the sectors can create barriers to strategic
co-operation. Despite this, it has been possible through goodwill
on all sides to create quite complex multi-sector arrangements such
as those at Coffs Harbour, Ourimbah and Nirimba.
3.2 Co-operative Arrangements
Strategic collaboration and joint activity between TAFE institutes
and Universities is illustrated by the following examples.
3.2.1 Sharing Resources
TAFE NSW institutes have established a range of links with Universities
where each shares the same geographical or catchment areas. Formal
agreements and co-operative mechanisms have been established to guide
the sharing of resources now in use as well as facilities under construction.
Some examples of this are:
- joint developments, such as the Central Coast Campus at Ourimbah
(a joint development between the University of Newcastle, the Hunter
Institute of Technology, the Central Coast Community College and
the Central Coast Music Conservatorium) and the Coffs Harbour Education
Campus, (a joint development between North Coast Institute of TAFE,
Southern Cross University and the schools sector).
- the Sydney Institute of Technology has established a precinct
Committee with the University of Technology, Sydney under the sponsorship
of the NSW Premier; its role is to co-ordinate joint use of facilities
and articulation pathways between the sectors.
- Illawarra Institute of Technology and the University of Wollongong
have established a joint Master Planning Committee to develop the
South East Education Network which will result in shared infrastructure
and course structures at Nowra, Bateman's Bay and Bega. Both institutions
have processes in place to investigate and put into action the joint
use of facilities at Wollongong and credit transfer arrangements.
- TAFE delivery of subjects in University degree programs, including
Southern Sydney Institute delivering subjects in degree programs
such as practical mechanical air frame structures classes for the
Universities of NSW and Sydney in the Bachelor of Aeronautical Engineering,
and practical engineering modules for the University of NSW Mechanical
Engineering degree.
- the Nirimba Education Precinct, in which the University of Western
Sydney, the Western Sydney Institute of TAFE, the former Department
of School Education and the Catholic Education Office are partners.
The shared campus arrangements will provide access to formal University
and TAFE programs for HSC students on a single, integrated site.
- the South Western Sydney Institute and the University of Western
Sydney, Macarthur, are co-operating in the establishment of a Commercial
Education and Training Centre in Liverpool.
3.2.2 Research
The National Centre for Vocational Education Research operates from
sites at the University of Melbourne and at the Northern Sydney Institute
of TAFE. The Centre concentrates on research into the nature of competency
assessment, workplace assessment, assessor skills and knowledge.
The success of this arrangement demonstrates the value of co-operation.
While TAFE would be prepared to enter into similar arrangements with
other Universities where it saw that this would result in tangible
benefits for TAFE and its students, TAFE has no desire to undertake
a major program of research in its own right.
TAFE staff in NSW however are clearly interested in the benefits
of research that might flow to their own areas and have therefore
formed a TAFE Research Association.
3.3 The
benefits of strategic co-operation
There is great value in strategic co-operation between the sectors.
Joint educational initiatives of the kind described can produce significant
benefits for students in that they:
- enhance education and training opportunities in regional areas,
through dual qualifications, innovative jointly developed curriculum,
and collaborative teaching, professional development and research;
- provide opportunities for virtual cross-sectoral campuses across
the State, which will raise the participation rate in higher education
in areas which currently do not have access to higher education
facilities;
- enable secondary students to undertake studies at a tertiary level;
and
- improve transition and pathways between the sectors.
3.4 Pathways
The opening up of pathways between the TAFE institutes and Universities
is addressing a major area of overlap between the sectors and enabling
more cost-effective use of public and individual resources for education
and training.
There is increasing "traffic" between the sectors. Interestingly,
although traditionally movement has been from vocational education
and training to higher education, there is now a growing trend in
the other direction, which is an acknowledgment that vocational course
outcomes enhance employment opportunities. In New South Wales, for
example, University to TAFE movement currently outnumbers TAFE to
University by 6 to 1.
Enrolments in Graduate Certificate programs, that is programs that
require successful completion of a degree as an entry requirement,
increased by 119% between 1996 and 1997. These are not the only programs
in which graduates enrol in TAFE. Apart from the 19,324 graduates
who enrolled in TAFE in 1997 there were a further 10,705 students
enrolled in TAFE who had started a degree course.
3.4.1 Recognition
and credit transfer
Recognition and credit transfer arrangements are key issues that
must be addressed to improve the interface between the sectors within
the framework of maintaining quality and standards.
TAFE NSW has extensive articulation arrangements in place with Universities,
some of which attract substantial credit for TAFE courses. For example,
the University of New England grants two years advanced standing in
its three year Bachelor of Teaching (Early Childhood) program to graduates
of the TAFE Diploma in Child Studies and the University of South Australia
grants two years advanced standing in its three year Bachelor of Business
Degree to graduates of the TAFE Advanced Diploma in Hospitality Management.
A pilot program is being held during Semester 1, 1998 for credit
transfer from Universities into TAFE NSW. In the pilot, advanced standing
for up to 75% of a TAFE NSW course is offered to University graduates
in strongly correlated discipline areas. The pilot will be reviewed
subject to student demand and identification of further opportunities
for University graduates seeking to study at TAFE.
A further way of improving opportunities for University graduates
is through the availability of Graduate Certificates. These qualifications
are part of the higher education section of the Australian Qualifications
Framework but they are increasingly being provided by TAFE.
There are a number of practical and conceptual difficulties in the
way of negotiating credit transfer arrangements. For example, there
is a lingering perception among some University staff that competency-based
curriculum is necessarily educationally narrow. This is despite considerable
investment by TAFE to ensure that its curriculum is educationally
sound in terms of developing conceptual and problem-solving skills
and meeting needs of Universities to distinguish between applicants
for the purposes of admission and credit transfer.
he actual process of negotiating credit transfer - subject by subject,
institution by institution is extremely resource intensive. The New
South Wales submission to the recent Commonwealth Review of Higher
Education Financing and Policy recommended "that a streamlined
national system of credit transfer between the vocational education
and training and higher education sectors be investigated and developed."
A more streamlined approach building on the work of the AVCC Credit
Transfer project would reduce the cost of the current arrangements
and have a major impact on the ease with which students move between
the sectors. Recognition arrangements should also include readily
available, transparent and consistent recognition of prior learning
(RPL) policies and procedures.
3.4.2 The
Australian Qualifications Framework and TAFE delivery of higher education
It is important to ensure that the AQF is adhered to by all sectors
to ensure consistency in the nomenclature and standards of awards
across the education and training sectors in New South Wales.
For some time, TAFE NSW has successfully delivered high quality awards
at diploma and other levels that equate to a number of awards in the
higher education sector.
Though it is important to balance the levels of provision in TAFE,
it has to be done in the knowledge of the high credibility of these
higher awards with students and employers and the substantial level
of advanced standing granted to graduates of such TAFE NSW programs
by Universities.
A number of Universities offer awards, industry degrees, in areas
that duplicate or relate to vocational education and training. As
noted in the Review of Higher Education Finance and Policy - "Learning
for Life" - there are major questions about the relationship
between vocational education and training and higher education sectors.
In this context, NSW will explore the merits of TAFE NSW offering
innovative awards, including degrees, either in conjunction with Universities
or separately. The NSW education and training portfolio is currently
examining this issue, with a view to developing further advice to
the NSW Government on this important matter.
3.4.3
University admissions criteria
The emphasis in University admissions on secondary school performance
can work to reduce the impact of other factors such as work and life
experience and post-school study in non-University sectors. This can
disadvantage students with a vocational education and training qualification.
During the period 1991-1994, for example, TAFE NSW graduates represented
the fastest growing group of applicants for University entry, yet
their offer rate declined to 50 per cent compared to school leavers
whose offer rate rose to 70 per cent. While some Universities are
beginning to address this problem on an institution basis through
more flexible admission procedures, a more systematic approach would
assist, particularly if it could address local needs.
Recent studies (eg. Lewis, University of Wollongong), indicate that
TAFE students perform at University on average as well as, if not
better than, students from other backgrounds. Professor Don Lewis'
studies for TAFE NSW focus on 1991-1996 Universities' admissions data
for New South Wales and the ACT.
4.0
CONCLUSION
The goal of the NSW Government is for the State to have an efficient,
effective and internally competitive vocational and education and
training system, that can respond creatively to the needs of the people
of New South Wales.
The NSW TAFE institutes, operating as registered and quality endorsed
training organisations, contributing towards curriculum development,
sharing curriculum resources and awarding TAFE NSW Testamurs, are
key contributors to the substantial progress being made towards the
realisation of this goal.
It is envisaged that there will be a continuing need for a strong
public sector presence in vocational education and training, though
there will be a continued growth in the private provision of these
services.
In an era of continuous social, economic and technological change,
there will be a greater need than ever for the courses that TAFE institutes
deliver to be based not only on real workplace competencies but also
on the social and intellectual development needs of students. This
approach must emphasise the development of the key competencies and
generic skills development as essential ingredients in life long learning.
These needs will increasingly be met by a variety of delivery methods
that where possible enable the students to access their programs at
home or at work. These flexible arrangements will have to be supported
by TAFE's network of facilities, which provide the necessary equipment
and support services for programs.
TAFE institutes will need to continue to meet a range of education
and training needs of the disadvantaged in the community e.g. in basic
education and literacy. These community service program obligations
will need to be supported where appropriate by the provision of special
facilities for the disabled and child care for parents of small children.
If TAFE institutes are to continue to make a significant contribution
to the community, they will need to provide quality programs that
open up immediate opportunities to students but at the same time provide
a sound base for continuing growth and development.
In regional Australia particularly, there is potential for co-operation
between TAFE institutes and Universities. This co-operation can and
does take many forms including the establishment of joint facilities
and cross-sectoral delivery of courses. Such co-operation occurs on
the basis of maintaining the different identities of the two sectors,
reflecting their different governance and funding arrangements and
also more importantly their different aims, purposes and student populations.
Existing linkages between the sectors can be strengthened through
a range of initiatives, such as improved recognition and admissions
arrangements and joint educational developments. There is also a need
for effective joint strategic planning mechanisms that would also
provide advice on cross-sectoral matters.
TAFE can strengthen the relationship by developing more programs
that enable University graduates to obtain specific vocational skills
thus enhancing their employment potential. These programs should be
designed in such a way as to recognise fully the skills and knowledge
already gained by these graduates so that they waste no time and effort
in completing their TAFE programs.
Strengthening co-operation between TAFE institutes and the Universities
will contribute to the development of a flexible system of education
and training which recognises and sustains the core strengths and
roles of the individual sectors but which also facilitates student
pathways, student access and the most effective and equitable use
of publicly funded resources.
Back to top