2016 Rural Training Operating Model
This document has been developed by the National Rural Fire Authority (NRFA) / New
Zealand Fire Service (NZFS) and describes the operating model agreed for rural
training in 2016 following significant changes in 2015 to the rural training and funding
environment.
Background
Emergency Management Qualifications Industry Training Organisation (EMQUAL) was
formally closed in March 2015.
The Government, through the Tertiary Education Commission (TEC), made a contribution for
funding volunteer firefighter training available via the Adult and Community Education fund.
The TEC appointed Skills International (subsidiary of Skills Organisation Industry Training
Organisation) as the coordination body to manage the funding process and provide the TEC
with advice about appropriate levels of provision.
The NRFA / NZFS are represented on the governance committee of Skills International.
This funding provides a contribution towards training activities for volunteers assessed
against unit standards, which can be used as a contribution to the cost of rural training
delivery, and for training support (such as programme management, development, and
quality assurance).
The funding cannot be used for training-related activities under the NFRA that are not
assessed by unit standards.
New funding process
In November 2015, the NRFA sought training plans from the sector for 2015
(retrospectively), and for 2016 to secure the future TEC funding allocation.
On the basis of these plans, the TEC allocated up to $638,000 for 2015 and up to
$1,500,000 for 2016.
This funding can only be distributed if the proposed training credits are reported.
A process has been put in place for allocating the 2015 funding retrospectively as a
contribution to training providers who have reported credits (see Appendix Two).
The ACE funding available for 2015 and 2016 will be allocated at $6200 per Equivalent Full
Time Student (EFTS), with a ceiling set by the TEC.
Each EFTS is equivalent to 120 credits being achieved.
While the ACE funding is available to all volunteer firefighters, it was agreed by the NFRA
and NZFS for the 2015/16 calendar year, this would only be made available for rural fire
training.
Developing the 2016 operating model
A range of internal and external stakeholders (representatives from the NRFA, the National
Principal Rural Fire Officers Group, the four PTEs currently delivering training and
assessment to rural firefighters, the Skills Organisation ITO, and staff from NZ Qualifications
Authority (NZQA) and TEC) were consulted in November and December 2015.
A full list of people consulted in the writing of this report is provided in Appendix one.
Following these initial discussions, a workshop with a selection of Rural Fire Officers was
held in Wellington in December 2015.
The intended aim of the workshop was to develop a skeleton model for delivering rural fire
training for 2016.
The following summarise the key responses received during consultation:
• PRFOs expressed frustration with the EMQUAL ITO model of the past ten years, the
ITO casual reporting credit fee ($5 per credit), and a lack of confidence in the
capacity or capability of the new ITO (the Skills Organisation) to provide an
appropriate level of industry expertise, or service delivery, to support the
development of qualifications, moderation of assessment, and the secure and prompt
reporting of credit achievement to NZQA.
• Current funding for training delivery was not viewed as being particularly problematic,
especially at the more basic level up to crew leader.
• PRFOs noted training schedules are already in place for 2016 and scheduled training
should be free to continue seamlessly with minimal interference or bureaucracy.
• PRFOs reported challenges regarding their capacity to deliver training and/or to
develop new training resources.
• PRFOs noted gaps in training currently delivered, and the barriers to bridging those
gaps. In particular, the absence of any nationally co-ordinated training courses,
particularly at higher levels, and/or the absence of any course materials means there
are many positions within the management structure where no training occurs.
• The new operating model would need to support, and align with, how training and
assessment is currently delivered to volunteer rural firefighters in individual regions.
This includes for some regions a strong reliance on PTEs (including some delivery
through PTEs).
• PRFOs would like to see more centralised oversight of training across the rural
sector (not just in relation to unit standard assessment).
Overall, the PRFOs requested that the NRFA use this opportunity to take back its ownership
and direction for training. This option is possible as the NFRA / NZFS holds the status of a
Government Training Establishment (GTE).
As a GTE, The NFRA/NZFS can, if it chooses to, undertake most of the functions of an ITO
including: credit reporting, appointment of trainers, training programming and materials,
assessment practice, and quality assurance.
Following the strong advice from the sector, this is the direction followed for the development
of the 2016 operating model.
As an outcome of the Fire Services review, new resources will be required to manage
training quality for the entire sector (for urban and rural paid and volunteer fire-fighters).
While the current situation provides opportunities to identify and exploit potential synergies
between urban and rural training, the Education Services Team within the NZFS does not
have current spare capacity, or funding, to provide additional service and support, to deliver
required training services to the rural fire sector over 2016.
The 2016 Operating Model
As a result of the consultation process, the 2016 operating model will:
(i) Use existing GTE processes to certify sufficient individual trainers to conduct training
and assessment of paid and volunteer rural fire-fighters. These GTE trainers will be
certified within a specified scope and subject to attestation by a PRFO in relation to
their suitability to undertake the role.
(ii) Utilise the fund to reimburse regions for training delivered by certified trainers, and
registered PTEs, under certain conditions and agreed process for funding
distribution.
(iii) Develop and co-ordinate the delivery of a schedule of regional and national level
training courses based on agreed priorities and develop the resources required to
deliver this training.
How this training model will work at the national, regional, or local level is outlined in Table
One. The GTE will be engaged in various ways at all levels. The option of utilising the Skills
Organisation will still be available if preferred.
Training delivery and use of PTEs
The use of PTEs is already widespread across the sector. In some regions the majority of
training appears to be delivered by one of four registered PTEs1.
Each of these PTEs can be contracted to deliver rural training under the fund as they are
already subject to quality assurance mechanisms, including as external evaluation and
review by NZQA, and national external moderation by standard setting bodies with
responsibility for standards included in emergency management training.
TEC has confirmed that other PTEs may be funded out of this arrangement, provided there
is a clear and transparent audit trail to confirm payments are utilised for the intended
purpose i.e. for training and unit standard assessment of volunteer firefighters.
Under this arrangement:
• RFA’s would be reimbursed for training and assessment delivered by certified GTE
trainers, on an agreed pro-rata basis, provided the training and assessment is
identified in an approved RFA training plan, and the assessment can be verified as
having been completed based on credits reported.
• RFA’s would be reimbursed for training and assessment delivered by PTEs under
their own accreditation, on an agreed pro-rata basis, provided the training and
assessment is identified in an approved regional training plan, and the assessment
can be verified as having been completed based on credits reported.
• No other individual person, PTE, or other organisation can be sub-contracted to
deliver training and assessment that is supported in any way by TEC funding.
1
Fire Rescue and First Response (Auckland), Fire and Safety Training (Timaru), Industry Training Works (Central North
Island), Fire and Safety Training (Wellington).
Table one: rural training model for 2016
Tier
Co-ordinated by
Delivered by
Content
Frequency
NationalFire Services
Education Services
/ GTE
-
GTE trainer, usually the national
subject matter expert
GTE reports credits to NZQA
Highly specialised
e.g. Fire Investigation
(standard 10615)
Delivered annually or
bi-annually, depending
on the topic
GTE training teams
Each team of trainers delivers the
same course throughout the regions
Trainers have some responsibility for
the development and ongoing
maintenance of training materials
GTE reports credits to NZQA
Medium level
complexity
e.g.
Lead Heavy Machinery
(standard 3292)
Each course delivered
annually across a
number of regions
RegionalFire Services
Education Services
/ GTE
-
RFA’s
PRFO (or a
delegated deputy
with responsibility
for training)
Courses or training scheduled regionally,
and delivered by:
- GTE-certified trainers using generic
NRFA-developed materials
- GTE reports credits to NZQA
- a registered PTE
- PTE uses their own materials
- PTE reports credits to NZQA
Operational
e.g. Lead a Crew,
(standard 3291)
As required, according
to regional training
needs analysis
Brigades and
VRFF’s
CFO and VRFF
Chief
Courses or training scheduled on-station
or regionally, and delivered by:
- GTE-certified trainers using generic
NRFA-developed materials
- Resourced within the brigade
- Mentored by senior staff at the district
level
- GTE reports credits to NZQA
Basic training
e.g. Suppress
vegetation fire with
water and additives,
standard 3287)
As required, according
to regional training
needs analysis
Note: The option of using the Skills Organisation ITO will still be available if preferred.
Likely numbers of
learners
A limited number of
individuals, maybe 10-20 in
total on an annual or
biannual basis
- 2-5 deliveries of the
same course at
different regions
throughout NZ
- 10-20 learners per
course, depending on
topic
- 60-100+ total annually
100-300
200-300
Implementation
The implementation of the 2016 rural training model will require resourcing to:
• utilise the GTE to centralise oversight of rural volunteer training from 2016;
• utilise the GTE to centralise leadership of specialist training and training of medium
levels of complexity by facilitating and co-ordinating a programme for that training,
including identification of training teams; and development of learning and
assessment resources for training at these levels;
• facilitate the reporting of credit achievement to NZQA via the GTE from 2016; and
• provide meaningful support for, and introduce in-house quality assurance of, the
training and assessment delivered to rural volunteer firefighters.
In order to achieve these outcomes, the following activities will need to be completed:
1. Complete the stock take of existing resources (including those previously developed
by external organisations such as Telford Polytechnic) to establish:
a. what resources currently exist which are fit-for-purpose and ready for use;
b. what resources currently exist which are ready for use, but require development
to better reflect operational standards and procedures, and be more user friendly
for learners and trainers; and
c. what resources do not exist and need to be developed to facilitate training from
2016.
2. Use existing GTE procedures to certify sufficient trainers for the purpose of training
and assessment at station and RFA level, to report credit achievement to NZQA via
the GTE, within a specified scope and subject to attestation by a PRFO of the
suitability of the individual to undertake the role.
3. Develop a 2016-2017 training schedule of GTE delivered courses for middle-high
level training, including identification and appointment of teams of trainers.
4. Develop a process for managing EM (ACE) enrolment of all rural learners, including
a verification of each learner’s volunteer status.
5. Build capacity within the NZFS Learning Management System for reporting credit
achievement via the GTE to NZQA, and SDR reporting to TEC, for the rural sector
6. Establish a mechanism for PRFOs to invoice for funding instalments (see Appendix
Two).
The projected cost for these activities has been estimated to be approximately $400,000.
This will include costs for a fulltime Rural Training Programme Manager to take oversight of
all rural training, paid partly from the TEC fund (for training assessed against unit standards)
and partly directly by the NRFA.
Other costs funded by TEC funding would be required for resource writing, administration
support, trainer certification processes, quality assurance, establishment of IT infrastructure
to report results directly to NZQA, and other GTE requirements and operating costs. This will
also include the development and delivery of high level courses at national and regional
levels to the sector.
Final costs can only be established once training teams have been identified and a schedule
of courses developed.
Note: As previously stated, these activities relate to training to be delivered in 2016.
Activities will need to be reviewed for training from 2017 onwards.
Appendix 1: Consultation
The following stakeholders have been consulted.
Internal stakeholders consulted in the development of this report
The following fire services staff have been consulted in the development of this report:
• Kevin O’Connor – National Rural Fire Officer, National Rural Fire Authority;
• Jocelyn Brace – Acting Director Training;
• Donna Skoropada – Acting Manager Education Services, Team Leader – Training
Quality;
• Ian Millman – Manager Rural Fire – Resources & Development;
• Dennis Hulston – Manager Region Training;
• Regan Hopkins – Senior Policy Advisor, Rural;
• Lorisa Perebooms – GTE Co-ordinator; and
• Svetlana Lushkott – Learning Development Advisor.
Consultation with Rural Fire Officers
A workshop was held at Level 16, 80 The Terraces, Wellington on 11 December 2015 with a
selection of Rural Fire Officers. Those attending this workshop were:
• Mike Grant, Principal Rural Fire Officer - Southern Rural Fire;
• Darrin Woods, Principal Rural Fire Officer – Christchurch City Council;
• Gordon Foster, Deputy Principal Rural Fire Officer – Hastings District Council;
• Paul Wright, Principal Rural Fire Office – Pumicelands; and
• Brandon Guttery, Deputy Rural Fire Officer – Auckland Rural Fire Authority.
PTEs 2
Four PTEs actively delivery training and assessment for rural volunteers were interviewed by
telephone. Those interviewed were:
• Phil Nesbitt, owner – Fire Rescue and First Response (Auckland);
• Gordon Ireland, owner – Fire and Safety Training (Timaru);
• Greg Steele, owner – Industry Training Works (central North Island); and
• Sandy, Business Manager – Fire and Safety Training (Wellington).
Agencies
The following people from the following other agencies were consulted:
• Stephen Waters – General Manager Strategic Engagement, The Skills Organisation;
• Martin Maclean – Team Leader Assessment and Moderation, The Skills Organisation;
• Stephen Walker – Investment Manager, Tertiary Education Commission;
• Michele Turner – Senior Advisor, Tertiary Education Commission; and
• Anna Castelle – Risk Analyst, New Zealand Qualifications Authority.
2
Each of these PTEs is either a Category 1 or Category 2 provider, meaning NZQA is at least “confident” in the PTE’s
education performance and capability in self-assessment.
Appendix 2: Distribution of TEC funding
The following information outlines how the TEC funding will be distributed for the 2015 year
(retrospectively) and the 2016 year.
Reimbursement of funds to RFA’s for training delivered during
2015
•
•
•
•
•
All of the 2015 funding allocated to the GTE must be distributed to fund training delivered
during the year.
The NRFA will retain a proportion of the fund for actual and reasonable costs directly
incurred in the delivery of this training during 2015 (i.e. credit reporting fees, a portion of
the PRFO workshop costs, and a portion of independent contractor’s fees).
The amount of funds distributed to the RFA’s will be the total sum received from the TEC
that has been reported as credits, less an anticipated amount for actual and reasonable
costs directly incurred in the delivery of this training during 2015.
Any remaining funds will be distributed on a pro-rata-basis to those regions which
submitted a regional training plan, and according to that regional training plan, provided
those credits can be verified (note: For some regions this will be a combination of credits
reported via the ITO and one or more PTEs).
A mechanism for verifying the delivery against that regional training plan will be required.
Once verified, the RFA’s could invoice on the basis of that verification.
Reimbursement of funds to RFA’s for training delivered during
2016
The amount of funds distributed to the RFA’s will be the total sum received from the TEC
(based on credits reported), less:
• an anticipated amount for actual and reasonable costs incurred associated with
administering 2016 training delivery; and
• any costs associated with the delivery of training scheduled and facilitated by the
NRFA.
Over the year the above costs are estimated to be approximately $400,000. The remaining
funds will be distributed on a pro-rata-basis to regions according to an approved regional
training plan, as long as the credits in that RFA training plan have been reported and can be
verified. For some RFA’s this will be a combination of credits reported either via the ITO and
one or more PTEs.