THE REVIEW OF THE ROLE AND FUNCTION OF
TASMANIA’S PUBLIC SECTOR VOCATIONAL
EDUCATION AND TRAINING (VET) PROVIDERS
CONSULTANT’S REPORT
Virginia Simmons A.O.
30 April 2012
Final Version
Doc ID: TASED-4-1410
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REPORT OF THE REVIEW OF THE ROLE AND FUNCTION OF
TASMANIA’S PUBLIC SECTOR VOCATIONAL EDUCATION AND TRAINING (VET) PROVIDERS
Table of Contents
SECTION
Page No
1.
INTRODUCTION
6
2.
SUMMARY OF RECOMMENDATIONS
8
3.
3.1
3.2
3.3
3.4
CONTEXT
The Impetus for the Review
Issues Arising out of the Current Model
Some Key External Trends and Developments Since 2008
The Wider VET Market
14
4.
4.1
4.2
4.3
4.4
4.5
METHODOLOGY
Terms of Reference
Reference Group
Approach Adopted
The Public Consultation Process
Written Submissions
23
5.
5.1
5.2
5.3
5.4
CONSENSUS ACHIEVED
Common Themes
Principles for Change
Specific Proposals for Change
Commentary
26
6.
6.1
6.2
6.3
VET IN TASMANIA – ITS IMAGE AND IDENTITY
Image and Identity
The Definition of VET
Recommendations 1-2
31
7.
7.1
7.2
7.3
A VISION FOR PUBLIC SECTOR VET IN TASMANIA
Positioning for the Future
Other Considerations that Inform the Vision
Recommendation 3
34
8.
8.1
8.2
8.3
THE LEGISLATIVE FRAMEWORK
The Current Legislative Framework
The Need for a New Legislative Framework
Recommendations 4-6
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9.
9.1
9.2
9.3
9.4
9.5
9.6
9.7
9.8
9.9
9.10
9.11
THE FUTURE STRUCTURE FOR POST-COMPULSORY PUBLIC SECTOR VET
One Entity
Building on the Gains, Not Returning to the Past
Organisational Governance Arrangements
Organisational Structure
Guidelines for Positions
Appointment Processes
Centres of Excellence
Corporate Services
Assets and Infrastructure
The Future of Teacher Registration in the New Entity
Recommendations 7-24
39
10.
10.1
10.2
10.3
GOVERNANCE OF THE SYSTEM
Overview
Potential Future Arrangements
Recommendations 25-30
52
11.
11.1
11.2
11.3
11.4
11.5
11.6
VET PROVISION IN SCHOOLS/COLLEGES
The National Scene
The Tasmanian Scene
Cultural Differences
Funding
Future Trade Training Centres
Recommendations 31-38
55
12.
12.1
12.2
12.3
12.4
VET AND HIGHER EDUCATION
The National Tertiary Landscape
VET/Higher Education Collaboration in Tasmania
Building a Strategic Partnership
Recommendations 39-42
61
13.
13.1
13.2
13.3
13.4
ADULT LEARNERS
Clarifying Policy
The Role of LINC Tasmania
Adults in VET
Recommendations 43-48
67
14.
14.1
14.2
14.3
14.4
14.5
14.6
VET IN RURAL AND REMOTE AREAS
The Challenges
Thin Markets
Maintaining Sustainable Levels of Delivery
Facilities
Alternative Learning Methodologies
Recommendations 49-51
70
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15.
15.1
15.2
15.3
MARKETING, BRANDING AND NOMENCLATURE
The Main Brand
Sub-branding
Recommendations 52-53
74
16.
16.1
16.2
16.3
IMPLEMENTATION
Effective Implementation
Supporting Staff and Students in the Change
Recommendations 54-60
77
BOXES
Box 1
Box 2
Box 3
Box 4
Box 5
Box 6
Box 7
Box 8
Box 9
Box 10
Box 11
Box 12
Box 13
Box 14
7
14
15
16
22
23
24
28
35
36
52
52
61
65
Box 15
Box 16
Tasmania’s New Public Sector VET Entity – Integrated and Interconnected
Extract from the Review Consultation Paper
Targeting Different Learner Cohorts – Example 1
Targeting Different Learner Cohorts – Example 2
Private RTOs in Niche Markets – Case Study
Terms of Reference of the Review
Approach Adopted for the Review
Summary of the Common Themes
Skills Tasmania’s Vision for VET
Two Public Sector Visions
Governance of Public Sector VET in Tasmania – ‘Tasmania Tomorrow’
Governance of Public Sector VET in Tasmania – 2010 to Present
Public Sector VET Entities Registered as Higher Education Providers
Graduating Students at Qualifications Levels AQF 1-6, Tasmanian
Polytechnic, 2009-11
VET Effort by Age Group – Tasmania and Australia 2010
Use of ‘TAFE’ By Public Sector VET Providers
APPENDICES
Appendix 1
Appendix 2
Appendix 3
Appendix 4
Appendix 5
Appendix 6
Appendix 7
Appendix 8
Appendix 9
Appendix 10
Key Data for Tasmania
Consultation Paper for the Review
Case Studies of Mainland RTOs Operating in Tasmania
Public Consultations
Written Submissions
A New Single Entity for VET in Tasmania – Indicative Structure
The Future of Teacher Registration in the New Entity
Governance of Public Sector VET in Tasmania – Possible Future Model
Acronyms and Abbreviations
References
79
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89
91
92
97
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1.
INTRODUCTION
This Report was commissioned by the Hon Nick McKim MP, Minister for Education and Skills, as the
outcome of the Review of the Role and Function of Tasmania’s Public Sector VET Providers. It has
been the consultant’s privilege to undertake the Review and to receive a high level of constructive
input from well over 300 stakeholders in the VET system from across Tasmania: students, teachers,
administrators, industry and community leaders, employers, parents and government
representatives. A debt of gratitude is owed to all those individuals and the organisations they
represent.
As encapsulated in the State’s Economic Development Plan:
Tasmania is a small, beautiful and remote part of the world with unique features and rich
natural resources that the world increasingly values. 1
With a small and dispersed population and an increasingly competitive global environment, it faces a
number of challenges in achieving a robust economy with sufficient industry to sustain full
employment, productivity and growth. Appendix 1 provides key supporting data which is evidence
of these challenges.
As the Economic Development Plan makes clear, the VET system plays an important role in:
•
•
•
•
supporting the economy by meeting the training needs of traditional and emerging industries so
that they can take advantage of market opportunities (Goal One – to support and grow
businesses in Tasmania)
assisting individual industries by addressing skills gaps and skills shortages (Goal Two – to
maximise Tasmania’s economic potential in key sectors)
contributing to social sustainability and inclusion by improving skill levels that increase
workforce participation to reduce inequality and poverty (Goal Three – to improve the social and
environmental sustainability of the economy)
developing skills that achieve a more resilient and diverse economic base in Tasmanian
communities (Goal Four – to support and grow communities in regions). 2
More generally, VET also enables individuals to access accredited programs that support their career
goals. It is therefore critical that it facilitates seamless pathways at the interface with other sectors
of education that promote skill deepening and further study.
Commencing in 2009, the former TAFE Tasmania was separated into two entities – the Tasmanian
Polytechnic and the Tasmanian Skills Institute (TSI) – each charged with a different mission and
function. The Tasmanian Polytechnic’s role is to lift the participation and attainment of individuals.
The TSI has a productivity focus, namely meeting the skill needs of enterprises and employed
workers.
Following this and other structural changes, the public VET system has experienced a decline in
efficiency and effectiveness in recent years and has lost the confidence of some parts of the industry
and community it serves. It has become clear that such a split is not straightforward or ‘clean’ and
that VET students/learners and operations do not lend themselves to such neat
1
Department of Economic Development, Tourism and the Arts, 2011, Economic Development Plan Overview, Tasmania,
p.4
2
Ibid, p.10-17
6
compartmentalisation. The system is now variously seen to be characterised by fragmentation,
confusion, inconsistency, internal competition, wastage, patchy quality and an internal focus.
Despite these problems, the structural changes brought forth some important innovation and
genuine successes. The two different emphases meant that new partnerships, new learning models
and new approaches have evolved, which otherwise might not have. These are widely considered to
be well worth maintaining.
This Report does not set out to diagnose in any detail the problems that have occurred in the past.
The intention is to look to the future and to identify strategies to place the public VET system on an
entirely new footing: one that addresses the problems but also retains and builds on the gains made.
A new single entity is proposed that is internally integrated and externally interconnected. The
recommendations provide details of how this is to be achieved. The emphasis is on tailoring a set of
arrangements that will work for the particular circumstances in Tasmania, not to overlay a model
from another context.
Box 1 is a visual representation of how this will operate in practice.
Box 1: Tasmania’s New Public Sector VET Entity – Integrated and Interconnected
ADULT &
COMMUNITY
EDUCATION
COLLEGES/
SCHOOLS
INDUSTRY
BODIES
THE NEW
PUBLIC SECTOR
VET ENTITY
Participation/
Attainment
Productivity/
Work Readiness
HIGHER
EDUCATION
(UTas)
INDIVIDUAL
ENTERPRISES &
WORKPLACES
PRIVATE
RTOs
7
2.
SUMMARY OF RECOMMENDATIONS
Below is a summary of the recommendations of this Report, ordered by section heading.
It is recommended that:
VET in Tasmania – Its Image and Identity
R1
To re-affirm Tasmania’s important role in the national VET system, a standard description
be adopted for VET in Tasmania that is brief, accessible and accurate, and that it be used
consistently in documentation about the sector until such time as the meaning of VET is
better understood.
R2
Related terminology such as Vocational Education and Learning (VEL) and leisure and
lifestyle programs be clarified and actively promoted in a way that assists this distinction.
A Vision for Public Sector VET in Tasmania
R3
The Tasmanian Government, as the owner of the public VET system, consider articulating a
vision for its future that is communicated to the Tasmanian community.
The Legislative Framework
R4
All aspects of VET governance, delivery, administration and co-ordination be covered by a
single, contemporary and aspirational piece of legislation and the objects and provisions of
the legislation be written so as to ensure all components of public sector VET are working
towards a common goal.
R5
The new entity be designated as a statutory authority with the capacity to employ its own
staff.
R6
The Objects of the Act contain reference to:
•
•
•
•
•
•
•
ensuring Tasmania’s VET system supports the needs of Tasmania’s economy and the
aspirations of Tasmania’s citizens
providing for the effective delivery of VET to individuals and industry in Tasmania
ensuring mechanisms exist to enable industry’s training and workforce development
needs to be understood and met
promoting alignment between VET offerings and the needs of the Tasmanian labour
market
promoting pathways between VET and the other educational sectors
providing for public sector VET to have the independence and flexibility it needs to
respond to the needs of industry and the community
fostering quality and innovation in VET.
The Future Structure for Post-Compulsory Public Sector VET
R7
A new single entity be created for public sector post-compulsory VET in Tasmania using the
combined resources of the Tasmanian Polytechnic and TSI.
8
R8
Steps be taken to ensure that the new entity retains the capacity to focus specifically on
each of the productivity/work readiness agenda and the participation/attainment agenda.
R9
The scope of registration of the existing Tasmanian Polytechnic and TSI be unified as part
of the creation of the new entity.
R10
The new entity be a statutory authority within the proposed new VET Act and have the
capacity to appoint its own staff.
R11
The membership of the Board reflect the characteristics of the community and industry the
new entity serves and include experts from areas such as other educational sectors,
finance, human resources, risk management, property and the law.
R12
The initial organisational structure have the following characteristics:
•
•
•
•
•
•
flat and lean, with minimum layers of responsibility and empowered managers
managers expert in their disciplines/industries of responsibilities
a clear and single line of responsibility for teaching areas
capacity to maintain a separate focus on the two strands of productivity/work
readiness and participation/attainment
a distributed rather than centralised approach to location of senior staff
identification of existing or potential Centres of Excellence across the delivery
areas as a focus for capability and future development.
R13
A nation-wide search be conducted for the recruitment and appointment of the CEO as
soon as practicable, to lead the development and vision for the new entity.
R14
Other senior positions in the new structure be appointed in accordance with State Service
processes.
R15
The accountabilities and selection criteria for senior positions be crafted so as to ensure
the organisation works effectively in accordance with the characteristics outlined in
recommendation 12.
R16
Staff in charge of teaching areas be required to work to industry advisory bodies or
alternatively authoritative industry mentors in the areas for which they are responsible.
R17
Management of the operations of teaching sites be separate from the management of
teaching programs and include responsibility for ensuring the delivery arrangements for
remote and rural areas are maximised, including through coordination with
schools/colleges.
R18
All teaching sites operated by the new entity have a designated point of contact.
R19
Communication strategies about the new structure include all staff regardless of the level
or category of appointment.
9
R20
The importance of an effective VET/tertiary specific student administration/management
system for conducting the core business of the new entity be recognised, and that it
accordingly be managed by the new entity with all information accessible by the relevant
government authorities.
R21
In principle, the current provision of corporate services by the Department of Education
(DoE) continue for all other systems at least until the new entity is established and is in a
sound financial position.
R22
For the foreseeable future, ownership of the assets and infrastructure be vested in the
Crown.
R23
Subject to some minor amendments to the Teachers Registration Act 3 to ensure VET
coverage, teacher registration be extended across the whole of the new entity.
R24
The initial emphasis of the new entity be on consolidating the fundamentals of teaching,
learning and assessment; ensuring access for students; and building industry relevance to
create a dynamic and innovative teaching and learning environment.
Governance of the System
R25
Statutory authorities in the future public VET sector be established under the proposed
new VET Act.
R26
The Minister’s ultimate responsibility for all aspects of VET policy be clearly articulated in
the new VET Act.
R27
The Minister designate responsibilities for the productivity/work-readiness agenda and the
participation/attainment agenda at state level, mirroring and consolidating the
arrangements proposed at provider level for the new entity along the lines outlined in
Appendix 8.
R28
Skills Tasmania be re-named the ‘Tasmanian VET Commission’ (or similar) to better reflect
its function and avoid confusion about its role.
R29
The Tasmanian VET Commission (or similar) retain statutory authority status under the
proposed new VET Act.
R30
The Department of Education be renamed ‘Department of Education and Training’.
VET Provision in Schools/Colleges
R31
A network of providers of VET in schools/colleges be formalised, consisting in the first
instance of:
•
•
•
3
the eight existing colleges
the existing Trade Training Centres and their partner schools
any high schools that currently have Registered Training Organisation (RTO) status.
Refer Appendix 7
10
R32
The existing RTO arrangements be fixed for the time being and reviewed in 2015, unless
voluntary relinquishment of such status is initiated in the meantime.
R33
Existing auspicing arrangements between the colleges, Trade Training Centres and the
Tasmanian Polytechnic be transferred to the new entity and expanded over time.
R34
DoE host a formal structure to enable ongoing liaison between the network and the new
entity to ensure:
•
•
•
•
the necessary programs are on scope
auspicing arrangements are appropriately monitored
the delivery requirements of the network are met as far as practicable
arrangements for duty of care and pastoral support are agreed.
R35
As the opportunity arises, steps be taken to ensure that there is a mix of staff from college
and VET backgrounds involved in pathway planning.
R36
The funding arrangements for provision of VET in the network be reviewed to move
towards closer alignment with the true cost of VET delivery.
R37
The decisions on the location of any new Trade Training Centres take into account an
optimal geographic coverage across the state, including rural and remote areas.
R38
A business plan be developed for each Trade Training Centre to maximise its usage beyond
the requirements of the school sector, with priority for those seeking access to accredited
outcomes.
VET and Higher Education
R39
A forum be created to enable the new entity and the University of Tasmania to develop a
formal, multi-dimensional and strategic partnership with the aim of becoming a model for
Australia.
R40
A joint investigation be conducted into possible funding sources that might support the
work involved in developing the partnership.
R41
Consideration be given to placing priority on joint arrangements to support growth in the
international market.
R42
Strategies be developed to restore the percentage of graduates qualifying at
Diploma/Advanced Diploma level to at least 2009 levels.
Adult Learners
R43
Work be undertaken to clarify the policy framework for adult and community education
clearly differentiating between that activity which is part of VET (i.e. leading to accredited
outcomes) and that which is leisure and lifestyle related or pre VET.
R44
VET government funding directed to adult and community education place priority on
adults pursuing qualifications for work related purposes.
11
12
R45
The LINC Tasmania network be re-affirmed as an important and useful gateway for adults
into VET, but not part of the formal VET sector.
R46
LINCs be excluded from obtaining RTO status.
R47
The training needs of volunteer tutors continue to be monitored so as to stage the
allocation of funding to progressively meet this need.
R48
Provision of VET across the age cohorts in Tasmania continue to be monitored for
alignment with national trends.
VET in Rural and Remote Areas
R49
Measures be developed to ensure a sustainable level of provision in rural and remote areas
consistent with demand and communicated to the communities concerned.
R50
Ongoing responsibility for ensuring adequate provision in rural and remote areas be
assigned in the final structure for the new entity.
R51
A compliance and viability audit of each existing campus/facility now operated by the
Tasmanian Polytechnic and TSI outside of Hobart, Launceston, Burnie and Devonport be
conducted to:
•
•
•
•
identify its current and past usage patterns, the likely future demand, and issues arising
from this
determine its capacity to effectively cater for future needs of the local industry and
community, especially as envisaged in the state’s Economic Development Plan
clarify the way forward for each associated community in terms of short, medium and
longer term investment
develop a strategic business plan for each campus/facility.
Marketing, Branding and Nomenclature
R52
The new entity adopt the name ‘TasTAFE’ as the main brand.
R53
A sub-branding strategy be developed to further differentiate component parts of the
operations, particularly Centres of Excellence and programs co-located with other
sectors/providers.
Implementation
R54
An implementation group be established to undertake the necessary work on
implementation within agreed time-lines.
R55
The CEO be appointed in time to be able to lead and manage the transition process and
participate in the filling of senior vacancies.
13
R56
Working groups progressively commence work in the following areas that are critical to
implementation:
•
•
•
•
•
•
Legislation and Governance
Human Resources
Programs, Enrolments and Services
Finance
Technology and Systems
Marketing, Branding and Communication.
R57
Working group membership be based on expertise rather than representation and include
nominees from DoE, Skills Tasmania, the Tasmanian Polytechnic and TSI as appropriate.
R58
Working groups have clear terms of reference and time-lines for achievement of
milestones.
R59
A minimum lead-time of six months be allowed for the working groups to undertake their
roles.
R60
A formal and regular communication process with stakeholders be part of the
implementation process.
14
3.
3.1
CONTEXT
The Impetus for the Review
The following extract from the Consultation Paper for the Review, issued by the
Hon Nick McKim MP, Minister for Education and Skills in December 2011, succinctly outlines some of
the major issues and reasons why the Review was needed:
Box 2: Extract from the Review Consultation Paper
Reform of the post-compulsory education and training sector in Tasmania over the last four years, including the ‘Tasmania
Tomorrow’ initiative, has resulted in two major public providers of VET; the Tasmanian Polytechnic and the Skills Institute.
There is also some provision to young students by colleges of the Tasmanian Academy and some district and regional high
schools.
The public providers have different structural and governance arrangements:
• The Tasmanian Polytechnic is situated within the Department of Education. Its role is to provide qualifications for
individuals to enable them to enter the workforce, further their skills and qualifications or enable a career change, as
well as provide pathways into higher education.
• The Skills Institute is a statutory authority accountable to the Minister for Education and Skills through a board. It is
focussed on skills development for employees in enterprises in line with the enterprises’ skill needs.
• Colleges of the Tasmanian Academy and a number of district and regional schools, also within the department, are
focussed on young Tasmanians in the 15-19 year old age group. VET is provided in conjunction with Tasmanian
Qualifications Authority accredited courses either directly by the colleges or in various partnering arrangements with the
Tasmanian Polytechnic and private registered training organisations (RTOs).
Skills Tasmania is a statutory authority that has a legislated function to purchase VET from public and private RTOs. It does
this in support of its sole statutory objective which is to ensure that Tasmania has a system that supports a productive
workforce and contributes to economic and social development in the state. It purchases VET from both of the major public
providers, some of which is undertaken contestably. Essentially all of the VET courses purchased from private RTOs is done
contestably.
The role of public VET providers is far greater than the delivery of qualifications. They have a role in implementing
government policy and in meeting identified skill needs. They provide economies of scale and effective infrastructure. They
enable provision in ‘thin markets’, increased access and the leverage of industry investment. A highly skilled and qualified
workforce supports increased productivity and growth. Tasmania has an aging population with a low level of post-school
qualifications.
Tasmania aspires to both state and national targets for participation in VET and the attainment of qualifications, and public
providers have a significant role to play in achieving these targets. Tasmania has agreed to a national target for Year 12 or
equivalent attainment of 90 per cent by 2015 through the National Partnership Agreement on Youth Attainment and
Transitions. As a state, Tasmania also has a number of other targets including:
Measure
Proportion of 15-64 year olds enrolled in
education or training
Target
20.6% (2015)
Source ABS 6227.0
Proportion of Tasmanians with high level
skills/qualifications (Certificate III +)
49% (2015)
Source ABS 6227.0
There is significant concern in the VET and broader community in Tasmania that the current model of VET provision by
Tasmania’s government providers is not optimal. A review of the current arrangements will determine if the structural
changes made in 2010 can deliver the outcomes required of the public VET system, and if not, recommend alternatives. 4
This final statement by the Minister was strongly confirmed during the conduct of the Review. A
complete copy of the Consultation Paper is included as Appendix 2.
4
McKim, Hon. N, 2011, Review of the Role and Function of Tasmania’s Public VET Providers (Consultation Paper),
Department of Education Tasmania, p.4
15
3.2
Issues Arising out of the Current Model
The splitting of the former TAFE Tasmania into two post-compulsory entities, namely the Tasmanian
Polytechnic and the TSI as part of ‘Tasmania Tomorrow’ was in part aimed at addressing a major
challenge facing many TAFE institutes across Australia. It is widely acknowledged that teachers
require different skills sets for different learner cohorts and different learning models apply. In
particular there are differences between those learners already in employment where the workplace
is integral to their training and those learners not in employment and potentially not yet even clear
about their career destinations. The latter group often consists of school leavers or those returning
to study, while the former group quite typically comprises apprentices and existing workers seeking
to upgrade their skills. In Tasmania, this distinction is referred to as participation and productivity,
where the focus for the first group is on retention and attainment, often in an institutional setting,
and the focus of the second group is on work readiness and skill relevance, often in a workplace
setting.
Public sector providers across Australia seek to cater for these groups in different ways and with
varying success, most often within the one organisation. They may, for example, set a percentage
target for delivery in the workplace, create specialist roles within the organisation structure or have
specialised professional development programs.
The creation of the Tasmanian Polytechnic and the TSI is just one example of how some states have
gone a step further in making significant structural or organisational change in an attempt to more
effectively meet the needs of these different learner cohorts. Box 3 provides one such example:
Box 3: Targeting Different Learner Cohorts – Example 1
Queensland – SkillsTech Australia
The Queensland Government decided to concentrate its apprenticeship training in one organisation under the
title of SkillsTech Australia. SkillsTech markets itself as ‘TAFE made for tradies’ and ‘Industry’s right hand’. The
following is an extract from its website:
SkillsTech Australia is Queensland's largest TAFE institute dedicated to trade and technician training in
automotive, building and construction, electrotechnology, manufacturing and engineering, sustainable
technologies and water.
We deliver pre-apprenticeship, apprenticeship/traineeship and post-trade training to more than 20,000 students
every year, at six Brisbane metropolitan training centres.
As part of the TAFE Queensland network, SkillsTech Australia works with industry to develop and deliver worldclass courses that provide relevant skills and best practice training.
We have a reputation for delivering the highest quality training with industry-standard equipment in safe, modern,
world-class facilities.
Our teachers are qualified tradespeople, who understand the need to train with the latest techniques and
technologies to meet industry standards. Students have access to hands-on training to ensure they are job-ready
for their employer. 5
With its focus on the trades, apprenticeship and pre and post-apprenticeship training, it can be seen
that SkillsTech has elements in common with the TSI in Tasmania. The specialisation is seen to be
advantageous for students and beneficial in attracting the most appropriate teachers.
5
http://www.skillstech.tafe.qld.gov.au/about_us/about.html
16
Box 4 provides a second potentially more far-reaching example in that it identifies four different
ways of working:
Box 4: Targeting Different Learner Cohorts – Example 2
Western Australia – Challenger Institute of TAFE
Challenger TAFE has developed a unique model of four paradigms, to inform and enrich its delivery of services,
briefly summarised as follows:
Paradigm 1: campus-based delivery
Training for industry and enterprises is delivered in high quality classroom, laboratory and workshop. Lecturers
and trainers are expert presenters, demonstrators and tutors.
Paradigm 2: college and workplace delivery
‘Your place or ours’. Training includes a blend of classroom and workplace delivery. The RTO hires both
campus-based lecturers and workplace trainers.
Paradigm 3: working within specific enterprises
Training embraces enterprise development, focusing on skill development for jobs. Trainers are work-based
learning facilitators and workforce developers.
Paradigm 4: industry and community workforce planning and development
The RTO embraces an industry and community skills ecosystem mindset. Trainers, designers, consultants and
teams operate inside the industry skills ecosystem. 6
In describing the four paradigms, the Institute uses the terms ‘productivity’, ‘participation’, ‘workforce
development’ and ‘skills development’.
This approach also has elements in common with both the Tasmanian Polytechnic and TSI.
These interstate examples illustrate that it would be a mistake to dismiss the creation of the
Tasmanian Polytechnic and TSI as an isolated instance of experimentation. As becomes clear in the
body of this Report, there is much to recommend the maintenance of the distinction that is inherent
in the two organisations, even though this might take on a new and different form.
3.3
Some Key External Trends and Developments Since 2008
The Minister acknowledged in the Consultation Paper that:
There are many factors currently confronting our public VET providers, including a significant national VET
reform agenda, the state’s challenging budget outlook and the reshaping of traditional provision by higher
education and private VET providers. We must determine whether our public providers are optimally
positioned to meet these challenges. 7
The many factors and external developments that have changed the wider education landscape
since the announcement of ‘Tasmania Tomorrow’ in 2008 merit further exploration if Tasmania is to
be well-positioned for the future. Among the more critical of these developments are:
6
7
Mitchell, J, 2007 Implementing the Four Paradigm Model of Service Delivery: Challenger TAFE Case Studies, TAFE WA p.3
McKim, Hon. N, op cit, p.3
17
•
•
•
•
•
•
•
•
the Global Financial Crisis (GFC)
the downturn in the inbound international student market, particularly in the VET sector
a new tertiary orientation
a demand-driven Higher Education sector
Council of Australian Governments (COAG) reforms
the establishment of the Australian Skills Quality Authority (ASQA)
the Trade Training Centres program
the roll-out of the National Broadband Network (NBN).
Each of these is examined briefly below along with their potential implications for public sector VET
in Tasmania.
The Global Financial Crisis (GFC)
Early signs of an impending GFC occurred at about the same time as ‘Tasmania Tomorrow’ was being
announced. The first Australian Government responses were initiated in late 2008 after the collapse
of Lehmann Bros in the United States, but the impact of the GFC is still being felt today.8 Although
Australia is generally considered to have fared reasonably well in comparison to other countries, the
subsequent rise of the Australian dollar has affected education through, as just one example, its
impact on exports 9 . Many RTOs, public and private alike, have noted that in times of tight economic
constraints, such as are now being experienced, industry’s expenditure on training is likely to be
reduced with resulting effects on RTOs’ commercial income. In addition, since enterprises need to
be ‘lean’ and ‘smart’ in order to survive, training offered must be highly relevant and leading edge.
This is a key challenge that public sector VET has been facing and which is showing no signs of
diminishing.
For Tasmania’s public VET sector, provision needs to be highly competitive and relevant in the current
economic climate.
The Downturn in the Inbound International Student Market
In related vein, the international student market has fallen dramatically since 2009, particularly in
the VET sector. The Knight Review 10 identified the key reasons for this as:
•
•
•
•
•
•
the strength of the Australian dollar
the rapidity and magnitude of Australia’s migrant and student visa policy settings
damage to Australia’s reputation flowing from international students’ safety concerns
bad publicity from provider closures
the effects of the GFC
increased competition from international providers in other countries.
The Knight Review’s proposed streamlined visa processing for universities specifically excluded the
VET sector, although COAG agreed at the April 2012 meeting that this should now be extended to
high quality/low risk VET providers in the second half of 2012. However, it will take some time to
recapture the lost market share. The Knight Review recommended that the VET sector should focus
on developing its transnational education capability, that is, explore off-shore market
opportunities. 11 There is strong competition from mainland VET providers in this regard.
8
9
www.treasury.gov.au/documents/1576/HTML/docshell.asp?URL=Australia_Israel_Leadership_Forum_by_Steven_Kennedy.htm
Economic Development Plan, op cit, p.7
Knight, M, 2011, Strategic Review of the Student Visa Program, Australian Government, p.11-13
11
Ibid p.xiii -xviii
10
18
There is potential for the Tasmanian public sector VET system to partner with the University of
Tasmania (UTas) and jointly market programs and services.
For Tasmania’s public VET sector, strong Higher Education linkages, which provide a potential
mechanism to prosper in the inbound international student market, may need to be further
developed as well as transnational education opportunities.
A New Tertiary Orientation
The 2008 report of the review of Higher Education in Australia 12 led by Prof. Denise Bradley
(hereafter the Bradley Review) found that it was time to move away from the two distinct sectors of
VET and Higher Education to a continuum of tertiary education. The Report stated:
Various efforts to strengthen the connections between higher education and VET have been made in
Australia over the last twenty-five years with limited success, due to structural rigidities as well as to
differences in curriculum, pedagogy and assessment. The review has considered both why a better interface
between higher education and VET is now imperative as well as the broad range of ways in which it could be
pursued. While the issues to be dealt with are complex, reform is vital if a fully effective tertiary system … is
to be achieved. 13
The Report also outlined six key characteristics of an effective tertiary education and training system
as well as making several recommendations to support this change, structural elements of which
included:
•
•
•
•
•
a Review of the Australian Qualifications Framework (AQF) with a refined, single architecture –
now complete (Recommendation 24)
the move towards a single national tertiary regulatory body covering both Higher Education and
VET – now consisting of the Tertiary Education Quality and Standards Agency (TEQSA) and the
Australian Skills Quality Authority (ASQA) with a goal that they ultimately merge
(Recommendation 43)
the establishment of a single Ministerial Council with responsibility for all tertiary education and
training – now the Standing Council on Tertiary Education Skills and Employment (SCOTESE)
which has also established a Tertiary Education Quality and Pathways as one of its Principal
Committees (Recommendation 46)
extension of the scope and coordination of labour market intelligence to cover the whole
tertiary sector and support a more responsive and dynamic role for both vocational education
and training and higher education – achieved through an expanded role for Skills Australia, renamed the Australian Workforce and Productivity Agency (Recommendation 46)
expansion of the purpose and role of the National Centre for Vocational Education Research
(NCVER) to cover the whole tertiary sector – achieved (Recommendation 46).
In response to the changes, many public sector VET providers set about positioning themselves for a
tertiary future, with initiatives such as:
•
•
•
•
investing increased effort in developing Higher Education partnerships and pathways
placing greater emphasis on developing and marketing higher level VET qualifications,
Diplomas, Advanced Diplomas and Vocational Graduate Certificates
becoming registered as Higher Education providers, offering Higher Education qualifications
such as Associate Degrees, Bachelor Degrees, and in a few instances, Masters Degrees
rebranding to reflect a broader offering than just VET/TAFE.
12
Bradley, D, Noonan, P, Nugent, & Scales, B, 2008 Review of Australia’s Higher Education System – Final Report,
Commonwealth of Australia
13
Ibid, p.179
19
For example, one Victorian TAFE institute enrolled its first Higher Education students in 2009 and
now offers 13 Associate Degrees and 13 Degrees. This has considerable implications for the
qualifications and capacity of staff and the capability of the institute as a whole.
TAFE now offers Higher Education in every Australian state except Tasmania and the Northern
Territory where it is part of a dual sector university.
Given that Tasmania is the only state in Australia with one university, it is debatable whether
Tasmanian VET should adopt the trend set in other states. There is a unique opportunity for
innovative and dynamic arrangements between the two sectors.
For Tasmania’s public VET sector, a strategic approach to the evolution of the tertiary sector in
Australia will be required, most profitably in conjunction with the University of Tasmania.
A Demand-Driven Higher Education Sector
The Bradley Review proposed targets for the growth of Higher Education:
•
•
By 2020, 40 per cent of 25 to 34-year-olds will have attained at least a bachelor-level
qualification
By 2020, 20 per cent of undergraduate enrolments in higher education should be students from
low socio-economic backgrounds. 14
To support this growth, it also recommended:
That the Australian Government introduce a demand-driven entitlement system for domestic higher
education students, in which recognised providers are free to enrol as many eligible students as they wish in
eligible higher education courses and receive corresponding government subsidies for those students.
(Recommendation 29) 15
This recommendation has come into full effect in 2012. As early as mid-January several universities
were reporting that enrolments were up by 10% with only first round offers released, 16 while the
Group of Eight universities 17 warned that standards might slip if entry scores are reduced too
much. 18
For Tasmania’s public VET sector, the potential lowering of Australian Tertiary Admission Rank
(ATAR) scores in response to student demand may impact on the upper level enrolments in VET
qualifications.
Council of Australian Governments (COAG) Reforms
On 13 April 2012, a revised National Agreement for Skills and Workforce Development and a
new National Partnership Agreement on Skills Reform was agreed to at the COAG meeting.
The reforms include:
•
•
the introduction of a national training entitlement
income contingent loans for government subsidised Diploma and Advanced Diploma programs
14
Bradley, D, op cit, p.xiii
Ibid, p.xxiii
16
Campus Review, 16 January 2012
17
The Group of Eight universities (Go8) is a coalition of Australia’s oldest, most research intensive and possible most
prestigious universities http://www.go8.edu.au/
18
http://theconversation.edu.au/university-standards-at-risk-from-low-performing-school-leavers-5697
15
20
•
•
•
•
developing and piloting independent validation of training provider assessments
strategies to enable TAFEs to operate effectively in an environment of greater competition
the development of a new MySkills website
supporting around 375,000 students nationally over five years to complete their qualifications. 19
The National Agreement for Skills and Workforce Development also specifically includes reference in
the reform directions to the role of public providers:
All Parties commit to pursuing the following reform directions, which include:
…
enable public providers to operate effectively in an environment of greater competition, recognising
their important function in servicing the training needs of industry, regions and local communities,
and their role that spans high level training and workforce development for industries and improved
skill and job outcomes for disadvantaged learners and communities; … 20
With implementation plans to be completed by 30 June 2012, the detailed implications of the
reforms for Tasmania are still to be finalised. Regardless of what is ultimately agreed to, Tasmania
will need to demonstrate that it is committed to the spirit of the Agreement and to reforms that will
lift the productivity of the economy.
For Tasmania’s public VET sector, responsiveness to national VET reforms will be critical to ensure the
state benefits from available Federal funding.
The Establishment of the Australian Skills Quality Authority (ASQA)
ASQA came into effect on 1 July 2011 and Tasmania has referred its regulatory functions to this new
national body. A major impetus for the establishment of ASQA was concern about the quality and
consistency of the regulatory functions across the individual states and the need for considerably
improved rigour and transparency to restore full confidence in Australia’s VET system. This is
regarded as a pre-requisite for establishing a single tertiary regulatory body.
As ASQA becomes fully operational two major implications can be predicted for VET providers:
•
•
a more stringent and for some RTOs, possibly even onerous regulatory and audit regime
with the gradual move to a full cost recovery approach, increased fees for all aspects of ASQA’s
services.
This may mean that some existing RTOs review their RTO status and look to other ways to offer VET
programs, such as through merging with a larger RTO entity or auspicing. Some Tasmanian RTOs
have already indicated that they are considering their future options. The effects of this will become
evident over time.
For Tasmania’s public VET sector, structural arrangements to best meet compliance with national
VET standards are likely to evolve in the next two to three years.
19
20
Communique, 2012, COAG Meeting Canberra, 13 April 2012
National Agreement for Skills and Workforce Development, 2012, Council Of Australian Governments, section 25d, p.6
21
The Trade Training Centres Program
The Federal Government announced the Trade Training Centres program in 2008, providing
$2.5 billion over 10 years. Schools can apply for up to $1.5 million for new capital works, upgrading
of existing facilities and the purchase of industry standard equipment to extend options available to
secondary students from years 9-12 through access to VET. The aim is to improve Year 12 retention
rates, provide improved pathways into vocational careers and assist in addressing national skill
shortages. It is significant that the funding is only available to secondary schools and the stated
intention is for schools to offer up to Certificate III. It can thus be argued that the Trades Training
Centres program consolidates and affirms the role of schools and colleges in VET provision.
Tasmania already has six Trade Training Centres located on government school sites. These are at
George Town, Scottsdale, Bridgewater, Smithton, Huonville and St Helens/St Marys. Two further
Trade Training Centres were announced for Deloraine and Sorell/Triabunna in Round 4 of the
program at the end of 2011.
For Tasmania’s public sector, the Trade Training Centres program provides an important opportunity
to consolidate a network of state-of-the-art VET facilities for secondary level VET at strategic
locations across the state.
Roll-out of the National Broadband Network (NBN)
The communities of Smithton, Scottsdale and Midway Point were the first to receive optical fibre
broadband connections in the roll-out of NBN’s network in Tasmania 21. With seven out of the
twelve first release sites being in Tasmania and only five across the rest of mainland Australia,
Tasmania has potential to derive strategic advantage in the delivery of education and training from
its early access to broadband.
For public sector VET, the roll-out of the NBN presents opportunities to capitalise on the use of
e-learning and blended learning to improve access to education and training generally, to better
serve remote and rural communities and to provide more flexible training opportunities for
enterprises.
In summary, the above-mentioned trends and developments require that, in planning for the future
of public sector VET:
•
•
•
•
•
•
•
21
provision needs to be highly competitive and relevant in the current economic climate
strong Higher Education linkages, which provide a potential mechanism to prosper in the
inbound international student market, may need to be further developed as well as
transnational education opportunities
a strategic approach to the evolution of the tertiary sector in Tasmania will be required, most
profitably in conjunction with the University of Tasmania
the potential lowering of ATAR scores in response to student demand may impact on the upper
level enrolments in VET qualifications
responsiveness to national VET reforms will be critical to ensure the state benefits from available
Federal funding
structural arrangements to best meet compliance with national VET standards are likely to
evolve in the next two to three years
the Trade Training Centres program provides an important opportunity to consolidate a network
of state-of-the-art VET facilities for secondary level VET at strategic locations across the state
NBNCo, 2010, Corporate Plan 2011-2013, p.69
22
•
the roll-out of the NBN presents opportunities to capitalise on the use of e-learning and blended
learning to improve access to education and training generally, to better serve remote and rural
communities and to provide more flexible training opportunities for enterprises.
3.4
The Wider VET Market
Tasmania’s public sector providers operate within a wider VET market with over 100 private RTOs
both local and from the mainland. Some of them offer a wide range of services while others operate
in niche areas. Many of them are small. These RTOs have continued to develop their business and
are adept at offering services where gaps in delivery emerge.
In its submission to the review, the Australian Council of Private Education and Training provided a
number of case studies of locally–based RTOs. Box 5 illustrates the development of one niche
market operator.
Box 5: Private RTOs in Niche Markets – Case Study 22
Seafood Training Tasmania
Tasmania is the largest producer of seafood with 2010 production values at (564m) together with a rapidly growing niche
aquaculture sector. In late 2009, Seafood Training Tasmania was approached by Australia’s second largest aquaculture
company, Huon Aquaculture Group, to help them with staffing and training for their new processing plant in North West
Tasmania. This involved a move of production from South East to North West Tasmania. Over the next few months, a
workforce plan was developed to support the flow of trained staff ready for employment when the new plant opened.
Working with a local ACC and group training company, 25 recently retrenched workers undertook a pre-apprenticeship
program and were offered employment at the plant. To meet the high export quality standards, Huon Aquaculture Group
signed the workers into a Certificate III in the Seafood Industry (Aquaculture traineeship). Today, 22 of the initial trainees
have completed the traineeship and remain employed in this specialist and niche market.
Case studies of two mainland RTOs currently operating in Tasmania are provided in Appendix 3.
These case studies are illustrative of the role that some of the private RTOs currently active in
Tasmania are playing. They form part of the wider market in which the public VET sector operates.
The numbers of these private RTOs are likely to increase as the COAG initiatives to promote
competition come to fruition.
22
Australian Council of Private Education and Training (ACPET) submission
23
4.
4.1
METHODOLOGY
Terms of Reference
Terms of Reference for the Review were developed in consultation with key stakeholders. They are
outlined in Box 6:
Box 6: Terms of Reference of the Review
1.
Review the current governance, funding and operational arrangements of the public providers of VET in
Tasmania and their capacity to improve student participation/retention, qualification and attainment rates
of Tasmanians as well as their ability to respond to identified skills needs and contribute to the productivity
of the state including the ability of the providers to:
• provide a broad range of VET options and pathways for all Tasmanians
• provide foundation and pre-employment, literacy and numeracy and work preparation courses for
those seeking pathways to higher level qualifications and work
• provide training and skills development for employees in enterprises in line with the enterprises’
current and future skill needs
• connect with higher education through Diplomas and Advanced Diplomas.
2.
Recommend and comment on options for future governance, funding and operational arrangements for
public providers of VET in Tasmania which clearly define the roles and responsibilities of provider(s) and
minimise the potential for competition between public providers.
3.
Take into account the COAG reform agenda as well as national agreements and strategic directions to
ensure recommended outcomes enable Tasmania to participate in and benefit from them.
4.
Investigate and advise on opportunities that exist with respect to higher education qualifications and
linkages between the public providers of VET and the university sector.
5.
Take into account the impact of any further change on the provision of VET for younger Tasmanians, and
ensure that the increased availability and accessibility of VET opportunities now available are not lost.
6.
Take into account issues of efficiency and effectiveness, being mindful of the current economic climate
including the capacity of the state budget to support the public VET providers.
7.
Take into account the ability of the system to implement further change both financially and in terms of the
impact on staff and students.
8.
Be informed by an analysis of national and international practise and experience. 23
4.2
Reference Group
A Reference Group of key stakeholders was appointed to act as a sounding board and an advisory
group to the process. Its role was to:
•
•
provide feedback to the independent consultant throughout the Review
ensure that the stakeholder group representatives were informed about the project progress
and had opportunities to provide feedback.
The Reference Group comprised of representatives from:
•
•
•
•
•
•
23
Tasmanian Skills Institute (TSI)
Tasmanian Polytechnic
Tasmanian Academy
Skills Tasmania
University of Tasmania (UTas)
Australian Education Union (AEU)
•
•
•
•
•
Community and Public Sector Union (CPSU)
United Voice
Tasmanian State School Parents and Friends
Tasmanian Principals Association
Tasmanian Chamber of Commerce and Industry (TCCI)
Consultation Paper, op cit, p.6
24
4.3
Approach Adopted
The approach adopted was determined by three key factors:
•
•
•
Time-lines: The Review was announced on 5 December 2011 with a completion date of
30 April 2012 and the prevailing view was there should be no undue delays or extensions.
Consensus: There was a perception that some of the previous changes had been imposed and
‘force-fitted’ into Tasmania with limited or no consultation and that this had negatively affected
the implementation. Reaching a level of consensus was therefore likely to be critical to success.
Unique Tasmanian circumstances: While there were potentially lessons to be learned from
interstate and international practice, a solution to address the unique Tasmanian circumstances
was seen to be a high priority.
Against this background, the approach outlined in Box 7 was designed to identify and build on the
consensus among stakeholders. Staged broadly to coincide with the three planned meetings of the
Reference Group, it involved identifying agreed Common Themes for the Review, re-stating these as
Principles for Change and translating these Principles into Proposals for Change.
Box 7: Approach Adopted for the Review
Reference
Group 3
(April 3)
Reference
Group 2
(March 5)
Reference
Group 1
(February 8)
Ongoing
4.4
1
•
•
•
2
•
•
•
3
•
•
•
4
•
•
•
PROPOSALS FOR CHANGE
Translating principles to actions
Specific proposals
Alignment with terms of reference
PRINCIPLES FOR CHANGE
Vision for the future
Underlying aims and objectives
Impact of change
BROAD LEVEL OF CONSENSUS
Extent of stakeholder agreement
Areas of ambiguity, disagreement
Identification of common themes
INFORMATION GATHERING
Analysis of data, research, literature
National/international practice
Stakeholder consultations, submissions
The Public Consultation Process
Underpinning this process, an extensive public consultation process was undertaken as the most
effective means to gauge the extent of consensus and any areas of potential contention.
Consultations took several forms:
•
•
Public Consultations: Nine public consultations were held across the state and were open to all
interested parties responding to public advertisements.
Student Consultations: A meeting with the consultant was arranged with current students from
both the Tasmanian Polytechnic and TSI at the Alanvale campus in Launceston. They
represented six different course areas across all years.
25
•
•
Industry Consultations: In conjunction with the Tasmanian Chamber of Commerce and Industry
(TCCI), three consultations were organised with mixed industry representatives. Other
consultations were held with industry peak bodies.
Other Consultations: Consultations were conducted with a range of peak bodies, agencies and
stakeholder bodies, some of which were at the request of these bodies.
The public consultations were deliberately unstructured with minimal input from the consultant so
as to enable maximum time for the participants’ priorities to be voiced. In all instances, each
individual present was offered the opportunity to make a statement and invited to address those
issues that were ‘front of mind’ in terms of what the Review should achieve. Following this process
and time permitting, there was an open forum.
Participants were also urged to use the more structured process of written submissions to address
matters of detail.
Details of the public consultations are contained in Appendix 4.
4.5
Written Submissions
Written submissions were called for at the outset of the process. A ‘Guide to Respondents’ was
included in the Consultation Paper released in December 2011 with a series of questions and issues
that respondents were invited to address. The closing date for submissions was set at
16 March 2012 to enable their full consideration before incorporation into this Report.
In all, 73 written submissions were received from some 41 organisations and 32 individuals, all of
which were of an exceptionally high standard.
The written submissions represent a wide range of organisations that have a stake in the VET sector
and include a cross-section of industry bodies. The names of organisations are identified when citing
extracts in this Report.
Many of the individual submissions were from current or former staff of the Tasmanian Polytechnic
and TSI but others were from parents and interested stakeholders. The identity of individual
respondents to the Review is not disclosed when citing extracts from their submissions in this
Report.
Details of the written submissions are contained in Appendix 5.
26
5.
CONSENSUS ACHIEVED
5.1
Common Themes (Stage 2 of the Methodology)
The Reference Group endorsed 20 Common Themes for the Review, which were aligned with the
Terms of Reference (TORs). These provided a useful framework for collating and synthesising the
input from the public consultations and the written submissions. The Common Themes therefore
inform this Report.
Theme 1 – Stakeholder Focus
TOR 1
The Review must achieve the best outcomes for students, employers and the future of the
Tasmanian economy.
Theme 2 – Public Sector VET
TOR 6
Given the circumstances in Tasmania, stable, quality and cost-effective public sector VET is critical,
both economically and socially.
Theme 3 – Coverage
TOR 2
For the purposes of the Review, public sector VET covers provision of AQF qualifications by publicly
funded RTOs which may occur in any of the following settings:
•
•
•
•
•
workplaces
post-secondary institutions (TAFE and Higher Education)
colleges and schools
Trade Training Centres
adult and community education providers.
Theme 4 – Elimination of Waste
TOR 6
The elimination of waste, duplication and unnecessary competition between the two main public
providers is urgent, so as to maximise investment in quality and improved outcomes.
Theme 5 – New Structures
The current structures are less than optimal.
Theme 6 – New Direction
Three years on, a return to TAFE Tasmania is not the optimal solution.
TOR 1/2
TOR 5
Theme 7 – Viability
TOR 1/6
Economies of scale and servicing of thin markets are critical considerations in the management of
VET in Tasmania and that streamlining of VET provision would improve viability and be manageable
by any national comparison.
Theme 8 – Brand Image
TOR 1
There is brand confusion within the sector which has had some negative effects on student,
employer/industry and community perception of VET in some cases.
Theme 9 – Higher Education Pathways
TOR 1/4
It is critical to further strengthen the linkages and pathways between VET and Higher Education.
27
Theme 10 – Cost Containment
TOR 6
A priority for the Review is to maximise the savings that will occur over time from the elimination of
waste, duplication and misdirected energy, not to incur additional costs.
Theme 11 – Corporate Services
TOR 6
Effective corporate services are critical for providers’ responsiveness and that the governance
arrangements need to ensure that the right balance between cost and control of these services is
found.
Theme 12 – Governance
Governance arrangements should:
•
•
TOR 1/2
ensure clear lines of accountability to government for performance and outcomes
provide a forum for industry to maximise flexibility, responsiveness and quality of provision.
Theme 13 – COAG Reforms
The outcomes of the Review must position Tasmania for the COAG reforms.
TOR 3
Theme 14 – Staff Resilience
TOR 7
The capacity for staff to cope with change is variable and well-managed change implementation
processes will be the deciding factor in this regard.
Theme 15 – Young Tasmanians
TOR 1/5
Improving participation and retention of young Tasmanians is a huge challenge. Learner support
and pastoral care issues must be considered across the range of VET settings, student types and
aspirations, taking into account the need to prepare learners for the requirements of the work
environment and for pathways to higher qualifications.
Theme 16 – Regionality
TOR 1
Given rural/remote and urban/metropolitan variations, a ‘one-size-fits-all’ approach will not work.
Transport, accommodation and general access issues are significant impediments for both learners
and employers in rural areas.
Theme 17 – Vocational Currency
TOR 1
It is vital to achieve consistency of vocational currency of all VET teachers, 24 regardless of the setting.
Theme 18 – Professional Currency
TOR 1
Currency in the knowledge and practice of the VET teaching profession across the different settings
underpins the quality of VET provision.
Theme 19 – Recent Achievements
TOR 5
It is important to acknowledge the achievements of the past few years as well as to ensure they are
not lost as part of any change.
Theme 20 – Transparency of Funding
TOR 1/6
Funding issues could be simpler and clearer under more integrated arrangements. This includes
priority setting, funding allocation and reporting.
24
At least to the requirements of the AQTF/NVR
28
Box 8 provides a summary of the Common Themes.
Box 8: Summary of the Common Themes

FROM

FRAGMENTATION

COMPETITION

INCONSISTENCY

CONFUSION

DUPLICATION

PATCHINESS

WASTAGE

SYSTEM FOCUS
5.2
TO
INTEGRATION
COORDINATION
CONSISTENCY
CLARITY
STREAMLINING
QUALITY
COST-EFFECTIVENESS
LEARNER FOCUS
Principles for Change (Stage 3 of the Methodology)
Building on the Common Themes, the following Principles for Change were also endorsed by the
Reference Group:
Principle 1 – Seamlessness for learners
Entering and progressing on a quality VET pathway and beyond is as simple and seamless as possible
from a learner perspective.
Principle 2 – Responsiveness to industry
Industry’s expectations for the flexibility, relevance and quality of public sector VET are met.
Principle 3 – Focus on teaching and learning
In the first instance, getting the fundamentals of teaching, learning and assessment right is the
highest priority.
Principle 4 – Catering for different learner cohorts
The different needs of learners are identified and catered for, including those learning for the
purposes of their employment (productivity/work readiness) and those for gaining employment or
pursuing further study (participation/attainment).
Principle 5 – VET Practitioners (lecturers, teachers, instructors)
VET practitioners have fit-for-purpose skills, experience and qualifications for the areas in which they
work.
Principle 6 – Quality Facilities and Equipment
Every effort is made to ensure that all learners have access to the best available training facilities
and equipment.
Principle 7 – Efficiency
Stream-lined arrangements consistent with the size and financial capacity of Tasmania replace
duplication, unwarranted layers of management, waste and unnecessary competition.
Principle 8 – Public Sector Servicing
Operational and funding arrangements for servicing the public including catering for thin markets,
are clarified and publicised.
29
Principle 9 – Governance
Public sector VET delivery operates with a level of independence that enables it to be responsive,
flexible and competitive.
Principle 10 – Legislative Framework
All VET related activity is covered under one piece of contemporary and aspirational legislation that
ensures an integrated and efficient approach to the management and delivery of public sector VET.
Principle 11 – Branding and Marketing
Branding is clear and unambiguous for stakeholders and marketing is co-ordinated.
Principle 12 – Operational Arrangements
Operational arrangements and the associated processes and systems for the two major public
providers are fully integrated, including strategic planning, quality management, student
administration, staffing, professional development, funding and reporting.
Principle 13 – Implementing Change
The change management process is planned, transparent and fair and it occurs within a reasonable
timeframe.
5.3
Specific Proposals for Change (Stage 4 of the Methodology)
Finally, the Principles for Change developed in Stage 3 informed specific Proposals for Change, which
provide the structure for much of this Report. They were foreshadowed as follows:
 Establish a renewed identity and image for VET in Tasmania.
 Articulate a vision for the future of public sector VET in Tasmania.
 Reform the legislative framework for VET so that all aspects of VET are covered by a single,
contemporary and aspirational piece of legislation, with a set of objects that provides a context
for all component parts to operate towards a common goal.
 Create a single entity for the delivery of post-secondary VET in Tasmania that retains and builds
on the gains of the two existing entities over the past few years but takes this to a new level.
 Formalise a network of secondary school and college VET providers (inclusive of the state’s
Trade Training Centres) to service the state with clear and manageable quality assurance
arrangements.
 Capitalise on the potential VET/Higher Education partnership opportunities offered by the
presence of one university and one public sector VET provider in Tasmania.
 Clarify the policy framework for adult and community education, clearly differentiating between
the activity which is VET related and that which is general or pre VET.
 Develop measures to ensure a sustainable level of provision in rural and remote areas.
30
5.4
Commentary
The Common Themes, Principles for Change and Proposals for Change discussed and endorsed by
the Reference Group represent the key outputs of the Reference Group’s three meetings.
Noticeably there is strong alignment between these outputs and the views expressed during the
public consultations and in the written submissions.
From this perspective it can be concluded that the level of consensus on the directions of the Review
was high, providing a sound basis for the recommendations of this Report.
31
6.
6.1
VET IN TASMANIA – ITS IMAGE AND IDENTITY
Image and Identity
Consistent with Principles 3 and 8 outlined in Section 5 of this Report, the Review highlighted
concerns about the image and identity of VET in Tasmania. They are interrelated and can be
summarised loosely as a diffused identity and a damaged image.
Damaged Image
A perception that the image of VET has been damaged was prevalent in both the public
consultations and the written submissions. It was widely held that the status and reputation of VET
had suffered in the minds of employers and enterprises as well as students and parents. A number
of factors have contributed to this perception, including:
•
numerous examples of duplication and competition that left users of the system puzzled,
dismayed or even angry
some examples of poor practice in training delivery, typified by ‘tick and flick’ processes in
assessment
the impact of budgetary constraints on access to VET programs in some areas.
•
•
There was a considerable body of opinion that overall the reforms under ‘Tasmania Tomorrow’ had
not lived up to the expectations raised, and had perhaps even left Tasmania no better, or even
worse off, than it was prior to the changes. As it will take time to restore the image and status of
VET, this confirmed that it is imperative that the next set of changes is workable and broadly agreed.
Diffused Identity
Particularly during the public consultations it also became clear that the term VET is used very
loosely and inaccurately in some quarters, which may in turn reflect a damaged image. Examples of
where it was used inaccurately were in reference to:
•
taster programs or other introductory programs to the world of work conducted for year 9-10
students in schools
the operations of LINC Tasmania
leisure and lifestyle programs that may be offered in an adult education setting.
•
•
In none of these cases are nationally accredited outcomes involved. The accepted terminology in
Tasmania for programs at Year 10 level and below is Vocational Education and Learning (VEL)25 but
VEL does not necessarily exclude VET and the distinctions are not always clear in the wider
community. The operations of LINC Tasmania provide a welcoming and accessible gateway to VET,
but LINCs are not RTOs and any advancement towards accredited education and training outcomes
occurs through referral by LINC Tasmania staff to an RTO. Leisure and lifestyle programs are
essentially for personal interest and may or may not lead to the individual embarking on a VET
program.
Further, there was confusion about whether or not foundation programs such as literacy and
numeracy rightly belong within the province of VET with some maintaining that VET is only designed
to meet the direct needs of the labour market.
The Tasmanian Skills Strategy addresses this issue:
25
http://www.education.tas.gov.au/school/curriculum/guaranteeing-futures/vocation
32
“The Tasmanian Skills Strategy aspires to create an inclusive, fair, highly skilled and prosperous Tasmania
where:
•
•
•
•
Tasmanians have the skills to participate in a clever and connected community;
Together Tasmanians will overcome individual disadvantage and exclusion to increase participation;
Providers will partner with industry to deliver skills through high quality services; and
Employers will build workforce skills to innovate, invest and increase productivity.” 26
Importantly, the lack of clarity about what does and does not constitute VET has also led to
misconceptions about where funding is allocated and why, thus further blurring and often distorting
the image of the sector.
6.2
Definitions of VET
As a starting point, the Vocational Education and Training Act 1994 contains the authoritative
definition of VET:
vocational education and training means the education, training and attainment of qualifications or
statements of attainment under the vocational education and training provision of the Australian
Qualifications Framework. 27
The Act further specifies that:
Vocational education and training is to be –
• directed to the development of vocational competencies; and
• in preparation for, or directed to, the enhancement of opportunities to undertake vocational
education and training; and
• structured to incorporate principles of equal opportunity and fairness.
Vocational education and training includes –
• training leading to the attainment of a qualification or statement of attainment; and
• training provided in the State, another State, a Territory or elsewhere by registered training
organisations, whether or not under a training agreement; and
• literacy, language and numeracy; and
• basic education related to the workplace. 28
This definition makes it clear that VET providers must be RTOs delivering accredited outcomes. It
also leaves no doubt about the fact that VET responds both to the labour market and to the needs of
the community as a whole.
It is also noteworthy that the Skills Tasmania website contains a section which answers the question
‘What is VET?’ as follows:
Vocational Education and Training (VET) provides skills and knowledge for work through a national training
system, which provides for Australians: entering the workforce for the first time or re-entering the workforce;
retraining for a new job; or upgrading skills for an existing job in accordance with the Government’s social
and economic policy.
26
Skills Tasmania, 2008, Tasmanian Skills Strategy 2008-2015 – Themes and Actions 2009 – 2012, p.2
Vocational Education and Training Act 1994, section 3
28
Ibid, section 4
27
33
VET is generally practical, hands-on and industry focused. Courses range from certificate I to advanced
diploma level and are taught by Registered Training Organisations, who are authorised to issue VET
qualifications for training that they are registered to deliver. VET is offered not only in the public TAFE
system (in Tasmania the Tasmanian Polytechnic and the Tasmanian Skills Institute are the two primary
public providers), but also through private and community training providers, and in secondary schools. 29
The Reference Group identified the need to clarify the definition of VET (Principle 3) in its
deliberations. Using this as a starting point, a succinct description of VET might be:
Vocational Education and Training (VET) covers the provision of education, training and assessment
activities leading to accredited outcomes offered by Registered Training Organisations (RTOs). It
may occur in any of the following settings:
•
•
•
•
•
6.3
workplaces
post-secondary institutions (TAFE and Higher Education)
colleges and schools
Trade Training Centres
adult and community education providers.
Recommendations:
It is recommended that:
R1
To re-affirm Tasmania’s important role in the national VET and training system, a standard
description be adopted for VET in Tasmania that is brief, accessible and accurate, and that
it be used consistently in documentation about the sector until such time as the meaning
of VET is better understood.
R2
Related terminology such as Vocational Education and Learning (VEL) and leisure and
lifestyle programs be clarified and actively promoted in a way that assists this distinction.
29
http://www.skills.tas.gov.au/skillstas/aboutvet
34
7.
7.1
A VISION FOR PUBLIC SECTOR VET IN TASMANIA
Positioning for the Future
The advent of the Review of the Role and Function of Tasmania’s Public Sector VET Providers offers
the opportunity to position public sector VET for a new and dynamic future.
A number of submissions expressed views about what this might entail. Below are some examples,
predominantly from industry bodies:
The public VET provider should demonstrate the benchmark in quality. 30
… it should be a vehicle for excellence … with motivated staff ready to face up to whatever challenges are
thrown at it …31
… it is essential that a strong and viable public provider of training be maintained. Workforce development
must be driven by industry and delivered in partnership between employers and RTOs drawing on the
national qualifications packages. Tasmania’s public providers have this capacity… 32
The main role of a public VET provider should be the delivery of training that meets the current demands of
the workplace as well as being proactive by identifying and meeting future trends in market demand for skills
… a public RTO, whilst mindful of commercial realities, should be driven by community training needs. 33
The advantages of a public (VET) system include the ability to offer a broad scope of training options and
classroom based delivery … The quality of training facilities and access to physical and intellectual
resources are also key strengths of the public VET providers. 34
The public VET provider/s needs to be structured to effectively respond to the needs of industry and learners
across the state. The structure needs to support adaptability, effective collaboration and the most effective
use of resources. 35
The Tasmanian public VET sector must not be tempted to forfeit the quality of its programs in order to attain
short term market share … the focus has to remain on the delivery of quality programs that are aligned with
industry and community needs and standards ... 36
The major themes from these excerpts are:
•
•
•
•
•
quality and excellence
partnerships with employers
responsiveness to both industry and community needs
motivated and expert staff
an innovative, future oriented mindset.
An added dimension to any consideration of a vision for public sector VET is the nature of the
contestable market that was negotiated at COAG for the National Partnership Agreement and how
this places public sector providers in the wider VET market.
30
Skills Tasmania submission
Manufacturing Industry Advisory Committee submission
32
Tasmanian Building and Construction Industry Training Board submission
33
Tasmanian Farmers & Graziers Association submission
34
Tasmanian Hospitality Association submission
35
Tasmanian Chamber of Commerce and Industry submission
36
Faculty of Education, University of Tasmania submission
31
35
7.2
Other Considerations that Inform the Vision
What is clear, however, is that Tasmania’s situation is unique combining factors such as:
•
•
•
•
•
•
•
a small population
tight budget constraints
comparatively high levels of unemployment
low school retention rates
thin markets in many areas
a few large population centres and many small rural and remote communities
a relatively high proportion (95%) of small businesses.
While these factors present challenges for public sector VET, they can sometimes be prohibitive for
private RTOs, especially the smaller ones. Hence there are comparatively low numbers of private
RTOs operating in Tasmania, including mainland RTOs. Many of the local ones are niche-based (refer
Section 3.4). Under these circumstances, co-operation rather than competition between the public
and private VET sector may better serve the best interests of Tasmanian individuals and businesses.
As outlined in Section 2 of this Report, the rest of the VET and tertiary sector forged ahead in the
years while the Tasmanian VET sector was pre-occupied with its internal problems. There is now
ground to be made up.
Skills Tasmania has developed a Vision for the VET sector more broadly. 37 This is outlined in Box 9.
Box 9: Skills Tasmania’s Vision for VET
Our vision is to have a Tasmanian vocational education and training system where:
•
Individuals are well informed and can acquire the skills they want.
•
Employers are engaged with the training system, planning and developing their workforce and
participating in industry skills planning. We listen and respond to their needs.
•
The training system is responsive to industry demand and the community’s needs.
•
There is a focus on skills for innovation and emerging industries.
•
Quality learning experiences, quality outcomes, value for money and equitable access to foundation and
higher level skills are always delivered.
37
Skills Tasmania advises that this Vision may be adjusted in line with any changes resulting from the National Partnership
Agreement
36
The Tasmanian Polytechnic and TSI have developed a vision and/or vision and mission that are
contained in Box 10:
Box 10: Two Public Sector Visions
The Tasmanian Polytechnic
Vision
Our learners achieve more productive and fulfilling
lives as a result of their Polytechnic education
experience.
Mission
To provide learners with an applied education
experience to gain the qualifications and skills they
need to be productive in the workforce, continue with
learning and contribute positively to the community.
The Tasmanian Skills Institute
Vision
Our vision is that we play a leading role in developing a
Tasmanian workforce that has the skills and
qualifications that contribute to personal success, the
success of industry and help deliver social and
economic opportunity for the people of Tasmania. In
doing this we will develop a unique and respected role.
A useful approach in a time of change may be for the Tasmanian Government to articulate a vision
for public sector VET.
This would be consistent with the Australian Government’s action in developing a vision for Higher
Education in Australia as part of its response to the Bradley Review 38. Using this vision as a model
and the aspirations outlined in the Tasmanian Skills Strategy, a vision for public sector VET in
Tasmania might contain some of the following elements:
Tasmanian public sector VET will:
•
deliver relevant high quality education and training that equips individuals for success in the
workplace (productivity/work-readiness) or further learning (participation/attainment)
work in partnership with the state’s industries and enterprises to predict and respond to
workplace education and training needs
contribute to the goal of lifting qualification levels of the Tasmanian population
work closely with other education sectors in the interests of individuals, industry and the
community
maximise the opportunities for disadvantaged learners to realise their potential
have measures developed and articulated to cater for the needs of remote and rural communities
ensure effective and innovative use of available physical and human resources
match or exceed national benchmarks for participation and performance in VET.
•
•
•
•
•
•
•
7.3
Recommendation:
It is recommended that:
R3
38
The Tasmanian Government, as the owner of the public VET system, consider articulating a
vision for its future that is communicated to the Tasmanian community.
Commonwealth of Australia, 2009, Transforming Australia’s Higher Education System, Canberra, p.7
37
8.
8.1
THE LEGISLATIVE FRAMEWORK
The Current Legislative Framework
The current legislative framework for VET is fragmented and not conducive to a coherent system. It
consists of:
The Vocational Education and Training Act 1994
This Act has been subject to multiple amendments over its life. In 2007 it was amended to
incorporate Skills Tasmania as a body corporate. Most recently it has been amended to take
account of the referral of Tasmania’s regulatory powers to the new AQSA. A comprehensive
overhaul of the Act may now be appropriate.
Education and Training (Tasmanian Academy) Act 2008
Education and Training (Tasmanian Polytechnic) Act 2008
Education and Training (Tasmanian Skills Institute) Act 2008
Three separate Acts established the three entities created under ‘Tasmania Tomorrow’, initially as
statutory authorities and as agencies under Schedule 1 of the State Service Act 2000. This was later
changed so that now only the TSI remains a statutory authority and an agency.
Each of the three Acts contains in Section 3 a ‘Guiding Principle’ that the relevant entity is ‘to work
collaboratively’ with the other two entities ‘so as to maximise the qualifications and skills of
Tasmanians obtained through education and training after the completion of Year 10’.
While this is a laudable principle, it is widely agreed that it did not come to fruition and that this is in
part attributable to the fact that each entity was established independently rather than as part of an
integrated system.
Although the four Acts also involve some differences in the way staff are employed, in all cases staff
are State Service employees, employed under the State Service Act 2000. 39
•
•
The TSI is responsible for employing staff under Section 17 of its Act.
The Tasmanian Polytechnic and Tasmanian Academy staff are employed through the
Department of Education.
Skills Tasmania staff are Department of Education staff in accordance with Section 10K of the
VET Act.
•
Tasmania needs a future arrangement that promotes cohesion within the public VET sector.
8.2
The Need for a New Legislative Framework
It is noteworthy that none of the current Acts contain Objects (or objectives), as is now commonly
the case with contemporary legislation. That is, there is no reference in the Acts to the context in
which the legislation operates and the expectations of its application. This Report envisages a future
in which the legislative requirements of all component parts of Tasmania’s VET sector – public and
private are contained within a single piece of legislation, which spells out the objects and aspirations
of the sector. It is asserted that if this were the case, there would be a far more effective
mechanism, through a common and integrated line of authority to the Minister, to ensure a
collaborative and integrated approach.
39
Schedule 1, State Service Act 2000
38
It is noted that:
•
•
the new VET Act would not subsume the current Education and Training (Tasmanian Academy)
Act 2008 and the Department of Education may wish to consider its future
a number of other Acts would also require consequential changes.
Given the current fragmentation of the legislative framework for VET and the need to position public
sector VET for a coherent and collaborative future, the bringing together of all legislative matters
related to VET under a single piece of legislation would appear timely and a meaningful way to
reaffirm the importance and status of VET.
8.3
Recommendations:
It is recommended that:
R4
All aspects of VET governance, delivery, administration and co-ordination be covered by a
single, contemporary and aspirational piece of legislation and the objects and provisions of
the legislation be written so as to ensure all components of public sector VET are working
towards a common goal.
R5
The new entity be designated as a statutory authority with the capacity to employ its own
staff.
R6
The Objects of the Act contain reference to:
•
•
•
•
•
•
•
ensuring Tasmania’s VET system supports the needs of Tasmania’s economy and the
aspirations of Tasmania’s citizens
providing for the effective delivery of VET to individuals and industry in Tasmania
ensuring mechanisms exist to enable industry’s training and workforce development
needs to be understood and met
promoting alignment between VET offerings and the needs of the Tasmanian labour
market
promoting pathways between VET and the other educational sectors
providing for public sector VET to have the independence and flexibility it needs to
respond to the needs of industry and the community
fostering quality and innovation in VET.
39
9.
9.1
THE FUTURE STRUCTURE FOR POST-COMPULSORY PUBLIC SECTOR VET
One Entity
During the public consultations and in the individual and organisational submissions there was
overwhelming agreement by those who stated a position on structures that there should be a new
single public sector entity for VET in Tasmania, although there were variations in views about the
form this might take.
There was very little argument in favour of other options.
Importantly, the two providers concerned both agreed with a single entity model:
It is the view of the Board of the Skills Institute that the future public provider of VET in Tasmania should be
a single entity … 40
The Tasmanian Polytechnic Strategy Group is of the view that the most appropriate governance model for
the immediate to medium term is to establish a single VET entity … 41
It should be noted that, like others, the two organisations had different views about the detail of the
structural arrangements.
Of the 32 individual submissions received, 17 took a position on the future structure. Of those 17,
13 were in favour of a single entity.
Submissions received from organisations also support this view. Some examples are as follows:
The AEU believes that the reunification of the two entities has the overwhelming support of current teachers
and other employees of the Polytechnic and the Skills Institute … 42
Corrective Services would support ... reunification of the Polytechnic and the Skills Institute under one
management structure bringing together their staff and making access to training facilities easier. 43
A single body responsible for all governance would be ideal … 44
MIAC supports the re-integration of the two current public providers. 45
Skills Tasmania supports the establishment of a single public VET institution ... 46
… Tasmania, with its small client pool, (needs) to take advantage of the economies of scale that one TAFE
institute could provide in regard to future demand, business and industry, students, resources and
teachers. 47
The University, on balance, believes that a single public VET structure is a better solution than the current
dual organisational structure of the Polytechnic and the Skills Institute. 48
40
TSI submission
Tasmanian Polytechnic Strategy Group submission
42
Australian Education Union (AEU) submission
43
Corrective Services submission
44
Group Training Australia submission
45
Manufacturing Industry Advisory Council (MIAC) submission
46
Skills Tasmania submission
47
Tasmanian Education Association submission
41
40
From the perspective of regional learners in the Huon Valley … (we support) … a strong, well-resourced
single Government VET provider with a community recognised brand. 49
The TFGA strongly urges the reformation into one body (for) public VET delivery – this will remove
confusion, reduce duplication of services and, inevitable, lead to greater fiscal efficiencies. 50
Many reasons were posited as to why a new single entity was required. They mostly pointed to the
perceived problems and associated costs with the two current entities, which included:
•
•
•
•
•
•
•
•
•
•
•
increased complexity of the system, leading to confusion for users: learners/students, industry,
enterprises, parents and the community as a whole
disjointed learning pathways for students having to change providers at different levels of their
study within the same industry area
further fragmentation of already thin markets
duplication of effort, resources and services at every level
duplication of management structures
teachers in the same industry sector operating in silos
focus by the two providers on internal issues such as demarcation disputes rather than on
business development, innovation and growth
competition between the two post-compulsory providers for the same market, sometimes with
one charging on a full-commercial basis while the other was offering government subsidised
programs
poor staff morale
ongoing financial problems
loss of opportunities locally and internationally.
As one prominent community spokesperson summarised it at the Burnie regional consultation:
‘The public VET system consists of too many parts, too many players, too many brands, too many half
empty buildings and too many changes that are too hard to deal with for students, for families and for
employers.’ 51
Importantly, during the consultation with the student groups it was clear that many of these
problems were evident to them. They commented on the confusion that exists and the difficulty in
obtaining accurate information and they cited a number of administrative challenges. They
observed that teachers appeared to be under pressure and were concerned about their futures.
While they were generally full of praise for their teachers, the students considered that their
performance was being negatively affected. From their perspective, the financial constraints had led
to reduced numbers of specialist sessional staff in some areas, whose expertise they valued and
which could not always be replaced by full-time staff. 52
Reporting on the observations of small business in Tasmania, the state’s Small Business Strategy
comments on the complexity of the system and the impact this is having on access to skilled quality
staff:
48
University of Tasmania submission
Huon LINC Advisory Board submission
50
Tasmanian Farmers and Graziers Association (TFGA) submission
51
Burnie Regional Consultation, University of Tasmania, Cradle Coast Campus, 9 March 2012
52
Student Consultation, Launceston, 7 March 2012
49
41
The vocational education and training system is seen as complex and the delivery of accredited training
and qualifications is regarded as inflexible in meeting the immediate needs of small business. 53
9.2
Building on Recent Gains, Not Returning to the Past
Of critical importance is the overwhelming view that the creation of one entity was not synonymous
with a return to ‘TAFE Tasmania’. Respondents made the following points:
•
•
•
•
•
too much had changed in the meantime to go back to an old model (refer Section 3.3)
more changes were about to occur under COAG, which Tasmania must directly address (refer
Principle 13)
TAFE Tasmania had had many successes but was not without its flaws (refer Principle 6)
valuable gains had been made under the current model that should be retained (refer Principle
19)
something new and different was required to take Tasmania forward into a challenging and
dynamic future.
Examples of comments along these lines include:
If a return to a single public RTO was supported it would be important that this was not a return to the
“old” TAFE, which despite its successes had many flaws, some of which have been exposed and many
overcome in the current structure. 54
Changes need to retain the improvements from the ‘Tasmania Tomorrow’ reforms and ultimately
improve Tasmania’s public VET providers, not simply return to TAFE Tasmania. 55
This new approach would need to be communicated to staff and the wider public very carefully as a
genuine new step which does not throw away the advantages of the last couple of years or ‘return’ to a
TAFE model, which did not in any case fully address Tasmania’s educational challenges and for which
the state is now having to address as a legacy. 56
There is a fear that recommending a return to the pre ‘Tasmania Tomorrow’ status quo will not address
the serious education and training issues that continue to face this state. 57
The Board … is not advocating a return to TAFE Tasmania. The requirements’ and direction for a
public VET provider, in a dynamic policy and economic setting, are very different from 2008. 58
Although the two current entities were certainly not without their critics, many specific examples
were cited of gains made under ‘Tasmania Tomorrow’ which would not have been possible under
TAFE Tasmania. The explanation given for these gains was that the two institutes had been charged
with the responsibility of a tighter focus on their specific target groups and that this had led to new
approaches and innovation. The gains can loosely be described as improved focus on the
participation/attainment agenda by the Tasmanian Polytechnic and improved focus on the
productivity agenda by the TSI.
53
Department of Economic Development Tourism and the Arts, 2011, Small Business Strategy, 2011, Tasmania, p.8
Skills Tasmania submission
55
Tasmanian Chamber of Commerce and Industry submission
56
University of Tasmania submission
57
Individual submission
58
TSI submission
54
42
In the case of the TSI, examples were given by employers of greatly improved flexibility in
responding to industry needs, whether that be at short notice, out of hours or at a distance.
Learning models more closely targeted at individual enterprises’ workforce development needs have
also been developed.
The Skills Institute has been able to become increasingly responsive and flexible in meeting the needs
of industry since its inception. 59
Any alternative model for more efficient structural arrangements should not compromise the strong,
industry focus of Skills Institute and its capacity to develop innovative strategies and training programs
to increase workforce skills development across all areas of industry in Tasmania. 60
With respect to the Tasmanian Polytechnic, colleges gave examples of improved pathway
arrangements and greater access for students, while the University of Tasmania highlighted
collaboration on professional development for VET teachers, improved VET/Higher Education
pathway arrangements, and greater program flexibility.
Through ‘Tasmania Tomorrow’ and through subsequent arrangements with the Polytechnic, students
have benefited significantly from access to a wider range of certificates and to good facilities that would
not otherwise have been available. 61
There is growing evidence that many students are beginning to take advantage of the greatly increased
flexibility of the Polytechnic’s programs. Young people leaving Year 10 can now embark on a wide
range of mainstream VET training programs without experiencing the barriers that limited college VET
to Certificate I and II levels. 62
Some of these developments are still evolving and could be lost in any further change unless
conscious steps are taken to retain and further improve them.
Creating a new single entity would mean a review of the scope of registration for the two entities
with the aim of unifying the scope for the new entity in a way that ensures that both the
productivity/work readiness and participation/attainment agendas can be maintained and built on.
9.3
Organisational Governance Arrangements
At the time of the ‘Tasmania Tomorrow’ reforms, the need for a considerable level of independence
was recognised through the establishment of statutory authorities. For the Tasmanian Polytechnic
and the TSI, this was variously considered necessary in order to ensure a leadership role by senior
industry and community leaders in the policy and strategy of the organisations. This argument
applies as much now as it did then. In the environment faced by public sector providers outlined in
Section 3 of this Report, it is imperative that the new entity have the ability to respond quickly and
effectively to the complexity and change that characterises the current market. Not surprisingly, the
need for the new entity to have a considerable level of independence was also stressed in the public
consultations and the written submissions.
The concept has also been endorsed by the Productivity Commission:
59
Tasmanian Building and Construction Industry Training Board submission
University of Tasmania (Australian Maritime College) submission
61
Tasmanian Academy submission
62
Individual submission from an external stakeholder
60
43
A move towards greater managerial independence for TAFE Institutes is likely to better enable them to
respond to the more competitive environment they now typically face. The adoption of a statutory
authority governance model for public-sector Registered Training Organisations is appropriate, given
the desire for governments to retain both ownership and control, while promoting flexibility and
competitive neutrality at the individual provider level. 63
Further, retaining a statutory authority model would ensure Tasmania is in step with the thinking
embedded in the recent National Partnership Agreement on Skills Reform, to which Tasmania is a
signatory. Section 29b of the National Partnership Agreement states that:
Jurisdictions will improve the efficiency and responsiveness of the VET system through …
b.
Development and implementation of strategies which enable public providers to operate
effectively in an environment of greater competition, recognising their important functions in
servicing the training needs of industry, regions and local communities, and their role that
spans high level training and workforce development for industries and improved job and skill
outcomes for disadvantaged learners and communities. 64
Consistent with Section 8 above, the statutory authority would be created under the proposed new
VET Act and report to the Minister.
Given the environment and the role of public providers outlined in the National Partnership
Agreement, it would be necessary for the Board to have a membership which reflected that role and
for the new entity to have the capacity to appoint its own staff.
The Board would ideally reflect the community and industry served by the new entity, in line with
the participation and productivity agendas. With respect to the former, it would need to take into
account the rural and remote communities as well as the larger population centres. With respect to
the latter, the importance of small business in Tasmania would need to be borne in mind as well as
the larger enterprises. In addition, the Board could benefit from the input from other educational
sectors and from experts in fields such as finance, human resources, risk management, property and
the law.
In this regard, early recruitment of the CEO would be desirable in order for the appointee to lead the
creation of the new entity and to support the changes needed for Tasmania’s achievement of the
terms of the National Partnership Agreement. The appointee would ideally be an outstanding and
experienced leader of national stature, with a demonstrated record of:
•
•
•
•
•
•
strong educational leadership, preferably in VET
commercial acumen
strategic vision
innovation
the ability to inspire and motivate staff
the capacity to engage effectively with stakeholders.
63
Productivity Commission, 2011, Vocational Education and Training Workforce – Research Report, Australian
Government, p.LIII
64
Council of Australian Governments, April 2012, National Partnership Agreement on Skills Reform, p.7
44
9.4
Organisational Structure
While the new CEO would ultimately be responsible for determining and implementing the
organisational structure, this matter attracted considerable attention in the public consultations and
the written submissions.
In summary, the following characteristics of the organisational structure were promoted:
•
•
•
•
•
•
flat and lean, with minimum layers of responsibility and empowered managers
managers expert in their disciplines/industries of responsibility
a clear and single line of responsibility for teaching areas
capacity to maintain a separate focus on the two strands of productivity/work readiness and
participation/attainment
a distributed rather than centralised approach to the location of senior staff
identification of existing or potential Centres of Excellence across the delivery areas as a focus
for capability and future development.
An indicative structure that complies with these characteristics is contained in Appendix 6. The
nomenclature adopted is also indicative. It is deliberately different from the nomenclature in either
of the two current entities to avoid confusion with current roles and positions. The intention is to
clarify the different roles envisaged but it could be predicted that the final nomenclature might
change.
The written submission also expressed a preference for simple and self-explanatory titles to be used
for positions. One of the more forceful examples of this view was:
… get rid of pretentious and unnecessary buzz words and double-speak labels and use the language of
the client base. 65
9.5
Guidelines for Positions
General
The indicative structure shows the CEO with at least 12 direct reports:
•
•
•
two Support Group Managers
seven Teaching Group Managers
three Regional Managers.
This is clearly a greater span of control than some would advocate for. However, with the trend
towards flatter structures, there has been another school of thought that has argued for some time
that a larger span of control avoids isolation of upper management and overly tight hierarchical
supervision.
The trend in recent years has been towards larger spans of control … Wider spans of control
are consistent with recent efforts by companies to reduce costs, cut overheads, speed up
decision-making, increase flexibility, get closer to customers and empower employees. 66
65
Individual submission
Robbins, S, Millet, B, Cacioppe, R, Waters-Marsh, T, 1998, Organisational Behaviour, 2nd edn, Prentice-Hall Australia,
p.593-594
66
45
At least in the first few years, until the new entity is established, it is considered imperative that the
CEO have a wide span of control in order to build the team that is required to ensure cohesion and
dynamism. However, it is acknowledged that this could change over time.
It should also be noted that a wide span of control does not necessarily mean that all direct reports
are classified at the same level. In this case, two will have organisation-wide support group
accountabilities, seven will have teaching group accountabilities and the other three will have
regional roles and responsibilities.
Support Group Managers
The two Support Group Managers have organisation-wide roles as indicated in Appendix 6. They are
responsible for driving and co-ordinating the participation/attainment and productivity/workreadiness agendas respectively and for ensuring a single point of contact into the organisation for
those related matters, in collaboration wherever necessary. In so doing they play an integrative role
with the Teaching Group Managers, ensuring that they do not operate in silos.
In recruiting these positions, the following selection criteria are suggested as a starting point:
Group Manager,
Learner Engagement & Attainment
• Qualifications and/or demonstrated
senior experience in at least one of the
teaching areas for which the group is
responsible.
• A demonstrated record of liaising
closely and successfully with other
educational sectors to improve
educational opportunities and
outcomes.
• A clear understanding of strategies to
raise overall levels of educational
attainment and how to implement
them.
• Demonstrated ability to promote
teamwork, unify staff and consolidate
operations.
• Excellent communication and
Interpersonal skills.
Group Manager,
Industry & Enterprise Partnerships
• Qualifications and/or demonstrated
senior experience in at least one of the
functional areas for which the group is
responsible.
• A demonstrated record of liaising closely
and successfully with industry and
enterprises to improve their training
outcomes.
•
•
•
A clear understanding of workforce
development, its relationship with
productivity and how to promote it
through skills.
Demonstrated ability to promote
teamwork, unify staff and consolidate
operations.
Excellent communication and
interpersonal skills.
Teaching Group Managers
Teaching Group Managers provide the single line of accountability for each of the seven delivery
groups to the CEO, are responsible for the managers within the group and have oversight of the
Centres of Excellence. Their specific accountabilities include:
•
•
•
•
management of program delivery and assessment in the group
recommendations on the location of Centres of Excellence and advancement of their
subsequent development
establishment of a single group repository for learning and assessment materials for
common use within the group and other groups as appropriate
management of staff to ensure appropriate allocation to industry/work-based training
duties and participation/campus-based training
46
•
•
•
•
•
management of the group budget
management of professional development for group staff
conduct of performance review and assessment of group staff
liaison with Regional Managers to facilitate the achievement of targets for delivery to
remote and rural areas
identification of priorities for development of on-line/blended resources.
In recruiting these positions, the following selection criteria are suggested as a starting point:
•
•
•
•
•
qualifications in at least one of the teaching areas offered in the group
demonstrated knowledge of and ability to lead the implementation of different learning
models appropriate for different learner cohorts
demonstrated ability to promote teamwork, unify staff and consolidate operations
demonstrated appreciation of and commitment to ensuring the needs of both industry and
individuals are met
excellent communication and interpersonal skills.
Teaching Managers
Teaching Managers are responsible, where appropriate for Centres of Excellence, for example, there
might be three Centres of Excellence in the Health and Community Services Group, in three different
parts of the state. Each is required to work to an industry/discipline advisory body or alternatively
an authoritative industry/discipline mentor in the areas for which they are responsible. 67
Regional Managers
The three Regional Managers are responsible for the operations of facilities and infrastructure of
designated regional campuses in each of the North, North West and South and for ensuring the
delivery arrangements for remote and rural areas are maximised, including through co-ordination
with schools/colleges. They have no direct accountability for teaching matters. They are the key
point of contact for the community for the rural and remote locations as a conduit to the relevant
Teaching Group Manager. Their location is based on need, taking into account the senior presence
at other sites.
Corporate Services Liaison
A senior officer (or similar) would be appointed within each of the DoE corporate services functions
to liaise with the CEO.
9.6
Appointment Processes
It is recognised that the proposed indicative structure contains far less positions than is currently the
case. There is only one management structure rather than two and there are fewer layers. It was
emphasised over and over again in the public consultations that this was desirable in order to:
•
•
•
achieve greater clarity of roles and responsibilities
speed up decision-making and approval processes
enable a greater proportion of revenue to be directed to teaching and learning.
While it is desirable at CEO level to recruit on the open market, it can be reasonably assumed that
there are sufficient capable people within the two organisations to successfully recruit to the
67
There was evidence during consultations with peak industry bodies of willingness to assist on advisory bodies and/or as
mentors.
47
reduced numbers of positions. It is important to acknowledge that the both the Tasmanian
Polytechnic and TSI are currently undertaking a process to reduce staff numbers as part of a strategy
to bring the organisations back onto a sustainable financial footing. With a move to a single entity,
other staffing changes will be required to implement a new structure. The process would need to be
undertaken in accordance with applicable State Service procedures.
The implementation of a new structure also has implications for administrative staff and their needs
should not be overlooked. As a minimum, they should be specifically included in the communication
processes about the process to be adopted.
9.7
Centres of Excellence
Consistent with a distributed model, it is envisaged that Centres of Excellence:
•
•
•
•
•
•
•
•
as far as practicable, be located across the state
be selected on the basis of the current strengths in terms of physical and human resources,
levels of qualification offered, critical mass in delivery and potential for qualification
pathways
be the target for future investment and establishment of high level capability and expertise
be the focal point for industry input and advice in the discipline/industry sector
provide the senior leadership in the discipline for teaching quality and consistency
be the location for a repository for hard and soft learning materials to be accessed by the
other sites
influence the location of the Teaching Group Managers and the Teaching Managers
be the basis for determining where other delivery sites in the same field of study might be
located.
It is likely that, in most cases, delivery would be required at sites in addition to the designated
Centre of Excellence. Over time, this would be likely to be at a lower level. That is, it might be
possible to access the earlier parts of a qualification locally but complete it at a Centre of Excellence.
Thus, the other sites would be part of the network of provision but not the focal point for it. The
Teaching Manager would provide the overall leadership to the area with leaders identified at the
other sites, depending on the amount of delivery involved. There may be some sites that are
reconfigured or even discontinued within specified guidelines. Where there is no obvious location
for a Centre of Excellence – typically in the more generic areas such as Foundation Studies and
Business and Information Technology (IT) – this would be something to work towards in future and
might also be influenced by need (e.g. Foundation Studies) and/or where the best opportunities for
pathways to further study exist (e.g. Business and IT).
The locations of the Centres of Excellence are indicative only and would be finalised on a case-becase basis by the Teaching Group Managers in conjunction with the CEO when appointed, taking into
account Tasmania’s economic development planning. Their identification would not necessarily
entail immediate external marketing. This would only apply when the claim to excellence is
regarded as valid.
9.8
Corporate Services
Both the Tasmanian Polytechnic and TSI now utilise corporate services provided by the Department
of Education (DoE). In a small state like Tasmania, this is a strategy to reduce unnecessary costs
associated with multiple similar services that might otherwise apply. The trend in government
48
appears to be to move towards more shared provision of corporate services, as opposed to creating
or maintaining smaller, separate services.
It can be argued that this arrangement is inconsistent with the level of independence usually
afforded to a statutory authority, recommended by the Productivity Commission and endorsed
under the National Partnership Agreement on Skills Reform, as discussed in Section 9.3. Others
would take the view that with public VET providers in deficit, any possible savings through avoiding
duplication must be targeted.
Not surprisingly, there were comments during the public consultation process and in the written
submissions about this issue with some claiming that the corporate services model was impeding
flexibility and efficiency and that the move to corporate services provided by DoE had been to ‘onesize-fits-all’ systems, where the systems did not in fact fit at all and flexibility and responsiveness had
been lost.
In a climate of operating deficits, it is difficult to argue the case for returning all corporate services to
the new entity. However, there is a case for those systems to be in the control of the new entity
where they are critical to the successful conduct of the core business and where lack of control has
the potential to damage reputation by hampering responsiveness to stakeholders. The student
administration system is a clear example of one such system and there were frequent references to
the inadequacy of the current system, of which the following is an example:
It is widely recognised that the current student administration system is grossly inadequate. It does not
conveniently allow for class lists, generation of roll books, generic data searches, automatic crosschecking of prerequisites, generation of graduation lists and similar. Any one of these tasks can take
teaching staff hours to complete. 68
Advice was given that the inadequacies of the system are acknowledged and that this would be the
case regardless of where the function and staff were housed. It is noted that a new student
administration/management system will be needed in the foreseeable future regardless of this
Review.
The salient point is that the new entity needs an effective VET/tertiary-specific student
administration system as soon as possible to operate effectively and that this system should be
housed in and under the control of the new entity, with all information accessible to the relevant
government authorities.
With regard to the other systems, the issue might be reviewed once the new entity is in a sound
financial position, for example, when it is operating with a working capital ratio that engenders
confidence that greater local control is warranted. For the time being, efforts are better directed
towards ensuring that the fundamentals of teaching and learning are in place, not distracted by the
requirements of managing corporate services.
9.9
Assets and Infrastructure
As part of establishing the new entity, a decision needs to be made on whether the ownership of the
assets and infrastructure is vested in the Crown or the new entity. Consistent with the spirit of
COAG, which promotes increased independence and flexibility for public providers, ownership
vested in the new entity may be considered in the medium to long term. However, along similar
68
Individual submission, Tasmanian Polytechnic staff member
49
lines to the approach to corporate services, the priority is to ensure the core business of the new
entity is well established and it is in a sound financial position.
In any event decisions on ownership are not entirely straightforward:
•
•
The new entity might be required to demonstrate that the assets are being utilised effectively
either through its own activities or by community/third party users. This is a potential source of
income.
Much of the infrastructure has been built using Commonwealth funding on the basis that
ownership rests with the State Government. Other funding has come from state sources,
essentially from the Tasmanian taxpayer. On this basis, the Minister might legitimately expect a
form of financial return should the ownership be transferred.
This issue is not considered to be a high priority for change at this time.
9.10
The Future of Teacher Registration in the New Entity
Under the current arrangements teacher registration applies for the Tasmanian Polytechnic, but not
for the TSI. The future of teacher registration therefore needs to be resolved. Appendix 7 examines
the issues and opportunities related to the future of teacher registration in some detail.
On balance, this Report suggests that teacher registration would usefully be extended to all staff of
the new entity, subject to some specific requirements being met to meet the needs of the VET
sector.
A summary of the key points in Appendix 7 is outlined below:
•
•
•
•
•
•
•
•
in an environment of minimum standards in the VET sector, teacher registration provides an
opportunity for public sector VET in Tasmania to ‘raise the bar’ on quality
compliance with standards for VET trainers and assessors is a national issue
compliance with standards for VET trainers and assessors is also an issue for public sector VET in
Tasmania
the available figures appear to provide prima facie evidence that registration is currently valued
by Tasmanian Polytechnic and TSI teachers alike, for some regardless of whether or not they are
required to be registered
the cost of registration as a teacher compares favourably with costs associated with operating in
other comparable professions/trades
while it is still early days, it appears that the Bachelor of Education (Applied Learning) is offering
a meaningful further study pathway for public sector VET staff at minimal to no cost to the
employer
replacement of the terminology ‘full’ and ‘provisional’ Specialist VET Registration with
terminology such as ‘teacher’ and ‘trainer’ Specialist VET Registration would be a critical prerequisite for extending registration across the whole of the new entity
other minor amendments to the Teachers Registration Act related to Board membership and the
purpose of the Act would need to be made to reflect VET coverage.
50
It is noted that the Productivity Commission Research Report presents the opposite view:
Governments should not endorse or contribute funding to a registration scheme for VET trainers and
assessors. 69
However, the Research Report acknowledges that views on this issue are mixed and its major
concern is that any such scheme should be member rather than government funded. Since the
Tasmanian Teachers Registration Board operates on a cost recovery basis, extending the registration
requirement across the new entity would not be in total contradiction to the Productivity
Commission’s view.
9.11
Recommendations:
It is recommended that:
R7
A new single entity be created for public sector post-compulsory VET in Tasmania using
the combined resources of the Tasmanian Polytechnic and TSI.
R8
Steps be taken to ensure that the new entity retains the capacity to focus specifically on
each of the productivity/work readiness agenda and the participation/attainment
agenda.
R9
The scope of registration of the existing Tasmanian Polytechnic and TSI be unified as part
of the creation of the new entity.
R10
The new entity be a statutory authority within the proposed new VET Act and have the
capacity to appoint its own staff.
R11
The membership of the Board reflect the characteristics of the community and industry
the new entity serves and include experts from areas such as other educational sectors,
finance, human resources, risk management, property and the law.
R12
The initial organisational structure have the following characteristics:
•
•
•
•
•
•
flat and lean, with minimum layers of responsibility and empowered managers
managers expert in their disciplines/industries of responsibilities
a clear and single line of responsibility for teaching areas
capacity to maintain a separate focus on the two strands of productivity/work
readiness and participation/attainment
a distributed rather than centralised approach to location of senior staff
identification of existing or potential Centres of Excellence across the delivery
areas as a focus for capability and future development.
R13
A nation-wide search be conducted for the recruitment and appointment of the CEO as
soon as practicable, to lead the development and vision for the new entity.
R14
Other senior positions in the new structure be appointed in accordance with State
Service processes.
69
Productivity Commission op cit Recommendation 10.1, p.LVII
51
R15
The accountabilities and selection criteria for senior positions be crafted so as to ensure
the organisation works effectively in accordance with the characteristics outlined in
recommendation 12.
R16
Staff in charge of teaching areas be required to work to industry advisory bodies or
alternatively authoritative industry mentors in the areas for which they are responsible.
R17
Management of the operations of teaching sites be separate from the management of
teaching programs and include responsibility for ensuring the delivery arrangements for
remote and rural areas are maximised, including through coordination with
schools/colleges.
R18
All teaching sites operated by the new entity have a designated point of contact.
R19
Communication strategies about the new structure include all staff regardless of the
level or category of appointment.
R20
The
importance
of
an
effective
VET/tertiary
specific
student
administration/management system for conducting the core business of the new entity
be recognised, and that it accordingly be managed by the new entity with all information
accessible by the relevant government authorities.
R21
In principle, the current provision of corporate services by the Department of Education
(DoE) continue for all other systems at least until the new entity is established and is in a
sound financial position.
R22
For the foreseeable future, ownership of the assets and infrastructure be vested in the
Crown.
R23
Subject to some minor amendments to the Teachers Registration Act 70 to ensure VET
coverage, teacher registration be extended across the whole of the new entity.
R24
The initial emphasis of the new entity be on consolidating the fundamentals of teaching,
learning and assessment; ensuring access for students; and building industry relevance to
create a dynamic and innovative teaching and learning environment.
70
Refer Appendix 7
52
10. GOVERNANCE OF THE SYSTEM
10.1
Overview
The overall governance arrangements of public sector VET in Tasmania have undergone a number of
changes in recent years. These are illustrated in boxes 11 and 12 below:
Box 11: Governance of Public Sector VET in Tasmania – ‘Tasmania Tomorrow’
MINISTER FOR EDUCATION
DEPARTMENT
OF
EDUCATION
SKILLS
TASMANIA
TASMANIAN
POLYTECHNIC
SKILLS
INSTITUTE
TASMANIAN
ACADEMY
Advisory
Policy
Purchasing
Provider
Statutory Authority (VET Act)
Statutory Authority (Own Act)
Box 12: Governance of Public Sector VET in Tasmania – 2010 to Present
MINISTER FOR EDUCATION
DEPARTMENT
OF
EDUCATION
SKILLS
INSTITUTE
TASMANIAN
POLYTECHNIC
Statutory Authority (VET Act)
Statutory Authority (Own Act)
SKILLS
TASMANIA
TASMANIAN
ACADEMY
Advisory
Policy
Purchasing
Provider
53
Skills Tasmania
It can be seen from these boxes that there are two different sets of arrangements for statutory
authorities. Skills Tasmania is established under the VET Act and those providers with statutory
authority status have been established under their own Act. As indicated in Section 8, this Report
envisages consistency in the way bodies in the VET sector are established, namely all under the
proposed new VET Act.
Despite the other changes in 2010, the governance arrangements have maintained the same role for
Skills Tasmania. The Skills Tasmania Board is small, consisting of seven directors drawn
predominantly from industry. The Board has substantial powers in terms of policy development,
planning and entering into purchasing and performance agreements with registered training
organisations.
The Purchaser-Provider Split
The rationale for Skills Tasmania’s role is based on the benefits ascribed to what is referred to as the
‘purchaser-provider split’, a concept which first came to prominence in the 1990’s. It was seen as a
mechanism to promote contestability and efficiency in the delivery of public service, particularly in
large and highly contestable markets, whereby the purchasing function is separated from the
provider. It has been applied in areas such as Education and Health where government, as the
owner of the public sector provider, is seen to have a conflict of interest in also having the
purchasing role. The following extract outlines the perceived benefits of separating the two roles:
Purchaser/provider roles offer the following benefits:
• policy priorities are better specified and hence clearer
• working relationships can be improved because expectations and responsibilities are clarified
• conflicts of interest can be minimised because providers are not the sole source of advice on
targets, evaluation and standards - the balance of power is not weighted in favour of the provider
• contestability can be enhanced because potential providers are exposed to competition
• accountability can be heightened because a purchaser may specify what performance information
is expected from a provider
• managerial autonomy can be increased because relevant roles and structures can be clarified
• responsiveness to clients can be improved because purchase agreements require the provider to
meet client needs. 71
Ryan observes that the purchaser-provider split also came to prominence in the VET sector in the
1990’s, but notes that response to it was mixed.
State training authorities developed purchaser–provider arrangements for training funding, although
support for the approach has varied over time and among jurisdictions. 72
Consistent with the concept of the purchaser-provider split DoE, as the representative of
government, has no formal policy role and no purchasing role in Tasmania. However, in most other
states the equivalent of DoE, as a government department, has a role in policy and/or purchasing.
Ultimately, of course, it is the Minister in whom the responsibility for policy rests on behalf of the
government and, in that sense, even the purchaser-provider split will not alter this fact. It is also a
long-held convention that the Minister receives policy advice from the relevant government
department, which is in turn directly accountable to the Minister.
71
National Commission of Audit – Report to the Commonwealth Government, 1996, Commonwealth of Australia, Chapter 2
Ryan, R , 2011, How VET Responds: A Historical Policy Perspective, National Council for Vocational Education Research,
Adelaide, p.18
72
54
10.2
Potential Future Arrangements
The above matters potentially take on a new significance when considering the operating context for
the new entity, which would see one public provider and a relatively small number of private RTOs,
compared with other states.
The Terms of Reference of the Review are open to question as to whether or not any changes to
aspects of system governance are within the scope. Subject to whether or not this is the case, the
option arises for the Minister to consider mirroring at state level the structural arrangements that
are proposed at provider level to safeguard the two key foci of productivity/work readiness and
participation/attainment by assigning specific and separate responsibility for the functions
associated with them.
Skills Tasmania, with its predominantly industry Board and associated expertise could potentially be
ideally placed to lead the productivity agenda. DoE with its links to the school/college sector, Higher
Education and adult education could likewise be ideally placed to oversee the participation agenda.
Appendix 8 provides an example of how this could operate in practice should the government wish
to pursue this model. Setting the issue of scope aside, it is considered that this would consolidate
and reinforce the arrangements for the new entity.
The view was frequently expressed during the public consultations and in the written submissions
that the title Skills Tasmania was part of the overall brand confusion. It is often inadvertently but
mistakenly used to refer to the TSI. As part of creating a new VET sector it is suggested that Skills
Tasmania might be re-named to better reflect its role. For example, it might be referred to as the
‘Tasmanian VET Commission’ (or similar).
Likewise, should the option referred to above be further pursued, it would be appropriate to rename
the ‘Department of Education’ the ‘Department of Education and Training’.
10.3
Recommendations:
It is recommended that:
R25
Statutory authorities in the future public VET sector be established under the proposed
new VET Act.
R26
The Minister’s ultimate responsibility for all aspects of VET policy be clearly articulated in
the new VET Act.
R27
The Minister designate responsibilities for the productivity/work-readiness agenda and the
participation/attainment agenda at state level, mirroring and consolidating the
arrangements proposed at provider level for the new entity along the lines outlined in
Appendix 8.
R28
Skills Tasmania be re-named the ‘Tasmanian VET Commission’ (or similar) to better reflect
its function and avoid confusion about its role.
R29
The Tasmanian VET Commission (or similar) retain statutory authority status under the
proposed new VET Act.
R30
The Department of Education be renamed ‘Department of Education and Training’.
55
11. VET PROVISION IN SCHOOLS/COLLEGES
11.1
The National Scene
Considerable concern has been expressed at national level about the quality and outcomes of VET in
Schools programs. The rationale for the National Trade Cadetships initiative and the findings of Skills
Australia both illustrate this:
National Trade Cadetships
In the 2011-12 Federal Budget, the Gillard Government announced a new National Trade Cadetships
program stating that:
There are around 220,000 students participating in Vocational Education and Training (VET) in Schools
representing 41 per cent of all school students undertaking a senior secondary certificate.
However VET in Schools does not currently provide a clear pathway or strong enough building blocks to
further VET qualifications, apprenticeships or work. Within school, students will often complete different
components of a VET course with no real carry forward benefit to a higher qualification. 73
Skills Australia
In 2011, Skills Australia recommended a national review of VET in Schools stating that:
… while VET in Schools has achieved many positive outcomes, doubts have been expressed, in the
literature as well as in submissions and consultations with Skills Australia, about the quality and design
of VET in Schools programs. Some have also questioned the value of their outcomes. 74
As outlined in Section 3.3 of this Report, whatever the problems in VET in schools might be, the
$2.5 billion Federal Government Trade Training Centres program confirms the importance of the
role that secondary schools play in the delivery of VET in Schools programs across Australia.
The Report of the Review of Funding for Schooling 75 led by David Gonski was recently released. It
makes little direct reference to VET in schools, but there may be potential for the findings to impact
on the funding for VET in schools as the recommendations are addressed.
11.2
The Tasmanian Scene
Along with other states in Australia, VET in schools provision gained momentum in Tasmania in the
1990’s and has been a feature of the secondary system ever since with around 3,000 enrolments per
annum.
Certain characteristics of Tasmania need to be borne in mind in relation to VET in schools:
•
•
•
in common only with the A.C.T., Tasmania has years K-10 schools and years 11-12 colleges
consistent with all other states and territories, the school leaving age is 17 76
students in State Government schools/colleges have the opportunity to develop individual
pathway plans with the support of a Pathway Planning Officer in their college/school.
73
National Trade Cadetships Factsheet http://www.alp.org.au/agenda/national-trade-cadetships/
Skills Australia, 2011, Skills for Prosperity – a roadmap for VET, Commonwealth of Australia, p.133
75
Gonski, D, Boston, K, Greiner, K, Lawrence, C, Scales, B, & Tannock, M, 2011, Review of Funding for Schooling – Final
Report, Australian Government
76
or until they achieve a Certificate III vocational qualification – Youth Participation in Education and Training
(Guaranteeing Futures) Act 2005
74
56
In its submission to the Review, Skills Tasmania points to some issues that have been problematic in
the Tasmanian context, but concludes that:
Notwithstanding the history of the VET in Schools experience in Tasmania and nationally, including that
of the ‘Tasmania Tomorrow’ reforms, the viability of broad scale vocational learning for 15-19 year olds
is not in question.
The principal issues remain the structural (including funding) arrangements for delivery and the cultural
(academic – vocational) divides within education and training communities and the Tasmanian
community more generally. 77
The situation in Tasmania now is that there is a vibrant network of providers of VET in schools,
consisting of:
•
•
•
eight colleges (the Tasmanian Academy)
six (and soon to be eight) Trade Training Centres with associated partner schools
several rural and district high schools with Year 11 and 12 ‘tops’.
Even though there were some criticisms about the VET in Schools program from industry during the
consultations, site visits to a number of these providers during the Review provided evidence of
strong commitment to the importance of the programs as a means to enrich the curriculum and
maximise the potential for student retention. Many of the providers also have partnerships with the
Tasmanian Polytechnic that augment their programs and which they value. They have also gone to
considerable effort to forge close relationships with industry.
A range of RTO arrangements applies across the providers and this was the subject of a Report by an
RTO Working Group established by DoE in 2011.78
The opportunity presents itself to formalise these providers into a Tasmanian VET in Schools
network and to use the network to address issues arising and continuous improvement.
There is also a case in favour of fixing the number of RTOs involved in VET in schools for the time
being given the combination of the following factors:
•
•
•
•
the likelihood of national initiatives to improve VET in schools
the likelihood of increased rigour of regulation under ASQA, outlined in Section 3.3 of this Report
the findings of the RTO Working Group on Research into Registered Training Organisation
Models
the evolutionary stage of Tasmania’s Trade Training Centres and their potential to improve VET
provision in schools and colleges.
This would not preclude some current RTOs from instigating voluntary relinquishment of their RTO
status in the meantime if they judge this to be in their best interests.
Steps would need to be taken to transfer the auspicing arrangements of the Tasmanian Polytechnic
to the new entity in a timely and orderly fashion and potentially to expand these over time.
77
Skills Tasmania submission
Report of the RTO Working Group on Research into Registered Training Organisations Models for the Department of
Education, July 2011
78
57
11.3
Cultural Differences
Despite a generally positive atmosphere between the schools/colleges and the Tasmanian
Polytechnic, the public consultations and the written submissions provided considerable evidence of
the existence of a cultural divide accompanied by genuine concern that this was the case. One of
the individual submissions summarised the differences as follows:
VET is often (legitimately) seen as an ‘engagement’ strategy for students otherwise at risk of
disengaging with education. Others reflect principally on the role of VET in providing skills that are
needed in our economy and meet required standards embedded in qualification and other
specifications. 79
Certainly some of the participants emphasised that VET in schools provides options for less
academically oriented students and should be seen as part of a holistic education, not just part of
training. Encouraging students to complete their TCE was regarded as preferable to promoting an
early entry into a vocational career. These views are common within the school/college system.
Another body of opinion sees vocational education as a legitimate career pathway in its own right
with alternative options for further study if relevant. It rejects any suggestion that it is
predominantly for the disengaged or less valuable than the Tasmanian Certificate of Education (TCE).
These views are common among those in the Tasmanian Polytechnic and the TSI.
However, there is a danger of generalisation in this regard. The differences are not black and white
or neatly polarised. Rather, there is a wide spectrum of views, as is illustrated in the following
extracts from the submissions:
We argue strongly that including VET provision in a general holistic education is the best arrangement
for quality work-based training. Such arrangements include a supportive environment, preparatory
studies and, through the cooperation of employers, develop work readiness maintaining NVR/AQTF
standards. 80
While Certificate 2 is currently run as VET in Schools it should in future be run by the Skills Institute,
where necessary by contract with the relevant college or other providers. 81
The VET system and employers are being expected to teach and/or pay for literacy and numeracy
education to cover the failing of the school system while many publicly funded schools are trying to
teach VET subjects and seeking money to support inadequately trade qualified teachers and
substandard facilities. 82
A lot of students do not have enough interest in academic subjects to persist with two more years of
‘busy work’, gaining a string of subjects to qualify for the TCE, with no real relevance to any career they
wish to pursue. Many Diploma students would never have believed they could tackle university, but that
is exactly what many do once working in their chosen field. 83
At worst, different perspectives can lead to tensions and misunderstandings and, in the worst case
scenario, distrust between the parties.
79
Individual submission from a former VET official
Tasmanian Academy submission
81
Tasmanian Building and Construction Industry Training Board submission
82
Group Training Australia submission
83
Individual submission from a parent
80
58
As one example, the view was expressed on several occasions that in recent times the Tasmanian
Polytechnic ‘suitability process’ was excluding some students who are less likely to succeed and they
are not always provided with an alternative pathway and/or feedback about why they did not get
into a certificate program. In contrast Tasmanian Polytechnic staff claim that the suitability process
has been unchanged for some years and always involves the exploration of options with the
students.
Another tension exists around the pathway planning process undertaken with students. This is
interpreted by some to promote the college system at the expense of the Tasmanian Polytechnic
even when the student is ready to pursue a vocational pathway. There is even suspicion that this is a
means to channel funding to the school/college system.
Regardless of the accuracy or otherwise of these claims and counter-claims, the fact that they exist is
counter-productive and not conducive to the best possible environment for students.
It is suggested that a formal mechanism is needed for these issues to be addressed at a high level
and that this should be managed by DoE. This might usefully be combined with addressing other
operational matters and issues of mutual concern, with the interests of students at the forefront of
discussions.
It is also suggested that steps be taken to ensure that staff employed in the pathway planning
function represent a mix of academic and VET backgrounds to ensure students have access to
comprehensive advice on their potential futures.
It should also be noted that these issues are not confined to the public sector. Independent schools
have their own set of issues:
Since the restructuring of the ‘Tasmania Tomorrow’ initiatives, schools have found it more difficult to
work with the public providers. Issues have included lack of consistent pricing, failure to deliver
courses, inadequate information about course availability and closing dates, poor communication and
lack of follow-up and confusion about the role of TSI in providing training to schools. 84
11.4
Funding
Consistent with Section 11.3, there is scope to clarify some of the concerns around funding that are
causing further tensions. More recently, the issues have been exacerbated by the impact of financial
constraints and budget cuts.
VET programs can involve considerable expense, especially where they are equipment intensive. At
present, government owned schools/colleges fund their VET provision from annual global budgets,
with no specific allocation for these additional costs. Not surprisingly, the different funding models
for schools/colleges and the Tasmanian Polytechnic, which receives a ‘loading’ for certain high cost
programs, are proving problematic. In addition, for reasons that are presumably historic, nongovernment schools do receive additional funding for VET in schools programs. The following
extract is typical of the views expressed on this issue:
VET is expensive and in Tasmania government colleges receive no additional funding for VET students.
Just the cost of repeated upgrading of trainer qualifications is significant … We understand that in some
84
Independent Schools Tasmania submission
59
states, Commonwealth funding supports VET in Schools, as it does in non-government schools in
Tasmania. The Academy thinks this distinction is indefensible. 85
Of course, fairness is not the only issue at stake here. Providing undifferentiated funding for VET in
schools is difficult to justify when they face criticisms from industry about quality and relevance.
11.5
Future Trade Training Centres
As indicated above, Tasmania has so far been allocated a total of eight Trade Training Centres in the
early rounds of submissions, with Round 5 not yet released. In the context of the proposed
approach of including the Trade Training Centres in the network of VET in Schools outlined in this
Report, the opportunity arises to locate any future centres in such a way that takes coverage of the
whole state into account.
It will be essential for all Trade Training Centres to have business plans that include elements such
as:
•
•
•
ensuring they are fully utilised
appropriately qualified staff can be sourced
access to industry, the community and third parties is promoted where applicable with priority
for those seeking access to accredited outcomes
income generation can be maximised wherever possible
there is an equipment replacement schedule.
•
•
A model business plan could be developed that can be provided to any new Trade Training Centre as
a template.
It is understood that work along these lines has already commenced.
11.6
Recommendations:
It is recommended that:
R31
A network of providers of VET in schools/colleges be formalised, consisting in the first
instance of:
•
•
•
the eight existing colleges
the existing Trade Training Centres and their partner schools
any high schools that currently have Registered Training Organisation (RTO) status.
R32
The existing RTO arrangements be fixed for the time being and reviewed in 2015, unless
voluntary relinquishment of such status is initiated in the meantime.
R33
Existing auspicing arrangements between the colleges, Trade Training Centres and the
Tasmanian Polytechnic be transferred to the new entity and expanded over time.
R34
DoE host a formal structure to enable ongoing liaison between the network and the new
entity to ensure:
85
Tasmanian Academy submission
60
•
•
•
•
the necessary programs are on scope
auspicing arrangements are appropriately monitored
the delivery requirements of the network are met as far as practicable
arrangements for duty of care and pastoral support are agreed.
R35
As the opportunity arises, steps be taken to ensure that there is a mix of staff from
college and VET backgrounds involved in pathway planning.
R36
The funding arrangements for provision of VET in the network be reviewed to move
towards closer alignment with the true cost of VET delivery.
R37
The decisions on the location of any new Trade Training Centres take into account an
optimal geographic coverage across the state, including rural and remote areas.
R38
A business plan be developed for each Trade Training Centre to maximise its usage
beyond the requirements of the school sector, with priority for those seeking access to
accredited outcomes.
61
12. VET AND HIGHER EDUCATION
12.1
The National Tertiary Landscape
As outlined in Section 3.3 of this Report, the many changes that have occurred since 2008 have reshaped post-compulsory education in Australia. The Bradley Review was the impetus for a shift in
focus from two separate post-compulsory sectors – VET and Higher Education – to a continuum of
tertiary education. Examples of the ways in which the shift in focus has been taken up in other
states is instructive and is briefly summarised in this section. Some of the initiatives merit closer
attention:
TAFE Institutes as Higher Education Providers
Since the Bradley Review there has been a national trend towards state government policy and
legislation allowing TAFE institutes to become registered as Higher Education providers, building on
their strengths in the underpinning VET qualifications. The rationale for this ranges from the
identification of demand for Associate Degrees as a pathway opportunity to university to an
intention to expand VET offerings in a competitive tertiary market.
The public sector VET entities listed on the register of the Tertiary Education Quality and Standards
Agency (TEQSA) are listed in Box 13. The coverage is national and it should be noted that in the case
of New South Wales and South Australia, there is a single registration for the whole state TAFE
system.
Box 13: Public Sector VET Entities Registered as Higher Education Providers 86
TAFE Institute
State
Box Hill Institute
Victoria
Canberra Institute of Technology
Australian Capital Territory
Chisholm Institute
Victoria
Holmesglen Institute
Victoria
TAFE South Australia
South Australia
NMIT
Victoria
Polytechnic West
Western Australia
Southbank Institute of Technology
Queensland
TAFE New South Wales
New South Wales
William Angliss Institute
Victoria
In all of the above cases there is more than one university in the relevant state/territory and, except
for the A.C.T. where there is only one TAFE institute, there are multiple TAFE institutes operating in
the state.
It is proposed that, with one university and one new public sector VET entity serving a relatively
small population in Tasmania, a collaborative approach is the appropriate way forward, whereby the
new VET entity concentrates its efforts on AQF levels 1-6 and the University of Tasmania
concentrates on AQF levels 7 and above 87. This especially applies in the context where there is much
work to be done in developing the new VET entity. The opportunity exists for Tasmania to become a
model for the rest of Australia in VET/Higher Education relationships.
86
87
http://www.teqsa.gov.au/national-register/provider/search/
Note that this is in broad terms only. For example, the Australian Maritime College operates in both sectors.
62
State Government Initiatives
In some cases, state governments have been proactive in shaping the tertiary environment postBradley, for example:
•
•
Victoria88 and New South Wales 89 moved to develop Tertiary Education plans to clarify the policy
positions of those states with respect to the relationships between VET and Higher Education
and to strengthen the linkages.
Both the Queensland 90 and South Australian governments 91 initiated and/or strengthened
existing agreements with the universities in their respective states that formalise consistent
credit transfer and pathway arrangements with the state’s TAFE institutes. This contrasts with
pathways being negotiated by individual institutions on a case by case basis.
The Tasmanian Office of Tertiary Education is a relatively new body with plans to develop a tertiary
education policy already underway.
Extensive credit transfer arrangements are already documented for the University of Tasmania as
part of the work of the Tasmanian Articulation and Credit Transfer Committee (TASACT). The
challenge is to ensure the uptake of these pathways.
Dual Sector Models – University and VET
There are currently five dual sector universities in Australia, four in Victoria and one in the Northern
Territory and with the move towards a tertiary sector, there has been much debate about their
merits and the possible establishment of new ones.
•
In September 2011, the former Queensland State Government supported the development of
a new dual sector university through the amalgamation of Central Queensland University and
Central Queensland Institute of TAFE. At the time of this Report going to publication, the
support of the new government was still to be confirmed.
•
In 2010, the University of Canberra announced its intention to become an ‘omniversity’,
encompassing all stages of the education process and including private providers under the
university umbrella. To this end, the university sought a merger with Canberra Institute of
Technology. In support of this view, Professor Denise Bradley recommended a merged new
dual sector institution between the University of Canberra and Canberra Institute of
Technology in August 2011. This merger was recently placed ‘on hold’ and possibly off the
agenda, pending the outcomes of the COAG process. 92
In both of these instances, the proposed partners to the mergers are in a stable state and in a
position to negotiate the terms of the merger on a sound footing.
No groundswell of opinion emerged in the public consultations and written submissions that a dual
sector university is appropriate for Tasmania. If anything, this was opposed in favor of pursuing the
more pressing priority of ensuring the new VET entity is catering for the population it serves and is
recognised as such.
88
Dow, K, Adams, B, Dawson, J, & Phillips, D, 2009, Report Advising on the Development of the Victorian Tertiary Education
Plan, Department of Education and Early Childhood Development, Victoria
89
NSW Tertiary Education Plan, 2010, NSW Government
90
Integrated Articulation and Credit Transfer Project http://www.usq.edu.au/iactproject/communication
91
Carnegie, J, 2009, Policy and Regulatory Analysis – A Report Prepared for the Pathways Project, Australian Qualifications
Framework Council
92
http://www.smh.com.au/act-news/new-tertiary-institute-shelved-as-govt-negotiates-funding-20120328-
63
12.2
VET/Higher Education Collaboration in Tasmania
General Response
Overall the issue of VET/Higher Education collaboration attracted relatively little attention during
the public consultations and in the written submissions. In the few cases where it did, it was not
necessarily presented as a matter of priority. The focus was first and foremost on the reform of
public sector VET.
Concern was also expressed, particularly by industry, that VET qualifications are seen as valuable in
their own right and a legitimate exit point to the workforce, not just an alternative route to
university. Pathways were sometimes construed as pertaining only to qualifications and being of
primary benefit to universities, when in fact they are also related to careers and of benefit to the
individual and the economy.
The general lack of canvassing of this issue may also be attributable to limited public awareness of
the wider national tertiary agenda.
Key Players
Nonetheless, for those most immediately involved, some firm foundations have been laid for the
future through co-operative arrangements that exist between the Tasmanian Polytechnic or TSI and
the University of Tasmania. In its submission, the Tasmanian Polytechnic cited the following:
•
•
•
•
joint delivery of Engineering Diploma and Degree programs at the North Western campuses of
both institutions
joint implementation of the recommendations for more effective pathways outlined in the
report ‘The Path Less Travelled’ 93
co-location of Creative Arts programs in both Launceston and Hobart with articulation pathways
facilitating student movement in both directions
joint submissions for Federal Government funding allocated to support initiatives arising out of
the Bradley Review. 94
In addition to these initiatives, the University of Tasmania identified:
•
•
•
•
a collaborative approach to the development of the Bachelor of Education (Applied Learning)
designed specifically to cater for the needs of VET teachers
the offering of HECS free scholarships by the University of Tasmania for Tasmanian Polytechnic
and TSI teachers to undertake the Bachelor of Education [Applied Learning] (refer also Appendix
7)
sharing of staff and other resources for Outdoor Education programs
a range of on-going and ad hoc co-operative arrangements between the TSI and the Australian
Maritime College, one of the former of which includes the TSI providing metals training in the
Marine Engineering (Pre-Sea) and Integrated Ratings programs. 95
These few examples illustrate that VET/Higher Education relationships are not, as is all too often
assumed, only about pathways and credit transfer. In essence, they cover a range of mechanisms
that are reflective of the emergence of a true partnership:
93
Langworthy, A, Johns, S, Humphries, M, 2011, The Path Less Travelled: VET Articulation in Tasmania, University of
Tasmania
94
Tasmanian Polytechnic submission
95
University of Tasmania submission
64
•
•
•
•
•
•
•
•
pathway development
joint delivery
cross-sectoral teaching
joint course development
provision of scholarships
sharing of staff and other resources
physical co-location
joint submissions for funding.
12.3
Building a Strategic Partnership
The Relationship Between the Parties
For partnerships to be sustainable, mutual respect and understanding are imperative. This is
encapsulated succinctly in the following statement:
In an articulation between the university and VET sectors, there are some fundamental differences that
need to be acknowledged. Universities have a significant role in research and research productivity.
The VET sector has a stronger focus on teaching and preparation for the workplace … It is unrealistic to
expect both cultures to exist on the one campus unless there is respect and support for both activities.
… If there is a lack of respect and a lack of understanding of the teaching and learning cultures of the
two institutions then positive partnerships are less likely to form. 96
This thinking represents a sound basis from which to build on the many potential opportunities that
exist to establish and maintain the partnership.
Future Opportunities
Examples of the many future opportunities are outlined in the University of Tasmania’s submission.
They include:
•
•
•
•
•
•
•
•
96
97
full compliance with the Pathways Policy of the AQF which specifies that ‘All issuing
organisations will have clear, accessible and transparent policies and processes to provide
pathways and credit arrangements for students’97and provides guidelines for how credit should
be granted
targeted joint strategies to lift participation rates and qualification levels of Tasmanians,
including in rural and remote areas
collaborative utilisation of technology to expand educational opportunities generally and in thin
markets, drawing on the advantages of Tasmania’s early access to the NBN
joint strategies to address skill priorities (e.g. food technology and processing, ‘smart’ agriculture
and ‘smart’ manufacturing) and skill gaps (e.g. Aged Care/Dementia Care) in the Tasmanian
economy, especially where these skills are being sourced from outside Tasmania
identification
and
joint
development
of
appropriate
additional
university
programs/qualifications for VET teachers
agreement on ways to best handle the different learning models in VET (competency-based
learning and assessment) and Higher Education (curriculum and normative/summative
assessment) in the interests of students
agreement on ways to maximise recognition of prior learning in both sectors and application of
this where relevant to mature age students with low ATAR scores
joint strategies to exploit available Federal funding for VET/Higher Education initiatives
Ibid (Faculty of Education)
Australian Qualifications Framework, First Edition, 2011, p.76 -77
65
•
•
joint infrastructure planning, where appropriate
better co-ordination of approaches to international education (inbound students) and
transnational education (off-shore).
This last point is also highlighted by Government Education and Training International:
For a small state like Tasmania, if a wide range of pathways can be developed and maintained between
the Government VET providers and the University of Tasmania, then the ultimate aim of keeping as
many international students in our state (as possible) will be achieved. 98
It is recognised that the realisation of these many opportunities would take time and resources and,
with the current financial constraints, these may not be readily available. However, in principle
agreement about their importance is the first step towards setting priorities for addressing them
over time. Importantly, the indicative organisational structure for the new entity assigns clear
responsibility for management of the VET/Higher Education interface at a senior level (refer
Appendix 6) and so provides a mechanism whereby funding opportunities might be jointly pursued.
Pathway Development
Data provided by the Tasmanian Polytechnic shows that actual numbers and the proportion of VET
students gaining higher level qualifications, a pre-requisite for articulation to university, has at best
flattened in the last three years. Box 14 shows that students graduating at Diploma/Advanced
Diploma level fell from 1,110 (25.5%) in 2009 to 1,003 (18.7%) in 2011, in an environment where the
overall number of graduates increased by 14%. Further, the majority of these graduates completed
qualifications in business-related fields.
Box 14: Graduating Students at Qualifications Levels AQF 1-6, Tasmanian Polytechnic, 2009 – 11 99
2009
2010
2011
No.
%
No.
%
No.
%
QUALIFICATION LEVEL
Advanced Diploma
106
2.3
161
3.0
156
2.9
Diploma
1,094
23.2
982
18.5
847
15.8
Certificate IV
680
14.4
777
14.6
963
17.9
Certificate III
1,223
25.9
1,551
29.2
1,437
26.7
Certificate II
1,003
21.3
1,214
22.9
1,461
27.2
Certificate I
607
12.9
621
11.7
512
9.5
Course
2
7
0.1
2
TOTAL
4,715
100
5,313
100
5,378
100
This decline in higher level qualification completions is a concern if Tasmania is to reach its VET
targets under the National Partnership Agreement and its Higher Education targets.
One mitigating factor is the growth of graduates at Certificate IV from 680 (14.4%) to 963 (17.9%).
It is suggested that, if the numbers and diversity of graduates eligible to proceed to Higher Education
are to increase, intervention strategies be considered. For example, marketing targeted at students
at Certificate IV and above might be fruitful.
98
99
Government Education and Training International submission
Source: Tasmanian Polytechnic
66
12.4
Recommendations:
It is recommended that:
R39
A forum be created to enable the new entity and the University of Tasmania to develop a
formal, multi-dimensional and strategic partnership with the aim of becoming a model for
Australia.
R40
A joint investigation be conducted into possible funding sources that might support the
work involved in developing the partnership.
R41
Consideration be given to placing priority on joint arrangements to support growth in the
international market.
R42
Strategies be developed to restore the percentage of graduates qualifying at
Diploma/Advanced Diploma level to at least 2009 levels.
67
13. ADULT LEARNERS
13.1
Clarifying Policy
As outlined in Section 6 of this Report, some confusion was evident in the public consultations and
the written submissions about the issue of adult learners in VET and more broadly.
There was vagueness about the role of LINC Tasmania and the place of leisure and lifestyle programs
that might be offered in an adult education setting. This in turn led to inaccurate assertions about
funding allocations.
There was little reference to neighbourhood houses and other community learning centres.
There was also a perception that under the ‘Tasmania Tomorrow’ reforms adult learners had
received lesser priority and participation by adults was falling.
These misconceptions are understandable in an environment where confusion exists more broadly
and where policy for adult and community education is fragmented. It is a component part of
several policies, such as the Community Knowledge Network Strategy 2006, the Tasmanian Skills
Strategy 2008-2015 and the Tasmanian Adult Literacy Plan 2010-2015. However, there is no single
coherent document that spells out its place in education in Tasmania and its future.
From a policy perspective, several inter-related distinctions need to be taken into account:
•
•
•
•
Learner Intent: Adults seeking qualifications for work-related purposes, such as re-engaging in
the workforce or upgrading their skills, and those primarily engaging in leisure and lifestyle
pursuits outside of a work/employment context.
Setting: Adults pursuing VET qualifications in less formal settings, those doing so in a formal
institutional environment and those undertaking training in the workplace.
Investment: Directing government funding towards meeting labour market requirements and
directing government funding to cater for individual preference.
Funding: Government funding vs. user-pays.
Particularly in times of economic and fiscal restraint, government expenditure is most effectively
directed towards those learners pursuing accredited training for work-related purposes. As a
concomitant of this approach, leisure and lifestyle programs are offered on a user-pays or cost
recovery basis.
There is scope to clarify the policy framework for adult and community education, aligned with other
sectors of education.
13.2
The Role of LINC Tasmania
LINC Tasmania consists of urban, regional and rural public library facilities, smaller outlets such as
branch libraries and online access centres, comprising well over 70 sites. The use of these sites as a
network to facilitate community learning is most likely unique to Tasmania.
Site visits to LINCs were incorporated into the regional consultations for the Review and several
observations could be made first-hand:
68
•
•
•
•
•
LINCs support more effective use of government owned facilities, while at the same time
receiving the many benefits of being part of a government service
the combination of LINCs with other services in many instances offers a relaxed, welcoming and
non-threatening environment for community members of all ages to re-engage in learning, both
intentionally and incidentally
they maintain a standard for the settings in which learning takes place regardless of the
location– urban, regional or remote
in rural and remote areas they offer access to learning which might otherwise not be available
they act as a referral point to RTOs in the local area for learners who may be unfamiliar with or
daunted by taking the next step into formal training.
In summary, the LINC Tasmania network provides a gateway to VET while being separate from it.
The submissions further elaborated on these aspects:
LINC programs extend pathway networks by easier access to a range of training providers. The LINC is
seen as a neutral space. Relationships are developed through partnerships with both public and private
training providers. LINC clients have choices in how and when they might engage in learning. The LINC
model focusses on client outcomes. 100
Tasmanians already experience social and economic disadvantage and social exclusion, especially as
a result of lack of work options, low levels of schooling and poor literacy rates. The task for Tasmania is
huge and no one agency can hope to effectively address these issues. 101
It is noteworthy that the LINCs added their voices to the call for a single VET entity on the grounds
that the existence of two entities had made referral from LINC Tasmania to accredited training too
complex and unwieldy.
Another important aspect of LINC Tasmania is its use of volunteers as learning mentors. Advantages
of this approach have been identified as follows:
•
•
•
•
•
•
•
•
modelling learning across all stages of life and from a broad cross-section of society
opportunities for people to build a positive self-identity and trial new roles
increased learning and support through volunteer and peer tutoring
cost effective service provision for 1:1 training in isolated areas
genuine engagement with members of the community
social inclusion
building a learning pathway based on trust and respect
pathways to further engagement in work or training/education 102
The use of a volunteer workforce does not obviate the need for effective management and training
and this merits ongoing attention.
13.3
Adults in VET
As alluded to above, the view was frequently expressed during the public consultations that adult
learners in the formal VET system have missed out under the ‘Tasmania Tomorrow’ reforms. The
perception was that the emphasis on retention of young people in the Tasmanian Polytechnic had
been at the expense of the older age cohorts.
100
Huon LINC Community Advisory Board submission
Tasmanian Library Advisory Board submission
102
LINC Tasmania submission
101
69
Contrary to this view, Box 15 shows that the distribution by age group of VET effort across Tasmania
in 2010 was broadly in line with national trends and, if anything, the 15-19 year age cohort was less
dominant in Tasmania than elsewhere.
Box 15: VET Effort by Age Group – Tasmania and Australia 2010 103
TASMANIA
AUSTRALIA
2010
2009-10%
2010
(‘000)
%
change
(‘000)
%
14 years and under
0.1
0.2
97.8
11.8
0.7
15-19 years
11.0
22.1
5.5
462.0
25.7
20-24 years
8.2
16.5
7.5
307.0
17.1
25-44 years
18.6
37.4
16.3
643.9
35.8
45-64 years
11.2
22.6
28.5
340.3
18.9
65 years and older
0.5
1.0
22.5
25.1
1.4
not known
0.1
0.1
-47.4
8.9
0.5
TOTAL
49.7
100
1,799.0
100
2009-10%
change
-8.3
3.3
6.8
7.1
8.8
-3.0
-52.9
This highlights the fact that under the present structure the perceptions of what is achieved by the
public VET sector is distorted by the existence of two entities. The physical presence of students on
campus is not a reliable guide to participation in VET when existing workers may be undergoing
training in multiple workplaces. Whereas 15-19 year olds may be very visible on the Tasmanian
Polytechnic sites, the situation is quite different for the TSI.
The determining factor is response to demand in the labour market and by individuals for the most
appropriate mode of learning.
13.4
Recommendations:
It is recommended that:
R43
Work be undertaken to clarify the policy framework for adult and community education
clearly differentiating between that activity which is part of VET (i.e. leading to accredited
outcomes) and that which is leisure and lifestyle related or pre VET.
R44
VET government funding directed to adult and community education place priority on
adults pursuing qualifications for work related purposes.
R45
The LINC Tasmania network be re-affirmed as an important and useful gateway for adults
into VET, but not part of the formal VET sector.
R46
LINCs be excluded from obtaining RTO status.
R47
The training needs of volunteer tutors continue to be monitored so as to stage the
allocation of funding to progressively meet this need.
R48
Provision of VET across the age cohorts in Tasmania continue to be monitored for
alignment with national trends.
103
Source: National Centre for Vocational Education Research
70
14. VET IN RURAL AND REMOTE AREAS
14.1
The Challenges
As part of the conduct of the regional consultations, visits were made to some of the smaller
communities. Participants joined these consultations from even further afield than they did in larger
population centres visited. It was clear that these communities are anxious to improve employment
and educational opportunities in the local area to avoid the necessity for young people to leave and
to ensure a stable community more generally.
Tasmania is not alone in this regard. The Bradley Review explored the complexities associated with
rural and regional provision in Higher Education and, in summary, found that there was a need for
sustainability in Higher Education through a system that:
•
•
•
•
is flexible and innovative
anticipates and responds rapidly to local needs
builds upon partnerships with local communities, business and industry and providers in other
sectors of education
makes effective use of institutional cross‐collaboration and partnerships and shared use of
facilities and resources to maximise student learning outcomes in ‘thin markets’. 104
These features can be readily transferred to VET.
14.2
Thin Markets
The issue of thin markets is particularly relevant in rural and remote communities in Tasmania and
respondents to the Review were, not surprisingly, vocal about it. They were generally of the opinion
that the separation of the Tasmanian Polytechnic and TSI had made thin markets even thinner and
more difficult to service:
The decision made to create two (2) vocational centres – Skills Institute/Polytechnic has further eroded
the delivery of primary industry training across the State. Industry sees the teaching staff spread over
two vocational academies, with the subsequent loss of skills and knowledge, particularly at the Skills
Institute, and with little integration between each. 105
The division of skills training between the notional ‘pre-employment’ of the Polytechnic and ‘postemployment’ of the Skills Institute has led to duplication, inefficiencies and confusion. Whilst there is
merit in the concept it is unlikely that, in a market as small as Tasmania, this two-pronged approach to
training is ever likely to deliver real benefits. 106
(It is difficult to) … have any efficiency/viability in a model that splits already small and fragmented
markets across two, often competing, public providers in Tasmania. 107
104
Bradley, D, op cit, p.111
Primary Employers Tasmania submission
106
Tasmanian Farmers and Graziers Association submission
107
Individual submission
105
71
The last of these respondents issues a further warning:
The private sector will not be willing or able to step into areas of thin demand that the public sector
leaves creating market failure and significant gaps in the Tasmanian market. 108
These and other comments reaffirm the view that a new single entity is the way forward for
Tasmania.
14.3
Maintaining Sustainable Levels of Delivery
Following from the above, there was a strong perception that delivery in remote and rural
communities had declined considerably since the advent of ‘Tasmania Tomorrow’, due to the
increased costs of operating two providers and the more recent budget cuts. The view was that
when budget cuts are implemented, rural and remote areas are the first to suffer.
It must be emphasised that, although some evidence for this was supplied in the form of progressive
reductions in course offerings and student contact hours, the assertion was not fully tested. As
highlighted in Section 13 of this Report, when operations are split and there are efforts to increase
the proportion of training being undertaken in workplaces, the extent of overall public sector
delivery is not always visible to the wider community, which may only observe reduced utilisation of
on-campus facilities. This can be further clouded by other factors such as the frequent necessity for
one-on-one or small group training provision in primary industry, the level of activity of other RTOs
and the extent to which individuals are willing or able to travel to access training. There are also
broader issues in the local labour market that affect demand such as changes in technology and the
different training implications for fly-in fly-out workers.
Under these circumstances there is not always an accurate understanding of demand and whether
the demand is shifting in quantum or in type.
This demonstrates the need for co-ordinated information and communication about the level of
delivery and the associated support that is planned in rural and remote communities as well as
about the circumstances under which that might change – either increase or reduce. This requires
awareness of the actual level of demand along with the industry and other local circumstances that
impact on it. There may be a case for adjustments to class sizes and funding allocations, especially
where there are new industries or enterprises starting up. It was also frequently acknowledged and
accepted that the public provider can’t be ‘all things to all people’. All of these considerations need
to be transparent, managed effectively and understood by all parties so that expectations are
aligned with what happens in practice.
The current situation appears to be that in the absence of this information, reduced delivery is part
of a downward spiral as communities form the impression that there is insufficient commitment to
an ongoing presence by the public sector provider. This has led to some resentment and a
perception in some quarters that rural and remote communities are treated as a ‘backwater’ or little
more than a community service obligation.
The new entity will need to take an active role in reversing this situation and re-establishing
community relationships. This is a key responsibility of the proposed Regional Managers described
in Section 9 of this Report.
108
Ibid
72
14.4
Facilities
The quality of the facilities of the Tasmanian Polytechnic and the TSI that will become part of the
new entity compares well with national standards. However, this generalisation does not
necessarily apply in the rural and remote communities.
As the new entity becomes established it will be important to determine the future of these
facilities. It will:
•
•
•
•
be part of a better-managed approach to community expectations outlined in 14.3
assist local communities to plan travel and transport
be a consideration in the process of establishing Centres of Excellence and their associated sites
inform the development of an integrated master plan in the longer term.
The recent introduction of Trade Training Centres has been a fillip in some rural and remote
communities and may well enable some other local facilities to be turned to a different use or to be
made redundant. The location of any future Trade Training Centres also needs to be taken into
account (refer Section 11.5).
Any ongoing use of mobile training facilities would also need to be incorporated into these
considerations. There was evidence in the Review of these not being fully utilised and/or not well
targeted.
For all of the above reasons, it is proposed that decisions on the future of facilities in rural and
remote areas be afforded a high priority by the new entity.
14.5
Alternative Learning Methodologies
Expansion of alternative learning methodologies such as online learning, blended learning and
distance education is important in its own right but particularly for rural and remote communities
where this may be the difference between engaging in learning and not doing so. The early roll-out
of the NBN in some of Tasmania’s rural communities is a clear advantage in this regard (refer Section
3.3).
In its submission, the University of Tasmania provides well-researched evidence of some of the
advantages of alternative learning methodologies that apply especially to people in rural and remote
areas. Very briefly summarised, they include the capacity to:
•
•
•
•
•
attract non-traditional students with career or family restraints through increased accessibility
assist employee recruitment and retention
offer a more student-centred environment
facilitate increased student engagement
develop students’ ability in a technology driven workplace. 109
Reference has already been made in this Report to the need for a co-ordinated approach in the new
entity to the development and dissemination of learning materials, with a central repository for each
industry/discipline area replacing the currently fragmented approach. It is envisaged that these will
be housed and developed in the Centres of Excellence and managed by the proposed Teaching
Group Managers.
109
Faculty of Education, University of Tasmania submission
73
14.6
Recommendations:
It is recommended that:
R49
Measures be developed to ensure a sustainable level of provision in rural and remote
areas consistent with demand and communicated to the communities concerned.
R50
Ongoing responsibility for ensuring adequate provision in rural and remote areas be
assigned in the final structure for the new entity.
R51
A compliance and viability audit of each existing campus/facility now operated by the
Tasmanian Polytechnic and TSI outside of Hobart, Launceston, Burnie and Devonport be
conducted to:
•
•
•
•
identify its current and past usage patterns, the likely future demand, and issues
arising from this
determine its capacity to effectively cater for future needs of the local industry and
community, especially as envisaged in the state’s Economic Development Plan
clarify the way forward for each associated community in terms of short, medium
and longer term investment
develop a strategic business plan for each campus/facility.
74
15. MARKETING, BRANDING AND NOMENCLATURE
15.1
The Main Brand
Against the background of the strong support for one entity outlined in Section 9, there was equally
strong support for use of the term ‘TAFE’ in the brand on the grounds that it is so highly
recognisable, both nationally and internationally.
During the regional consultations, it was repeatedly pointed out that the term ‘TAFE’ was still widely
used by students, parents and the media and that the newer titles of ‘Tasmanian Polytechnic’ and
‘Tasmanian Skills Institute’ had not really gained the same level of penetration with the general
public.
Of the 32 individual submissions received, one was opposed to using TAFE, two suggested
alternative nomenclature, nine were strongly in favour of ‘TAFE’ and the rest (20) were silent on the
issue.
Of the 41 written submissions received, 14 were firmly in favour of the term ‘TAFE’ being
incorporated into the brand for the new entity, including six industry associations. However, this did
not mean a return to ‘TAFE Tasmania’. Two organisations that were opposed to using ‘TAFE’ saw
this as being synonymous with a return to ‘TAFE Tasmania’. The remaining submissions made no
comment on the issue.
At the Hobart industry consultation there appeared to be unanimity that that the term TAFE should
be incorporated into the brand of a new single entity, while at the same time highlighting that the
entity itself should be quite different from TAFE Tasmania.
As outlined in Section 9.2 of this Report, respondents to the Review were generally adamant that the
new entity not be a reincarnation of a past model.
The issue of the brand needs to be considered in light of the fact that there is a trend in other states
to dispense with the term ‘TAFE’ as part of embracing the concept of a tertiary sector. For example,
of the ten public sector VET entities listed in Box 13 as also having registration as Higher Education
Providers (HEPs), only two use ‘TAFE’ in the brand and in both cases the brand applies to the whole
state TAFE system. Some other institutes, not registered as HEPs, are also moving away from the
TAFE brand. This raises the question of whether it is wise for Tasmania to go against this trend.
The extent of use of the ‘TAFE brand’ across Australia at present is shown in Box 16.
Box 16: Use of ‘TAFE’ by Public Sector VET Providers 110
State
No.
No. using Comments
Institutes
‘TAFE’
A.C.T
1
0
Term used is ‘Institute of Technology’
NSW
10
10
All providers branded under ‘NSW TAFE’
Northern Territory
2
0
One dual sector university, one indigenous institute
Queensland
13
11
Includes one ‘Institute of Technology’, and SkillsTech
South Australia
3
3
All providers branded under ‘TAFE SA’
Victoria
18
10
Includes four dual sector universities; four use Institute
Western Australia
11
0
Most common terms are ‘Institute of Technology’ or ‘Institute’
TOTAL
58
34
110
TAFE Directors Australia website http://www.tda.edu.au/cb_pages/institute_members.php
75
It can be seen that more than half the public sector VET providers use the term ‘TAFE’. Some of the
others that do not use ‘TAFE’ in the domestic market, do use it in the international market, where
there is high brand recognition for ‘TAFE’. To this extent, Tasmania would not be out of step by
adopting the term.
Perhaps more importantly, there are strong arguments to use the TAFE brand in Tasmania’s current
circumstances. In summary, these were frequently cited as follows:
•
The brand should include TAFE, because the TAFE brand is recognisable by all stakeholders
locally, nationally and internationally. Market share is being lost at all levels by not using this
name.
•
Using ‘TAFE’ is consistent with a plain English approach that respondents have called for.
Colloquially, this is referred to as ‘calling a spade a spade.’
•
With ‘TAFE’ widely meaning public sector post compulsory VET, its use better distinguishes
between what is happening in schools and private RTOs.
•
There should be no unnecessary expense on market research to identify a brand or on
consultants to market a new brand as there was with the Tasmanian Polytechnic. Using TAFE
will cost less to market.
•
Every effort should be made to minimise the cost of re-branding campuses and buildings. The
name should therefore be short and uncomplicated.
•
It is important for Tasmania to be positioned for the future and not seen to be going back to the
past. The name of the new entity should therefore not be ‘TAFE Tasmania’.
On the basis of the above, the name of the new entity should:
•
•
•
•
•
include ‘TAFE’
be instantly self-explanatory and recognisable locally, national and internationally
avoid unnecessary costs of marketing and branding
be short and uncomplicated
be different from ‘TAFE Tasmania’.
In consideration of these widely preferred characteristics, the name proposed for the new entity is
‘TasTAFE’.
15.2
Sub- Branding
There was also a body of opinion that the brand should accommodate the possibility of sub-branding
component parts of the new entity, where there was a case to do so and where this was consistent
with government guidelines.
This is particularly relevant to the establishment of Centres of Excellence, making it possible for
targeted marketing. For example, there might be a sub-brand for the Centre of Excellence in
Hospitality or Primary Industries.
76
In addition, there may be a case for sub-branding of co-located programs in pathway arrangements
with other sectors or providers. For example, sub-branding could be used to promote co-located
programs in Creative Arts with the University of Tasmania.
Adoption of a short main brand such as TasTAFE facilitates co-branding and makes it less
complicated and costly.
15.3
Recommendations:
It is recommended that:
R52
The new entity adopt the name ‘TasTAFE’ as the main brand.
R53
A sub-branding strategy be developed to further differentiate component parts of the
operations, particularly Centres of Excellence and programs co-located with other
sectors/providers.
77
16. IMPLEMENTATION
16.1
Effective Implementation
The process of implementation of this Review was the subject of a greater amount of comment
during the consultations than might be expected for a Review of this type. The point of comparison
was the implementation process for ‘Tasmania Tomorrow’, which was widely regarded as having
been hastily and inappropriately executed. As with any change process, no doubt some opposition
to the change fuelled this assessment.
On the other hand, there was considerable emphasis on the need to waste no time in implementing
the next set of changes on the grounds that Tasmania could not afford to allow the current situation
to continue:
The current situation is destructive and must end. 111
The views are captured in the Principles for Change (refer Section 5.2):
Principle 13 – Implementing Change
The change management process is planned, transparent and fair and it occurs within a
reasonable timeframe.
It is proposed that an orderly process be commenced as soon as possible to manage the change, led
by an implementation group with a number of working groups, operating within clear terms of
reference and to known time-lines.
A key goal must be to minimise disruption for students. This may best be achieved by phasing the
implementation from mid-year to the beginning of the subsequent year, allowing the working
groups to progressively action the necessary change over the six month period and potentially to
pilot some approaches prior to a full year implementation. Since the proposed legislative change is
substantial, a six month phase in period would also allow the legislative process to take its course. In
addition, with the proposed early appointment of the new CEO, the successful candidate would have
sufficient lead-in time to be well placed to oversee the implementation process and in so doing, to
shape the vision and culture of the new entity.
On this basis, a mid-2013 commencement time with full implementation in 2014 is envisaged.
16.2
Supporting Staff and Students in the Change
Given the previous history, the need to consider the impact of the change on staff and students was
incorporated into the Terms of Reference (TOR 7).
This gave rise to discussions about the extent to which staff were ‘change weary’ or resilient.
One of the Common Themes for the Review summarises the view held by the Reference Group:
Theme 14 – Staff Resilience
The capacity for staff to cope with change is variable and well-managed change
implementation processes will be the deciding factor in this regard (refer Section 5.1).
111
Tasmanian Education Association submission
78
An industry body echoed this:
Like all quality change management, communicating a shared vision is the key. Despite the issues in
the recent past, people will respond quickly to a worthy fix. Anything short of that, though, will only lead
to further erosion of support for the institution/s. 112
One of the unions explicitly rejected the idea that staff are ‘change weary’ emphasising the
overriding importance of creating a single entity:
The AEU has seen no evidence to support the argument … that employees are ‘change weary’. The
AEU conducted two surveys … in which the response to the question “would you want a return to a
single entity? … was a resounding ‘yes’”. 113
With respect to students, if the change process is smooth and the timing is as recommended, the
impact should only be positive.
Much of the above relies on the validity of the recommendations in this Report and their acceptance
by the stakeholders: government, industry, the community, students and staff.
16.3
Recommendations:
It is recommended that:
R54
An implementation group be established to undertake the necessary work on
implementation within agreed time-lines.
R55
The CEO be appointed in time to be able to lead and manage the transition process and
participate in the filling of senior vacancies.
R56
Working groups progressively commence work in the following areas that are critical to
implementation:
•
•
•
•
•
•
Legislation and Governance
Human Resources
Programs, Enrolments and Services
Finance
Technology and Systems
Marketing, Branding and Communication.
R57
Working group membership be based on expertise rather than representation and
include nominees from DoE, Skills Tasmania, the Tasmanian Polytechnic and TSI as
appropriate.
R58
Working groups have clear terms of reference and time-lines for achievement of
milestones.
R59
A minimum lead-time of six months be allowed for the working groups to undertake their
roles.
R60
A formal and regular communication process with stakeholders be part of the
implementation process.
112
113
Manufacturing Industry Advisory Committee submission
AEU submission
79
APPENDIX 1
Key Data for Tasmania
Table 1
Labour Productivity, Tasmania and Australia
Estimated Labour Productivity
Tasmania
Australia
2005-6
59.4
66.2
2006-7
60.9
67.6
2007-8
58.4
66.4
2008-9
59.5
67.2
2009-10
62.3
68.5
2010-11
61.6
67.7
GSP/GDP per hour worked*
* All years expressed in 2009-10 price levels
Source: estimated from ABS Labour Force 6291.0 and State Accounts 5220.0
Table 2
Unemployment, Tasmania and Australia
Unemployment
Tasmania
Australia
Unemployment
Rate %
Rate %
Original Year
Trend (June of
Average
each year)
Tasmania
Australia
2006
6.4
4.8
2006
6.4
4.8
2007
5.2
4.4
2007
4.9
4.3
2008
4.4
4.2
2008
4.1
4.2
2009
5.0
5.6
2009
4.9
5.8
2010
5.8
5.2
2010
6.1
5.2
2011
5.6
5.1
2011
5.3
5.0
Source: estimated from ABS Labour Force 6291.0 and State Accounts 5220.0
80
Table 3
Highest Educational Attainment – Tasmania and Australia
Highest Educational Attainment 15-64 Yrs
ABS Survey Education and Work
39.0
34.8
33.7
45.0
40.0
6.1
7.9
6.6
8.7
7.3
9.1
15.0
10.0
27.0
23.1
22.2
Aust '05
Aust '09
Tas '11
Aust '11
1.2
1.0
1.3
0.8
5.0
Tas '05
Tas '09
6.2
7.9
6.3
7.4
5.8
6.9
20.0
15.1
20.4
13.5
20.5
15.0
20.6
25.0
15.5
14.7
20.1
16.1
19.7
17.4
30.0
15.3
19.6
17.1
23.0
18.5
23.7
35.0
0.0
HE Bachelor
degree or
higher
A/Diploma Certificate
III/IV
Certificate
I/II
Year 12
Year 11
Year 10 or
below
Source: Australian Bureau of Statistics (ABS)
81
Table 4
Literacy Rates at Skill Level 3 and above, 2006, National Comparisons
Table 5
Rate of students retained Year 10 to Year 12 (apparent)(%)
2008
2009
2010
2011
TAS
61.8
62.2
73.0
70.4
AUS
70.1
71.4
74.1
75.0
Source: ABS 4221.0 Schools, Australia, 2011
82
Table 6
No. of Students who Achieved the TCE
(Note: TCE in its current form came into effect in 2009. Year 12 certificates do not readily compare across Australia as there are some differences in requirements. In
Tasmania, in addition to reaching 120 credit points a student must also reach a set standard for literacy/numeracy and ICT.)
2009
2010
2011
2,639 (39%)
2,823 (41%)
2,878 (43.4%)
Source: Tasmanian Qualifications Authority Annual Reports
Table 7
Students and Enrolments, Tasmania and Australia, 2006–10
Number of students
Australia
Tasmania
Number of full-year training equivalents
Australia
Tasmania
Number of hours of delivery
Australia
Tasmania
Number of subject enrolments
Australia
Tasmania
2006
(’000)
2007
(’000)
2008
(’000)
2009
(’000)
2010
(’000)
2009–10
% change
1,676.0
41.8
1,665.0
43.9
1,699.7
46.3
1,706.7
43.2
1,799.0
49.6
5.4
14.6
516.8
11.3
541.8
12.3
568.4
13.6
609.6
12.3
655.8
13.6
7.6
10.4
372,100.2
8,171.0
390,071.2
8,857.3
409,217.3
9,781.7
438,900.0
8,848.1
472,185.7
9,772.2
7.6
10.4
12,031.2
299.4
12,340.7
323.6
12,965.1
345.7
13,596.1
313.1
14,684.7
342.0
8.0
9.2
Source: 2010 National VET Provider Collection
83
Table 8
VET participation rate of persons aged 15 years and older, Tasmania, 2006–10
Age
2006
2007
2008
2009
2010
15-19 years
25.4
25.4
28.3
29.9
31.3
20-24 years
23.5
25.2
25.5
24.3
25.8
25-44 years
12.9
13.9
14.4
12.9
14.9
45-64 years
6.5
7.0
7.3
6.3
8.0
65 years and older
0.6
0.6
0.6
0.5
0.6
12.7
13.3
14.0
13.0
14.8
15-64 years
Source: 2010 National VET Provider Collection; ABS, Population by age and sex, Australian states and territories, June 2011
Table 9
Funding of VET, Tasmania, 2006–10
2006
2007
2008
2009
2010
2009–10
('000)
('000)
('000)
('000)
('000)
%
Commonwealth and state funding
29.5
30.2
31.2
30.0
30.7
61.9
2.4
Fee-for-service
12.0
13.4
14.7
12.9
18.6
37.4
43.8
% change
Number of students
Overseas full-fee paying
0.3
0.3
0.4
0.4
0.3
0.7
-12.8
41.8
43.9
46.3
43.2
49.6
100.0
14.6
Commonwealth and state funding
9.2
9.7
10.6
10.3
11.1
82.1
8.4
Fee-for-service
1.9
2.3
2.7
1.7
2.1
15.4
26.7
Total students
Number of full-year training equivalents
Overseas full-fee paying
0.3
0.3
0.3
0.4
0.3
2.5
-5.0
11.3
12.3
13.6
12.3
13.6
100.0
10.4
Commonwealth and state funding
6,610.0
7,014.3
7,602.4
7,400.1
8,019.4
82.1
8.4
Fee-for-service
1,376.9
1,641.1
1,965.3
1,189.3
1,506.9
15.4
26.7
Total full-year training equivalents
Number of hours of delivery
Overseas full-fee paying
184.1
202.0
213.9
258.8
245.9
2.5
-5.0
Total hours of delivery
8,171.0
8,857.3
9,781.7
8,848.1
9,772.2
100.0
10.4
Source: 2010 National VET Provider Collection
84
Table 10
Number of AQF qualification completions, Tasmania, 2006–09
AQF qualifications
Diploma or higher
Graduate diploma
Graduate certificate
Bachelor degree (Honours and Pass)
Advanced diploma
Associate degree
Diploma
Certificate IV
Certificate III
Certificate II
Certificate I
Type of accreditation
National training package qualifications
Nationally accredited courses
Total AQF qualification completions
2006
('000)
2007
('000)
2008
('000)
2009
('000)
2008–09
% change
1.0
1.0
1.3
1.1
-16.1
0.2
0.8
0.2
0.8
0.2
1.1
0.1
1.0
-42.0
-10.8
1.3
3.2
2.0
0.7
1.3
3.5
1.8
0.8
1.7
4.5
2.1
0.7
1.2
4.5
2.1
0.7
-28.6
-0.2
2.1
3.1
7.6
0.6
8.2
7.7
0.7
8.4
9.6
0.8
10.3
8.8
0.8
9.7
-7.6
9.0
-6.3
Source: 2010 National VET Provider Collection
A dash (-) represents a true zero figure, with no reported data in this category.
85
APPENDIX 2
Consultation Paper for the Review
86
Review of the Role and Function
of Tasmania’s Public VET Providers
December 2011
Department of Education
Department of Education
GPO Box 169
HOBART TAS 7001
p: 1800 816 057
w: www.education.tas.gov.au
2
Review of the role and function of Tasmania’s public VET providers | Department of Education
From the Minister
This review is a great opportunity to ensure that Tasmania has a structure for the public providers of VET that
serves our state now, and into the future. While the review’s focus will primarily be on the two major public
providers, the Tasmanian Polytechnic and the Skills Institute, it will include consideration of the provision of VET
for younger Tasmanians through government schools and colleges, including those in regional areas.
The public provision of VET is crucial to help Tasmanians achieve contemporary skills and qualifications as our
economy continues its transition into promising new sectors based on our natural advantages.
There are many factors currently confronting our public VET providers, including a significant national VET reform
agenda, the state’s challenging budget outlook and the reshaping of traditional provision by higher education and
private VET providers. We must determine whether our public providers are optimally positioned to meet these
challenges.
Since becoming Minister for Education and Skills I have had strong representations from many individuals and
organisations about the suitability of the current arrangements for the delivery of VET in Tasmania.
I am very conscious of the impact of considerable change over recent years on our Further Education sector.
However, it is important to consider if the current structure is the best for Tasmania so that more Tasmanians
can complete the higher level qualifications required for them to achieve fulfilling jobs and careers and to help
business and industry to prosper.
A cohesive future direction needs to be identified and then implemented. The expertise of Virsis Consulting’s
Virginia Simmons AO will bring an independent, external and objective perspective which I believe will greatly
enhance the opportunity for excellent outcomes from this review.
I invite you to engage with and participate in the consultation process and contribute constructively to this
important review.
I look forward to your contribution.
Hon Nick McKim MP
Minister for Education and Skills
December 2011
Review of the role and function of Tasmania’s public VET providers | Department of Education
3
Review of the Role and Function of
Tasmania’s Public VET Providers
Context
Reform of the post-compulsory education
and training sector in Tasmania over the
last four years, including the Tasmania
Tomorrow initiative, has resulted in two
major public providers of VET; the
Tasmanian Polytechnic and the Skills
Institute. There is also some provision
to young students by colleges of the
Tasmanian Academy and some district and
regional high schools.
The public providers have different
structural and governance arrangements:
• The Tasmanian Polytechnic is situated
within the Department of Education.
Its role is to provide qualifications for
individuals to enable them to enter
the workforce, further their skills
and qualifications or enable a career
change, as well as provide pathways
into higher education.
• The Skills Institute is a statutory
authority accountable to the Minister
for Education and Skills through a
board. It is focussed on skills
development for employees in
enterprises in line with the
enterprises’ skill needs.
• Colleges of the Tasmanian Academy
and a number of district and regional
schools, also within the department,
are focussed on young Tasmanians
in the 15 -19 year old age group.
VET is provided in conjunction with
Tasmanian Qualifications Authority
accredited courses either directly by
the colleges or in various partnering
arrangements with the Tasmanian
Polytechnic and private registered
training organisations (RTOs).
4
What are the key
strengths of Tasmania’s
public VET providers?
How well are the
productivity and
participation needs
of the state being
addressed?
How can participation
and success rates in VET
best be improved?
Skills Tasmania is a statutory authority
that has a legislated function to purchase
VET from public and private RTOs. It
does this in support of its sole statutory
objective which is to ensure that Tasmania
has a system that supports a productive
workforce and contributes to economic
and social development in the state. It
purchases VET from both of the major
public providers, some of which is
undertaken contestably. Essentially all of
the VET courses purchased from private
RTOs is done contestably.
The role of public VET providers
is far greater than the delivery of
qualifications. They have a role in
implementing government policy and
in meeting identified skill needs. They
provide economies of scale and effective
infrastructure. They enable provision in
‘thin markets’, increased access and the
leverage of industry investment.
A highly skilled and qualified workforce
supports increased productivity and
growth. Tasmania has an aging population
with a low level of post-school
qualifications.
Tasmania aspires to both state and
national targets for participation in VET
and the attainment of qualifications, and
public providers have a significant role to
play in achieving these targets. Tasmania
has agreed to a national target for Year 12
or equivalent attainment of 90 per cent
by 2015 through the National Partnership
Agreement on Youth Attainment and
Transitions. As a state, Tasmania also has a
number of other targets including:
Measure
Target
Proportion of 15-64
year olds enrolled in
education or training
20.6% (2015)
Source ABS
6227.0
Proportion of
Tasmanians with
high level skills/
qualifications
(Certificate III +)
49% (2015)
Source ABS
6227.0
The need for review
There is significant concern in the VET
and broader community in Tasmania
that the current model of VET provision
by Tasmania’s government providers is
not optimal. A review of the current
arrangements will determine if the
structural changes made in 2010 can
deliver the outcomes required of the
public VET system, and if not, recommend
alternatives.
Review of the role and function of Tasmania’s public VET providers | Department of Education
Factors impacting on
providers
How can responsiveness
to employers’ current
and future training
needs be further
enhanced?
The Tasmanian training market
The small size of the Tasmanian market
is an issue for the Skills Institute and
the Tasmanian Polytechnic increasing
the potential for competition between
the two organisations rather than the
collaboration that is required by their
legislation. This environment may also
be contributing to gaps in the provision
of VET, and the efficiency of the current
model in the Tasmanian context is being
questioned by many stakeholders.
There is an Australian Government
agenda of increased contestability in
VET markets with the aim of producing
an environment that is transparent
and driven by choice. Negotiations are
currently underway through the Council
of Australian Governments (COAG) to
review the existing National Agreement
on Skills and Workforce Development,
and to develop a new reform National
Partnership. This may result in pressure
being placed on the public providers to
enhance their transparency.
Tasmania is essentially a regional market,
and in this context public providers
require a higher level of guaranteed
funding support than metropolitan
institutions in other states and territories.
This higher level of support enables
the provision of training services in
thin markets and the achievement of
government’s social and educational
objectives where markets do not support
this.
What issues might
face the public sector
in a more contestable
environment?
How can opportunities
be improved for
people in rural and
remote areas and for
disadvantaged learners?
Accessibility
Industry-relevant VET must be readily
available to individuals and enterprises
alike if the desired qualification and skill
levels are to be achieved in the Tasmanian
population.
Previous reforms have resulted in
increased availability and accessibility of
VET options and pathways to younger
Tasmanians, particularly through schools
and colleges. These gains must not be
lost.
Links with higher education
providers
Nationally there is increased activity
and interest in the establishment of
closer relationships involving public
VET providers and universities. COAG
agreed at its August 2011 meeting that
strengthening pathways between the
sectors is an important reform objective.
Increased interconnection of the VET
and higher education sectors requires
strategies to address a range of potential
barriers if the outcome is to deliver
equal partnerships between providers
and equitable funding arrangements for
students and institutions.
The Department of Education and the
University of Tasmania currently work
together in a number of ways including
co-location of programs, research
projects, articulation of VET into higher
education and collaboration to access
Australian Government funding.
Economic factors
Both the Skills Institute and Polytechnic
have considerable budgetary issues.
These have arisen as a result of a range
of factors, including the effects of the
global financial crisis, the downturn in
apprenticeship commencements and the
increased ambit of the organisations over
the previous TAFE, particularly in relation
to younger students undertaking VET
courses at the Polytechnic.
Other useful information
Apparent retention data
2011/12 State Government Budget
Department of Education Annual Report
Tasmanian Skills Strategy
Skills and the Tasmanian Economy
4221.0 - Schools, Australia NSSC Table 64a: Apparent Retention Rates
(ARR) 1996-2010 at www.abs.gov.au
www.budget.tas.gov.au
www.education.tas.gov.au
www.skills.tas.gov.au/skillstas/tasskillsstrategy
www.education.tas.gov.au/
Review of the role and function of Tasmania’s public VET providers | Department of Education
5
Terms of reference
Terms of reference for the review were developed in
consultation with key stakeholders. The terms of reference are:
1. Review the current governance, funding and operational
arrangements of the public providers of VET in Tasmania and
their capacity to improve student participation/retention,
qualification and attainment rates of Tasmanians as well
as their ability to respond to identified skills needs and
contribute to the productivity of the state including the
ability of the providers to:
• Provide a broad range of VET options and pathways for
all Tasmanians.
• Provide foundation and pre-employment, literacy and
numeracy and work preparation courses for those
seeking pathways to higher level qualifications and work.
• Provide training and skills development for employees
in enterprises in line with the enterprises’ current and
future skill needs.
• Connect with higher education through diplomas and
advanced diplomas.
2. Recommend and comment on options for future
governance, funding and operational arrangements for public
providers of VET in Tasmania which clearly define the roles
and responsibilities of provider(s) and minimise the potential
for competition between public providers.
3. Take into account the COAG reform agenda as well as
national agreements and strategic directions to ensure
recommended outcomes enable Tasmania to participate in
and benefit from them.
4. Investigate and advise on opportunities that exist with
respect to higher education qualifications and linkages
between the public providers of VET and the university
sector.
5. Take into account the impact of any further change on
the provision of VET for younger Tasmanians, and ensure
that the increased availability and accessibility of VET
opportunities now available are not lost.
6
6. Take into account issues of efficiency and effectiveness,
being mindful of the current economic climate including
the capacity of the state budget to support the public VET
providers.
7. Take into account the ability of the system to implement
further change both financially and in terms of the impact
on staff and students.
8. Be informed by an analysis of national and international
practise and experience.
The consultation process
This consultation paper is designed to provide a framework for
public input into the review of the role and function of public
VET providers in Tasmania.
Written submissions will be invited in response to the
consultation paper. These can be submitted electronically via
vetreview@education.tas.gov.au.
Written submissions close on 16 March 2012.
Opportunities will also be provided in each region of the state in
February/March 2012 for stakeholders and community members
to meet with the consultant and make submissions directly
through that process.
A report on the findings of the review will be provided to the
Minister for Education and Skills by April 2012.
Review of the role and function of Tasmania’s public VET providers | Department of Education
Guide to respondents
Submissions to the Review are invited from interested
individuals and organisations. The following questions address
the terms of reference and are provided as a guide. They
cover the main areas the consultant will address but are
not mandatory. Respondents may wish to introduce their
submissions with contextual comments of up to one A4 page
in length. Please feel free to add comments at the end on
any matters not covered by the questions. Data supporting
responses is welcome.
Review questions
General
1. What are the key strengths of Tasmania’s public VET
providers?
2. How well are the productivity and participation needs
of the state being addressed?
3. How are the brands of VET, TAFE, Skills Institute and
Tasmanian Polytechnic best managed for future public
perception of the sector?
4. How can the range of pathways be extended?
5. How can opportunities be improved for people in rural
and remote areas and for disadvantaged learners
6. What gaps exist in the provision of foundation
programs?
7. How might participation in foundation programs be
maximised?
8. How can responsiveness to employers’ current and
future training needs be further enhanced?
9. What arrangements will best support quality workbased training?
10. Are pathways between VET and higher education
programs optimal?
11. How can more VET students be encouraged to
progress to higher education?
Governance and operational arrangements
12. What governance arrangements will best meet
Tasmania’s vocational and education training needs?
13. How can clarity of roles and responsibilities be
ensured?
The context of COAG reform
14. How might performance against COAG targets best be
assured?
15. What issues might face the public VET sector in a
more contestable environment and how can they be
addressed? For example:
• choice
• training products
• information systems
• flexibility to respond quickly
• quality assurance
• increased numbers of private RTOs receiving
government funding
• contributions from individuals, business and
industry.
VET/higher education linkages and pathways
16. What arrangements exist to enhance VET/higher
education cooperation and linkages?
17. How might these be strengthened?
Opportunities for young Tasmanians
18. What aspects of the current arrangements facilitate
VET opportunities for younger Tasmanians?
19. How can opportunities for young Tasmanians be further
improved?
Efficiency and effectiveness
20. What funding and/or savings measures might best
improve efficiency and effectiveness in VET in Tasmania
in the current economic climate?
Impact of change
21. What steps are required to support staff and students
in any further changes?
National and international best practice
22. Which national and international exemplars might
usefully inform the approaches to VET in Tasmania?
Summary
23. In summary, what are the top five priorities for the
review to address?
Review of the role and function of Tasmania’s public VET providers | Department of Education
7
Department of Education
GPO Box 169
HOBART TAS 7001
p: 1800 816 057
w: www.education.tas.gov.au
8 Review of the role and function of Tasmania’s public VET providers | Department of Education
APPENDIX 3
Mainland RTOs Operating in Tasmania
Case Study 1: GippsTAFE 114
Central Gippsland Institute of TAFE (GippsTAFE) is one of Victoria's largest regional TAFE Institutes
with campuses in Leongatha, Warragul, Morwell, Yallourn, Chadstone and Traralgon and provides
over 300 courses to over 12,000 students annually. Located in the Gippsland region of Victoria,
Australia's largest power producing centre, the institute has developed a strong focus in training for
the energy, mining and telecommunications industries. However the Institute expertise also covers
a wide range of areas including traditional trades, business studies and health and community
services. In addition to the above GippsTAFE has also developed a reputation as one of Australia’s
leading providers of e-learning services and provides online classes for over 4,000 students annually
from across Australia and internationally. GippsTAFE offers training solutions within Tasmania in the
areas of High Voltage Lines and Cable Jointing training, which is provided in a face to face manner
and a range of e-learning programs including health insurance in an online medium.
Over the past 10 years GippsTAFE has been providing training to the Tasmanian power industry in
the form of safety and industry refresher training. Predominantly these services have been provided
to Electrical Linesmen workers and Cable Jointers, on a fee for service basis. The Institute has been
successful in this market in part due to its niche capabilities; however there has also been a focus by
the institute to strongly align itself with the industry to more fully understand where specialised
skills shortages may lie.
As previously mentioned GippsTAFE has developed its reputation as a national leader in the area of
e-learning. Since 2001 the Institute has been working closely with key industry associations and
health insurance funds with operations throughout Tasmania, to develop customised e-learning
solutions. These solutions have focused heavily on meeting the critical training needs of the
industry, such as “Lifetime Health Cover” and “Pre Existing Aliments” training. Providing the ability
to have quality controlled and employer customised training, throughout the entire state in a cost
effective manner has significant appeal to the industry.
GippsTAFE plans to expand its delivery offerings in Tasmania to include training services within the
Alcohol and Other Drugs and Mental Health sectors. As highlighted in COAG reports there is a need
to provide high quality flexible and responsive training to these sectors. GippsTAFE currently
provides this training in a solely online manner throughout Victoria and has begun a business
planning process to expand these services into Tasmania. This has included holding discussions with
key industry bodies and employers who have indicated that they are unable to source a local training
solution which meets their needs. GippsTAFE believes that this creates an opening within the
market place which may not only attract commercially funded dollars but also government funded
opportunities given the national and state government objectives as they relate to the Alcohol and
Other Drugs and Mental Health sectors.
Although the power industry training provided by GippsTAFE in Tasmania is highly specialised and
technical in nature, this is not true of all its e-learning programs and services. GippsTAFE recognises
that there is a need for VET providers to develop e-learning capabilities to allow providers to develop
industry solutions which are not bound by the geographical locations of the provider. It is this
capability coupled with the ability to work closely with industry which has allowed GippsTAFE to
provide commercially funded industry based training solutions in Tasmania for over 10 years.
114
Source: GippsTAFE
87
Case Study 2: MEGT (Australia) Ltd 115
MEGT (Australia) Ltd is a national, not for profit employment, training and education company
delivering Australian Apprenticeship Centre, Group Training and training services in every state of
Australia, incorporating Workforce Planning Australia, Ability English and MEGT UK. The MEGT
Education group consists of MEGT Institute and Ability English delivers onshore, accredited and non
accredited training and assessment services to domestic and international students.
MEGT established a presence in Tasmania in 2005 when presented with the opportunity to acquire
an existing Tasmanian company. This provided a platform for MEGT to extend the RTO, GT and AAC
services into every Australian state and establish a truly national company. Within Tasmania MEGT
operates out of three offices located in North Hobart, Launceston and Devonport with 36 staff.
Service delivery extends to all corners of the state, including Smithton, Geeveston, Strahan,
Scottsdale and Port Arthur.
MEGT Institute in Tasmania specialises in workplace delivery, working in partnership with employers
to tailor training to meet business objectives and incorporate the business’ policies and
documentation. Training delivery is responsive, delivering both full qualifications and skill sets
utilising a range of delivery modes. MEGT delivers business, hospitality and retail training across
Tasmania from Certificate II to Diploma level.
MEGTs’ trainers are renowned for their industry and VET specific skills and knowledge, and are
particularly adept at coaching and training existing workers, recognising their existing skills and
experience.
MEGT Institute has a User Choice contract with Skills Tasmania, and has successfully tendered for a
range of government funded programs since 2006. Programs have been delivered under Equity
Support Small grants, Skills Equip, Workplace Skills, Adult Literacy Community Grants and
Productivity Places Program; achieving program outcomes and producing high completion rates.
Approximately 70% of Tasmanian revenue is generated from government funding.
In 2008 MEGT Institute partnered with Cosmos Inc. to develop and deliver the Skills Potential
Program. This unique, interactive, supported program delivers Certificate I and Certificate II in Retail
to students with an intellectual disability. The program is tailored to the learning needs of students
with an intellectual disability and incorporates work placements and Language Literacy and
Numeracy (LLN) assessment and training. The program has produced significant outcomes including
employment outcomes, progression to further study, and unquantifiable increases in student
confidence and independence. A program based on the successful retail model is currently being
developed for the hospitality sector.
MEGT Institute was a finalist in the 2011 Skills Tasmania Training Provider of the year award. One of
our students was awarded VET Equity Student of the Year 2011 and another student was awarded
Apprentice of the year 2011.
MEGT is renowned for the delivery of customer oriented service and has generated a solid client
base, built on strong industry partnerships that continue to grow year on year.
MEGT anticipates a long term business presence in Tasmania, establishing higher benchmarks in
service delivery and responsive, quality training.
115
Source: MEGT (Australia) Ltd
88
APPENDIX 4
Public Consultations
Date
Location
Regional Consultations
6.3.12
Hobart – General
30
6.3.12
Hobart – General
37
7.3.12
Launceston – General
25
8.3.12
Scottsdale – General
15
8.3.12
Launceston – VET in Schools
14
9.3.12
Burnie – General
36
9.3.12
Devonport – General
14
13.3.12
West Coast/Queenstown – General
13.3.12
Smithton – General
15
Student Consultation
7.3.12
Launceston
33
Industry Consultations
7.3.12
Manufacturing Industry (MIAC)
5
14.3.12
Burnie
3
14.3.12
Launceston
22
15.3.12
Hobart
29
19.3.12
Hospitality Industry (THA)
2
2.4.12
Primary Employers (PET)
3
2.4.12
Group Training Australia
1
4.4.12
11.4.12
Local Government
Forest Industry (FFIC)
1
1
Other
2.3.12
3.4.12
ACPET
University of Tasmania
2
1
TOTAL
Numbers
present
5
294
89
APPENDIX 5
Written Submissions
Organisation
Contact
Alcohol, Tobacco and Other Drugs Council Tas Inc
Australian Council for Private Education and Training
Lynne Maher, Workforce Development Officer
Maria Langwell, Executive Officer, Victoria and
Tasmania
Cate Davey, TAFE Organiser
Rex Calvert, Deputy President/TAFE Division
President
Elizabeth Bourke, Acting Principal
Aaron Cullenward, Administration Officer
Lyn Saunders, Industrial Organiser
Deaine Coyle
Lesley Richardson, Manager, School-based
Apprenticeships
Betty Evans, Policy Support and Research Officer
David Gutteridge, Operations Manager
Geoff Fader, Executive Officer
Diana Kearney
Australian Education Union Tasmanian Branch
Australian Education Union Tasmanian Branch
Claremont College
Colony 47
CPSU
Department of Education, Retention Team
Department of Education, School-based Apprenticeships
Department of Justice, Corrections Directorate
Government Education and Training International
Group Training Australia – Tasmania Inc
Handweavers, Spinners and Dyers Guild of Tasmania
Huon LINC Community Advisory Board
Independent Schools Tasmania
Lilydale District School
LINC Tasmania
Manufacturing Industry Advisory Committee
National Disability Coordination Officers Tasmania
Primary Employers Tasmania
Secondary Colleges Committee of Management
Skills Tasmania
Smithton High School
Tasmanian Academy
Tasmanian Building and Construction Industry Training
Board
Tasmanian Council of Social Service (TasCOSS)
Tasmanian Education Association
Tasmanian Farmers and Graziers Association
Tasmanian Hospitality Association
Tasmanian Library Advisory Board
Tasmanian Library Advisory Board (2)
Tasmanian Polytechnic
Tasmanian Principals Association
Tasmanian Secondary Colleges Registered Training
Organisation
Tasmanian Small Business Council
Tasmanian State School Parents and Friends Inc
TCCI
Teachers Registration Board
The Skills Institute
University of Tasmania (Students and Education)
University of Tasmania (Faculty of Education)
Tim Tierney
Jane Grosvenor, School to Work Consultants to
Independent Schools Tasmania
Greg Morgan, Principal
Helen Ebsworth
Owen Davies, Chair
Debbie Hindle and Darlene McLennan, National
Disability Coordination Officers
L D Foster, President
Brian McNab, President-elect
Chrissie Berryman, General Manager
Keith Billing, VET Coordinator
Greg Calvert, Principal Education Officer
Simon Cocker, Chief Executive Officer
Wynne Russell, Policy and Research Officer
Greg Brown, President
Jan Davis, Chief Executive Officer
Stacey Joseph, Workforce Development Officer
Julie Mazengarb
Mary Bent, Chair
Paul Murphy, General Manager
David Raw, President
Gaylene Allen, Executive Officer
Robert Mallett, Executive Officer
Dianne Ellson, Executive Officer
Colleen Reardon, Education and Training Adviser
Lise Plunkett, Manager, Strategic Projects
Denise Collighan, Senior Executive Support
Officer
David Sadler, Deputy Vice-Chancellor (Students
and Education)
Professor Ian Hay, Dean (Faculty of Education)
90
Individuals
Allen, Steve
Anonymous
Anonymous
Brough, Mike
Campton, Paul
Collighan, Denise
Cranney, Mike
Crothers, Ben
Fearns, Janet
Fielding, Hugh
Frost, Mike
Groves, Leanne
Hainsworth, Tony
Haywood, Eraine
James, Ian
Jeffes, Steve
Jessup, Sara
Kluyt, Fiona
McKinnon, Hugh
McLaughlin, Mike
Minchin, Lisa
Murray, Geoff
Pagliarella, Francesco
Prince, Lee
Quirk, Marilyn
Sereda, Suzie
Spiranovic, John
Tansey, Andrea
Von Samorzewski, Damian
Williams, Dallas
Wilson, Tony
Woodward, Clive
91
APPENDIX 6
APPENDIX
5
A New Single Entity For Public Sector VET in Tasmania – Indicative Structure
CEO
TEACHING GROUP MANAGERS
(Centres of Excellence)
SUPPORT GROUP MANAGER
(Participation/Attainment)
Learner
Engagement
& Attainment
REGIONAL
MANAGERS
(3)
CENTRES OF
EXCELLENCE
Northwest
North
South
Student
Administration
Student
Welfare &
Support
Foundation
Studies
Business &
IT
Health &
Community
Services
Literacy,
Numeracy &
Basic IT
Accounting
& Finance
Children’s
Services
Language
Studies
(ESL)
School &
Higher
Education
Partnerships
Access &
Bridging
Studies
Professional
Learning &
Developt
Communication
Studies
International
Education
SUPPORT
MANAGERS
Corporate/Shared
Services Liaison
Business IT
Management
Studies
Retail &
Administration
Library
Studies
Community
Services
Nursing &
Allied
Health
Primary
Industries
Hospitality,
Arts &
Service
Industries
Agriculture
Culinary &
Hospitality
Aquaculture
Horticulture
Conservation &
Land
Management
Applied
Science
TEACHING MANAGERS
Travel &
Tourism
Art, Design
&
Multimedia
Hair &
Beauty
SUPPORT GROUP MANAGER
(Productivity/Work-Readiness)
Engineering
& Applied
Science
Metals
Computer
Systems
Engineering
Electrical/
Electronics
Automotive
Technology
Civil
Engineering
Mining
Building &
Construction
Carpentry &
Joinery
Furniture
Studies
Bricklaying,
Plumbing &
Roof Tiling
Painting &
Decorating
Wall & Floor
Tiling
Industry &
Enterprise
Partnerships
Business
Development
Blended and
e-learning
Occ. Health
& Safety
Quality
Assurance &
Compliance
Marketing &
Stakeholder
Communications
SUPPORT
MANAGERS
92
APPENDIX 7
The Future of Teacher Registration in the New Entity – Issues and Opportunities
The creation of the Tasmanian Polytechnic under the ‘Tasmania Tomorrow’ reforms had implications
for teacher registration. Tasmanian Polytechnic teachers were teaching years 11-12 students and
were deemed to be required to meet the same requirements as teachers working in the Tasmanian
Academy. Following some debate, the outcome was that the Teacher Registration Act 2000 now
states that:
A person must not teach at a school, the Tasmanian Academy or the Tasmanian Polytechnic
unless the person –
(a) is fully registered; or
(b) is provisionally registered; or
(c) is the holder of a limited authority; or
(d) is under the direct supervision of a registered teacher 116
One implication of this was that, in aligning the Tasmanian Polytechnic with schools and the
Tasmanian Academy and requiring Tasmanian Polytechnic staff but not TSI staff to obtain
registration, a fundamental distinction was put in place between the Tasmanian Polytechnic and the
TSI.
This distinction needs to be resolved as part of moving towards one entity. The options appear to be
as follows:
•
•
•
remove reference to the Tasmanian Polytechnic in the Teachers Registration Act and not replace
it, that is, remove all requirements for teacher registration in the new entity
remove reference to the Tasmanian Polytechnic in the Teachers Registration Act and replace it
with the name of the new entity, that is, require all staff in the new entity to become registered
introduce some workable hybrid approach, that is, an approach which distinguishes between the
two learning models for VET.
The relevant issues are outlined below:
Applicable Standards for Teachers in VET
In parallel to the introduction of teacher registration for teachers in the Tasmanian Polytechnic, both
the Tasmanian Polytechnic and the TSI remain subject to the requirements of the Standards for NVR
Registered Training Organisations (SNR) of the 2011 VET Quality Framework, which state that:
Training and assessment are delivered by trainers and assessors who:
a) have the necessary training and assessment competencies determined by the National
Quality Council or its successor, and
b) have the relevant vocational competencies at least to the level being delivered or
assessed, and
c) can demonstrate current industry skills directly relevant to the training and assessment
being undertaken, and
d) continue to develop their Vocational Education (VET) knowledge and skills as well as
their industry currency and trainer/assessor competence 117
116
Teachers Registration Act 2000, section 11: Offences relating to teaching
Standards for NVR Registered Training Organisations 2011 of the VET Quality Framework, SNR 4.4 /SNR 15.4. Note that
while these standards will change on 1 July 2013 the proposed changes will not influence points raised in the Report.
117
93
It should be noted that b) does not specify a completed qualification in the vocational area being
taught, only competencies at the same level, whereas in order to obtain provisional registration
under Tasmanian Teacher Registration Board requirements, the applicant must hold a completed
qualification in the vocational areas being taught. This compares more favourably with the Higher
Education sector, which requires a qualification at least one level above that being taught.
In an environment of minimum standards in the VET sector, registration provides an opportunity
for public sector VET in Tasmania to ‘raise the bar’ on quality.
Findings of the Productivity Commission
The SNR are minimum standards and it is widely acknowledged that they are open to interpretation
such that, for example, the 2011 Productivity Commission Research Report on the Australian VET
workforce asserted that, in general terms:
Nearly all trainers and assessors in TAFE, and about 80 per cent of those in the non-TAFE VET
sector, hold a post-school qualification. However, not all VET trainers and assessors hold the
minimum qualification required for VET teaching (the Certificate IV in Teaching and
Assessment) or an equivalent qualification. 118
Specifically, the Report stated that:
TAFE administrative data provided to the Commission by one large VET-providing jurisdiction
indicated that, at a conservative estimate, about 60 per cent of TAFE trainers and assessors
hold a Certificate IV in TAA or higher. This implies that, potentially, up to 40 per cent of
trainers and assessors in the public VET sector do not hold the minimum qualification for
teaching in the sector. 119
The Productivity Commission also noted that because data for private RTOs are not available,
comparable statements about compliance cannot be made.
Compliance with standards for VET trainers and assessors is a national issue.
The Tasmanian VET Workforce
The observations of the Productivity Commission are supported by the data in Tasmania which
shows that, when teacher registration was introduced, 165 Tasmanian Polytechnic teachers fell into
the category of Limited Authority to Teach 120 because they did not meet the requirements for
provisional registration, that is, they were non-compliant with the national VET standards. In most
instances they lacked the Certificate IV TAE (or equivalent) the minimum requirement to teach in
VET. Hence the advent of teacher registration has been a useful way to identify the extent to which
minimum standards for teaching in VET are being met.
It could be asserted that it is not unlikely that a similar situation might apply in the TSI.
Compliance with standards for VET trainers and assessors is also an issue for public sector VET in
Tasmania.
118
Productivity Commission, 2011, Vocational Education and Training Workforce – Research Report, Australian
Government, p.31
119
Ibid, p.43
120
Source: Teachers Registration Board of Tasmania
94
Teacher Responses to Registration
Based on email addresses, the Tasmanian Teachers Registration Board estimates that in 2011, 102
registrants were TSI employees, or 38% of its teachers. Of those registered in 2011, to date 85 have
registered in 2012.
The available figures appear to provide prima facie evidence that registration is currently valued
by Tasmanian Polytechnic and TSI teachers alike, for some regardless of whether they are required
to be registered.
Cost of Registration
The cost of registration can be considered in light of other comparable industries in the state.
Comparable costs are listed below:
Profession/Trade
Teacher
Registering/Licensing Body
Teachers Registration Board of
Tasmania
Type of Fee
Initial application
Full registration (annual)
Cost
$46.00
$86.00
Nurse
Nurses Board of Tasmania
Application Fee
Annual Practising Certificate
$96.00
$130.00
Accountant
CPA Australia
Assessment fee
First year membership fee (associate)
First year membership (CPA)
$138.00
$330.00
$630.00
Bookkeeper
Association of Accounting
Technicians
Joining Fee
Annual Fee
$132.00
$250.00
Plumber
Occupational Licensing
Workplace Standards Tasmania
Provisional Licence
Triennial Licence
$210.00
$210.00
Electrical
Contractor
National Electrical and
Communications Association
Base Fee
$600.00
The cost of registration as a teacher compares favourably with costs associated with operating in
other comparable professions/trades.
Registration as a Pathway to Higher Learning
The advent of teacher registration for some VET teachers was in some ways a catalyst for the
development of the Bachelor of Education (Applied Learning) by the University of Tasmania. The
Bachelor of Education (Applied Learning) is approved by the Tasmanian Teachers Registration Board
for the purposes of gaining full registration in the general pathway and scholarship places have been
made available by the university to staff from the Tasmanian Polytechnic, TSI and to VET teachers in
public and private schools in Tasmania. It is understood that the program includes content relevant
to the TSI learning model/s.
Against the background that there is no compulsion to undertake this program, it is interesting to
note that nearly 200 students were accepted in the first cohort in Semester 2, 2011 and over 100
students began their studies in that semester. 121 This may be for reasons of professional
development, a desire to improve credentials, career advancement within VET and/or career
mobility across other sectors, but whatever the reason, the advantages for staff appear self-evident
121
Faculty of Education, University of Tasmania submission, p.1
95
and numbers of participants in the course commented during the consultations about how
participation in the course was enriching their teaching practice.
With arguably less incentive to participate in the Bachelor of Education (Applied Learning) than the
Tasmanian Polytechnic staff, it is also interesting to note that about 12 of the current students of the
course are from the TSI.
While it is still early days, it appears that the Bachelor of Education (Applied Learning) is offering a
meaningful further study pathway for public sector VET staff at minimal to no cost to the
employer.
Sessional and Casual Staff
A key consideration for the flexibility of VET operations is the ability to quickly and flexibly employ
sessional/casual staff. An additional mechanism currently exists under the Teachers Registration
Board Act referred to as Permission to Teach which caters for the employment of short term
specialist staff under direct supervision of a registered teacher, where these staff are not otherwise
registered.
Employers must notify the Board that such staff have been employed and affirm that certain basic
checks have been conducted. The decision as to who will utilise that permission rests with the
employer, but the Teachers Registration Board conducts an annual census to record how many staff
are in this category. Otherwise there are no additional delays in employing staff than would apply
under the Standards for NVR Registered Training Organisations. The Permission to Teach category
has been used to date by the Tasmanian Polytechnic with some 90 staff. There are no costs involved
to the individual or the employer, but the process does provide a mechanism to record and monitor
adherence to basic requirements.
The Teachers Registration Board is receptive to the possibility of improving the process to better suit
the needs of the sector should that be required.
The registration process potentially provides a process that will ensure sufficient flexibility and
timeliness in the employment of sessional/casual staff.
Appropriate Recognition of Vocational Currency
It can be predicted that for a significant number of teachers in the TSI, movement beyond the
current requirements for provisional specialist VET registration might be regarded, by them
personally as well as by industry, as less than a high priority. A more immediate priority might be
the maintenance of vocational currency through return to industry programs and the like. If
registration were to apply more generally, it would therefore be undesirable for these staff to be
permanently labelled as provisionally registered, because their vocational currency might well be
superior to that of their colleagues with full registration.
The Tasmanian Teachers Registration Board has advised that the provisions of the Teachers
Registration Act impose constraints on the terminology that can be used to describe the form of
registration that is less than ‘full’ and that the Board would be open to suggestions as to how this
might be addressed in any subsequent legislative amendments.
Replacement of the terminology specified in the definitions and provisions of the Teachers
Registration Act, namely, ‘full’ and ‘provisional’ Specialist VET Registration with terminology such
as ‘teacher’ and ‘trainer’ Specialist VET Registration would be a critical pre-requisite for extending
registration across the whole of the new entity.
96
Provisions of the Teachers Registration Act – Descriptor and Board Membership
Under the current membership provisions of the Teachers Registration Board specified in the Act,
there is only limited capacity for the VET sector to be represented, with by far the majority of
members being appointed from the school sector. Should registration be extended across the new
entity it would be important to ensure that at least the new entity was represented in its own right
as well as potentially the state training agency. The Act is also described as ‘An Act to provide for
the registration of teachers in Tasmania’. It would be desirable for this to be broadened.
Other minor amendments to the Teachers Registration Act related to Board membership and the
purpose of the Act would need to be made.
Summary of Issues
In an environment of minimum standards in the VET sector, teacher registration provides an
opportunity for public sector VET in Tasmania to ‘raise the bar’ on quality.
Compliance with standards for VET trainers and assessors is a national issue.
Compliance with standards for VET trainers and assessors is also an issue for public sector VET in
Tasmania.
The available figures appear to provide prima facie evidence that registration is currently valued by
Tasmanian Polytechnic and TSI teachers alike, regardless of whether they are required to be
registered.
The cost of registration as a teacher compares favourably with costs associated with operating in
other comparable professions/trades.
While it is still early days, it appears that the Bachelor of Education (Applied Learning) is offering a
meaningful further study pathway for public sector VET staff at minimal to no cost to the employer.
The registration process potentially provides a process that will ensure sufficient flexibility and
timeliness in the employment of sessional/casual staff.
Replacement of the terminology ‘full’ and ‘provisional’ Specialist VET Registration with terminology
such as ‘teacher’ and ‘trainer’ Specialist VET Registration would be a critical pre-requisite for
extending registration across the whole of the new entity.
Other minor amendments to the Teachers Registration Act related to Board membership and the
purpose of the Act would need to be made.
Recommendation:
That subject to some minor amendments to the Teachers Registration Act to ensure VET coverage,
teacher registration be extended across the whole of the new entity.
97
APPENDIX 8
Governance of Public Sector VET in Tasmania – Possible Future Model
Broad Division of Responsibilities
Participation:
Department of Education and Training
• Policy input on student participation,
retention and attainment
• Development of cross-sectoral strategy
– schools, VET, HE and Adult Education
• Oversight of VET in Schools/Trade
Training Centres
• Monitoring
of
Higher
Education
pathways
• International education
•
•
•
•
Monitoring of VET in rural and remote
areas
Strategies for promoting professional
currency of VET staff – data,
qualifications, etc
Liaison with the Tasmanian VET
Commission to provide joint advice to
the Minister on the performance of RTOs
receiving government funds for training
and the implications of this for the sector
Oversight of facilities and infrastructure
for VET
Productivity:
Tasmanian VET Commission (or similar title)
• Liaison with industries and enterprises
•
Development of Tasmanian
Strategy (or similar title)
Oversight of private RTOs
•
Monitoring of apprenticeship trends
•
Monitoring of industry satisfaction with
training quality
Oversight of pre and post-trade training
•
•
•
•
•
Skills
Strategies for promoting vocational
currency of VET staff – data, industry
release, placement
Liaison with the Department of
Education to provide joint advice to the
Minister on the performance of RTOs
receiving government funds for training
and the implications of this for the sector
Related research as required
98
APPENDIX 9
Acronyms and Abbreviations
ACPET
AEU
AQF
AQTF
AMC
ASQA
ATAR
CEO
COAG
CPSU
DEEWR
DoE
FFIC
GippsTAFE
Go8
GTA
HE
HECS
HEP
LINC
MIAC
NBN
NCVER
NVR
PET
RTO
SCOTESE
SNR
TAFE
TBCITB
TCCI
TCE
TEQSA
TFGA
THA
TOR
TRB
TSBC
TSI
VEL
VET
UTas
Australian Council of Private Education and Training
Australian Education Union
Australian Qualifications Framework
Australian Quality Training Framework (now SNR)
Australian Maritime College
Australian Skills Quality Authority
Australian Tertiary Admission Rank
Chief Executive Officer
Council of Australian Governments
Community and Public Sector Union
Department of Employment Education and Workplace Relations (Commonwealth)
Department of Education (Tasmania)
Forests and Forest Industry Council
Central Gippsland Institute of TAFE
Group of Eight Universities
Group Training Australia
Higher Education
Higher Education Contribution Scheme
Higher Education Provider
Learning Information Network Centres
Manufacturing Industry Advisory Committee
National Broadband Network
National Council for Vocational Education Research
National VET Regulator
Primary Employers Tasmania
Registered Training Organisation
Standing Council on Tertiary Education Skills and Employment
Standards for NVR Registered Training Organisations
Technical and Further Education
Tasmanian Building and Construction Industry Training Board
Tasmanian Chamber of Commerce and Industry
Tasmanian Certificate of Education
Tertiary Education Quality Agency
Tasmanian Farmers and Graziers Association
Tasmanian Hospitality Association
Terms/s of Reference
Teachers Registration Board
Tasmanian Small Business Council
Tasmanian Skills Institute
Vocational Education and Learning
Vocational Education and Training
University of Tasmania
99
APPENDIX 10
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100