Adult Basic Education Backgrounder: Why should we re-instate the
Education Guarantee and restore funding to Adult Basic Education in BC?
May 1, 2015
Suzanne Smythei
Faculty of Education
Simon Fraser University
This backgrounder was developed to inform the May 4 Opposition motion in the BC Legislature
to restore funding to Adult Education and to rescind new policies to charge tuition for Adult
Basic Education.
What is the problem with the ABE tuition policy?
The end of the Education Guarantee and the imposition of high tuition fees for Adult Basic
Education students to acquire a secondary school qualification or to upgrade their academic
standing for entry into post-secondary programs, will exclude thousands of adults from
participation in further education, training and employment.
Evidence since January 1, 2015, when some post-secondary institutions (known as teaching
universities) began to impose the new tuition fees, suggests that about 60 - 70% of students
qualify for the Adult Upgrading Grant (AUG), depending on the jurisdiction. Time restrictions
and funding caps for the AUG as well as its very complex structure will penalize students at the
lowest literacy levels. Students who study in adult education programs in school districts will not
qualify for the AUG.
The AUG replaces the former ABESAP (Adult Basic Education Student Assistant Program).
Adults enrolled in Developmental Programs (English as a Second Language, Adult Graduation,
upgrading or pre-vocational programs and Adult Special Education in post-secondary
institutions) can apply for the AUG to cover or partially cover the costs of the new tuition fees.
The AUG is only available to students enrolled in these developmental programs in postsecondary institutions whose income places them within the Low Income Cut Off of $23, 647
per year or less (single person). Those with incomes within 10% of this LICO qualify for 50% of
the AUG. AUG eligibility is capped to a lifetime limit of 156 weeks with varying conditions of
eligibility depending on the institution. The AUG is transferred from the Provincial Government
to post-secondary institutions that in turn administer the grant.
The response of the government that non-graduated adults can attend School District ABE
programs tuition-free does not consider that a) some districts do not have Adult Education
programs, and b) new funding shortfalls to School Districts imposed in March 2015 has resulted
in the cancellation of adult education programs. This is perpetuated by decline in enrollment in
adult education due to the introduction of fees for graduated adults. Dave Smulders, an adult
educator and UBC instructor explains the problem in this way:
With the province’s decision to charge tuition for upgrading courses, students are in
effect being charged a levy for their lack of knowledge and skill. We have to remember
that many students taking upgrading courses are trying to get into other programs, often
career-related programs. In other words, they are trying to get into tuition-based
programs. Stated more plainly and in accordance with our government’s aims, they want
to pay for their education. When they are deemed ineligible for a program because they
lack the fundamental skills, they are consigned to pay even more to achieve their goals.1
Further details about ABE, Developmental Studies and the implications of current tuition fee
policies are elaborated below.
What is ABE?2
Adult Basic Education (ABE) is education for adults from basic literacy and numeracy levels up
to high school completion. ABE is currently offered through school districts and in 25 public
post-secondary institutions in BC.
ABE has been tuition-free in BC since 2007, when the Education Guarantee was announced. At
that time, Minister of Advanced Education Murray Coell and Minister of Education Shirley
Bond stated, “This expansion of adult basic education will help more learners improve their
literacy skills and prepare for better futures.”
The Education Guarantee led to increased enrolment in ABE, clearly demonstrating a demand
for Adult Basic Education in the province. For example, when the EG was announced in 2007,
enrolment in ABE in BC Post-Secondary Institutions (PSIs) was 26, 305; in 2009/2010,
enrolment increased by 14% to 29,885 Full-Time Equivalent students (FTEs)3. In 2013/2014,
enrolment is at an 8-year low of 24, 000. This is not because there has been a drop in demand but
because adult basic education and developmental studies programs have been reduced or
cancelled by post-secondary institutions (also known as teaching universities).
Why is ABE important?
Only 5% of jobs today do not require some kind of post-secondary training. As a province we
must be able to create accessible pathways to post-secondary education necessary for further
education and training. We also need to provide opportunities for people to learn in and with
their communities, in ways that support social inclusion, community-building, citizenship
engagement and the pleasures of learning.
1
Smulders, D. (January 9, 2015). Adult learners in peril in BC, para. 3. Retrieved April 20 from
https://adultlearningmatters.wordpress.com/2015/01/09/adult-learners-in-peril-in-bc-written-by-davesmulders/
2
For a comprehensive description of ABE programs, their role within the public education system, and the learning
trajectories of adult learners see Lynn Horvat (December 2014). Re-framing the conversation: Respecting Adult
Basic Education in British Columbia. http://decoda.ca/wp-content/uploads/Re-Framing-the-ConversationRespecting-ABE-in-BC-Dec-2014.pdf
3
Data BC (2015) ABE head count gender and age group 2013/2014. Retrieved April 20, 2015 from
http://catalogue.data.gov.bc.ca/dataset/adult-basic-education-headcount-by-gender-and-age-group-at-public-postsecondary-institutions
2
In 2012/2013, 10, 963 BC students left secondary school without a Dogwood (Grade 12)
diploma4. In addition to this group, many others re-take high schools courses to improve their
marks and get new course credits they need to gain entry to a post-secondary program. If they
have graduated over 5 years earlier, people must re-take Math, Science and Technology courses
to gain entry to programs with these pre-requisites (these courses expire every 5 years).
ABE is also a significant educational pathway for newcomers to Canada who may have
graduated from secondary school in their home countries but need to gain academic experience
and credentials in Canada so they can gain entry to post-secondary education. Without these
opportunities they are stuck in low-wage employment.
ABE is a pathway out of poverty. 71% of ABE students have incomes below the poverty line,
even though most of them work full time. 29% support families while studying, 10% as single
parents5. The pursuit of education to access further education and training for better jobs is why
the vast majority of adults enroll in ABE.
According to the government’s own research on the outcomes of ABE/Developmental Studies
programs almost 50% of ABE graduates went on to pursue certificates, diplomas and degrees.
95% said that ABE had prepared them academically to succeed in these courses and 70%
intended to pursue further education6. The provincial government report acknowledges:
The British Columbia Labour Market Outlook 2010 – 2020 also notes that levels of new
labour market participants are declining. In light of the need for more participants and the
projection that the majority of job openings will require at least some post-secondary
training, improving adult education levels will help to ensure the economic growth of the
province. (Government of BC, 2014, p. 11)7
The valuable data about students enrolled in developmental programs is collected in the annual
Developmental Student Outcomes Survey carried out by the Ministry of Advanced Education.
The Ministry has announced it will discontinue this survey in 2015.
4
Data BC (2015). BC schools six-year completion rate. Retrieved April 20, 2015 from:
http://catalogue.data.gov.bc.ca/dataset/bc-schools-six-year-completion-rate
5
Government of BC (2006). Developmental Student Outcomes Survey and Horvat, L. (2014). Re-framing the
conversation. p. 16. http://blogs.ubc.ca/workplace/files/2015/01/Re-Framing-the-Conversation-Respecting-ABE-inBC-2014.pdf
6
Government of BC Developmental Student Outcomes Survey (2013-2014).
http://www.aved.gov.bc.ca/abe/docs/2013-Developmental-Student-Outcomes-Survey-Report-of-Findings.pdf
3
Who are ABE students?
Students who enroll in adult basic education fall into the following categories:
1. Non-graduates. They are among the 10, 963 students each year who do not graduate
from secondary school in the 6-year completion in British Columbia. The average
Dogwood graduation rate in BC in 2012/2013 is 83%. In some school districts such as
Coast Mountain, the rate is 67.5%; in West Vancouver it is 90%.8 Many of these students
who do not graduate with a Dogwood Diploma go on to complete their secondary school
education within a few years through adult learning centres (both in School Districts and
in Post-Secondary ABE programs).
2. Adults changing careers. Many adults enroll in ABE because they need pre-requisites to
gain entry into a desired post-secondary education/training program. Post-secondary
programs, particularly those in health sciences, trades and technology (those “most in
demand” careers signaled by the Ministry of Education) require Math and Science
courses beyond those required for the attainment of a Dogwood. This means that as
people’s circumstances and educational goals change they need access to courses to meet
program requirements.
3. Adults who graduated 5 years + earlier. Secondary school Math, Science and
Technology courses “expire” every 5 years. Adults seeking entry to a post-secondary
program with these pre-requisites need to upgrade through basic education courses.
4. Graduated adults who are newcomers. Many adults have secondary school
qualifications from other countries that are not recognized by employers or postsecondary institutions in Canada. These adults attend ABE to gain Canadian academic
qualifications so they can pursue further education and employment.
5. Low-wage workers. The 2013 Developmental Students Outcomes Survey indicates that,
while they are studying, 82% work full time and 18% are unemployed. Over 70% of
ABE students have incomes under the poverty line.9
6. Aboriginal people who comprise 18% of those enrolled in Developmental Studies
programs in PSIs and in ABE in school districts, are particularly effected by the ABE
tuition fee policy and cuts to adult education in school districts. This places at risk the
goals of the BC Skills for Jobs Plan and the Aboriginal Post Secondary Education and
Training Policy Framework and Action Plan that aspires to “Support for successful
transitions for Aboriginal learners throughout the lifelong learning continuum.” 10
8
DataBC (2015). BC schools six-year completion rate. Retrieved April 20, 2015 from:
http://catalogue.data.gov.bc.ca/dataset/bc-schools-six-year-completion-rate
9
Government of BC (2013). Developmental Student Outcomes Survey. P. 46
http://www.aved.gov.bc.ca/abe/docs/2013-Developmental-Student-Outcomes-Survey-Report-of-Findings.pdf
10
Aboriginal Post Secondary Education and Training Policy Framework and Action Plan p. 12.
http://www.aved.gov.bc.ca/aboriginal/docs/Aboriginal_Action_Plan.pdf
4
What are the problems with the ABE tuition policy?
The government claims that it can no longer afford the 6.9 million annual cost of the
Education Guarantee. This policy introduced in 2007 allowed adults to study toward secondary
school graduation and post-secondary eligibility tuition free. However,
Post-secondary administration positions have increased by 50% in the past 12 years and
these new administrators earn twice as much as they did in 2002.
Tax cuts amounting to 260 million were given to the top 15% of earners in BC in the
2015/2016 provincial budget.
The government claims that non-graduated youth and adults can still study tuition-fee in
School District programs. This is not always so.
Firstly, several districts do not have adult basic education programs (Revelstoke, Arrow
Lakes, Fort Nelson, West Vancouver have no adult education programs, others have very
small programs with limited geographic range).
Secondly, the tuition policy places the survival of School District Adult Basic Education
at risk. School District program enrollment has included both graduated and nongraduated adults. If graduated adults are required to pay hundreds of dollars in fees to
take courses, enrollment will decline, which jeopardizes the sustainability of programs
for non-graduates. This has already happened in the Vancouver Board of Education that
predicts a decline in enrollment in 2015/2016 due to the tuition policy, and has
recommended the closure of two adult learning centres, one youth learning Centre and 7
community adult ESL classes all in the Northeast of Vancouver. 11 It is expected that
more districts will close or cut back their adult education offerings to address structural
budget shortfalls.
The Adult Upgrading Grant (AUG) is only available to those who earn $23,647 per year or
less (single person).
Workers earning just above minimum wage will not qualify for AUG. The lifetime 156week maximum time limit for AUG may be too short for adults starting ABE at the
fundamental levels who are working full time. People with incomes within 10% of the
income cut off can qualify for 50% of the AUG.
The implementation of AUG is complex and it is proving difficult to access.
Each institution is implementing the AUG differently and the policy implementation
itself seems to be shifting constantly. This creates a climate of confusion, and great
inequity across settings. Educators are already reporting that much of their instructional
11
Vancouver Board of Education (April 2015). Preliminary Budget Proposals. Appendix D3: Adult Education. p.
31 – 34. Retrieved April 18, 2015 from https://www.vsb.bc.ca/sites/default/files/15Mar31_plen_commiiiv_agenda_op_item3_1.pdf
5
time is spent on helping students navigate the rules and some institutions have used the
“interim ABE funding” to hire staff dedicated to addressing the new AUG bureaucracy
rather than directly covering tuition fees for students.
6.9 million in Education Guarantee funding was re-instated February 13, 2015 for one
year as transition funding. What was once core funding to support ABE is now
transitional funding and emerging evidence from a scan of post-secondary institution
response to the new tuition policy is that this transition funding is being used to hire new
staff to administer the Adult Upgrading Grant.
People on social assistance are not allowed to enroll in ABE in British Columbia.
Since 2002, with the exception of people with disabilities, adults who receive income
assistance are not permitted to study full time toward adult graduation or upgrading if this
interferes with their availability for employment.12
The tuition fees are high in relation to other post-secondary programs.
The average tuition charged for fundamental courses (those leading to Grade 11 and 12
courses) and Grade 11 and 12 courses required for post-secondary entry is $320 per 3credit course. It seems most institutions are charging the maximum allowed in the new
agreement with the Ministry of Advanced Education ($320 per course or $1600 per term
for full-time enrollment). This compares with a Master of Arts degree in Education at
UBC and SFU that cost about $1728.00 per term.13
The tuition fees are not tax deductible because ABE is not considered a post-secondary
program.
Institutions are permitted to collect high fees to offer basic education with the argument
that these students “have already had their chance” yet they are not considered postsecondary students for tax purposes. ABE students who don't qualify for financial aid
will be charged steep tuition, but can't claim it as "tuition" for tax purposes. For example,
the VCC website “FAQ”14 states:
"I took courses at VCC during 2014, why isn’t there a tax form for me?” “Not all
students qualify for tax forms. Vancouver Community College issues these forms in
accordance with tax legislation, which requires that students be enrolled in post
secondary level courses or programs to qualify for the tax form."
For an account of the effects of this policy on people’s employment prospects see Butterwick with White
(February, 2006). A path out of poverty
http://www.policyalternatives.ca/sites/default/files/uploads/publications/BC_Office_Pubs/bc_2006/path_out_of_pov
erty.pdf
13
SFU Graduate Tuition Fees. Retrieved April 29, 2015 from:
http://www.sfu.ca/students/calendar/2015/summer/fees-and-regulations/tuition-fees/graduate.html#tuition
14
Vancouver Community College (April 2015). T2202A Frequently Asked Questions, p. 7. Retrieved April 28, 2015
from: http://www.vcc.ca/deptUploads/T2202A-Help.pdf
12
6
The end of the Education Guarantee overlaps with the cancellation of the GED in
December 2014.
Those with learning and other difficulties who struggled to complete the Adult Dogwood
could take the General Educational Development (GED) test. The GED was a gateway to
jobs and training for many marginalized people and is still listed as an acceptable
qualification by some employers and trades programs. BC is the only province in Canada
to cancel the GED.
What are the consequences and risks of the tuition fee policy?
Undermining the BC Government’s own jobs strategy. As stated in the Developmental
Outcomes Student Survey (2013), 70% of ABE students go on to further education in PostSecondary Institutions15. For example, VCC Developmental Studies graduates frequently
transition into Healthcare Assistant and Nursing programs, which represent high demand jobs in
British Columbia. It is unclear how the goals of the BC Skills for Jobs Blueprint can be realized
if people cannot afford to meet the pre-requisites for ‘in-demand’ training spaces.
The creation of a large cohort with few education and employment options. The longer
people are out of school, the less likely they are to go back. Making basic education an expensive
commodity that is out of reach to non-graduated youth over 19 creates a risk that they will not
move back into the public post-secondary education system.
Re-framing public education as a commodity. The ABE tuition policy ushers in a public
education system that does not support the attainment of basic education. Allowing public postsecondary institutions and school districts to make their own decisions about who gets access to
their educational services removes oversight and accountability for equitable access to basic
education, further training access and citizenship rights. Many adult learners have reminded
elected officials in protests to this policy and other cuts to ABE, that they too are taxpayers and
citizens16.
Perpetuating inequalities across the province. 2014/2015 Ministry of Advanced Education
‘Letters of Expectation’ to teaching universities no longer specify the delivery of Developmental
programs. These letters do, however, specify the expectation to expand International Education
and to adhere to other government priorities. Since December 2014, PSIs are also given
discretion over what if any tuition fees they will charge to adult basic education students. This
creates inequalities in access to basic education across the province that can result in regional
distortions in employment rates and opportunities for further education. In addition, many adults
who participate in ABE are raising children who attend public schools. Shutting out an
economically active cohort fro public-funded post-secondary education can exacerbate income
inequalities that in turn effect educational outcomes of children and their families.
15
Government of BC (2013). Developmental Student Outcomes Survey. p. 8
http://www.aved.gov.bc.ca/abe/docs/2013-Developmental-Student-Outcomes-Survey-Report-of-Findings.pdf
16
See the over 70 letters submitted by adult learners to the Vancouver Board of Education during 2015/2016 budget
consultations. http://www.vsb.bc.ca/sites/default/files/15Apr27_COW_Submissions%20Received_0.pdf
7
i
Acknowledgments
I would like to thank Shauna Butterwick, George Davison, Lynn Horvat, Jan Weiten and Janet
Zlotnik for contributing data and feedback that improved this document.
8