Commonwealth involvement in education
~ O 'NOT REMOVE.
DpARL LIBRARY . _ 1
THE PARLIAMENT OF THE COMMONWEALTH OF AUSTRALIA
BASIC PAPER
No. I 1984
Commonwealth Involvement
in Education
LEGISLATIVE RESEARCH SERVICE DEPARTMENT OF THE PARLIAMENTARY LIBRARY
THE PARLI~MENT OF THE COMMONWEAL TH OF AUSTRALIA
BASIC PAPER NO. 1 1984
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Kim Jackson
Education and Welfare Group LEGISLATIVE RESEARCH SERVICE
DEPARTMENf OF THE PARLIAMENTARY LIBRARY
The views expressed in t~is paper do not necessarily reflect those of the Legislative Research Service, or the Department of the Parliamentary
Library
c Commonwealth of Australia 198,1
ISSN 0726-3406
Pr;nted by C. J. THOMPSON, Commonwealth Government Printer, Canberra
CONTENTS
INTRODUCTION
ADMINISTRATION
PRE-SCHOOLS
SCHOOLS
PAGE
1
3
7
8
I. Assistance for School s in the States, 1964-1974. 8
II. Recommendations of the Karmel Committee. 9
III. The Commonwealth Schools Commission. 9
IV. Nature of Commonwealth Schools Co~nission Grant Programs. 12
TERTIARY EDUCATION 16
I. Assist:rnce for T~rtiary Education to 1975. A. Universities
B. Colleges of Advanced Education c. Teacher Education D. TAFE
16 16 18 19 20
II. The Commonwealth Tertiary Education Commission and Subs~quent Developments, 1977-1984. 21
A. Establishment of the Commission 21
B. Funding Arrangements 22
C. Assessment of Grants 22
O. Major Inquiries since 1977 23
a. Study Leave 23
b. Nurse Education 24
c. Non-Government Business Colleges 24
d. Education, Training and Employment 24
e. Teacher Education 25
f. Northern Territory University 25
g. Management Education 25
h. Tenure of Academics 26
STUDENT ASSISTANCE PROGRAMS 29
I. Assistance for Tertiary Students. A. Commonwealth Scholarship Schemes B. Tertiary Education Assistance Scheme (TEAS) c. Po5t-graduate Awards
~9 29 30 33
II. Assistance for School Students. 36
.I\. Second3ry Allowances Scheme (SAS) and its predecessors 36 B. l\dult Secondary Education Assistance Scheme (ASEAS) 38
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SPECIAL GROUPS
I.
I I.
II I.
IV.
v.
Assistance for Aboriginal Education. A. General D 1.,. c. D. E.
National Aboriginal Education Committee Aboriginal Secondary Grants Scheme· Aboriginal Study Grants Scheme Overseas Study Grants for ~boriginals
Assistance for Iso1~ted Children.
Soldiers• Children Education Scheme.
Migrant Education.
School to Work Transition Program.
EOJCATION I~ THE TERRITORIES
I. Northern Territory II. Australian Capital Territory A. Sclio1Jls B. TAFE
39
39 39 40 ,n 43
45
46
48
49
51
52
52
53 53 53
TABLE NO.
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TABLES
1. Commonwealth Government Budget OtJtlays on Education,
PAGE
1973-74 to 1983-84. 2
2. Full-time staff employed under the Public Service Act Education Authorities, 1967 to 1983. 5-6
3. Expenditure on Children's Services Program, 1973-74 to 1983-84. 8
4. Commonwealth Schools Commi ss ion Program Grants, 1976- 1984. 14-15
5. Approved Grants for Tertiary Education, by Sector, 1975 to 1984. 27-28
6. Expenditure on TEAS, 1974-75 to 1983-84. 31
7. Number of students rec~iving TEAS living allowance, 1974 to 1983. 11
8. Students receiving TEAS living allowance, by type of institution, 1974 to 1983. 32
9. Maximum TEAS living allowance and the adjusted family income at which the maximum living allowance was payable, 1974 to 1984. 33
10. ?ostgraduate Awards. Annual Stipend and Number of New Awards, 1974 to 1984.
11. ExpendittJre on Postgraduate Awards Scheme, 1974-75
35
to 1983-84. 36
12. Expenditure on the Secondary ~llowances Scheme, 1973-74 to 1983-84. 37
13. Secondary A 11 owanc·~ Scheme: level of a 11 owances and students receiving assistance, 1974 to 1984. 38
14. Expenditure on ASEAS and students receiving assistance, 1974-75 to 1983-84. 39
15. Aboriginal Secondary Grants Scheme: level of allowances, 1973 to 1984. 42
16. ~boriginal Secondary Grants Scheme: total expenditure and students receiving assistance, 1973-74 to 1983-84. 43
17. Aboriginal Study Grants Scheme: level of allowances, 1974 to 1984. 44
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18. Aboriginal Study Grants S~heme: total expenditure and students receiving assistance, 1973-74 to 1983-84.
19. Expenditure on Overseas Study Grants for Aboriginals, 1975-76 to 1983-84.
20. Assista~ce for isolated children: number receiving
44
45
assistance, 1974 to 1982. 47
21. Assistance for isolated chi l dren: expenditure on program, 1973-74 to 1983-84. 48
22. Soldiers' Children .Education Scheme: number of beneficiaries and total expenditure, 1973-74 to 1983-84. 49
23. Expenditure on Migrant Education, 1976-77 to 1983-84. 51
24. Expenditure on School to Work Transition Program, 1979-80 to 1983-84. 52
25. Expenditure on Schools and TAFE in the .A.C.T., 1977-78 to 1983-84. 54
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COMMONWEALTH INVOLVEMENT IN EDUCATION
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INTRODUCTION
Before the Second World War, Commonwealth Government educational activities were generally limited to administering the Soldiers• Children Education Scheme (1921) and the Canberra University College (1930), the latter chiefly to provide part-time courses for public servants. Wartime exigencies led to the Commonwealth Government
assuming a more active role.
The war effort resulted in many potential university students enlisting in the armed forces or not enrolling at university for
financial reasons. An impending shortage of graduates in areas such as medicine and engineering led the Minister for War Organisation of Industry, who was · also the Minister in Charge of the Council for Scientific Research, to introduce federal financial support for
universities and some of their students. l\1eans-tested 1 i vi ng allowances and payment of tuition fees were introduced from 1943.
The Co11111onwealth contributed to defence training in technical colleges in the States. By the end of the war 100,000 persons had been trained in these institutions with Commonwealth funds.
The first Education Bill was introduced to Federal Parliament in 1945. The Bill provided for an Office of Education, which was to advise the Minister for Post-War Reconstruction, and a Universities Commission, which was to be responsible for the university training of former members of the armed forces. Commonwealth financial assistance to university students was extended until 1950. Legislation to
establish the Australian National University was passed in 1946.
Uncertainty over the legality of Commonwealth education financing 1 ed the Government in 1946 to propose amendments to the Constitution. Acceptance of the Government's proposals in a national referendum allowed Section 51 (xxiiiA) of the Constitution to be
amended to give the Commonwea 1th Government power to make 1 aws II w i t h respect to the provision of •••• benefits to students11 in all States of Australia. Notwithstanding the absence of the term 11 education11 in the amendment, the wording of the amendment has a 11 owed the
Commonweal th Government cons i derab 1 e scope for involvement in education.
Table l
Ccmmrwaalth Govemrent Budget Mlais on Education, 1973-74 to 1983-M {$m}
1973-74 1974-75 1975-76 1976-77 1977-78 1978-79 1979-80 l<.B0-81 l<.Bl-82 l<J32-83 l<J33-84 (est)
Universities 293 !il4 541 642 . 711 730 794 873 1007 1091 1127
-
Educatioo 176 365 393 470 475 !,J8 530 585 616 685 710
T~E 34 55 81 100 118 146 . 168 l<.B 224 258 287
Cost Supplarentatioo of Tertiary Grants - - - - - - - - - - 100
-
Schools (a) 230 573 669 770 846 874 836 948 1137 1356 1511
School to Work Transitioo (b) - - - 1 l 3 8 28 34 42 25
-
Stooent Assistance Schmes (c) 73 100 133 162 174 183 182 190 200 240 l)2
Special Groups (d) 38 49 55 46 56 65 72 00 102 112 127
Other Outlays (net) (e) 13 17 21 20 20 21 22 20 21 18 14
lDTftl IDJCA TI 00 858 lfi63 1894 2210 . 2402 2529 2611 2930 3341 3802 4211
Educatioo Outlays as a Proportioo of Total Budget Out 1 ays ( per cent) 7.0 9.3 8.7 9.2 9.0 8.7 8.2 8.1 8.1 7.8 7.4
Source: 1983-84 Budget Paper No. 1, p.363.
(a) Includes pre-schools and the Curricul11n Developrent Centre. (b) Includes the Education ProgriJTI for Unall)loyed Youth. (c) Includes TEAS, Postgraduate Jlwards, SAS and ASE.AS. (d) Includ~ Aboriginals, Migrants, Soldiers' Children am Isolated Children. (e) Includes acininistrative ex~diture of the Departrrent, the Ca11TDYMealth Teaching Service, and the C~alth Tertiary Educatioo Cmmissioo.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
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ADMINISTRATION
A Commonwealth Office of Education was established in 1945 to assist the Commonwealth Government with-its growing educational commitments, principally international relations in education, student training schemes, language teaching and research. In 1964 an Education Division was established within the Department of Prime Minister and
Cabinet, and Senator Gorton was appointed to assist the Prime Minister in education matters.
The Commonwealth Department of Education and Science was formal ly established on 13 December 1966, with Senator Gorton as the first Mi nister for Education and Science. The Department was ,m amalgamation of the Education Division of the Prime Minister's D~partment and the Commonwealth Office of Education. In December 1972 the Department was divided into two new Departments: that of
Education and that of Science. In March 1983 the Office of Youth Affairs was transferred to the Department which then became the Department of Education and Youth Affairs.
Currently, the broad responsibilities of the Department are as follows:
education policy and research activities;
admi ni strati on of schemes of financial assistance to students;
advisory and executive activities in education in the Australian Capital Territory;
liaison with educational authorities and institutions within Australia;
Australia's international relations in education;
co-ordination of all Common~ealth policies, programs and proposals to the extent that they affect youth.
The Department of Education has oversight of the f o 11 owing statutory authorities:
ACT School s Authority
Australian Maritime College
Australian National University
Canberra College of Advanced Education
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COMMONWEALTH INVOLVEMENT IN EDUCATION
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Commonwealth Schools Commission
Commonwealth Tertiary Education Commission
Student Assistance Review Tribunals
The Department is also responsible for the following committees:
Australian National Commission for UNESCO
OECD Advisory Committee
Australian Council on Awards in Advanced Education (in conjunction with State education authorities)
National Aboriginal Education Committee
Commonwealth Institutions Accreditation Committee for Advanced Education·
a number of committees .3nd councils concerned with the provision of education in the A.C.T.
Dept. of
June Education
1967 397
1968 765
1969 892
1970 1028
1971 1283
1972 1504
1973 2932
1974 2444
1975 2671
1976 3106
1977 2395
1978 2379
1979 2435
1980 1403
1981 1439
1982 1468
1983 1524
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 2
Full-time staff employed under the Public Service Act, Education authorities, 1967 to 1983
A.C.T. Curriculum Commonwealth Commonwealth Commission Schools Development Schools Tertiary TAFE on Advanced
Authority Centre Commission Education Commission Education Commission
14 27 39
123 18 43
20 125 21 38
682 32 117 90
788 35 125 92
803 33 117 89
831 37 115 84
840 36 109 93
895 114 86
920 152 86
Universities Commission
----
25 25 28 30
30 38 40 37
Notes: The following notes outline some of the factors behind staff number variations in the -- Department.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 2 - Notes (cont)
1967-68 - assumption of responsibility for aspects of ACT and NT education - administration of Commonwealth University Scholarships Scheme (previously with State Education Departments) 1968-69 - administration of postgraduate scholarship schemes (formerly the responsibility of the
universities)
1970-71 - formation of Commonwealth Teaching Service (CTS) following decision of S.A. Government to withdraw its teachers from the NT over the next five years - increase in the number and type of scholarships administered by the Department 1971-72 - appointment of NT teachers under the Public Service Act pending their appointment to the
CTS
1972-73 - assumption of responsibility for teachers in ACT 3nd NT from the governments of NSW and SA respectively 1973-74 - teachers " in ACT and NT transferred from !'ubl ic Service Act to Commonwealth Teachers Service Act
- employment of 302 Aboriginals in NT formerly receiving the Training Allowance 1975-76 - ancillary staff (formerly recorded as part-time staff) come under Public Service Act coverage 1976-77 - establishment of ACT Schools Authority
1979~80 - transfer of staff to NT Government. 1981-82 - transfer of Curriculum Development Centte staff to Department. 1982-83 - transfer of Office of Youth Affairs to Department .
Source: Public Service Board, Annual Reports.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
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PRE-SCHOOLS
In 1972 the ALP, as part of its election platform, promised that over a period of six years all children would be given an opportunity to undertake one year of pre-school education. The Labor Government appointed the Australian Pre-Schools Committee (Fry Committee) to
reco11111end on the implementation of this undertaking, and on measures for the establishment of child care centres.
The Fry Committee reported in November 1973, but its reco11111endations attracted considerable criticism. Generally, the Report was condemned for being too biased tn favour of pre-schooling, for the insufficient attention it paid to child care, and for its
failure to present a framework to ensure that the most needy children were given top priority. In consequence of this criticism of the Fry Report, the Government instructed the Social Welfare Commission and the Priorities Review Staff to investigate the question further. After considering the reports of these two bodies, the Government
announced that it would establish a Children's Commission to be responsible for an integrated program of childhood education, health and care resources.
In October 1974 an Interim Committee was appointed pending the establishment of the Children's Commission as a statutory body. The Children's Commission Act 1975 received Royal Assent in June 1975, but was not proclaimed and the Interim Committee continued to function. This situation persisted with the change of government in
November 1975. However, in June 1976 the Office of Child Care was established within the Department of Social Security, subsuming the functions of the Interim Committee.
The Office of Child Care is responsible for the
administration of the Children's Services Program. The program includes:
block grants to the States for recurrent assistance for pre-schools
capital and recurrent grants for child care projects (provided both through State Governments and directly to organisations concerned with child care activities).
Expenditure on the Children's Services Program is given below:
1973-74 1974-75 1975-76 1976-77
1977-78 1978-79 1979-80 1980-81
1981-82 1982-83
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 3
Expenditure on Children's Services Program, 1973-74 to 1983-84 . ($m)
Other Children's
Pre-schools Services
6.5 2.5
37.1 8.2
47.0 16.9
49.0 18.1
46.0 25.2
32.8 31.1
33.1 36.1
31.2 42.9
33.0 47.4
33.1 65.0
1983-84 (est ) 33.1 86.0
Total
9.0 45.2 64.0 67.1
71.2 63.8 69.2
74.0 80.4 98.0 119.1
Source: Department of Social Security, Annual Report 1982-83, p.149; 1983-84 Budget Papers.
SCHOOLS
I. Assistance for Schools in the States, 1964-1974
Before the establishment of the Schools Commission Commonwealth assistance for schools in the States consisted of four programs of grants. These were:
(a) grants for science laboratories and equipment in government and non-government secondary schools. These began in· 1964 with the passage of the States Grants Science Laboratories and Technical Trainin ct ,
an continued until mid 1975 with subsequent States Grants pci ence Laboratories) Acts of 1965, 1967, 1968 and 197.
(b) grants for the construction of libraries in government and non-government secondary schools. These were made from 1969 to 1974 under the States Grants (Secondary School Libraries) Acts of 1969 and 1971.
(c) recurrent grants for non-government schools. The States Grants ( Independent Schools~ Act 1969 authorised payments to non-government sc ool s at the rates of $35 per primary student and $50 per secondary student from
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COMMONWEALTH INVOLVEMENT IN EDUCATION
the beginning of 1970. These rates were increased to $50 and $68 respectively from the beginning of 1972 by the States Grants Inde endent Schools Act 1972. The States Grants Schools Act 1 2-197 changed the system
of payment so that in 1973 non..:government schools received grants equivalent to 20% of the cost of
educating a child in government schools.
(d) capital grants for governme.nt schools. These were provided from January 1972 to July 1973 by the States Grants (Capital Assistance) Act 1971-1972.
II. Reconunendations of the Karmel Conmittee
In December 1972 the Labor Government established the Interim Committee for the Australian Schools Commission under the chairmanship of Professor Peter Karmel. The Karmel Committee was asked to examine the needs of schools, to work towards establishing acceptable standards in schools, and to advise on school financing. The
Committee adopted a quantitative approach to these questions. It defined needs on two levels: the need for a minimum quantity of
resources in schools, and need as expressed by the cognitive, physical, social or economic disadvantages of individual pupils. The Committee constructed indices to enable measurement of the above needs and these formed the basis of most of its funding recommendations. Faced with setting priorities amongst competing needs, the Committee
adopted a multi -program approach: ' grants were a 11 ocated in seven programs, each with a distinct purpose and budget, but with as little prescription as possible within each program. The programs were general recurrent resources, general buildings, primary and secondary libraries, disadvantaged schools, special education, teacher development, and innovations.
The Karme 1 Commit tee's recommendations were accepted by the Government and the States Grants (Schools) Act 1973 authorised grants for the programs during the 1974-1975 biennium. Some controversy surrounded this legislation: the Committee had recommended that funds for non-government schools with the most resources be phased out over two years, and the Government had subsequently decided to withdraw these funds almost immediately. The Opposition amended the
legislation so that these grants were maintained.
III. The Commonwealth Schools Conmission
The Schools Commission was established as a statutory body by the Schools Commission Act 1973, which was assented to on 19 December
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COMMONWEALTH INVOLVEMENT IN EDUCATION
-----·----
1973. Under Section 13 of the Act the functions of the Commission are to inquire into, and to furnish information and advice to the Minister for Education and Youth Affairs with regard ·to:
(a) the establishing of acceptable standards in schools, and the means of attaining and maintaining those standards;
( b) the needs of schools, and the respective priorities to be given to the satisfying of those needs;
(c} matters in connection with the grant by the Commonwealth of financial assistance to the States for schools, and for schools in the Territories;
(d} any matter relating to primary or secondary education in education.
In exercising its functions the Commission is required to have regard to:
the need for improving primary and secondary educational facilities and for providing increased and equal opportunities for education in government and non-government schools;
the need for ensuring that facilities in all schools are of the highest standard;
the primary obligation of governments to provide and maintain government school systems that are of the highest standard and are open without fees or religious tests to all children;
the prior right of parents to choose government or non-government schooling for their children;
the educational needs of handicapped children and young persons;
the needs of disadvantaged schools and of students in all schools who are disadvantaged in their education for social, economic, ethnic, geographical or other reasons;
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COMMONWEALTH INVOLVEMENT IN EDUCATION
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the need to encourage diversity and innovation in schooling;
the need to stimulate public interest in and support for improvements in education;
the desirability of providing special opportunities for students of demonstrated ability;
the economic use of resources.
The Commission's first set of financial recommendations were contained in its Report for the Triennium 1976-1978 (June 1975). The Labor Government found itself unable to finance the full range of proposals and decided on a one year pause in the triennial
progression. It provided funding for the calendar year 1976 that
would be sufficient to maintain recurrent standards but deferred expenditure on new initiatives and restricted capital expenditure. In October 1975 the Government informed the Cammi ss ion that · its recommendations for the new triennium 1977-79 would be framed within the context of gui.del ines on expenditure developed by the Government~
Subsequent Governments have continued this procedure and s i nee 1976 the Commission's annual recommendations on grants have been made in response to funding guidelines issued by the Minister for Education. However, the Commission also presents substantive triennial reports which deal with the broader issues of primary and secondary education
and school finance, as well as setting out the Commission's view of required funding levels over a triennium. The last triennial report was presented on 26 March 1981, and deals with the 1982-1984
triennium. The next triennial report, which was due in early 1984, has been deferred for one year at the request of the Government to
enable the Commission to develop policy options in the areas indicated in the guidelines issued by the Minister for Education and Youth
Affairs on 28 July 1983. Principally, these were:
the application of the 'needs' principle in relation to general resource funding;
the determination of adequate resource standards for schools; ·
appropriate accountabil~ty arrangements for general resource funding;
the improvement of educational outcomes for Aboriginal children;
an evaluation of specific purpose programs.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
IV. Nature of the Convnonwealth Schools Convnission Grant Programs
The Commonwealth Schools Commission (CSC) has maintained the Interim Collil1ittee I s multi-program approach t_ 9 funding which enables grants to be directed at broad areas while providing for State and
non-government schoo 1 authorities to make the specific deci s i ans on expenditure within those areas. Payments to the States are authorised by annua 1 States Grants ( Schoo 1 s Assistance) Acts. The Acts di vi de the payments into three categori e.s of programs: government school
programs, non-government school programs, and joint programs.
Grants for government schools are divided into seven programs: general recurrent, participation and equity, computer education, English as a second language (previously called migrant education), disadvantaged schools, special education, capital grants. The States are obliged to spend their grants on the programs as
defined by the Act. For example, recurrent grants must be used to meet recurrent expenditure in respect of government schools; English as a second language grants must be used for education in English as a second language; capital grants must be spent on building and
equipment projects i'l connection with government schools. Within these broad definitions, the States are free to allocate their grants to whatever schools or projects they consider fit. Thus it is the State Government that determines which schools shall be classified as
'disadvantaged' or 1 special 1 schools and which will receive grants.
Grants for non-government schools are divided into the same seven programs as those for government schools. The distribution of Commonwealth grants to the non-government schools within each State is supervised by State Planning and Finance Committees (PFCs). The PFCs comprise a Chairman appointed by the Commonwealth Education Minister;
nominees of the Catholic education authorities and of non-Catholic non-government schools; appointees of the State Education Department, Commonwealth Education Department, and the CSC. For general recurrent grants non-government schools and school systems are ranked into subsidy groups, each with its rate of payment per primary and secondary student. Non-government schools are ranked by the Commonwea 1th Education Minister on the recommendation of the Commission, which is in turn advised by the PFCs. The PFCs also advise the Commission on the schools which should be considered disadvantaged and thus eligible for disadvantaged schools grants. The
PFCs also consider applications for building and equipment grants, and then make recommendations to the Commission.[1] Up to 1983 general
1. The PFCs will not be responsible for the Participation and Equity Program and the Computer Education Program. Separate committees are being established for both these programs.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
___ , ___ _ _ ________________ , _____ _
recurrent grants had been linked to average per student running costs in government schools. The rates of payment in each subsidy group were expressed as percentages of these costs. In 1984 the Government abandoned the 1 inkage and set subsidy levels on the basis of its
perception of the needs of schools. It also asked the CSC to provide advice on the establishment of a new scheme of assistance for 1985 and beyond.
There are eight joint programs: multicultural education, ethnic schools, country areas, children in residential i nstituti ans, severely handicapped children,· professional development, education centres, and projects of national significance. Most of these
programs are administered by committees representing both government and non-government education authorities and established by the State Governments. The exceptions are ethnic schools, · education centres and projects of national significance which receive grants on the
recommendation of the Commission.
Two of the programs, the Participation and Equity Program (PEP) and the Computer Education Program ( CEP), were introduced in 1984. The objective of the PEP is to encourage young people over the school leaving age to participate in useful and fulfilling education
and training activities in schools and TAFE. Particular attention i~ to be paid to students with disadvantaged backgrounds and schools with low retention rates in order to foster more equal outcomes of
schooling. The PEP is intended as the centrepiece of the overall
framework of youth po 1 i ci es deve 1 oped by the Government. It wi 11 be administered by the Schools Commission, the TAFE Council of CTEC, with the Department of Education and Youth Affairs exercising a
coordinating role. The PEP subsumes the Transition from School to Work Program. Funds for the Program are not provided through the States Grants Schools Assistance Act but through a separate States rants E ucation ssistance - Partic1 ation and E uit) Act 1983.
The Government has committed $18. 7m over the 1984-86 period to the Computer Education Program. The CEP is intended to bring a high standard of technological awareness and skill to all students. It is envisaged as a broad educational program rather than simply
involving the provision of hardware. Attention is to be paid to the
use of computers in teaching and across the curriculum, the
professional development of teachers, access to the program by girls and disadvantaged groups and the economic use of resources. On the 19 February 1984 the Minister for Education and Youth Affairs released the recorrmendations of the National Advisory Committee on Computers in Schools together with the advice of the CSC on the recommendations and the Government's decisions on these.
Ccx+10NWEAllH INVOLVEMENT IN EDUCATION
Table 4
Corrmonwealth Schools Comnission Program Grants.(a) 1976 to 1984 in est. December 1983 prices
Program 1976 1977 1978 1979 1980(b) 1981 1982 1983 1984
GOVERNMENT SCHOOL PROGRAMS
General Recurrent 323.6 312.5 305.l 308.2 311.2 311.2 305.l(c) 317.4 317.4
Participation and Equity - - - - - - - - 40.5(d)
Computer Education - - - - - - - - 5.0
English as a Second Language 32.0 32.2 31.7 32.8 35.3 44.5 51.5 51.0 51.0
Disadvantaged Schools 29.3 29.4 29.4 29.4 29.6 29.6 29.3 29.0 28.7
Special Education 17.8 18.2 19.2 19.2 19.3 20.5 20.6 20.6 20.9
Capital 234.2 259.2 247.l 229.3 157.9 157.9 150.3 150.3 157 .6
--
TOTAL GOVERij~ENT 636.8 651.5 632.4 618.9 553.3 563.7 556.7 568.3 621.2
--
NON-GOVERNME~T SCH00L PROGRAMS
General Recurrent 279.2 291.2 318.l 347.l 382.4 437.3 521.9 557.5 564.9(d)
Participation and Equity - - - - - - - - -4. 7
Computer Education - - - - - - - - 1.3
Emergency .1\ssi stance - 1.5 0.9 0.9 0.9 0.9 0.9 0.6 0.6
English as a Second Language 11.9 12.0 12.5 13.l 14.2 16.1 18.4 18.8 18.8
Disadvantaged Schools 4.6 4.6 4.6 4.6 4.6 4.6 4.9 5.2 5.6
Special Education 6.5 6.2 5.3 5.3 5.3 5.5 5.5 5.5 5.4
Ca;Jital 48.8 50.0 55.6 53.8 44.4 55.0 54.0 53.8 53.8
--- -
TOTAL NON-GOVERNMENT 350.9 366.2 397.0 424.8 451.7 519.4 605.7 641.4 655.l
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Cor+10NWEJ.\Lnt INVCl.VEMENT IN EDUCATION
Table 4 - (Cont)
Program 1976 1977 1978 1979 1980(b) 1981 1982 1983 1984
JOINT PROGRAMS
Participation and Equity - - - - - - - - o.s(d)
Multicultural Education - - - 0.8 2.2 4.7 4.8 4.4 4.8
Ethnic Schools - - - - - 2.8 3.2 3.1 3.1
Country Areas - 7.2 7.2 7.8 8.0 8.0 9.8 9.8 9.8
Children in Residential Institutions - 2.0 2.0 2.2 2.2 2.2 2.2 2.2 2.2
Severely Handicapped - - - - - 2.9 2.9 3.6 3.6
Professional Develo!JTlent 31.2 29.5 24.9 24.4 18.2 18.0 18.2 18.2 10.8
Education Centres 2.8 2.9 2.4 2.3 2.3 2.3 2.3 2.3 2.3
Proje~ts of National Significance 7.8 8.0 6.6 6.4 4.8 5.0 1.6 2.0 1.7
TOTAL JOINT PROGRAMS 42.1 49.6 43:1 44.0 37.7 45.8 44.8 45.5 · 38. 7
TOTAL ALL PROGRAMS 1029.8 1067.3 1072.5 1087.7 1042.7 . 1128.9 1207.2 1255.2 1315.0
(a) 1976 to 1984 amounts are actual program allocations with the exception of the 1983 and 1984 figures for the English as a Second language Program, the Ethnic Schools Program and the non-government schools General Recurrent Program. These are subject to adjustments for actual enrolments. (b) Includes the Northern Territory from 1980 onwards. (c) This amount reflects the requirement for States to absorb 35 per cent of _the shortfall in the prospective
allowance for 1982. (d) This program subsumes the Transition from School to Work Program. fhe States will have some limited flexibility in allocating funds between government schools and TAFE.
Source: --- Conmonwealth Schools Conmission, Australian School Statistics (January 1984), Table 4.2. Figures adjusted to estimated December 1983 prices using the price indices maintained by the Conmission.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
TERTIARY EDUCATION·
I. Assistance for Tertiary Education to 1976
A. Universities
In March 1950 the Menzies Government appointed a cornmi ttee under the chairmanship of Professor Mills to report on the finances of
universities. The Mills Committee recommended that the Commonwealth Government contribute towards the universities' recurrent expenditure. The Government accepted this recornmendati on and under the States Grants (Universities) Acts of 1951, 1953, 1955, 1956 and 1957
financial assistance was provided to the States for the running
expenses of universities, on the condition that the level of
university income from State grants and fees reached, and was maintained at, certain basic levels.
Concern at the condition of the universities led the Prime Minister in December 1956 to es tab 1 i sh a committee on Austra 1 i an universities under the chairmanship of Sir Keith Murray. In response to the committee's recommendations, the Government announced the
establishment of a permanent Australian Universities Commission, greatly increased Commonwealth recurrent grants and the introduction of capital grants for universities. This new program of financial assistance commenced in the 1958-60 triennium under the provisions of the States Grants (Universities) Act 1958, and in 1959 the Australian Universities Commission was established by·the Australian Universities Commission Act. The function of the Commission was to inquire into
and make recommendations on financial assistance to the States for universities.
From 1958 to 1975 grants to the States for universities were provided on a triennial basis. The levels of grants generally
reflected the recommendations of the Universities Commission, whose triennial reports were largely accepted by successive governments. In addition to reports on trienni.al finance, the Universities Commission was associated with a number of special investigations over the
1958-75 period. These included the following:
(a) Tertiary Education in Australia: Report of the Committee on the Future of Tertiary Education in Australia to the Australian Universities Commission {1964-65). This report became known as the 'Martin Report', after Sir Leslie Martin, the Chairman of the Committee. Sir Leslie was also Chairman of the
Universities Commission. The Report's major
recommendations concern~d the development of the advanced education sector; however, some of its
- 17 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
-------
proposals concerning universities were accepted by the Government. These included additional grants for universities, the suppl~mentation of. triennial grants for certain cost increases, and stronger support for
research activity.
(b) Universities Commission and the Commission on Advanced Education, Report on the Location, Nature and
Develo ment of Institutions of Tertiar Education in S dne Melbourne and the A bur -Wodon a Re , on I arc ,
19 3 • This report recommended the establishment of three new universities. Although it was accepted in principle by the Government, the proposals were later deferred because of budgetary constraints.
(c) Uni versities Commission, Report on the Proposal of the Government of Victoria for a Fourth Universit in Geelong, Ballarat and Bendigo December, 1973. This report recommended the establishment of a university at Geelong. It was accepted by the Government and Deaki n
University was subsequently founded.
(d) Committee on Open University, Open Tertiary Education in Australia: Final Report of the Committee on Open Universit to the Australian Universities Commission December, 1974. This report recommended a variety of measures to increase access to tertiary education, but did not support the establishment of an Open University. Action was deferred by the Government because of financial stringencies. Open tertiary education became
a responsibility of the Tertiary Education Commission when it was established in June 1977.
By 1973 the Commonwealth was contributing $1 in recurrent grants for every $1.85 available to universities from State Government grants and tuition fee income, and $1 in capital, equipment and
special research grants for every $1 State Government contribution. At the June 1973 Premiers Conference the Commonwealth and State Governments agreed that from 1 January 1974 the Commonwealth would take over the financial responsibility for universities and colleges
of advanced education. The Commonwealth would meet the State Government contributions to the 1973-75 triennial program for 1974 and 1975 and the amounts thereby saved by the States would be deducted from the general financial assistance grants to the States.
In May 1975 the Universities Commission presented its report to the Government recommending financial assistance for the 1976-1978
- 18 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
-------·--·----
triennium. However, during 1975 the Government decided that, due to the budgetary situation, 1976 was to be treated as a year outside the triennial progression. The Government then determined guidelines within which the Commission was requested to review its
recommendations for 1976. This was the first occasion on which guidelines had been given to the Commission.
During 1976 the new Commonwea 1th 3overnment introduced the 'rolling triennium' for the 1977-1979 period. Under this arrangement the Government issued firm guidelines on expenditure for the first year (1977) together with planning amounts for the remaining two years. As each year was completed the pl ans for the remaining years
were to be reviewed and an additional year added. This was the
procedure operating when the Universities Commission ,.'/as abolished and the Tertiary Education Commission established in 1977 (see below).
B. Colleges of Advanced Education
In August 1961, at th~ r~quest of th~ Universities Commission, the Government est1blished the Committee on·ttie Future of Tertiary Education in Australia under the chairmanship of Sir Leslie Martin. The Committee was required to consider the pattern of . tertiary
education in Australia in relation to the needs .1nd resources of
Australia and to · mai<(~ ri~commendations on the future d·~Vt:?lopment of tertiary education. .l.\t that time the advanc~d education sector
(excluding teachers' colleges) consisted of two main types of tertiary institi.Jtions: institutes of technology or technical colleges, and s;Jecialist or single purpose instit1Jtions (generally agricultural or paramedic a 1). The Martin Cammi tt ·~~ :::onside red that there was
insufficient diversity in tertiary education and that technical education was undervalued. It recommended an increase in financial support far colleges, the separation of recreational and trade courses from those concerned with general education and the technologies, an
expansion •)f humanities courses and the establ i shrnent of standards recognised throughout the country. The Governillent accepted most of these recommendations: it agreed to support financially a new system of colleges parallel to universities and to establish a Commonwealth advisory committee on the new colleges, although they were to r~main
primarily a State responsibility.
In 1965 a Commonwea 1th Advisory Cammi t tee on Adv ;inced Education was established to promote the balanced development of institutions providing advanced education and to advise the Government Jn financial assistance for such institutions. The Government also agreed to pro vi de interim capital grants for the remainder of the
1964-1966 triennium. The recommendations of the First Report of the Advisory Committee were accepted by the Government and incorporated in the States Grants lAdvanced EducationLAct 1966. The Act provided capital and recurrent grants for the 1967-1969 triennium; in 1967 it
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COMMONWEALTH INVOLVEMENT IN EDUCATION
In 1968 the Commonwealth Government, at the suggestion of the Advisory Committee, commissioned two further i nqui ri es on aspects of advanced education. The Re ort of the in uir into salaries of
Lecturers and Senior Lecturers in Colle es of Advanced Education May, 1 Sweeney Committee recommende tat were wor ,n a college
was of like quality to that undertaken in a university, parity in
salaries with university salaries should be instituted. The Commonweal th Government agreed to meet its share of the increase in salaries.
The second investigation was the Committee of Inquiry into Awards in Colleges of Advanced Education (Wiltshire Committee} which reported in June 1969. The Committee 1 s report, Academic Awards in Advanced Education, led to the joint Commonwealth-State establishment
in 1971 of an independent national body responsible to the seven Ministers of Education, the Australian Council on Awards in Advanced Education. The Council was responsible for devising general principles on the nomenclature of awards and course patterns.
In 1971 the Australian Commission on Advanced Education was established as a statutory body by the Australian Commission on Advanced Education Act 1971, to replace the Advisory Committee. The Commission had broadly the same responsibilities as the old Committee: to advise the Government on financial assistance for advanced education~ and to promote the balanced development of the sector. The Commission was required to consult with the Universities Commission and the States in performing its functions.
From 1972 to 1977 developments in the financial arrangements for the advanced education sector paralleled those for the
universities. The Commonwealth accepted full financial responsibility for advanced education from 1 January 1974 and funds were provided on a fixed triennial basis until 1976 with the introduction of Government guidelines for Commission recommendations and the announcement of a
1
pause 1 in the triennial progression during 1976. In 1977 the
Commission was abolished with the establishment of the Tertiary Education Commission.
c. Teacher Education
Commonwealth assistance to the States for teacher education was introduced in 1967-68. The States Grants (Teachers Colleges) Act 1967 provided unmatched grants for the construction and equipping of
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COMMONWEALTH INVOLVEMENT IN EDUCATION
--------------·---------
colleges conducted by the States for the purpose of training
teachers. The States Grants (Teachers Colleges) Act 1970 extended this scheme until mid 1973. The States Grants (Pre-School Teachers Colleges) Act 1968 provided capital grants for pre-school teachers' colleges up to mid 1971. Owing to difficulties experienced by some
States in proceeding with their building programs subsequent Acts in 1971 and 1972 extended the period of operation of the program (though not the funds available) to the end of 1973.
In February 1972 the Senate Standing Committee on Education, Science and the Arts presented its report, The Commonwealth's Role in Teacher Education. The report recommended that teachers' colleges be granted financial assistance under terms and conditions similar to colleges of advanced education. Following consultation with State Governments the Commonweal th Government announced in the 1972 Budget debate that from July 1973 teachers' colleges would be funded on the
same basis as universities and colleges of advanced education. The Advanced Education Cammi ss ion was requested to advise the Government on a program of support for teacher education. From 1 January 1974 the Commonwealth assumed full financial responsibility for teachers' colleges as well as universities and colleges of advanced education.
D. Technical and Further Education (TAFE)
The States Grants (Science Laboratories and Technical Training) Act 1964 provided grants for the building and equipment costs of technical schools and colleges. Subsequent States Grants (Technical Training) Acts of 1965, 1968, 1971 and 1973 continued this program.
In 1973 the Commonwealth Government established the Australian Committee on Technical .3.nd Further Education (ACOTAFE) to advise the Government on the development of TAFE and to make recommendations for financial assistance to the States for that purpose. The Committee's report, TAFE in Australia (the Kangan report) was submitted in April 1974. The report gave rise to a
program of Commonwealth Government financial assistance under the States Grants Technical and Further Education) Act 1974, which prov, e recurren an cap1 a gran s over e per10 July 1974 to
30 June 1976.. While the Government accepted the 1 eve l of recurrent grants recommended by ACOTAFE, the capital grants provided by the legislation were substantially less than those recommended. The TAFE recurrent grants provided to the States incorporated amounts to reimburse the States for the income forgone as a result of the
abolition of fees. The Commonwealth had abolished tuition fees at universities and colleges of advanced education from the beginning of 1974, when it accepted full financial responsibility for these institutions. The Commonwealth al so came to an agreement with the States which guaranteed that they would not be financially
disadvantaged by the abolition of tuition fees for certain courses at
- 21 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
TAFE institutions. The States Grants Technical Trainin Fees Reimbursement Act 1974 prov, e re,m ursement tote States or ees orgone during the first six months of 1974. Thereafter this
reimbursement was included in TAFE recurrent grants.
In May 1975 ACOTAFE presented its second report to the Government recommending financial programs for l July 1976 to 31 December 1978, thus bringing TAFE into line with the triennial programs of the other education sectors. However, the Government I s
announcement of a pause in the triennial progr~ssion for 1976 deferred the introduction of triennial funding for the TAFE sector.
On the 29 May 1975 ACOTAFE was replaced by the Technical ~nd Further Education Commission (TAFEC). As with the other education Commissions, TAFEC was given guidelines within which to frame its recommendations for the newly-introduced I rolling I tri enni um, 1977-79. TAFEC presented its Report for the Triennium 1977-1979 in July 1976.
This was the Commission's only report, as in the following year it was abolished with the establishment of the Tertiary Education Commission.
II. The Conmonwe~lth Tertiary Education Commission and Subsequent Developments, 1977-1984
A. Establishment of the Coiruni ss ion
The Tertiary Education Commission was established on the 22 June 1977. On that date the Tertiary Education Commission Act 1977 was brought into operation and the separate Acts which had established the Universities, Advanced Education and TAFE Commissions were repealed.
In addition to the Commission, the Act also established the Universities Council, the Advanced Education Council and the TAFE Council. In 1981 the Commission's name wa$ changed to t he
Commonwealth Tertiary Education Commission (CTEC).
The prime function of the Commission under its Act is to inquire into and advise the Minister on the necessity for, and the conditions and allocation of, financial assistance in respect of universities, CAEs and TAFE institutions. The CTEC is also empowered to inquire into and advise the Minister on any other matter relating to tertiary institutions that is referred by the Minister or which the
CTEC itself considers requires inquiry. It also performs, on behalf of the Commonwealth, administrative functions in relation to programs of financial assistance. The CTEC is required to consult with
relevant State authorities and to perfonn its functions with the object of promoting the balanced and co-ordinated development of tertiary edu,cation and the diversifying of opportunities for tertiary education.
- 22 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
The function of each Council is to inquire into and advise the Minister and the Commission on matters relating to its sector and to pro vi de assistance to the CTEC, in accordance with the CTEC' s directions, in matters relating to its sector.
B. Funding Arrangements
Since the establishment of the CTEC there has been a return to fixed triennial funding arrangements. In June 1978, in response to proposals from the Commission, the Government decided to re-introduce fixed triennial funding for university and CAE recurrent expenditure.
Other cl asses of expenditure, namely university and CAE capital and equipment grants and all TAFE grants, are provided annually.
Recurrent funds for universities and CAEs are provided for individual institutions, mostly in the form of block grants fof general purposes (teaching and research) and for certain classes of expenditure (special research, equipment ) . Only a very small
proportion of recurrent grants are e~rmarked.
Recurrent grants for TAFE are provided on a State basis and not in respect of individual institutions. They either compensate the States for the abolition of fees (in which case their disbursement is at the full discretion of the States), or they relate to specific
programs of quality improvement which are subject to CTEC approval.
Capital grant.s for all three sectors are provided for
specific building projects approved and monitored by the Commission.
The current legislative basis for tert·iary funding is the States Grants (Tertiary Education Assistance~ Act 1981 which author ises grants for the 1982-84 triennium. T e Act is amended twice yearly to adjust grants for cost increases and to provide grants for
those programs funded on an annual basis. Grants for the new
Participation and Equity Program are provided under the TAFE element of States Grants (Education Assistance - Participation and Equity) Act 1983.
c. Assessment of Grants
The Universities Counc i1 assesses grants on the basis of submissions from institutions, inspections of institutions and discussions with admi ni st rat ors, governing body representatives, students, staff, and State co-ordinating authorities. For general recurrent grants, a
broad assessment is made based on the number of students, faculties, departments and the distribution of students through courses and levels of study.
- 23 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
----·---- ---------- ---------------
The Advanced Education Council assesses grants on the basis of submissions from State co-ordinating authorities and discussions with these authorities and inst i tut i ans. The Commonwea 1th and State Education Ministers, meeting as the Australian Education Council in June 1979, agreed on the following procedure for the allocation of
general recurrent grants:
the total number of students and their mix in terms of institutions, fields and levels of study in a given
State will be determined by the Commission on the advice of the Council after consultation with State
authorities;
the Commission, on advice of the Council, will allocate available funds to individual colleges after advice from State authorities. The Council wi 11 generally foll ow this advice.
The TAFE Council provides advice on a different basis from the other two Councils because of the different funding arrangements in the TAFE sector. TAFE general purpose recurrent grants, which are designed to reimburse States for the cost of abolishing fees, are calculated according to a formula which takes account of the estimated teaching effort in the TAFE sector. The distribution of the total of special purpose and particular purpose grants between the States is made according to the distribution of TAFE activity as measured by
teaching effort. Grants for the Participation and Equity Program will be provided in response to State by State proposa 1 s received and approved by the TAFE Council.
The three Counc i 1 s reconmend bui 1 ding programs for their sectors to the Commission after having received and considered proposals submitted to them by universities, State advanced education co-ordinating authorities and State TAFE departments.
D. Major Inquiries Since 1977
Since the establishment of the Commission there have been a number of major inqu1r1es concerning aspects of tertiary education, although the CTEC itself has not necessarily been involved in each investigation.
a) Study Leave in Universities and Colleges of Advanced Education: Re ort of the Tert1ar Education Comm1ss1on August, 1978 • This report was preceded by a draft report which caused considerable discussion. The final report endorsed the general principles of the draft report although · some of the details of its recommendations were varied. The
major reconvnendations were that study leave should be more
- 24 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
selective, restricted to academic staff, with time limits for both institutions and individuals; there should be less
emphasis on overseas study 1 eave and greater accountabi 1 ity on the part of both institutions and individuals. The
Government accepted these recommendations and universities and CAEs were requested to modify their study 1 eave arrangements from 1 January 1979.
b) Nurse Education and Training: Report of the Committee of fn uir into Nurse Education and Trainin to the Tertiary ucat1on omm1ss1on ugust, ax ommittee'). The
report proposed that nurse education and training should be available through a number of modes. It recommended the upgrading and rationalisation or hospital-based courses, the development of co-operative arrangements between hospital
schools and tertiary institutions, and the accreditation of the awards of hospital based schools where appropriate. The Government supported these proposa 1 s. The Cammi ttee a 1 so recommended some growth in enrolments in basic nursing
courses in CAEs, but proposed that it should be restricted to allow independent evaluation of existing programs. The Government agreed to an increase of 350 places in CAE basic nursing courses. In July 1983 the Labor Government asked the CTEC to prepare options on the futur~ development of basic
nurse training arrangements including consideration of the Sax Committee's recommendations.
c ) Tertiary Education Commission, Report on Non-Government Business Colleges {October, 1978 ) . Recommended that non profit non-government business co 11 eges receive per capita assistance in respect of full-time students taking approved secretarial courses. Previously such colleges received fees subsidies which varied from college to college. The Government accepted the recommendations of the Report and the
new scheme of assistance was introduced in 1979.
d)
February, 1979). Committee made 116 of education.
The Government announced that its response to the Williams Report would be guided by seven policy objectives:
1) 2 )
3)
qualitative improvement in TAFE; strengthening of the teaching of basic skills in schools; facilitating the transition of young people from school to work;
e)
f)
g)
- 25 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
4) improving labour market information; 5) improving skills training arrangements; 6) strengthening and concentrating research in universities;
7} continuing monitoring and adjustments of the education system.
The Government also contributed to a National Research and Development Centre in TAFE. Many of the Committee's
recommendations were directed at State authorities and individual universities. The Commonwealth Government also referred a large number of recommendations affecting tertiary education to the TEC for comment. Deta i 1 s of the Government I s reaction to the
recommendations of the Wi 11 i ams Committee can be found in the reports issued by the Minister for Education in November 1979, ~arch 1981 and June 1982.
Re ort of the National In uir into Teacher Education (August, 1980. Auchmuty Committee • The Committee's major recommenda tion was that schoolteachers be allowed one term's study leave every seven years to enable them to keep up to date with
educational, technological, economic and social developments. In the Statement on Education Policy by the Minister on 4 June 1981, it was announced that the Commonwealth regarded the implementation of most of the Report I s recommend at i ans as the res pons i bil i ty of
employing authorities and tertiary institutions. The
Commonwealth's direct financial contribution in the area was to be continued in the form of the professional development programs of the Commonwealth Schools Commission.
Tertiary Education Commission, Report on the Proposal to Establish a University in the Northern Territory (June 1981). In 1980 the Government of the Northern Territory announced that it intended to plan for the establishment of a university in the Territory, and
in March 1981 forwarded a detailed proposal to the Commonwealth Government. The TEC was asked to report on this proposal. The Report recommended that the Comrnonwea 1th not agree to the establishment of the university but that the situation be reviewed
in the late 1980s. In the meantime the Commonwealth Government, as part of the Review of Commonwealth Functions, had decided not to provide funding for a N.T. university over the 1982-84 trienniumo
ement Education Re ort (April 1982) ('Ralph ,omm1ttee • e eport s maJor recommendations were that Master of Business Admi ni strati on (MBA) courses be concentrated at two national schools at the Universities of New South Wal2s and Melbourne, and at regional schools at a university in each State;
- 26 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
and that MBA courses at the CAEs and other universities be
discontinued. The Government announced its response to the Report on 9 September 1982. A graduate school of management wi 11 be established at the University of Melbourne and other programs of management education will be rationalised after consultations with State authorities and institutions. The Labor Government has
announced that it wi 11 pro vi de $3. 8m in 1984 towards the
completion of the new Graduate School of Management.
h) Senate Standing Commit tee on Education and the Arts, Report on Tenure of Academics (September 1982}. The Committee endorsed the concept of tenure in Australian universities and CAEs for appointment at the level of lecturer and above. However, it
considered that tenure should be subject to flexible staffing requirements and to review procedures to ensure proper
accountability. The Committee considered that a maximum of 90 per cent of lecturers and above should be tenured. In October 1982 the Minister for Education asked the CTEC to provide advice on the report. The CTEC believed that the Committee's proposals did not
go far enough in responding to the complex problems created by the cessation of expansion in higher education. The CTEC argued that the maximum level of tenured staff should be 80 per cent, with an increase in the number of limited term appointments and tutorial
positions and a decrease in the number of staff at lecturer and above. The Labor Government stated that it would announce its decisions in early 1984, but at the time of writing no statement had been made. However, the Government did state in December 1983
that it expected institutions to take account of the Report and the CTEC 1 s advice in making appointments.
Sector ----
Universities Recurrent Equipment Capital
Total
Advanced Education Recurrent Equipmet~) Capital
Total
TAFE Recurrent Equipment Capital
Total
- 27 -
COt+10NWEALTH INVOLVEMENT IN EDUCATION
Table 5
Approved Grants for Tertiary Education, by Sector, 1975 to 1984 ($m) 'in est. December 1983 prices'
-----·-·
1975 1976 1977 1978 1979 1980 1981 1982
1003 1040 1060 1077 1089 1089 1094 1095
47 30 47 52 51 51 52 55
120 62 66 46 33 29 14 17
-- -
1170 1133 1173 1175 1173 1169 1160 1167
599 645 681 697 702 706 701 689
28 24 25 26
249 169 154 124 68 48 34 25
-
847 814 835 820 793 779 760 740
72 85 77 83 89 95 97 106
12
67 62 76 92 119 141 141 135
139 147 153 175 208 236 239 253
1983(a) 1984(a)
1096 1102
55 55
19 25
-
1170 1181
687 591
26 26
31 29
744 747
111 142(b}
12 12
124 133
247 287
- 28 -
Cor+10NWEALTII INVOLVEMENT IN EDUCATION
Table 5 - (Cont)
Sector 1975 1976 1977 1978 1979 1980 1981 1982 1983(a). 1984(a)
All Sectorfc) Recurrent Equipme,~) Capital
1673
482
1770
323
1818
343
1856
314
1881 80 220
1891 76 218
1893 76 190
1890 94 177
1899 94 174
1945 94 187
··---------------------
Total 2156 2094 2161 2170 2180 2185 2160 2161 2166 2225
(a) Does not include $4.6m (1983) and $9.2m (1984) for increases in superannuation in universities and CAEs. Tnese amounts have not yet been allocated between the sectors.
(b) Includes $29m for the Participation and Equity Program which subsumed the School-to~Work Transition Program. The TAFE component of the latter program was $26.6m in 1981.
(c) Frain 1979 onwards 'All Sectors Recurrent' includes grants for evaluative studies {$0.2m in 1979; $0.4m in all subsequent years).
{d) For 1975 to 1978 includes both capital and equipment.
Source: Conmonwealth Tertiary Education Comnission.
Note: Because of the establishment of new institutions, and the transfer of institutions between sectors, care should be taken in making comparisons between years for the various sectors.
- 29 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
STUDENT ASSISTANCE PROGRAMS
I. Assistance for Tertiary Students
A. Conmonwealth Scholarships
Commonwealth assistance for university students was introduced during the Second World War when the Government became concerned at the shortage of graduates in certain areas such as medicine and
engineering.
Uncertainty over the legality of Commonwealth financing led the Government in 1946 to propose amendments to the Constitution, which were accepted in a national referendum. Section 5l(xxiiiA) of the Constitution was amended to give the Federal Government power to make laws with respect to the provision of benefits to students. An
immediate use of the Commonwealth's new power was the extension of the wartime scheme of financial assistance for students. I\ Commonwealth scholarship scheme announced by the Labor Government was endorsed by the new Menzies Government and came into operation on 1 January 1951. Three thousand means-tested scholarships were available annually on a
competitive basis from that year.
In 1966 the Commonwealth Scholarships Scheme was replaced by two Schemes, the Commonweal th University Scholarship Scheme and the Commonwealth Advanced Education Scholarship Scheme. By 1973 40,760 students in universities and 10,567 students in CAEs were receiving
these scholarships. However, in May 1973 the Minister for Education announced that these schemes would be replaced by a new system of financial support for students.
The major criticism of the old scholarship schemes was that they rewarded the affluent, rather than the needy, and did little to broaden access to tertiary education. Students from non-government schools received a disproportionate share of the scholarships, which
paid their compulsory fees regardless of their families' income. In 1973 some 56% of Commonwealth University Scholarships (CUS) expenditure was on fees. The means-tested component, 1 i vi ng allowances, comprised the smaller part. In previous years, the
imbalance of expenditure on fees had been even more marked (about 60%). Between 1966 and 1973 an average of only 421 of CUS students received living allowances each year. Thus a majority of scholarship holders were from families whose income exceeded $8,200 p.a. (where the student lived at home) or $9,930 (where the student lived away from home). As in 1973 average earnings per employ~d male unit were $5,678 p.a., it would appear that the majority of CUS students were
from comparatively well-off families.
- 30 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Another criticism of the scholarship schemes concerned their 1 imited scope. The number of awards :iv ail able was consistently well below the number of applicants, and the number of students who were qualified to enter tertiary institutions. In 1973 there were in excess of 55,000 applications for some 15,000 CUS awards, and more than 60,000 applications for 6,000 Commonwealth Advanced Education Scholarships.
The tertiary a 11 owance scheme proposed by the Labor Government, in conjunction with its decision to abolish tertiary tuition fees, was designed to rectify the shortcomings of the old scholarship schemes. It would make available means-tested grants free
of competition to al 1 students undertaking approved courses i n universities, colleges of advanced education and technical col l eges.
B. Tertiary Education Assistance Scheme {TEAS)
The Tertiary Allowances Scheme was introduced in January 1974 and continued until 14 October 1974. This scheme anticipat~d the introduction of the Tertiary Education Assistance Scheme (TEAS) which was established upon the commencement of the Student Assistance Act on
15 October 1974.
TEAS provides means-tested assistance to full-time students undertaking approved courses at universities, CAEs, TAFE institutions, and certain other government and non-government institutions (e.g. Schools of Art and Music, non-government business and teachers• colleges).
Assistance under TEAS can include the following:
living allowance incidentals allowance dependant's allowance fares allowance
The structure of TEAS has remained essentially unchanged since its inception, although there have been increases in the living allowances and modifications to the means test. In 1984 the maximum allowance for dependent students is paid if the adjusted family income is $12,983 or less
(adjustments are made for other dependent children and for deductions allowable under Sections 51-54 of the Income Tax Assessment Act). $2.50 is deducted from the allowance for every $10 of adjusted income in excess of $12,983. For independent students, the means test is applied to their own
income and, if applicable, to that of their spouse. Independent students may earn up to $2,000 p.a. ($5,100 for sole parents) without affecting their allowance. The allowance is reduced by $1 for every $2 above those limits.
- 31 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 6
Expenditure on TEAS 1974~75 to 1983-84
1974-75 1975-76 1976-77 1977-78 1978-79
1979-80 1980-81 1981-82 1982-83
1983-84
$m 77.3 109.6 135.8
146.1 156.2 157.7
163.4 169.4 190.7 227.5 (proposed )
Source: Re ort on the O eration of the Student Assistance Act annual ; 1983-84 Budget Papers.
Table 7
Number of students receivinf TEAS living allowance at ~o Junez 97~-1983 --------- ------ Ordinary Rate At Home A.way from Home Independent Total ------------------------------ 1974{a) 28,542 15,206 13 ,227 56,975 1975 32,416 18,560 16,197 67, 173 1976 36,945 21,497 24,480 82,922 1977 34,449 21,864 29,958 86,271 1978 33,984 23,792 30,943 88, 719 1979 31,452 23,381 28,784 83,617 1980 31,165 22,852 27,898 81,915 1981 30,134 22,245 27,096 79,475 1982 27,821 20,417 28,557 76,795 1983 30,193 22,560 31,594 84,347 ----------------------------------(a) Includes 19,858 students holding Commonwealth University and Advanced Education Scholarships. Source: Report on the Operation of the Student Assistance Act (annual); 1983-84 Budget Papers.
- 32 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 8
Students receiving TEAS li~ing allowance, by type of institution, 1974-1983
------------- ---·---- University CAE Technical College ·---------------------- 1974 31, 762 14,807 8,284 1975 35,395 19,943 9,519 1976 39,789 26,703 11,472 1977 39,746 30,668 12,744 1978 38,600 33,677 13,848 1979 34,283 32,024 14,389 1980 32 ,413 32 ,778 14,383 1981 31,152 31,616 14,445 1982 29,730 30,920 14,041 1983 31,736 34,212 16,563 ---------·-Source: {eport on the Operation of the Student Assistance Act annual); 1983-84 Budget Papers. Other
2,122 2,316 4,958 3,113
2,594 2,921 2,341 2,262
2,104 1,836
*
- 33 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 9
Maximum TEAS 1 i vi n allowances and the adjusted fam·n income at w 1c the maximum living allowance for Ordinary Students was payable, 1974-1984 ($)
-------------------·-Maximum Allowances Adjusted Ordinary Students I nd1~pendent Family At Home Away from Home Income ·------------- --- -------- 1974 850 1,400 1,400 5,300 1975 1,000 1,600 1,600 6,300 1976 1,000 1,600 1,600 7,600 1977 1,250 1,976 2,236 8,200 1978 1,250 2,075 2,348 8,700 1979 1,523* 2,348* 2,348 8,700 1980 1,523 2,348 2,348 9,400 1981 1,675 2,583 2,583 10 ,312 1982 1,675 2,583 2,583 11,034 1983 2,010 3,100 3,100 12,248 1984 2,110 3,255 3,255 12,983 ---- -~--The living allowance was raised $5.25 p.w. to compensate for the loss of family allowances. Source: Re art on the O eration of the Student Assistance Act annual ; 1983-84 Budget Papers. C. Postgraduate Awards The Commonwealth Postgraduate Award Scheme was introduced in 1959, with 100 awards being made available for research in universities. Un_ der the scheme, the Commonwealth Scholarship Board allocated a number of awards to each university, which in turn awarded the scholarships to students. The administration of the scheme was undertaken by the universities until 1969, when the Department of Education and Science assumed responsibility. In 1971 an additional category of award, the Commonwealth Postgraduate Course Award, was introduced. These were intended for students undertaking specialised courses at Masters level in universities. In 1974 Advanced Education Institution Awards were introduced .for students undertaking Masters courses in CAEs.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
--------The legislative basis for postgraduate awards is the Student Assistance Act 1973, which replaced the provision of the Education Act 1945-1966 and with it the authority of the Commonwealth Scholarships Board. Currently, postgraduate research awards are allocated to each university on the recommendation of the Australian Vice-Chancellors' Committee. There is also a small reserve quota allocated by a selection committee appointed by the Minister. Awards are granted to applications in accordance with universities' lists drawn up on the basis of academic merit. -Postgraduate Course Awards and Advanced Education Institution Awards are granted by selection committees appointed by the Minister f ram nominees of the Aust ra 1 i an Vice-Chance 11 ors ' Cammi t tee and the Australian Conference of Principals of Colleges of Advanced Education. follows: Benefits under the Post9raduate Awards Scheme in 1984 are as an annua 1 stipend of $7, 330. Students may al so undertake part-time work of up to 180 hours per year. dependants' allowances of $2,220.40 p.a. (for a spouse) and $520 p.a. (for a child). incidentals allowance of $100 p.a. ($70 p.a. in CAEs). establishment allowance of $100 ($200 if the award holder has dependants). thesi s allowance of up to $250 (Master's thesis ) or $400 (Ph.D. thesis). In January 1984 the Minister for Education and Youth Affairs released an evaluation of the Postgraduate Award Scheme commissioned by her Department. The report contains a number of recommendations for improving the scheme. These include: alternative methods of distributing awards among the two broad categories of academic di sci pl i nes; that is, the natural and applied sciences and the Humanities and social sciences; the establishment of an industry-oriented postgraduate support scheme;
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COMMONWEALTH INVOLVEMENT IN EDUCATION
----·--·------·----
ensuring the value of award allowances is sufficient to ensure it does not deter the better students from
entering postgraduate education;
significantly increasing the movement of students to postgraduate schools other than those at which the students obtained their initial degree.
The report is being distributed to various interest groups for
comment.
The following table gives the level of the annual stipend, and the number of new awards, for the period 1974 to 1984.
Table 10
Postgraduate Awards. Annual Stipend and Number of New Awards, 1974 to 1984
Stipend No. of New Awards
$ p.a.
1974 3050 895
1975 3250 900
1976 3250 900
1977 4000 800
1978 4200 700
1979 4200 700
1980 4200 700
1981 4620 800
1982 4620 800
1983 6850 900
1984 7330 900
Source: Report on the Operation of the Student Assistance Act (annual); 1983-84 Budget Papers.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
· Table 11
Expenditure on the Postgraduate Awards Scheme, 1974-75 to 1983-84
$m
1974-75 8.12
1975-76 7.78
1976-77 8.60
1977-78 9.63
1978-79 8.97
1979-80 8.48
1980-81 8.71
1981-82 9.58
1982-83 12.57
1983-84 16.42 (proposed)
Source: Re ort on the O eration of the Student Assistance Act annual ; 19 2-83 Budget Papers.
II. Assistance for School Students
A. The Secondary Allowances Scheme and its Predecessors
During the election campaign of 1963 Sir Robert Menzies undertook to introduce a scholarship scheme to assist able students to complete the final two years of secondary school. The Commonwealth Secondary Scholarship Scheme was introduced in 1965, when 10,000 two-year scholarships were made available to the States in proportion to State
population. Selection was based on external competitive examinations. Scholarship holders received a $200 p.a~ living allowance, $50 p.a. book and equipment allowance, and up to $150 p.a. reimbursement for fees.
In 1973 the scheme was modified and renamed the Commonwealth Senior Secondary Scheme. The scheme offered 25,000 scholarships each year. Benefits consisted of a basic allowance of $150 p.a., and an additional-allowance of up to $250 p.a., subject to means test.
In 1974 the Senior Secondary Scheme was replaced by the Secondary A 11 owance Scheme, as the former was seen by the Labor Government to favour the children of the wealthy.
The Secondary A 11 owance Scheme (SAS) is not based on competitive examinations. Instead, it offers means-tested annual allowances for the parents of children undertaking the final years of schooling. In 1984 the maximum allowance of $1046 p.a. will be paid
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COMMONWEALTH INVOLVEMENT IN EDUCATION
for each eligible child if the adjusted family income is $12,983 or less. $2.50 will be deducted from the allowance for every $10 in excess of $12,983.
Table 12
Expenditure on the Secondar~ Allowances Scheme, 1973-74 to 1~3-84
$m
1973-74 1.16
1974-75 2.47
1975-76 5.60
1976-77 6.88
1977-78 9.01
1978-79 9.58
1979-80 10.49
1980-81 12.72
1981-82 15.56
1982-83 29.81
1983-84 49.30
Source: Department of Education, Annual Reports; 1983-84 Budget Papers. ·
The maximum allowance, the level of adjusted family income at which it is payable (MAFI), and the number of students receiving allowances are given below.
1974 1975 1976 1977
1978 1979 1980 1981 1982 1983 1984
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 13
Secondary Allowance Scheme: Level of Allowances and Students Receiving Assistance at 30 June, 1974 to 1984
Max. Allowance
$
304 450 450 550
550 550 550 660 726 871 1046
Adjusted Family Income $
3100 3500 4300 5100
5800 5800 6200 7440 8482 12248 12983
No. of Students
7278 6796 12369 12983 17632
19400 21709 23552 23578 45976{a )
56oooCa )
(a) 1983 and 1984 figures are .QY 30 June rather than at 30 June. For comparative purposes, the~ 30 June figure for lmf2 was 24335.
Source: Departme.nt of Education, Annual Reports; 1983-84 Budget Papers.
B. Adult Secondary Education Assistance Scheme {ASEAS)
This scheme was introduced in 1975. It provides assistance for mature students undertaking the final year of schooling full-time. Students must be 19 years of age or older and have had a substantial break from secondary schooling. The scheme provided the same benefits as TEAS up to 1982.
Since 1983 the allowances have been different: in 1984 they will be $1990 for students living at home ($1860 in 1983) and $3068 for students who are independent or live away from home ($2867 in 1983). The MAFI and means test remain the same as for TEAS.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
--·----·------
1974-75 1975-76 1976-77 1977-78
1978-79 1979-80 1980-81 1981-82 1982-83 1983-84
Table 14
Expenditure on ASEAS and Students Receiving Assistance, 1974-75 to 1983-84
Expenditure $m 30 June
0.76 1975
3.23 1976
4.60 1977
4.93 1978
4.73 1979
4.14 1980
4.34 1981
4.51 1982
5.42 1983
6.94 1984
Students No.
1021 2071 2115 2233 2149 1799 1719
i768fa ~ 2·475 a 2500
(a) 1983 and 1984 Figures are~ 30 June rather than at 30 June. For comparative purposes, the .2l 30 June figure for 1982 was 1989.
Source: Department of Education, Annual Reports; 1983-84 Budget Papers.
SPECIAL GROUPS
I. Assistance for Aboriginal Education
A~ General
The Department of Education and Youth Affairs and the Department of Aboriginal Affairs share responsibility for Aboriginal education.
The Department of Education and Youth Affairs advises the Department of Aboriginal Affairs on matters relating to the education of Aboriginals within the overall context of that Department's policies and priorities for Aboriginal programs. It consults with the
National Abori gi na l Education Cammi ttee ( NAEC) and pro vi des support for that Committee. It administers nati anal programs of assistance for aboriginal students {the Aboriginal Secondary Grants Scheme, the Aboriginal Study Grants Scheme and the Aboriginal Overseas Study Award
Scheme ) .
The Department of Aboriginal Affairs is responsible for the allocation of Federal funds for Aboriginal education in grants to the States and grants in aid. The bulk of the funds go to State
government education authorities {approx. 70%) since most Aboriginals
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COMMONWEALTH INVOLVEMENT IN EDUCATION
participate in the general school system. The regional offices of the Department of AborigiMl Affairs maintain a continuing liaison with State Education Departments each of wlii ch has senior officers supervising and developing programs of Aboriginal education funded by the Department. Grants in aid are made directly to non-government organisations and institutions. The direct participation of Aboriginals in the planning, conduct and management of all projects is emphasised.
B. National Aboriginal Education Conmittee
In order that Aboriginals should have a voice in educational planning, the Schools Commission in December 1974 formed an Aboriginal Consultative Group chosen by Aboriginals from all over Australia. The Group comprised 17 members nominated by the National Aboriginal Consultative Committee at the request of the Schools Commission.
Following a report of the Aboriginal Consultative Group, the Department of Education, the Department of Aboriginal Affairs and the Schools Commission agreed that a permanent advisory group should be set up. The establishment of the National Aboriginal Education Committee with a wholly Aboriginal membership was announced by the Minister for Edu.cation on 17 March 1977. The Committee has a
full-time Chairman with 18 part-time members selected from Aborigines throughout Austr,llia who nominated for the Committee.
The Committee's functions are:
(1) To be responsibl·~ for providing the Minister and the Department of Education with a reliable expression of informed Aboriginal views on:
the educational needs of Aboriginal people;
appropriate methods of meeting these needs;
the suitability of particular Aboriginal education proposals, as required;
the effectiveness of particular Aboriginal education projects and programs, as required.
(2) To consult with various elements of the Educati on
portfolio, other Australian Government agencies, and educati on authorities in the States and Territories, .::is necessary.
- 41 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
-----------------------------------
(3) To assist the Department of Education and other agencies in monitoring existing programs and in developing new programs and policies.
( 4) To undertake or promote investigations, studies, and projects relevant to these responsibilities.
In 1984 the Government is providing $2m for capital facilities in schools serving predominantly aboriginal communities. The funds are part of the Commonwealth Schools Commission's Capital Grants Program. The Commission is required to consult with a
committee comprising a majority of NAEC members on the disbursement of these funds. ·
C. Aboriginal Secondary Grants Scheme
The scheme was introduced in 1970. It provides a living or boarding allowance, a books and equipment allowance and a small personal allowance paid direct to the student. Supportive care is provided by Education Officers who have regular contact with individual grant holders and, where appropriate, with their families. The grants are
non-competitive and are not subject to a means test.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 15
Aboriginal Secondari Grants Scheme Level of Allowances 2 1973 to 19S( ($) 1974 1975 1976 1977 1978 1979 1980 1981 1982 1983 1984
------·- ----------
Boarding School (p.a.) 975 1170 1260 1450 1600 1600 1600 1760 1760 1954 2090
Private Board (p.w.) 20 20 20 20 22 22 22 24.20 24.20 27 29
Li vi ng Allowance (p.a.) Senior 300 300 300 440 440 440 440 484 484 537 575
Junior 240 240 240 308 308 308 308 338.80 338.30 376 402
Books and Clothing Allowance {p.a.) Senior 200 200 200 300 300 300 300 360 360 400 400
Junior 200 200 200 250 250 250 250 300 300 330 330
Source: Department of Education, Annual Reports; Aboriginal Affairs, Annual Reports. Department of
- 43 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 16
Aboriginal Secondary Grants Scheme : Total Expenditure and Students Receiving Assistance, 1973-74 to 1983-84
1973-74 1974-75 1975-76 1976-77 1977-78 1978-79 1979-80
1980-81 1981-82 1982-83 1983-84
$m
6.09 7.20 8.62 10.00 12.07
12.96 13.96 17.43
19.15 21.63 25.50
1973 1974 1975 1976
1977 1978 1979 1980
1981 1982 1983 1984
No. of Students (at 30 June)
9,070 10,669 11,762 12,469 12,862
13,627 14,543 15,592 17,616
17,356 18,954 20,600
Source: Department of Education, Annual Reports; Department of Aboriginal ·°'ffairs, Annual Reports; 1983-84 Budget Papers.
D. Aboriginal Study Grants Scheme
This scheme was introduced in 1969. It provides grants to persons of Aboriginal descent to undertake full-time or part-time courses of training or study after leaving school. The grants are available on a non-competitive basis. The Scheme pays full-time students a living
allowance, dependants' allowance, and allowances for clothing, books and equipment. For part-time students, a small allowance is paid to help meet expenses.
In 1984 100 awards will also be made available for applicants aged 25 or more undertal<ing tertiary courses in teacher training. The living allowance for these trainees will be $150 p.w. in addition to other allowances under the Scheme.
- 44 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
---
Table 17
Aboriginal Study Grants Scheme : Level of Allowances 2 1974 to 1984 ($ p.w.) Singl e Under 18 Married or Dependant
Over 18 Spouse Allowance
1974 27.00 33.00 - 40.0Q 10.00
1975 32.00 38.50 - 45.00 12.00
1976 32.00 38.50 - 45.00 15.00
1977 45.00 54.50 29.00
1978 47.25 57.27 31.40
1979 47.25 57.27 31.40
1980 47.25 57.27 31.40
1981 51.98 62.98 42.70
1982 51.98 62.98 42.70
1983 58.75 70.75 42.70
1984 63.00 76.00 42.70
Since 1979 an additional $5.25 p.w. has been paid to unmarried students under 25 to compensate for the loss of family allowance.
Source: Department of Education, Annual Reports; 1983-84 Budget Papers.
Table 18
Aboriginal Study Grants Scheme: Total Expenditure and Students Receiving Assistance, 1973-74 to 1983-84
1973-74 1974-75 1975-76 1976-77
1977-78 1978-79 1979-80 1980-81 1981-82 1982-83
1983-84
$m
0.90 1.40 1. 72 2.28 3.58 5.11 7.38 10.11 11.63 13.84
15.99
1973 1974 1975 1976
1977 1978 1979 1980 1981 1982 1983 1984
No. Students
1113 1467 1875 2253 2451 4341 6348 10857 11502 10504
11000 12000
Source: Department of Education, Annual ReRorts; 1983-84 Budget Papers; Department of Aboriginal ffairs, Annual Reports.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
-------------------------E. Overseas Study Grants for Aboriginals This scheme, which commenced in January 1975, offers 10 awards each year to enab 1 e 1 eaders or potential leaders of the Abori gi na l community, who already have considerable experience in their occupational or professional field within Australia, to add to their existing skills and experience through overseas study, observation and discussion. Benefits under the scheme include payment of fares, living allowance, dependants' allowances, equipment and travelling allowances and payment of compulsory fees. Table 19 Expenditure on Overseas Study Grants for Aboriginals, 1975-76 to 1983-84 Source: Budget Papers.
1975-76 1976-77 1977-78 1978-79 1979-80 1980-81 1981-82
1982-83 1983-84
$
53,013 61,097 54,667 93,072 95,782 85,215 132,288
144,433 205,500 (proposed )
- 46 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
II. Assistance for Isolated Children
The question of assistance for children in remote areas had been under consideration for some time before the scheme was announced in February 1973. In September 1972 the issue was referred to the Senate Standing Committee on Education, Science and the Arts, and in the election campaign of the same year the Prime :'tiinister, the Hon. W. McMahon, undertook to introduce an education allowance for isolated
children.
On 13 February 1973 the Government announced details of a program of assistance for parents of chi 1 dren who, because of the geographical isolation of their homes, did not have reasonable access to a government school offering courses of an appropriate 1 evel.
Students who qualify for assistance are those who:
live in a geographically isolated area;
suffer from a disability or handicap which prevents them from living at home and attending school daily;
must live away from home to undertake a remedi31 or special type of course;
are from itinerant families.
The scheme offers. three types of assistance. These are:
a) Boarding A 11 owances - for students who must 1 i ve away from home to ~ttend school .
b) Second Home A 11 owances - to he 1 p towards the cost of maintaining a second home which gives the student daily access to school.
c) Correspondence Allowances - for students living at home and studying by correspondence.
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COMMONWEALTH INVOLVEMENT IN EDUCATION
The maximum level of allowances in recent years has been as follows:
$ p.a.
1983 1984
Boarding Allowances
a) basic 866 927
b} additional (means tested}: senior secondary 1537 1645
junior secondary 1266 1355
primary 1066 1140
Second Home Allowances
a) one child 866 927
b) two children 1598 1710
c) three children 2209 2364
Correseondence Allowances
a) basic 500 500
b} pre-school 120 120
Table 20
Assistance for Isolated Children: Number Receiving Assistancei 1974 to 1982
1974 1975 1976 1977 1978 1979 1980 1981 1982
Boarding Allowance 14270 11528 11059 10880 11949 11350 11210 12214 12204
Correspond- ence Allowance 1986 1207 2016 2401 2892 2892 2895 3207 3248
Second Home Allowance 882 1174 851 908 941 818 794 804 780
Total 17138 13909 13926 14189 15782 15060 14899 16225 16232
--------
- 48 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 21
Assistance for Isolated Children: Expenditure on Program, 1973-74 to 1983-84
$m
1973-74 8.19
1974-75 9.54
1975-76 10.40
1976-77 11.69
1977-78 14.10
1978-79 13.11
1979-80 12.19
1980-81 14.49
1981-82 17.83
1982-83 20.76
1983-84 22.15 (proposed)
Source: Tables 20 and 21 use information from Department of Education, Annual Reports; 1983-84 Budget Papers .
III. Soldiers' Children Education Scheme
This scheme pro vi des living a 11 owances and other benefits for the schooling, tertiary education and training of children of veterans who died as a result of war service or who are either blind or permanently incapacitated. Benefits are generally free of means test although a
student's own earnings may be taken into account.
The scheme is the res pons i bi 1 i ty of the Mini ster for Veterans' Affairs and the Repatriation Cammi ss ion. On the State level, administration is undertaken by Soldiers' Children Education Boards which comprise representatives of various organisations such as Legacy and State education authorities. Members of these boards act
in an honorary capacity.
- 49 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Table 22
Soldiers' Children Education Scheme : Total Ex~enditure and Number of Beneficiaries, 1973-74 to 19 3-84
1973-74 1974-75 1975-76 1976-77
1977-78 1978-79 1979-80 1980-81 1981-82 1982-83 1983-84
Expenditure $m
3.46 3.67 3.55
3.47 3.39 2.94
2.56 2.36 2.25 2.56 2.84 (proposed )
Source: Budget Papers.
IV. Migrant Education
1974 1975 1976
1977 1978 1979 1980 1981 1982 1983 1984
No. of beneficiaries
5952 5327 4678 4068 3348 2770 2308 2045
2190 2384 2500 (est)
Before 1969 the only opportunities available in Australia for migrants to learn English and about Australia were through part-time continuation classes (held mainly in the evening) and basic
correspondence courses. Opportunities for English language and orientation instruction, however, were also available in Europe for persons accepted as migrants and on board ships bringing migrants to Australia. ~esponsibility for the development, management and financial control of the migrant education program rested with the Department of Immigration, with the Commonwealth Office of Education
(after December 1966, the Department of Education and Science ) being responsible for providing professional advice and assisting in the development of methods, materials and courses.
In 1969 full-time intensive language courses were introduced, and in April 1970 the Government announced expanded measures for th~ education of child and adult migrants. The new program was given legislative authority by the Immigration (Education) Act 1971 which came into force in May of that year. The essential features of the
new program were:
development and improvement of facilities for the instruction of adult migrants;
greater provision of full-time intensive courses for better qualified migrants;
speci,11 instruction for mi•]rant children who were experiencing language difficulties i n the schools.
- 50 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
Under the program for child migrant . education the
Commonwealth provided financial assistance to government and non government schools to meet the salary costs of English as a second language (ESL) teachers and the cost of language-laboratory type equipment. Training courses for special teachers and the production
and distribution of learning materials were also provided under the program.
In June 1974 responsibility for the administration of the Immigration (Education) Act 1971-1973 was transferred to the Department of Education.
However, since that time there have been a number of significant changes affecting the Department's responsibilities, namely:
from 1 January 1976 the recurrent costs of the child migrant education program were provided under the Schools Commission's General Recurrent Grants Program rather than under the authority of the Immigration
(Education) Act 1971-73;
from 20 December 1977 the Department of Immigration and Ethnic Affairs assumed responsibility for the Adult Migrant Education Program;
from 1 ,January 1982 the Contingency Program for Refugee Children was transferred to the Commonwealth Schools Commission. This program provides speci ,il assistance to education authorities to enable them to provide
language and orientation programs for newly-arrived refugee children. The program has operated since 1975.
Although the Department no longer administers these programs it maintains the responsibility for policy development and coordination with regard to child migrant education, and provides advice and services to the Department of Immigration and Ethnic Affairs for the Adult Migrant Education Program. It also continues to
be responsi b 1 e for the development and production of teaching and learning materials for migrant education.
Expenditure on migrant education as given in Table 23 below mainly relates to the Adult Migrant Education Program ($42m in 1983- 84). The program provides initial settlement orientation and English training courses for adult migrants and refugees. It also includes
income-tested 1 i vi ng allowances for adults attending full-time ( and part-time 'on arrival') courses.
- 51 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
--- -------·-·--------Table 23 ~xpenditure on Migrant Education, i976-77 to 1983-84 (These figures exclude the programs of the Commonwealth Schools Commi ssion, which are given in Table 4). Source: Budget Papers.
1976-77 1977-78 1978-79 1979-80 1980-81 1981-82 1982-83 1983-84
V. School to Work Transition Program
$m
10.3 14.0 21.4 26.9
33.6 37.8 38.8 44.3 (proposed)
In 1979 the Government decided that it would provide up to $150m during the five years from the beginning of 1980 for a range of
education, training and counselling activities in schools and TAFE institutions. These activities 1>1ere directed particularly towards young people who had left or were likely to leave school early, and were intended to equip them better to move into the work force.
Grants were provided to non-government and government schools and TAFE institutions in the States and Territories for the following purposes:
Expand and develop special transition courses in TAFE colleges, including pre-apprenticeship, pre-vocational, and pre-employment courses;
Expand the number of pl3ces availabl e in the Education Program for Unemployed Youth {EPUY);
Expand school counsellor, vocational education, and guidance services for 'students at risk';
Develop alternative school courses for 'students at risk' •
The Government al so introduced, from 1 February 1981, a transition allowance equivalent to the level of the unemployment benefit plus $6 per week. This is payable to young people aged 15-19 years who have been unemployed and away from full-time education for
at least four months in the last twelve months and who take part in approved full -t ime Commonwealth funded school to work transition
- 52 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
----------
program courses. The same allowance is made available to young people under 25 years who have been unemployed . and away from full-time education for eight of the previous twelve months and who participate in an approved full-time TAFE course of up to twelve months' duration which is likely to lead to employment.
The administration of the transition allowances is t he responsibility of the Commonwealth Employment Service, with fortnightly payments being made to trainees by the Department of Social Security.
In January 1984 the Transition Program (including EPUY) was integrated with the new Participation and Equity Program administered by the Schools Commission and the TAFE Council of CTEC. The 1983-84 expenditure 1 argely represents the balance of funds for the second
half of 1983.
Table 24
Expenditure on School to Work Transition Program, 1979-80 to 1983-84
(Excludes expenditure on living allowances ).
$m
Source: Budget Papers.
1979-80 1980-81 1981-82 1982-83 1983-84
8.2 27.8 34.3 42.0 25.0 (proposed )
EDUCATION IN THE TERRITORIES
I. Northern Territory
Education in the Northern Territory was the responsibility of the South Aust ra 1 i an Government until 1970, when it was announced that this responsibility would be transferred to the Commonwealth. ~ Northern Territory Education Branch was subsequently established within the Department of Education and Science to assume
responsibility for the administration of pre-schools, primary and secondary schools, technical and adult education. Responsibility for
- 53 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
---------------------
education in Aboriginal settlements and mission schools remained with the Welfare Branch of the Northern Territory Administration. However, in 1973 the community school system and· the special schools for Aboriginals were amalgamated into a single education system
administered by the Commonwealth Department of Education.
From 1 July 1979 the Northern Territory Government assumed responsibility for education in the Territory. The Commonwealth now provides assistance on the same basis as that received by the States.
II. Australian Capital Territory
A. Schools
From 1913 the NSW Department of Education staffed schools in the ACT, In July 1972 the Minister for Education and Science announced that the Commonwealth would assume responsibility for staffing ACT schools and that a Statutory Authority would be es tabli s hed to administer
government schools and pre-schools.
In March 1973 the Minister for Education announced that a Departmental working paper on the form, operations and
responsibilities of the new Authority would be released. Comment and submissions on the paper would be assessed by a panel which would report to the Minister. Many of the subsequent report's
recommendations were explicitly accepted when the Government announced the establishment of a statutory authority, with an interim council, to contribute to the planning and development of the permanent body.
The Interim ACT Schools Authority met first in October 1973 and from 1974 became directly involved in the administration of ACT schools. From 1 January 1977 the Interim Authority was replaced by the ACT Schools Authority set up under the Schools P.uthority Ordinance. The function of the Authority is to establish and conduct, on · behalf of the Commonwealth, pre-schools, primary schools, high
schools and secondary colleges in the ACT, and to perform such other educational services as the Minister approves or directs.
B. TAFE
Prior to September 1975 technical education in the .!\CT was administered jointly by the Commonwealth Department of Education and the NSW Department of Technical Education. Resulting from proposals submitted to the Government by a Committee of Inquiry into TAFE in the ACT, an Interim TAFE Authority was established in September 1975 to
plan, co-ordinate and administer TAFE in the ACT. The operations of the Interim Authority ended on 31 December 1976, and in 1977 a new
- 54 -
COMMONWEALTH INVOLVEMENT IN EDUCATION
--------------- -----------·---- -------
system was established. TAFE in the ACT became the responsibility of a newly created ACT Further Education Branc.h within the Department of Education. In 1979 the Office of ACT Further Education was created. The Office is responsible for the three TAFE colleges (Canberra, Bruce
and Woden) and for the Canberra School of Music and Canberra School of Art, the operation of the apprenticeship system and the provision of adult migrant education.
TAFE
1977-78 17.7 1978-79 19.3 1979-80 24.8 1980-81 25.8 1981-82 24.8 1982-83 30.0
1983-84 30.0 (est)
Table 25
Expenditure on Schools and TAFE in the A.C.T., 1977-78 to 1983-84 $m
Schools and Pre-Schools Govt. Non- School Total
Govt. Transport
75.4 12.0 1.9 89.2
77 .8 12.9 2.1 92.7
77 .1 14.4 2.1 93.7
85.7 17.2 2.6 105.6
95.1 17.9 3.6 116.6
113.4 24.3 4.1 141.8
117 .6 25.9 4.4 148.0
Source: Budget Papers.
2 May 1984
Dr. K.B. Jackson, Education and Welfare Group LEGISLATIVE RESEARCH SERVICE