Education Policy Outlook 2018

Australia

Context

In the 2015 Programme for International Student Assessment (PISA), Australia scored higher than the OECD average in science, with a mean score of 510 points, compared to the OECD average of 493 points. Performance in science declined across PISA cycles between 2006 and 2015, with an average three-year change of -5.7 score points. Performance in reading and mathematics has also declined across PISA cycles. Socio‑economic status had lower-than-average impact on science performance in PISA 2015, explaining 11.7% of the variance in performance (OECD average: 12.9%). The impact of economic, social and cultural status (ESCS) on performance in science has not changed since 2006. There was no significant gender difference in science performance in PISA 2015. Immigrant students make up 25% of the student population of 15-year-olds in Australia, a proportion which is among the highest in the OECD (OECD average: 12.5%). Unlike in many OECD countries, in PISA 2015, there was no significant performance gap between immigrant and non-immigrant students in science, with a score difference of just -5 points.

Enrolment of 3‑year‑olds in early childhood education and care (ECEC) was 68.4%, (OECD average: 77.8%). However, participation rates in pre-primary education at age 4 have risen from 53% in 2005 to 90% in 2015. This was 3 percentage points above the OECD average of 87%, representing the fourth-highest increase in the OECD. Preschool programmes are delivered in education institutions or long-day-care settings. Children typically begin preschool education at around age 4 and attend a one-year programme. A national set of standards and a framework are in place to monitor education and care for children aged 0-5. Both education-only and integrated education and care pre-primary programmes exist nationally. Compulsory education in Australia begins at around age 5 or 6 (with minor variations between the states and territories) and ends at age 17, longer than the typical duration across the OECD. Students are first tracked into different educational pathways at age 16, later than the OECD average of age 14. Students who complete high school can advance to senior high school or college, or vocational education and training (VET). However, upper secondary education is not compulsory in Australia. The two upper secondary programmes lead to two different certificates, one for senior high school and the other for vocational courses. Completion of vocational education only allows access to a professional vocational course, while completion of senior high school allows access to both professional vocational courses and university.

VET is provided at the general secondary and tertiary levels in Australia, through work‑study programmes, Technical and Further Education institutes and private Registered Training Organisations. In the OECD Survey of Adult Skills in 2012 and 2015, adult literacy scores in Australia were among the highest in the OECD, at 280 points, compared to the OECD average of 268 points. The gap in literacy skills between older adults (age 55-65) and younger adults (age 25-34) was lower than the OECD average. The proportion of the population aged 25-64 with lower secondary education as the highest level of attainment in Australia was close to the OECD average, at 15% in 2016, compared to the OECD average of 14.3%. NEET rates (the proportion of those aged 18-24 that was neither employed nor in education or training) was lower than the OECD average, at 10.9%, compared to the OECD average of 15.3%. The percentage of the population aged 25-34 with a tertiary-level qualification is among the highest in the OECD, at 49.3% in 2016, compared to the OECD average of 43.1%.

Figure 7.1. Selected indicators compared with the average: Australia

Note: For each indicator, the absolute performance is standardised (normalised) using a normative score ranging from 0 to 220, where 100 was set at the average, taking into account all OECD countries with available data in each case.

Sources: OECD (2016), PISA 2015 Results (Volume I): Excellence and Equity in Education, PISA, OECD Publishing, Paris, http://dx.doi.org/10.1787/9789264266490-en; OECD (2016), Skills Matter: Further Results from the Survey of Adult Skills, OECD Publishing, Paris, http://dx.doi.org/10.1787/9789264258051-en; OECD (2017), Education at a Glance 2017: OECD Indicators, OECD Publishing, Paris, http://dx.doi.org/10.1787/eag-2017-en.

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Evolution of key education policy priorities

Table 7.1. Evolution of key education policy priorities, Australia (2008-17)

Identified by	Equity and quality	Preparing students for the future
Selected OECD country-based work, 2008-171	The OECD identified the need to improve ECEC to help parents combine work and family life [2017].	The OECD found that apprenticeships were rigid and seemed to depend on duration rather than competence, and that skills forecasting caused difficulties in the education system. [2008] The OECD also identified the need to improve competition, access and choice in higher education, especially for students from disadvantaged backgrounds [2014].
Evolution of responses to EPO Surveys, 2013 and 2016‑17	Australia previously stated that challenges remained in reducing inequities, which persisted as of 2016. Australia reported more recent efforts to ensure that more financial support is targeted to the families who need it most to access child care [2013; 2016-17].	Australia had reported the need to improve access to higher education for students with low socio-economic status, as well as Aboriginal and Torres Strait Islanders’, and to support them once they have entered university. In 2016, granting equal access for all students remained a challenge. In addition, the participation rate in higher education of students with a disadvantaged background has been increasing in recent years [2013; 2016-17]. Australia also identified a persistent skills mismatch, as it encounters difficulties in setting incentives to obtain skills that are needed in the labour market [2013; 2016-17].

1. See Annex A, Table A A.3 for the list of OECD publications consulted for this snapshot.

Selected education policy responses

Australia’s series of National Partnership (NP) Agreements on Universal Access to Early Childhood Education (2008-19) began in 2008, following a joint Commonwealth, State and Territory action in Australia to improve early childhood education programmes and care services. This series of agreements was also put in place to ensure that all children have access to quality early childhood education programmes for 15 hours per week (for a total of 600 hours) during the year before they attend primary school. Since 2013, the NP Agreements have focused on participation of disadvantaged children in ECEC, as well as providing programmes delivered by qualified early childhood teachers (Australian Government Council on Federal Financial Relations, 2016).

• Progress or impact: By 2016, all jurisdictions in Australia had exceeded the benchmark of 95% of children enrolled in quality early childhood education programmes. A majority of districts also exceeded this benchmark for the enrolment of Indigenous children. Nationally, 93% of the children enrolled in a preschool programme were enrolled for 600 hours or more. Although one in ten children participating in quality early childhood education were still not enrolled for 600 hours or more, this figure represented a significant overall increase compared to 2008, when only 12% of children were enrolled for the same number of hours (Australian Government Department of Education and Training, 2015).

Since 2007, the National Indigenous Reform Agreement, also known as Close the Gap, in Queensland (Australia) has aimed to reduce the gap between Indigenous and non-Indigenous students achieving Year 12 Certification (Australian Government Department of the Prime Minister and Cabinet, 2017). Measures were taken at the central, regional and local level. The central office’s Department of Education provided each region with disaggregated data to quantify the number of Indigenous students needed to fill the gap. This helped regions to visualise the objectives. Other measures included raising awareness of the importance of change among school leaders and regional staff, through workshops and leadership sessions. In addition, Queensland’s educational regions provided support to schools (for example, by appointing coaches for the Queensland Certificate of Education), and schools set up multidisciplinary case-management teams to aid students (Button et al., 2016).

• Progress or impact: The government reports that between 2006 and 2015, the proportion of Indigenous 20‑24 year-olds with Year 12 or equivalent attainment increased from 45.4% to 61.5%. Improvements were also identified in the retention rate of Aboriginal and Torres Strait Islander students in high school in Queensland. In 2015, almost 60% of Indigenous students stayed in school until Year 12. Improvements were also identified for preschool enrolment, which had increased to 87% for Aboriginal and Torres Strait Islander children by 2015 (Australian Government Department of the Prime Minister and Cabinet, 2017). The number of Indigenous students with a Year 12 Certification increased from 42.1% in 2008 to 97% by 2016 (QCAA, 2017). The success of the programme to reduce the gap can be attributed to the alignment across schools, regional offices and central office; a clear line of sight to individual schools and students; and intensive case management (Button et al., 2016).

The Australian Government’s National Disability Coordination Officer (NDCO, 2008) Programme assists people with disability to access and participate in tertiary education and subsequent employment, through a national network of NDCOs (Australian Government Department of Education and Training, 2017a). In response to a 2011 evaluation, the programme was reformed to take a more strategic approach to service provision, rather than focusing on individualised services. A travel and accommodation subsidy was also introduced for NDCOs operating in non-metropolitan areas.

• Progress or impact: An evaluation found that the programme was consistent with government policy with respect to people with disability and addressed critical needs that warrant ongoing support. A second evaluation, published in 2017, examined the policy rationale for the programme and its operation to date, and made recommendations for the future of the programme (including its appropriateness, effectiveness, efficiency and intersection with other government policies and programmes). The overall NDCO objectives were considered to be fulfilled in 2013 to 2016 in terms of stronger engagement between education and employment stakeholders and service providers, as well as better transitions for people with disability from school/community to tertiary education and subsequent employment. While the improvement in educational and employment outcomes since 2013 cannot be ascribed directly to the programme, local stakeholders assert that the programme remained the best way to facilitate the activities (ACIL Allen Consulting, 2017a).

In Australia, the Higher Education Participation and Partnerships Programme (HEPPP, 2010) aims to ensure that Australians from low socio-economic backgrounds who have the ability to study at university have the opportunity to do so. Through its Participation and Partnerships components, HEPPP provides funding to assist universities to undertake activities and implement strategies that improve access to undergraduate courses for people from low socio-economic backgrounds, as well as improving the retention and completion rates of those students. Partnerships are created with primary and secondary schools, VET institutions, universities and other stakeholders to raise the aspirations and build the capacity of disadvantaged students to participate in higher education. Funding for these two components is provided to universities based on the number of enrolled students from low socio-economic backgrounds. The third component, the National Priorities Pool, funds projects that target and support building an evidence base for future equity policies, testing new equity interventions at the national and institutional levels, and improving implementation of HEPPP at these levels (Australian Government Department of Education and Training, 2017a; Australian Government Department of Education and Training, 2018).

• Progress or impact: A 2016 evaluation found that HEPPP is positively influencing the quantity and rigour of higher education equity activities and policies overall. It concluded that HEPPP has provided wide-ranging support to a large number of students and institutions between 2010 and 2015. Some 2 679 projects were implemented at the 37 eligible universities. Over 310 000 students have participated in HEPPP projects, with additional students supported in schools and other institutions. At least 2 913 partner organisations participated in HEPPP outreach activities, (ACIL Allen Consulting, 2017b).

Australia’s National Partnership Agreement on Skills Reform (NP, 2012-17) aimed to improve access to training and participation in the labour market (ACIL Allen Consulting, 2015). The NP outlined the targets and structures of intergovernmental VET funding and reform from 2012-13 to 2016-17 (ACIL Allen Consulting, 2015). Under the NP, all jurisdictions were required to provide access to training subsidised by the government at Australian Qualifications Framework level 3 to unqualified working Australians of any age. All jurisdictions were also required to support the expansion of the Commonwealth’s income-contingent loan policy, which helps to reduce tuition costs. The Australian Government provided funding to state and territory government training systems through funding associated with this agreement. The NP expired in June 2017, and discussions are underway with the states and territories on a new National Partnership Agreement for the Skilling Australians Fund (Australian Government Department of Education and Training, 2017c).

• Progress or impact: Performance reporting on the NP states that it was on track in 2016 (PM&C, 2017). The 2015 Review of the NP identified results, such as increased accessibility and choice, compared to the baseline years of 2008-09, while course numbers declined (the improvements seem partly due to the establishment of entitlements in every state and territory). Positive developments were also identified in transparency actions, although it was found that further data has to be collected in future to achieve significant advantages. At the same time, some difficulties were encountered in assuring quality, as the number of training sessions increased. In regard to VET training outcomes, the national target of 375 000 completions was already surpassed in 2013. Recommendations for reforms in training systems include implementation based on industry and student demand (ACIL Allen Consulting, 2015).

Additional education policies of potential interest to other countries

• The Australian Government is funding the expansion of The Smith Family’s Learning for Life Program from 2016-17 to 2019-20, to support disadvantaged students to achieve improved educational outcomes. In addition to the around 32 000 students the Program has already supported with this expansion, it aims to support another 24 000 disadvantaged students and their families in some 90 communities. The services provided include financial, practical and emotional support from the early years of learning through to Year 12 (or equivalent) and through transition from school to work or to further education and training.

• The Indigenous Student Success Program (ISSP, 2017) provides funding to universities to offer scholarships, tutorial assistance, mentoring and other personal support. Funding is based on enrolment, unit success rates and course completion of Indigenous students. The Program provides an extra loading for Indigenous students from regional and remote areas. It replaced the Indigenous Commonwealth Scholarships Program, the tutorial assistance offered under the Indigenous Advancement Strategy, and the Indigenous Support Program.

Australia has implemented several recent policies to strengthen science, technology, engineering, and mathematics (STEM) in early learning and schools. The Restoring the Focus on STEM measure (2014-15 to 2017-18) aims to increase student numbers in STEM subjects in primary and secondary schools. Pathways in Technology (P-TECH) focuses on education-industry collaboration to support the transition of young people from school to work and is part of a broader plan (2015-16 to 2020-21) to help them develop skills for jobs of the future. The Inspiring all Australians in Digital Literacy and STEM measure under the National Innovation and Science Agenda (2016-17 to 2019-20) aims to improve STEM teaching and learning. Finally, the National STEM School Education Strategy 2016-26 aims to strengthen students’ foundations in STEM, inspire them to take on more challenging STEM subjects, and sharpen the focus on areas where national and collaborative action can deliver STEM improvements. Australia’s government also defined completion objectives for VET and ways to strengthen apprenticeships to develop the skills of students from socio-economically disadvantaged backgrounds, through The Smith Family’s Learning for Life Program (2016-17 to 2019-20).

• The 2014 Preparing Secondary Students for Work framework updated the New Framework for Vocational Education in Schools (2001), with the goal of ensuring that vocational learning and VET delivered to secondary students reflects modern schools and workplaces. It focuses on four components (clarity, collaboration, confidence and core systems) to help all students have access to quality vocational learning and VET integrated into secondary schooling and ensure that students can gain an understanding of the world of work.

• To promote internationalisation at the tertiary level and increase collaboration in the region, the New Colombo Plan (2013) provides funding for Australian students to study or intern in the Indo-Pacific region.