How the national education and training policy can improve equity and equal opportunity for women. Jane Carnegie, Industrial Officer, ACTU.

Introduction

The place of education and training has become recognised as a critical factor, at both macro and micro levels, in the process of structural adjustment and economic development.

 

At the macro level, policies have been set in place to develop an education and training system which will substantially improve the skill and competency base of our labour force. This is seen as essential for Australia’s future economic development and improved international competitiveness. Substantial changes are occurring particularly at the post compulsory levels of schooling and in vocational education and training through what is commonly referred to as the Training Reform Agenda.

 

At the micro level, the industry and enterprise level, these broad policies provide a framework for specific training strategies.

 

Many companies already see training as a core activity and an integral component of their HRM and IR policies. Others have not been so forward looking.

 

For all workplaces the significance attached to training needs to be further developed and developed in a way which will maximise the benefits for all parties.

Why Is Education And Training And Essential Aspect Of EEO And Equity – Policy ?

Today I want to speak to you about an important aspect of training reform. I want to talk about how education and training can be used as a vehicle for improving equity and equal opportunity for women in the labour force.

 

The link between labour force status and educational attainment is well documented. On almost any criterion both men and women who have achieved a post school qualification will do better than those with none and those with a higher level qualification such as a degree, will do better than those with other forms of credentials.

 

For females, the relationship is even more marked. Female participation rates in the labour force are nearly twice as high for those with higher education qualifications compared with female participation rates for those who never finished school (83.1% compared with 47.2%) (ABS February 1992).

 

Women with post school qualifications are more likely to work full time than those who left school early and again the correlation is strongest for those with degrees. In other words 74% of women with a degree work fulltime compared with 56% who did not finish school.

 

The correlation with earnings is also well understood. Women who have achieved a higher educational attainment earn substantially more, on average, than their counterparts who failed to go on to further education.

 

Education significantly impacts upon chances of gaining employment, maintaining employment and career progression.

Improving Gender Equity In The Education And Training System

In the last decade there have been substantial improvements in the position of females across the three sectors of education – schools, vocational and higher education.

 

For example, retention rates to year 12 for girls have doubled from just on 40% in 1981/1982 to 82% in 1992.

 

In higher education women now constitute a majority of all students increasing from 46% in 1982 to 53% in 1992.

 

(All figures quoted from Successes and Challenges – Women in Employment and Training AGPS 1993).

 

Women enrolled in TAFE courses have also increased substantially, by 18% over the period 1984-1991.

 

Of course, hidden within these figures is the fact that our education and training systems mirror the relative status and position of women in the labour market.

 

Gender segregation has not significantly altered over the last 20 years and the level and type of education and training that women receive reflects their relatively weak position in most industries and occupations.

 

It is precisely where women predominate – community services, wholesale/ retail finance/property and recreational. personal and other – that formal/recognised and structured training is weakest.

 

These characteristics of both the labour and training market are, I’m sure, well known to all of you. It is a vicious circle – the industries and occupations where women predominate have no or limited access to structured and accredited training therefore they are deemed less skilled, therefore they warrant less pay.

 

To break this nexus between jobs and gender, a major element of any strategy must be to tackle the gender inequities in our education and training system. This needs to be undertaken at two levels.

 

At one level there is a need to significantly widen the traditional directions and subject choice of girls at school and to extend this broadening of curriculum choice into vocational and higher education. The other is to extend the reach of our vocational education system into all industries and occupations and to improve the level of skill recognition within traditional female areas of work.

Broadening Horizons And Improving Equity

In the brief time available I wanted to alert you to some of the initiatives undertaken by governments and tripartite processes to try and broaden the curriculum choice and improve equity outcomes across the education sectors.

 

At the secondary level a major initiative was launched in 1987. It is The National Policy for Education of Girls in Schools. This policy is a comprehensive national policy dedicated to improving schooling and its consequences for girls. A recent review has led to a 4 year National Plan of Action for implementation through 1993-1997.

 

Specific projects have addressed such areas as mathematics and science, sport, physical activity and self esteem, and special needs groups. A special curriculum project has been established to ensure gender equity in curriculum statements and subject profiles.

 

At the vocational level there are a significant number of developments occurring as a consequence of the training reform agenda which will impact on gender equity. These include the transformation of the system to one based on competency based training, the establishment of targets of achievement for post compulsory education and training (the Finn Targets), the implementation of these through establishment of a new comprehensive entry level training system – the AVCTS and the overhaul of accreditation and recognition arrangements through the introduction of NFROT – the National Framework for the Recognition of Training.

 

I will come back to these developments in more detail a little later on.

 

Direct initiatives have also be taken to improve the gender balance within TAFE systems. Of particular importance is the National Plan of Action for Women in TAFE which was released in 1991.

 

This plan which is being implemented across all state and territory training systems recognised that gender bias permeates the public training system at all levels and that systematic alternative action is needed if women are to have equal access to and participation in TAFE.

 

The National Plan encompasses six objectives. They are:

1) to improve paths of entry for all women into accredited TAFE courses;

2) to improve women’s successful participation in vocational training

3) to improve TAFE learning and physical environment for women

4) to improve support services for women

5) to ensure that women benefit equally from training for industry and award restructuring

6) to increase the participation of women in TAFE decision making

 

The areas targeted for action to meet the six objectives include:

 

 

• increasing accreditation levels of courses undertaken by women

 

 

 

• substantially extending Recognition of Prior Learning (RPL)

 

 

 

• improving articulation arrangements between prevocational and vocational streams and courses

 

 

 

• reviewing selection processes where women are under represented and raising the proportion of women to meet specific targets

 

 

 

• tackling sexual harassment, safety and teacher/trainer awareness

 

 

 

• providing childcare, counselling, and monitoring the impact of fees structures on women

 

 

 

• increasing the number of women in management, decision making and staff development in the system.

 

 

A similar targeted equity strategy has also been developed for higher education. Known as a Fair Chance For All, it provides specific targets for increasing female participation in non-traditional courses. In courses other than engineering the target is set at 40% of total enrolments by 1995 and in engineering it is set at 15%. The strategy also aims to increase numbers of female post graduate students.

 

These specific programs indicate that at every level of education the issue of gender equity has not been left to chance but has been embraced as an essential policy priority.

 

At the secondary level a major initiative was launched in 1987. It is The National Policy for Education of Girls in Schools. This policy is a comprehensive national policy dedicated to improving schooling and its consequences for girls. A recent review has led to 4 year National Plan of Action for implementation through 1993-1997.

 

Specific projects have addressed such areas as mathematics and science, sport, physical activity and self esteem, and special needs groups. A special curriculum project has been established to ensure gender equity in curriculum statements and subject profiles.

 

At the vocational level there are a significant number of developments occurring as a consequence of the training reform agenda which will impact on gender equity. These include the transformation of the system to one based on competency based training, the establishment of targets of achievement for post compulsory education and training (the Finn Targets), the implementation of these through establishment of a new comprehensive entry level training system – the AVCTS and the overhaul of accreditation and recognition arrangements through the introduction of NFROT – the National Framework for the Recognition of Training.

 

I will come back to these development in more details a little later on.

 

Direct initiatives has also be taken to improve the gender balance within TAFE systems. Of particular importance is the National Plan of Action for Women in TAFE which was released in 1991.

 

This plan which is being implemented across all state and territory training systems recognised that gender bias permeates the public training system at all levels and that systematic alternative action is needed if women are to have equal access to and participation in TAFE.

 

The National Plan encompasses six objectives. They are:

 

to improve paths of entry for all women into accredited TAFE courses;

 

However, these strategies alone will not be sufficient. They focus on shifting perceptions about traditional patters of education and training and extending female student/learner choice. Beyond this there is also a need to break down gender bias relating to traditional areas of women’s work and to develop recognised training in these areas.

 

It is at this level that the current developments in the Training Reform Agenda can have a major impact.

 

I would like now to turn to these developments.

 

Underpinning all development in vocational education and training is the shift to an industry driven competency based approach to learning. Two major changes are occurring simultaneously with this development. One is a fundamental change in the learning process, the other is the increased role of industry in defining the requirements of the training to be delivered.

 

Competency based training is an approach to learning which emphasises what a person can do rather than the processes involved in learning. It focuses on outcomes and is concerned with attainment and demonstration of the competencies to be achieved.

 

Competency based training is an approach to learning which emphasises what a person can do rather than the processes involved in learning. It focuses on outcomes and is concerned with attainment and demonstration of the competencies to be achieved.

 

CBT is built around a system of linked processes. At it’s heart are national industry competency standards upon which curriculum development, accreditation, delivery, assessment and certification will be based.

 

As a learning process CBT has the potential to extend gender equity by: extending training opportunities to women; extending skills definition to traditional areas of women’s work; incorporating RPL as a central element; and creating more flexibility in training time and assessment methodologies.

 

The NTB, which endorses all standards for the purposes of national recognition, has developed a set a guidelines on gender bias in competency standards development.

 

This was seen as necessary because of the potential for competency standards to duplicate and reinforce existing inequalities in skills definition and evaluation.

 

The guidelines emphasise the need to avoid gender bias in the language fo competency standards and through the type of analytical tools used to develop standards. In particular the pervading culture of the industry needs to be recognised and evaluated for gender bias when standards are being developed. The guidelines also emphasise the need to ensure that standards are being developed. The guidelines also emphasise the need to ensure that standards identify the major components of competency and that underpinning knowledge, values and attitudes which are often overlooked in skills definition are incorporated. The gender bias guidelines are currently being extended to encompass a broader policy statement on bias and equity generally. Specific technical guidance material will be produced and attention paid to equity consideration when standards are reviewed to ensure they meet the guidelines.

 

Once the standards have been defined there is a need to ensure curriculum is designed which not only meets the standard but embrace gender considerations.

 

Accreditation is a critical issue because it provides the basis for formal recognition. In many areas where women work, accredited training has simply not been available and women have been either subjected to informal, inhouse, non-recognised training or no training at all. The development of CBT across a whole range of occupations means the opportunity for accredited training will be dramatically increased. Moreover because the training will be based on national standards, such accredited training will be recognised nationally through NFROT (the National Framework for Recognition of Training (NFROT). This means much greater consistency and portability within the system and a major advance in many areas where women predominate.

 

A major aspect of the CBT approach to learning is the incorporation of RPL as a central element of the assessment process. In effect, RPL means that all prior learning, however achieved – whether by formal training, work experience or life experience -–is able to be assessed against the specified competencies. If, the individual is able to demonstrate the competencies ‘she’ will gain credit for that element of the training program she is undertaking. For many women who have learned their skills on the job, RPL means a short circuit to formal recognition and ultimately to substantially reduced training time.

 

There are a number of factors which could inhibit the potential of RPL to breakdown gender inequalities in training. These include:

 

 

• the competence of assessors and their sensitivity to gender/cultural awareness;

 

 

 

• the willingness of an industry to accept ‘life’ as well as ‘work’ experience;

 

 

 

• the capacity of women in industry to make use of RPL processes;

 

 

 

• the potential costs to the individual;

 

 

 

• the level of credit to be provided ie the potential for limitations to be placed on the level of RPL available in a given course.

 

 

These are all elements which are currently the subject of policy consideration.

 

In relation to assessment generally the need for gender awareness is also critical. Assessors who are also workplace supervisors need to be aware of the impact such a power relationship may have on performance and the generally lower levels of confidence women have in relation to the skills they possess. In this aspect some innovative work on self assessment models as a part of the continuous assessment process have been undertaken by NOSFAB (the clerical ITAB)

 

The other major shift I referred to which is occurring is the transfer of responsibility from the training provider to industry for defining and determining training needs. This change also has the potential to benefit women although this will depend to a large extent on how successful women’s industries are in gaining access to the dollars and resources, which have traditionally gone to industries where men predominate.

 

The gender inequities of the traditional system are clearly identifiable from a brief look at current TAFE statistics.

 

For example, in Victoria, men outnumber women by 2:1 in vocationally accredited stream 3000-4000 courses. Only 61.1% of females participate in accredited training courses at TAFE compared with 81% of males. 50% of all student contact hours is delivered to males in stream 3000 courses. In terms of entry level training 86% of apprentices are male. The figures are even worse if hairdressing is removed. By contrast 88.6% of traineeships are taken up by young women yet traineeships only account for 5% of formal training arrangements for 15/19 year olds.

 

These figures address only institutional inequities. The situation is compounded when the differing approaches to internal workplace training is examined with the most female dominated industries receiving no structured and recognised training. Barbara Pocock has raised the issue of the inequalities of house training and in this respect it is worth noting that almost half of all training is funded by industry. But to whom is this training being provide?

 

The move to an industry driven training system which encompasses all sectors of industry could significantly alter those figures and dramatically shift resource allocations to non traditional areas

 

The degree to which such a reallocation will occur depends upon how far industries and governments are prepared to address the problem. The central industry training agents are the ITABs. The structure and composition of ITABs will mean that in many areas existing inequities could be reinforced. On the other hand the extension of ITABs to industries and sectors of the workforce which have hitherto been devoid of any training frameworks could mean substantial progress. Eg, clerical, retail, financial, health and community services. A current review into ITABs should take account of the structural problems inherent in the existing ITAB structures.

 

Part of the process of change will occur as a result of introduction of the AVCTs which is currently being piloted both within industries and institutions.

 

The objective of the AVC system is to create a nationally consistent, comprehensive and integrated entry level training system across the workforce.

 

It will operate against the achievement of specified training targets, be based upon NTB endorsed competency standards, emphasise transferable skills and incorporate the Mayer key competencies. The AVC will operate within schools, within vocational education providers and with the workplace.

 

Achievement of the targets is predicated on gender equity.

 

An equity strategy, incorporating access and equity guidelines has been drawn up for the pilot process. This includes the need for the evaluation strategy to contain an equity component and for a number of pilots to embrace equity target groups.

 

At this point it is too early to tell where the AVCT pilots are heading, including equity considerations.

 

For many of you’re here today the changes I have been talking about may seem far removed from your particular needs and interests but I wanted to explain these initiatives to you because I believe they will become increasingly more relevant.

 

At the outset I referred to education and training as a major vehicle for HRM , IR and EEO. The developments occurring at the national level in relation to CBT, AVCTs and industry driven training may not yet have reached your doorstep but it is only a matter of time.

 

From the perspective of improving equal opportunity in your enterprise access to these training initiatives for all workers must become a priority. This includes those employees who work part-time or casually which, of course, in the vast majority of cases are women. Training and education needs to become an integral aspect of workforce change, career development, improving productivity and structural adjustment.

 

Whatever industry you work in it is likely that national competency standards have either been developed or are in the process of being developed. These standards will have application to your specific enterprise needs and from the perspective of industry portability and national recognition it is essential that your enterprise training reflects these national standards.

 

In this context I want to emphasise the importance of the national perspective to your enterprise. Use of national NTB endorsed standards and nationally accredited and recognised training leads to nationally consistent outcomes which benefit both internal and external labour markets – which benefit company’s needs and the individuals who work in it.

 

In the context of enterprise bargaining training should be seen as a central element of reform. I would emphasise the need to work with unions in developing skills profiles and training needs for your enterprise and to examine these needs from the perspective of job redesign and restructuring – thus maximising flexibility, productivity and skills enhancement for this individual.

 

Finally, there is a need to integrate these training aspects of EEO Policy and link them with other measures such as provision for family responsibilities.

 

I hope the points I have made shed some light on changes and strategies occurring in the education and training sector to improve women’s access to participation in education provision.

 

Thank you

 

Postscript. This speech was delivered the day before Ministers of Education and Training met in Perth and decided to withdraw from a range of national policy objectives and processes. At this time the implications of their decisions for the national reform process remain unclear.

 

Jane Carnegie, Industrial Officer, ACTU. Speech to the Women, Management and Industrial Relations Conference. Sydney 30 June – 1 July 1993.