30 Years on from Kangan: An Analysis of the Current Policy Position of TAFE Queensland GREG MCMILLAN A/Dip Bus (Retail), B Bus (Acc), Grad Dip (FET), MPET Being a dissertation for the degree of Doctor of Education within the School of Learning and Professional Studies, Faculty of Education, Queensland University of Technology August 2007 KEY WORDS FOR CATALOGUING Australia, policy, vocational education and training, TAFE, social service and economic utility roles, globalisation, economic rationalism, managerialism, human capital theory, case study, content analysis, constant comparative method i ii 30 Years on From Kangan: An analysis of the current policy position of TAFE Queensland ABSTRACT Within Australia, Vocational Education and Training (VET) encompasses the Technical and Further Education (TAFE) sector, private providers, community education and training, and work-based training Additionally, some VET activities are embedded within the secondary school and university sectors As the major provider of Government-funded vocational education and training, TAFE has undergone significant change since its establishment in the 1970’s Historically, TAFE has provided broader education and social opportunities for individuals beyond a narrower focus on the achievement of training outcomes for economic benefits However, shifts in policy direction in 1980’s and 1990’s have seen the delineation between broader education and economic outcomes becoming less distinct While this is perhaps true of all education sectors, it has potentially impacted more on TAFE than any other sector This thesis investigated these impacts within the context of TAFE’s social service and economic utility roles This was undertaken by analysing seven seminal Commonwealth and Queensland documents and by analysing the findings of interviews with six senior executives within Queensland’s Department of Employment and Training and TAFE The key findings of this thesis indicate that TAFE Queensland continues to perform a number of functions or activities that can be associated with a social service role However, the findings also indicate that, for TAFE Queensland, there has been a shift towards an economic utility role Since the Kangan Report (1974), TAFE’s role has become more focussed on meeting Queensland’s economic and industry needs within a broad view that Australia needs a flexible workforce, qualified to industry standards of competence and able to compete in a globalised world iii iv TABLE OF CONTENTS: KEY WORDS FOR CATALOGUING i ABSTRACT iii TABLE OF CONTENTS: v LIST OF TABLES ix LIST OF FIGURES ix LIST OF APPENDICES ix LIST OF ACRONYMS x STATEMENT OF ORIGINAL AUTHORSHIP xi CHAPTER ONE: CONTEXT OF THE STUDY 1.1 BACKGROUND TO THE RESEARCH 1.2 RESEARCH QUESTIONS 1.3 JUSTIFICATION FOR THE RESEARCH: 1.3.1 Importance of the area 1.3.2 Practitioner Research 1.3.3 Significant Research and Study Relevant to this Thesis 1.3.4 Gaps within Existing Research 10 1.4 POLICY: DEFINITION 11 1.5 CONCEPTUAL FRAMEWORK AND METHODOLOGY 12 1.6 OUTLINE OF THE THESIS 12 1.7 CHAPTER SUMMARY 13 CHAPTER TWO: LITERATURE REVIEW 15 2.1 EDUCATIONAL CONTEXT FOR UNDERSTANDING TAFE IN AUSTRALIA 15 2.1.1 An Overview of the Australian Education System 15 2.1.2 The General Role and Purpose of Education 17 2.1.3 The Role and Purpose of Technical and Further Education 18 2.2 THEORETICAL PERSPECTIVES IMPACTING ON EDUCATION POLICY IN AUSTRALIA 21 2.2.1 Globalisation and the influences of Liberalism 21 2.2.2 Economic Rationalism and Education Policy 22 2.2.3 Human Capital Theory 25 2.2.4 Corporate Managerialism 27 2.2.5 Summary 28 2.3 THE VET MARKET AND THE MARKETISATION OF TAFE 29 v 2.3.1 The Development of a VET market 29 2.3.2 TAFE and VET 33 2.3.3 VET and TAFE’s Role from a Policy Perspective 34 2.3.4 VET and TAFE’s Role from a Research Perspective 35 2.3.5 Funding of VET and TAFE 37 2.3.6 Summary 37 2.4 KEY REPORTS AND MILESTONESS IMPACTING ON TAFE IN AUSTRALIA 38 2.4.1 The Kangan Era 38 2.4.2 TAFE in the 1980’s and 1990’s 41 2.4.3 TAFE in the Early 21st Century 44 2.4.4 TAFE Queensland 45 2.4.5 Summary 48 2.5 A SOCIAL SERVICE AND ECONOMIC UTILITY ROLE OF TAFE 49 2.5.1 Introduction 49 2.5.2 TAFE’s Role from a Social Service Perspective 51 2.5.3 TAFE’s Role from an Economic Utility Perspective 53 2.5.4 Tensions between a Social Service and Economic Utility Perspective55 2.6 CHAPTER SUMMARY 57 CHAPTER THREE: A CONCEPTUAL FRAMEWORK 61 3.1 JUSTIFICATION OF THE CONCEPTUAL FRAMEWORK 61 3.2 THE CONCEPTUAL FRAMEWORK 63 3.2.1 Key Influences that Impact on the Conceptual Framework 63 3.2.2 A Continuum View of a Social Service and Economic Utility Role 65 3.2.3 The Conceptual Framework 66 3.3 PRESENTING A POLICY POSITION: A MODEL 69 3.4 CHAPTER SUMMARY 72 CHAPTER 4: RESEARCH DESIGN 73 4.1 THEORETICAL PERSPECTIVE FOR THE STUDY 73 4.2 THE RESEARCH STRATEGY – A CASE STUDY 75 4.3 DATA COLLECTION 76 4.3.1 Policy Documents 76 4.3.2 Interview Participants 78 4.4 DATA ANALYSIS 83 4.4.1 Policy Documents 83 vi 4.4.2 Interviews 86 4.4.3 Relationship of Data to the Research Questions 88 4.5 TRUSTWORTHINESS AND CREDIBILITY 90 4.6 THE RESEARCHER AND RESEARCHER BIAS 92 4.7 ETHICAL CONSIDERATIONS 93 4.8 LIMITATIONS 94 4.9 CHAPTER SUMMARY 94 CHAPTER 5: FINDINGS - A Policy Position 95 5.1 INTRODUCTION: 95 5.2 POLICY DOCUMENT ANALYSIS: DETERMINING A POLICY POSITION 96 5.2.1 National Policy Documents 97 5.2.2 State Policy Documents 107 5.2.3 Summary and Discussion on all Policy Documents 119 5.3 INTERVIEW ANALYSIS: DETERMINING A POLICY POSITION 123 5.3.1 Introduction 123 5.3.2 Interview Findings 125 5.3.3 Summary and Discussion of Interviews 135 5.4 CHAPTER SUMMARY 137 CHAPTER 6: FINDINGS - A Policy Emphasis 139 6.1 INTRODUCTION 139 6.2 A LACK OF CLARITY OF TAFE QUEENSLAND POLICY 139 6.2.1 Policy: A Framework or an Explicit Position: 139 6.2.2 Policy Gaps 141 6.2.3 TAFE as a Public Provider 142 6.2.4 Individual Institutes or a TAFE Sector 144 6.2.5 TAFE as a Policy Arm of Government 146 6.2.6 Summary 148 6.3 ROLE OF TAFE QUEENSLAND INSTITUTE DIRECTORS 148 6.3.1 Policy Developers, Influencers or Implementers 149 6.3.2 Institute Director or Senior Bureaucrats 150 6.3.3 Political Influences 151 6.3.4 Summary 152 6.4 FOCUS ON KEY PERFORMANCE MEASURES (KPIs) 153 6.5 CHAPTER SUMMARY 155 vii CHAPTER 7: DISCUSSION AND ISSUES CHAPTER 157 7.1 INTRODUCTION 157 7.2 THEORETICAL PERSPECTIVES INFLUENCING POLICY: 158 7.2.1 A Social Service Emphasis 158 7.2.2 An Economic Utility Emphasis 161 7.2.3 Balancing Two Apparently Dichotomous views 165 7.3 INFLUENCES ON A SOCIAL OR ECONOMIC EMPHASIS 170 7.3.1 A Lack of Clarity of TAFE Queensland Policy 171 7.3.2 The Role of TAFE Queensland Institute Directors: 174 7.3.3 Focus on Key Performance Measure 176 7.3.4 Summary: 178 7.4 RELATED ISSUES 178 7.4.1 The Politicising of the Australian VET System 179 7.4.2 VET-TAFE Reforms: integrating or disengaging social and economic goals? 182 7.4.3 Is there a Role for a Public Provider TAFE Sector in the Future? 186 7.4.4 The Limitations of VET research 190 7.5 SUMMARY 192 CHAPTER 8: SUMMARY AND CONCLUSIONS 195 8.1 INTRODUCTION 195 8.2 THE STUDY 195 8.2.1 The Purpose and Significance of the Study 195 8.2.2 The Literature Review 196 8.2.3 The Conceptual Framework and Methodology 196 8.2.4 Findings 197 8.2.4 Emerging Issues 198 8.3 IMPLICATIONS FOR THEORY 199 8.4 IMPLICATIONS FOR POLICY 202 8.5 IMPLICATIONS FOR PRACTICE 203 8.6 LIMITATIONS 204 8.7 RECOMMENDATIONS FOR FURTHER RESEARCH 204 8.8 CONCLUSION 205 REFERENCES 224 viii LIST OF TABLES Table 1: Features and Access Implications of Two Views of TAFE 50 Table 2: Social Service and Economic Utility Conceptual Framework 68 Table 3: Example of the alignment of ‘intent’ in the Data Collection Table 85 LIST OF FIGURES Figure 1: Key Influences on a Social Service and Economic Utility Role 64 Figure 2: Continuum View of Social Service and Economic Utility 65 Figure 3: A Model for Visually Presenting a Policy 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