The Future of Vocational Education in New Zealand: A Critical Analysis
Chand, Nehring,Perera (Sela)
The Future of Vocational Education in New Zealand: A Critical Analysis
December 2023
Prabhat Chand, Gene Nehring, and Vithanage Perera (Sela)
Prabhat Chand serves as a senior lecturer at Unitec Institute of Technology (currently operating as Te Pūkenga trading as Unitec). Since 2002, Prabhat has held diverse academic and leadership positions at Unitec, including roles as Academic Leader and Programme Coordinator in Trades and Applied Technology. His specific focus lies in vocational education and training. Prior to his current position at Unitec, he oversaw vocational education programs delivered by Fiji’s Ministry of Education.
Gene Nehring is a lecturer at Unitec Institute of Technology (currently known as Te Pūkenga trading as Unitec). Gene has been with Unitec since 2020 and is currently the Level 3 Carpentry Programme Co-ordinator. Gene became interested in vocational education and training while working as a commercial pilot and flight instructor in Canada. He has held a variety of positions in the construction industry.
Vithanage Perera (Sela) is a lecturer and senior academic staff member in automotive engineering at Unitec institute of technology (currently Te Pūkenga trading as Unitec). Sela has been at Unitec since 2009, initially as tutorial assistant, lecturer, academic leader and now a programme coordinator. Sela has been interested in vocational education since starting his job at Unitec and had experienced vocational education from multiple perspectives through his diverse roles at Unitec.
Note: Since the preparation of this article, the Minister for Tertiary Education, Penny Simmonds, announced on the 7th of December 2023, via a letter of expectation to Te Pūkenga Chief Executive Peter Winder, that the government intends to disestablish Te Pūkenga. The Unified Funding Model has been identified by Ms Simmonds as a factor contributing to the poor financial performance of the ITPs, and early indications are it will be scrapped. Despite this, the article’s discussion points continue to hold relevance. They serve not only as a documentation of insights gained from the Te Pūkenga experience but also offer valuable perspectives on the elements of Te Pūkenga that should be preserved in any future model of vocational tertiary education. The authors hope the article will assist in guiding the sector’s future direction and prevent the recurrence of past errors.
1. Introduction
In February 2019, then Minister of Education, Chris Hipkins proposed sweeping reforms to the entire vocational education system. The so-called Reform of Vocational Education (RoVE) has since merged the countries 16 polytechnics and 11 industry training organisations into a single entity, Te Pūkenga. The new system is premised on shifting students from the polytechnics to the workplace for training (work-based learning). The intention is vocational tertiary education will be superintended by Workforce Development Councils (WDC) made up of industry representatives. The changes have been met with concern from stakeholders, and many have raised questions about the future viability of vocational education in New Zealand to provide practical knowledge and technical skills for hundreds of trade and industry roles.
2. Key Issues
2.1 The Role of Work-Based Learning (WBL)
A central issue is the increasing emphasis on WBL, a model emphasising workplace learning as the primary mode of vocational education. WBL is discussed in this article in terms of learning that predominantly occurs within a work environment such as apprenticeship type of education and training. Some institutes of technology and polytechnics (ITPs), also offer work-based learning called managed apprenticeship which leads to qualifications that are similar as those offered through Industry Training Organisations (ITOs). Learners in WBL and or apprenticeships type of education and training are generally in full-time employment, learners have the opportunity to earn an income while completing a qualification through part-time study provisions.
As an alternative, Work Integrated Learning (WIL) is predominantly ITPs based education and training in which on job work experiences and supervised practical engagement are part of carefully designed curriculums. Usually, the learners are in full-time study in WIL type of provisions.
Often WIL and WBL terms are interchangeably used, and this is problematic as the two are significantly different in concept, purpose, and implementation.
While WBL has its merits, concerns have been raised about WBL and qualification being pushed to be completed entirely through and on job offering. This has potential to overshadow professional forms of classroom-based learning, particularly in foundation trades education. This could lead to a narrowing of the curriculum and a reduction in students acquiring essential conceptual knowledge and other skills. This enables learners to frame their study and its application for future learning and practice – therefore lifelong learning. In addition, a future focussed vocational education which prepares them to thrive in a career as opposed to a task-based education that will prepare them for only a narrow range of employers and work. The ITPs and their staff are creative, constructive centres of continuing knowledge and skill building, not just convenient locations for practice or drive-throughs for business and industry.
WBL has limitations when it is done without active involvement of ITPs facilities and professional educators for some of the reasons listed below:
· Most of work-based context in New Zealand are small business, they don’t have time, capability, or capacity to train.
· Employers will train only number of people that they need. This system will result in little or no reserve capacity in terms of skilled workers, and the resulting scarcity will result in regular poaching of employees.
· Any training is generally directed on the need-to-know basis as opposed to education and training from a holistic approach.
· Employer may only require a limited range of knowledge and skills to benefit his or her business.
· The lack of uniformity in training and assessment standards, given that majority of firms in New Zealand are small business.
2.2 The Governance of Vocational Education
Establishing the WDCs and Te Pūkenga has raised concerns about the governance of vocational education. The WDCs, with their strong representation of employers, has been criticised for giving undue influence on industry at the expense of other stakeholders, such as educators and learners. Additionally, the lack of transparency in Te Pūkenga’s decision-making processes has raised concerns about accountability and stakeholder engagement. WDC is operating with limited expert guidance and professional support from the educators within the ITPs sectors.
2.3 Unified Funding
The shift of funding away from the ITPs and towards the employer is taking place under the TEC (Tertiary Education Commission) Unified Funding Model. The introduction of this new funding model has been criticised for incentivising WBL programmes at the expense of professional forms of vocational education. This could lead to learners being steered towards WBL options, regardless of their suitability or learning preferences. Real concern has been raised over the actual capability and willingness of employers to be educators, and there is no real evidence provided that employers will have the capacity to educate learners to the level hitherto provided at the polytechnics.
Furthermore, employers have not been sufficiently surveyed about their capability or willingness to educate learners.
2.4 The Role of Private Training Establishments (PTEs)
The increasing involvement of PTEs in vocational education has raised concerns about privatisation of public education. PTEs are often driven by profit motives, which could lead to a focus on short-term skills training at the expense of broader education and development. However, at the very least PTEs are in themselves established institutions of learning, unlike most workplaces which are not. PTEs are focused on gaining quick entry into the workforce rather than developing extensive knowledge for a comprehensive apprenticeship that leads to a more productive society. The uncertainty created by lack of clear direction from RoVE is giving rise to PTEs and some established as part of subsidiaries of former ITOs.
2.5 The Role of Regional Skills Leadership Groups (RSLGs)
The role of RSLGs in identifying skill needs has been questioned due to their limited representation of relevant experts and lack of transparency in decision-making processes. A more scientific and data- driven approach to identifying skill needs is required.
3 Concerns Raised in the Media
3.1 Targeted Training Apprenticeship Fund (TTAF)
A recent Radio New Zealand article linked below highlights many of the concerns raised above.
The main priority of employers is operating their businesses, and not educating students, the situation described in the article is hardly surprising. It reports that one-third of apprentices did not complete any credits towards their qualification last year (2022). In some industries, such as building, there was a particularly high rate of students failing to complete any credits. This is despite employers receiving significant government subsidies to educate their apprentices. This suggests that many employers will be unable to prioritise training and education of students over the main purpose of their business. One of the critical flaws in the current system is the lack of oversight and accountability. Businesses can rort the government's apprenticeship subsidy scheme by signing up apprentices and not providing them with the training and support they need to succeed. This is a significant betrayal of the trust the government and the taxpayers placed in these businesses as a result, apprentices are taking longer to complete their qualifications, which is counterproductive to the government's desire to increase productivity. The government needs to take urgent action to address the parlous state of New Zealand's work- based education. This includes increasing apprenticeship funding, providing more oversight of the apprenticeship subsidy scheme, and reforming the unified funding system. Only then will we be able to ensure that apprentices will have the skills required to succeed in their careers, and New Zealand has a skilled workforce for the future. By addressing these concerns and implementing the recommended measures, New Zealand can ensure that its vocational education system continues providing high-quality, equitable, accessible education and training for all learners.
https://www.rnz.co.nz/national/programmes/morningreport/audio/2018915105/one-third-of- apprentices-completed-no-credits-last-year
3.2 The perils to our universities from the rise of managerialism
There is a very strong parallel in the Polytechnics to the situation described in this article on the rise of managerialism in the universities. Over many years we have experienced a rise in managerialism which often leads to “…excessive bureaucracies that focus on cutting costs and making efficiency gains” (according to the article below). All too often there are no gains in efficiency, but significant loss in quality and productivity.
https://www.thepost.co.nz/a/nz-news/350097483/perils-our-universities-rise-
managerialism#:~:text=Professor%20Gareth%20Jones'%20wrote%20recently,costs%20and%20makin g%20efficiency%20gains
3.3 Te Pūkenga apprentice training 'a disaster' - trades businesses
Plumbers, gasfitters and drainlayers are unhappy with the training of their apprentices have been getting from the Te Pūkenga. This article is referring to the ITOs part of the Te Pūkenga. The quality of the assessments and frequent cancellations of block classes meant some of the apprentices are taking longer to finish their qualifications. One of the ITPs had to pass all their apprentices to the ITOs resulting in similar disasters.
https://www.rnz.co.nz/news/national/500442/te-pukenga-apprentice-training-a-disaster-trades- businesses
3.4 Mega-Polytech’s work-based learning preference sparks trade organisation concerns
Roofing Association of New Zealand chief executive Graham Moor warns Te Pūkenga’ s preference for on-the-job learning risks delivering patchy outcomes and placing unfair burdens on employers. Moor describes work-based learning as a “cheap model” it didn’t suit all students and the quality of teaching they received varied.
https://www.stuff.co.nz/national/education/129712982/megapolytechs-workbased-learning- preference-sparks-trade-organisation-concerns
3.5 Te Pūkenga hopeful work-based funding change will offset other declines in revenue
Te Pūkenga is hoping increased income from work-based learning will more than make up for falling income. The ITO based WBL can be regarded as cheap model as they do not have that many professional educators and educational facilities. This is one of the main reasons why TEC and Te-Pūkenga is trying to promote this type of learning and new unified funding system.
https://www.rnz.co.nz/news/national/488955/te-pukenga-hopeful-work-based-funding-change-will- offset-other-income-drops
4 Summary of Critical Concerns
In summary, key concerns over RoVE include the following:
· The potential for WBL (work-based learning) to dominate the vocational education landscape is to the detriment of ITPs based professional forms of learning.
· The lack of transparency and accountability in the governance of vocational education.
· The potential for unified funding to incentivise WBL at the expense of other forms of vocational education.
· The privatisation of vocational education through the increasing involvement of employers and PTEs.
· The inadequacy of RSLGs (Regional Skills Leadership Groups) in identifying skill needs.
· Many of the firms in New Zealand are small businesses and sometimes only do certain specialist kind of jobs. Learners are unable achieve all the components of the qualification through only on job arrangement. The firms may not have full range and extent of facilities such as emulation/ simulation devices, all tools and equipment necessary to achieve the qualification.
These concerns suggest that New Zealand's vocational education system is headed towards a model that is dominated by WBL and driven by industry needs, with a reduced emphasis on professional forms of learning and academic rigour. Such a system would be privatised and profit-oriented, focusing on short-term skills training at the expense of broader education and development. It will also likely be lacking in transparency and accountability, with limited stakeholder engagement in decision-making processes.
5 Conclusion and Recommendations
It is essential to recognise the significance of maintaining a holistic vocational education
and training system centred around institutes of technology and polytechnics (ITPs). These institutions serve as hubs of expertise with both national and international significance, drawing on resources and expertise to provide high-quality education and training. Furthermore, ITPs have established purpose-built training facilities which include emulation/ simulation teaching aids and the wide range of tools/equipment used in the industry.
The qualifications offered by ITPs are carefully designed through collaboration between
professional educators, industry experts, and many relevant stakeholders. This ensures that the curriculum and programs are not only aligned with current industry requirements but also remain future-oriented and are career focussed. This approach not only benefits individuals by enhancing their employability but also contributes to the overall competitiveness and productivity of the New Zealand workforce.
The ITPs should continue to play a pivotal role in providing technical knowledge and skills for all trades and industry roles. Greater collaboration between industry and education providers is crucial for the success of Work-Based Learning (WBL) programmes and industry training solutions. Education providers bring a wealth of expertise in pedagogy, curriculum development, and understanding of learning styles and needs. They can ensure that the training provided is not only aligned with industry standards but also effectively delivered in a way that meets the educational needs of learners.
The following recommendations are made:
a. Relocate and maintain vocational education in the ITPs as the centre of expertise for national and international significance and resources. Most of the ITPs have been in existence for many years and have created purpose-built training facilities which includes emulation/simulation teaching aids and wide range of tools/equipment used in the industry.
b. Conduct a comprehensive review of the current reforms to assess their impact on vocational education.
c. Ensure that professional forms of classroom-based learning are not marginalised in favour of WBL.
d. Enhance transparency and accountability in the governance of vocational education.
e. Develop a more robust and scientific approach to identifying skill needs and shortages.
f. Implement safeguards to prevent the privatisation of vocational education.
g. Prioritise learners' interests and ensure that vocational education provides them with the skills and knowledge they need to succeed in the workforce.
h. Ensure any government funding for employers to incentivise hiring of apprentices must be justified on student outcomes.
i. Disestablish the WDCs and RSLGs, ensuring that industry specialists within the NZQA have a more direct interface with various industry bodies than the current setup. This approach is preferable to establishing multiple bureaucratic bodies and agencies.
j. Ensure programme unification is staff led. The intention of RoVE to foster greater collaboration across the sector should not be abandoned, however moves to unify qualifications, which most staff support, should be led by the staff and not by centralised bureaucratic appointments.
Before the establishment of Te Pūkenga, excellent models of collaboration and qualification unification already existed. Examples of staff-led collaboration, independent of RoVE (Review of Vocational Education), include programs like the Bachelor of Engineering Technology, the New Zealand Diploma in Engineering, and the New Zealand Certificate in Light Automotive Engineering, among other qualifications in the engineering and trades fields. Staff-led collaboration has been proven to yield consistent learning outcomes nationwide, which employers readily recognize and understand. Simultaneously staff-led collaboration harnesses the benefits of institutional autonomy while enhancing efficiency in workload distribution. Additionally, it has minimized development costs and unnecessary duplication across the sector.