Foundation education programmes and qualifications

At the time of completing this study, a generally accepted understanding of what constitutes a foundation programme or qualification has yet to be achieved. Table 2.11 summarises and explains how foundation programmes and qualifications have been recently defined in New Zealand, while also acknowledging that, in general terms, programme development and design in the ITP sector have been shaped largely by “neo-liberalist discourses” (Govers, 2011a, p. 316).

A distinction between ‘programme’ and ‘qualification’ can be drawn. Ako Aotearoa (2014), describe a qualification as a destination, with a programme being the path that learners use to arrive at that point. As illustrated in Figure 2.4, New Zealand’s

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tertiary education system is based on the concept that a variety of programmes can lead to achieving the same qualification.

Table 2.11

Foundation Programmes and Qualifications in New Zealand: Definitions and Explanation

Definitions Explanation

Foundation Programmes:

The focus of foundation programmes are “to encourage, promote and widen access and successful participation in tertiary education leading to employment or further study, for people who have previously not achieved in the New Zealand education system, or who want a change of direction” (FABENZ, n.d. p.1).

My personal experiences both as an Academic Manager in developing foundation programmes and through participating in forums such as NZABE, ITPNZ Foundation Forum and FABENZ have indicated that the professional educators in the field have the general perception that foundation programmes are not limited to any particular NZQF level or any singular type of learner.

Foundation Programmes:

“Foundation learning programmes are those with an identifiable focus on literacy, numeracy and language. In practice, this means providers will apply the FLQA requirements to those programmes that deliberately address literacy, numeracy and language needs through the inclusion of learning outcomes and programme content in such areas as:

literacy, reading, writing, communication, numeracy, mathematics and English for Speakers of Other Languages (ESOL).” (New Zealand Qualifications Authority, 2007, p. 1). Foundation programmes encompass:

 Introductory, ‘bridging’ vocational programmes (for example horticulture, computing or trades), with specific literacy, numeracy and language learning integrated into the context of other learning;

 Holistic programmes that develop learners’

confidence, work readiness or study skills, which include deliberately planned literacy, numeracy and language learning;

 Focussed or ‘stand-alone’ literacy, numeracy and language programmes; and

 Programmes that target migrant and refugee communities’ resettlement needs and have specific ESOL (English for Speakers of Other Languages) learning. (New Zealand Qualifications Authority, 2007, p. 1)

In 2006, NZQA undertook a project to explore and develop quality assurance requirements specifically for foundation programmes in New Zealand known as Foundation Learning Quality Assurance (FLQA). This initiative did not result in any significant change to the quality assurance of foundation programmes that was different to the overarching quality assurance process for mainstream tertiary education programmes. However, the project did result in the publication of a self-review guide for tertiary providers titled Foundation Learning Quality Assurance Requirements and Provider Self-review Guide (2007).

59 Table 2.11

Foundation Programmes and Qualifications in New Zealand: Definitions and Explanation (continued)

Definitions Explanation

Foundation and Bridging Qualifications:

“‘Foundation qualifications’ are those at levels 1 - 2 which provide a broad base of skills and knowledge for future study or employment, for example, the National Certificate in Employment Skills, Level 1.

‘Bridging qualifications’ are those at levels 3 – 5 which prepare learners for study at diploma or degree level or further training, for example, the Certificate in Tertiary Study Skills, Level 3.” (NZQA, 2014, p.4)

The TROQ mandatory review of foundation and bridging qualifications (Level One to Five) began in early 2014 with the objective of “reducing the duplication and proliferation of qualifications on a national scale, and to design and have registered on the New Zealand Qualifications Framework (NZQF) a suite of foundation and bridging qualifications that are useful, relevant and valuable to current and future learners, education providers and other stakeholders”

(NZQA, 2014, p. 33).

The scope of this mandatory review was limited to the 161 identified qualifications (nine national certificates and 152 local certificates) offered by ITPs, wānanga, secondary schools and PTEs (University qualifications were excluded from the TROQ reviews) which could pathway or lead to further education and training.

The review aimed to include the qualifications listed as general education, career preparation, trade entry, and health care (excluding nurse assistant and enrolled nursing).

This list included the NorthTec generic foundation programmes (Certificate in Academic Studies and Certificate in Foundation Studies) and the Youth Guarantee programme My Start (Certificate in Vocational Studies), but not the specialised foundation qualifications or ESOL qualifications included in this research.

Purpose of NZQF Level One and Two programmes

Ako Aotearoa (2014) established the purpose of NZQA Level One and Two provision in tertiary education as being:

 general preparation (preparing people for general participation in work, further study and life – including whanau, family and community);

 te reo Māori and te ao Māori (developing skills in Māori language and worldview);

 Intensive or tailored literacy and numeracy development;

 English language learning for non-native speakers; and

 occupational preparation (preparing people for specific forms of employment).

(Ako Aotearoa, 2014, p. 11)

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Figure 2.4. The relationship between programmes and qualifications. (Ako Aotearoa, 2014, p. 8)

One of the difficulties for identifying or classifying foundation programmes lies with the New Zealand Standard Classification of Education (NZSCED)⁴⁰. When an ITP submits a foundation-type programme for external approval and accreditation purposes to NZQA and funding approval from TEC, their Academic Board must decide on a single NZSCED designation in terms of the broad, narrow and detailed field classifications for the programme. Perhaps the most logical NZSCED broad field for foundation education falls mainly into the classification of ‘mixed field programmes’ (see Table 2.12). However, the content or curriculum within a single foundation programme may reach across a number of the narrow and detailed fields.

For example, a generic foundation programme may contain elements of LLN, social skills and/or employment skills.

40 NZSCED is a subject-based classification system for courses and qualifications at universities, polytechnics, colleges of education, wānanga and private training establishments in receipt of Government funding. The classification system consists of three levels of detail (broad, narrow and detailed fields) defining each subject or field of study. NZSCED has been designed to improve the quality and consistency of statistics collected by the MoE and other collection agencies in relation to tertiary study, and to improve New Zealand's international statistical reporting compliance. (Retrieved 30 December 2013, from

http://www.educationcounts.govt.nz/data-services/collecting-information/code_sets/new_zealand_standard_classification_of_education_nzsced)

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The NZSCED classifications also work more easily for the more generic foundation programmes than those that specialise on a bridging towards vocational outcomes such as forestry or carpentry, as is the case of NorthTec’s more specialised foundation programmes. For these specialised foundation programmes the single NZSCED classification tends to lie outside of the mixed field programmes. For example, programmes that provide entry and/or foundation skills within the trades area tends to attract a higher category of funding (needed for the physical and material resources required) and it is within the financial and operational interest of an ITP to offer programmes which can achieve higher categories of funding.

EAWG (2012) states that NZQF Level One and Three enrolments in 2009 were concentrated in the Studies in Human Society, Language and Literature, and Office Studies fields of study and that historically, there were large concentrations in Employment Skills and Social Skills programmes, but these have reduced since 2004, being balanced by corresponding growth in the previous three fields.

62 Table 2.12

New Zealand Standard Classification of Education Fields for the Classification of Foundation programmes

12 MIXED FIELD PROGRAMMES

12 01 General Education Programmes 12 01 01 General Primary and

Secondary Education

Courses that prepare individuals in school educational programmes. They include reading and writing, basic mathematics skills, an elementary understanding of subjects such as history, geography, natural science, social science, art and music.

12 01 03 Literacy and Numeracy Programmes

Courses that prepare individuals in the study of basic reading, writing, numeracy and maths skills, including help with spelling.

12 01 05 Learning Skills Programmes

Courses that prepare individuals in the development of skills, such as research and analysis skills, for study projects.

12 01 99 General Education

Programmes not elsewhere classified

Courses that prepare individuals in the theories, methods and techniques of developing, implementing and evaluating other education programmes not elsewhere covered and particularly formal and non-formal learning activities aimed at adults, including the design, delivery and assessment of adult education and training, curriculum development and the assessment of recognition of prior learning.

12 03 Social Skills Programmes 12 03 01 Social and Interpersonal

Skills Programmes

Courses that enhance the abilities of individuals to operate successfully in social interactions. Principal subject areas are likely to include anger management, general legal, social and political rights and responsibilities, knowledge of concepts and sources of negotiation, advocacy and support services, sexuality education, personal management and awareness of drugs and alcohol, understanding of heritage, family/whanau interactions, personal stress and time management, perceptual awareness, social and co-operative skills, self-management, personal care skills.

12 03 03 Life Skills Courses that enhance the abilities of individuals to maintain personal and financial health and well-being.

Principal subject areas that may be covered include: legal, educational, health, social, advisory services and rights, basic problem solving techniques, knowledge of accommodation options and obligations, management of personal health and safety, personal budget, banking, insurance and finance management.

12 03 04 Family/Whanau Education Courses that enhance the abilities of individuals to operate effectively as parents and caregivers. Principal subject matter in such courses may include child development, knowledge of legal rights and

responsibilities of care-givers, understanding of legal rights of children and minors, the New Zealand education system, rights, responsibilities and options in educating children, household budgeting and management, knowledge of parent and caregiver support networks and options.

12 03 99 Social Skills Programmes not elsewhere classified

Courses that prepare or develop further the abilities of individuals in obtaining the skills required to function in a social and community context not classified elsewhere in Narrow Field 1203 Social Skills Programmes.

63 Table 2.12

New Zealand Standard Classification of Education Fields for the Classification of Foundation programmes (continued)

12 05 Employment Skills Programmes 12 05 01 Career Development

Programmes

Courses that assist individuals in planning appropriate mechanisms for developing employment options and advancements. Principal subject areas covered may include career planning, identification of training and employment options, career goals, job expectations, career investigation techniques, skills

identification.

12 05 03 Job Search Skills Programmes

Courses that enhance an individual's employment prospects by developing personal strategies for seeking and gaining employment. Principal subject matter may include curriculum vitae/ resume writing skills, job information sources and negotiation skills, job seeking techniques, job interview and application skills.

12 05 05 Work Practices Programmes

Courses that enhance an individual's ability to function successfully in an employment position. Principal subject areas may include employment rights and responsibilities, workplace behaviour and protocols, time management, workplace language and communication, negotiation skills for employment contracts, union roles in workplace relationships.

12 05 99 Employment Skills Programmes not elsewhere classified

Courses that prepare or develop further the abilities of individuals in the skills required to obtain

employment, and to further career and employment opportunities, not classified elsewhere in Narrow Field 1205 Employment Skills Programmes.

12 99 Other Mixed Field Programmes 12 99 99 Mixed Field Programmes

not elsewhere classified

Courses that prepare or develop further the abilities of individuals in the study of all multiple field programmes not included elsewhere in Broad Field 12, Mixed Field Programmes.

Note: Adapted from http://www.educationcounts.govt.nz/data-services/collecting-information/code_sets/new_zealand_standard_classification_of_education_nzsced)

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Despite definitional and classification challenges, there have been efforts and initiatives undertaken by Government agencies to define (at least in practice) what differentiates a foundation programme from other programmes, such as the Foundation Learning Quality Assurance (FLQA) project (see Table 2.11). This initiative’s definition of foundation programmes can be seen to be in line with an increasing narrowing of the classification of foundation skills to LLN as described in the second TES (2007-2012). Yet, the range of foundation learning programmes (as described by NZQA through the FLQA project), was relatively broad in its scope and did not focus specifically on the NZQF designated level. This broad definitional scope was adopted in this study to identify foundation programmes at NorthTec (see Chapter Four, section 4.6.3)

The focus of the third TES (2010-2015) with regard to foundation learning has centered on improving “LLN skills outcomes from NZQF Levels One to Three study” (MoE, 2010a, p. 13) as well as providing clear pathways to higher programmes. Although, not explicitly stated within the third TES, the implied message to providers was that the Government perceived foundation programmes, at this time, to be only those programmes that incorporated LLN and were at NZQF Levels One to Three.

In 2008, NZQA embarked on the TROQ initiative which involved a review of most New Zealand registered programmes and qualifications from NZQF Level One to Six for usefulness and relevance, excluding qualifications offered by the University sector. The TROQ mandatory review of foundation and bridging qualifications (Level One to Five) is likely to impact on how foundation education is defined through the design and promotion of new national foundation and bridging qualifications.

The review has resulted in a recommendation (supported by the stakeholders surveyed) for the development of four new qualifications with associated graduate profiles. The graduate profiles for the Levels One and Two qualifications include the core capabilities of literacy, numeracy, learning, work, community and cultural, and progression as defined by Ako Aotearoa (2014), see section 2.2.2.3. The proposed qualifications are the New Zealand Certificate in Foundation Skills (Level 1) and

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New Zealand Certificate in Foundation Skills (Level 2) for people who require foundational qualifications and New Zealand Certificate in Study and Career Preparation (Level 3) and New Zealand Certificate in Study and Career Preparation (Level 4) primarily for learners who are preparing to study diplomas or degrees, although some will progress to other training or employment (NZQA, 2014, p. 2).

In designing the qualifications, particularly the graduate profile outcomes, the TROQ needs analysis report contained an expectation “that programmes will be written in contexts relevant to the local situation, so that teaching and learning occurs through purposeful activities” (NZQA, 2014, pp. 29-30). The proposed qualifications were mapped against skill sets and existing foundation and bridging qualifications and the new qualifications will replace most of the current foundation and bridging qualifications. The needs analysis report acknowledged that the major difficulties in the review were the variety of qualifications in the cluster analysed, and the diversity of learners who undertake them (NZQA, 2014, p. 2), which is true of the broad field of foundation education. At the time of completing this study the TROQ process was moving into ‘stage two’ or the qualification development phase.

It will be of research interest as to how these new qualifications are received by the sector and how they influence perceptions of foundation and bridging education, not least from a definitional point of view. It is anticipated that attempts to restrict the definition of foundation education to NZQF levels is likely to continue to incur robust discussion from researchers and practitioners in the field. Regardless of the outcomes, the TROQ review has been an important initiative for the foundation education field in enabling discussion around the need for foundation and bridging qualifications and raising awareness of the programmes and qualifications offered.

In summary, there have been challenges to the incremental narrowing of the definition of what constitutes a foundation education qualification or programme.

These have come from the earlier foundation education forum, NZABE as well as more recent forums such as FABENZ and Ako Aotearoa’s EAWG, all which argue that foundation learners can be found in every tertiary education programme.

Despite these arguments, through Government policy (including successive TESs, contestable funding at NZQF Levels One and Two programmes and the foundation

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and bridging TROQ), a social reality has been created (or even engineered) in that many providers and educators (particularly within the ITP sector) now perceive that the scope of foundation programmes is defined by either the inclusion of LLN remedial initiatives and/or by NZQF qualification level. This definitional debate continues at the time of writing this thesis and is reflected in the analysis and findings chapters.