Monash University



Monash Commission | Australia’s Post-compulsory Education System; Designing the FutureUpdated: 12 August 2018COUNTRIES IN FOCUS – CanadaPURPOSEThis document provides a summary in response to one of the topics identified in the Country Comparisons. Through a brief appraisal of facts, key issues and points of tension, this summary aims to provoke discussion amongst Commission members in relation to design issues facing the Australian post-compulsory education system.RESPONSETopic: According to OECD data, Canada has the highest % of its citizenry participating in tertiary education. What policy and system levers have enabled this high level of access? What is the impact of this access?The lay of the land: In 2016, 61% of 25 – 34 year old Canadians held a tertiary qualification, the highest share of all OECD countries after Korea. However, the share of 25 – 34 year-olds who had completed a master’s or doctoral degree is below the OECD average.Delving a bit deeper, it ought to be noted that the Canadian tertiary education system rests on a wide variety of institutions and programs: about ? of Canadians ages 25 – 64 attained a college diploma as their highest level of education, a higher proportion than in any other OECD country. Tertiary education, as defined in Canada comprises degree-level programs as offered by Universities, but also diplomas and associate diplomas as offered by community colleges. This explains, in part, the significant proportion of Canadians with a tertiary qualification (classified differently in other countries).‘College’ refers to both community colleges and polytechnics. Colleges offer a variety of post-secondary programs in both vocational education and training, and academically oriented fields, ranging from short-term, entry level certificate programs to two and three-year diploma programs – these vary between provinces. A growing number of colleges are also offering bachelor and masters-level programs.Data from Statistics Canada on tertiary education do not distinguish between some adult education and occupational preparation programmes, so international comparisons of tertiary education systems should be handled with some caution.Despite the large proportion of tertiary education adults, Canadians are less likely to obtain a master’s degree (10% of 25 – 34 Canadians hold a masters degree as compared to 15% OECD average).The number of trainees in apprenticeship programs has grown significantly. Between 2000 and 2013, the annual number of people who completed an apprenticeship more than doubled from 20,000 to 47,000.Further, although participation rates of Canadians in higher education are among the highest in the world, there are variation between provinces and disparities in access, of certain populations, financial issues, and other disparities (Frenette, 2007). Frenette (2007) noted that 31% of youth from the bottom quartile of income distribution attend university compared to 50% in the top quartile. Reasons why:Provincial approach yields differing results – In Canada, the provincial governments are the primary level of government for regulating and directly funding universities and other postsecondary institutions. In a sense, the direction of post-compulsory education is left to the provinces. For example, Ontario’s higher education expansion was altered by formula funding so that it was more responsive to undergraduate enrolment growth. Institutions receive additional government funding enrolling more students. The province also allocated funds to support capital expansion. Qualifications frameworks, accreditation processes, quality control mechanisms all vary province to province. For example, the province of Manitoba offers a three-year general degree program (90 credit points) whereas in British Columbia, a degree is completed over eight semester (requiring a minimum of 120 credit points). Given there is an absence of national coordination, membership of the Association of Universities and College of Canada is generally taken as evidence that an institution is providing university-level programs of acceptable standards. The only exception here is the number of professional accreditation agencies, who set quality standards for licensed professions at the national level. The same differences are true in vocational education. Trade certifications and apprenticeship programs are directly regulated by the individual provinces and territories. However, an Apprentice Mobility Protocol is in place to facilitate inter-jurisdictional recognition of qualifications, though challenges still remain.High level of public expenditure – Canada spends 13.4% of its total public expenditure on education (primary to tertiary), more than on average across OECD countries at 11.3%. This holds at the tertiary level, which receives 4.6% of all public expenditure compared to 3.1% on average across OECD countries. Expenditure on tertiary education institutions relative to GPD is also higher in Canada (2.6% of GDP) than the OECD average (1.5% of GDP).Individuals also contribute significant amounts of funding – At the tertiary level, only 48% of expenditure comes from public sources in Canada, much lower than OECD average of 70%. This is largely explained by the fact that expenditure by private entities (excluding household contributions) is much higher in Canada (25%) than on average across OECD countries (10%). There are also significant differences in cost of tuition. For example, university tuition fees for full time Canadian students in an arts and humanities program at the undergraduate level, 2017-2018 varies greatly. The King’s University sets its course fees at $11780, whereas the University of Alberta sets its course at $5321.Student financial assistance mechanisms to support participation – The Government of Canada provides major tax credits for tuition, maintenance and other costs, and this universal aid program now represents a major component of the government’s investment in student financial assistance. Loan support is also a significant program in Canada, achieved as a collaboration between federal governments with provinces, but varying between the jurisdictions.Perception that post-compulsory education is for the ‘everyone’ – commentators argue that ‘high stratification of prestige is the norm in the world, but not in Canada’. For example, the top five research intensive universities hold approximately 20% of the student body (whereas typically those top universities are small in scale) and differences in quality are seen as minimal. This combined, with institutional diversity in the plethora of colleges and apprenticeship programs, creates a perception that post-compulsory education is for everyone. Implications and tensions:Capacity constraints in sector – given a growing number of students engaged in post-compulsory education, both domestically and through international enrolment, institutions have to continuously develop their physical infrastructure and other elements, so as to be able to adequately service the needs of students.Not necessarily linked to prosperous employment outcomes – as compared to Australia, the US and other countries, Canada’s unemployment rates for young people aged between 25 – 34 by tertiary, and non-tertiary qualification remain high at 8.8, and 5.1% However, given the definitional issues outlined above, these comparative figures should be interpreted with some caution.Equity – mixed views; unclear from review of literature whether the increase in access has also addressed intergenerational inequitiesRECOMMENDATIONIn informing the future design of Australia’s post-compulsory education system, it is worth noting key features of the Canadian system, including:Differences in classification of ‘tertiary education’ between Canada and Australia;Higher overall public expenditure – 2.6% in Canada versus 1.8% in Australia;Institutional diversity – as evidenced by the plethora of higher education institutions, community colleges, and dual-sector entities, and;Provincial-level management and differing approaches to coordination of the post-compulsory education sector,In contributing to the significant number of its citizens participating in post-compulsory education.Key references:What makes Canada unique in post-secondary education? – World Education News and Reviews – of tuition fees - Canada’s secret weapon against inequality – ................
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