Chapter 2 - Government themes and ministerial priorities

“He waka eke noa.”

The government is working to transform the New Zealand economy.  Our traditional strengths in commodity industries are well recognised, but increasingly our success is dependent on using knowledge and skills to generate higher value in whatever we do.

Our strengths in creativity, design, development and people skills, combined with a uniquely ‘New Zealand way’, will help to achieve this transformation. The goal is that every New Zealander should achieve their potential. High standards, high expectations of achievement and lifelong learning are keys to national success. We need to be among the world’s best at equipping people for work and for life.

Education needs to be responsive to the aspirations and development of Māori, Pasifika, and all New Zealanders. It makes a vital contribution to the country’s national development in all dimensions – social, economic, cultural and environmental.

Government themes

The government’s three priority themes of Economic Transformation, Families – Young and Old, and National Identity are underpinned by an emerging focus on sustainable development and realising youth potential. The overall aim is to create a high-income, knowledge-based economy, which is both innovative and creative, and provides a great quality of life for all New Zealanders.

An effective education system is critical to each of these government themes. An effective education system is one that puts the child or student at the centre. Such a system ensures that all choices provide quality, relevant education that assists the realisation of students’ goals and aspirations. New Zealand’s education system is a significant national asset which makes an invaluable contribution to the country’s social, economic, cultural and environmental development.

Economic Transformation

Economic Transformation is about continuing our journey towards a thriving and internationally competitive economy with a highly skilled workforce. The education system is a critical contributor to economic development. It is responsible for equipping New Zealanders with the skills and competencies needed for a productive, adaptable workforce in an increasingly globalised world. Early childhood education builds the foundations for success, schooling supports young people to realise their potential, and tertiary education supports the development of high-level skills and knowledge and the opportunity to update them through lifelong learning.

Tertiary education, in particular, has a critical role in supporting the development of knowledge and innovation through research and scholarship. Research in tertiary education organisations connects our economy to the global knowledge base and provides the basic, applied and strategic research that drives innovation.

The education system also makes a direct contribution to the economy through a sustainable and high value export education sector.

Families – Young and Old

The Families – Young and Old theme is about providing opportunity and security, backed up by excellent services, to family members of every age. Educational success is related not only to economic success but also to improved social outcomes, greater personal well-being and security, and better outcomes for children as they develop and grow. By ensuring that all children and students can achieve their potential, and by supporting inter-generational learning, the education system contributes to our nation’s social development and the health and security of our families.

As well as making a direct contribution to the well-being of families, the education system underpins the development of the skilled workforce, and research needed for the development of the health, education, justice and social systems.

National Identity

National Identity is about building our pride in who we are, where we live and what we do. The education system helps safeguard and interpret our diverse cultures and views of our place in the world. Education, from early childhood through to tertiary, also supports Māori to maintain and develop Māori language, knowledge and culture. Kohanga reo, kura kaupapa Māori and wānanga clearly have leading roles, but all education providers share the responsibility. Through our education system New Zealanders also learn about and participate in art, culture, sport and other aspects of national life. The tertiary education system fosters many of our top achievers who exemplify and develop our cultural and sporting life. Scholars have duties to act as ‘the critics and conscience of society’.

Sustainable Development

New Zealand’s future is dependent on long-term sustainable strategies for our economy, society, environment, culture and way of life. Education is critically important here. It can give the leaders of tomorrow the knowledge they need to operate in a world rapidly running out of resources and facing the challenges of climate change. Through teaching and learning, research, knowledge-transfer and innovation, it can add value to primary production, help manage pressure on natural resources, and help manage and restore our indigenous ecosystems and biodiversity. It can help support all students to develop the skills and knowledge needed to balance the pressures that economic and social progress place on our environment and natural resources.

Education providers and government education agencies make up a significant sector of the New Zealand economy. Moving towards sustainable practices across the sector will make a significant contribution. The ministry has a role in promoting sustainable development in three key ways. It has a responsibility to improve the sustainability of its own organisational work practices. In exercising its leadership role within the sector, it can influence the sector’s focus on sustainability. The ministry can also support sustainable practices through its influence on curriculum development.

Realising Youth Potential

All young people should have opportunities to participate in and contribute to their own and to New Zealand’s success. Realising youth potential is vital for encouraging effective parents, workers and successful adult citizens of the future.

High quality early childhood education provides children with the foundations for success, and a schooling system that personalises learning can help ensure students realise their potential and participate effectively within their communities. High quality, relevant tertiary education then provides students with the opportunities to maximise their success. Education provides a setting through which we can both identify and put in place the support that young people need to realise their potential. In particular, there needs to be improvement in the numbers of young people engaged and retained in senior secondary education. Without completing schooling and attaining meaningful qualifications, young people’s future options for success are limited.

The education system has a responsibility to enhance its responsiveness to Māori, Pasifika and young people with special education needs, as these groups are vulnerable to leaving education early or without meaningful qualifications.

Priorities of the Minister of Education in early childhood education and schooling

To further the government’s broader themes, the Ministers of Education have set priorities for the next two years. These priorities provide direction and urgency for the ministry’s work and we are committed to achieving significant positive change in these areas.

“We are moving into a knowledge age. This kind of society will demand very different values, competencies and knowledge from those we were familiar with last century. Our education system is already moving down appropriate lines. Examples can be seen everywhere. But there is a lot more to be done if we are to have a whole system motivated by the need to serve the interests of learners.”

– Hon Steve Maharey to New Zealand School Principals’ Federation February 2007

Personalising Learning

Personalising learning is central to the transformation that needs to occur in our education system in order to meet the needs of a 21st century knowledge society. A stronger focus on learning to create new knowledge, as opposed to an emphasis on acquiring existing knowledge, is now essential. For this to occur, all students need to be strong in critical competencies such as creativity, problem-solving and self-management. Increasingly, learning will need to occur in ways that engage and motivate all students, giving them opportunities to develop skills and confidence for new ways of thinking, knowing, being and doing.

The education system needs to become more responsive to the needs of all learners. Resources, processes and infrastructure need to be reoriented to allow for this. Barriers to flexibility and responsiveness will need to be addressed and all parts of the education system will need to work towards this common goal.

Personalising learning offers a fresh perspective on how we can achieve educational success for all students, building on what is already shown to be working well. It is a way of renewing Clarence Beeby’s vision of equal opportunity for all students and extending that to achieving equitable outcomes, as education and partner agencies work with each other and with the sector, families and communities, to build a better system that will equip all New Zealanders for future success.

To deliver on this the Minister of Education has set clear priority areas for action, which will require significant change. These priority areas are:

• Effective Teaching
• Foundations and Knowledge
• Engaged Parents, Families and Whānau
• Strong Professional Leadership
• Teaching and Learning in Secondary Schools
• Staying at School
• Setting Boundaries
• Resourcing.

Alongside these eight areas is a focus on Healthy, Confident Kids, part of the Families – Young and Old theme.

Effective Teaching

The role of teachers at all levels is critical in improving learning outcomes. Even when students are facing other challenges, there is clear evidence that effective teaching can still support all students to succeed, regardless of their circumstances. Successful teachers understand their students and work to make learning opportunities relevant, acknowledging different identities. We are already seeing gains in achievement where this is happening for Māori.

For success in this area, teachers need to be well equipped and supported. New Zealand needs people with the right skills, knowledge and attitudes to enter and remain in teaching as a rewarding career of choice. Teachers and principals need relevant, accessible research and opportunities for professional development linked to student learning throughout their careers. An effective curriculum, together with assessment tools for teaching and learning, is critical.

Key actions to support effective teaching include:

• revising the schooling curriculum, including the development of a Māori-medium curriculum
• the use of assessment tools and exemplars for teaching and learning through the National Assessment Strategy
• improving initial teacher education
• completing and publishing the results of the Inservice Teacher Education Practice (INSTEP) research and development project
• continuing a range of professional development initiatives, including those that strengthen effective teaching-learning relationships for improved student learning outcomes.

Foundations and Knowledge

Children cannot realise their potential without receiving the basic foundations for learning and knowledge. Learning the skills of managing self and relating to others is key to setting up early learning foundations. We know that reading and the ability to do maths are critical to later learning and life success. The ability to read, in particular, is closely linked to student engagement and the likelihood of staying in school.

Success in this area would be demonstrated by better quality of, and participation in, early childhood education. Progress also requires that teachers can access up-to-date information on best practice, and early identification of learning-related issues with active follow-up to address them.

Key actions include:

• specific initiatives to increase and promote participation in, high quality early childhood education services, including increased funding (20-hours free for three- and four-year-olds)
• increased registration of early childhood education teachers
• literacy and numeracy professional development programmes
• schooling improvement projects that support student achievement (in particular, literacy and numeracy)
• increasing responsiveness to students with special education needs through the development of stronger special education networks.

Parents, Family and whānau

Parents, family members and whānau play a critical role in supporting their children’s learning, right from the start.

Success in encouraging parents and whānau would include parental confidence in supporting children’s learning and effective home-school links.

This requires making sure parents, family and whānau have access to information about what children aim to learn at all levels, how they are making progress and how parents can most effectively contribute. Schools and early childhood education centres need to have effective conversations with families and caregivers to support high quality learning outcomes for all.

Key actions include:

• sharpening the focus of campaigns and initiatives, including Team-Up, Te Mana and the work of Pouwhakataki, to provide parents, families and whānau with better information about how to best support children’s learning
• provision of parent education and support programmes to help parents positively engage with their children and support their special education needs
• reviewing the National Assessment Strategy, including the quality, timeliness and accessibility of assessment information for parents to help them to understand and support their children’s progress at school
• supporting regional and national Hui Taumata Mātauranga and iwi and Māori education partnerships
• implementing the Pasifika Education Plan.

Strong Professional Leadership

The success of individual teachers is significantly affected by the professional and personal support they receive from colleagues and from those in leadership roles. School and early childhood education centre leaders provide specific professional direction and support, as well as playing a vital role in setting the overall context for learning.

Success in this key area would be indicated by strong participation in school principal development programmes and more candidates for leadership roles. Strong professional leadership in schools is supported by providing good information on what successful leadership looks like in a New Zealand context. First-time principals need to be supported to prepare for their roles, with clear career paths and professional learning and development opportunities, and principals should be freed up to focus on the most important issues for their schools.

Key actions include:

• funding the First-time Principals programme and providing the Principals’ Development Planning Centre programme
• providing and maintaining Leadspace – a communications and information hub for New Zealand school principals
• developing and launching the leadership best evidence synthesis
• making available mentoring and advisory services for principals
• supporting the career pathways work programme
• reducing compliance requirements for school management.

Teaching and Learning in Secondary Schools

Our secondary schools have changed a lot over the years and produced some outstanding results. The ongoing challenge is about how to create an environment in which each student can successfully go on to further education and training, and/or employment. Learning at secondary level is built on the strong foundations that need to be put in place at home, in early childhood education and in primary schooling.

Successful teaching and learning at secondary levels is demonstrated by increased student retention in schooling and rising levels of school qualification attainment. Initial teacher education for secondary teachers must focus on teaching practice as well as subject knowledge, and those already in secondary teaching need ongoing opportunities to support their learning and development. All students need to be supported in their transitions to the next stages of their lives and learning. This is particularly the case for young people with special education needs or behavioural needs.

Key actions include:

• ongoing improvements to the design of the National Certificate of Educational Achievement (NCEA) and further developing the senior secondary curriculum
• strengthening professional development opportunities in areas such as assessment tools for teaching and learning
• increasing the focus on professional learning and teacher career paths
• strengthening career information and guidance for students and their families.

Staying at School

There is strong evidence that more time spent at school and completing school with secondary qualifications enables greater success in later life. As people follow a multitude of pathways on leaving school, it is critical to ensure there is sufficient diversity in the options available to school students to attract and retain their interest.

Increased engagement in schooling results in reduced truancy, fewer suspensions and fewer exemptions for those requesting to leave school early. Increased levels of school qualifications make a greater range of options available to school leavers.

Ways to support schools to retain students include: enhancing system support for managing attendance; providing and funding relevant professional development for teachers; and supporting schools to offer a range of learning environments and pathways for their students.

Key actions include:

• reforming District Truancy Services
• continuing the Student Engagement Initiative and Suspension Reduction Initiative
• using the new national enrolment system ENROL to monitor non-enrolments and record student movements
• building on the findings and successes of programmes like Te Kōtahitanga and respectful schools
• supporting STAR (Secondary-Tertiary Alignment Resource) and Gateway
• reviewing the provision of early leaving exemptions
• providing behaviour support programmes to schools.

Setting Boundaries

Learning comes from all environments. Schools, teachers, families, whānau and communities need to be supported by a range of interventions to allow the learning of positive behaviours. Students suspended or stood-down from schools because of behavioural issues miss the opportunity to learn alternative, positive behaviours. Action must be taken early.

Success in this area can be demonstrated by improvements in learning environments measured by national surveys, alongside reductions in the numbers of stand-downs and suspensions. It is also seen in earlier referrals to specialist services and more students who access those services staying in school and gaining National Certificate of Educational Achievement (NCEA) credits.

Early childhood education services, schools and teachers need the best information available on encouraging positive behaviour, as well as specialist support for dealing with particularly challenging cases and alternative ways to approach behavioural issues on an individual, whole-of-school and community basis.

Key actions include:

• the Severe Behaviour Initiative to strengthen the ministry’s individual behaviour services to children and young people with severe challenging behaviour
• strengthening the role of Resource Teachers of Learning and Behaviour
• active participation in the inter-agency strategy for severe anti-social behaviour
• improving the delivery of special education services
• increasing access to the Incredible Years training programme for parents and teachers
• providing effective early intervention services and support to parents who have children with special education or behavioural needs.

Resourcing

Student success requires that schools and teachers have adequate resources and are able to use those resources to greatest effect. The level of resources, as well as how they are provided, can make an important difference.

Success in effective resourcing can be demonstrated by: increased confidence in education resourcing; fewer schools with financial difficulties; and a system that better supports increased flexibility in learning over time. This requires appropriate targeting of resources to where they are needed most, in ways that can support a range of learning needs. It means building transparency about how resourcing works, and sharing good practice about using resources effectively.

Key actions include:

• funding increases for early childhood education and the continued implementation of staffing improvements
• implementing the review of the operations grant.

Healthy, Confident Kids

The objective for Healthy, Confident Kids is that: ‘all children participate in a range of life contexts and are equipped to contribute to the future well-being of New Zealand socially, culturally, economically and environmentally’. The Ministry of Education is responsible for leading the work necessary to achieve the objectives of Healthy, Confident Kids. In particular, the ministry is involved in promoting an integrated development of solutions requiring a whole-of-government approach and a common commitment to agreed priorities.

The Mission-On programme, for example, aims to promote healthy eating to improve the lifestyles of children and their abilities to learn. All early childhood education services and schools have been provided with guidelines and encouraged to explore, with their children and students, how they can further develop healthy eating and physical activity in every-day life. Mission-On comprises 10 initiatives developed by the ministries of Education, Health and Youth Development, together with Sport and Recreation New Zealand (SPARC). It is an example of where the ministry is working with education agencies and across the wider public sector.

Ministry role in early childhood education and schooling

The Ministry of Education will take the lead role in delivering on ministerial priorities in early childhood education and schooling. Ministry responsibilities include:

• strategic leadership
• policy advice to the government
• operational policy development
• implementation, including regulation and funding
• information provision
• targeted interventions
• specific service provision in some areas, for example, special education services.

Focus areas of the Minister for Tertiary Education in tertiary and international education

“From 2008, the government will be investing in priority areas of tertiary education, and shifting resources to education and training that better matches skill and learning needs. Industry and employers will have a greater role in defining the competencies that graduates need to have. Students will be determining what and how they learn. Tertiary organisations will determine what their distinctive contribution will be and invest in capabilities and staffing around these priorities.”
- Hon Dr Michael Cullen address to Auckland Chamber of Commerce February 2007

Tertiary reforms programme

During 2006 the government embarked on a programme of substantial reforms to the tertiary education system. These reforms fundamentally change the investment system for tertiary education into one which drives quality, relevance and value for money, within a distinctive contributions framework. The tertiary education strategy (TES) and the statement of tertiary education priorities  (STEP) together become much more significant documents in outlining the government’s expectations and priorities for tertiary education.

The focus over the next five years is on the three outcomes outlined in the TES 2007-12: Incorporating STEP 2008-10:

• success for all New Zealanders through lifelong learning
• creating and applying knowledge to drive innovation
• strong connections between tertiary education organisations (TEOs) and the communities they serve.

The new tertiary education system

Through the TES 2007–12, the Minister for Tertiary Education has set out the expectations of the tertiary education system, including TEOs and Crown entities and, in particular, the Tertiary Education Commission (TEC), which is the lead agency responsible for driving change in the sector.

The TES was released in December 2006, part-way through the reform programme which will transform the tertiary education system and support quality decision-making by TEOs through a clear statement of government priorities for education, training and research. The TES will be achieved through the following areas:

• distinctive contributions – ensuring each tertiary organisation contributes according to its strengths
• support for students
• new approaches to planning, funding, quality assurance and monitoring for TEOs
• informed contribution of stakeholders, employers and communities.

Distinctive contributions

This approach recognises the key strengths of, and differences between, tertiary education organisations, and encourages organisations to work together to complement each other rather than compete. The TEC will lead the change process required over the next few years to support each sub-sector in the shifts required.

Success in this area will be demonstrated through tertiary education organisations contributing to outcomes according to their strengths, in line with the government’s expectations. Expectations and priorities will be interpreted through distinctive contributions.

Key actions include:

• TEC signalling the change expected of organisations through its investment guidance
• funding allocations and agreement of plans to support the shifts required.

New approaches to planning, funding, quality assurance and monitoring

From 2008 government will progressively introduce a new system of planning, funding, quality assurance and monitoring to the tertiary education system, which will encourage a focus on quality and relevance of education, training and research outcomes. TEOs will be expected to shift their focus from participation and funding to achievement and the long-term needs of their stakeholders.

Success in this area will be shown through TEOs identifying, planning for and meeting the needs of students, employers, industry, Māori, community groups and other stakeholders. Investment decisions by the TEC will be based on evidence of quality and relevance of education, training and research. There will be greater certainty and stability of funding, and greater investment in capability, quality and sustainable improvement.

Key actions include developing and implementing:

• funding changes required to support the new investment system
• investing in a Plan
• a new quality assurance and monitoring system.

The Education (Tertiary Reforms) Amendment Bill 2007 has been introduced to implement the changes. The Ministry of Education, along with other education agencies, has developed the Bill and will support the process through Select Committee leading to enactment by 1 January 2008.

Informed contribution of stakeholders, employers and communities

The changes to the system will support TEOs to take responsibility for their contributions to economic and social outcomes. They will also be expected to respond to the needs of their stakeholders including students, their families, whānau and communities, employers and research groups.

Key actions include:

• providing access to information collected by government agencies (for example, information regarding the labour market, or emerging skills and knowledge needs in public service areas such as health, education and social services)
• monitoring the performance of the tertiary education system through the annual TES monitoring report
• providing analysis of key and emerging trends in the tertiary education system to increase understanding of the dynamics and performance of the system
• the TEC’s stakeholder engagement and facilitation, which helps identify stakeholders’ national and regional needs.

Support for students

To enable students to participate in tertiary education, the government provides financial support through tuition subsidies and a range of student supports including student allowances, scholarships and student loans. Fees are regulated to ensure students’ own contributions to the cost of their education remain affordable, predictable and fair.

Students are also supported in their decision-making to ensure they make informed decisions about what and how to study. Strong school-to-tertiary connections provide information about where, when and how to engage in tertiary education. Increasing student achievement at secondary school means that more students are well prepared to make successful transitions to tertiary education. Success here is shown by students studying in areas that develop the skills and competencies needed to attain our national goals, and by ensuring that cost is not a barrier to participation.

Key actions include:

• inter-agency work on Youth Pathways
• advice on Fees and Course Costs Maxima, and the policy settings for student financial support such as student loans and allowances
• implementing the Creating Pathways and Building Lives (CPaBL) careers advice initiative
• influencing and supporting student decision-making through the student support services administered by StudyLink and Career Services.

The ministry’s role in tertiary education

In tertiary education the ministry plays a strategic leadership role, which includes: advice on system direction and priorities; strategic advice on longer term direction; coordinating advice on legislation, budget decision-making and Vote management and engaging in significant policy work programmes with a broad understanding of system effectiveness and policy design principles. The role also encompasses stewardship and governance: in support of sector leadership and inter-agency dealings; being a ‘supportive partner’ to tertiary education Crown entities; and the maintenance of functions where there are significant economies of scale. The ministry is also involved in monitoring and evaluation, such as in tertiary data analysis and research, and Crown entity monitoring. This includes analysis of the performance of the tertiary system against the Strategy, and of the tertiary Crown entities’ performance, with a particular emphasis currently on their design and on implementation of the tertiary reforms programme.

With the release in December 2006 of the TES 2007-12: incorporating STEP 2008-10, the ministry’s current focus is on supporting the reforms by continuing to analyse tertiary system performance and stakeholder needs. This will enable the ministry to support government by providing advice on future priorities for the tertiary system.

The new system will place greater reliance on decision-making at the centre, rather than the demand-driven funding system, which relied largely on student choice. Success here depends on an integrated approach between the different parts of the system. The ministry has a key role in facilitating the interaction between agencies and assessing collective progress towards the strategic goals for the sector.

International education

“International education helps connect New Zealand to the world. The flow of ideas and the relationships formed between people and institutions help to develop our own potential and grow our economy.”
– Hon Dr Michael Cullen, speech to education counsellors’ forum February 2007

International education contributes to building a sustainable economy based on innovation and quality, and helps sustain our national identity in a world of globalised media and culture.

International education has many dimensions and components. An important aspect is the recruitment of excellent students, teachers and researchers to this country. International education also involves New Zealand developing ongoing, productive relationships with international businesses and universities, and marketing innovative and high-quality New Zealand educational products and services matched to global market needs. Together, these activities are often termed ‘export education’, and they have been the mainstay of New Zealand international education for many years.

But there are other important dimensions to international education that also offer significant potential benefits to New Zealand – such as exposing more New Zealand students to international experiences and interactions, and developing the talents of our teachers and researchers through international collaboration. By encouraging greater ‘internationalisation’ in education, government believes New Zealand will be better placed to compete and prosper on the world stage.

For this, New Zealand needs a more integrated, sustainable and forward-thinking approach to international education which goes well beyond the traditional ‘export education’ focus. The International Education Agenda embodies this new approach, while continuing to build on the achievements of recent years.

The government’s four goals for international education are that:

• New Zealand students are equipped to thrive in an inter-connected world
• providers are strengthened academically and financially through international linkages
• international students are enriched by their educational and living experiences in New Zealand
• the economic and social benefits to New Zealand from international education activities grow to their full potential.

Success in achieving these goals will be seen when New Zealand students have well-developed global knowledge, and the skills to succeed in multicultural and multilingual settings at home and overseas. International students will be integrated into our education organisations and communities, with effective pastoral care and learning support ensuring they succeed academically. Academic and research performance of New Zealand education providers will be further strengthened through international linkages, and New Zealand research will benefit from increased international collaboration, funding and commercialisation.

Key actions include:

• continuing to build the capability of educators to include international content and perspectives in their programmes
• encouraging a strategic and well-managed approach to international programmes, consistent with other government strategies
• increasing student take-up of opportunities to study abroad
• maintaining a focus on high-quality pastoral care
• getting better information on academic achievement of international students
• continuing work by the New Zealand Qualifications Authority (NZQA) on increasing recognition of New Zealand’s quality assurance system and qualifications internationally
• supporting refocusing of the ‘New Zealand-educated’ brand and increasing resources for generic marketing
• extending education diplomacy initiatives through the roll-out of the government’s education counsellor network to promote understanding of New Zealand’s education system internationally
• developing policy standards and procedures to commercialise and protect (as appropriate) the government’s education-related intellectual property.

Working across government

Achieving the government’s goals and ministerial priorities requires coordinated effort from many stakeholders. The ministry is committed to taking a leadership role and engaging positively in a range of cross-government work to both define critical outcomes and develop and deliver on implementation plans. We play a key role in a range of inter-agency projects at local and national levels, ranging from our work with other agencies and schools focusing on individual students, to working on shared national priorities with national and regional inter-agency governance bodies.