Adult Basic Education Backgrounder: Why should we re-instate the Education Guarantee and restore funding to Adult Basic Education in BC? May 1, 2015 Suzanne Smythe i Faculty of Education Simon Fraser University What is the problem? The end of the Education Guarantee and the imposition of high tuition fees for Adult Basic Education students to acquire a secondary school qualification or to upgrade their academic standing for entry into post-secondary programs, will exclude thousands of adults from participation in further education, training and employment. Evidence since January 1, 2015, when some post-secondary institutions (known as teaching universities) began to impose the new tuition fees, suggests that about 60-70% of students qualify for the Adult Upgrading Grant (AUG), depending on the jurisdiction. Time restrictions and funding caps for the AUG as well as its very complex structure will penalize students at the lowest literacy levels. Students who study in adult education programs in school districts will not qualify for the AUG. The AUG replaces the former ABESAP (Adult Basic Education Student Assistant Program). Adults enrolled in Developmental Programs (English as a Second Language, Adult Graduation, upgrading or pre-vocational programs and Adult Special Education in post-secondary institutions) can apply for the AUG to cover or partially cover the costs of the new tuition fees. The AUG is only available to students enrolled in these developmental programs in postsecondary institutions whose income places them within the Low Income Cut Off of $23, 647 per year or less (single person). Those with incomes within 10% of this LICO qualify for 50% of the AUG. AUG eligibility is capped to a lifetime limit of 156 weeks with varying conditions of eligibility depending on the institution. The AUG is transferred from the Provincial Government to post-secondary institutions that in turn administer the grant. The response of the government that non-graduated adults can attend School District ABE programs tuition-free does not consider that a) some districts do not have Adult Education programs, and b) new funding shortfalls to School Districts imposed in March 2015 has resulted in the cancellation of adult education programs. This is perpetuated by decline in enrollment in adult education due to the introduction of fees for graduated adults. Dave Smulders, an adult educator and UBC instructor explains the problem in this way: With the province s decision to charge tuition for upgrading courses, students are in effect being charged a levy for their lack of knowledge and skill. We have to remember that many students taking upgrading courses are trying to get into other programs, often career-related programs. In other words, they are trying to get into tuition-based programs. Stated more plainly and in accordance with our government s aims, they want
to pay for their education. When they are deemed ineligible for a program because they lack the fundamental skills, they are consigned to pay even more to achieve their goals. 1 Further details about ABE, Developmental Studies and the implications of current tuition fee policies are elaborated below. What is ABE? 2 Adult Basic Education (ABE) is education for adults from basic literacy and numeracy levels up to high school completion. ABE is currently offered through school districts and in 25 public post-secondary institutions in BC. ABE has been tuition-free in BC since 2007, when the Education Guarantee was announced. At that time, Minister of Advanced Education Murray Coell and Minister of Education Shirley Bond stated, This expansion of adult basic education will help more learners improve their literacy skills and prepare for better futures. The Education Guarantee led to increased enrolment in ABE, clearly demonstrating a demand for Adult Basic Education in the province. For example, when the EG was announced in 2007, enrolment in ABE in BC Post-Secondary Institutions (PSIs) was 26, 305; in 2009/2010, enrolment increased by 14% to 29,885 Full-Time Equivalent students (FTEs) 3. In 2013/2014, enrolment is at an 8-year low of 24, 000. This is not because there has been a drop in demand but because adult basic education and developmental studies programs have been reduced or cancelled by post-secondary institutions (also known as teaching universities). Why is ABE important? Only 5% of jobs today do not require some kind of post-secondary training. As a province we must be able to create accessible pathways to post-secondary education necessary for further education and training. We also need to provide opportunities for people to learn in and with their communities, in ways that support social inclusion, community-building, citizenship engagement and the pleasures of learning. In 2012/2013, 10, 963 BC students left secondary school without a Dogwood (Grade 12) diploma 4. In addition to this group, many others re-take high schools courses to improve their marks and get new course credits they need to gain entry to a post-secondary program. If they 1 Smulders, D. (January 9, 2015). Adult learners in peril in BC, para. 3. Retrieved April 20 from https://adultlearningmatters.wordpress.com/2015/01/09/adult-learners-in-peril-in-bc-written-by-davesmulders/ 2 For a comprehensive description of ABE programs, their role within the public education system, and the learning trajectories of adult learners see Lynn Horvat (December 2014). Re-framing the conversation: Respecting Adult Basic Education in British Columbia. http://decoda.ca/wp-content/uploads/re-framing-the-conversation- Respecting-ABE-in-BC-Dec-2014.pdf 3 Data BC (2015) ABE head count gender and age group 2013/2014. Retrieved April 20, 2015 from http://catalogue.data.gov.bc.ca/dataset/adult-basic-education-headcount-by-gender-and-age-group-at-public-postsecondary-institutions 4 Data BC (2015). BC schools six-year completion rate. Retrieved April 20, 2015 from: http://catalogue.data.gov.bc.ca/dataset/bc-schools-six-year-completion-rate 2
have graduated over 5 years earlier, people must re-take Math, Science and Technology courses to gain entry to programs with these pre-requisites (these courses expire every 5 years). ABE is also a significant educational pathway for newcomers to Canada who may have graduated from secondary school in their home countries but need to gain academic experience and credentials in Canada so they can gain entry to post-secondary education. Without these opportunities they are stuck in low-wage employment. ABE is a pathway out of poverty. 71% of ABE students have incomes below the poverty line, even though most of them work full time. 29% support families while studying, 10% as single parents 5. The pursuit of education to access further education and training for better jobs is why the vast majority of adults enroll in ABE. According to the government s own research on the outcomes of ABE/Developmental Studies programs almost 50% of ABE graduates went on to pursue certificates, diplomas and degrees. 95% said that ABE had prepared them academically to succeed in these courses and 70% intended to pursue further education 6. The provincial government report acknowledges: The British Columbia Labour Market Outlook 2010 2020 also notes that levels of new labour market participants are declining. In light of the need for more participants and the projection that the majority of job openings will require at least some post-secondary training, improving adult education levels will help to ensure the economic growth of the province. (Government of BC, 2014, p. 11) 7 The valuable data about students enrolled in developmental programs is collected in the annual Developmental Student Outcomes Survey carried out by the Ministry of Advanced Education. The Ministry has announced it will discontinue this survey in 2015. 5 Government of BC (2006). Developmental Student Outcomes Survey and Horvat, L. (2014). Re-framing the conversation. p. 16. http://blogs.ubc.ca/workplace/files/2015/01/re-framing-the-conversation-respecting-abe-in- BC-2014.pdf 6 Government of BC Developmental Student Outcomes Survey (2013-2014). http://www.aved.gov.bc.ca/abe/docs/2013-developmental-student-outcomes-survey-report-of-findings.pdf 3
Who are ABE students? Students who enroll in adult basic education fall into the following categories: 1. Non-graduates. They are among the 10, 963 students each year who do not graduate from secondary school in the 6-year completion in British Columbia. The average Dogwood graduation rate in BC in 2012/2013 is 83%. In some school districts such as Coast Mountain, the rate is 67.5%; in West Vancouver it is 90%. 8 Many of these students who do not graduate with a Dogwood Diploma go on to complete their secondary school education within a few years through adult learning centres (both in School Districts and in Post-Secondary ABE programs). 2. Adults changing careers. Many adults enroll in ABE because they need pre-requisites to gain entry into a desired post-secondary education/training program. Post-secondary programs, particularly those in health sciences, trades and technology (those most in demand careers signaled by the Ministry of Education) require Math and Science courses beyond those required for the attainment of a Dogwood. This means that as people s circumstances and educational goals change they need access to courses to meet program requirements. 3. Adults who graduated 5 years + earlier. Secondary school Math, Science and Technology courses expire every 5 years. Adults seeking entry to a post-secondary program with these pre-requisites need to upgrade through basic education courses. 4. Graduated adults who are newcomers. Many adults have secondary school qualifications from other countries that are not recognized by employers or postsecondary institutions in Canada. These adults attend ABE to gain Canadian academic qualifications so they can pursue further education and employment. 5. Low-wage workers. The 2013 Developmental Students Outcomes Survey indicates that, while they are studying, 82% work full time and 18% are unemployed. Over 70% of ABE students have incomes under the poverty line. 9 6. Aboriginal people who comprise 18% of those enrolled in Developmental Studies programs in PSIs and in ABE in school districts, are particularly effected by the ABE tuition fee policy and cuts to adult education in school districts. This places at risk the goals of the BC Skills for Jobs Plan and the Aboriginal Post Secondary Education and Training Policy Framework and Action Plan that aspires to Support for successful transitions for Aboriginal learners throughout the lifelong learning continuum. 10 8 DataBC (2015). BC schools six-year completion rate. Retrieved April 20, 2015 from: http://catalogue.data.gov.bc.ca/dataset/bc-schools-six-year-completion-rate 9 Government of BC (2013). Developmental Student Outcomes Survey. P. 46 http://www.aved.gov.bc.ca/abe/docs/2013-developmental-student-outcomes-survey-report-of-findings.pdf 10 Aboriginal Post Secondary Education and Training Policy Framework and Action Plan p. 12. http://www.aved.gov.bc.ca/aboriginal/docs/aboriginal_action_plan.pdf 4
What are the problems with the ABE tuition policy? The government claims that it can no longer afford the 6.9 million annual cost of the Education Guarantee. This policy introduced in 2007 allowed adults to study toward secondary school graduation and post-secondary eligibility tuition free. However, Post-secondary administration positions have increased by 50% in the past 12 years and these new administrators earn twice as much as they did in 2002. Tax cuts amounting to 260 million were given to the top 15% of earners in BC in the 2015/2016 provincial budget. The government claims that non-graduated youth and adults can still study tuition-fee in School District programs. This is not always so. Firstly, several districts do not have adult basic education programs (Revelstoke, Arrow Lakes, Fort Nelson, West Vancouver have no adult education programs, others have very small programs with limited geographic range). Secondly, the tuition policy places the survival of School District Adult Basic Education at risk. School District program enrollment has included both graduated and nongraduated adults. If graduated adults are required to pay hundreds of dollars in fees to take courses, enrollment will decline, which jeopardizes the sustainability of programs for non-graduates. This has already happened in the Vancouver Board of Education that predicts a decline in enrollment in 2015/2016 due to the tuition policy, and has recommended the closure of two adult learning centres, one youth learning Centre and 7 community adult ESL classes all in the Northeast of Vancouver. 11 It is expected that more districts will close or cut back their adult education offerings to address structural budget shortfalls. The Adult Upgrading Grant (AUG) is only available to those who earn $23,647 per year or less (single person). Workers earning just above minimum wage will not qualify for AUG. The lifetime 156- week maximum time limit for AUG may be too short for adults starting ABE at the fundamental levels who are working full time. People with incomes within 10% of the income cut off can qualify for 50% of the AUG. The implementation of AUG is complex and it is proving difficult to access. Each institution is implementing the AUG differently and the policy implementation itself seems to be shifting constantly. This creates a climate of confusion, and great inequity across settings. Educators are already reporting that much of their instructional 11 Vancouver Board of Education (April 2015). Preliminary Budget Proposals. Appendix D3: Adult Education. p. 31 34. Retrieved April 18, 2015 from https://www.vsb.bc.ca/sites/default/files/15mar31_plen_commiiiv_agenda_op_item3_1.pdf 5
time is spent on helping students navigate the rules and some institutions have used the interim ABE funding to hire staff dedicated to addressing the new AUG bureaucracy rather than directly covering tuition fees for students. 6.9 million in Education Guarantee funding was re-instated February 13, 2015 for one year as transition funding. What was once core funding to support ABE is now transitional funding and emerging evidence from a scan of post-secondary institution response to the new tuition policy is that this transition funding is being used to hire new staff to administer the Adult Upgrading Grant. People on social assistance are not allowed to enroll in ABE in British Columbia. Since 2002, with the exception of people with disabilities, adults who receive income assistance are not permitted to study full time toward adult graduation or upgrading if this interferes with their availability for employment. 12 The tuition fees are high in relation to other post-secondary programs. The average tuition charged for fundamental courses (those leading to Grade 11 and 12 courses) and Grade 11 and 12 courses required for post-secondary entry is $320 per 3- credit course. It seems most institutions are charging the maximum allowed in the new agreement with the Ministry of Advanced Education ($320 per course or $1600 per term for full-time enrollment). This compares with a Master of Arts degree in Education at UBC and SFU that cost about $1728.00 per term. 13 The tuition fees are not tax deductible because ABE is not considered a post-secondary program. Institutions are permitted to collect high fees to offer basic education with the argument that these students have already had their chance yet they are not considered postsecondary students for tax purposes. ABE students who don't qualify for financial aid will be charged steep tuition, but can't claim it as "tuition" for tax purposes. For example, the VCC website FAQ 14 states: "I took courses at VCC during 2014, why isn t there a tax form for me? Not all students qualify for tax forms. Vancouver Community College issues these forms in accordance with tax legislation, which requires that students be enrolled in post secondary level courses or programs to qualify for the tax form." 12 For an account of the effects of this policy on people s employment prospects see Butterwick with White (February, 2006). A path out of poverty http://www.policyalternatives.ca/sites/default/files/uploads/publications/bc_office_pubs/bc_2006/path_out_of_pov erty.pdf 13 SFU Graduate Tuition Fees. Retrieved April 29, 2015 from: http://www.sfu.ca/students/calendar/2015/summer/fees-and-regulations/tuition-fees/graduate.html#tuition 14 Vancouver Community College (April 2015). T2202A Frequently Asked Questions, p. 7. Retrieved April 28, 2015 from: http://www.vcc.ca/deptuploads/t2202a-help.pdf 6
The end of the Education Guarantee overlaps with the cancellation of the GED in December 2014. Those with learning and other difficulties who struggled to complete the Adult Dogwood could take the General Educational Development (GED) test. The GED was a gateway to jobs and training for many marginalized people and is still listed as an acceptable qualification by some employers and trades programs. BC is the only province in Canada to cancel the GED. What are the consequences and risks of the tuition fee policy? Undermining the BC Government s own jobs strategy. As stated in the Developmental Outcomes Student Survey (2013), 70% of ABE students go on to further education in Post- Secondary Institutions 15. For example, VCC Developmental Studies graduates frequently transition into Healthcare Assistant and Nursing programs, which represent high demand jobs in British Columbia. It is unclear how the goals of the BC Skills for Jobs Blueprint can be realized if people cannot afford to meet the pre-requisites for in-demand training spaces. The creation of a large cohort with few education and employment options. The longer people are out of school, the less likely they are to go back. Making basic education an expensive commodity that is out of reach to non-graduated youth over 19 creates a risk that they will not move back into the public post-secondary education system. The re-framing public education as a commodity. The ABE tuition policy ushers in a public education system that does not support the basic education needs of the population. By allowing public post-secondary institutions and school districts to make their own decisions about who gets access to their educational services, the government is avoiding its responsibility for access to a basic education that articulates with living wage employment, further training access and citizenship rights. Many adult learners have reminded elected officials in protests to this policy and other cuts to ABE, that they too are taxpayers and citizens 16. Perpetuating inequalities across the province. 2014/2015 Ministry of Advanced Education Letters of Expectation to teaching universities no longer specify the delivery of Developmental programs. These letters do, however, specify the expectation to expand International Education and to adhere to other government priorities. Since December 2014, PSIs are also given discretion over what if any tuition fees they will charge to adult basic education students. This creates inequalities in access to basic education across the province that can result in regional distortions in employment rates and opportunities for further education. In addition, many adults who participate in ABE are raising children who attend public schools. When we shut this economically active cohort out of public-funded post-secondary education we exacerbate income inequalities that hurt the educational outcomes of children and their families. 15 Government of BC (2013). Developmental Student Outcomes Survey. p. 8 http://www.aved.gov.bc.ca/abe/docs/2013-developmental-student-outcomes-survey-report-of-findings.pdf 16 See the over 70 letters submitted by adult learners to the Vancouver Board of Education during 2015/2016 budget consultations. http://www.vsb.bc.ca/sites/default/files/15apr27_cow_submissions%20received_0.pdf 7
i Acknowledgments I would like to thank Shauna Butterwick, George Davison, Lynn Horvat, Jan Weiten and Janet Zlotnik for contributing data and feedback that improved this document. Any errors are my own. 8