THE EDUCATION REFORM - AND MANAGEMENT SERIES

1',4 ~~I S5L17 Public Disclosure Authorized

EDUCATION REFORM IN AUSTRALIA: 1992-97

A Case Study

Public Disclosure Authorized Susan Pascoe Robert Pascoe

February 1998 Public Disclosure Authorized Public Disclosure Authorized

EDUCATEON T H E W O R L D B A N K Education Reform in Victoria, Australia: 1992-1997

a case study

Susan Pascoe Robert Pascoe

February 1998 CONTENTS i. Foreward ii. Acknowledgments iii. Executive Summary Pages:

Chapter 1: A Sociopolitical Context for Victoria's Education Reform I Government in Australia I Victoria 2 From managerialism to "the Contract State" 2 Reform as "a sea of change" 4

Chapter 2: Reforming Schools 5 The context for school reform 5 Nature of the reform 6 Reform initiation 9 Initial reform period 10 Implementation strategies 11 Reform impact 15

Chapter 3: Flagstones of Reform 16 A window of opportunity 17 Budgetary pressure 17 Reform expenditure 17 Policy and technical expertise 17 Critical alliances 18 Evolutionary approach 18 Congruence 18 Structural change 19 The future 19 Preconditions for lasting reform 20 Reflection 20

Appendix A: Maxims for Reform 21 Appendix B: Reforming Tertiary Education in Victoria 22 Bibliography: Interviews, Printed Materials, Newspaper Articles 24 About the Author 32 EducationReform in Victoria,Australia: 1992-1997

FOREWARD Educationreform, once primarilya school-by-schoolendeavor, is increasinglya system-wideventure, in which small-scaleinitiatives give way to ambitious,sweeping transformations of rights,roles and responsibili- ties. Politiciansdisplace educators as the architectsand strategistsof change. Calls for efficiency,choice, and accountabilityresound. No longercontent with small-scale initiatives that focus on curriculumand instruction, policymakersin English-speakingcountries are rewritingthe rulesfor financing,organizing and deliveringedu- cation. Whilestudies of educationalchange at the local levelabound, there are few in-depth studiesof the imple- mentationof systemicreform. This studyof change in Victoriahelps to fill the gap. Pascoeand Pascoe have gone "behindthe scenes"to tell the story of the wholesaleschool reform from the perspectiveof the planners and implementers.This is a case study,not only of the change itself, but of the changemakers-theirpurposes and tactics. In the certainty of their success,the strategistsspeak with candor about how they managedto remakeeducation in Victoria. As the case study unfolds,we learn of a skillfullyexecuted reform, driven by a New Right ideology and implementedwith the resolve of a new governmentdetermined to maximizethe advantageof a large electoral majority. The case study is cogent and even-handed. The authors crisply recount, but do not celebrate, this story of success. They balance the confident voices of the Victorian policymakers,with opponents' cautious remindersthat, althoughthe reforms have been implemented,their consequencesfor students are not yet known. The scale and complexityof the Victorianreform makes it of interestto policymakersworldwide. While this studydoes not pretendto offera reformrecipe for all situations,it does assuredlyoffer valuableinsights for policymakers,practitioners, and citizenseverywhere. SusanMoore Johnson Professorand AcademicDean HarvardUniversity, Graduate School of Education i i The EducationReform and Management Series, Vol. 1, No.I

ACKNOWLEDGMENTS The authors wish to acknowledgethe kind cooperationof those education policymakers,advisers and commentatorswho agreedto be interviewedand quoted in this report.The authors interviewedthe Ministers responsibleforthe educationsector portfolios, the Premierof the State,ministerial advisers (past and present), seniorbureaucrats, practitioners drawn into the planningand implementationof the reform,and academicswho were consultantsor commentators.In all, more than 25 such people were individuallyinterviewed, transcripts of interviewprepared and checked, and pointsof ambiguityclarified. Quotations and citationsfrom this interview materialare giventhroughout in italicsso as to distinguishit clearlyfrom the printed sources.We also followthe conventionof oftenusing the job titles of individualsrather than their names,in orderto improvethe readability of this study. Most intervieweesare identifiedby name or job title; someremained anonymous. In accordance withqualitative research techniques, the interviewmaterial was triangulatedto confirm its accuracy.Of course, muchof the materialis the perceptionof interviewees,valuable because their beliefs andassumptions underpin the reformprocess. The interviewswere set in the contextof the publishedand printedmaterials relating to the reform. Technicaland editorial assistancewas providedby Greg Berechree,Richard Carter, Kate Cunningham, Sharon Humphreysand Carla Pascoe. Education Reform in Victoria, Australia: 1992-1997

"A prince... shouldappear to be compassionate,faithful to his word, kind, guileless,and devout. And indeedhe shouldbe so. Buthis dispositionshould be suchthat, if he needsto be the opposite,he knows how. You must realizethis; that a prince, and especiallya new prince cannot observeall those things whichgive men a reputationfor virtue, becausein orderto maintainhis state, he is often forcedto act indefiance of good faith,of charity,of kindness,of religion.And so he shouldhave a flexibledisposition, varying as fortune and circumstancesdictate." Machiavelli,The Prince, 1514(Penguin Classics, 1961, p.56) iv The Education Reform and Management Series, Vol. 1, No. I

EXECULHVESUMMAARY A. StrategicAssumptions Of TheReformers Victoria'snew center-rightGovemment ofOctober 1992 had a reformagendabased around five "principles": * a preferencefor marketmechanisms in the provisionofpublic services. * a focuson clearaccountability for resultsfor publicagencies. * the empoweringofthe consumersof publicservices. * the minimizingof govemmentbureaucracy forconsumers. * a professionaland business-likemanagement of public agencies.

These"principles" amount to a rethinkingofgovernment's role away from "managing" a politytoward entering into a "contract"with its citizens.

In schooleducation these refomn assumptions led to a reform whichwas both systemicand structural: * govemmentschools were offeredsite-based management. * schoolsand principalswere made more accountable. * parentswere givenincreased access to localdecision-making and betterknowledge about their children'sacademic attainment. * thecentral bureaucracy was reducedin sizeand authority. * schoolcouncils and principalswere givenincreased power "inside the schoolfence". B.Commonalities and DifferencesAcross Education Sectors Thesame principleswere applied in tertiaryeducation, but becauseAustralia is a federalsystem, these parallel reforms occurredin a differentsequence and with differentmechanisms. (Refer Appendix.)

Sector Vocationaleducation Higher Education and training(VET)

Earlier cycle of reform 1989-92 1987-91 (national) Current cycle of reform 1993-present 1996-present in Victoria

I .Preference for market Development of an "open training market" Support for private campus at Docklands mechanisms

ccounta lity or nnua ontracts with training Land Grants for new results Institutes campuses 3.Empowering of Rationalized Industry Training Boards Greater Student choice consumers and State Training Board by convergence of VET and higher education A.Minimizinggovernment Reduced size of head office Political support for Federal bureaucracy cuts in total funding 5.Business-like Amalgamations of training Institutes, Legislative changes to management with each other and with universities membership of governing _ . ______I councils Education Reforn in Victoria, Australia: 1992-1997 v

C. The Key Players

Schools VET Higher Education Agenda-setting academics industryleaders vice-chancellors bureaucrats unionofficials academics unionofficials nationalbureaucrats federal bureaucrats student leaders unionofficials

Policyframing academics state bureaucrats vice-chancellors bureaucrats InstituteDirectors and federal bureaucrats principals Councils universitycouncils

Implementation bureaucrats state bureaucrats vice-chancellors principals InstituteDirectors and local bureaucrats Councils

D. Management Of Key Players

The reformersin schooleducation excluded union officials from the processand enlisted school principals as their change agents.

To minimizelabor disruption,teachers were promised protection from direct staff reductionsand givenfinancial incentivesto eitheraccept performanceevaluation or retire early.

The Victoria governmentdeveloped a comprehensivecommunications and feedback strategyfocused on key allies (principals)and the generalpublic. This strategy was maintainedbeyond reform launch - i.e. throughout implementation.

In tertiary education,unions and studentorganizations were excluded. Institute Directors, vice-chancellors and their councilswere enlisted. vi The Education Reform and Management Series, Vol. 1, No. I

E. Stages Of The Reform Process

Schools VET Higher Education * schoolsclosure * anationaltrainingreform * theDawkins reform of agendawas alreadycommenced 1987-91was already ernbedded * federalcuts to university funding Implementation * opt-inopportunity to *private providerswere * Statesupport for join Schools ofthe Future registered to compete for private campus at * problems were "debugged" publictrainingfunds Docklands inevolutionarystyle * the Institutes were put * MinisterialReviewof * theprincipalswere on annual contracts universitycouncils enlisted as local change agents * head office was downsized * obstructions were pre-empted * Institutes were amalgamated * communication channels were controlled * effective monitoring processes were introduced

Impact * cost-efficient; no * cost-effective * still in pmgress evidence as yet of improved educational effectiveness ______I______i Education Refonr in Victoria, Australia: 1992-1997

1.OASociopolitical Context for Victoria's issues such as curriculum, assessment and professional Education Reform development.The Victorian reform involved these elements but4in addition,involved a reshapingofthe institutionalbasis Reform to school educationin the AustralianState of of educationalprovision: schoolswere closed or merged Victoria provides a useful case study for investigating to rationalize the stock of sites and concentrate implementationstrategies, as the pace, scaleand complexity resources on those that remained; the teaching force ofthisreform is unprecedented(Angus 1995; Caldwell 1996b; was reduced by 20 per cent; the bureaucracy was Oddenand Odden 1996).In the periodfrom 1992to 1996, downsized and reorganized, industrial practices were thefollowingoccurred: reshaped and power relations changed. * administrative,financial and personnel functions This present study concentrates on the introduction were devolvedfrom the centralbureaucracy to of site-based management,' and the rationalization of localschool sites. primary and secondary schools (referred to in this * accountabilityand standardssetting were document as "schools"), because they are the most centralized, comprehensive of the reform elements, they encompass aspects of other reform processes, and they * standardizedassessment was introduced, complement one another. Vocational Education and * schoolswere mergedor closed;the numberof Training (VET) and highereducation will be considered teachersand bureaucratswas reduced. in relation to reform in school education. Despite operating in different funding and policy contexts, VET rthefinal-yearcredentialwasmodifiedand and higher education reforms are of interest as they were roughly contiguous to the reform in school * new optionswere established for the swelling education,they involved similar policy imperatives, but ranks of studentscompleting 13 years of they involved somewhat different approaches to schooling, implementation? - a comprehensiveliteracy strategy was launched. * changesto the remunerationand careerpaths of 1.1 Government in Australia teachersand principalswere introduced. Australia is a continental nation in the Asia-Pacific iregion established by the British as a penal colony in The Victorianexperience of educationreform provides 1788, resulting in the dispossession of its Aboriginal some interesting lessons for scholars, educators and people. Although Anglo-Celtic in origin, successive administrators.This styleof reformis structuralinnature. It shares with systemic initiatives certain attributes: Site-based management (SBM) is the term given to local decision- comprehensiveness,coherence, co-ordination, and clear making in much of the literature. The term "devolution" is outcomes.Systemic reforms generally focus on educational commonly used in Australia.

2 Reform in tertiary education is summarized in Appendix B.

Table 1.1: Commonwealth/State responsibilities for education

Sector Policy Funding Delivery

Schools Shared Mostly States States

VET Shared Mostly States States

Higher Education Federal Federal Shared 2 The Education Reform and Management Series, Vol. 1, No. I waves of migration-including the 1850s gold rushes the relationship of the unions with government was and post-World War Two migration-have resulted in stifling progress (IPA 1992; Victorian Commission a diverse ethnic mix. A federal system of government of Audit 1993; Gough and Taylor 1996; Cain 1995; is formalized in Federal and State Constitutions with The Age, Dec. 27, 1993, June 24, 1996). With the the Commonwealth Government maintaining sole election of a center-right government in Victoria in responsibility for areas like Defense, the October 1992,4 a radical reform agenda was put in Commonwealth and States sharing responsibility in place. Immediately following the election, the new areas such as Health and Transportation, and State Premier made a reduction in the State's level of Governments having sole responsibility for areas such debt and a restoration to its former AAA rating from as Police and School education.3 international credit agencies key priorities. There was much talk of the "black hole" of debt inherited The Federal Government has almost exclusive fo h eiu oenet 5 Alhueod taxation powers. School education is funded from State andreffitorf n coffers,a disb t of were levied A$100 per annum in 1993 and 1994. fromtheiFederalGovefnment. Vocationaleducation The new Government had had a decade in frmcteiv FmixtureoffederalGoerm nt.Vocatiuna e , tion Opposition to mature its policies and to consider the receives a mixture of federal and state funds, whileleiatvansruualcngseddtonbe higher education institutions are funded directly from legislative and structural changes needed to enable federal sources. The result is that the three sectors of their implementation. It was prepared, energized and education operate in different policy, funding, and resolute. administrative contexts. 1.3 From managerialism to "the Contract State" 1.2 Victoria Political scientists such as John Alford and Deirdre The nation's south-eastern State, Victoria, was led O'Neill (1994) have identified this new style of by a center-left government from 1982 to 1992. During government as contractarian, because it seeks to this period some business and financial institutions in replace the managerial style of the 1980s with a new Australia (as in other industrialized countries) engaged public service ethos which reconceptualizes in a number of speculative and high-risk ventures. By government as a contract between the state and the the late 1980s,inflation, interest rates and unemployment citizenry. The Australian center-left governments of wereall high, as were levels of individualdebt. Australia the 1980s,State and Federal, enthusiastically embraced slipped into recession in 1989. In Victoria a savings corporate planning, with its emphasis on objective- and loans company collapsed, leaving depositors setting, program budgeting and outcomes funding. ..xposed, the State bank was pronounced unviable and Grants to schools were tied to outcomes; the famous put up for sale, and the government's Victorian Dawkins reform in higher education dissolved the Economic Development Corporation was under polytechnic/universitydistinction by means of a national scrutiny for mismanagement. There was a pervasive funding formula; and in vocational education a national sense of financial crisis. Unemployment was several 3 In addition to the six States, there are two Territories in Australia- points higher than in other States across Australia; the Australian Capital Territory, and the Northern Territory. For Victorians were migrating at a noticeable rate to other easeof reading, the term "State" will be used to include these lparts of the nation; investor confidence and new Territories. business start-ups were at an historic low. I The center-right Government is a coalition of a majority conservative democratic party, the Liberal Party, and a minority During the 1992 election the opposition center- rural-basedconservativeParty,theNationalParty,oneoftheworld's right parties labeled the ailing Government "The last survivingfarmers' parties. The center-left Party is the Australian Guilty Party!" So effective was this slogan with Labor Party, Australia's oldest, established in 1891. the electorate that it was re-used successfully in 5 The Independent Review of the State's Public Sector Finances, the 1996 election. Coupled with the view of financial released in September 1992, confirmed the debt problem and mismanagement was a widespread perception that recommended firm action (Alford and O'Neill 1994). Education Reform in Victoria, Australia: 1992-1997 3 body superseded the State training systems.6 This individuals to optimize self-interest ahead of all managerial approach was needed, it was argued, to other considerations. modernize public education because the economic * service delivery is separated from policy (the well- demand for stronger education outcomes was growing known distinction between "steerers" and faster than the available public funds. As elsewhere in "rowers").' the world, greater private or household investment was * management is decentralized and access to power needed. In schools this meant reducing government for big government or big unions is curtailed. inputs; in vocational education it meant more private providers; and in higher education Dawkins introduced The political warrant for this public service the Higher Education Contribution Scheme (HECS), a reform began early in the life of the Kennett tax-based student fees system which was linked to Government with the findings of the Victorian equity considerations. Commission of Audit, a broad review of the State's But the new center-right governments of the l 990s financial situation. This Commission of Audit found wished to accelerate the pace of public sector reform that the level of public expenditure on education, in a contractarian direction. Their political leaders health and transport was far too high, using a argued that the reformers of the 1980s could go no comparative analysis across the Australian States further because elements within the public service had similar to the later work of the Industry Commission. the industrial and organizational power to hold back The new Government resolved to carry out reform more radical change. It was argued that vested interest across several portfolios simultaneously, rather than groups such as public servants and unions could introduce change incrementally. In the words of the routinely "capture" the policy agenda by putting their incoming reformist Premier: collective interest ahead of the public good.7 Instead of trying to correct education The center-right reformers in Victoria enunciated or correct health or correct industrial five basic "principles", which are, in fact, a "belief', relations or the economy, we decided that followed by four "goals": it was a matter of strategy to address all * a preference for market mechanisms in the areas at once. That way the vested interest provision of public services. groups were divided. They were trying to protect their turf on education, or they * a focus on clear accountabilityfor results for public worried about transport reform or changes agencies. to workers compensation. And that proved * the empowering of the consumers of public to be very effective, even though we had a services. great number of demonstrations (Kennett * the minimizing of government bureaucracy for 1997). consumers. * a professional and business-like management of There was little overt reference to the parallel public agencies.8 reform occurringin other Anglophonecountries, notably

6 John Dawkins was a reformist Commonwealth Education Although these may seem superficially to follow Minister,1987-1991, as explained in the Appendix. the managerialist style ofthe 1980s, each marks a new 'Alford and O'Neill 1994; Victorian Commission of Audit 1993: conceptualization: IPA1992; Richards 1997; Hayward, 1997. * public agencies tender for work; work is not IP192Rihrs97;Hyad 97 merely "outsourced"e f Jeff Kennett,intro. 1993 ManagementImprovement Initiative msfor Victoria,October, mimeo, n.p. 134pp], kindlysupplied by the * an outcomes approach is replaced by an emphasis Department of Treasury and Finance.

on outputs. '9 The concept of a separation between "steering" and "rowing" * any nexus between public good and private was popularized in David Osborne and Ted Gaebler's 1993 best- investment is broken, by promoting the right of seller,Reinventing Government (Plume Books, New York). 4 The Education Reform and Management Series, Vol. 1, No. I the UK, Canada and New Zealand, with most debate reform agenda overwhelmed a depleted Opposition and centered on the question of how the Victorian reform stretched to the limit the resources and resolve of challenged the Westminster tradition of the public Trades Hall (the central agency for Victorian trade service. The view of the Government was that this unions). There was little incentive for the new was common sense, not ideology. A genealogy of New Government to seek the allegiance of teachers. Their Rightthinkingand its impacton public policyin Australia union had campaigned for the center-left party during reveals thatthe weakening of Keynesian approaches the election, and they were vulnerable to the was paralleled by a increase in the impact of New Treasurer's knife, as Victoria had the most generously Right influentials such as Hayek, Friedman and funded school system in Australia. More broadly, EBuchanan."The primary concern of the New Right unionism was in decline in a traditionally unionized was not to support one political party against another, country.'" but to reconstruct and control the terrain on which all It was difficultto raise broad-based opposition from mainstreampolitics took place" (Marginson 1997b:79). a community that had elected a new government The Public Sector Management Act 1992 reduced the specifically to undertake crisis management. The number of government departments from 22 to 13, put Government monitored public opinion carefully and all senior public servants on contract, and gave the attempted to balance tough measures with public Premier direct authority over the public service as the diversions (such as a motor-racing Grand Prix, arts formal employer of public service department heads. events, a new casino, and sporting events). In addition to these structural changes, the central agencies introduced a Management Improvement 1.4 Reform as "a sea of change" Initiative to co-ordinate change across portfolios.10 and Changing metaphors the Premier understands his the Premier establ'ishedthe remir esablihedhishis ownwn mechanismsmchansms foror overnmentChngn to meahoshave produced th,,merudrtadi "a sea of change" which monitoring the implementation of reform. He created Gvemmen to ave preas of ctange" which the State Co-ordination and Management Council for washes across all areas of Victorian life, not merely regular meetings with department heads and education, and across jurisdictions. Even his critics restablishedtheepratings wh depa entihisead acing concede that Kennett is arguably Australia's most established the practice of appointing himself acting reformist political leader. A distinctivelyVictorian style Minister in another Minister's absence (Kennett 1997). eoms oiia edr itntvl itra tl M of reform is evident even in those two education sectors, The personal style of the new Premier was VET and higher education, which are more a matter important in maintaining commitment to the reform of Commonwealth policy direction. It is also obvious agenda. A long period in Opposition strengthened his in all other areas of State responsibility reformed during resolve to lead a reformist government. the first Kennett Government (1992-96). In Health, We think long term, We are not about today or decentralization has meant the replacement of a single tomorrow.To understandthat you have to central authority with regional networks of hospitals appreciatethat a coupleof us, me included,have which negotiate separately with the relevant unions been in Parliamentsince 1976 or before. Wehad and professional groups. Health funding is delivered been Ministers before, we had been Opposition on a formulaic "case-mix" approach, which Leaderstill thecows camehome. If wewere going presupposes a regularity of costs for each type of to get back into government we were going to medical procedure. The control system for the reformfor all the right reasons rather than the emergency services of the State has been tendered next election (Kennett 1997). out to a private company. The State's utilities (water,

Thiswas a united,disciplined Government prepared "I The Departmentof Premierand Cabinet,and the Department for office on day one, with a long-termvision. It was of Financeand Treasury. determinedto deliverreform across severalportfolios " From 1990 to 1995 the number of paid-up unionistswas simultaneouslyand adopted co-ordination mechanisms decliningat the rateof about 100,000a year,according to Changes to enablethis to happen. Adoptinga government-wide at Work,a report fom the federal Departmentof Workplace Relationsand SmallBusiness, released in August 1997. Education Reform in Victoria. Australia: 1992-1997 5 gas, electricity) have been divided into smaller inheriteda large, powerful and centralized bureaucracy corporations and then sold off. The State's which assigned staff to schools, handled their financial Transportation system (buses, railroads, trams) is in administration, and provided regionally-delivered the process of a similar privatization. support services such as visiting teacher services for disabled students. There were minimal requirements This wide-ranging reform agenda was justified not fo aconaii.ooemnt1 n eeebde by reference to overt theoretical warrant, however, as orruns. iltyt goa g wastrefi,, overruns.4 With the lowest teacher-pupil ratios in the was true of New Zealand and elsewhere, but by much more pragmatic arguments summed up in phrases such nation, and the greatest number of small schools, it as "competitive", "client-focused", "user-pays", and was argued in two influential reports that gross "efficient". This is entirely consistent with the inefficienciesexisted (IPA 1992;Victorian Commission overwhelminglpragmatic'qat Auof Audit 1993).'5 These reports went further, indeed, politial cult The tecic qala iy advie givn to allege a "capture" of decision-making processes, political culture."2The technical and policy advice given lreytruhidsra gemnsetrdit at the lower levels of government machinery was lreytruhidsra gemnsetrdit between education unions and the government, which informed by international discussions, as academic tc . . . consultants were major players in the "agenda-setting efficient work practces. The other effect of these (Muller and Headey 1996), but long before it reached inefient" wor prateds to fcu tio te the level of political action such theoretical agreements, It was argued, was to focus attenion on constructions were well and truly repackaged into populist forms. The sense of irresistible reform across The perception of an unproductive relationship many sectors at once during the first Kennett between education unions and the previous Government made the center-right Government's Government was particularly strong (Gough and reforn in school education seem all the more inevitable. Taylor 1996; Hill 1997; Keating 1997; Muller and this is where our analysis is focused. 1997; Richards 1997; Thomas 1997). Various reforms were introduced during its decade in power, 2.0 Reforming Schools such as a new senior school credential, curriculum profiles and frameworks, and a prominent role for 2.1 The contextfor school reform school councils. However, when site-based It is compulsory for Victorian children to attend management was proposed in 1987, it met with school from a preparatory year to Year 10 (a range of strong opposition from the education unions, which schooling therefore called P-10). Students enter their preparatory year between 4.5 and 5 years of age. 12 There isavery longliterature on the lackoftheoretical discussion Elementary schools educate students P-6 and high in Australianpolitical life. All Parties, Left and Right, resist the use schools 7-12. In the final two years of schooling, of "theory", and come to grief politically when they ignore this students undertake a forrnal curriculum known as the rule(spectacularly in the case of the center-right Parties in the VCE (Victorian Certificate of Education). There are 1993 federal election). now 1,664 public schools in Victoria, 1,270 of which 13 Inspectors and prescribed syllabi were phased out in the early are elementary schools. Seventy five per cent of 1970s. Victorianschoolchildren stay at schooluntil Year 12, 1' A report publishedby the Instituteof Public Affairs(IPA) in one-quarterof these go to universityand anotherthird September1992, authored by Mike Richards,documented the go on to training institutes. Presently, there are 25 habitualuse ofthe "Treasurer'sAdvance" over the decadeof center- Institutes of TAFE, that is, Technical and Further left rule to cover shortfallsin the education budget. Education consistently absorbed 10-30 per cent of the Treasurer's Education (offering technical training) and nine discretionaryfund during that period (IPA 1992:60-61). universities (three of which have large TAFE sectors withinthem) r 1 TheVictorian Commission of AuditReport sated that "Victoria within them). spent A$306m (15 per cent) more in 1991-92than requiredto In October 1992 the newly-electedGovernment providegovernment school education at the samestandard as the averageof all Statesand Territories"(1993: 74). 6 The Education Reform and Management Series, Vol. 1, No. I used their influence in Cabinet to crush the idea effectsonreform implementation. Thepositiveside was the (Gough and Taylor 1996; Keating 1997; Muller traditionof school-basedcurriculum; the negativeside was 1997). The new center-right Minister in 1992 theresistancetoextemalmonitoring.Akeyquestionforreform therefore determined to relate directly with implementersishowtotakeadvantageoftheformer,while employees and to bypass the unions.'6 overcomingthelatter. ][n addition, there was a close relationship 2.2 Nature ofthe reform between a number of parent organizations, the Therefom comprisedtwoparts,eachwithalabelwhich unions and the Government (Hayward 1997; Hill could be easily marketed: Quality Provision,Schools of 1997; IPA 1992). Indeed, the center-left Premier in the Future. the 1991-92period had risen politically from the power base of parent school organizations.The effect of these Site-basedmanagement was introducedunder the relationshipswas to establish a consensual,consultative framework of Schools of the Future. The style of decision-making. The former Government frameworkcomprised resources,accountability, knew it had many schools too small to offer a curriculumandpersonnelffunctions.Schoolsofthe comprehensive curriculum and needed to rationalize Futureaimedto"improvethequalityofeducation (Keating 1997; Muller 1997; Peck 1997). However, forstudentsbymovingtoschoolstheresponsibility rationalization would have affected teachers' jobs and to make decisions, set priorities and control the community base of schooling, issues dear to the resources.SchoolsoftheFuture makemoreefficient hearts of unions and parent organizations.'7 Given their use ofresourcesforthe benefitofstudents,provide allegiance to the previous Government, the a more professionalworkplace for teachers, and organizations representing parents were in a weak increasethelevel ofcommunityknowledge of, and position to articulate parental concems about cutbacks. satisfactionwith, schools" (DSE 1995)?2 These power relations at the policy level were There are four elements in the Schools of the mirrored at the school, where union membership was Future framework: high,'Shigh," and where teachersIGereteachers were actively involved " The Minister's experienceas a senior executive in private in decision-making, both at faculty level and on industry provided a precedent for him. "Elizabeth [an industrial school councils (Kelly 1997; Paul 1997; Thomas town in South Australia] was absolutely strike-ridden when he 1997). In this climate many principals felt wentthere,so hejust went aroundthe unions. He refused to talkto constrained and unable to manage their school. As the unions, he wentto the shopfloor, had meetings on thefloor and one principal put it, "We were marginalized - at communicated directly with them" (Peck 1997). the beck and call of vested interests in the '' The former Government's District Provision strategy was a school" (Paul 1997). There was a strong culture precursorto the Quality Provision Framework implemented in of school-based curriculum development, with 1993. District Provision encouraged collaborative provision and teachers having substantial control over the design amalgamations, but lacked the teeth of its successor policy. and delivery of learning programs. Odden and I' Interviewees estimated membership at 90 per cent in 1992, with numbershalving in the followingyears, due to cuts in the Odden ( 1996) note this high Involvement framework teaching force and the cessation of automatic payroll deductions. and attribute much of the success in implementing 19 There is anecdotal evidence that the Western Australian the new curriculum arrangements to this culture. phenomenon of teachers rejecting the role of government in Accompanying this degree of professional developingpolicy and establishingpriorities(Angus 1995) occurs autonomy was a culture of resistance to external in Victoriaaswell. monitoring or assessments (McGaw 1994; Masters 2(1 Odden and Odden (1996:29)note that unlike the US the Victorian 1994; Pascoe 1995b).' 9 No longer were there School Councils are but one of several decision-making bodies at inspectors, and external assessment was confined the school: "It was the non-Council teams that provided inspector-s, r widespread involvement of all teachers in important decision- to the final year of schooling. In other words, two making roles." While Schools of the Future increased the role of sides of teachers' professional culture had opposite School Councils in administrative and financial matters, teachers retained involvement on curriculum and program issues. Education Reform in Victoria, Australia: 1992-1997 7 i) Resources Framework: The resources for students in years P-10. The CSF incorporates both framework allocates funding to the school via the content and process standards. Student progress is School Global Budget. Ninety per cent of the assessed against the CSF in a program of statewide school's recurrent budget was now to be directed assessment, the Learning Assessment Project (LAP). to the school site for salary and operating costs, The LAP assesses students in English and Mathematics calculated on a system of per capita funding. annually and in one other key learning area on a five- Individual schools would have the flexibility to yearcycle. In addition to these new changes, the Year allocate all resources in accordance with local need. 12 credential, the Victorian Certificate of Education Schools were supported in the introduction of local budgets with increased funding for administrative (VCE) wasrevised and reaccredited. The introduction support and with a software package (called of explicit standards via the CSF set a yardstlick for CASES) to assist in the monitoring of financial, teachers and the community, and made public what personnel and administrative functions. Devolving had been the professional concem of individual teachers financial management to the local level aimed to and faculties. The LAP reports to parents took the empower principals and school councils to set and locus of information control on student progress from allocate resource for local priorities, to separate the teacher hands. It gave parents "objective" feedback purchase of education from its provision, and to on their children, gave schools feedback on their decrease the need for a central bureaucracy. performance vis a vis other schools, and gave the system information on overall attainment. In other nowAhreeelementstothaccountabiityFramework: Therew words, in government schools the LAP results became now three elements to the accountability firamework: another instrument of accountability when added to the school charter, an annual report and a triennial school charters. review. The school charter is developed by the school council and is essentially a contract between iv) People Framework: The career structures of the school and the government regarding the learning principals and teachers were addressed in the people that will take place, and the way it will be monitored framework. Staff selection was devolved to the local and reported to government. Via the school charter level and professional development was provided to the council establishes the priorities for the school build capacity in principals for their expanded roles, as and the means of achieving them. Each school is well as to skill teachers to implement the curriculum then required to report annually to government and Improvements. A Professional* Recognition. Program to undergo a more comprehensive review of its (PRP) offered teachers the capacity to opt in to a operations every three years. The accountability system of enhanced pay and career structure including framework gives parents, via the school council, annual appraisal. The decision in 1995 to allocate to greater say in the conduct of the school, and each school site A$240 per teacher for professional increases the requirement to account for the development meant that appraisal could feed into enterprise to government. In extreme cases, a Improvement* and provide the basis for promotions principal could be stood down, but in practice this based on merit rather than seniority. Local staff has yet to occur, thanks to the turnover of principals selection, appraisal and professional development gave associated with the reform. The Office of Review the school greater control over their human resource within the Department of Education can require that and greater flexibility in responding to local need. charters be rewritten, and the objectives not attained The Schools of the Future framework reflected in one year be carried over to the next, The Scol ofteFtrefaeok,elce the five major "principles" underpinning public sector reform in Victoria: iHi) Curriculum Framework: The curriculum reform made standards for student attainment quite * a preference for government as the purchaser explicit. The key elements ofthe curriculumframework of services rather than the provider via school were the introduction in 1995 of a Curriculum and global budgets, local selection of staff, and StandardsFramework (CSF) in eight key learning areas outsourcing of professional development. 8 The Education Reform and Management Series, Vol. 1, No. I

* an increased emphasis on accountability.2 ' support kit which included pro-forma letters, draft * an empowering of consumers (parents) via media releases, and answers to typical questions. It strenthenee , i schoolulwas the Parliamentary Secretary's role to maintain standarenenedschool cepouncils,explicitleaing liaison with backbenchers and elicit their support for decisions from the Quality Provision process (Elder * a contract between government and the school 1997). This produced an effective political via the school charter. combination, with the Parliamentary Secretaryworking * professionaland businesslikemanagement of public behind the scenes, and the Minister retaining the right agencies. of arbiter in difficult cases. While having the same rationale as its antecedent policy District Provision, v) The Quality Provision strategy:~ this policy revealed a determination to succeed and a The introduction of site-based management tactic for dealing with obstruction. occurred during the period the Government Not all Victorians applauded the Government's implemented another significant reform, the Quality resolve to rationalize its stock of schools nor its tactics Provision strategy, which aimed to reduce the number for ensuring success. The Executive Director of the of small inefficient schools in Victoria.Schools ofthe Victorian Council for Civil Liberties critiqued the Future was the centerpiece of the Government's Government's approach to handling obstruction to the reform. On the other hand, the simultaneous Quality closure of Northland Secondary College-a school for Provision strategy was introduced for essentially indigenous students. When parents successfully pragmatic reasons, to cut the budget deficit, to reduce complained against the closure to the Anti- the number of small schools, and to consolidate the DiscriminationTribunal, the Government took the case stock of schools to those of sufficient size to offer a to the Supreme Court (unsuccessfully) and then to the comprehensivecurriculum. Immediately upon attaining full bench of the court (again unsuccessfully). The Government, fifty schools were closed without Government reopened the school and then enacted the coimmunity consultation. Disquiet was localized but Education Amendment Act which prevented school vociferous. In one case protests became violent and communities reviewing government decisions to close the substance of front-page news stories. schools (The Age, Oct. 28, 1997). Only a handful of A more consultative approach was designed for closures attracted this level of community anger and the Quality Provision strategy. The strategy was to action, and these largely related to those decisions establish local taskforces with the Minister retaining taken without consultation in the first few months of the authority to intervene. The Quality Provision government.Arguably the public consultationcombined document stated that "where the Department perceives with behind-the-scenes negotiation was sufficient to that students are being disadvantaged, because a school persuade local communities to accept unpalatable or group of schools is not willing to consider change, decisions. recommendations considered to be in the best interests Quality Provision could in theory have been of students will be made to the Minister" (DSE 1993). introducedwithoutSchools oftheFuture, butthe decision Schools in all electorates were involved in the to implementboth together was a powerful one, as it left internal audit process and considerable effort was the Government with an educational reform in a expended by the Minister and Parliamentary Secretary to ensure the inevitable community backlash was 21 While schools' accountability to the government increased via minimized. The Parliamentary Secretary and the charters, annual reports and triennial reviews, the accountability Ministerial Advisor met with every government ofsenior bureaucrats increased with annual performance appraisal Member of Parliament to brief them on the likely and, in the case of the Department Heads, direct reporting to the outcmesQulityProvsionTaskorcef intheir Premier as well as the relevant Minister. Annual reports to outcomes of Quality Provision Taskforces in their Parliament, includingthe independentAuditor-General's report, constituencies. They developed an information and are the established mechanisms for the government to account to the electorate. Education Reform in Victoria, Australia: 1992-1997 9

rationalizedsystem. They in turn felt constrained by industrial agreements that set work practices and gave local committees 2.3 Reform initiation considerable decision-making power. The Principals Associations wanted to get control of schools "inside In the eighteen months prior to the election, the the school fence" (Paul 1997). They openly discussed then Shadow Minister consulted with principals and their frustrations with the future Minister, who gave academics; he and the future Premier were briefed them a sympathetic hearing.23 by the bureaucracy; he also visited many schools. He appointedanadviserandbeganworkingondeveloping Within hours of being sworn in, the new the essential elements of his reform package. Having Government removed the public service heads of 13 determninedthat it would take fresh blood to implement key portfolios, including Education. The task for the the reform agenda, he confidentially evaluated Education Minister was to introduce a program of Australia's senior education bureaucrats and then held education reform during a period of fiscal constraint. private discussions with the chiefadministrator ofthe He moved swiftly to take up residence in his new office Northern Territory regarding a secondment to the and had his new head in place four days after the position of that State's Secretary of Education. election. All portfolios were ordered by Treasury to make immediate budget cuts of 1.5 per cent. The This preparation was axiomatic to the later transmittal advice given to the incoming Minister and successful implementation of the reform effort. It his staff revealed a worse budget situation than enabled the Minister to develop the essential expected. The Ministerial Adviser recalled the shock elements of his reform agenda based on a first-hand of that discovery: knowledge of schools. As his Ministerial Adviser explained later: There was a "black hole" of approximattely 40 milliondollars of conmnirtentsforwhich there Having spent two years talking to was not money in the education budget... The people and visiting schools we, in fact, money could have come from consolidated identified that the structures supporting revenue,but we didn't have that option; we had teachers were the problem and that teachers to find the funds from within the education in schools and principals weren't budget (Roskam 1997). supported... So the Minister was fortunate The imperative for budget cuts was such that the because he had a very "schools up" vision, Minister had to determine whether to concentrate on but he was able to combine that with a strict these first and then enact his long-planned reform, or whether to undertake the two simultaneously. The This productive period in Opposition was shared Minister opted for the latter. The backlog of with the future Premier, who had a personal interest in maintenance on schools,24 the deemed inefficiency of education. The bond forged between the two translated into confidence and trust during the reform period. For 22 The Minister was then aged in his sixties and unlikely to be a a while the would-be Premier lost his position as Leader leadershipthreatto the Premier, thereby removing what is apersonal of the Opposition; he used this time to get briefings obstacle for many close political relationships. from education bureaucrats and discuss reform plans 23 The Principals Associations did not formally associate with the future Minister (Hayward 1997).22 themselves with the center-right Parties during the election. Their leverage arose from their critical role in the implementation of site- A critical alliance of mutual interest between basedmanagement. The mutual interest of the two wasreflected in principals and the future Government was also thepay rise for principalsin 1993,and the support of the Primary PrincipalsAssociation for the controversialLearning Assessment established during this period out of office. If the Project in 1995. concept of site-based management was to be realized, the Minister needed the active support of principals. 24 This problemwas identifiedin the Instituteof PublicAffairs report (1992),Commission of Audit (1993)and McRae 1994. I 0 The Education Reform and Management Series, Vol. 1, No. I small schools, and the long-term aim of re-engineering Community groups and the media all schools with modern technologyprompted immediate concentrated on the budget measures and action on school closures. school closures, whereas they might have Immediately fifty schools were identified as been opposing the Schools of the Future unviable by a small taskforce of bureaucrats and reform (Hayward 1997). principals selected by the Minister. The decision to Not surprisingly, rowdy protests at specific school close them was taken without community consultation, sites which were to be closed attracted more media while later closures/amalgamationsinvolved community attention than the parallel process of decentralization. consultation under the Quality Provision strategy. . . (jeneousvluntry deatrakgs w reofred The Ministercame to office with a well-conceived ytenerouDepartntary topduce tachgers tleave tfer policy framework, aspects of which were flexible and by the Department to induce .teachers.. to leave the ~~~~~othersohr whichhc wereeennngtal.Srtge non-negotiable. Strategies foro teaching force. The Minister publicly guaranteed that implementation were devised using educators within no-one would be sacked. These measures began a beyon wereadevised byitheuc iorstehi process of structural reform that was to see the and beyond the bureaucracy selected by the Minister. teaching force reduced by 8,000 (20 per cent) and the As far as implementing the reform number of schools reduced from 2,000 to 1,664. The processes were concerned, I always used Minister negotiated with his parliamentary colleagues the informal project team approach. I would t'hat funds raised from the sale of school sites be identify a group of people I could work with. retained within the Education budget for the we would get together in a room and talk it refurbishment of remaining sites and for the through. And then I would say to them, "You construction of new schools in growth areas. have responsibility for this project. You will The "initiation phase" of the Victorian reforms had be held personally accountable for its a clear starting point: the 1992 State election.25 The success. Your future career will depend on key aspects of the reform constituted the then your performance." And then we would tell Opposition's election policy. The Shadow Minister was them to go off and do it. So we really didn 't well acquainted with reform initiatives in Anglophone use the bureaucratic structures much; in fact countries and with the actual conditions in schools. He we tended to ignore them (Hayward 1997). gained the support and confidenceof the future Premier There was a clear separation between policy and struck a critical alliance with Principals' development and implementation. The Minister's Associations who shared his vision of devolution. He informal project teams were comprised largely of moved swiftly to enact severe budget cuts. The principals who took his ideas and translated them into a foundation for successful implementation was laid. conceptual form that would make sense to other principals. The Director had responsibility for 2.4 Initial reform period implementation. With this level of preparation, the new Minister While this separation of roles may have existed, was able to capitalize on his "honeymoon" period. a number of interviewees attested to the unity of Unpalatable measures, such as school closures and purpose of the Minister and Director, "the chemistry staff reductions, were initiated immediately. They of two people who are totally committed to were sold to the community as strategies to rectify achieving a very clear set of goals " (Clancy the crisis management of the State's debt. The initial 1997). They were housed in the same building and mood of financial crisis may have assisted reform

implementation.As the Minister recalled: 25 Fullan (1991) describes eight factors associated with initiation. The Victorian reform shares some of these, such as newness of It tended to divert the attention of our policy and the existence of quality innovations; however, it is opponents from the reform agenda. beyond the scope of this study to comprehensively analyze the Victorian reform in relation to Fullan's initiation factors. Education Reform in Victoria, Australia: 1992-1997 1 1 had offices on the same floor. Close liaison was We got it ready for the Cabinet meeting, maintained between them and their support staffs?6 got agreement, and then we had a couple of weeks to get all the documentation ready Both men shared a vision for reform, were (Spring 1997). committed and hard-working. The Director's ii) Evolutionary Approach capacity for work was legendary, and this influenced the work ethos of the bureaucracy. The approach was evolutionary in two senses: first, Interviewees referred to him regularly working 13- it built on the faltering reform efforts of the previous hour days and to the senior administration team Government and, second, elements of the broad often adopting similar work patterns to meet the framework were implemented with the first group of timelines for implementation. schools, and then modified or extended with subsequent groups who opted in. Successive refinements of the 2.5 Implementation strategies framework were effective not only in debugging i) Voluntary Opt-in problems but also in defusing critique. Outsiders gained i) Voluntary Opt-in ~~~~adifferent impression, with the reform being called a Rather than require all schools to become Schools "rev t io"(eradSn, Oct. 8, 1992; Tei cae,J of the Future, ofor heconductonucta utre,or a trialtia inina a smallsal numbernuberof"revolution" of 24 196) an(Herald-Sun, th prahdsrbdacahn Oct. 8, 1992; The Age, June schools, the Minister and Department determined that schools could opt-in to a phased implementation. through" (Gough and Taylor 1996). Fourteen months Shle ofre i t' into the reform agenda, an education commentator for the first Schools of the Future intake, and an wrote, "Don Hayward does not believe in the big bang urexpected total of 830 schools self-nominated far approach to education, creating a new system in one more than expected. This dilemma was resolved by glorious burst. Rather-and this may surprise his selecting 300 sites for the first intake and declaring the opponents-he believes in doing It slowly (Th A others to be "Associate Schools". 500 schools entered Jan 25 1994) the second intake in February 1994, 500 in July 1994, and the remainder in February 1995. By 1997, all iii) Local Change Agents schools in Victoria, but one, were involved. The The principals were critical to the success of the voluntarism of an opt-in approach avoided battles with reform agenda. With the Schools of the Future there unwilling participants, while the staggered introduction was sufficient enthusiasm amongst principals for a with phased implementation allowed for improvement change to devolved decision-making that an opt-in alongtheway. There was no blueprint for a approach was feasible. Schools of the Future sequencing of the reform elements, but they were delivered to principals school councils that could no carefully planned. The broad framework of Schools longerbedominatedbyteachers,theabilitytohiretheir of the Future was set out in January 1993, but specific own staff and to manage their own budgets in line with aspects were implemented following consultation, local priorities, freedom from many of the regulations development, or technical advice.27 of the central bureaucracy, and clear expectations of The plan was certainly altered by what standards. While these benefits were accompanied by I would call opportunism - taking increased accountability requirements and enhanced advantage of unexpected consequences or good ideas... When the possibility of a 26 The Ministerwas supportedby his astute Adviser,who had substantial salary rise for teachers came been with him in Opposition, and the Director had the assistance up we acted very quickly. We were told late of an adroit, experienced educational administrator. one week that if we wanted to take 27 For example, the Curriculum and Standards Framework (CSF) advantage of the opportunity we would was introduced in February 1995 following statewide consultation need to have a submission up by the next of a draft involving about 5,000 teachers in 1994, the Learning Monday. So we came in here [head office] Assessment Project was introduced in May 1995 following trialing and worked 24 hours (literally) each day... and development, and School Global Budgets were introduced in 1994 following technical advice from an expert committee. 12 TheEducation Reform and ManagementSeries, Vol. 1,No. I managerialism, there were sufficient inducements for it was pleasing to see principals being so involvement, such as professional development, well acknowledged and recognized for the administrative support, and funding for information important role they had to play. A lot of technology. money was put into principals'professional The principals were variously described as the development and we were treated like 66chamions" o the rform efort, it "footsoldiers", executives in business.... The reform could and its "change agentsf.2f not have gone through without principals being valued and elevated in the eyes of We believed that the principals had to government, the profession, and the be involved at every stage of the process. community. While Don Hayward was This is why the various taskforces were Minister, principals were in a very strong formed deliberately involving the principals position (Thomas 1997). as associations and the principals as individuals. Our philosophy was very The "buying off' of principals cemented their much that the principal had to lead the allegiance to the reform agenda. change in the school. While there are similarities between Schools of the Future iV) Pre-empting ObStrUCtion and Taking Schools into the 1990s, the key The Minister and the Director maintained an "open difference was the implementation between door" policy for the leaders of principals' associations how we did it and how the previous to ensure good communication.2 9 In contrast, the Government would have attempted to do it. unions and a number of parent organizations which Our attempt was through the principals as had worked closely with the former center-left leaders, saying that we are resting and Government, were declared persona non grata. The relying the success of the program on the Minister did not deal face to face with the unions at principals (Roskam 1997). any point during his term of office.30 He avoided To increase the likelihood that principals would making reference to them in any public arena, including embrace the Schools of the Future approach, the senior the media, and instructed the bureaucracy that they bureaucrats decided to align new appointments with were to be consulted only when absolutely essential. the phased intakes. Vacant principalships were filled A range of strategies was put in place to deal with by acting principals for a 12-month period, allowing a obstruction to the implementation of policies. The key critical mass of new appointees to Schools of the strategies were proactive, strategic, resolute and Future. There was a sufficient turnover of principals reflective. These stances were adopted in an for effective cultural change to take place. environment in which the Government had a healthy Much was expected of principals as the interface majority in both Houses of Parliament and the new between government and local education communities Opposition Party was recovering from the routing in an era of unprecedented change. Attractive meted out to it by the electorate.3" rennunerationpackages were offered, and professional 2S Respectively Roskam 1997, Clancy 1997 and Peck 1997.

development was introduced to build their capacity to 29 During his interview the former Minister explained that his operate with greater autonomy. staff were instructed to interrupt him at any time if either head of In the Schools of the Future program the principals'associations wanted to see him.30 Clancy 1997 and principals were given more professional 3 0 Clancy 1997andRoskan1997. development than they'd ever been given. "Cac197ndRsm197 development thaprincith 'dr eerteen gven. 31 Similar to the UK election in May 1997, the Party which had I had been a principal for fourteen years governed for a long period not only lost safe seats, but lost and have been very interested and involved considerable talent, with former Ministers losing their seats. The in principals 'professional development, so similarities end there, as the Victorian Labor Government did not face the electorate with a sound economy in 1992. Education Reform in Victoria, Australia: 1992-1997 13

There was a sense in the community that was undertaken quickly to reduce the deficit.34 It the old Government wasn't in control of the underlined the Government's determination to make game, not just in Education but in hard decisions with a negative impact on some local Transport and Health-which are three big communities, with the aim of creating a better system spending areas in the State. There was a for all in the long term. This determination continued feeling across those three portfolios that with the Quality Provision strategy for further closures. they were in the pocket of the Trades Hall The Minister retained the power as arbiter in difficult [union headquarters] or their various cases and tempered his public resolve to close unviable factions. The public was conditioned for schools with a political understanding of the need to radical change across those portfolios appease backbenchers and trenchant communities. (Muller 1997). Decisiveness was also critical to dealing with the This was a fertile environment for the new opposition to the proposed program of statewide Government to adopt measures to end the "capture" assessment, the Learning Assessment Project (LAP). of the policy environment by various interest groups, The Minister released a guarantee that results would most notably the unions.32 Its new employment be confidential to individual parents, classroom teachers relations legislation outlawed the deduction of union and school councils when it emerged that teachers fears dues from the pay of government employees and the that they could be assessed underpinned threats to forwarding of details of new government employees block implementation. The Government kept in touch to the relevant union (Alford and O'Neill 1994). Union with community views via polling and communication access to an office in the education department was with backbenchers and was aware there was strong removed, no information was sent to the union parental support for some form of external executive, and the Minister determined that they were assessment.35 There was vocal opposition from not to be consulted on education matters. teachers' groups and a campaign of opposition played out in the media, in forums, and in staffrooms. -t suthe unions and thetoby Interviewees attest to nervousness amongst ministerial out of the game. They legitimized that by staff and senior bureaucrats; however, they were reference back to the overall urgent need determined to weather the opposition. After some forbreform across the questate -set. And months of considering both the rationale and design of noboy haskedothe nuetion-owthe new the assessments, the LAP was supported by the curriculum has nothing to dwihte Victorian Primary Principals' Association, The

economic position of the State! People ______said, "Look, the State's in crisis, we need change, let's get on with it!" (Muller 1997). 32 The "capture" of the policy process by the teachers union is described by Cain 1995, Fooks 1997, Keating 1997, Richards 1997, and others. Having principals on-side, the Minister could risk 33 Researchers disagree on the impact of Schools of the Future on the impact of ignoring the unions. He was also proactive teachers' input to decision-making.Odden and Odden (1996) argue p . , , that,. ,as principals. moved into managerialroles, they delegatedgreater in reducing the number of education department curriculum decision-making to teachers. However, McRae (1994) employees on school councils. This increased principal and Blackmore (1996) contend that increased teacher workload and parent influence on local decision-making.Teachers reduced collaborative decision-making of this nature. retained their active role in curriculum decision- 34 Initial closures and those undertaken consultatively under the making,33 but did not share in the new financial and QualityProvision local taskforces affected electoratesof all political administrative responsibilities of school councils in persuasions.The Parliamentary Secretary supported Government Schools of the Future. backbenchers through difficult negotiations and assisted the Minister in finalizing these cases.

Decisiveness was an important stance in pre- 35 Polling commissioned by the Board of Studies indicated that empting obstruction. The initial closure of 50 schools communitysupport was at 75 per cent. 14 TheEducation Reform and ManagementSeries, Vol. 1,No. I

Association of School Councils of Victoria, and the believed it over anything we put out. Within Catholic Education Commission.3 6 The endorsement six months there was only one place you of these bodies provided a powerful counterpoint to could get information (Peck 1997). teacher opposition. Formal and informal attempts to The Department's Media Unit organized regular prevent implementation failed.37 inserts in major print media, regional press and ethnic The various tactics for dealing with obstruction media: for example, the literacy strategy Keys to Life were adopted strategically. For example, an open door was explained via this mediurm. Fax streams were to principals was counterbalanced by a closed door to installed in all schools and funding for modem links to unions; comprehensive communication to teachers, the Intemet was provided. Interactive television (ISLN) principals, school councils and backbenchers was was used by the Department for briefings and matched by a freezing of information to unions. consultationswith teachers: for example, the Standards Rewards or inducements were used: for example, the Council of the Teaching Profession used ISLN to improved career structure for teachers was launch its Code of Professional Practice. Radio accompanied by a wage rise which required annual advertisements on contentious issues such as the LAP appraisal. The Minister used guarantees to pre-empt were linked to a "hotline" query service where callers potential obstruction: for example, he pledged that no could obtain additional information about the initiative. teacher or principal would be sacked to achieve staff The Minister's Adviser maintained behind-the- reductions, and, to defuse brewing opposition, he scenes relations with education journalists. 3 9 guaranteed the confidentiality of statewide assessment Throughout the reform period there were regular data. The various strategies for dealing with obstruction feature articles on the Minister, often referring to his were used judiciously depending on the situation and working-class background and to his commitment to the players, and were complemented by a improving life chances for students. Press releases coimprehensivecommunications strategy. were issued with major initiatives and a consistent tactic of using the Minister to announce changes was used.' v) Controlling Communication Channels In addition to these elements of the communication A comprehensive communication ategy was strategy, the Premier was personally kept up-to-date In place to ensure that the reform agenda was'rvrr understood by principals, who were expected to on a daily basis, and Members of Parliament were implement it, and by the broader public. Regular face- briefed regularly by the Minister's staff and the to-face briefings and consultations were held with all Parliamentary Secretary. The Premier maintained his principals and the expectation was that principalswould pre-election interest in education and assisted in then consult and communicate with staff. For example, communicating the reform agenda, particularly on with the Schools of the Future strategy, the Minister, talkback radio. Director and Deputy Director "took to the road" to ensure that all principals in rural and metropolitan 36 The Catholic Education Commission of Victoria makes policy Victoria had access to a consultation on the Schools of for its 500 schools. the Future proposal.3" 3 In 1996 and 1997 the union took a case to the Industrial Relations Commission to prevent the administration of the assessments in An education newspaper called Victorian government schools. Both attempts failed. fromtheEducationNews Dwasesartablihed aned fever 33Given the uneven rate of implementation of the Curriculum and from the Education Department to each and every Standards Framework (Owen et al 1996), it would appear that teacher and school councilor in Government schools. principals initially undertook the role (or embraced the agenda) The paper has a weekly distribution of 63,000. with varying degrees of enthusiasm.

We went to weekly Ed News. We 39 Muller l997contendsthatRoskam, theMinister's adviser, was blocked off all [other] news, particularly exceptional in his handling of the media. to the unions. Before this happened, 40 Occasionally the Chairperson of the Board of Studies would schools always read the union news and announce curriculum or assessment changes. Education Reform in Victoria, Australia: 1992-1997 15

Our weekly office schedule included from the United States to monitor the impact of the listening to what the Premier had to say reform on classroom practice and the work of teachers. at 9 am. Thursday on [radio station] The Oddens shared their findings with the Department 3A W Invariably Education would come during the four years of their study, and these findings, up, as it still does, and it was beholden in turn, help describe the impact of the reform in on us to respond to him and the caller. retrospect. As he was taking the call, we would be getting the answer and feeding it directly 2.6 Reform impact back through his press secretary with him All Victorian schools but one have opted into the at the station. Anything that came up in Schools of the Future program and schools from the the morning talkback was always initial intake in 1994 areaboutto undergo theirtriennial responded to (Clancy 1997). review. Despite the newness ofthis reform a surprising The Government kept in touch with community amount of scholarly research has already been opinion through polls and its backbenchers. It was undertaken. These studies, together with the insights aware of the pervasive view that education unions of interviewees, provide a useful basis on which to had had too much power in schools. This view was report the impact of the Victorian reform.4' reflected continually in the media. For example, an Within four years, Victoria achievedthe lowest per editorial in The Age evaluating the Government's pupil expenditure of any State in Australia (A$3,869) performance on December 27, 1993, noted that and the lowest out-of-school expenditure (A$220 per Minister Hayward had "broken the unions' powerful pupil). While spending in most jurisdictions increased grip," and an editorial in the same newspaper on in real terns after 1992,expenditure in Victoriadeclined October 31, 1994, referred to the expectation of the by 8.9 per cent per annum (Industry Commission 1997). electorate that the Government would "apply a The devolution of self-management to schools in the reformist broom to an education system that had Schools of the Future framework was accompanied become costly, self-indulgentand union-dominated." by a downsizing ofthe central bureaucracy. Successive The view remained throughout the reform period, attempts at restructuring saw personnel at the head with editorials in the major dailies on September 12, office reduced by 50 per cent.42 The teaching force 1995, following the announcement of the retirement was reduced by 8,000 jobs, equivalent to 20 per cent. of the Minister, referring to the stranglehold that There is evidence that both the budget cuts and unions had had on education. In this climate the the Schools ofthe Future program have had a marked Minister was able to exclude unions and left-leaning impact on schools. Budget cuts saw schools coping parent organizations without political damage. with increased class size; a reduction in some specialist vi) Monitoring the Reform services, such as student welfare, careers counseling Operating on the dictum that data drives and library services; and a halving in the number of improvement, the Department was able to maintain pupil-free days available for professional development a reflective stance during its hands-on involvement (McRae 1994).There is evidence of a marked increase in implementation. It entered into a partnership with in the workload of teachers(McRae 1994; Blackmore principals' associations and the University of Melbourne in a co-operative research project to monitor the impact of Schools of the Future on 4' It is beyond the scope of this study to comprehensivelydocument principals and schools, and feed back information to the impact of the reform or to critically evaluate it. help shape successive phases of implementation. 42 WiththeVictorianGovemmentmovingtocontractingoutservices Similarly, the reform process benefited from a suchas cleaning and professionaldevelopment in education,and research project undertakenby Allan and Eleanor to privatizingservices such as electricity,and to introducingcase- Odden,under the auspicesof a fundingconsortium mix funding in health, some 40,000 public servicejobs were removedby 1996-a reductionof about 20 per cent. 16 The EducationReform and ManagementSeries, Vol. 1,No. I et al 1996; Odden and Odden 1996) and a perception encouraged parental involvement, and given schools of a lowering of morale.(Blackmore et al 1996; McRae direction (Blackmore et al 1996;Cooperative Research 1994.; Thomas 1997). Project 1996; Kelly 1997; Odden and Odden 1996; Researchers note different aspects of the Townsend 1996a). There is strong support for change in schools. Blackmore and her colleagues increased flexibility in staffing and financial rioted an overt shift in power from teachers to management, and early evidence that schools are using principals (Blackmore et al 1996). Similarly, Gough this flexibility to allocate resources to meet local needs atndTaylor noted diminished union power, which they (Kelly 1997; Paul 1997; Odden and Odden 1996: ascribed to the pace of reform: "Effective union 43). activity requires teachers' time and energy, and by enacting his policies thick and fast Hayward invaded While principals welcomed their enhanced much of this time and destroyed the natural capacity leadership role and their greater flexibility to make for resistance amongst a demoralized teaching decisions regarding finance and staffing, they became force" (Gough and Taylor 1996: 74). Teachers found concerned about workload, the pace of change, the the intensity and breadth of change difficult to cope level of bureaucratic control, and the level of resources with (Blackmore et al 1996; McRae 1994; Thomas l 1997). Teacher workload emerged as a concern in (Cooperative Research Project 1996; Thomas 1997). all research projects, with the observation that by There is evidence that more than sixty per cent of 1996 teachers were suffering "reform overload" principals are now working in excess of sixty hours a (Gough and Taylor 1996). In their research, Odden week and that their role has changed substantially.44 and Odden observed that "principals moved into These data warrant closer analysis, as patterns of broader, more political, more external activities, and adjustment vary (Paul 1997, Thomas 1997). Odden clelegated considerable direct curriculum, and Odden(996)observedsomeprincipalsdelegating instructional and within-school leadership to effectively and thereby modifying their role. However, teachers" (Odden and Odden 1996: 32). Blackmore and her colleagues contend that "principals While there is evidence of an increase in cost have become both the mediators in a series of new efficiency-such as a smaller teaching force, contractual relationships and also the buffers for the downsized bureaucracy, and reduced per-pupil state against teacher resistance" (1996: 216).45 A expenditure-there are few data to determine recent dispute between principals and the Government effectiveness in terms of students' academic overpayandconditionssuggeststhatchangemayhave achievements. The data that are available are come atacost (TheAge, Apr.2, Apr.14, Apr.21, 1997). fragmentary and contradictory. Data from Victoria's statewide assessment demonstrates strong levels of 3.0 Flagstones of Reform attainment against the Curriculum and Standards Change management literature is replete with Framework in English and Mathematics in 1995 and themanag ementation IS review of 1996, but low levels of attainment in Science in 1996. studies on the design, implementation and review of V/ictoria'sperformance in the Third International Math reformsat individualsites; however,there is littlewritten on the implementation of systemic reform. There is a and Science Survey is the second lowest amongst Australian States (Industry Commission 1997). There is little evidence of innovative teaching methods 43 There is evidence that the imposition of "voluntary" fees or acco:mpany i ng site-based management, and leviesby schoolsis causingfinancial hardship for somefamilies.

suggestions that new approaches could reduce the 44 Whilethe principals who were interviewed were positive about the change (Kelly 1997;Paul 1997; Thomas 1997), researchers vvorkload for teachers (Caldwell 1996; Odden and suchas Blackmoreand her colleagues(1996) and Townsend (1996) Odden 1996; Thomas 1997). decry the move to principal as manager.

Budget cuts have seen an increase in fundraising 41 Researchersvary in their interpretationof the impactof the at the local level, including "voluntary" fees.43 There Schools of the Future reformon principal-teacherrelationships. is eviidence that the development of a Charter has No intervieweesmentioned an adverseimpact on principal-teacher relationsand the absence of protractedlocal industrialdisputes provided schools councils with an educational focus, suggeststhatpositiveworkingrelationshipshavebeenmaintained. Education Reform in Victoria, Australia: 1992-1997 17 robust literature on systemic reform in the US,46 but and a smaller bureaucracy suggesting purchaser rather there are no well-known studies that go "behind the than provider functions, and purchaser functions scenes" to explore how a particular government and requiring clear contracts, and so on. This symbiosis, its bureaucracy went about major reform. This present the resolute stance of the key players, and the study begins to fill that gap. In essence it is a study of consistency with changes to other portfolios, created a newly-elected Government with a massive majority a narrative of orderly improvement within a logic of in both Houses, a decimated Opposition, and a troubled better government. electorate. A decade out of office had steeled its resolve 3 to enact a significant reform agenda, to quash Refo expenditure opposition in the immediate and long term, and to Its implementationduring a period of severe budget capitalize on the favorable political conditions. cuts increases its interestto policy makers. Government window3.1 A of opportunity adviserskeen to contain expenditure and skepticalabout a relationship between expenditure and improvement The Government elected in October 1992 believed will find the Victorian reform of interest4' Economists it had a window of opportunity to enact its reform such as Eric Hanushek can find support for his agenda. It had a healthy majority in both Houses and assertion that "the fundamental problem is not a lack clear policies aired during the election. There was a of resources but a poor application of available pervasive sense of financial crisis and a readiness in resources. Indeed there is a good case for holding the community to accept harsh measures to rectify overall spending constant during school reform" (1996: the state's parlous financial situation. The reform was 30). clearly announced, signaled well in advance and did 3 not take the electorate by surprise. An electorate 34 ol andtechnical expere sometimes knows when it has to "take the medicine". The From the outset there was a clear reform agenda. *TeMinister's unswerving commitment to implement 3.2 Budgetary pressure it and his skills as a change agent were critical elements The Education Minister opted to conduct reform in the successful implementation of Victoria's reform. in parallel with budget cuts, bringing on himselfan initial The support of a Parliamentary Secretary who liaison storm of protest and two positive outcomes-the image with backbenchers and kept them on-side was essential, of a decisive, reformist leader and a distraction for his particularly in the period of school closures and opponents from the core of the reform effort. Victoria mergers.This politicalduo could relyon a highly-skilled, stands out from other devolution attempts in Australia tough and equally committed Director. There was a where "the underlying purpose of the reform was not clear delineation of duties: the Minister set the direction to cut education expenditure, but to get better value for reform and the Director operationalized it. Arguably for it" (Angus 1995: 8). Victoria had become a "rust- it would not have been possible to implement reform bucket" State in the 1980s, with population flowing to of this scale and complexity in the timeframe available "sun-belt" States like Queensland and Western without this partnership (and the existence of a well- Australia. There was not the same financial imperative skilled bureaucracy). The stamina and drive of these in those other States. The Victorian reform is more two set the pace for the bureaucracy. Expertise was characteristic of reforms in other countries where bought in where necessary, including the expertise of budgetary pressures have been a stimulus (Blackmore principals. The use of small taskforces of practicing 1994; Gough and Taylor 1996; Hanushek and Jorgensen 1996). It would have been possible to enact 46 For example, Fuhrman and Massell 1992; Levinson and Massell the budget cuts without decentralization of decision- 1992; O'Day and Smith 1993; Pascoe 1995a; Fuhrman 1996: making or to decentralize without budget cuts. Enacting Hanushek and Jorgensen 1996. the two simultaneously created a symbiosis with the 47 A number of Australian reports (Commission of Audit, 1993; logic of devolution suggesting a smaller bureaucracy, IPA 1992; Industry Commission 1995, 1997) note that there is no proven connection between expenditure and outcomes. 18 The EducationReform and ManagementSeries, Vol. I, No. I principals ensured that the reform was practicable and was retained throughout implementation despite the helped in building grassroots loyalty. pace and intensity of reform. Given the disengagement of unions, this support was critical. 3.5 Critical alliances Schools of the Future and Quality Provision Upon attaining government, the Minister moved were essentially evolutionary. "The Victorian quickly to draw principals into the planning process developments build on almost two decades of change andtoestablishanopen-doorpolicyinhisdealingswith that has given schools increasing autonomy and them. Simultaneouslythe unions and parent groups with accountability... Many of the changes now being strong ties to the former Government were declared implemented were identified over a decade ago, but persona non grata and a closed-door policy adopted the political will and capacity to drive through a strong with them. The devolution to site-based management change agenda have been lacking" (Caldwell and Hill weakened the influence ofteachers on decision-making 1996: 15). In studies of the policy-making elites and centrally, while changes to the composition of school the policy agendas across portfolios in Victoria Muller councils weakened their influence locally. The power and Headey (1996; 1997) have concluded that "there balance shifted from the center to the local, in favor of was little change in the role breakdown of policy councils and principals.While superficiallythis strategy influentials, but substantial change in personnel, when challenges an established maxim in educational theCoalitionGovernmentreplacedLabor"(1 996: 143). change-that of engaging all stakeholders in the In their analysis of policy issues and priorities across process-there is a plausible explanation why teachers portfolios they noted considerable continuity in and unions could be ignored. The Victorian reform is education. essentially structural and managerial in nature. Rationalizing the stock of schools affects parents and Site-based management approaches were localcommunities, devolving decision-makingto schools planted in fertile soil in Victoria. There is a long affects principals and school councils. These groups tradition of school-based curriculum development were drawn into the process and strategies were (Blackmore 1996; Fuhrman and Moore Johnson adopted to empower them. (If the next step is taken in 1994; McRae 1994; Odden and Odden 1996). There Victoria to use these arrangements to improve student are established practices of team meetings for learning, the hearts and minds of teachers will have to planning, developing and evaluating curriculum. be won.) The Department had a budget of A$20 Schools of the Future was able to build on this million per annum for implementation. Much of this culture of initiative and professionalism at the school was spent on the professional development of site. Similarly, school councils were already in principals, on consultancies and administrative support existence and ripe for the change that gave parents for schools. Principals' enhanced status, increased pay an effective voice. This continuity rendered and closer relationship with government gave them opposition ineffective. considerable personal as well as professional stakes in 3. 7 Congruence the endeavor. While teachers may have been hostile to the pace 3.6 Evolutionaryapproach and scale of the change and unnerved by reductions in The decision to adopt an intensive evolutionary the numbers of schools and teachers, they were not model of implementationwas important in establishing faced with conceptual dissonance in the reform broadownership and avoiding the pitfalls of being seen underpinnings. With one in three Victorian students in to foist a grand plan on an uninformedpopulace (Angus a non-government school, government principals and 1995). Consulting with principals and monitoring teachers had first-hand evidence of the feasibility of implementationenabled information to be fed back into site-based management. This, coupled with local and the reform and adjustments to be made during international research on site-based approaches, implementation.In thismanner the supportof principals provided a professionalrationale for broader public Education Reform in Victoria, Australia: 1992-1997 1 9 sector change. One of the intriguing aspects of the improve student learning the content and instruction research for this case study is that there was virtually delivered to students must change as well as the no reference to the public sector reform agenda from organizational structureof the school" (Smith et al 1996: the principal change agents. The reform, including the 21). This suggests that, despite its scale and complexity, budget cutting Quality Provision, was couched in the Victorian reform is incomplete. educational terms by all interviewees. Many of the The next phase will involve a "re-engineering" of maxims ofpublic-sectorreform resonate with the school schools53 to accommodate information and improvement movement. They share a focus on communication technologies, and a refocusing of outcomes,acommitmenttoconsumers(betheycitizens teachers' work.54 It will involve some schools or students) and a belief in locating decision-making operating in looser regulatory frameworks.55 If the close to those affected. The reform efforts in other reform is to achieve the Minister's 1993 aim of improving the learning outcomes of students in State portfolios, notably in Health and government schools this is a necessary next step. Real Transportation, were broadly congruent. improvement in educational outcomes are likely only when schools focus on change at the level of the classroom, and this means that changes to school financing arrangements must be related to a total The reform to school education in Victoria is package of reforms aimed at improving the quality of marked by comprehensiveness, coherence and a focus teaching and learning. There are encouraging signs in on clear outcomes-all aspects of systemic reform.48 Victorian schools that this focus on classroom teaching Victoria moved beyondsystemicto structuralreform.49 is also starting to emerge, but at this stage it would Changes to educational practice, school culture and have to be said that these signs represent the very power relations resulted from a range of measures, including budget cuts, which reduced the teaching force and the bureaucracy administering it; from legislation, l Furhmannand Masseli 1992; O'Day andSmith 1993; Smith et which changed employment conditions; from al1996. regulations, which saw the power of parents and 49 Siructural reform sees an alignment in "organizational principals boosted relative to that ofteachers; and from arrangements, roles, finance and governance and formal policies" government decisions, which saw a consolidation of (Fullan 1991). the stock of school sites and funds realized returned 5" Caldwell argues that "Victoria has the distinction of being the for refurbishment.The scope and pace of the refoirm largestsystem of publiceducation anywhere in the world to have for refurbishment. The scope and pace of the reform adopted the new arrangements."(1996a:2) Odden and Odden set it apart from earlier efforts.50 The reform was not conclude that "the Victorian reform includes most of the only systemic, but also structural. componentsof systemic reform and decentralised school finance... [It is] perhaps one of the most sweeping and comprehensive 3.9 Thefuture strategies at school decentralization for higher student performance in the entire world" (1996:20). While the Victorian reform may have delivered s" A majority of principals in the Cooperative Research Project systemic and structural change to schools, there is no (1996) believe that student learningwill improve under the new evidence as yet of improved student learning.5' The arrangements,but there is no data to verify this belief. literature is conclusive that there is no causal link 52 Caldwell 1996a; Hanushek 1996; Smith et al i996: Summers between site-based management or curriculum and Johnson 1996; Townsend 1996a. 52 standards and improved student learning. There is 53 Caldwell 1996b. agreement that "the core patterns of schooling remain Kelly 1997; Thomas 1997. relatively stable in the face of often massive changes to the structure around them" (Elmore 1996: 313), that " The second-term Education Minister announced moves toward site-based management is not an end in itself but a privatization in May 1993.56One interviewee close to the reform process provided some maxims for reform. These are contained in means to an end" (Hanushek 1996: 45), and that "to Appendix A. 20 The EducationReform and ManagementSeries, Vol. 1, No.l early days of the next wave of school reform (Caldwell shelved plans of the frustrated previous government. and Hill 1996:17). However it is an incomplete agenda, with the next 3.1I0 Preconditionsfor lasting reform phase focusing on improved student outcomes. Ultimatelythe Victorianreform will bejudged as much Reflecting on the future of schools and the on documented efficiencies as on the impact on preconditions for lasting reform, the Minister who students' lives. pioneered Victoria's education "revolution" and an academic collaborator argue: * Reforms such as Schools of the Future are a necessary but not sufficient condition. * Public policy and school effort must be tightly focused on the achievement of high standards for all students. * High levels of professionalism must be achieved aimong teachers and others who work in schools. * Education and the economy should converge after decades of divergence. * Higher levels of resources and formal recognition of private effort on the revenue side are required to energize and sustain the enterprise. * For public education, government should establish thleframework, set standards, provide infrastructure and other resources, support schools and monitor outcomes, allowing self-managing schools to respond to parental choice, with due account in the framework for matters of access and equity, particularly in respect to private effort for additional resources. (Caldwell and Hayward 1998: 144) 3.11 Reflection The vigor and intensity with which the Victorian reform was enacted has drawn the interest of policymakers elsewhere. It is not a blueprint amenable to simple replication.5 6 Rather it is a study of a government which refined its ideology and defined its reform agenda during the cold winter of a decade in opposition.A massiveelection victory, ajaded electorate and a demoralized opposition delivered it ideal preconditionsin which to drive large-scale reform. This windowof opportunitywas used to radically restructure the shape of school education. Capable and committed change agents forged alliances with principals and principals and adopted an intensive but flexible approachto implementation.The reform agenda was 5 6 0ne intervieweeclose to the reformprocess providedsome planted in fertile soil, with much of it representing the maximsfor reform. Theseare containedin AppendixA. Education Reform in Victoria, Australia: 1992-1997 21

APPENDIXA:

Maxims for Reform (Clancy 1997) i) Havea clear andsimple ideal, easily understood and marketable: The label "Schools of the Future" was effective. The various parts of the ideal could be conveyed by words such as "choice", "opportunity", or "potential ".

ii) Have a thoroughlyplanned strategy to implement the ideal: Stay ahead by determining the agenda, Don't wait to respond, but have the agenda constantly moving on.

iii) Havethe politicalwill to carry out the plan: Give no appearance of deviating from the plan to reach the ideaL Ensure there is gain from the pain and sell the benefits of the new order of things.

iv) Establishsmall dedicatedteams to achieve easily definedobjectives: This maintains the pace, and ensures that the minutiae are dealt with.

v) Ensureall partieshave (or feelthey have)ownership of their part of the ideal: This gives everyone a sense of playing a part in the achievement.

vi) Have"on-the-ground" management allies: In this reform these were the school principals. vii) Ensurethere is a thoroughand immediatecapacity to communicatedirectly to thosemost affected by your action: Reduce the message to easily repeated lines. Clearly identify what has to be said, and to whom. Communicate directly to those affected. Wherever possible, avoid broad and mass communication, which is imprecise and expensive. Ensure one has up-to-date and detailed information about what people think and want. 22 TheEducation Reform and Management Series, Vol. 1,No.1

APPENDIX B: (Honeywood 1997). More than 700 companies have been registeredas privateproviders and are therefore able to tender for government training contracts, work Reforming Tertiary Education in Victoria which would have once gone automaticallyto the TAFE The line which divides Vocational Education and Institutes. (TAFE is a peculiarly Australian acronym, Training (VET) from higher education in Australia may standing for Technical and Further Education.) The be very difficult to define, but the two sectors have Institutes are made accountable for yearly output on their own heartlands and remain distinct from each the basis of annual contracts signed with their Director other. Training programs are strictly vocational, serving and Council. The decision about what to amount and immediate industryneeds,whileuniversitydegreescan kinds of training need to be purchased by the be decidedly more generic and liberal, such as Arts government is made largely on the advice of Industry and Science courses. The two sectors have in common Training Boards and a central State Training Board. that their policy and funding are much more Federal The number and membership of these Boards has been than State matters, especially by comparison to the drastically rationalized in order to fit the Kennett schools sector, but their reform cycles are not quite Govemment's concept of "empowering customers", synchronous. Universities had gone through a major for it is "industry" which is seen as the relevant cycle of reform under John Dawkins, a federal center- customer in the case of vocational education. The left Minister in the 1987-91 period, and have entered a central bureaucracy which co-ordinates the training new period of reform during 1996 which is presently system has been reduced in size, and its administrative underway. The current round of State reform in the functions devolved out to the Institutes themselves. VET sector commenced in 1993, and is similarly still Before the current cycle of reform, Victoria had as in progress. In areas of national policy and funding like many as 36 separate Institutes (then called Colleges tertiary education, States attempt to leverage reform of TAFE); by mid-1997 the number was 24 and a by means of the tools at their disposal, since they do Ministerial Review was in the process of not directly operate the levers themselves. Sometimes, recommendingfurther amalgamations,both of Institutes indeed, they need to promote reform independently of themselves and of Institutes with universities. Victoria the other States or the Federal Government. The is one of only two Australian States with dual-sector Victorian Premier explained that a reformist State universities, combining VET with higher education. could affect the policy of a lethargic or unreformist The agenda for VET reform at the national level ComlmonwealthGovernment:.. was originally set by industry leaders, union officials It's mainly through influence; it's mainly through and national bureaucrats, in the 1989-92 period. The public debate... The sea of change right now is so Australian National Training Authority was established dramatic, and in higher education that's particularly the in Brisbane, the capital of Queensland, in 1992, and is case, and a move away from what we have traditionally owned jointly by the Commonwealth and the States. known... [Similarly,] our TAFE system is better than At the State level, however, the key agents for framing anywhere else in Australia. It is one of the best in the policy and implementing it have the state bureaucrats world, a fantastic system. [Overall,] education is going under the direction of the Ministers (Haddon Storey, to be one of the great pluses in this State"(Kennett 1992-1996; Phil Honeywood since 1996) and the 1997J). Institute Directors and their Councils. Reform in Victorian tertiary education broadly Higher education reform has commenced in follows the same five "principles" which underpin earnest under Honeywood in 1996. Again it follows school education reform. In the VET sector (which the same underlying "principles" as the school reform includes the public TAFE Institutes), the State has of the earlier Kennett Government (1992-1996). developed the concept of an "open training market" Dawkins had brought about the amalgamation of further than the Commonwealth seems to want to go smaller colleges and universities to create 37 EducationReform in Victoria,Australia: 1992-1997 23 universities,all in public ownership. Two minor private universities struggled to compete. Now the Victorian Government, with its preference for market mechanisms, supports the development of a private campus to be built at Melbourne's new Docklands site. Meanwhile, in ceding land grants for new public campuses on the urban fringe, the State Government is able to insert specific requirements it wants the universities to meet. The "consumers" of higher education are the students themselves, obliged since Dawkins to pay back part of the cost of their university education through taxation on their later earnings, known as HECS, or the Higher Education Contribution Scheme; in Victoria, students have easier access to training programs alongsidethe standardundergraduate degree courses. The role of government in the funding of higher education has been diminished since the drastic federal cuts to university operating grants of 1996;the Victorian Minister obtained some relief for the budgets of his State's universities once he had persuaded the vice- chancellors to withdraw from the chorus of staff, student and official protests. These cuts, and an accompanying rise in the price of a HECS-funded place, were in fact the trigger for the current cycle of reform in higher education, because they gave an opening to the States to respond more creatively to changes in the supply and pricing of university education. Hence the plans for a private campus, suddenly made more competitive by the rise in the price of HECS-funded places elsewhere. Finally, because university constitutions are embedded in State rather than Commonwealth legislation, the Minister has exercised his right to change the composition of the university governing bodies, making them smaller and more "business-like". This current round of tertiary education reform in Victoria is likely to run another year or two, and represents an ambition by the State Government to give its universities and training colleges a pre-eminent national role somewhat analogous to that of Massachusetts in the United States, a State which enjoys strong economic benefit from tertiary education. :24 The Education Reform and Management Series, Vol. I, No.1

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Report Card, Report of the Cooperative EdNA (current) http:/www.edna.edu.au [this Research Project on "Leading Victoria's Schools Homepage includes a full listing of the VET of the Future," Melbourne: Directorate of School sector in Australia, with some gaps in the Adult Education, Victorian Association of School and Community Education (ACE) area] Principals, Victorian Primary Principals Education Department (1985) Ministerial Papers 1- Association, The University of Melbourne (Fay 6, Melboume:Jean Gordon GovemmentPrinter, 76 Thomas, Cbair) [available from the Directorate of School Education] Cullen, Ron (1992) Strategic Planning Issues for Elmore, R (1996) "Getting to Scale with Higher EdcaioiVctri,elSuccessful Educational Practices," in Furhman, HigherianPost-SecondaryEducationinCVicbou . S. and J. O'Day, eds, Rewards and Reforms: Marcht Creating Educational Incentives that Work, San March. Francisco: Jossey-Boss, pp. 249-329. Department of Education, Victoria (1995) Annual Evans, B. (1993) Leaders and their Learning, A Report 1994-1995, Melbourne: Department of Report of the National Project on Leadership and Management Training for Principals, Department of Education, Victoria (1996) Annual Canberra: AGPS. Report 1995- 1996, Melbourne: Department of REportion,1995-1. Melbourne: Department of Evans, E (1996) The Human Side of School Change: Education, 198 pp. Reform, Resistance and the Real-life Problems Department of Employment, Education and Training, of Innovation, San Francisco: Jossey-Boss. Australia, and Higher Education Council [DEET Fooks. Des, and others (1997) Making TAFE and HEC] (1990) Relative Funding in Higher Competitive, discussion paper, Deakin ACT: Education, Proceedings of seminar, Canberra, Australian College of Education, 27pp. November 1989, AGPS. . . ~Fuhrman,Susan H. with Diane Massell (1992) Department of Employment, Education, Training and ISusand Str in Sysem Reform, , ,.,,. . ~~~~~~~Issuesand Strategies in Systemic Reform, Youth Affairs, Australia (current) http:// Rutgers NJ: Consortium for Policy Research in www.deetya.gov.au [this Homepage has links to Education, Research Report series RR-025, many current relevant documents, including the Hoare Report on university governance issues, pp and the West Committee reviewing Higher Susan Fuhrman, ed. (1993) Designing Coherent Education Financing and Policy] Education Policy: Improving the System, San Department of School Education (1991) Planning for Francisco: Jossey-Bass. Successful Schooling: Victorian State Schools Fuhrman, Susan H. and Susan Moore Johnson 1992-1994, Melbourne: Department of School (1994) "Lessons from Victoria," Phi Delta Education, December, 12 pp. Kappan, Vol.75, No.10, June, 770-774. Directorate of School Education [DSE] (1993) A Fullan, Michael (1991) The New Meaning of Quality Provision Framework for Victorian Educational Change, London: Cassell Schools, Melbourne: Education News Educational. Supplement, May, pp.2 - 16. Ful lan, Michael (1994) "Change Forces and Disney, Julian and J.R. Nethercote (1996) The House Educational Reform: An Introduction," IARTV on Capital Hill: Parliament, Politics and Power in Occasional Paper, No. 33, November, 6 pp. the National Capital Hill, Canberra: Federation Gallagher, Michael (1993) National Report on Press and Centre for International and Public Australia's Higher Education Sector, Canberra: Law, ANU. 28 The Education Reform and Management Series, Vol. 1, No. I

Department of Employment, Education and Hill, P. (1997) Towards High Standards for All Training, Higher Education Division, AGPS. Students: Reforming Research and Experience, Gallop, Geoff(1990) "Education Providers and their IARTV Occasional Paper No. 61, February, 16 Communities in the 1990s," in Evolving pp Partnerships in Education, Gold Coast: 30'h Honeywood, Phillip (current) http:// national conference of the Australian College of www.gui.com.au:8600/EduVic/about Education,Bond University, pp.40-51. ministerl .htm, [Homepage for Minister for Goedegebuure, Leo and others, eds (1994) Higher Tertiary Education and Training, including Education Policy: An International Comparative Speeches and Media Releases]. Perspective, Oxford: Pergamon Press. Industry Commission, Australia (1995) Report on Golding, Barry with Simon Marginson and Robert Goverment Service Provision, Melboure: Pascoe (1996) Changing Context, Moving Skills: Steering Committee for the Review of Generic Skills in the Context of Credit Transfer Commonwealth/State Service Provision, AGPS. and the Recognition of Prior Learning, National Industry Commission, Australia (1997) Report on Board of Employment, Education and Training, Government Service Provision, Melbourne: Canberra: AGPS. Steering Committee for the Review of Commonwealth/State Service Provision, AGPS. Gough, John and Tony Taylor (1996) "Crashing voms. Through: Don Hayward and Change in the 2 vols. Victorian School System," Unicorn, Vol.22, IPA [Institute of Public Affairs] (1992) Schooling No.2, June, pp. 69-80. Victorians: Lessons for the Future, Melbourne: Hanushek, E. (1996) "Outcomes, Costs and IPA. [the author was Mike Richards] Incentives in Schools" in Hanushek, E. and Levacic, R. (1995) Local Management of Schools: Jorgensen, D. eds, Improving America's Analysis and Practice, Buckingham UK: Open Schools: the Role of Incentives, Washington University Press. D.C.: National Academy Press. Levinson, Cynthia Y., and Dianne Massell (1992) Hargreaves, Andy (1994) Changing Teachers, Systemic Reform: Literature Review, Rutgers Changing Times, London: Cassell pp.272. NJ: Consortium for Policy Research in Harman, Grant and V.Lynn Meek, eds (1988) Education, Mimeo, November, 92 pp. Australian Higher Education Reconstructed? McConville, Chris (1991) Rising in the West: From Analysis of the Proposals and Assumptions of Western Institute to Victoria University of the Dawkins Green Paper, Armidale NSW: Technology 1987-1992, St Albans, Vic: Western Department of Administrative and Higher Institute. Education Studies, University of New England. McGaw, Barry (1994) Performance Standards in Haywvard,Don (1993) Schools of the Future: Education: Quality, Curriculum, Standards, Preliminary Paper, Melbourne: Directorate of Assessment: Australian Case Study, School Education. Melbourne: OECD Performance Standards Higher Education Council, Australia (1996) Tenth Project. Report to the National Board of Employment, McRae, David (1994) Into the Bone: The Impact Education and Training on the Operation of of Cuts to Victorian School Education 1993-94, Section 14 of the Higher Education Funding Act Melbourne: Mimeo, March, 23pp. 1988 and the Higher Education Contribution Marginson, Simon (1993) Education and Public Scheme, Canberra: AGPS, May. Policy in Australia, Melbourne: Cambridge Education Reform in Victoria, Australia: 1992-1997 29

University Press. Collaboration in Post-secondary Education and Marginson, Simon (1997a) "Investment in the Self: Training, Canberra: AGPS, August. The Government of Student Financing in O'Day, Jeanette and Smith, Marshall (1993) Australia," Studies in Higher Education, Vol.22, "Systemic Reform and Educational No.2, pp.1 17-129. Opportunity," in Susan Fuhrman, ed., Designing Marginson, Simon (I1997b)Educating Australia: Coherent Education Policy: Improving the Government, Economy and Citizen since 1960, System, San Francisco: Jossey-Bass, pp.250- Cambridge UK: Cambridge University Press. 312. Odden, Allan and Odden, Eleanor(1 996) The Marshall, G. (1997) Professional Development in the Vitoi, Austalan ApracorSchool-Site Context of SchoolContex Self-ManagementSlf-MangementIARTVVictoria, of Scool IARTV Management,Australia Madison Approach WI: Research to School-Site Report for Occasional Paper No 49, February, 8pp the Consortium for Policy Research in Martin, R. (1996) Commonwealth and State/ Education, September, 65 pp. Territory Relations and Schools: Past and Future, Melbourne: Australian Education Union. Owen, J. et al, (1996) School Responses to the Curriculum and Standards Framework: An Masters, Geoff (1994) "Setting and Measuring Illuminative Analysis, Melbourne: Mimeo, Performance Standards for Student Victorian Board of Studies, 108 pp. Achievement", paper presented to Schools 1-e fVito*acurreEducati Council Conference, Public Investment in School Palmleno Vctoria (current),Edcationa t Eduatin,Costs and Outcomes, Canberra. Melbourne University Act 1958, Vocational Education, Costs and Outcomes, Canberra. Education and Training Act 1990, Adult, Matthews, Russell and Bhajan Grewal (1997) The Community and Further Education Act 1991, Public Sector in Jeopardy: Australian Fiscal Tertiary Education Act 1993, University Acts Federalism from Whitlam to Keating, (Amendment) Act 1996, South Melbourne, Vic: Melbourne: Centre for Strategic Government Printer. Economic Studies, Victoria University. Pascoe, Susan (1995a) The Standards Movement in Minister for Employment, Education and Training, America: A United States/Australia Comparison, Australia (1994) Higher Education Funding for Canberra: Research Report, Department of the 1994-96 Triennium, Canberra: AGPS. Employment, Education and Training. Minister for Higher Education and Employment Pascoe, Susan (1995b) "Benchmarking School Services, Australia (1991) Higher Education: Education: School Reviews in the Non- Quality and Diversity in the 1990s, Canberra: government Sector", Unicorn, vol.2 1, no.2, June, AGPS, October. pp.48-59. Muller, Denis and Headey, Bruce (1996) Pascoe, Susan (1996) Broadening Our Horizons, "Agenda-Setters and Policy Influentials: ACEA Occasional Paper No.46, Melbourne: Results from theVictorian Agendas Australian Council for Educational Project," Australian Journal of Political Administration. Science, Vol. 31, No. 2, pp.1 35-1 52. Ramsey, Gregor ch. (1989) Report of the Task Muller, Denis and Headey, Bruce (1997) Force on Amalgamations in Higher Education, 'Labor or Liberal: Does It Make a Camberra:NationalBoardofEmployment, Difference?' A Study of Policy Priorities C N B and implementation in Victoria 1991-1993, Education and Training, April, AGPS. forthcoming. Ramsey, Gregor and Don Brewster (1997) NBEET, Australia (1995) Cross-sectoral "Rediscovering Tertiary Education," Canberra: 30 TheEducation Reform and Management Series, Vol. 1,No. 1

Discussion Paper, Australian Vice-Chancellors' Wu, Tiemin Tim (1996) Ministers' Visions for Higher Committee, Canberra, January, 24 pp. Education, Canberra: AONA CUL/ED Salvaris, Mike (1995) Public Education, Consultants. Citizenshipand Constitutional Reform, Melbourne: Australian Education Union. iii. Newspaper Articles Slaughter, Richard, ed. (forthcoming) Strategic Leadership in Victoria's Schools of the Future, The Age Melbourne: Student Research Report, July 15,1992, n.p.: "Giving Students A New Department of Education Policy and Chance" (David Bruce) Management, The University of Melbourne. Dec. 27, 1993, n.p.: "A Year Of Painful Reform For Smith, M. et al (1996) "Research-based SchoolVitra(Etoal Reform: The Clinton Administration's Agenda", Victoria" (Editorial) in Hanushek, E.and Jurgensen, D. eds Improving Jan. 25, 1994, p.26: "A New Plan And The Big Bang America's Schools: The Role of Theory" (Sheena MacLean) Incentives,Washington DC: National Academy Oct. 31, 1994, n.p.: "New School Challenge" Press. (Editorial) State Training Board, Victoria(1996) 1995-96 Jan. 22, 1995, p.4: "Putting Hayward's Theory To Annual Report, Melbourne: State Training The Test" (Denise Ryan) Board. Mar. 30, 1995, pp.1,2: "Teachers Offered 6% Pay Summers, Anita A. and Johnson, Amy W. (1996) Deal" (Christopher Richards) "The Effects of School-based Management Plans", in Hanushek, E. and Jorgenson, D. eds Sept 4, 1995, p.6: "Most Parents Happy with State Improving America's Schools: The Role of Schools" (Christopher Richards) Incentives, Washington DC: National Academy June 24, 1996, p.A 19: Michael Gawenda, political Press. commentary. Tartaro, T. (1995) Teachers' Attitudes to Schools of Oct. 21, 1996, p.A15: "Learning The Hard Way" the Future, Melbourne: Research Report, M.Ed., (Simon Marginson) Department of Education Policy and Management, The University of Melbourne. Nov.C4,1996,pp.AI, 7: "Schools Under Strain" (Carline Milburn) Townsend, Tony (1 996a) School Effectiveness and the Decentralisation of the Management of Nov. 28, 1996, p.A 14: "Screed For The Third Australia's Schools, Melbourne: Mimeo, National Millennium:(Editorial) Industry Education Forum, August, 57 pp. Jan.14,1997, p.Al 1: "Teaching Our Children Well" Townsend, Tony (1996b) "The Self-managing (Tony Townsend) School: Miracle or Myth?," Leading and Jan.25, 1997, supp.p.3: "Coca-Cola Or The Managing, Vol.2,No.3, Spring, pp.171-194. Classics?" (Rachel Buchanan) Victorian Auditor-General's Office (current) http:// Jan.30, 1997, p.B3: "Kennett Banks On Multimedia" www.vicnet.net.au/-vicaud l/aghome.htm, (David Walker) [Homepage includes annual "Ministerials" since Feb.9,1997, pp.A1,6: "Principals Hit School 1991 and special reports]. Reforms" (Adrian Rollins) Victorian Commission of Audit(1993) Reports, Vols I and 2, Melbourne: The Graphic Centre. Mar.14,1997, p.A13: "A MinimalistApproach To * ~~~ThePublic Service" (Alan Kohler) EducationReform in Victoria,Australia: 1992-1997 31

Mar.21,1997, p.A17: "The Worm Has Turned For (Peter Baldwin) Jeff Kennett" (Mike Richards) May 12, 1997, pp. 1,4: "Docklands Project Lures Apr.4, 1997, p.A3: "Distrust Spurs Principals To Unis" (Catherine Armitage) Unite In Anger" (Alex Messina) May 14,1997, p.34: "CEO Knocks Industry Input Apr.14, 1997, p.A5: "Principals SupportRunning Over Cutbacks" (Sue Cant) Own Affairs" (Alex Messina) Apr.21, 1997, p.A2: "Pay Deal Averts Principals' Australian Financial Review Boycott" (Alex Messina) Jan. 2, 1997, p. I 1: "Short-changing Business Apr.30,1997, p.A I 1: "Uni Doors Wider For Fee Students" (Tom Valentine) Payers" (Innes Wilcox) Jan. 31, 1997, p.56: "Students Fight Economic Focus May 8,1997, p.A19: "The Ecological Approach To Of HECS Changes" (Mark Abemethy) Academic Health" (Judith Brett) May 19, 1997, p.A10: "School Levies Hit Home" Campus Review (editorial) Mar. 14 -20, 1996, pp.8-9: "1983-1996, LaborIn Review: Higher Education Revolutionaries" May 21, 1997, p.A8: "School Costs Hit Relief (Simon Marginson) Agencies" (Alex Messina) Nov. 27 - Dec.3, 1996, p.3: "Tuition Fees Twice As Oct. 28, 1997, p.AI 1: "An Audit On The Premier's High As In 1973" (Geoff Maslen) Governing Of Democracy" (Joseph O'Reilly) Feb. 12-18, 1997, p.1: "Non-sandstones Mobilise On The Australian 'West Front"' (Brian Donaghy) Mar. 30, 1995, p.6: "Top Teachers May Get Benefits Mar.26 - Apr. 1, 1997, p.2:"Graduate Energy School Deal" (Carolyn Jones) Wins Kennett's Backing" (Geoff Maslen) Nov. 13, 1996, p.55: "Unedited Versions Of Key Economist Careers" (Gavin Moodie) Mar.29, 1997, pp.1 5-25: "Education And The Wealth Jan. 18-19, 1997, p.23 "The Great Dilemma" OfNations" (reprinted inthe Australian, Apr.16, (Catherine Armitage) 1997, pp.37-39) Jan. 25-26,1997, p.24: "What Is A University?" Herald-Sun (Catherine Armitage) Oct. 8, 1992, pp. 1-2: "Schools Face A Revolution" Jan. 29, 1997, p.28: "United We Stand, But Only (Matthew Pinkney) Just" (Carolyn Allport) Oct. 17, 1993, p.7: "The Education Cuts" (Peter Jan. 31, 1997, pp. 1,2: "Academics See Dark Days Lalor) For Unis" (Catherine Armitage) Sept. 16, 1995, p.17: "A Harsh Lesson In Change" Feb. 1-5, 1997: "The Squeeze On Schools" (series) (Cheryl Critchley) Feb. 8-6, 1997, suppl.p.3: "West's University May 11, 1997, p.1 8: "College Out In The Cold" Challenge" (Elisabeth Wynhausen) (Steven Wilson) Feb. 15-16,1997, pp.1,12: "$1 10,000 Uni Degree May 12,1997, p. 19: "Drop The Rolls Talk, Senator" Sets The Benchmark" (Guy Healy) (GabriellaCoslovich) Apr.30, 1997: p.37: "Labor's Education Overdraft" 32 The EducationReform and ManagementSeries, Vol. 1,No. I

A]BOUTTHE AUTHOR

Susan Pascoe and Robert Pascoe reside in Malvern, Australia. Susan Pascoe is a Policy Coordinator at the Catholic Education Office in Melbourne. Her current research interests include school choice and educa- tion for citizenship and her work has been published widely in Australia. Ms. Pascoe holds a master's degree in education from the University of Melbourne. Professor Robert Pascoe is the Dean of Arts at Melbourne's Victoria University. His recent projects have included a report to the Australian government on student selec- tion. Presently he is a member of the Standards Council of the Teaching Profession in Victoria.

EDUCATION SYSTEM REFORM AND MANAGEMENT

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Abutthis series... This document is part of the Education Reform and Management Series. The series is under the editorial supervision of the Education System Reform and Management Team (ESRM), part of the Hman Development Network Education Group (HDNED) at the World Bank.

Theobjective of this seriesis to provideBank staff and theircounterparts with timelyirsight and analysis of largescale educatico refomn efforts around the wodd.The series examireshow education reforms are succesfully launched, implemented ard managed effectively in a given political economy.To that end seiespublications will addressthreecore areasof Wwwledge.governance and institutions,mainagement and imp4ementation,and strateg¢es'for reform.

Eleconic versionsof this documentare alsoaccessibbe.through the EducationSysm Reformand Managemnt site on the Bank'sEducation Knowege ManagementSytemn.