Final Report Cost/Benefit Analysis Relating to the Implementation of a Common School Starting Age and Associated Nomenclature by 1 January 2010 Volume 1 Report prepared for the Ministerial Council on Education, Employment, Training and Youth Affairs March 2006 Atelier Learning Solutions Pty Ltd in consortium with Access Economics Final Report Cost/Benefit Analysis Relating to the Implementation of a Common School Starting Age and Associated Nomenclature by 1 January 2010 Volume 1 The National Overview i Acknowledgements The Consortium members are appreciative of the efforts of staff in all school education authorities across Australia for their support and assistance in completing this most complex picture. Senior staff in all authorities provided access to data and helped in understanding interpretation and practice that vary considerably, even within systems and sectors. Their support in contacting colleagues in other government departments where necessary is also acknowledged. Appreciation must also go to staff of the Australian Government Department of Education, Science and Training who assisted the Consortium team to complete this Project. In particular, we wish to thank Katy Balmaks, Mary Welsh and Giancarlo Savaris, who were unstinting in their support. Other Australian Government Department of Education, Science and Training staff in various areas, including those who provided data, should also be acknowledged. Similarly, the Consortium team would like to acknowledge the support and assistance given by State and Territory personnel involved in the Project Reference Group. Their guidance was most appreciated. In addition, those officers from the Australian Government Department of Family and Community Services and the Australian Bureau of Statistics who provided data are acknowledged. Particular mention needs to be made of the support provided by the National Consistency of Curriculum Outcomes Taskforce and senior officers of the Australian Government Department of Education, Science and Training. As the Project unfolded, it was realised that the complexity of the issues was well beyond the original scope of the Project. Their response in recognising this is greatly appreciated. John Manefield and John Moore for Atelier Learning Solutions Matthew Ryan for Access Economics March 2006 ii Table of Contents EXECUTIVE SUMMARY .........................................................................................................................IV Introduction ....................................................................................................................................... iv The cost/benefit analysis........................................................................................................................ v The current situation............................................................................................................................. v The educational issues .......................................................................................................................... vi Impacts of the options..........................................................................................................................vii The national ‘social’ costs and benefits ...................................................................................................viii State and territory ‘social’ costs and benefits ............................................................................................... x School sector costs and benefits to government and parents...........................................................................xiii The opportunities and risks associated with the options.............................................................................. xvi The opportunities and risks associated with commonality........................................................................... xvii Nomenclature................................................................................................................................. xviii Conclusion..................................................................................................................................... xviii CHAPTER 1: PROJECT OVERVIEW..........................................................................................................1 1.1 Project purpose and background...................................................................................................1 1.2 Project brief.............................................................................................................................2 1.3 Project methodology ...................................................................................................................3 1.4 The current situation.................................................................................................................3 1.5 The educational issues ...............................................................................................................6 1.6 Brief overview of the cost/benefit findings .......................................................................................8 1.7 School sector costs and benefits...................................................................................................14 1.8 Structure and nature of the Report .............................................................................................17 CHAPTER 2: COST/BENEFIT ANALYSIS OVERVIEW .............................................................................19 2.1 Summary results for each of the options .......................................................................................19 2.2 Change in cohort size by option .................................................................................................21 CHAPTER 3: OPPORTUNITY AND RISK ANALYSIS OVERVIEW ..............................................................26 3.1 Opportunity and risk analysis methodology ..................................................................................26 3.2 Summary of the findings by option..............................................................................................26 3.3 Conclusion ............................................................................................................................32 CHAPTER 4: NATIONAL ANALYSIS AGAINST THE TERMS OF REFERENCE ............................................33 Introduction ......................................................................................................................................33 4.1 Benefits of proposed changes to school starting age ..........................................................................33 4.2 Impact of changes in school cohort size over time ............................................................................36 4.3 Impact on the range and continuum of child care and education services ..............................................39 4.4 Impact on child care services and pre-school education .....................................................................42 4.5 Impact on the government and non-government school sectors ............................................................49 4.6 Impact on the different roles and funding of primary and secondary schools ..........................................51 4.7 Impact on staffing...................................................................................................................57 4.8 Impact on infrastructure...........................................................................................................59 4.9 Impact on school curriculum......................................................................................................59 4.10 Impact on nomenclature for the early years ...................................................................................60 4.11 Impact on policy and legislation covering school starting/leaving ages..................................................64 4.12 Impact on families ..................................................................................................................67 4.13 Impact on Indigenous students and students with special needs..........................................................71 4.14 Impact on school completion, tertiary entrance and entry to the workforce ............................................73 CHAPTER 5: CONCLUSION...................................................................................................................77 5.1 Overview of the findings ...........................................................................................................77 5.2 Key implications.....................................................................................................................79 5.3 Management of the options .......................................................................................................82 5.4 Future considerations ..............................................................................................................83 iii Executive Summary Introduction The Common School Starting Age Project was commissioned by the National Consistency in Curriculum Outcomes Steering Committee of the Australian Education Systems Official’s Committee. The Report on the Project was prepared for the Ministerial Council on Education, Employment, Training and Youth Affairs. The Project examined issues relating to implementing a common minimum