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Higher Education

Senate Committee inquiry into higher education priorities for reform in high education, achieving equity in Aboriginal education.

Submission from the Victorian Aboriginal Education Association Incorporated, September 1998.

Equity in Aboriginal Education

The provision of equity educational programs for Aboriginal Australians during the period of the Hawke Labor Government has provided the opportunities for Aboriginal educationists to develop an informed understanding of the issues associated with governmental and institutional support for Aboriginal education. These issues have been defined in the political arena in terms of debates about social justice, affirmative action, positive discrimination and equal opportunity. There is concern that these debates have been contained within a perspective that is dominated by the cultural imperatives of the European-derived society of contemporary Australia. As a consequence, the provision of Commonwealth funds for the establishment and maintenance of 'equity' programs for Aboriginal students in higher education carries with it the implicit expectation that Aborigines will embark on study programs that engage the same curricula as non-Aboriginal students. The cultural heritage informing these curricula, and the teaching and institutional practices normally associated with this pattern of formal education, are taken as givens and thus not opened for critical review.

The support provisions typically developed within the definition of 'equity' that emerges from these debates are, in reality, compensatory programs to advance students 'academic skills' (a culturally loaded concept in itself) followed by remedial study programs to keep students on course during their engagement with their selected programs. The students' general experience in this form of 'equity' provision is not one of empowerment but one of further oppression through being made to feel inferior, this time as tertiary students. At no time does the institutions offering the 'equity' programs for Aboriginal students recognise in their curricula the political, social and economic agenda of the Aboriginal communities from which their Aboriginal students are drawn, nor do they set interactive processes with these communities to inform their curricula in ways that represent these agenda.

Wesley Lanhupuy (1987) captured the concerns of Aboriginal educationists with the following words:

"The challenge for tertiary institution enrolling Aboriginal students into teacher education programs, or other professionally-oriented programs for that matter, is not to repeat the assimilationist practices of the primary and secondary schools. The issues are the same. Tertiary institutions in Australia derive their meaning from the traditions and culture of Europe. Exposure to tertiary study for Aborigines could mean that one's Aboriginality is weakened and devalued".

Lanhupuy went on to say:

"The challenge for tertiary and TAFE institutions, funded to enroll Aboriginal students and to implement programs for these students, is to develop courses of study that begin with the knowledge and skills the students bring with them from their communities, and then to develop the students' study programs through continual reference to their society, their culture and their communities' needs".

In this submission it will be argued that the provision of equity educational programs for Aboriginal Australians has to be developed and sustained within a set of agreements about the historical, cultural and political conditions of contemporary Aboriginal society. This is necessary, as such a set agreements would allow the development of criteria for making judgements about the worthwhileness of specific equity provisions.

At the present time the support for Aboriginal education programs by the Commonwealth government is managed through processes of Aboriginal consultation which involve people in a reactive rather than in a developmental way. Many of the important issues in equity provision for Aboriginal communities do not figure in this form of consultation as is evident by the attempts to Aboriginalise program options within Higher education institutions. Those Aboriginal people specifically employed as part of this Aboriginalisation have, in essence, been relegated to roles associated with the administrative requirements necessary for the operation of courses. The equally important tasks of incorporating Aboriginal knowledge foundations by institutions has failed to occur at a level that truly satisfies the Aboriginal community. Higher education institutions responsible to the Aboriginalisation process cannot have the former without the latter. The approach adopted by the State and Territories Aboriginal Education Consultative Groups have been to take the opportunities provided by the Commonwealth access and participation, and now equity grants, to open up further education facilities for Aborigines. This has been a strategic first phase for both the Government and States and Territories Aboriginal Education Consultative Groups. The States and Territories Aboriginal Education Groups have been successful in impacting on tertiary institutions in the areas of admission policies, Aboriginal enclaves and support staff. The focus has now shifted from providing access for Aboriginal students to the issues associated with the form of educational experience available to these students.

The issues of importance now in 1988 and beyond are not so much with access but with culturally relevant participation.

The next strategic phase in the provision of equity programs for Aboriginal students is t o start to define 'equity' in terms of the social, political and economic aspirations of Aboriginal Australia. In other words to begin to answer the question.

"Aboriginal participation in Tertiary education for what purposes" ?

and then to focus on the curriculum and pedagogical questions that follow from the answers Aboriginal communities around Australia give to this first question. In this process of consultation and discussion a framework of social justice for Aborigines can be arrived at. This Aboriginal social justice framework would then inform discussions between Government officials, Aboriginal educational organisations and providers of tertiary education on the forms of Aboriginal participation to be available in tertiary institutions seeking equity grants from the Commonwealth.

The social justice framework would significantly alter the relationship between the Aboriginal educational organisations and the tertiary institutional providers of equity programs. At the present time the Aboriginal communities, through their educational organisations, are in a relatively powerless position, relying on the good will of institutions to do the right thing by their students in situations where the institutions, having accepted equity grants, can, through routine and conventional institutional practices, mange the study experience of students often at odds with the expectations of both student and their communities. In this situation Aboriginal educationists are on the 'outside' of the European-derived institutions unable to negotiate in significant ways to influence the decision-making processes that determine curriculum, pedagogy, and assessment for Aboriginal students in higher education: all vital to the participation experiences of Aboriginal students in formal education. The negotiations that have been possible have been important learning experiences for both the representatives of tertiary institutions and of States and Territories Aboriginal Educational Consultative Groups. But it is fair to say that these negotiations have been essentially on peripheral matters.

Negotiations arising from a social justice framework and the reappraisal of equity programs for Aborigines in education would broach the hitherto sacred ground of institutional privilege; that is, negotiations over the authority of institutions to devise and accredit curricula, to teach and assess students and to promote particular constructions of knowledge in preference to others. These negotiations would press up against and bring into contention the essential nature of the higher education institutions themselves. Equity provision could well mean changes to the fundamental structure and practices of these institutions; changes that enable students from diverse cultural backgrounds to participate in studies that respect and promote their own interest and those of their communities. This is the hard ground that lies ahead in the equity debate, a debate that will not only effect Aborigines but also other groups in the broader Australian society disadvantaged by current higher education provision.

Acceptance of this position by the Government and by institutions will require a shift in policies and practices that continue to legitimate the European-derived heritage of Australia. The hegemonic European-derived culture of Australian structures the educational experience of Aboriginal students drawing them towards the dominating culture and alienating them from themselves and their community cultures. This is the danger that Wesley Lanhupuy alerted us to. Institutional education in Australia, if accepted uncritically and allowed to proceed unchallenged, us assimilative and oppressive for Aborigines (and for other groups for that matter) - assimilative in that students from diverse cultures and histories are encouraged to value the history and culture of the dominant social group in deference to their own communities' cultures and histories, and oppressive because students and their communities are further disempowered by the students' educational experiences.

"Cultural conquest leads to the cultural inauthenticity of those who are invaded; they begin to respond to the values, the standards, and the goals of the invaders. … For cultural invasion to succeed, it is essential that those invaded become convinced of their intrinsic inferiority. Since everything has its opposites, if those who are invaded consider themselves inferior, they must necessarily recognise the superiority of the invaders (Freire, 1972. p.122)

It is an extreme irony that, under the slogan of equity education provision for Aborigines, the interests of the dominating cultural group in Australia may continue to be served at the expense of the interests of the Aboriginal communities. What is now required is a shift in the basis of educational provision so that Aboriginal groups are in positions of equal control, are powerful and are recognised as having the knowledge and legitimacy to negotiate with tertiary institutions for equitable educational programs for members of their communities. In these negotiations educational programs for Aborigines themselves would be equitable in terms developed and defined by Aborigines themselves; equitable in the sense that the resultant programs and student experiences contribute to the cultural, political and economic interests of Aboriginal communities; and equitable in the outcome of empowered Aborigines enabled by their studies to act as appropriate and acceptable social agents in their communities.

Equity for Aborigines in Australia is to be arrived at through recognition by ourselves and other of the processes of oppression that have operated in the past and are still with us today, and through our struggle and eventual attainment of equality of power - power to effect decisions over our own communities' circumstances and the life choices of individual community members. This is Aboriginal self-determination. Equity in education provision for Aborigines is embedded within this concept of self-determination.

Equity in education for Aboriginal Australians begins by involving Aboriginal educationists and their communities in establishing forms of program accreditation with institutions which recognise the authority of the institutions and the institutional accreditation hierarchy jointly with the authority of Aboriginal educational organisations and communities represented by enrolled students. Equity provision for Aborigines in higher education begins with joint authority over program accreditation. It continues through negotiations involving institutional representatives and Aboriginal community groups on the curriculum and teaching practices associated with the jointly accredited programs. Equity provision in education requires that academic and administrative staff of institutions involved in equity programs for Aborig9ines are also jointly accountable for their professional practices - accountable within the context of their institutions but also equally accountable to the Aboriginal communities that they serve through their work with students.

Recommendations

1. A Social Justice Framework

A Social Justice Framework be developed through consultation involving the NAEC and all the States and Territories Aboriginal Education Consultative Groups. This framework will recognise the historical, cultural and political conditions of contemporary Aboriginal society. This framework will provide the broad social justice guidelines for decision-making in the area of Aboriginal education.

2. Equity in Aboriginal Education

Equity in Aboriginal Education needs to be defined in accordance with this discussion paper. The States and Territories Aboriginal Education Consultative Groups must be brought into the debate on defining equity for Aboriginal students in higher education institutions. This debate must be informed by the social justice framework and will result in a statement of objectives for higher education institutions.

3. Aboriginal Curriculum and Pedagogy

The curriculum studied by Aboriginal students and the pedagogy through which these students engage their courses needs to be informed by the social justice framework and the equity definition resulting from recommendations 1 and 2 above. Aboriginal curriculum and pedagogy need to be developed by Aboriginal people. This curriculum and pedagogy needs to be valued equally within the higher education system so that Aboriginal educationists and students can encode the Aboriginal knowledge base into the curriculum of higher education institutions.

4. Jointly Negotiated Accreditation.

States and Territories Aboriginal Education Consultative Groups together with Higher education institutions need to jointly decide on accreditation of curriculum that has Aboriginal content or Aboriginal student participation. That the accreditation process for any Aboriginal education program needs to be negotiated jointly between States and Territories Aboriginal Education Consultative Groups and the higher education institutions. Mechanisms need to be arrived at that satisfy both the States and Territories Aboriginal Education Consultative Groups and higher institutions.

5. Joint Accountability

The accountability procedures for higher education institutions enrolling Aboriginal students need to be jointly negotiated between the States and Territories Aboriginal Education Consultative Groups and the higher education institutions. These procedures will reflect the uniqueness of the variety of course available to Aboriginal students.

6. A Higher Education Agreement

Institutions wishing to be part of Equity programs for Aboriginal people need to abide by an 'Agreement' developed by State and Territories Aboriginal Education Consultative Groups which outline the historical, cultural and political conditions of contemporary Aboriginal society. This Agreement shall ensure that no teaching by any staff nor internal policies shall breach those understandings within that agreement. The recognition of Aboriginal sovereignty will be the major thrust of such an Agreement.

7. Participation

That moves be made to open up all higher education study areas for Aboriginal participation with particular emphasis on areas that would benefit Aboriginal community development from our perspective. This would involve a joint approach by higher education institutions and DEET resulting in the designation of increasing numbers of Aboriginal student places. The DEET response will reflect changes in Federal Government policy while higher institutional response will reflect internal changes to Aboriginal student quotas.

8. Funding

The funding arrangements for Aboriginal education in higher education institutions needs to be placed on a more secure basis for the 1989-91 triennium. It is recommended that those institutions with a proven record in supporting Aboriginal students and also prepared to enter into the Aboriginal Education Higher Education Agreement be granted funds on a triennial basis.

That the State and Territories Aboriginal Education Consultative Groups develop a national system of rationalisation for the allocation and expenditure of Aboriginal Participation initiative funds and Aboriginal Special Course funding.

Institutions must increasingly take a greater financial responsibility whilst receiving outside funding for Aboriginal education programs by progressively transferring the core costs of these programs to internal funding sources.

9. Student Support

Aboriginal graduate shall be exempt from paying Graduate Tax in recognition of our severe economic inequality and the social injustices that Aboriginal peoples have experienced over the past 200 years.

The means testing of ABSTUDY is unacceptable in its present form and needs to be negotiated with States and Territories Aboriginal Education Consultative Groups.

The level of the ABSTUDY student allowance needs to be raised as the current level is inadequate as it does not cover all the financial requisites of course participation.

In addition student accommodation needs to be provided in suitable locations at reasonable prices and conducive to study.

10. Staffing

That a priority in Aboriginal education in higher education institutions be the provision of staff positions for Aborigines reflecting a balance between academic and non-academic positions. These positions must be established with procedures ensuring accountability to the States and Territories Aboriginal Education Consultative Groups and the higher education institutions.

That the States and Territories Aboriginal Education Consultative Groups and the higher education institutions establish a network of support and professional development for Aboriginal employees in the higher education sector. The community looks to these workers for assistance and direction in higher education and the institutions put great pressures on these workers to reflect the Aboriginal community's needs and aspirations.

11. General Recommendation

Education at the higher education level cannot be effective if changes are not made at the Early Childhood, Primary and Secondary levels. These changes must occur through negotiation with States and Territories Aboriginal Education Consultative Groups in the areas of schools' policy, curriculum, staff development and pedagogy.

References

Freire, P., Pedagogy of the Oppressed, Penguin Books Ltd. England 1972, pp.122

Lanhupuy, W., Occasional Address, Aboriginal Child at School, October, 1987.

THE NATIONAL ABORIGINAL AND TORRES STRAIT ISLANDER EDUCATION POLICY

THE VICTORIAN ABORIGINAL EDUCATION ASSOCIATION INCORPORATED PLAN FOR HIGHER EDUCATION

HIGHER EDUCATION AGREEMENT

1990

Preamble

The Victorian Aboriginal Education Association Incorporated (VAEAI) has negotiated a Strategy Plan for Higher Education with the Victorian universities participating in the higher education of Koorie students. This negotiation process has occurred over March to June 1990 through a series of meetings involving representatives of VAEAI, the universities and DEET. Members of the VAEAI Higher Education Sub-committee visited each university campus where support programs for Koorie students had been or were in the process of being established. These visits occurred in April - May of this year.

These negotiations over the VAEAI Strategy Plan for Higher Education were integrated with consultations with each university over their Aboriginal Education Strategy for the 1991 - 93 triennium.

The outcome of these negotiations was an endorsement of the VAEAI Strategy Plan for Higher Education by the representatives of the participating Universities. The VAEAI undertook, as a result of this endorsement, to meet with the Chief Executives, or their nominees, of each university participating in the higher education of Koorie students. The purpose of this series of meetings is to finalise a Higher Education Agreement between VAEAI and each university based on the VAEAI Strategy Plan for Higher Education.

THE HIGHER EDUCATION AGREEMENT

This is a formal between the Victorian Aboriginal Education Association Incorporated and the following Higher Education Institution,

SOCIAL JUSTICE AGREEMENTS

1. The Higher Education Institutions agrees to recognise the prior occupation of Australia by Koorie peoples living in harmony with environment and their ancestral traditions.

2. The Higher Education Institution agrees to acknowledge the needs to compensate Koorie peoples for the dispossession of their land and the impact it had on the Koorie way of life. The forms of compensation available to Koorie peoples from the Higher Education Institution will be expressed through its education programs, student support practices and employment policies.

3. The Higher Education Institution agrees to accept a responsibility together with all Australians, Koories and non-Koorie alike, to work towards redressing the imbalance that exists between Koorie people and non-Koorie Australians.

4. The Higher Education Institution agrees to award appropriate respect for the culture of Koorie peoples and to assist, through its education programs, student support practices and employment policies, in the establishment of an economic base for Koorie communities.

5. In order to honour these above social justice agreements the Higher Education Institution further agrees to cooperate with VAEAI on the implementation of the VAEAI Strategy Plan for Higher Education. The following specific agreements constitute this further social justice agreement:

SPECIFIC ARRANGEMENTS

(i) The Higher Education Institution agrees to the elements numbered 2 to 7 in the VAEAI Strategy Plan for Higher Education and agrees to develop policies and practices in accordance with these elements.

(ii) The Higher Education Institution agrees to establish consultation and management procedures in accordance with element 2 of the VAEAI Strategy Plan for Higher Education (the principles of joint authority and joint management) as the appropriate procedures for the development of policies and practices in accordance with elements 3 to 7 of the VAEAI Strategy Plan for Higher Education.

(iii) The Higher Education Institution recognises that this agreement will be for the period of the 1991 - 93 triennium. It also recognises that the elements 2 to 7 of the VAEAI Strategy Plan for Higher Education will be the basis for a review and evaluation by VAEAI in 1993 under the guidelines set by DEET for the allocation of Aboriginal Higher Education equity grants for the following triennium.