My previous post argued that some university students needlessly incur HELP debts and fails on their academic record. This post looks in more detail at several measures proposed in new legislation to alleviate this problem.
The issues in VET FEE-HELP and higher education are, however, quite different. The offering of inducements, misleading statements about HELP, and cold calling that would be restricted or banned for public universities by the new legislation never or rarely happen in higher education.*
The draft legislation for the Tehan higher education package, released on Tuesday, includes several previously unannounced measures. These include new – or least new for public universities – rules for managing under-performing students.
Among the measures are greater monitoring of student progress, restrictions on study load, and as the media has been reporting today students losing Commonwealth funding if they fail more than half the subjects they have taken. The minister’s media release is here.
I will get to the sometimes arcane detail in a subsequent post (or posts, there is a lot). I am not convinced that the government is going about this in the best way. But I don’t want complaints about the details to obscure the point that this is an area worth policy attention.
In the Grattan Institute Dropping Out report we argued that disengaged students are needlessly incurring HELP debt and blemished academic records. With demand likely to exceed supply for higher education next year, disengaged students are also using Commonwealth supported places that would benefit other people more.
Based on last year’s portfolio budget statement, which requires some averaging of years, under status quo policies the Commonwealth Grant scheme will increase by about the rate of inflation. As Commonwealth contributions are indexed to inflation, and universities are already delivering more student places than needed to get their maximum grant, the 2021 CGS funding increment would not require any additional student places.
Under the Tehan reform scenario, starting in 2021 the government will add ‘growth places’ that are partially linked to population increases in the 15-29 age cohort. But these places will not increase Commonwealth Grant Scheme funding compared to 2020. Rather, the maximum CGS payment is first reduced and then slightly increased by the growth places. The lost funding would be recycled in a proposed industry linkage fund, but this puts new constraints on university spending rather the freeing up funds for new student places.
This post examines how student places for undergraduates might increase under the Tehan reforms. For general readers, the first section on major sources of additional places includes the key policy changes. Read on after that part if you need to know the detail of higher education policy.
The higher education reforms Dan Tehan announced last month make the idea of ‘national priority’ courses, which are often but not always linked to employment prospects, a central feature.
This is a significant conceptual shift in the funding system. Historically, deliberately steering the system by course has been a marginal aspect of policy. It has occasionally been done by allocating new places to preferred fields, especially in the mid-to-late 2000s. In the same period, some changes to relative student contributions, particularly in the case of science, were designed to boost demand. But universities, influenced by student preferences, largely decided how student places were divided between courses.
In the Tehan proposal, universities will remain the main decision makers. The government will not directly allocate money to national priority fields. Instead, the government will send price signals to students across all fields of education, with low student contributions indicating national priorities, and high student contributions discouraging non-priority fields. Altered student preferences will, if the policy goes to plan, cause universities to shift student places to priority areas.
Student contribution effects
To date, most discussion has centred on what effect the new student contributions will have. My own position on this is mid-debate.
In an ABS survey, about 10 per cent of bachelor degree students gave interest or enjoyment as their main reason for study. Purely interest motivated students can’t so easily justify paying increased student contributions as still a good investment in increased lifetime earnings. They need to consider whether the study experience itself is worth the fees they will pay.
The Tehan higher education reforms aim for ‘job ready graduates’. In that, the government’s goals align with those of most students. In recent ABS surveys asking students about their main reason for study, more than 80 per cent of bachelor-degree respondents gave a job-related reason. About 10 per cent gave interest or enjoyment as their main reason (chart below).
However, interest and work reasons are not mutually exclusive. When multiple reasons can be given interest in the field of study is the most popular answer, with over 90 per cent of respondents saying it is important (chart below). Training for a specific job is nominated by about three-quarters of respondents, with another ten per cent hoping to improve their job prospects without having a precise occupation in mind.