Flexible learning as a means to increasing access to higher education in PNG.
Vallance, Roger
Abstract
This paper argues that flexible learning is an appropriate vehicle
to increase access to higher education in Papua New Guinea (PNG).
Flexible learning needs to be understood within the context and
limitations of the situation and hence flexible learning in PNG needs to
take on special characteristics in order to benefit learners and to not
create a new level of educational disadvantage. The article develops a
model, based on the evolving experience of Divine Word University (DWU),
to better understand what flexibility means and how to ensure the
provision of flexible structures and processes for learners. Ultimately,
flexible learning needs to be at the service of the learners and for the
sustainable development of the nation.
Key words: flexible delivery, equity of access, adult education,
higher education.
Introduction
Papua New Guinea faces a number of educational challenges. There
are multiple challenges for elementary, primary and secondary education
in terms of access, funding, resourcing and supply of quality teachers.
To compound the problem of access to basic education, school fees apply
even in primary schools. There is no free educational provision
('Schools urged to register students with partial fees',
2007). Higher education, or post compulsory education, faces even
greater hurdles as higher eduction does not even feature in the
Medium-Term Development Strategy (Department of Planning and
Development, 2004). University costs are only partially subsidised by
government (Anis, 2007) and average incomes of families are low. Papua
New Guinea is a country divided by geographical, linguistic and economic
barriers. To compound these difficulties, the level of education of many
adults is low. Even more worrying is the overall low rate of effective
school attendance (Education and Policy Data Centre, 2005), despite the
compulsory nature of education up to primary levels. The effective
attendance of primary schools was recently reported to be about 32%
nationwide (Kombra & Webster, 2006).
Despite the challenges existing in school education, there remains
a strong desire for post-compulsory education. Every year the newspapers
report how many more students desire undergraduate university places
than can be accommodated (Post Courier, 2007a, 2007b). Furthermore,
large numbers of organisations--government, companies and not-for-profit
organisations--need their employees to access and employ skills acquired
through higher education.
This is the situation that universities face today in Papua New
Guinea. This paper sketches the outlines of a philosophy of approach to
respond to these challenges. This paper addresses these issues through a
discussion of 'flexible' and what flexible learning means
within the present context of Papua New Guinea in the university sector.
Essentially, this paper claims that equity and access issues can best be
addressed through flexible access, and 'flexible access' has a
number of implications for the students and, more centrally for this
paper, for the university as a learning organisation.
Flexible learning in higher education
This paper is directed towards adult education in the context of
higher education. Hence it is not directly concerned with school
students or those young people of near school age. This paper addresses
issues of educating adults who have some workforce experience and who
will profit from further skill development. Fundamental to this approach
is the belief that maximising the potential and capacity of those
already in the workplace is one way to build the economic and social
fabric of Papuan New Guinean society. Increasing the capacity of the
present workforce is understood to result in direct increases in the
capacity of that workforce to engage more workers and continue to build
the economy and social fabric by including ever more people in the
market economy and waged participants in society.
This article develops earlier ideas about the role of flexible
learning (Vallance & Bugg, 2006). It is important to note that
'flexible' has a number of different connotations, and indeed
at the 5th Huon Conference (Lahies, 2006) university educators continued
a discourse of standards based on entry requirements that students must
attain to gain admission. This point will be directly addressed in the
later section: 'appropriate and transparent standards'. By
describing the Divine Word University (DWU) model of flexible learning,
it is hoped that the model might provide the basis for a discussion of
the most appropriate flexible learning models for PNG today.
What flexibility means
Flexibility means different things in the context of educational
provision. Certainly, flexibility does not pertain simply to attendance
or modes of learning. Flexibility, is it argued, needs to be employed in
order to maximise student engagement, especially when in PNG potential
students face many challenges in terms of traditional educational
accomplishments. It is argued in this paper that flexibility must
include a majority of a number of parameters. To claim
'flexibility' in one aspect and maintain a more traditional
rigidity in others is actually a contradiction and indicates a lack of
essential flexibility. Hence, an organisation needs to commit itself to
a creative approach that maximises flexible thinking in meeting the real
needs of its students (Donnelly, 2004).
The conservative mindset that suggests that students need to
conform to the rules of the institution if they want to join the higher
education institution ignores the social imperatives of our times and
the needs that have up to now been unfulfilled. Furthermore the
conservative mindset will perpetuate the educational gap between
provision and needs. The following discussion of necessary flexibilities
is ordered on a chronological order as the new student is likely to
encounter demands and requirements of the learning situation.
Flexible entry
Papua New Guinea has a population that is growing quickly. While
37% of the population is under the age of 14 years (CIA FactFiles,
2006), 85% of the population live in at least a partially subsistence manner. Since rates of school are low (Education and Policy Data Centre,
2005), the traditional expectations of Year 12 schooling for entry into
higher education automatically excludes many adults who may have
successful work histories and employment records. A simple recognition
of prior learning (RPL) alone does not offer access to the usual
tertiary avenues of diplomas and bachelor degrees.
[FIGURE 1 OMITTED]
Flexible entry means that intending students can access appropriate
training through short courses, certificates and workplace oriented training. (The word 'training' is used here because
'training' is current in workplace management and competency
materials, especially those recently coming from Australia.) Not only is
it important that intending students can access these workplace oriented
training courses, but it is vital that a means of articulation into the
more 'academically' oriented diplomas and bachelor degrees be
provided. This articulation requires each institution to think seriously
about how advanced standing provisions can be used to recognise
competencies achieved in short courses and lower level certificates.
Within the Australian context there exists a diversity of
educational pathways (Figure 1) and blends of the mixture of vocational
versus theoretical preparations (Australian Qualifications Framework,
2000). The Australian Qualifications Framework (AQF) was devised in 1995
and fully implemented with broad cross-governmental and commercial and
industrial sectoral support in 2000. Hence, all State and Territory
educational systems, both school and Vocational Education Training
(VET), and the universities support this Framework.
[FIGURE 2 OMITTED]
Within the educational context of PNG, DWU attempts to facilitate
flexible entry (Fig. 2). Through the Faculty of Flexible Learning (FFL),
DWU provides a range of programs for those who cannot attend full time
classes. Indeed, in recent years, FFL has expanded its role to include a
range of postgraduate programs including the highest academic award of
the Doctor of Philosophy (PhD). DWU is pioneering the part-time PhD for
those who need a flexible approach to this research degree. The
necessarily cross-disciplinary nature of the research of many
professionals engaging in these degrees requires another dimension of
flexibility: that of flexible supervision structures (Malfroy, 2005).
The similarity between Figures 1 and 2 is not accidental. FFL is
attempting to facilitate flexibility in terms of entry, as well as in
terms of course mode, for the benefit of PNG citizens. Figure 2 shows
that Yr 12 entry is possible to all programs. Without Yr 12 and with
suitable results in studies, entrance to the higher education stream is
possible via short courses and via workplace training and development
achievements. These latter pathways are recognising RPL in lieu of the
formal year 12 certificate. Within a developing economy, RPL has been
found to be a significant factor in increasing the flexibility of
education access (Cretchley & Castle, 2001).
In practical terms, flexible entry means that the intending student
has a pathway to argue for competence and suitability. This argument
might include the successful completion of a number of workplace
oriented short courses; or it might include experiences that have not
been formally assessed but in which increased competence and capacity is
indicated. Clearly, any such argument will need to provide evidence
appropriate to the field of study that is being requested: success in
First Aid, while in itself is admirable, might not be a strong argument
for entry to management courses.
Flexible structures
'Flexible structures' is a term that is used to describe
how the student interacts with the teaching and learning paradigms of
the courses. Flexibility in structure recognises that the participants
are adults. These adults have families and family responsibilities as
well as employment responsibilities. As part of their social fabric,
many intending students have social responsibilities and relationships
that are vital parts of their self concept and persona. To diminish or
threaten to diminish these relationships raises the levels of difficulty
for many adults and increases the stresses involved in study (Plant,
2005). It is hardly likely that many employers will support their
workers in study if that study dramatically decreases their time and
energies on the job for which they are being paid. Employers will often
relax some job requirements so that study options can be completed for
the mutual benefit of both the company and the employee, but it is not
usual that companies can provide large amounts of release time.
Flexible structures ensure that students can maintain their
commitments of family, employment, other social obligations and
relationships. Flexible structures mean that the adult learner can
construct study as not being a choice between 'study' or
'having a life' but rather 'study and learning is part of
my life'.
Flexible structures in FFL include flexibility in the rate of
study, so participants are not bound within cohorts. This flexibility
allows for changes in life circumstances. Also, opportunities are
offered within a cycle and the cycle moves opportunities around within
the annual calendar, so that particular times of the year might not
become problems for participation.
Flexible modes of delivery
At first glance, it does seem that the university sector has
embraced flexible delivery. Yet flexible delivery usually means online
or digital delivery of course information. Table 1 shows that flexible
delivery methods offer different models and possibilities of teacher and
student interaction, yet almost exclusively in the higher education
literature flexible delivery has come to indicate electronic delivery by
one means or another (Beattie & James, 1997). For the reasons
already elaborated above, it is unlikely that online delivery will
significantly increase access for most Papuan New Guineans, especially
those outside the major urban areas.
Table 1 shows that the delivery mode that offers most potential for
interaction remains the most traditional classroom based models. Maximum
flexibility for students in terms of location and time imply the
distance models involving electronic or printed media. The present model
of flexible delivery at Divine Word University includes both aspects by
providing printed materials that are taught and scoped in block
residential periods and then used as resources for assessment completion
while students are back in their own places.
Flexible attendance
Flexible attendance is a difficult aspiration. While all might
sympathise with the student who needs to fit study demands around a
variable and often unpredictable personal schedule, institutional
demands and the need to work with cohorts of students often frustrate a
university's best intentions. While electronic delivery might be a
developed world ideal, the practicalities of uncertain and uneven power
supply, where it is even provided, the low rate of telephone access and
the relatively high cost of telephones, as well as the low bandwidth
offered by many landline services, all combine to make electronic access
impractical for most.
Any effort to increase access by pushing towards internet mediated electronic access is destined to decrease equity and further
disadvantage those potential students in rural or remote areas, and to
even further disadvantage those with modest financial resources. Little
literature explores the pragmatically well-founded experience that
e-learning students usually suffer high drop-out rates due to the lack
of social interaction and social reinforcement (McGivney, 2004; Plant,
2005). Recent models of student retention involved in online courses
show that the indicators of high retention rates are all opposed to the
characteristics of the new learner: previous high levels of academic
success in the course; high levels of high school grades; high number of
completed classes; and being older than the cohort median age (Morris et
al., 2005).
Having multiple cohorts increases flexible attendance. In the
Faculty of Flexible Learning at DWU several cohorts exist in most
courses. This means that a student who misses a block session in one
semester can join another cohort at a later time to complete that
required unit. It is usually possible that the student can carry the
'missed' class over to the end of the period for social
reasons so that the student can maintain the relationships already
established in the cohort with which she/he started the course.
Flexibility of resources
Flexibility of resources means more than being able to provide
different functions for teaching and learning. Usually, resource
flexibility is understood to mean access to libraries, computer rooms
and tutors. While necessary, such access is not sufficient. True
flexibility implies that the resources are themselves relevant to
student needs and adaptable to different circumstances. Such flexible
resources are most commonly employed in problem-based learning.
Resources on CDROM offer increased flexibility since real-time
electronic access to the internet is not required, and the options for
student divergent interests are wider than can be practically provided
for with printed materials. Currently, DWU is providing CDROM reading
resources and interactive 'web-on-a-disk' CDROM to students
enrolled in some certificate courses as well as providing laboratory
access to sets of CDROM training materials during block experiences.
Block experiences feature significant computer skills training which
includes internet access and use.
DWU's strategy is not to emphasise any one delivery mode
(Table 1) but to offer choices of delivery modes that reflect student
needs and potentials.
The next step in this evolving flexible delivery model will be to
provide increased access to all students to learning courseware on the
university intranet and to provide 'web-on-a-disk' versions of
this learning courseware to students who are studying off campus. While
this 'web-on-a-disk' model still requires access to a
computer, experience is showing that many students have or can negotiate
access on a laptop so that power fluctuations are not as critical or on
work machines for job related learning activities.
DWU has evaluated Moodle (Dougiamas, 2006) as the courseware
platform and has progressed towards offering a number of units in this
learning management software. Currently, internal undergraduate programs
are moving to provide resources via Moodle for on-campus and residential
study. Within the limits of PNG's telecommunications, Moodle will
also offer off-campus resources via a secure login.
Increasing use of full text databases, including remote access, is
proving a valuable resource for research oriented students. While these
resources are commonplace in developed countries, access to these
resources in PNG is limited by bandwidth and telecommunication
reliability. Both issues are challenges within PNG at the present time.
Appropriate and transparent standards
The preceding pages have emphasised flexibility. This flexibility
has been discussed in terms of the flexible processes of the university.
This flexibility requires an equal commitment to work and performance
from each student. This matter of student performance is addressed here
under the somewhat traditional term 'standards'. The focus in
this section of the paper is on workplace training and short courses
(Table 1) rather than the academic streams. This focus is justified by
the fact that the workplace training and short courses are the routes
whereby non-traditionally qualified students gain access to the academic
streams. While the spirit of academic advanced standing and RPL applies
in the academic streams, the workplace training side of FFL most clearly
demonstrates this application.
The word 'standards' is used here deliberately. Accepting
that the term carries some traditional and even defensive overtones, it
is important to say that standards are important. It is also important
to say which standards are important.
The standards fallacy
There is a fallacy in the language of standards that suggests that
'standards' are maintained by having high entry criteria. This
fallacy makes a mockery of education; which ideally should mean that
those who come into education with little knowledge and few skills leave
the education process with increased knowledge and skills. Hence,
standards are not about entry criteria but are actually about exit or
graduation criteria.
In many ways, what skills and knowledge the student lacks on
entering a training program, matters very little. Those skill and
knowledge deficiencies do need to be identified and resolved. What
matters are the competencies with which the student exits the course or
training. To be sure, large gaps in knowledge and skills may indicate
lack of ability, or may indicate excessive amounts of remedial work on
the part of the intending student and the teachers that are in practice
beyond what is possible. Those issues can be identified and explained,
and it is not suggested here that everyone can nor should access
university education. But ultimately it is about the intending
student's ability, willingness to work hard and reach identified
standards. To this end those standards must be clearly identified and
the nature and possible difficulty of the tasks do need to be explained
to all students.
This is one thing that the focus on outcomes based education (OBE)
has taught us: that what can be achieved at the end of the course of
instruction is what is important and the rest is of little importance.
This is not to say that only performance is important. OBE, properly
understood, also addresses skills, values and the affective domain.
Understanding that academic standards are about appropriate exit
criteria should reduce anxieties about RPL, articulation from
non-academic routes of entry into undergraduate courses and advanced
standing procedures. Transparent standards mean that the course
assessment policies must be relevant to learning materials and
processes, applicable to the students' circumstances, and fair in
terms of levels of difficulty.
Appropriate standards
So what does appropriate and transparent standards really mean?
Such standards are tightly involved with assessment. Assessment must be
workplace relevant. The assessment must directly address the core
competencies that the student has enrolled to achieve. These
competencies must be explicitly detailed at the beginning of the
learning experience and reinforced during the learning so that the
ongoing relevance of the learning is highlighted. This does not mean
that the student must always 'see' how each point directly
relates to his/her work performance, but it does mean that the valid
argument is made frequently. At times this argument may only be accepted
in hindsight, but that may be sufficient to establish a pattern of
relevance.
Transparent standards
Transparent standards refer to those standards of which the
students can readily see the validity. In other words, the assessment
derives directly from the learning activities and relates directly to
the workplace competencies that they have decided to acquire.
Transparent assessment usually implies continuous assessment, is problem
based and competency driven and hence is often criterion referenced
rather than norm referenced. As the front-line management literature
speaks of 'see-try-apply', competency assessment is based on
the process 'try-apply-do'. Transparent assessment does not
require a large emphasis on summative, paper-based exams. Similarly,
transparent assessment may not require long assignments that are more
geared towards meeting academic expectations of literacy in the academic
forum.
Flexible assessment
The point has already been made that assessment needs to be
transparent and appropriate. Assessment also needs to be flexible.
Flexible assessment does not mean variable outcomes nor does it mean
lowering of standards. For these reasons, this section on flexible
assessment is located within the discussion on standards. Flexible
assessment means more than simply being flexible with regards to
assessment submission dates, although this flexibility is reported to
make a significant contribution to student satisfaction as well as
higher levels of attainment (Patton, 2000).
Competency levels and outcomes of workplace based training do not
always require high levels of written standard English. Certainly there
are some workplace training units that do require high level of spoken
and written English expression, and when these outcomes are required
they should be explicitly stated. Where such high levels of English are
not required, the assessment should not unnecessarily require them. This
generally applies to written expression, so assessments might encourage
more modalities of communication: verbal; pictorial; role-play and
performance; and presentations both oral and via other media.
Workplace training also implies and is well suited towards
workplace assessment. Flexible learning at DWU is transferring what has
been learned about mentoring in teacher education to workplace training
(Jones, 2000; McNally & Martin, 1998). To this end, workplace
mentors and a learning contract that explicitly involves the workplace
mentor in the ongoing assessment are formal parts of flexible learning
at DWU. The learning contract requires an explicit commitment from a
workplace mentor to be involved with and monitor and assist in
on-the-job learning and application of skills learned in block periods.
Feedback to date has been strongly positive from workplace supervisors.
Workplace mentors are one form of support that flexible learning
employs. Other supports include regular contact and follow-up. Not only
if assessment dates are missed but also when performances are below
expectation or when information comes that a particular student is not
travelling well or is experiencing difficulties, then phone contacts are
initiated by the flexible learning administration, the learning tutor or
both.
Regular mailings are another form of support, as is the routine
communications for ongoing enrolments, forthcoming learning block
periods, delivery of materials and the prompt return of marked
assessment items.
Equity
Equity of provision is the main aim of the flexibility offered
within DWU. By equity is meant that intending students are able to
access learning resources in ways not influenced by gender, lack of
previous opportunity, or distance from social amenities. We have a way
yet to go, and resources are constantly being stretched by the ambition
to offer more. And, sadly, the economic climate of the day in Papua New
Guinea means that there are inevitable financial costs associated with
any form of study.
That said, many organisations, government and companies both
for-profit and not-for-profit, are seeing immediate benefits from
raising the levels of training and skills of their employees. Some of
the indicators of the success of this approach are the high levels of
return from organisations who want similar and also further courses run
for their employees; high rates of student re-enrolment towards higher
degrees; and the bottom line of high completion rates in courses.
Equity, unfortunately does not yet mean everyone with the ability
may engage in university education. Equity does mean that university
education can be accessed by those with the ability and drive, even in
the event of less than optimal formal schooling. Equity means making
education accessible so that family circumstances need not deter
intending students, and even issues of geographical isolation from
amenities can be ameliorated so that student success is possible.
A possible way forward
There are ways towards increasing equity of access and provision in
PNG. Figure 3 attempts to describe the ways forward chosen in the
Australian context to increase the equity of access.
Figure 3 The way forward. Adapted from 'Stepping Forward'
(MCEETYA, 2001)
Partnerships share the load and increase possibilities and
opportunities.
Principles
Focus primarily on the interests of young Papua New Guineans
* be inclusive, flexible and adaptive
Collaborate and cooperate across sectors
* identify opportunities for cross sectoral or trans-discipline
approaches
* identify opportunities to add value and build on what works
Communicate, consult and collaborate
* listen and respond to young people
* engage young people in finding solutions
Promote partnerships and networks
* identify opportunities for further strengthening existing
partnerships and building new partnerships
* actively support networks that draw together jurisdictions,
government departments, industry, families and communities
Connect and ensure coherence
* ensure services are interconnected at the local level in
such a way that young people find them to be transparent and coherent
Participate meaningfully
* ensure education is relevant
While it is unlikely that the Australian context is directly
transferable to Papua New Guinea, it is likely that we can discern some
useful directions. Clearly, the concept of partnership is central. It is
argued that a similar approach, albeit with more modest resources, is
suitable for the educational requirements of PNG. Indeed, given
PNG's current limitations and provisions in the National Goals for
higher education, it is not too strong a statement to claim that Figure
3 outlines a necessary plan for PNG's higher education sector. The
Faculty of Flexible Learning in DWU is proceeding within the following
outline as its chosen means of best offering educational opportunities
for national development.
Partnership implies flexibility since partners must adjust and
adapt to the needs and capacities of the other. In the PNG context the
way forward to increase equity is likely to involve and require:
* Increased flexibility of access so that those able students who
do not have the orthodox qualifications or matriculation may be able to
engage in appropriate adult learning
* Development of workplace related programs that increase the
capacities of the present workforce
* Increased flexibility to encourage those students who are not
close to academic institutions or whose other obligations require
flexible attendance patterns to engage with university learning
* Increased creativity with universities to respond to the real
needs of people in social and economic spheres.
Conclusion
This paper has described some of the forces that impinge upon
university uptake and student engagement. These forces are not static
nor are they irresistible, but they are powerful social, economic and
geographic realities. It is argued that universities need to develop an
increased flexibility in order to respond creatively to the challenges
within the content of higher education in Papua New Guinea today.
Increased flexibility will increase equity of access and provision.
Flexibility will encourage those citizens with the ability and desire
for education to take up the opportunities available. Increased
flexibility will encourage organisations, whether these be government,
non-government organizations (NGOs) or companies, to increase the
capacities of their employees by funding appropriate workplace related
training which can be provided within the university sector and this
flexibility should articulate into further university courses. That
workplace training becomes the entry to bachelor or master degrees and
research degrees can be seen to be an ideal to be encouraged rather than
an exception to a rule.
Increased flexibility will increase the personal, social and
economic capacities of Papua New Guinea and that increased capacity must
be the shared aim of all universities and citizens of PNG.
The author acknowledges with gratitude the permission of S.J. Bugg
and C. Lahies to further develop some shared conference ideas published
in an earlier version.
References
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Vallance, R. J., & Bugg, S. J. 2006, The role of flexible
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Roger Vallance holds a PhD from Cambridge University. He has an
earlier background of secondary science teaching and school
administration and now explores research interests in educational and
values-based leadership, the education of boys and research methods
particularly qualitative methods and research ethics. He was a Visiting
Professor at the University of Illinois at Urbana-Champaign in the
second half of 2005, and is now director of Research, Quality Assurance
and Postgraduate Studies at DWU. He is developing the postgraduate and
research activities of DWU, and has interests in workplace and
professional training. Email rvallance@dwu.ac.pg
Table 1 Teaching and learning characteristics of delivery methods
Delivery mode Potential flexibility
Location Time
I Conventional -- --
classroom
Block
attendance
Teleconference, [check] --
Audiographics,
Video
conferences
II Computer [check][check] [check][check]
mediated
communication
/internet/
electronic
bulletin boards
III Computer based [check][check] [check][check]
instruction
interactive
media
Printed [check][check] [check][check]
Materials
Audio/
Videotapes
Broadcast [check][check] --
television &
Radio
IV Experiential [check] [check]
workplace-based
projects
Personal [check][check] [check][check]
journals
Delivery mode Potential Teacher's role
interactivity
Teacher- Student-
Student Student
I Conventional [check][check] [check][check] Subject expert
classroom and classroom
Block facilitator.
attendance Learning is
guided on-the-
Teleconference, [check] [check] spot by the
Audiographics, teacher.
Video
conferences
II Computer [check] [check] Subject expert
mediated and
communication facilitator or
/internet/ instructional
electronic designer.
bulletin boards Learning is
guided on-the-
spot by the
teacher or by
pre-packaged
materials.
III Computer based [check] -- Subject expert
instruction and
interactive instructional
media designer.
Learning is
Printed -- -- guided by pre-
Materials packaged
Audio/ materials.
Videotapes
Broadcast -- --
television &
Radio
IV Experiential [check] [check] Colleague and
workplace-based critical
projects advisor.
Learning is
Personal [check] -- provoked by
journals practical
problems and
guided by
action and
reflection.
-- = low or minimal level, [check] = moderate level, [check][check] =
high level
(After Beattie and James 1997)