This motion is designed to ensure an adequate debate takes place on a fundamental issue relating to the development of Irish education. We wish to ensure that the various arguments made by different interests might find articulation in this legislative assembly. It is important that such a debate takes place prior to the publication of legislation on the issue and that all Members of the House have an opportunity to make a contribution. The debate on intermediate education structures is not new. Proposals were tabled during a previous Fine Gael and Labour Party coalition Government in the early 1980s. There has been an ongoing drive in the Department of Education for the establishment of intermediate education structures and in chapter 14 of the White Paper on Education the Minister outlines in detail her policy approach to this issue.
The White Paper states that the Government has decided that legislation will be presented to the Oireachtas providing for the establishment of education boards which will also set out their functions and composition. The White Paper refers to a phased transfer of functions from the regional education boards and indicates that after a period of five years there would be an independent evaluation of the boards' effectiveness. The White Paper also states that the Government has decided there will be legislative reform and rationalisation of the vocational education committees system. This will mean the abolition of a number of vocational education committees and many await with trepidation the outcome of the deliberations of the rationalisation commission established by the Minister.
The White Paper states that the new regional boards will have substantial co-ordination and support service functions and will be the co-ordinating bodies for adult and continuing education, vocational education and training and outdoor education centres in their regions. It also states that the boards will channel Exchequer funding to the vocational education committees or to other providers of these services and that the board will also have a co-ordinating role in relation to publicly funded youth and sport activities. All these activities are administered and operated to a high standard at present by the vocational education committees.
The White Paper states that there will be ten education boards and outlines the geographical remit of each board. Dublin city will be one region; the Dublin County board will include Fingal, South Dublin and Dún Laoghaire-Rathdown council areas; the mid-east board will cover counties Kildare and Wicklow; the midlands board will cover counties Offaly, Longford and Westmeath; the mid-west board will cover counties Clare, Limerick and Tipperary North Riding; the north-east board will cover counties Cavan, Louth and Meath; the north-west board will cover counties Donegal, Sligo and Leitrim; the south-east board will cover counties Carlow, Kilkenny, Waterford, Wexford and Tipperary South Riding; the southwest board will cover counties Cork and Kerry; and the board for the west will cover counties Galway, Mayo and Roscommon.
The White Paper outlines the composition of the regional education boards and indicates a reduction in the number of public representatives who will be entitled to a position on the boards. The Minister does not specify the number of elected representatives who will be entitled to become members of a regional board. However, a considerable reduction in the numbers is indicated. The Minister will be entitled to nominate members to the regional education boards which signals significant Government involvement and influence over the new boards.
The White Paper makes clear that the powers and legislative remit of the boards will significantly reduce the powers and authority of the vocational education committees which will remain following the work of the rationalisation commission. The Minister intends that the vocational education committees will be required in future to submit all their plans, programmes and budgets to the relevant education board for consideration and incorporation, with or without modification of the plans, programmes and budgets of the boards themselves. In addition, the vocational education committees will function as providers of education within the framework provided nationally by the Minister for Education and elaborated regionally by each board. Exchequer funding in support of providers, including the vocational education committees, other schools, community and voluntary organisations will be channelled through the education boards.
The White Paper makes it clear that the role of vocational education committees is to be redefined vis-á-vis the education boards and other providers. The amending legislation for the vocational education committees which the Minister intends to introduce will provide for the retention of vocational education committees as statutory committees with specific responsibilities but which, nonetheless, will be clearly under the jurisdiction of regional education boards. One has to question the Minister's policy in terms of having two competing intermediate structures. The vocational education committees will not survive as they have to date under the new arrangements and their powers, remit and resources will be seriously curtailed as a result of the new policy outlined in the White Paper. There should be one intermediate tier between the Department of Education and the school boards of management. The proposals as outlined by the Minister are a recipe for bureaucratic chaos.
The Minister has indicated from time to time that the establishment of the boards, after the passing of the relevant legislation, will be on a phased basis. However, she has not been very specific about the time scale involved or the phased implementation of the plan which is envisaged. She has refused on a number of occasions to outline the cost of establishing the regional education boards. I have tabled a number of parliamentary questions on the matter and the Minister has refused to provide the necessary information.
Cost is a key issue in this debate. On almost a daily basis I receive complaints and expressions of concern from many in the education sector about the lack of resources available for the provision of important education programmes. There are huge demands for more visiting teachers for children with special disabilities, more resource teachers and remedial teachers, a reformed and more effective school transport system, the provision of capital funding for the refurbishment of old school buildings, the acquisition of new sites and the development of new school buildings.
The education budget is very significant and amounts to approximately £2.2 billion at present. However, huge demands are still made on resources. In the foreword to the White Paper the Minister made it clear that the implementation of the proposals in that document will be subject to the Maastricht criteria and the annual budgeting restrictions imposed by the Minister for Finance.
On three occasions in this House, the Minister refused to provide details of the cost framework undertaken by the Department of Finance on the proposals contained in the White Paper on Education. It is extremely important that Members are given access to these figures to gain an idea of the cost of the proposals in the White Paper. Needs could then be prioritised and an implementation strategy could be developed over a specific timeframe. People involved in the area of education would like to be aware of the mountain which must be climbed in terms of the cost implications of the proposals in the White Paper. It is regrettable that the Minister has not shown greater transparency by publishing the cost framework that was undertaken by the Department of Finance prior to the publication of the White Paper.
I do not believe it is possible to implement the reforms and proposals contained in the White Paper on an ad hoc, annual basis. A five year implementation is required and I am surprised the Minister has not published such a plan or costed proposals and prioritised them accordingly. For this reason I have expressed severe reservations about the Minister's proposals to drive forward with the establishment of ten regional education boards in advance of many other worthy proposals on the curricular and teacher supply area. We need to know the costings involved before a decision is taken.
Fianna Fáil believes that available resources should be directed towards children, teachers and schools in general. There is a genuine fear that the cost involved in the establishment of ten regional education boards could be very significant. Many experienced politicians have pointed to the development of the health boards for example, and the huge costs which followed their establishment and development. A similar situation could evolve after the establishment of regional education boards. It is my party's view that all resources must be directed to areas of greatest need.
I invite politicians to meet parents involved in campaigning for better educational facilities for children with special needs, for example. Despite the publication of its report a number of years ago, many of the special education review body's proposals have not been implemented. I acknowledge that there have been some improvements but much needs to be done. The parents of children with special needs are angry, frustrated and disillusioned with the lack of political commitment shown by the Government to their plight.
I have spoken to many people involved in special schools who complained bitterly about the lack of speech therapists, adequate resources, proper facilities, etc. If one speaks to those involved in the area of early school leaving, one again hears a story of neglect, under-provision and a deteriorating situation. High Court judges complain on an almost daily basis that there is no proper preventative educational institution to which young offenders involved in crime might be sent. Such an institution does not exist because the Government has not provided the necessary resources to provide additional places for young male and female juvenile offenders.
In the cutbacks announced in June 1995, the Minister removed 1,000 places from the VTOS scheme for the long-term unemployed. She also refused to proceed with the provision of ten additional psychological posts and the appointment of 21 visiting teachers for the travelling community. Where do the Minister's priorities lie and what will be the cost of setting up the new regional education boards?
If I put the issues I just outlined on one side of the equation and the establishment of new administrative structures on the other, where should the money go and where should the priorities lie? Surely any available resources should be allocated to those in greatest need rather than allocated and directed to structural changes and new bodies. That is the view of the Fianna Fáil Party. Furthermore, the geographical remit of the new regional education boards is clearly too large. There is no county identity or loyalty in the geographical configuration of the new boards. In a report entitled Restructuring Education in Ireland by Alice Brown and John Fairley, it is very cogently argued that there is a strong case for considering the present county/city boundaries as the natural boundaries for any new intermediate structures. The county and city are clearly the basis of community and self-identity. The authors of that report suggest it is also the best basis for securing openness, accountability, parental involvement and community partnership and their views should be given very careful consideration. The White Paper makes very strong play on the need for parental involvement and a sense of partnership in educational provision.
Following their particular research and experience in Scotland, it is the view of Brown and Fairley that, if we really want to see parental involvement and participation in education and community partnership and participation, the best geographical unit for any intermediate education structure should be the county or the city. They are of the view that from the perspective of achieving the required degree of co-operation between education, industry and economic interests, such a unit gives the best possible opportunity for doing so. Their report came to the conclusion that a network of county-city local education committees should be established instead of a regional tier. I will deal with that proposal later in my contribution.
The authors of the report were particularly worried about the establishment of regional education boards and feared that the absorption of the vocational education committees into larger bodies could lead to loss of cohesion and a diminution in the importance of vocational education. They are also worried that the unique focus on vocational education provided by the vocational education committees would be lost precisely at the time when it could become a competitive advantage for the country. In their view, vocational education is set to become more, rather than less, important. They argue that regional education committees would be likely to be too large and remote from communities to be fully legitimate, particularly given the very high degree of identification with counties and cities. They argue strongly that a regional tier would be less likely to forge strong links between education and community development and would make it more difficult to involve parents, employers and the community in decision making. This is a key point.
If the proposals in the White Paper are to be implemented in terms of partnership, community and parental participation, the regional model is clearly not the way forward. It will offer only a token opportunity for parents and the community to become involved because the geographical remit involved is too large and extensive and simply would not allow for local participation or involvement. This represents a very serious drawback in the Minister's proposals and essentially undermines the objectives of the White Paper in terms of parental and community involvement in educational development. Furthermore, these geographical regions would not attract any loyalties from the communities they propose to serve.
The issue of public representation in the new regional boards must also be addressed. There has been much criticism and cynical analysis of the role of the public representative on vocational Education Committees in the past. As a chairman of the City of Cork Vocational Education Committee, I consider myself well placed to make a valid judgment on the contribution of public representatives to that body and to vocational education committees in general. The principle that underlines the necessity for public representation on bodies such as the vocational education committees and regional education boards is one of democratic accountability. Ultimate democratic accountability is to the people. The will on the people must always be paramount in any democracy. Any democratic institutions established in this State should always pass the test of democratic accountability in a very real and immediate sense. Whatever the ills of the present system — some undoubtedly exist — one cannot avoid the fact that the most effective way to ensure democratic accountability to the people is to ensure adequate public representation on these bodies.
Those directly elected through local authorities have a mandate from the people and must ultimately answer to them in the form of regular local and general elections. That is the ultimate test and it is wrong to establish regional boards or any new institutions without adequate democratic representation. I make no apology for stating, or making it a cornerstone of my own personal philosophy, that public representatives deserve to be on vocational education committees and on any new bodies established in education or any other sphere of Government activity. Public representatives are elected by the people, they have a mandate to act on behalf of the people and are answerable to them. Directors, chief executive officers or full-time officials are not accountable to the people in that fundamental sense and any new arrangements that give considerable powers to directors of regional boards of education, who would be directly answerable to the Department, the Minister and the Dáil through a number of chains of communication, are not an adequate alternative to our system of democratic accountability in a number of institutions, particularly vocational education committees.
In addition, public representatives have played a noble role in vocational education committees. Many councillors have given years of service to vocational education committees and have made noble contributions in the areas of adult education, further education, youth work, traveller education etc. This experience and contribution should be generously recognised and not undermined.
There is not a need for two sets of competing intermediate structures in the education system. It is politically dishonest of the Minister to suggest that one can establish regional educational boards while retaining some vocational education committees. It is clear from the White Paper and the establishment of the rationalisation committee on vocational education committees that the Minister intends to considerably reduce the number of vocational education committees. It is dishonest to suggest that the remaining vocational education committees can survive in any effective way side by side with the new regional education boards as there would be considerable duplication and overlapping and unnecessary rivalry and competition would develop. This is a recipe for bureaucratic disaster and does not have my support.
On the role played by vocational education committees in the development of education since their establishment in the 1930s, the 38 vocational education committees have more than 60 years expertise and experience in delivering technical instruction and vocational education generally and their work and influence has developed and changed over the years. They provide a wide range of education and have been responsible for much of the innovation in the system. They have proven to be adaptable, capable of moving with the times and of responding in a modern way to the market place. We must remember that it was the vocational education committees who were involved in the establishment of the national network of regional colleges and colleges of technology. This is an achievement which cannot be underestimated. The vocational education committees have proven to be one of the most effective mechanisms for broadening access to third level education. Vocational education committees oversaw the establishment of many regional technical collegess and administered them up until recently. The House should commend the vocational education committees on this achievement which has not been generously recognised by the Minister.
The vocational education committees have also interacted very successfully with FÁS in the development of apprenticeship programmes and apprenticeship education generally. They pioneered the world of adult education for many years before it became fashionable to do so. They are involved in many youth organisations and in the provision of youth and sport facilities. The range of activities vocational education committees provide is impressive. For example, music would not have been advanced to the same extent in many rural areas without the progressive leadership role adopted by vocational education committees and teachers in developing county music schemes.
Public perception may not always have matched reality in terms of the vocational education committee's contribution to education. Some vocational education committees have not performed brilliantly at all times; unfortunately mistakes have been made by some vocational education committees at certain times but this does not justify an outright attack on the system or the deliberate attempts to undermine the contribution they have made to education. The Minister and her Department are responsible for the negative attitudes to the vocational education committee system in the past two to three years. An attempt has been made to soften up public opinion and to prepare the ground for the abolition of vocational education committees. This has taken the form of selective leaks about certain vocational education committees and has resulted in a lack of any clear Government recognition of the role and contribution of vocational education committees. Morale among the members of many vocational education committees is low because it is perceived that the Government and the Minister have no time for them. In their analysis of vocational education committee structures Brown and Fairley summarised their strengths as embracing support and co-ordination, partnership and community, innovation and responsiveness. We should cherish these attributes dearly and should not move easily to undermine them or remove them from the education system.
The vocational education committees have been very strong in response to the needs of the less well off and disadvantaged in the community. This was an important factor in the establishment of the vocational education committees in the 1930s and it continues to be an important factor. The modern manifestation of vocational education committees assistance to the disadvantaged in the community can be found in the extensive youth education service and the development and support given to the Youthreach programme for early school-leavers which has proven to be very successful despite limited resources and a lack of co-ordinated and concerted Government policy on early school leaving.
The chronic problem of long-term unemployment has been well addressed by the vocational education committees. A lack of skills and educational achievement has condemned many people to a life on the dole queue and education is the key to opening the door to jobs and subsequent prosperity for them. In this context, the VTOS was well managed by the vocational education committees. This scheme has proven to be an outstanding success since its introduction in 1989 by Deputies Woods and O'Rourke. We have seen at first hand the tremendous success of the scheme in helping people who were long-term unemployed. This indicates the extent to which the teachers and administrative staff of vocational education committees were capable of adapting and responding to changing needs and attitudes, to deal with adult learners. Many of these teachers taught mainstream subjects in the junior and senior certificate cycles and adapted quickly to administer VTOS and deal with the further education sector. I will not refer in detail to the further education sector but I am on record as describing it as the most innovative and effective development in education in recent years. We should thank the vocational education committees for their outstanding contribution to the development of this sector. The vocational education committees have responded to the demands of the market place and provided education in a broad and diverse range of subjects. The teaching and administrative staff of the vocational education committees deserve praise for their tremendous contribution in this area.
Fianna Fáil accepts the need for the devolution of authority from the top downwards. We favour the devolution of the greatest degree of power and authority from the Department. In this context, the boards of management of schools should have a considerable degree of authority and responsibility for the operation of schools on a daily and weekly basis. We have carried out research and met the various sectors in the education system and we have been saddened somewhat by the degree of mistrust between them. The educational system has evolved over many years and different sectors have grown and developed in accordance with their ethos, history and tradition. There is a need to build consensus from the bottom up before we impose structures from the top down. For example, the voluntary secondary sector view the emerging regional education boards with great distrust. They are extremely wary of them and believe they will lessen and undermine the status of the voluntary secondary school. Likewise, the vocational education committees and other sectors feel threatened by the proposed regional boards and believe they will lead to the ultimate demise of the vocational educational system.
Fianna Fáil accepts the need for greater co-ordination, co-operation, joint teamwork and effort between the providers of educational services within a given area. The first step towards such co-ordination and co-operation is the development of a genuine consensus between the various partners and providers in education, the vocational, primary, voluntary and secondary sectors, parents etc. As an initial first step in developing co-ordination and co-operation between the various providers county based fora of education should be established so that each county would have its own education forum. These fora would not initially be set up on a statutory basis and could be serviced by a secretariate drawn from either the vocational education committee sector, the voluntary secondary system or, by agreement, from both. This would be a matter for the providers who would attend the forum which would comprise all providers of educational services in a given county or city area. It would meet regularly throughout the year and would endeavour to co-ordinate and plan ahead in terms of the provision of basic services. For example, it could co-ordinate activities to deal with the difficulties experienced by early school-leavers, the development of proper psychological services etc.
There are many areas where co-ordination and co-operation can be developed further between the various providers of education. We should start by establishing a forum of education in each county or city. We recently met representatives from County Clare where such a forum has been in place for some time. I have read a number of their reports and the meetings were attended by a broad representative grouping from all the sectors. Considerable consensus emerged in regard to a number of issues as did the view that the county forum concept could play a useful role in the co-ordination of courses and provision of services. They also agreed that such a body should encompass the primary and second level systems.
We should establish a forum in every county. These fora could evolve and develop into statutory education authorities on a county by county basis based on the experiences garnered through the fora. Consensus must be built from the bottom up, not imposed from the top down. Such a proposal has the best chance of success in the future and offers the best model for the development of an intermediate tier. Fianna Fáil is prepared to give its support for the development of such a system.
I am at all times concerned about the cost implications of any intermediate tier and express the same reservation in relation to the development of county based education authorities. I believe in a step-by-step approach and development of consensus initially. With consensus established, much can be achieved.
I welcome this opportunity to debate the Minister's proposals to establish new regional education boards. It is important that the issue be debated. I have been concerned for some time that the Minister has neglected to keep Dáil Éireann informed of developments in the education world, particularly in the context of the reforms announced in the White Paper on Education. There have been too many private seminars and briefings, leaks to newspapers about legislative proposals and so forth. All legislation ultimately must come before the Oireachtas. The Minister should have due regard and respect for the legislative role of Deputies and Senators who will be asked to make a contribution and asked to vote for the legislation which will give effect to the establishment of ten regional education boards. In that context Fianna Fáil will be opposing the legislation and on its return to office will abolish any regional education boards established.
It is not acceptable that consultation should take place with various partners and other groupings and not with Members of the Dáil or Seanad. There has been only one debate on the White Paper since its publication. There has been no debate at the Select Committee on Social Affairs on this proposal or any other proposed legislation dealing with education issues. The Oireachtas has not been involved in any meaningful way in the education legislative process. Many Bills have been promised, yet there has been little consultation with Members. That is regrettable and the reason I was anxious to ensure the issue was debated in the House. I commend the motion to the House.