Is Bille an-thábhachtach é seo agus tá áthas orm gur le mo linn-se mar Aire a chuirfear an Bille seo ar Rolla na nDlí. Má chuimhnítear orm in aon chor sna blianta atá le teacht, tá súil agam gur i leith an Bhille seo a chuimhneofar orm. I mo thuairim-se is bun-chloch í sa chóras oideachais agus beidh tionchar an-mhór aici ar an gcóras sin as seo amach. Mar is eol díbh, dar ndoigh, is é cuspóir an Bhille seo go hacomair ná bonn dlíthiúil a thabhairt do Chomhairle Náisiúnta na gCáilíochtaí Oideachais atá ag feidhmiú ar bhonn ad hoc ó Márta 1972 i leith. Pádraig Ó Fachtna, T.D., a bhí ina Aire Oideachais ag an am sin agus thuig sé go rí-mhaith nach raibh an córas a bhí ann maidir le cáilíochtaí a bhronnadh dóthainneach dos na coláistí a bhí ann ag an am agus nach bhféadfaí é a leathnú chun riachtanaisí na gcoláistí nua ag an dtríú leibhéal a shásamh. B'shin é an fáth gur bhunaigh sé Comhairle Náisiúnta na gCáiliochtaí Oideachais agus is so-fheicthe anois cé chomh críonna is a bhí an tionscnamh sin.
Le linn do'n Comhrialtas a bheith in oifig, bhí a lán cur agus cúiteamh faoi'n gceist seo agus cinneadh i Mí na Nollag 1974 nár chóir cumhacht a thabhairt don Chomhairle céimeanna a bhronnadh agus nuair a bheadh céimeanna le bronnadh ar mhic léinn ó na coláistí den tríú leibhéal taobh amuigh des na hollscoileanna go gcaithfí na hollscoileanna a shásamh agus gurb iad na hollscoileanna a bhronnfadh aon chéimeanna a bheadh le bronnadh. Níor aontaigh mé leis an mbreith sin ag an am agus thugamar le fíos i rith an toghacháin i Samhradh 1977 go n-athrófaí an breith sin nuair a fhillfeadh Fianna Fáil ar oifig mar rialtas.
I ráiteas a d'eisigh mé i Samhain 1977 dúirt mé go raibh gach gné den scéal pléite ag an Rialtas agus go rabhamar-na lán tsásta go rithfeadh sé le leas na nollscoileanna chomh maith le leas na gcoláistí eile ag an dtríú leibhéal cumhacht chun céimeanna a bhronnadh a thabhairt thar nais do Chomhairle Náisiúnta na gCáiliochtaí Oideachais. Rinneamar amhlaidh agus cinntítear an breith sin sa Bhille seo. Cé go bhfuil an gné sin den scéal an-thábhachtach ó thaobh bharr an structúir, is den riachtanas í freisin go mbeadh córas náisiúnta ann chun cáiliochtaí ag leibhéal an teastais agus an diploma a bhronnadh ar mhic léinn a éiríonn leo i gcúrsaí aitheanta i réimse éigin den teicneolaíocht. Clúdaíonn an Bille na cáilíochtaí sin freisin. I gcás na gcailíochtaí seo go léir, tá sé fíor-thábhachtach go mbeadh meas othru sa tír seo agus i dtíortha eile agus sin é an fáth go bhfuílím chomh ghabhtha sin sa Bhille le ceisteanna maidir le caighdeán na gcúrsaí agus seasamh na gcáilíochtaí ón gcomhairle. Tá gach iarracht déanta agam ionadaíocht ar an gcomhairle féin a bheith comh leathan agus is féidir, ó thaobh saol eacnamaíochta na tíre chomh maith le hinstitiúidí oideachais. Níl sé éascaí an ionadaíocht ceart d'fháil i gcás chomhairle den tsaghas seo ach measaim go bhfuil an t-ionadaíocht atá molta sa Bhille seo go maith agus cé go bhféadfaí locht éigin d'fháil air, is dócha, bheadh an scéal mar an gcéanna maidir le aon tairiscint eile ina leith seo. Tá an cothramaíocht ceart, measaim. Glacfar leis go ginireálta go gcaithfidh an Chomhairle Náisiúnta, nuair a bheidh siad ag pleanáil agus ag comhordonú cúrsaí, áird a thabhairt ar chostaisí i leith a bhfuil faoi chaibidil acu. Faoi Acht um Ard-Oideachas, 1971, tá sé de dhualgas ar an Údarás um Ard-Oideachas comhairle a thabhairt do'n Aire Oideachais faoin ghá atá le hinstitiúidí nua ard oideachas, cén saghas institiúidí ba chóir a bhunú agus cé'n saghas structúir ba chóir a bheith acu. Chomh maith le sin, ní misde do'n Údarás léirmheas a dhéanamh go rialta ar an t-éileamh agus an gá atá ann d'ard oideachas. Tá sé de réir tuisciona mar sin gur trí'n Údarás a thabharfaidh Comhairle Náisiúnta na gCáilíochtaí Oideachais comhairle don Aire i leith costais na gcúrsaí atá á moladh acu agus costais pé athruithe a bheadh ag teastáil in aon chúrsa ionas go bhféadfadh an chomhairle glacadh leis. Tá an socrú sin idir an Comhairle agus an Údarás i bhfeidhm le achar réasúnta fada cheana féin agus tá ag éirí go geal leis.
On the Second Reading of this Bill, I feel that I should sketch in for the House the history of this development. The Steering Committee of Technical Education in a report submitted to the Minister for Education in April 1967 said:
One of the ways in which demand could be stimulated would be to give due recognition to the various awards to be obtained in the Regional Colleges. We recommend the establishment of a National Council for Educational Awards, responsible for (1) setting standards of admission to, and qualification from, courses in technical education; (2) approving examination syllabuses in appropriate courses provided in Regional Colleges or other technical schools; (3) awarding certificates and diplomas to those successful in approved examinations; and (4) negotiating reciprocal recognition of equivalent qualifications with other countries, particularly Britain and the EEC. At the highest levels, the Council would discharge functions similar to those of the Council for National Academic Awards in Britain, but it would also be responsible for the awards at technician and crafts levels. It would be duly representative of educational and professional institutions, industrial, commercial and cultural interests and the appropriate State Departments.
In their first report which related to the year 1968-69, the Higher Education Authority expressed concern about the status of technological and technician education in this country and drew attention to the need for national recognition for that part of the educational system. They said that they had raised with the Minister for Education during a discussion with him the question of establishing a National Council for Awards and that the Minister had asked them to furnish him with a report in the matter.
The Authority stated that when they were examining the general situation in regard to higher education in this country, they encountered a well-established demand and, in some areas, a long felt need for further and more advanced technological and other specialised third-level courses. That there was such a demand and need on the part of industry and of students, actual and potential, had been the experience, in the first place, of the colleges of technology which were immediately and directly involved in the matter. That the existence of this demand and need had already been confirmed by two studies carried out under the aegis of OECD—"Investment in Education" and "The Training of Technicians in Ireland".
The Higher Education Authority were satisfied that if technological education was, in accordance with its function, to keep in step with the growth of the country's economy, its content must be further upgraded and the scope of its operation extended. The Authority considered that a serious impediment to the upgrading and extension of technological education and hence to its attraction for potential students was its lack of a range of national awards in the form of certificates, diplomas and degrees.
The Authority considered it possible that, at first glance, it might be thought that amending legislation which would enable universities to give degrees or other appropriate awards to suitable students of technological education institutions would be a solution, particularly as many technological courses were comparable in content and standard to those given in universities. The colleges of technology already produced science graduates and fully qualified architects and engineers as well as occasionally providing courses in specialised fields for their own and university personnel at post-graduate level.
The Authority considered, however, that there was a basic difference in primary function between the universities and the technological institutes and that it would to a substantial extent be a departure from the nature and aim of a technological institution for it to have its curriculum and methods conform to university requirements. The Authority mentioned also that a technological institution, while providing courses of degree standard for a certain proportion of its students, must also serve students who have completed an adequate post-primary education, but have not fulfilled university entrance requirements, or may not desire to follow a university course but wish instead to proceed to third-level education in certain other specialised fields.
It should be emphasised, the Authority said, that technological education was not to be considered as confined to the teaching of industrial and commercial skills. Every course of that kind should have an appropriate element of the humanities. It was understood, however, that in the organising of this ancillary element the prospect of the practical applications in industry, commerce and the professions of the knowledge thus acquired had to be kept firmly in view.
Having due regard to the considerations to which I have referred the Higher Education Authority came to the conclusion that if technological education were properly to serve its students and function in the fullest interest of the economy, a concrete step towards this should be the establishment of a council for national awards, with the safeguard that the standard of the diplomas and degrees awarded by it be in no way inferior to those of the universities. It considered that the council should be given powers on the following lines:
(1) to grant certificates, diplomas and degress to persons who had successfully completed courses of study at third-level educational institutions other than universities;
(2) to determine the conditions governing the grant of such awards;
(3) to approve courses of study to be pursued in order to qualify for such awards, including, where appropriate, arrangements for industrial and commercial experience in association with such a source.
Having considered the Report of the Higher Education Authority and all other relevant considerations the Government decided in February 1972 to set up the National Council for Educational Awards. This council was established on an ad hoc basis for a period of three years from March, 1972 with the following terms of reference:
General Function
1. To promote, facilitate, encourage, co-ordinate and develop technical, industrial, commercial, technological, professional and scientifc education and, in association with these, liberal education.
Particular Functions
2. To grant and confer certificates, diplomas, degress and other awards to and on persons who shall have pursued at educational institutions recognised by the council courses approved by it under conditions approved by it and who shall, to the satisfaction of the council, have passed examinations and/or other tests set or prescribed by the council appropriate to the courses of study as aforesaid.
3. To grant and confer certificates, diplomas, degrees and other awards to and on persons who at the time of the establishment of the council were pursuing at educational institutions courses of study approved by the council under conditions approved by it and who, subsequent to the establishment of the council shall to the satisfaction of the council have passed examinations and/or other tests set or prescribed by the council appropriate to the courses of study as aforesaid;
4. To award and confer degrees to and on persons who to the satisfaction of the council, shall have carried out research at a standard approved by the council under conditions approved by the council at or under the supervision of educational institutions;
5. To appoint from time to time such and so many boards of studies as it considers necessary for the proper exercise of its functions and to assign from time to time to these boards of studies the supervision of such areas of study as it may deem fit.
The ad hoc council consisted of a chairman, 21 ordinary members appointed by the Minister for Education, three additional ordinary members co-opted by the council by resolution and a director who was also a member of the council. The constitution of the 21 members appointed by the Minister was as follows:
Seven members holding academic posts in universities;
six members with teaching experience in a higher education institution other than a university, at least three of whom held teaching posts in such institutions;
five members having experience in industry, agriculture, commerce, public administration or related fields;
three members having experience in post primary education.
In the first annual report, 1972/73, of the National Council for Educational Awards, the chairman in the foreword to the report stated that the establishment of the council marked an entirely new and very significant development in relation to third-level education in Ireland. He stated that for the first time in our history it was now possible to give authoritative national recognition and status to third level non-university educational institutions and to their students who passed examinations and tests of the standard approved by the council. This recognition was to be expressed in the national certificates, diplomas and degrees which the council was empowered to award. The council believed that this would lead to a more widespread appreciation, both nationally and internationally, of the very important contribution made by these institutions to economic, social and cultural development and would significantly enhance their general standing.
The National Coalition Government in connection with their decisions of 14 December 1974 on higher education decided that the National Council for Educational Awards should not be given the power to award degrees. The council as reconstituted in December 1975 was not formally given this power. In view of the fact, however, that a degree level course in hotel and catering management in the regional technical college in Galway was already under way at the time of the reconstitution of the council and since no university was as yet in a position to validate the course in question, the National Council for Educational Awards was empowered to award degrees to students who successfully completed this course in 1976 and 1977. The intention was, however, that in non-university institutions, where degrees were to be awarded to students, such awards were to be made by the universities.
This was the situation when I became Minister for Education in 1977 and my first consideration had to be to set the situation right by restoring its degree awarding function to the NCEA and establishing an appropriate basis for the establishment of the council under statutory authority. I now propose to summarise the main provisions of the Bill as it has been presented. While for this purpose I shall refer to some sections of the Bill I do not propose to go into detail in relation to such sections beyond the point of indicating their relationship to the general purpose of the Bill.
I should draw attention to the interpretation of institution in section 1 of the Bill. It is stated that an institution to which this act applies means—
(a) An Choláiste Náisiúnta Ealaíne is Deartha,
(b) the National Institute for Higher Education, Dublin,
(c) the National Institute for Higher Education, Limerick,
(d) Thomond College of Education, Limerick,
(e) any regional technical college,
(f) any institution specified by an order made under section 20 of the Act by the Minister.
Since there is only one institution in existence of the kind referred to at (a), (b), (c) and (d), it is appropriate that the name of the institution should be given. In the case of (e) the individual regional technical colleges are not named as they come under the composite definition of the category of colleges referred to. The provision at (f) allows for the recognition of any other institutions specified in an order made by the Minister and is necessary to meet the situation of colleges to be included for the purpose of the acceptance by the NCEA of courses being followed in them whether these colleges are already in existence or whether they come into existence at a later date. This degree of flexibility is necessary in the existing circumstances.
Section 2 states that the council shall be known in the Irish language as Comhairle Náisiúnta na gCáilíochtaí Oideachais and in the English language as the National Council for Educational Awards. It is to perform the functions assigned it by this Act.
The general functions of the council as set out in section 3 are to encourage, facilitate, promote, co-ordinate and develop technical, industrial, scientific, technological and commercial education, and education in art or design, provided outside the universities, whether professional, vocational or technical, and to encourage and promote liberal education.
Subsection (2) of section 3 specifies some particular functions of the council. These include the function of conferring degrees, diplomas, certificates or other educational awards to or on persons who—
(1) the Council is satisfied have attended or otherwise pursued or followed courses of study or instruction conducted by, or provided under supervision of, an institution to which the Act applies and which are courses which for the time being stand approved of by the council, and
(2) have either attained a standard regarded by the council as satisfactory in examinations or other tests of knowledge or ability which are either prescribed or set by the council or which for the time being stand so approved of and relate to such courses or have performed in a manner regarded by the council as satisfactory other exercises approved of by the council, or
(3) the council is satisfied have attained an acceptable standard other than by way of (1) and (2) and have carried out under the supervision of an institution to which the Act applies and in a manner regarded as satisfactory by the council, a programme of research approved of by the council.
The council may also recognise a degree, diploma, certificate or other educational award conferred, granted, or given to persons who successfully complete the courses referred to or approve of such courses of study or instruction if it is satisfied that the standard in general of both:
(1) a particular course of study or instruction conducted by, or provided under the supervision of, an institution to which the Act applies and relating to professional, scientific or vocational education—which course may be concerned with liberal arts; and
(2) the examinations or other tests of knowledge or ability conducted in relation to such a course
corresponds or is analogous to any relevant standards for the time being in force in universities.
Subsection (3) of section 3 (2) states that the council may assess the standard maintained for the time being by any institution to which the Act applies as regards any course of study or instruction approved by the council.
For the purpose of promoting degrees, diplomas, certificates or other educational awards conferred by it, the council may:
(1) take such steps as it considers appropriate either within or outside the State,
(2) co-ordinate, or assist in co-ordinating, in such manner as it considers appropriate, any two or more courses of study or instruction conducted by, or provided under the supervision of, one or more institutions to which the Act applies,
(3) for the purpose of enabling students to attend or otherwise pursue or follow particular courses, assist the transfer of students from one such institution to another such institution.
I attach very considerable importance to these provisions in relation to the steps which the council may take to promote its degrees and other awards within or outside the State. I may assure the council that it will have the full support of the Minister for Education in this matter. I anticipate that it will have also the support of educational authorities and other professional groups which will be affected in relation to the recognition of qualifications awarded by the NCEA. I would expect that there would be no reluctance in regard to the promotion of these qualifications and advice to students to follow courses leading to them in substitution for qualifications which may have been sought after from outside the country hitherto. This is because of the absence of the appropriate provisions for a fully satisfactory range of qualifications certified and available within the country.
I consider it also extremely important that arrangements should be worked out to facilitate the transfer of students as appropriate from one institution to another and the co-ordination of courses between the regional technical colleges and the national institutes for higher education, as well as where appropriate the National College of Art and Design, and, in certain instances, the universities, to facilitate the students and secure the maximum opportunities for advancement throughout the whole range of third-level education.
It should be noted that under subsection (2) of section 3 the council may, through the higher education authority, advise the Minister in relation to the cost of providing, or continuing to provide, or the financing of any course of study or instruction approved of by the council or the cost of modifying any course of study or instruction to the extent necessary to secure its approval by the council.
It will be generally accepted that the NCEA in planning and co-ordinating courses will need to take into account at the same time the financial consequences of such planning and co-ordination. Under the Higher Education Act, 1971, the HEA has responsibility for advising the Minister of the need or otherwise for the establishment of new institutions of higher education and the nature and form of these institutions and it must also maintain a continuous review of the demand and need for higher education. It is appropriate, accordingly, that it is through the Higher Education Authority that the council would advise the Minister in relation to the cost of providing or financing of courses approved by it or the cost of modifying any courses of study or instruction to the extent necessary to secure its approval by the council.
Section 3 (3) provides that the Minister may by order assign additional functions of a kindred nature to the council but any such order cannot be brought into force until a resolution approving of the draft order has been passed by each House of the Oireachtas. Section 3 (4) requires the council to endeavour to promote the national aims of restoring the Irish language and preserving and developing the national culture. Section 3 (5) confirms the validity of acts done by the present council in so far as they relate to awards made and courses approved of.
The Council is to consist of a chairman, the director and 23 other members. Section 5 sets out the procedure for the appointment of the members of the council other than the chairman and director. In this connection I should emphasise that the provision made in this article is for the purpose of establishing a council which would be best able to discharge the functions being assigned to it under section 3. The individual members are not being appointed to promote the particular individual interest of any separate institution and their allegiance is to the council and not to the institution on the recommendation of which they may have been appointed by the Government.
Any division of representation on the council will be criticised on one basis or another. Tá sé seo ráite cheana féin agam as Gaeilge. I have tried to create the situation in which representation on the council will be as broadly based as possible and give fair representation to both educational interests and those involved in the economic life of the country. I feel that the formula which is proposed in the Bill will ensure in so far as that is possible, that we get the balance right.
Section 5 provides that nine of the 23 members other than the chairman and the director shall be appointed on the recommendation of the Minister and it is subsequently provided that before making a recommendation under the section the Minister shall consider to what extent industry, agriculture, fisheries, commerce, any of the professions or the management, staff and students of any institution to which the Act applies need representation on the council.
Of the remaining members, two shall be appointed on the recommendation of the Governing Body of the National Institute for Higher Education, Dublin; two shall be appointed on the recommendation of the Governing Body of the National Institute for Higher Education, Limerick; two shall be appointed on the recommendation of the Governing Body of Thomond College of Education, Limerick; one shall be appointed on the recommendation of the National College of Art and Design; four shall be appointed on the recommendation of the Minister from amongst those who are members of the staff of any university in the State or of any constituent or recognised college of such a university, and finally, three shall be appointed on the recommendation of the Minister from amongst those who are members of the governing or managing body or of the staff or student body of any institution to which the Act applies.
Section 9 provides that the council may establish boards of studies. It may request a board of studies to make, in relation to specified subjects, courses of study or specified branches, areas, aspects or other divisions of education or research, recommendations to the council concerning any one or more of the following:
(a) the courses of study or instruction therein to be followed by persons for the purpose of obtaining an educational award from the council;
(b) standards to be maintained as regards any such course or other conditions subject to or in accordance with which any such course is to be conducted;
(c) the standards to be applied and maintained in relation to examinations or tests undertaken by persons attending or otherwise pursuing or following any such course.
In relation to making recommendations to the council, the board of studies has to have particular regard to the following:
(a) the standard of the work and the facilities for the time being available at any institution at which the course of study or instruction being considered is conducted or at which it is proposed to have the course being considered conducted, as may be appropriate;
(b) the curriculum and syllabus of the courses of study or instruction being considered;
(c) the requisite qualifications or the proposed qualifications of persons conducting the course;
(d) the arrangements and facilities provided, or to be provided, for the practical training of persons attending or otherwise pursuing or following the course;
(e) the arrangements and facilities provided, or to be provided, for the examination or testing of the persons concerned;
(f) the standards required or proposed for admission to such courses and
(g) the standard required or proposed for the award of any degree, diploma, certificate, or other educational award at the conclusion or at any other stage of the course.
The following very important proviso is also included. A board of studies in making recommendations in relation to the standard required or proposed for admission to a course for, or for the conferring, granting or giving of a degree, diploma, certificate or other educational award, shall have regard to any corresponding standard required by a university in the State and shall not recommend a standard which is lower than such a standard, if any. I have already on other occasions indicated that I anticipate and expect that the NCEA will pay particular attention to maintaining the standard of its awards whether at degree, diploma or certificate level, and I now repeat the emphasis which I desire to place on this aspect of the matter.
By way of conclusion to this introduction of the Second Reading of the Bill, I desire to draw attention to a statement of a former Minister for Education, Deputy Padraig Faulkner, in his address to the National Council for Educational Awards on the occasion of the inaugural meeting of the council on 11 April 1972, and to my own statement of 18 November 1977, announcing that the NCEA would be the degree awarding authority in the case of students who successfully complete degree level courses in the national institutes for higher education, in Limerick and Dublin and in Thomond College of Education, Limerick and in the regional technical colleges.
The Minister, Deputy Faulkner, stated that the existing system of awards could neither continue to meet the needs of existing colleges, nor had it any prospect of extension to fulfil the requirements of a third-level non-university sector which was significantly expanded by the addition of the regional technical colleges, the College of Physical Education and the Institute of Higher Education in Limerick. He also stated that the achievement of a national self-sufficiency in this area appeared to be a desirable objective in itself and one which could be realised by pooling the expertise of people from the universities, from technical and general education, from industry, from business, from the professions, and from research.
In my own statement of 18 November 1977, I stated that the Government, having had an opportunity of considering all aspects of the matter, were convinced that the best interests of the universities and the NIHE, Limerick and Thomond College of Education would be served by restoring to the National Council for Educational Awards the power to award degrees in the case of NIHE and Thomond College of Education. This would afford the NIHE and Thomond College of Education the flexibility and freedom which, with the support of the NCEA, would enable them to develop to the fullest extent programmes, the foundations of which have been firmly laid during the course of their association with the universities.
I stressed that a serious responsibility rested with the NCEA to ensure that the degree awards granted to students who successfully completed courses in the institutions for which the Government decided they should be the awarding body were comparable in value and esteem with similar awards granted by other degree awarding authorities, on the basis of comparable courses at home and abroad. This was a task which presented to the NCEA a challenge which the Government felt confident they would meet responsibly and wholeheartedly.
The NCEA were first established by a Fianna Fáil Government in the full conviction that they would make an extremely valuable contribution to the progress of education in this country. It is on the basis of the same conviction that I recommend this Bill to the House establishing the council on a statutory basis.