It is a particular pleasure for me, as Minister for Education, to open this debate on the White Paper on education, Charting our Education Future. Members of this House have consistently shown a high level of interest in education matters. Many Members have taken, and continue to take, active and central roles in the education system at all levels. Therefore, I look forward to hearing the views of Members of the House on this important document.
The launch of the White Paper marks a significant stage in the development of the education system. It is, in many senses, truly a landmark in the history of our educational development. Most importantly, as I emphasised to the Dáil last week, there is no exclusive ownership of this landmark. It is, above all else, common property.
It is the common property of all those who engaged with and participated constructively in the debate and dialogue which led to the White Paper. It is the common property of all those who, over many years, have contributed to the education of the people of this country, young and old, in a spirit of great public service. It is, very importantly, the common property of all the children of this country who are entitled to participate fully in our education system in accordance with their abilities and to develop their educational potential to the full. Shared ownership of the White Paper will truly ensure that it represents the enduring charter for the development of education in the future. The White Paper builds upon the best features of our education system as it has evolved historically. It does this while also recognising the need for change in many areas to meet the needs of students, parents and the many partners in education in the rapidly changing society which characterises our country as we approach the 21st century.
The White Paper builds upon and is the culmination of an extensive and in depth dialogue among all the partners in education. Traditionally, the approach to policy-making in education has been characterised by bilateral negotiations between the Department of Education and major interest groups. The National Education Convention and the subsequent round table discussions on intermediate education structures and school governance involved, for the first time, structured, multilateral dialogue among all the partners in education. I was convinced that such a forum would be of enormous benefit to the partners in providing them with the opportunity to analyse the major issues involved, taking account of their varying positions.
I believe that there is now a wide recognition that this process significantly enhanced mutual understanding. It promoted an appreciation of respective positions and difficulties and an enhanced awareness of the fundamental importance of partnership, plurality and a deeper commitment to co-operation and consensus as the key to charting our education future.
I have sought to promote dialogue and debate with maximum transparency and openness. This is not only because I believe this to be effective and the proper way to approach the policy formulation process in such an important area as education. It is equally important to realise that the nature of the process which has led to this White Paper will play a crucial role in the effectiveness with which it is implemented. I have sought maximum involvement in the process of policy formulation. This will ensure a share ownership of the policy document which we now have. This, in turn, will ensure a vigorous commitment to proceeding down the implementation road with enthusiasm and persistence.
I repeat what I said in the Dáil, this is your White Paper — parents, teachers, manager and owners, students. Take this paper, read it, study it and discuss it. Know how its provisions affect your sector. What are your rights balanced by your responsibilities? My Department will facilitate this debate, a debate that should take place in school halls, teacher centres and parents' associations.
In keeping with the spirit of openness and democracy, I have ensured that the White Paper has been given the widest distribution possible. My Department is completing the process of forwarding copies of the White Paper to all schools and educational institutions and to all those who participated in the convention. Copies are being sent to every public library. Copies are also on sale at £5 from the Government Publications Office. In addition, I have arranged for the publication of the White Paper in Irish in the near future. A visual presentation is being prepared for use as an introduction to your public discussion. The contents of this paper will influence the future direction of education. You should know about it.
A number of important principles underpin the approach to the White Paper. These are the promotion of quality, equality, pluralism, partnership and accountability. These are promoted within a framework which requires the State to protect and promote fundamental human and civil rights, to promote the holistic development of individual students and to empower their full participation in society and the economy. The theme of achieving equality in participation and benefit from education for all students, in accordance with their abilities, is integrated throughout the White Paper. It informs the approach to the early start programme. The fundamental objective here is to redress, to the greatest extent possible, disadvantage arising from social and economic circumstances, at the earliest feasible time in the child's development. The search for equality is evident throughout the approach to first, second and third level education and to adult and continuing education.
An underlying objective of curricular initiatives, new teaching approaches, new approaches to assessment and a variety of special support services, is to ensure that all students participate in, and benefit from, education and training in accordance with their abilities and that the adverse consequences of social or economic circumstances are minimised.
The imperative of equality informs all of the new organisational and structural arrangements proposed in the White Paper. Equally importantly, however, the promotion of equality implies prioritisation within the education sector. It implies prioritisation of those who are most disadvantaged through no fault of their own. This requires difficult decisions on resources, including the targeting of resources on particular groups and areas. It also requires a strong consensus within the education sector, and in society as a whole, that the alleviation of disadvantage is a priority, with consequential implications for the way we deploy resources.
As long as any of our people, from the youngest to the oldest, are unable to fulfil their full education potential, then there is inequality in our education system. The Government, all the partners in education and schools and colleges are obliged to address inequality with persistence and commitment. Removing inequality cannot be a discrete item on our agendas. It must be at all times integrated through all our activities and efforts.
Quality must be the hallmark of our education system. We are fortunate in this regard to be able to build upon a distinguished commitment among all the partners in education — teachers, management bodies, schools and colleges — to the attainment of the highest standards of quality and achievement. The people of Ireland have always seen education as a priority and have always had immense faith in the power of education to improve the welfare and wellbeing of the individual and of society. Without doubt, education will play an even more crucial role in the social, intellectual, cultural, economic and political life of our country as we face into a new century. Any society which hopes to develop and improve the quality of life of its citizens needs to plan for their future education in a sophisticated and sustained way.
Irish society sets its sights high in relation to the quality of its education system. We realise that education in Ireland has a major influence in ensuring that the potential of our people is achieved, for their own well being and that of society. At present over one-third of our population is directly involved in education on a day to day basis. Indeed, every member of our society is directly or indirectly affected by our education and training systems.
However, quality can never be taken for granted. I have already dealt with the promotion of equality. As long as there is inequality, as long as some benefit less than others as a result of the adverse influence of factors other than their natural ability and willingness to learn, then the quality of our system is less than optimum.
The importance of quality is intermeshed throughout the White Paper. The approach to quality is manifested in the development of the curriculum, teaching methods and associated assessment strategies at primary and second levels. It is also clearly evidenced in the initiatives to enhance vocational education and training and adult education through the establishment of a new Further Education Authority and Teastas — the Irish National Certification Authority. At third level, a range of initiatives have been set out to provide for the continuing evaluation and enhancement of the quality of education which is available to students.
Initiatives in relation to pre-service education, in-service education and the working conditions of teachers within the schools, coupled with school management and planning structures underline the key contribution which the teaching profession makes to quality. The development of the inspectorate at national and regional level aims to provide for the rigorous and systematic evaluation of the performance of schools and colleges in the delivery of the education service. It also seeks to provide professional support for schools and colleges in the implementation of best practice for the benefit of all students.
In short, a key pillar in the future framework for the development of education will be the systematic evaluation of the education system, from the level of the Department to the individual school, to ensure the attainment of the highest standards of quality.
As a result of this White Paper and the legislative programme which will follow from it, partnership in the delivery of education will be an integral feature of the future. The practical manifestation of partnership in the new framework for development includes: the equal participation of patrons/ trustees, parents, teachers and the wider community in the management of schools and the new education boards; the systematic development of dynamic new planning processes — by schools, education boards and institutes of higher education — which anchor educational activities and objectives in the wider communities which they serve; the location of education as an integral part of wider social and economic planning and development and the recognition of the key contribution of education to the economic and social prosperity of all.
There has been a real partnership in the dialogue leading to the White Paper. This has now been given manifest expression in the structures and organisations for the management of the education system at all levels. Partnership is an integral feature of the continuing planning and development processes within institutions and between institutions and their communities.
The important theme of accountability is an integral part of the new framework. Accountability poses no threats. Access to information is essential if all of the partners in education are to exercise their rights and discharge their responsibilities. Parents are entitled to know how well they are served by their school, the school's approach to education and the nature of its key educational policies in areas, for example, such as assessment, admissions and curricular practice.
Two important and complementary dimensions of accountability are set out in the White Paper. First, there is the accountability of schools, colleges and educational institutions and structures at all levels of the communities which they serve. Second, there is the accountability, through regional and national structures, to the Minister for Education and through the Minister to the Dáil and the nation as a whole. Increased accountability in the future will significantly enhance the quality of our education system. It will provide increased understanding of the reasons for decisions and the effectiveness of their implementation. This will cement real consensus on future policy directions and responses to important issues.
Increased accountability will also demonstrate the efficiency and effectiveness with which resources are used. This is important in securing additional resources and making the best possible use of existing resources.
I have been heartened throughout the debate by the virtual unanimous acceptance by all of the importance of, and the need for, increased accountability. I have sought in this White Paper to translate accountability into practice and to provide the mechanisms and structures for its implementation in the day to day management of our education system.
This White Paper endorses and affirms a pluralist society. It affirms the necessity and the importance of a diversified provision of schooling, recognising the variety of beliefs and values which characterise our modern democratic society. The very evident and significant maturing of our society as a whole should be reflected in, and supported by, our education system. This includes respect for the rights of others, respect for the views and rights of those who differ from us, respect for the rights of minorities and a commitment to genuine action towards those who are seriously disadvantaged in our society.
These all demand a generous response from our society. The education system should, at all levels and in all its processes, promote and nurture the value of each human being in our society. It should equally promote and nurture the values of social cohesion and co-operation, based on respect for the rights and responsibilities of others. This is an essential feature of a modern democratic society.
The education system, as envisaged in this White Paper, commits itself to pluralism and diversity. There is no threat to the ethos of individual schools or colleges at any level. They may continue to nurture their distinctive ethos, traditions and philosophy. However, schools and colleges are required to respect the rights of those who differ and to make sensitive and caring provision for all of those who are different, for whatever reason.
The White Paper values difference and diversity. An informing theme throughout the White Paper is the importance of ensuring that curricular provision, teaching methods and assessment strategies are sufficiently diverse and varied to cater for the wide range of ability levels now participating in education. Students require different provision and different learning methods to meet their needs. The White Paper is committed to providing this to the greatest extent possible.
The White Paper is about education on a lifelong basis. Building from the foundation of a comprehensive and high quality initial education and training, people will increasingly in the future need to update their knowledge and skills and renew their personal development. The framework for development in the White Paper recognises this and seeks to facilitate it. Recurrent and adult education is crucially important for those who sadly missed out during their period of initial education. We only need to reflect upon the literacy and numeracy difficulties among many of our long-term unemployed people to realise the fundamental importance of a solid educational foundation for a person's life chances.
Educational institutions at all levels must increasingly become centres of education for the communities they serve. These must be centres which are accessible to all members of the community. The White Paper locates education and training at the centre of a wider economic and social planning. It is now widely recognised and accepted that education makes a fundamentally important contribution to economic and social prosperity. The White Paper accords an importance to the accumulation of skills and knowledge equivalent to the importance heretofore afforded to more traditional forms of capital accumulation.
The White Paper seeks to build a self confident and outward looking education system which equips our people to participate fully in society, both in Ireland and the wider world of nations of which we are now such an integral part.
The White Paper commits the education system to embrace confidently the European ideal, where a sense of European citizenship now increasingly complements our traditionally robust sense of national identity. The Irish education system has much to learn from best international practice. Equally, it has much to contribute from its own rich heritage of experience and practice. Accordingly, we participate in European and world affairs in education, with the confidence that we have much to contribute and the maturity to realise that there is much we can learn.
I have completed and finalised negotiations on the education elements of the Community Support Framework. This is the agreement between the European Union and the Irish Government on the range of measures and programmes which will be funded up to 1999. In this programme, I have achieved funding of £1.5 billion for education up to 1999. Equally importantly, I have secured a very much increased alignment between the objectives of the European Union for education and training funding and our national education priorities. There is now a strengthened partnership between the European Union and the Irish educational system. This partnership supports early childhood intervention programmes; a range of measures to alleviate disadvantage; the restructuring of the senior cycle curriculum; the provision of national certification for vocational education and training programmes, involving real alternative ladders of progression through the education system; the provision of an unprecedented level of in-career training and development for first, second and third level teachers; and a major programme of capital investment up to 1999 in second and third level institutions and schools. These funding priorities are fully supportive of, and in unison with, our national developmental objectives as set out in the White Paper. This is an important and often unappreciated dimension of the current Community Support Framework which I have negotiated for education.
The White Paper also commits itself to the promotion of an awareness and appreciation of major Third World development issues. Our education system has an important role to play in promoting awareness of these problems. More importantly in the long term, though promoting an understanding of the root causes of the problem, it will facilitate the Irish Government and Irish society in contributing, to their best capacity, to the resolution of these problems.
It is particularly appropriate, at this time in the history of our country, that the education system should fully support and endorse the promotion of mutual understanding and trust on the island of Ireland. The education system must seek, through its institutions and its processes and planning procedures, to enhance mutual understanding, to promote an appreciation and understanding of the causes of conflict in Ireland and thereby lay the foundation for their resolution among all the communities on this island.
In the White Paper, I have set out a major programme of organisational change. The nature and composition of school boards of management are set out, as are the structure and operations of education boards. A radically changed role is envisaged for the Department of Education and its inspectorate. National bodies, such as the Higher Education Authority, will take on new and innovative roles. All of these structures will incorporate in their operations and their missions the fundamental principles outlined in the White Paper which I have dealt with briefly today. Their purpose is to support the putting into effect of these principles. Too often, perhaps, we seek organisational change for the sake of it. I have sought, and I believe I have succeeded, in avoiding this danger in the White Paper. The new organisational structures which are put forward are clearly supportive of, and designed to nurture in the future, the fundamental policy directions set out in the White Paper and the key principles underlining those directions.
There has been some comment on the resourcing of the changes outlined in the White Paper. As Members are aware, I have secured substantial increases in resources for education in recent years. For example, total education expenditure has increased from approximately £1.64 billion in 1992 to over £2 billion in 1995. That is an increase in excess of 26 per cent. The final Government decision on the funding of initiatives in the White Paper is as set out in my foreword to the White Paper. It states:
The Government will aim to provide, during its period in office, the resources for the development needs identified in this White Paper within the framework of the budgetary parameters set out in the Government of Renewal policy document, including the acceptance of the Maastricht Treaty convergence conditions. The amount which can be made available in any given year will have to be decided by the Government in the context of its financial position and its other public spending priorities at that time.
I will now set out my broad intention in relation to legislation. I will be giving priority to legislation setting out the principles and framework for provision of education at primary and post-primary levels. This legislation will provide for the establishment of the education boards and will provide the framework for boards of management in schools.
Another priority will be legislation providing for new governing body structures for the universities, the restructuring of the National University of Ireland and the putting in place of arrangements for appropriate public accountability. My objective is to bring both Bills forward before the end of the year. Work has already begun and my Department is in contact with the parliamentary draftsman's office with regard to the drafting resources necessary. The resources implications and legal complexities of this programme are very considerable and I appreciate that my objectives for this year are very ambitious.
Irish education has a proud heritage and great thought needs to be given to changing an education system which incorporates the values and ideals of such a rich heritage. We have much to be proud of in Irish education. We have very firm foundations on which to build. Let us not jettison what has served us well as we plan how to serve the country even better in the future. The greatest challenge facing all of us is to get people to accept the necessity for change. At the best of times, educational change is complex and slow. Therefore, a sustained effort is required from all of the partners in education to move the system in a new direction and to restructure it in the light of new needs, circumstances and conditions. In an area such as education there are rarely final answers. Indeed, it is totally inappropriate that we should say that our knowledge at any point is complete. However, we are at a time in our education system when new directions are required. The White Paper sets out those new directions and the supporting organisational and legal framework.
It has been my honour, as Minister for Education, to harvest the fruits of an intense and in-depth dialogue on education. As I have said, this dialogue has laid a firm foundation for effective implementation. While I have brought together these directions and set them out in this White Paper, they are firmly based on extensive consultation and on many key trends which have been emerging in education in recent years, both in Ireland and internationally. Accordingly, as I said at the outset, I am confident that there is now a sufficiently widespread sense of ownership of this White Paper, among all those with a genuine interest in education, to ensure that it effects real change for the benefit of students, society and the economy.