E I P
98/1
Terry Evans
Paul Northcott
assisted by:
Robert Dalton
Virginia Fazio
Christine Spratt
Deakin University
May 1998
Higher Education Division
Department of Employment, Education,
Training and Youth Affairs
©Commonwealth of Australia 1998
ISBN
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without permission from AusInfo. Requests and inquiries concerning reproduction and rights should be addressed to the Manager, Legislative Services, AusInfo, GPO Box 84, Canberra ACT 2601.
This report is funded under the Evaluation and Investigations Programme of the Department of Employment, Education, Training and Youth Affairs.
The views expressed in this report do not necessarily reflect the views of the Department of Employment, Education, Training and Youth Affairs.
Executive Summary
This study builds on the Keys Young report Evaluation of the Effectiveness and Outcomes of the NOOSR Bridging Courses for the Overseas Trained Programme (1996). It responds, as requested by the National Office of Overseas Skills Recognition (NOOSR), to the Keys Young recommendation that:
... the option of attendance by distance education be extended to cover all professions where such an option is feasible and, once evaluated, the use of CAL [computer assisted learning] materials be encouraged.
The Keys Young recommendations are listed in Appendix 1.
We have explored nine main issues on the viability of the wider use of distance education in bridging courses for the overseas trained professionals:
- recognising and balancing the needs of the individual overseas trained professional migrant with the need to maintain Australian professional standards, including consideration of the equivalence of level of training and of professional skills;
- making the recognition process more efficient and effective;
- the viability issue, including migrants undertaking distance education bridging courses in their country of origin;
- distance education’s advantages and limitations, including the clinical/practical component of such programmes;
- the evaluation of existing bridging courses conducted by distance education;
- the English proficiency issue;
- the role of the new strategies and technologies in distance education;
- marketing issues related to the implementation of bridging programmes both within Australia and overseas;
- the skills recognition of the accompanying migrant, as distinct from the principal migrant.
We outline our observations on these nine points below. A fuller exploration of these interrelated points occurs in the main body of the report, especially Part B, the individual case studies.
An evaluation of the viability of a wider use of distance education bridging courses is contingent upon an appreciation of the assessment process which recognises the skills of the overseas trained professional. An assessment is made of the overseas credentials, knowledge and practical skills, in comparison with their Australian equivalent. It is the professional bodies who are responsible for making the assessments and in recommending the bridging courses that are required to ensure an Australian equivalent standard is reached to qualify to practice in Australia. The professional bodies have to balance the need not to place unnecessarily excessive burdens on the overseas trained professional against protecting the interests of the Australian community which depends on competent professional services. It is in this context that an inquiry into the role that distance education could play has to be considered. This important principle (rationale) also needs to be conveyed to the prospective migrants as part of the marketing of bridging programmes.
It is assumed that distance education courses can be cost—and time—efficient and effective. For the migrant, the bridging courses can be undertaken irrespective of wherever he or she is domiciled within Australia, or even overseas, so that the migrant can be more ‘job ready’ soon after or before arriving in Australia. There are also less time constraints than in face-to-face programmes, as the course participant studies at home.
The ‘sophistication factor’ which has been such a feature of distance education programmes over the last 20 years (National Board of Employment, Education and Training 1994), in its adoption of new learning strategies and its skilled use of print and non-print materials, and learner support services, makes distance education not only more attractive for participants but also more effective of student learning time and achievement. Cost factors are discussed further below and in the main body of the report. The self-managed quality assurance developments of distance education institutions provide an ongoing mechanism for safeguarding and improving the quality and cost-benefit aspects of the programmes. Some discussion of the quality assurance indicators of distance education institutions and how NOOSR can tap into these quality assurance mechanisms is included in this report.
Viability is a complex issue. In general, we conclude that distance education courses can be and are viable given certain provisos. Two important educational provisos are a proficiency in English, so as to undertake successfully the bridging courses, and the confidence, motivation and learning skills to undertake a ‘self-study’ (independent) programme.
Costs are often seen to be problematic with low enrolment distance education programmes (notionally less than 50). This is not a problem when the bridging courses are merely additional enrolments to distance education courses that are already being delivered to Australian undergraduates or postgraduates. This is already occurring. A course that has to be developed, ab initio, would be a more serious cost consideration, especially if it had to include a range of costly non-print materials and facilities. Even such courses, however, could be viable, in cost terms, if the course materials are also used by undergraduates or as continuing professional development of those who are already engaged in practice.
Self-funded distance education courses, undertaken in the country of origin, given the above considerations, could be attractive from a participant’s viewpoint. The migrant would be more job ready on arrival and will be able to pay for the course while in employment in his or her home country and while surrounded by family and other support structures. The scheme is attractive from Australia’s viewpoint as, once established, the courses are self-funded and not a burden on the Australian taxpayer.
We have noted that the existing bridging courses offered by distance education are generally successful. There is potential for further development and enhancement of these courses.
What is clear, however, is that most of the clinically-based professions have little involvement in distance education for bridging courses and they find it difficult to imagine using distance education for anything more than the pre-multiple choice question (MCQ) courses. It is widely accepted, in these professions, that distance education for the pre-clinical examination is impossible, or near impossible. On further discussion, however, there was often some softening of this line and some areas, such as the theoretical, were thought to be a possibility for teaching by distance education.
Given the present deep concern by the professional bodies and bridging course providers on this matter, it would be prudent to pursue discussions on this matter cautiously. The problem is compounded if it is proposed that programmes with a clinical component are offered overseas by either conventional means or by distance education.
Practical aspects of bridging programmes, such as in accounting and law, which depend on an Australian context and focus, are also affected by this matter. In short, there are likely to be aspects of all professional courses that can only be undertaken in Australia, and this appears to be especially so with the allied health professionals’ clinical practicum. How much is a matter for further inquiry.
As mentioned above, we have noted that the current bridging courses offered by distance education are well executed as distance education courses. They are adequately resourced for current needs. Further enhancements in the course development and learner support services areas may need some extra funding. Extra supplemental funding may also be required if the courses are offered in the countries of origin of the migrants.
The appropriateness of the Occupational English Test (OET), both for readiness for engaging in professional practice in English and, crucially for bridging courses, was raised during our inquiry. Most, if not all, professions regarded the Occupational English Test as either a poor test of English or noted that the pass mark was set too low. With more professional migrants who are non-native English speakers, this is becoming a more serious problem.
The English proficiency issue was often mentioned in association with the problem of cultural differences, including different professional ‘cultural’ backgrounds. Nevertheless, this was seen to have positive advantages as well as drawbacks. The positive aspect was the richness that such migrants bring to an already diverse Australian community and the contribution that they can make, especially to ethnic communities, as well as to the global business and professional scene, because of their language and cultural appreciation skills. The drawbacks are obvious: a different, unfamiliar language, especially when used colloquially, and different cultural expectations concerning working, interpersonal relationships. In our report, we refer to these as ‘informal’, but nevertheless most important, bridging needs.
A major feature over recent years has been the development of new strategies in teaching by distance education. These strategies have come about especially because of computer-assisted learning (CAL) and computer mediated communication systems (CMCS).
These technologies have opened up some exciting teaching/learning opportunities. They also serve to remind us of the continuing problem of equity in adopting new technologies in distance education. Whereas some are advantaged, others can be seriously disadvantaged if they are unable to access the new technologies.
There is also the problem of justifying the expensive development costs. The cost-benefit problem again comes to the fore. It is clear that bridging courses by distance education will only be able to take advantage of these new technologies, such as computer assisted learning, if the programmes have wide relevance and appeal beyond the bridging courses and will find a ready market also as undergraduate and/or continuing professional development courseware.
Our study has indicated that computer assisted learning is viable if it is supported by either research funding or will be able to recoup costs by being used by a wider market beyond the bridging courses.
Critical to the success of the preparation and implementation of bridging courses is the communication system that is embedded in the marketing strategy. The marketing of distance education bridging courses in the context of this report involves not just the communication of the availability of particular courses to potential clients (overseas trained professionals). Rather, it also encompasses communicating, in a somewhat different manner and substance, the potential and practicalities of distance education provision to professional bodies and (potential) providers. Furthermore, it involves communicating with those in Australian embassies and high commissions who provide counselling to potential overseas trained professional migrants. We address these three aspects separately in our report, and conclude that the successful marketing (and implementation) of distance education bridging courses is unlikely to occur unless all three main groups of stakeholders (potential migrants, embassy and high commission staff, and professional bodies and providers) are integrated into a single marketing strategy.
Concern was expressed that the professional qualifications of accompanying, as distinct from principal, migrants were often not assessed. Subsequently, after arrival in Australia, in some cases some years after doing so, the accompanying immigrants decide to undertake assessment and thence bridging courses. Two professions, in particular, noted this phenomenon: accounting and nursing, where the accompanying migrant is often the wife of the principal migrant. It could be advantageous for a professionally qualified accompanying migrant to have his or her qualifications assessed at the stage of applying for migration rather than later.
Finally, before introducing the list of recommendations, we should like to provide a summary evaluation of our study. Australia has a tradition of attracting and employing overseas trained professionals. That this has been so successfully accomplished is a credit to all the institutions concerned: government, the professional bodies and the bridging course providers. All need to work collaboratively to guarantee success. This report, therefore, aims to assist in the improvement of the practices that have already established Australia as the international benchmark in this field. Nevertheless, the report reveals that there are still some shortcomings. There is still a strong element of the process being viewed by many migrants as a ‘gamble’ and an unduly long process.
The recommendations are listed below. The broad objectives, reproduced here, are discussed in Part C section 14. The recommendations that are specific to an individual profession are given at the end of each professional case study in Part B and also repeated in Part C section 15. A better understanding of these specific recommendations can be achieved by consulting the individual case studies.
Recommendation 14.4.1
That NOOSR consider that the expansion of distance education provision for bridging programmes is worthwhile, but that this not include areas of clinical or professional practice which depend on Australian experience or contexts.
Recommendation 14.4.2
That benchmarks for the viability and effectiveness of distance education bridging programmes be established by NOOSR, which take account of the relative costs, for all parties, of providing face-to-face bridging courses in Australia.
Recommendation 14.4.3
That NOOSR consider encouraging current and new providers of distance education bridging programmes to offer their courses in the countries of origin of the migrants. The courses should be designed so as to be suited to being studied in the country of origin.
Recommendation 14.4.4
That the direct costs of such in-country provision be borne entirely or substantially by the intending migrant, and that consideration be given to pricing the courses for such persons on the basis of recouping some of the development costs.
Recommendation 14.4.5
That NOOSR contract appropriate parties to develop and provide distance education bridging programmes which are capable of being studied successfully without face-to-face tuition.
Recommendation 14.4.6
That NOOSR, having considered the recommendations in the report and having made its decisions, then construct a development and marketing strategy which includes appropriate negotiations with the Department of Immigration and Multicultural Affairs and the Department of Foreign Affairs and Trade. That a possible revision of the NOOSR web site be included in these discussions in the interests of ensuring that widely accessible, standardised, simply-expressed, accurate and up-to-date, profession-specific information is provided for potential migrants, either directly or via agencies.
Recommendation 14.4.7
That the occupational English test and its pass mark level be reviewed for its appropriateness to the needs of the professions, especially with regard to the levels of competence in English required to undertake bridging programmes, including those at a distance.
Recommendation 14.4.8
That all distance education bridging programmes be developed with a minimum satisfactory level of English competence requirement as a criterion.
Recommendation 14.4.9
That a distance education module be developed to provide overseas trained professionals with the knowledge and skills to seek and obtain work in their chosen profession.
Profession Specific Recommendations
Recommendation 3.6.1
That prospective accounting migrants maximise their job–readiness before leaving their home country. This can be undertaken by either self-funded or possibly sponsored bridging courses, either by distance education or as face-to-face study, in collaboration with a local institution (i.e. a ‘twinning’ arrangement), delivered offshore by Australian providers.
Recommendation 3.6.2
That an information kit on how qualifications are assessed and how the bridging requirements for accountants are fulfilled be held and be readily available for consultation in all Australian embassies and consulates. The information kit should include the NOOSR brochure, information on bridging course providers, and any relevant information as is provided by either National Advisory Group on Overseas Trained Accountants or the accounting bodies—including the display of any posters.
Recommendation 3.6.3
That the Department of Immigration and Multicultural Affairs be requested to help implement recommendations 3.6.1 and 3.6.2, including and with particular reference to the briefing and support of any accountant migrating to Australia as an accompanying person, as distinct from principal migrant, and who wishes to qualify to work as an accountant in Australia.
Recommendation 3.6.4
That the accounting bodies and the bridging course providers continue collaboratively to monitor and to improve the quality assurance distance education mechanisms. This will continue as part of the accreditation process of distance education course materials development and delivery, student support services and the general administration of such distance education programmes. Enhancement of the programmes should continue, including the use of computer assisted learning materials where there are cost advantages of doing so, such as is provided by wide scale use by either undergraduate or continuing education participants, or both.
Recommendation 4.5.1
That NOOSR work with the current provider and the Australian Dental Council to discuss the provision of a distance education pre-multiple choice questions course.
Recommendation 4.5.2
That NOOSR consider the practical implications, in discussion with the current provider and the Australian Dental Council, of providing an in-country distance education programme, including appropriate support.
Recommendation 5.6.1
That distance education bridging programmes in dietetics be offered in the country of origin of suitable candidates. Suitability to undertake these programmes to be determined on the advice to NOOSR by the Panel in Dietetics.
Recommendation 6.6.1
That the Competency Demonstration Record innovation in engineering be monitored with a view to its possible support by NOOSR as an alternative format for bridging courses both for engineering and other professions and both within Australia and in the countries of origin of prospective migrants. Competency-based distance education bridging courses based on Competency Demonstration Record analyses of professional knowledge and generic skills would appear to warrant further exploration.
Recommendation 7.6.1
While the Bridging programme is only concerned with assisting participants to meet the minimum academic requirements, that NOOSR note the relevance of the teaching/learning practices of the Leo Cussens Institute (see Appendix 13). The Institute’s courses are already richly resource-based and because of this it should not be too onerous to convert them to a distance education format—with the possible exception of building in strict and precise self-assessment and feedback¾ the usual interactive approach or discourse that is a prime feature in quality distance education courseware). Thus, the task will be to simulate the mentoring component that is described in Appendix 13.
Recommendation 7.6.2
At such time when, and if, the changes are introduced for postgraduate pre-admission to practice law, which include additional studies in negotiation skills, property transactions and legal drafting, then a national distance education programme which covers these areas becomes attractive. We recommend that NOOSR be mindful of this possible development and the implications that it provides for the use of computer assisted learning in such a programme.
Recommendation 7.6.3
Recommendations 7.6.1 and 7.6.2 should be explored as distance education programmes which include a compulsory residential component. The distance education component will, in the main, cover the theoretical aspects and the residential the complementary ‘interaction’ and practical applied skills aspects.
Recommendation 8.6.1
That a distance education module be prepared to be used in association with the multiple choice questions text mentioned in Appendix 16.
Recommendation 9.6.1
That the English testing requirements reflect better the health-related professional English needs of the workplace.
Recommendation 9.6.2
That consideration be given to a national provider of a distance education bridging programme for overseas trained nurses.
Recommendation 9.6.3
That more careful assessment is made of the feasibility of developing strategies to undertake some or all of the clinical component of the bridging courses at a distance; that is, in regional hospitals and other institutions near where applicants are living.
Recommendation 9.6.4
That the applicants receive more thorough advice about the expectations of the Australian Nursing Council Incorporated and the state registering authorities prior to, or at the time of, their application for assessment of qualifications.
Recommendation 10.5.1
That there is a well-defined strategy to ensure that the roles and requirements of Australian Pharmacy Examining Council and the state registering authorities are made clear to potential candidates.
Recommendation 10.5.2
That any further development of computer-based programmes for bridging courses for the overseas trained be directed towards their potential use in undergraduate pharmacy schools.
Recommendation 11.6.1
That the current model for the provision and development of the physiotherapy pre-multiple choice questions distance education bridging programme be considered as a viable model for collaboratively developing such bridging programmes in other professions, especially clinically-based professions.
Recommendation 11.6.2
That the current physiotherapy pre-multiple choice question bridging course be encouraged to develop strategies and means of tuition and student support which make the course independent of face-to-face tuition.
Recommendation 11.6.3
That with regard to 11.6.2 as a precursor, the current physiotherapy bridging course be considered for review and development as a pilot programme for country of origin delivery.
Recommendation 11.6.4
That if 11.6.3 is accepted and achieved, this be used as an example for extending the provision of country of origin delivery into other (especially clinically-based) professions.
Recommendation 12.5.1
That specific areas of teaching, especially languages other than English, be considered as prospective areas for bridging in the near future.
Recommendation 12.5.2
That NOOSR anticipate future tendering for, or approaching current providers, to offer bridging courses—especially for languages other than English—which will be provided, with appropriate support, at a distance.
Recommendation 12.5.3
That NOOSR consider some (distance teaching) faculties of education as potential collaborative partners for the development of distance education bridging programmes (including in country of origin).
Recommendation 12.5.4
That NOOSR consider using persons and groups within faculties of education with appropriate distance education expertise, as either consultants or collaboration partners with other professional faculties, professional bodies and examining authorities, to help develop distance education bridging programmes for those other professions.
Recommendation 13.6.1
That consideration be given by NOOSR to encouraging the parties currently involved in providing bridging courses and examinations for overseas trained veterinarians to develop a strategy for constructing and offering a pre-multiple choice questions distance education bridging course.
Recommendation 13.6.2
That if 13.5.1 is accepted, then consideration be given by NOOSR to encouraging the parties to develop a strategy for offering such a pre-multiple choice questions distance education bridging course in the country of origin.
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