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2003/04 – 2005/06 SERVICE
PLAN
Ministry of Advanced Education |
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Strategic Context
Ministry Overview
This service plan sets out the expectations for the Ministry’s
performance and establishes a framework for a clear and impartial
assessment of the Ministry’s success in achieving its goals and
objectives. The plan complies with the Budget Transparency and
Accountability Act. The Act requires that every ministry produce
a three-year service plan, which includes a statement of goals,
strategic objectives and performance measures. In addition, Treasury
Board requires that service plans contain three-year targets.
In British Columbia, post-secondary education and training is delivered
through public and private institutions. In the public system, students
have the choice of 27 traditional and specialized universities,
university colleges, community colleges, provincial institutes and
the Open Learning Agency. Overall, the system provides a comprehensive
range of post-secondary education and training programs, including
adult basic education, university and university transfer, continuing
education, career/technical, vocational and industry training programs.
Successful program completion generally provides students with a
certificate, diploma, undergraduate or graduate degree or a trade
credential.
Encouraging a strong private post-secondary education sector is
an integral part of government’s commitment to access and choice
in education. New initiatives, such as the passage of the Degree
Authorization Act, were undertaken over the past year to ensure
more opportunities and choice for students, and provide a more level
playing field for private institutions. Currently, the private system
consists of a broad range of private institutions including two
academic degree granting institutions with separate Acts, 10 private
theological colleges with individual Acts, 15 out-of-country degree
granting institutions and a wide range of colleges and vocational
schools offering career-related training, university transfer, English
as Second Language, and vocational programs, including apprenticeship
training. In addition, a private bill of the Legislature passed
last year establishes Sea to Sky University as a private not-for-profit
university. There are over 1,100 private sector institutions offering
programs. Many of the programs and courses offered by private institutions
are intended for career-oriented adult students.
The Ministry of Advanced Education provides overall funding and
program coordination for British Columbia’s public post-secondary
education and training system. The Ministry also administers 22
provincial statutes governing public and private post-secondary
institutions and some professions.
Management of the public post-secondary education and training
system is a collaborative effort between the Ministry and the province’s
public post-secondary institutions. The Ministry provides leadership
and direction, establishes policy and accountability, and provides
the majority of funding to the public system. The public post-secondary
education institutions deliver programs and courses, provide education
and training to students, and undertake research.
The Ministry is also responsible for student financial assistance
programs, which provide eligible students enrolled in post-secondary
studies with loans and grants to cover educational and living costs.
In June of 2001, the Ministry of Advanced Education, either alone,
or in partnership with other ministries, was tasked with a number
of New Era commitments. During the previous fiscal years,
many of these commitments have been completed (e.g., new tuition
policy, funding for B.C. Leadership Chairs, forgivable loans to
nursing and medical students practising in remote areas). Some of
these commitments, such as addressing critical shortages in medical
and high technology occupations, were to be dealt with on an ongoing
basis. The current service plan incorporates these commitments into
its goals, objectives, strategies and measures. In addition, the
Premier assigned the Ministry of Advanced Education two key projects;
to direct funding to areas of critical skills shortages and to maximize
this province’s share of federal research funding. Again, the work
of the Ministry towards completing these projects is reflected in
this service plan.
The service plan does not present a work plan for individual program
areas, or a detailed account of the Ministry’s anticipated activities,
programs or initiatives over the next three years. Information about
the Ministry’s activities, together with reports on the outcomes
of program and policy initiatives, is contained in the Annual Service
Plan Report published by the Ministry after each fiscal year.
Highlights of Changes From the Previous Plan
- The Degree Authorization Act was passed by the Legislature
in May 2002, and is planned to come into force early in 2003.
This Act will make it possible for private institutions and public
institutions from outside the province to grant B.C. degrees,
and enhances degree-granting opportunities for B.C. public institutions.
The Act will also ensure that B.C. degree programs have a solid
education foundation, are marketable, and of the highest quality.
- A new tuition policy was announced in February 2002. Legislation
repealing the Access to Education Act, which froze tuition
fees at public post-secondary institutions, was passed retroactive
to March 31, 2002. Also, tuition fees were implemented for apprenticeship
training in August 2002.
Planning Context
This planning context reviews some of the major trends and resulting
challenges that will influence the post-secondary education and
industry training sectors over the next three fiscal years. A number
of these trends and challenges will continue through this decade
and into the next.
Demographics
Major Trends
- British Columbia’s annual rate of population growth slowed considerably
over the last three years compared to the early to mid-1990s due
to net interprovincial out-migration and slower growth from natural
increases. International immigration provided the bulk of B.C.’s
population gains, over the last few years. Between 1998 and 2001,
B.C.’s population grew by 0.8% annually, compared to average annual
growth of 0.9% for the rest of Canada. Between 2002 and 2006 B.C.’s
population is expected to grow faster than Canada as a whole.
Statistics Canada projects annual average population growth of
0.8% from 2002 and 2006 (Source: Statistics Canada, Demography
Division, Population Projections, Medium Scenario, 2006-2026).
Further information on the provincial outlook may be found in
the Budget and
Three Year Fiscal Plan released with the budget.
- Between 2002 and 2006, B.C. will experience a net increase in
the traditional post-secondary age group (18–29-year-olds), though
this group is not expected to grow as much in B.C. (4.8%) as in
Ontario (5.3%), but more than in Alberta (3.0%). This same age
group is expected to shrink in size in Quebec (-1.6%), New Brunswick(-4.4%)
and Newfoundland (-6.5%) through to 2006, and will continue to
decline in these three provinces through 2026. In B.C., the number
of 18–29-year-olds is expected to continue to increase until around
the year 2014 before levelling off, similar to the situation in
Ontario and Alberta. (Source: BC Stats Population Forecast 02/05,
May 2002 and Statistics Canada, Demography Division, Population
Projections, Medium Scenario, 2000–2026).
- In response to the growing 18–29 population, there has been
an increase in the number and type of post-secondary training
providers operating in B.C., in the competition for post-secondary
students, and in the use of technology as a teaching tool.
- British Columbia’s population is also aging due to the large
baby boom cohort and smaller natural population increases. A major
demographic change in the labour market over the next 20 years
is the narrowing and reversal in the size of the traditional labour
force entry age population against the traditional retirement
age population exiting the labour force. This gap will narrow
in this decade, and by 2014 for the first time, the labour force
exit population will begin to exceed the entry-level population.
This gap will continue to increase to some 115,000 by 2024.
Challenges and Opportunities
- As a result of increases in the population of 18–29-year-olds
and adult learners from older age groups, and the narrowing gap
between those exiting and entering the labour force this decade,
demand for post-secondary educational services and industry training
will continue to increase.
- The Ministry of Advanced Education, and its partners in the
post-secondary education sector and industry, must develop programs
and services to meet changing demographic conditions, the needs
of the labour market, and pressure for more choice from students,
within the context of public fiscal constraint. Private post-secondary
providers and industry providers complement the public post-secondary
system by providing more choices to students and expanding access
to post-secondary education for the growing population of 18–29-year-olds
and adult learners from older age groups. The authority to grant
degrees in B.C. has been limited to public institutions and a
few private institutions with their own Acts, but with the coming
into force of the Degree Authorization Act in 2003, private
institutions will be able to apply for consent to provide degree
programs and to grant degrees in B.C.
- Industry training must be realigned to more accurately reflect
the provincial investment in training and the number of trained
workers receiving credentials in the province. Current apprenticeship
data under-represents industry training in the province.
The Changing Economy, Learning and Labour Market Environments
Major Trends
- The mix of skills and knowledge relevant to the economy is changing.
Increasingly, post-secondary education or industry training beyond
a high school level is a prerequisite for employment. By 2008,
three-quarters of the projected job openings in B.C. will require
some form of post-secondary education or industry training.
- The ratio of total enrolments (all ages) in non-vocational public
post-secondary programs in B.C. as a proportion of the 18–29 population
was 25.2% in 1999/2000, third among all provinces, but slightly
below the Canadian average of 26.7%. Quebec (34.1%) and Nova Scotia
(29.6%) led the country in this category. (Source: Statistics
Canada, October 2002).
- In the traditional apprenticeship training system, B.C. had
0.7 registered apprentices per 1,000 population in 2000, less
than half the ratio of 1.5 apprentices per 1,000 population in
Alberta.
- Some occupations in the health care, high-tech and trades sectors
appear to be at risk of experiencing future tightening of the
skilled workers supply in particular regions. Much of this is
due to the expectation that a large group of workers (baby boomers)
will retire during this decade and into the next. Across much
of Canada, concerns over particular skills shortages were expressed
in the late 1990s and during the year 2000. The North American
economic slowdown in 2001 lessened the frequency and publicity
of these concerns in a number of sectors. Certain cyclical factors,
such as the strong growth in construction activity during 2002,
are creating tight labour market conditions in terms of availability
of certain skilled trades workers across a number of provinces,
including B.C.
- The structural aspect of demographic changes that may result
in future potential skills shortages is a complex issue. A variety
of present and potential responses are available to help address
this challenge. These include enhanced recruitment and retention
strategies by employers, increased targeted student spaces in
particular fields such as nursing and computer science, increased
autonomy of public post-secondary institutions to provide a flexible
mix of programming responsive to their local regional labour market
needs, and enabling private post-secondary providers to increase
or engage in training additional skilled professionals and technical
workers for particular high-demand skills areas.
- The province continues to shift toward a knowledge-based economy.
Employment in many of the traditional, goods-producing sectors
of the provincial economy has been flat or declining over the
last 10 years, while growth in the service and high-tech sectors
has been significant. This is expected to continue in the future.
For example, between 1991 and 2001, employment in the forestry
manufacturing sectors fell by 2,700 workers (down 3%) while employment
in the professional, scientific and technical services sector
grew by 47,000 (up 50%). In the future, an increasingly larger
volume of workers will be retiring in both the goods and services
sectors, which will be in addition to new positions created due
to growth.
Challenges and Opportunities
- In addition to the benefits to individuals, the province also
recognizes that post-secondary education and training, and strong
support for research and innovation, are key factors in the development
of a strong and vibrant economy and healthy communities. With
B.C. shifting towards a more knowledge-based economy, requiring
more specialized skills and knowledge, post-secondary education
will continue to increase in importance.
- It is anticipated that there will be an ongoing increase in
post-secondary participation as both younger and older learners
pursue new knowledge and skills. When this is combined with a
growing population of 18–29-year-olds and adults 30 and older,
the public and private post-secondary sectors will be challenged
to accommodate this growing demand. The post-secondary education
sector must design and offer programs that are relevant to the
rapidly changing demands of the economy and labour market, while
recognizing the fiscal challenges facing the provincial government.
This includes demand for part-time training and flexible retraining
programs that can meet the needs of learners, a number of whom
wish to combine employment and training.
- The Ministry of Advanced Education must continue to work with
other ministries to meet the needs of the provincial economy and
corresponding government priorities. This will include working
with the Ministry of Health Planning to expand programs for medical
professionals and with the Ministry of Skills Development and
Labour to identify and direct funding towards areas of critical
skills shortages.
- The post-secondary education sector must enhance ties with community,
regional and provincial stakeholders to ensure that the post-secondary
system reflects the needs of local communities and economies as
well as provincial priorities.
- Technological advances (such as online learning) must be utilized
as much as possible to increase the availability of relevant post-secondary
education.
Accountability and the Fiscal Environment
Major Trends
- The First and Second Quarterly Reports from the Ministry of
Finance, released September 13, and November 28, 2002 respectively,
reported that the government is on track to balance the provincial
budget beginning in 2004/05. Funding for the post-secondary system
will remain constant in 2002/03 through 2004/05. Additional funding
may be made available if the economy improves and incremental
revenue is realized.
- The average undergraduate arts tuition fee at B.C.’s universities
(weighted average based on enrolment in both public and private
institutions) was $3,165 in academic year 2002/03 as reported
by Statistics Canada on September 9, 2002. This compares to the
Canadian average of $3,738. B.C.’s average tuition fee level in
the 2002/03 academic year was up by 25.3% from 2001/02, but was
still the third lowest of any province, with only Quebec and Newfoundland
being lower.
Challenges and Opportunities
- In a climate of fiscal restraint, there is a need to align the
costs of a post-secondary education with the benefits received,
and to determine what proportion of the costs should be covered
by each of the partners (students, institutions, governments,
private sector). Consistent with enhanced autonomy for public
post-secondary institutions, the authority to set tuition fees
rests with the Board of Governors at each institution.
- As the post-secondary education environment becomes more complex,
government must ensure that greater institutional autonomy is
balanced by accountability to both students and taxpayers. In
response to this, the Ministry is committed to developing an accountability
framework for the post-secondary system.
- The system must also find creative ways of using existing post-secondary
facilities more efficiently, such as providing more programming
during traditionally slow periods in the post-secondary cycle
(e.g., summer months).
Vision
The Ministry of Advanced Education envisions a province where all
British Columbians have affordable access to the best possible,
technologically advanced, integrated and accountable post-secondary
education system.
Mission
The Ministry of Advanced Education provides leadership and support
for a top-notch advanced education and training system that provides
all British Columbians with opportunities to develop the skills
and knowledge they need to participate fully in the economic, social
and cultural life of the province.
Values
The following values guide the Ministry in its work:
- A student-centred post-secondary education system
- Excellence, innovation and continuous improvement
- Relevance and responsiveness of the post-secondary education
system
- Recognition of the key role post-secondary education, skills
training, research and development play in a successful economy
- Life-long learning opportunities for all British Columbians
- A positive and supportive working environment
- Effective working partnerships
- Greater equity and equality for British Columbians
- Results-based accountability
- Fiscal responsibility
In the context of these core values and the Ministry’s strategic
direction, the post-secondary education system has been shifted
to focus on the following areas:
- More choice for students — to ensure the system
serves students better and more flexibly, and to allow students
to take advantage of the increasing array of choices, which include
more on-line learning and part-time learning offered by public
and private sector post-secondary institutions. A degree quality
assessment process is being developed that will ensure that degree
programs at private institutions are of the highest possible quality.
The process will also be efficient and as streamlined as possible.
- More accountability to taxpayers — to focus on
success by encouraging the acceptance of explicit results-oriented
accountability by the public post-secondary system.
- Better alignment between the costs and benefits —
to ensure that the costs of public post-secondary education are
aligned with the benefits it provides. This implies determining
the appropriate share of costs between students, institutions,
governments and the private sector.
- Better links to the public interest and the economy —
to create closer and more effective links between the post-secondary
education system and the economy and the public interest.
- Coherent and integrated public system — to reshape
public post-secondary institutions into a more coherent, integrated
system with differentiated institutions working together in a
complementary manner.
Ministry Goals and Objectives
The Ministry core values and strategic directions link with a series
of goals, objectives and performance measures. The current goals
and objectives are the same as those identified in the Ministry
of Advanced Education service plan for 2002/03 – 2004/05. In addition,
most of the performance measures are basically the same, but have
been further refined to link with the accountability framework that
was developed with input from the post-secondary system.
Goal 1 — A Top-Notch Post-Secondary Education System
To provide students with an accessible, affordable, high quality
and relevant post-secondary education.
STRATEGIC OBJECTIVES
1. Promote a more efficient and integrated post-secondary education
system
2. Enhance student choice
3. Improve quality of education
4. Balance the costs and benefits of post-secondary education
Goal 2 — Economic and Social Development
To provide students with the skills and knowledge for the workforce
and the economy, and to respond to critical shortages in the labour
market.
STRATEGIC OBJECTIVES
5. Address shortages in strategic skills areas
6. Expand training and skills development
7. Expand research capabilities in the province
Goal 3 — Responsive and Effective Management
To provide students with financial assistance services, and
provide leadership to the post-secondary education system.
STRATEGIC OBJECTIVES
8. Improve Ministry business practices
9. Develop an accountability framework for the public post-secondary
system
The goals listed above link directly with the Ministry core business
as identified by the core services review process.
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