AARE Jennifer Angwin Deakin University (03) 699 3072 The changing workplace: the effect of change on teachers work in adult language and literacy programs. ...the concept of work is not simply defined as the exploration of an individual ('s) subjectivity, that is , enquiry into the relationship between how one thinks and what one does. The concept of work also relates the individual to the conditions of work which makes work itself possible Bartlett 1990 Although government funded TESOL programs in the workplace have been implemented for the last twenty years, recent changes in the economy and award restructuring have led to far reaching changes in the nature of teachers' work in this field. Industry is demanding integrated language and literacy provision to be linked concurrently with on the job skills training and the CES claiming English skills are the prerequisite for re- employment. Some might claim a coherent overview is being developed on the one hand, at the same time the teachers are faced with rapid changes and uncertainty as to their own future, as provision is being taken out of the hands of traditional educational providers. The overwhelming response of the bureaucracies has been the coÐoption of competency based trainng and a national curriculum as the only way for the field to survive. Resistance is seen as irrational and teachers become invisible.This paper is based on current research with teachers working in this rapidly changing field which lie on the margins of the established programs. Due to changes in the economic situation, the teachers are finding changes in the purpose and direction of their own employment and the focus of the courses they are to teach. The teachers are employed on short term contract with no hope of on going employment and many are working in isolation in a range of venues scattered throughout the community. They are isolated from the mainstream of their field, often working alone, without any contact with other teachers in their working week. They are isolated from curriculum supports structures, working without the benefits of a professional library or staffroom for professional support. The nature of their employment means that they are constantly moving around and have little chance of establishing and sustaining networks with other teachers working in similar situations.The students are notionally attending English classes to become more suitable for employment, which does not exist. Thus some teachers are experiencing contradictions in their work which they had not identified previously, and are also, some for the first time, questioning the political nature of their work, when their teaching is being so closely tied to social outcomes, by the bureaucracies. This paper examines the effects on teachers of changes in the rapidly growing field of adult basic workplace education and TESOL from the perspectives of teachers working in the field,. In 1993 even more substantive changes are going to be implemented, and as yet very little discussion or input from the teachers has occurred, who are actually responsible for teaching the programs currently being planned for them. New approaches to competencies, a new teacher proof curriculum, employment arrangements, funding organisation are all planned. These teachers are feeling powerless in the face of these changes. This research is informed by both feminist and post structural perspectives. Much of the research which is dominating this field is based on technocist views of educational research, which in other fields of education has been shown to be of limited use in explaining the complex worlds of education today. Both Australia's Language and Literacy Policy (ALLP), 1991 and the Workplace Education Language and Literacy Policy (WELL) 1991/92 for the first time placed language and literacy education for adults on the agenda of economic recovery. These new policies have been informed by award restructuring in industry (Australia Reconstructed 1987), and have resulted in dramatic changes to what were previously two quite separate fields of adult education Ð teaching English to speakers of other languages (TESOL) and Adult Literacy (AL), the fields which had previously been responsible for workplace basic education, English in the Workplace (EWP) for non English speaking background (NESB) students. The ALLP opened up the field for tender, so that other providers were able to tender to run programs which had previously gone to the AMEP unopposed. The provider does not have to be a recognised educational provider, but simply one whose tender is accepted (WELL Guidelines 1992). The tendering process has resulted in tremendous change and uncertainty for teachers, as the continuity of programs and employment is now dependent on submissions every few months. These changes in policy are given as the reason for the changes in practice. But it can be argued that there is a much broader change Ð that of the role and purpose of adult education. The response to these policies has been increased bureaucratization leading to increased control and lack of autonomy under the guise of changes of purpose (Yeatman 1990). The break up of the well established field and the changes in teachers' working conditions has resulted in certain tensions . Some teachers are experiencing contradictions in their own work and have very little access to any discussion with either administrators or curriculum suppport staff and in some cases, this is effecting the commitment and motivation of the teachers involved. This research looks at these changes from the perspectives of the teachers in the field, not the bureaucrats, policy makers or curriculum consultants. The economic rationalists in Canberra have coÐopted competency based training in industry into education and have focused on literacy as a major factor in unemployment, rather than the changing nature of work ( Watkins 1992,Kalantzis 1992, Yeatman 1990). From this top down model of decision making, which runs contrary to espoused previous practice, (although this is disputed by some, Bartlett 1988), there has been very little resistance to these externally imposed changes, with the bureaucracies themselves are now fighting for their own survival, as the Government departments now are competing for the same funds. Teachers were recently informed in the AMES Staff Bulletin, Active Voice, that, 'The ALLP released in Aug 91, signals a refocusing of the AMEP from a time based to a competency based language program. This means that access to the AMEP is to be determined by competency requirements (i.e. below ASLPR 2) rather than solely on a period of residence. This change openss up elligibiity to the backlog of demand from longer term residents (estimated at 50Ð60,000 by the Working Party on Post Secondary English Language Training, 1990). Priority among these is to be given to jobseekers with Newstart contracts. AMES 1992 PLAN Allender 1992 and It is now urgent to establish a national curriculum framework within the AMEP.' David Page, Assistant Secretary DILGEA 1992 There is a strange anomaly in the funding in this area. Whereas all adult education comes under the umbrella of DEET, the AMEP falls within the Department of Local Government and Ethnic Affairs (DILGEA). Over the years there have been a number of concerted attempts in Canberra to wrest back this education program into DEET. The WELL programs are managed between three departments Ð DEET, DILGEA and Department of Industrial Relations (DIR). It is difficult to see how this three department management strategy can be of any real benefit to the stakeholders. A Problem of Definition ..discourse is the power to be seized Foucauld Before one can even begin to examine these issues, it is important to draw attention to the fact that there is not a common discourse in place. By virute of a change in government policy, in bringing together a number of disparate program providers, each with their own established histories, cultures and understandings, into one group.The ALLP has difficulty in defining language, literacy and competency, three terms which surely underpin the current changes. For the National Consultative Council for International Literacy Year 'Literacy involves the integration of listening, speaking, reading , writing and critical thinking; it incorporates numeracy. It includes the cultural knowledge which enables a speaker, writer or reader to recognise and use language approppriate to different social situations. This definiton of literacy does not apppear in any of the WELL documents. It is disturbing to note the confusion at the policy level as to what exactly is to be measured or taught in these programs, or is this confusion deliberate? For example, a teacher or English speaker might wonder at 'language refers to ESL' and the claim that Literacy involves the integration of speaking listening and critical thinking and reading and writing when all that seems to be allowed in stated curricula of such courses is reproducing uncritically an externally designed curriculum. Nowhere is the idea of a competency in 'language or literacy' spelt out, as teachers hold vastly different views on this matter. In workplace language programs there are fundamental difficulties in expressing competency. What is the relationship between language, spoken and written, and carrying out a work related task? The NSW Accredited Certificate in English which is being implemented in Victoria refers to competencies as 'four domains of skill'. The competencies are shown by a learner operating in within a language context. A unit of competency is a statement of an outcome in relation to performance criteria. However this is where the issue becomes clouded. In the workplace instructions are often given in spoken language. Does that language have to be English? The National Policy on Languages (Lo Bianco 1987) referred to the languages of Australia, acknowledging that for many groups in the Australian community English is not their first language. This multicultural approach has been dropped in ALLP, which has reverted to Australia's Language Policy. So is the competency in performing the task ,or understanding and responding to the task when instructed in English? If you can understand the instruction but not perform the task, how is thsi assessed? This distinction might seem artifical at this point however it becomes extremely important when the worker is expected to respond to written instructions, or write a response to a question describing a task performance. (eg the use of fire extinguishers). The linguistic differences between spoken and written language are complex and extensive, in terms of grammatical and lexical complexity (Halliday1984), but for those outside the field of TESOL these complexities remain unexamined and false assumptions can be made. Many workers in industry of NESB have not had many years of formal education and might not have complex literacy skills in their first language, let alone their second. The linguistic level of some of these written demands are well above the ASLPR 2 minimum social proficiency referred to, and perhaps even above the ASLPR 3 refered to as for voactional purposes. McCormack & Pancini have also been working from the concept of four domains of skill in language ¥ ¥ ¥ ¥ Further developments along these lines are to be used as the basis of the National Accredited Course Coates 1992 There is a lack of clarity as to the concepts of 'basic education or the concept of a workplace. There is some confusion as the fields come closer together between the terms; are ESB and NESB to be grouped together or separately. What goups can effectively be taught together and what groups will still require separate programs. There are no clear definitons as to what exactly constitutes workplace education, or indeed what constitutes a workplace.For some it might be seen as 'training' directly related to the needs of that industry.To others it is the technical skills that are required by the award restructuring .A third definiton it is learning which takes place in industry paid time, whether on site or elsewhere.Fourthly, a program which has liased with an industry to understand a particular need. Fifthly, that specific skills related to work can be taught on site, but literacy can be taught elsewhere. HISTORY The two fields of adult literacy education and adult TESOL in Australia, have established over the past forty years their own clearly defined history, purposes, understandings of curriculum, organisational structures and 'culture'. However from the perspectives of the teachers the fields could not be more different, although in many cases the students were the same. Seventy percent of students in EWP courses are of NESB.The Adult Migrant Education Program (AMEP) funded by DILGEA which is one of the largest national second language education programs in the world, employing over 1500 teachers in approximately 300 venues and providing courses of between ten and twenty six weeks duration to 130,000 students each year. (Nunan1989) AMES Victoria has more than twenty centres throughout the length and breadth of Melbourne, and also provides courses in Community Venues and since 1973, English in the Workplace (EWP).Traditionally the AMEP has provided a settlement English language program for newly arrived immigrants and refugees who have been granted permanent residency status in Australia. In 1986 AMES (Vic) teachers were offered permanent employment and support was given for teachersto undertake specialist 'TESOL' qualifications.Unlike other providers in adult education, approximately sixty five percent of teachers are permanently employed, but many teachers in EWP are employed on a 'casual' basis, employed from term to term. In the past "...there has been a tendency to regard English language programs in the workplace as a type of welfare provision for clients... (Cleland 1992) with little relation to the overall training agenda in industry. AMES Victoria is supported by a large central administrative centre with extensive support services available. The Curriculum Support Unit provides inservice programs, research projects and materials development service. Many opportunities are provided for teachers to become involved in research and professional development activities, however most of these opportunities are taken up by permanent teachers or those who are working almost full time in AMES, so that in the last few yaars two tiers of teachers have developed, those who are permanent and access the CSU provision and the casual teachers, in growing numbers on the margins. Since the Campbell Review in 1986 of the AMEP, there has been an increased 'professionalisation 'in the field of adult TESOL with most providers supporting teachers undertaking PG and Masters course in the area and supporting the employment of qualified teachers. # add some details about elligibliity Traditionally AMES has been a settlement service The second largest provider of these classes (AL/TESOL/EWP) in Victoria are the TAFE Colleges funded by DEET, each of which operate quite independently from the others. Teachers who work in this system might have no curriculum support outside the small department in which they are working.Most teachers are employed on a short term contract or sessional basis, often with only one or two permanent full time staff members. Recently there have been some developments in co ordinated regional planning but to date, this remains the exception rather than the rule. The CAE has also taken up a substantial sector of the WELL program, providing courses both on and off site. Again, most teachers are employed on a casual basis. The smallest but fastest growing provider is Community based Education sector,having successfully tendered for funding from DEET Labour market Programs, providing classes for the unemployed, such as skill share, job seekers etc. The programs are now for the first time employing TESOL teachers to develop programs for members of their community working alongside the business, computer or trade classes. These programs might not be organised by those experienced in educational administration and are often directly linked to the CES or DFE. A newcomer into the field is the private system, via the English Language Intensive Courses for Overseas Students (ELICOS) schools which were originally established for teaching overseas students in two main groups: those intending to undertake studies in Australian tertiary institutions, and those who came to Austalia on student visas with the main intention of working and studying English at the same time. A number of ELICOS schools have tendered for Labour Market Program courses and are now providing these alongside their established ELICOS programs. The ELICOS schools tend to employ a stream of casual rather than permanent teachers, as their student numbers are constantly fluctuating and the priority given to teachers ongoing professional development can vary markedly from school to school. The Adult Literacy and Basic Education field is far more diverse than TESOL, funded by DEET. In 1989 it was estimated that one million adult s in Australia had literacy problems, 650,000 of ESB, with 44,000 in AL programs. A further 360,000 were estimated to have little English at all (Wickert 1989). AL has grown out of the community based adult literacy movement which until recently was taught by volunteers often volunteer tutors working on a one to one basis. The adult literacy field is vast in that the teaching covers beginning literacy skills to literacy for academic purposes for students wishing to return to further and higher education. The TAFE system, the CAE and Community Education are the main providers, but the field isnot exclusively for ESB students. Many NESB students who are not elligible for DILGEA courses attend adult literacy courses. # expand Whilst at one level there seem to be obvious similarities in these two fields, there are also major tensions between them. The most serious difference lies with these definitions and understandings of practice. As was first noted in the AMES Response to the Green Paper (the draft of ALLP), was that the policy lacked a coherent theory of language. TESOL draws on the literature of applied linguistics which constructs its pedagogy from some system of language analysis and each stage of language learning is planned with reference to this system. Adult literacy holds central notions of self development and empowerment rather than language analysis. Thus teachers have quite different starting points in curriculum development. Whereas ESL has looked at theries of language with functional or communicative perspectives, traditional AL programs have leant towards theories of literacy, focusing on the psychological skills and strategies for reading and writing, and the social aspect of how literacy is used in context. AL has tended to focus on personal growth & ESL on cross cultural communication. # POLICY Discourse is the power to create reality by naming and giving it meaning. Haraway ALLP The ideological perspectives of any policy are revealed in the discourse. English has become the corner stone for developing a competitive economy. English is central... to produce a more dynamic and internationally competitive Australian economy. (ALLP pxiv) 'No studies in Australia have yet provided an accurate assessment of the cost to the country incurred as a result of poor English language skills and inadequate literacy. It seems that all the economic problems now are to be laid at the literacy levels of the workforce. The Department of Social Security identified 65% NESB and 35% ESB of those who applied for benefits, appear to have literacy problems. p16 In 1991 Australia the labour market no longer offers the same opportunities for unskilled work as it once did for those people who are illiterate. Jobs for people with poor literacy and numeracy skills are diminishing in number. as are jobs in all sections of the labour market. But here there is a direct link to literacy, which might not indeed be the case at all. document. 28,000 attend adult lit classes, 60,000 attend AMEP p44 dangerous 'Several employers believed that if literacy training was imposed on them they would not employ people faining to meet certain literacy standards. Recommendation the National Training board in ratifying competency standards developed by industry ensure that appropriate literacy standards are included. Nowhere does this report talk about competencies. # But there is a certain irony to launch a language policy which does not encompass a theory of language, or indeed a social theory that addresses the issue of how language is used to regulate and dominate membes of the community. (Baynham 1992) Under ALLP the responsibilities for adult ESL have been extended. The policy introduces the idea of 'minimum social proficiency' in English, as rated according to the Australian Second Language Proficiency Rating (ASLPR). The policy aims to assist 'all NESB job seekers with less than a minimum social proficiency regardless of how long they have lived in Australia. According to the ALLP, this responsibility is in addition to the role of the AMEP which is to continue to target all newly arrived immigrants of NESB, particularly those who have not achieved ASLPR 2, although no extra funding has been made available. THis new proposal allows for teaching to ASLPR level 3 'ASLPR 3 is the proficiency level where a nonÐESB person is able to communicate in English with sufficient accuracy to meet his basic vocational needs. If ASLPR 3 is seen to be the minimum for work, it is interesting to note that the AMEP has tradtionally been funded only to the level of ASLPR 2. Students wishing to continue have had to go elsewhere, perhaps to TAFE, but with no guaranteed provision to enable them to learn English to the level required for'minimum vocational proficiency', let alone for access to further study. Is it any wonder that unemployment is three times highe amongst immigrants of NESB than the general population. Australia's spending on Labour market programs has been the lowest per unemployed person of any member of the Organistation for EconomicCoÐoperation and development (OECD) The Herald Sun May 23 1992 One might wonder at the real intention of the immigration policy. All that the ALLP seems to be offering teachers in the field is inceased regulation. The length of course required to reach ASLPR has been set at 510 hours instruction, a figure which has a certain 'scientific' appeal, but no evidence has been provided as to how students of vastly different educational and linguistic backgrounds all require 510 hours An additional requirement appears that the students are 'to demonstrate reasonable progress' within that time frame. Evidence from second language acquisition theory research has shown that many students pass through stages where they appear to be making no observable progress, but some time later leap ahead (Ellis1983). If this progress does not occur within each assessed period is the student to be thrown out? The teachers are now being asked to work within discourses which no longer represent their values or theoretical understandings of their work. They have become invisible (Gilligan, Ferguson , Walkerdine) Independent, reflective, thought on the part of the individual learner is effectively usurped by the expert designers of technocratic curricula and those who embrace their technocist assumptions. With them at the helm, adult education as an organised system will serve to subvert critical powers of insight and imagination. They steer modern adult education practice away from any real prospects it might have of developing into a genuinely transformative pedagogy for a more just society. Collins 1991 mawer ALLP WELL Award restructuring Australia's spending on Labour market programs has been the lowest per unemployed person of any member ofthe Organistation for EconomicCoÐoperation and development (OECD) The Herald Sun May 23 1992 DEET has predicted 'high levels of unemployment, and more particularly of long term unemployment,which is likely to prevail for a substantive period.' NBEET technical formulations as standardised preÐ packaged curriculuaÐ> artifiicality & detachment x from teacher autonomy to puppet Response: National Cur & CBT COMPETENCY BASED TRAINING IN ADULT LANGUAGE LITERACY EDUCATION #use Pospect stuff CHANGES IN ORGANISATION 2 levels 1 ADMIN tender, no awards, a/o contract ???OUTCOME HERE? Response: The way these programs have been envisaged are via competency ASf ANTB AMEP 70,000 pa 10,000 DEET backlog 60,000 AMEP most learners need 400Ð720 to reach minimum social proficiency p58 EWP POLICY short increased funding to work related programs SIP, Skillshare AMEP previously defined by period of residence, not attainment levels minimum social proficiency ASLPR 2 Classes spring up over night and teachers are employed in new settings with no curriculum support, handed a class list , often selected by a clerical assistant at the CES There is ample evidence that this is not the only or indeed the most efficient way to move forward in the face of growing unemployment amongst the least skilled workers regardless of their background. CHANGES IN PURPOSE IN ADULT EDUCATION 'adult educators are being seduced by exemplarsof extreme rationalization such as competency based learning, and the many skillsÐbased curriculum formats which purport to teach us how to cope and how to live. Collins '...in the absence of a sustained social critique, modern adult education practice steered by technical rationallity serves the whims of an advancing neoconservative political ideology. to achieve their employment potential Within adult education, there are four commonly held concepts of adult learning. ¥ self directed learning and the andragogy school (Knowles) ¥ learner centred and the humanistic educators (Rogers) ¥ critical pedagogy and social action(Mezirow) ¥ training and efficiency (Boud, Keogh et al1988 ) It is easy to see that it is the last of these concepts which has recently risen to the fore within the discourse of competency based training. Most of the literature concerning these approaches in general adult education pre-supposes a western cult of individualism and self determination which might not be culturally acceptable for students with different views on the role of the individual in society. Candy (1988) comments that only one third of adults wish to be self directed in their education, and perhaps the figures would be even lower for students of non English speaking background. When people make recommendations about increasing learner control, they enlist many arguments. They point to cultural values, such as those of individuality and self fulfilment; `rapid social and technological change and the consequent need for continuous self development and self improvement; the emergence and refinement of the notion of lifelong education; legislative sanctions which demand equality of educational opportunity; a liberal sort of humanitarianism which emphasises personal empowerment. Candy 1988 Both AL &TESOL have held the first of these two ideologies as the basis for their pedagogy, although this has always been a problem in EWP where, before the setting up of Tripartite Committees of Management, in many cases the purpose of the course was to be seen as an instrument of management. Q M Ed paper Importance of reflection in adult learning The kind of reflection in which learners engage may not be critical in the sense used by Freire and Mezirow. (Boud) This is not critical enough for Kemmis (Action research and the politics of reflection) The language of the discourse '...in the absence of a sustained social critique, modern adult education practice steered by technical rationallity serves the whims of an advancing neoconservative political ideology. Collins link to Kress The paucity of positivist research in the area of curriculum has been well documented by many writers (Giroux 1983, Kemmis1986,Lather 1986). Feminist writers have contested the privileged position that positivist research has claimed, as being of universalised male experience (Blackmore 1989). At the moment in TESOL there is a renewed interest in scientific and ethnographic, interpretive research. Interpretivist research aims to understand the meaning and significance of human actions. This research is becoming increasing common in TESOL, as an ethnomethodological or qualitative approach. Critical emancipatory research aims at a critically reflective approach to research based on collaborative enquiry, where both the researcher and the researched are involved as equal partners in the process. This type of research can be undertaken by groups of teachers who come together to reflect on their practice and in the process develop critical praxis. This action is empowering as in the process the teachers come to understand their own practice, and place this in a wider educational perspective. The purpose is to transform education by a better understanding , in its social context. It is firmly grounded in society and views education in its social context also. Recently there has been 'an epochal shift' towards the concept of a constructed world, a world constructed in discourse. and the 'texts' which enshrine the experience. Knowledge is no longer fixed but constantly changing, so too is there a concept of shifting subjectivity which not seen as purely unitary ,rational, but multiple. The discourse provides the subject position, which can often appear contradictory, but also allows for a theory of the unique. As an extension of this research follows 'second wave' feminism or, in Lather's terms materialist feminism, which attempts to make sense of these shifting subjectivities. For feminists the problem with all previous research paradigms is that the are predicated on a patriarchal world view and contemporary feminist theory is attempting to move beyond the earlier attempts to reconceptualise male discourse, from new parameters. For me an important aspect of feminist discourse is the perspective on ethical questions in relation to education. Whereas MacIntyre has shown that ethical views based on some sort of liberal humanism are 'morally bankrupt' at this stage of the twentieth century, feminist theories offer new perspectives on moral questions (Gilligan1984). If morality is defined in terms of 'interrelatedness' compared with a patriarchal view which values autonomy at the expense of interrelatedness. This I believe is important is establishing how TESOL teachers come to decisions in their classrooms. While TESOL remains a marginal area of education, with low status, the teachers will remain isolated from curriculum debate. The journals have shown that in these contexts it is possible to engage in critical reflection, to engage with the literature and to begin to construct the new teacher. The move to self directed learning , learner control is based on cultural values such as individuality, self-fulfilment and empowerment (Candy 1987). Yet these values are not important to many of the students who we are trying to teach. ... to recognise the necessary plurality of positions occupied by women of differing ethnic origins and languages (Haug 1987:12) The feminine approach to value relatedness and care is extremely useful to help explain the way in which the TESOL teachers seek to relate to their students in the classroom. From feminist research this is seen to be of value and not confused with the negative connotation of 'mothering' which is often held up against the teachers intuitive knowledge of how to proceed in their classrooms. A woman's construction of the student is driven by her ethic of care. To care for the student is more important to the teacher than the bureaucratic concerns of the administration. The journals have given voice to this dissent. Ferguson (1984) has shown that the growth of bureaucracy always means that the gaps between the teachers concerns and the administrators widens. With the recent moves to permanency has resulted in the teachers being constantly drawn out of their classrooms into tasks which keep them from their main concern - teaching. Whereas these women, many of whom work only part time have in the past taken fairly submissive roles within the organisation, through the journals they have given voice to their concerns and in this knowledge have gained strength. One of these teachers has now become a union representative, a role which she saw as useless at the start of the project, in order to make the part time workers voice heard. And finally what of the post modern discourses? Here the idea of the unitary subject has been deconstructed so that it is now seen to be legitimate to take a subject position within a discourse which is full of contradiction, multiple and not purely rational. (Henriques 1984) Much of what a teacher perceives in her classroom appears to be contradictory t o the dominant discourses in TESOL. Viewing her world in this way supports her construction of knowledge based on her perceptions of her own experience. Even within TESOL it is acknowledged that there is a great deal of uncertainty as to how an adult learns a second language (Freeman1988) so that the teachers own view base on her experience from a post modern perspective, can be seen as a possible way of describing her dilemmas in her relation to the dominant discourses. The world of TESOL is essentially multi voiced and the teachers constructing a new discourse might be able to describe this world in terms which are seen to be relevant in these difficult times. 6 THE FUTURE To reflect critically is to locate oneself in an action frame, to locate oneself in the history of a situation, to participate in a social activity, and to take sides on issues. (Kemmis 1986) But what of the future? What has this project revealed in terms of future work in this field? Even though the process of using journals is quite problematic on a number of levels as has been described, in this context has a great deal to offer I believe that in TESOL where so many of the teachers remain isolated in their daily work the journals can be used as a forum for critical reflection and action research. The problem of developing and sustaining critical communities within schools has been well documented and it seems to me that the use of journals is particularly useful in TESOL where the teachers will remain isolated from each other in their work. This paper aims to show how changes in policy at one level have resulted in the coÐoption of the field by the bureaucracy, so that resistance is seen as irrrational. With the development of a new field in repsonse to new opolicy it has been easy to adopt the new discourse of competency based traing and opt fotr the certainty and accountability that a national curiculum will provide.. With such a curriculum in place where the teacher is provided with the teacher prooof packages, the teachers become invisible. There is no room for contestation. The curriculum paradigm is reproduction. Similar moves have been made before and resisted. Will it be possible to continue to resist? EXTRA This book attempts to switch the spotlight on to the role of adult educators and the nature of their current commitment. It is informed by social theories of action rather than psychological learning theories. COMPETENCY BASED MOVEMENT Australian Standards framework The National Training board has decided to establish a broadly based ASF of eight competency levels which will serve as reference points for the development and recognition of competency standards. vocational training and qualifications may be compared by using competency levels. (National Training Board 1991) NTB p7 '..the specification of the knowledge and skill and the application of that knowledge and skill within an occupation or industry level to the standard of performance required in employment.' The NTB has adopted a broad concept of competencey in that all aspectsof work performance, and not only narrow task skills, are included. Moreover, the broad concept of competency should be: related to realistic workplace practices expressed as an outcome understandable to trainers, supervisors and potential employers issues and concerns The competency based approach offers considerable advantages. ReÐlocating the primary emphasis from the processes involved in training ( the inputs) to what a person can actually do in the workplace as a result of the training (the outcome) allows education and training provision to be signficantly more relevant, focused and needs based. 90 The problem of competence '..management interests are well served, education and training programs are trivialised, while occupations are increasingly deÐskilled through the deployment of narrowly defined prescriptions. Collins inMawer The dividing up or reducing of worker skills and knowledge into small, packaged, encyclopedic, incremental, and prefabricated bits is a very structural approach, no doubt, and superficially attractive. But ...rather along the lines of Taylorism which we are supposed to be leaving behind (the current emphasis on competency based training and assessment in) vocational education and training is creating an impression that it is setting about the task of ignoring the whole, the comprehensive, the conceptual, the broad knowledge of production, and the knowledge of the social context of work.' Gribble 1990 "Similarlly, the process of establishing competency standards and assessment procedures , and developing the consequent training programs, has significant ramifications for demands on individuals' abilities to read, interpret and write complex abstract English texts. The competency based approach is to a great extent industry driven, with the aim of developing more performance oriented , effective and fairer assessment and training methodologies. However , it is not difficult to see how the actual implementation process could have become a significant gate keeping exercise. p15 SPOKEN WRITTEN CHANGE MOVE### 1 Written job procedures "This transistion from oral to written text has led to the abstraction of the simplest operational procedure to a point where accessibility and comprehensibility have been significantly affected.. 2 Participation in consultative processes 3 Accessing training &Promotional opportunities " Most studies of literacy in the workplace have established that training for ajob demands both a higher level and a wider ange of reading and writing skills than those required in the actual performance of the job. Wickert 1989 Teachers # Yeatman conclusion "the proliferation of policies at the present time is a response to the increasing complexity of society. This complexity results from, as it creates, a plurality and fragmentation of voices which seek to be heard within the policy process. multiplication of interests Politics of difference 155 Politics of discourse Haraway language politics "Discourse is the power to createrealityby naming and giving it meaning' Foucauld "discourse is the power which is to be seized' VIP "..that their own positionality is not fixed or even coherent. They may discouver that their subjectiviyt has been located between, or across distinct and even contradictory discourses of identity. ..^dentities are not fixed....sitesof past subjective experience. "Self and identity..are always grasped and understood within particular discursive configurations. consciousness, therefore, is never fixed, never attained once and for all, because discursive boundaries change with historical conditions. Teresa De Lauretis 1986 The Coalition are now speaking of introducing an English language test as a prerequisite for citizenship. Not enough work has been done as yet on a linguistic analysis of the language required. For teachers to make this analysis there willneed to be some inservice. Some work is being done at Macquarie. There are several major schools of linguistic analysis. The view which has gained support from NTB, ASF, ALLP, WELL is that of Halliday's systemic functional linguistics, which takes account of the socio cultural context and relationships revealed in language. ASLPR The proficiency rating used nationally to rate students of NESB in listening, speaking, reading or writing. An individual is given a rating for allfour skills, which often differ markedly. The notion of an across the board ASLPR 2 is not one that ESOL teachers use. It is interesting to note that ALLP states that ASLPR 3 as minimum for employment, but until now, the AMEP has been funded to teach only until ASLPR 2. There is a second scale in use, the ALAN (Literacy & Numercy) Competency scales which were developed but strongly contested y teachers. They are to br dropped as soon as the ASF are in place. University in this area rill require separate programs. There are no clear definiti i The language of the new discourse needs to be examined carefully to reveal the discursive positions available for the stakeholdersIn bringing together the two groups in EWP certain tensions will arisecaand f ,,he perspectives of the teachersa. DILGEA has regulatedaccess to the AMEP under strict criteria, based on thelenght of time in Australia, level of English and priority groups. ( e,s which has always been a large provider in AL, courses are sch constructs its pedagogy fromseses oWithin either field one could argue the effect of these colonising, rational discourses created by knowing subjects, and the effect and positioing of these discourses of the unknowing, irrational other, whose lack of understanding of the language of power, is constructed as being deficient (Fairclough, Walkerdine). The discourse positions available Ð the discourses of the workplaceÐ are those of the compliant worker, and rarely do language programs take up a critical view in order to contest these positions (Auerbach 1991). One critical change which these policies fail to take into account is the cnature,ing which , The rate of job loss is higher for men than women, but women are still finding it difficult to gain access to non traditional workplaces. 1992 There is concern as to how assessment of competencies is to be used and it is feared that enen Kalantzis 1992 There appears to be an attempt to colonise the discourse of unemployment with the discourse of deficiency, one which is often used to describe 'the other' particularly those of NESB.# The move towards deskilling both workers and teachers by this new narrow construction of their work, hints of Taylorism, a discourse which it is claimed, Award Restructuring will over turn. CHANGES IN Australia's Language and Literacy Policy () It seems that allpeople IN 1990, ed adult literacy anded the. Resistance to 'compulsory' literacy training in industry by management is a real concern.l are mentioned, as the ALLP preceeds the Finn, Mayer and carmichael Reports, which again have radically changed the discourse in this area Tas power, r. h it educationr be phased out is.how or why.Workplace English Language and Literacy (WELL) be phased out isAlthough the policy outlines in deatail the types of reponse the administraotrs are making there is a more fundamental question as to the changing nature of work which needs to be addressed but is ignored. ÿÿÿÿÿ issue which is crucial to the teachers who are working with both the employed and the unÐemployed, is not being discussed in any forum that the teachers have access to. # jointly managed through the departmants of . amongst workers with low levelsof literacy and English.CHANGES IN er called foring future programs. 90ua Although this division might help the bureaucrats in their three departments, such artificial divsions make no sense to the teachers. the discourse had been refineddefined as listening, speaking ,reading and writing ()one might think are the same skills as constitute literacyis just around the corner CHANGES IN PURPOSE IN contemporary basic provision Although the ideology of self development and personal empowerment have long been espoused in adult basic education, in practice much of the work has not confronted the political reality of the students positions, and indeed in TESOL, not even taught the language to begin such a critique and enter into the discouse in an active manner (Bartlett,Auerbach). Thus much of the practice, based on the liberal humanist views of the individual, have not been empowering, and have acted to reproduce the dominant power relationships within the society. 1988 Naturally these claims would be contested by some teachers who have actively engaged in social critique, but these teachers would be in the minority. The literature of critical social theory challenges our understandings of teaching. If our work is examined from these perspectives, then the whole system is thrown into disaray as Giroux commented. Teachers education has rarely occupied a critical space, public or political within contemporary culture. (Giroux 1991) As we fast approach the end of the millenium, and are surrounded on all sides by the technological rationalists, whose 'ways of seeing' our world might be quite different from educationalists in the past. It seems vital that teachers can, in their own classrooms, examine critically the bureaucracies which govern their lives. In ignorance of these dominant power structures within the society, a teacher is powerless to challenge and contest them. The teachers therefore unwittingly reproduce these technocratic and corporate ideologies which characterise the dominant society. To return to Giroux "This lack of attention to critical social theory has deprived student teachers of a theorectical frame work necessary for understanding,affirming and evaluating the meanings which the students socially construct about themselves and school and has therefore diminished the possibility of granting them the means to self knowledge and social empowerment." Giroux 1991 This is particularly relevant in the field of TESOL where the teachers are working with minority groups of marginalised students who are trying to come to terms with new social and political systems and their changed economic and social positions in these new systems. Some teachers who find themselves teaching minority students, a cultural distance between 'us' and 'them' develops as a result of the lack of a framework for understanding the differences, whether cultural, ideological or of gender. Teaching practice becomes an occasion for the production of an alienated defensiveness. Teacher education has rarely occupied a critical space, public or political within contemporary culture. According to Giroux, teacher education constitutes a set of institutional practices that seldom results in the radicalisation of teachers. The political space which teacher education occupies today generally continues to de emphasize the struggle for teacher empowerment; further more it generally serves to reproduce the technocratic and corporate ideologies that characterise dominant societies. Giroux 1991 In these troubled times of the corporate curriculum, education being seen as inextricably linked to productivity and training and teaching seen as 'adding value' to the raw materials - the students, surely this is a time for us to reevaluate critically the courses being presented to the students. We cannot allow our teaching to become a site for uncritical reproduction of practices which are not empowering students, and perpetuate the unequal power relationships which dominate society today. The institutionalisation process of the new teacher is well known and well documented (Zeichner & Nunan). We must build into our practice the critical space to evaluate all practices in order to become critically reflective teachers and engage in action. (Kemmis) '' Within the tradition of the learner centred needs based curriculum, developed by teachers in their own classroom, a new curriculum discourse has emerged, that of National Curriculum, competency based training and Core curriculum. As yet there appears to have been little resistance, if any, by the administrators, all of whom are struggling to tender for their own survival. The implications of the new discourse on the practice as we know it are not being critiqued, teachers are not being heard and discussions with teachers, of these new approaches are not taking place. Within TESOL a critical discussion of c and its role in contesting or reproducing the power strucutre of society,.Rarely do thepractice.ESOL teachers might participate Whilst there may be areas of education where a competency based approach might have some usefulness, as Finn, Mayer and carmichael would have us believe, the area of language education, the strength of which Stenhouse commented was in its variety and response to context, would seem to be an area likely to gain very little. However, this approach has been accepted with little debate, by the administrators. THE It is now urgent to establish a national curriculum framework of competencies witin the AMEP DILGEA "Similarl Mawer 1992 There appears to be an underlying assumption that a assessing a work related competency in the workplace is a language free task, or that the language demands of describing the task are an integral part of the task itself. As mentioned earlier, there are significant differences between spoken and written language, which are being overlooked. Mawer 1992 These are critical issues but the teachers who are currently in some workplaces already teaching to this competency based approach and finding contradictory, are not priviledged to debate. Again they are not heard, or in raising a critical voice against the new discourse are seen to be 'irrational'. Tof a core curriculum thericulumproject over run the competency approach. thericulumregistered the .T there has been and the now four designated aexamples a t. Tasks which will be manifested . e steered by technical rationa in order togive some sense of validity to the field Little research of this nature is taking place. Feminist research challenge the patriarchalto be (Noddings)From the research it seems that which .S tisprevailing discourses.THE WAY AHEADThere appear ÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿ"tÿhÿÿÿ"tÿhÿÿÿ"tÿhÿÿÿ"tÿhÿÿÿ"tÿhÿÿÿÿÿÿÿÿhÿÿÿ ÿ" to be dark forces at work to deny the teachers construction of knowledge based on their own experience in their own classrooms. research M Almost all teachers working in this field are women. They are mainly working with men, in male dominated workplaces and management structures. In terms of age, gender, ethnic and class background the teachers differ from the workers they are employed to teach. The teachers have never worked in factories themselves, are mostly married to men who have never in factories and have very little understanding of the complex work relationships and power structures which operate in a workplace outside a school. As AL/TESOL teachers, they are the outworkers of this field of education. They are not located in a base school with a professional library, or colleagues with whom they can discuss their work, their curriculum and any problems they might be experiencing. They have no easy access to resources, with one professional library in the city while they are working in Dandenong or Tullamarine. They work in a range of venues during the week, often two on the same day. They are employed on a casual or sessional basis, on 6 to 10 week contracts. At any time their work can be terminated due to changes in the industry. They are not privileged by any set awards, rates of pay or conditions of work. The working day can run from 7am to 9pm including weekends. Split shifts are the norm. They receive no holiday pay or sick leave.They are represented by eight different unions, but most are not members. As a result of their short term employment and the number of employing agencies, there is no career pathway, no structured system of advancement. As the courses they teach have no ongoing funding provisions, they have no guarantee of onÐgoing employment. the teacher' a new field in repsonse to new petency based traing and opt foa discourse ofrriculum will provide. 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