2006/06: Should paying student union fees be made voluntary?
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Should paying student union fees be made voluntary?
What they said ...
'Poorer students will be hardest hit by VSU, as many will not be able to afford the full cost of services currently subsidized by student associations - such as counseling, childcare and advocacy'
Democrat Senator Natasha Stott Despoja
'Why is a single mother who is training to be a nurse paying for the canoeing club or the mountaineers?'
Federal Education Minister, Dr Brendan Nelson
The issue at a glance
On December 9, 2005, the Higher Education Support Amendment (Abolition of Compulsory Up-front Student Union Fees) Bill 2005 was passed in the Senate. The effect of this piece of legislation is that from July 1, 2006, no Australian university will be able to compel its students to pay union membership or fees.
The issue of whether student union fees should be voluntary has been vigorously debated in Australia over a number of years. The Federal Government's current majority in the Senate has enabled it to pass legislation abolishing compulsory union fees despite the opposition of all the minority parties.
Voluntary student unionism (VSU) is a policy under which membership of - and payment of membership fees to - university student organisations is not compulsory. VSU is therefore at variance with established practice at most universities, where membership of student organisations has been compulsory for almost all students.
Background
Although universities and student unions each have their own rules, students generally become a member of their campus student organisation automatically upon enrolment. A fee for student services or amenities is charged to students, typically once a semester or in a lump sum upon enrolment. This fee is typically collected by the university, which usually takes a portion in collection fees and passes the rest to campus student organisations, which then distribute the money according to their own rules.
(The following is a slightly edited version of the definition of student 'union', 'association' and 'guild' supplied in a Senate Committee review of the voluntary student unionism legislation.)
In general, it is claimed, the term 'union' refers to a student services organisation,
which, although run by a student elected board, is often professionally managed, usually by a chief executive officer who is a member of the Australian Campus Union Managers Association (ACUMA). They commonly license or contract services through commercial and retail outlets.
'Student associations', including bodies commonly known as SRCs (for Student
Representative Council), are the organisations most frequently associated with
university political activity. Their main function, however, is to represent students in
dealings with university administrators. Their representatives sit on governing boards
and senates, and participate in a range of university governance bodies and
committees.
Student associations are the bodies which maintain student legal advice services to help students with academic appeals, as well as on matters which extend beyond disputes which students may have with the university about course progress and examination results.
Most of these associations are affiliated with the National Union of Students (NUS), which is a political lobby group with offices in the Melbourne Trades Hall. Some student associations, however, also run services which in many other universities are run by unions, including student counseling services.
Finally, 'guilds' are bodies, found mainly in Western Australia and Queensland, which combine the functions of unions and student associations. They may be a characteristic of newer and smaller universities, although UWA, nearly a
century old, has a guild structure. Some organisations, including that at RMIT, follow
a guild structure but call themselves unions.
Internet Information
Wikipedia, the free on-line encyclopedia, has a detailed article treating voluntary student unionism. This includes a consideration of the arguments for and against the new legislation and an account of the positions adopted by the various stakeholders in this issue.
The Wikipedia issue dealing with voluntary unionism can be found at http://en.wikipedia.org/wiki/Voluntary_Student_Unionism
In August 2005, the Senate Employment, Workplace Relations and Education Legislation Committee prepared a majority and a minority report on the Federal Government's Provisions of the Higher Education Support Amendment (Abolition of Compulsory Up-front Union Fees) Bill 2005.
The majority report favours VSU, the minority report opposes it. Between the two reports, the cases for and against VSU are thoroughly canvassed. These reports can be found at http://www.aph.gov.au/Senate/committee/eet_ctte/highed_unionfees/report/report.pdf
The Young Liberal Organisation supports VSU. Their arguments in support of their position can be found at http://www.younglibs.org.au/media/articles/2005_Abolishing_Compulsory_Student_Unionism.pdf
In March 2005 the Federal Minister for Education, Dr Brendan Nelson, issued a media statement outlining his government's reasons for introducing legislation for VSU. This media release can be found at http://www.dest.gov.au/Ministers/Media/Nelson/2005/03/n1062150305.asp
In its January-February 2005 issue, Quadrant magazine published an editorial considering various aspects of tertiary education in Australia. The second half of the editorial is an argument in favour of VSU. This can be found at http://www.quadrant.org.au/php/editorial.php
The Flinders University Union Internet site contains a detailed presentation of its reasons for opposing VSU and a defence of the services it currently provides to students. This article can be found at http://www.fuu.edu.au/VSU/vsu.htm
In March 2005 Monash University's Internet site published an article outlining vice-chancellor Professor Richard Larkins' opposition to VSU. This can be found at http://www.monash.edu.au/news/newsline/story.php?story_id=335
In August 2005 the University of Sydney Internet site presented information about a publication defending compulsory student union fees. This article can be found at http://www.usyd.edu.au/news/84.html?newsstoryid=633
In April 1999 the World Socialist Website published an article by Laura Mitchell titled, 'Australian students protest against "voluntary student unionism" legislation'. The article is opposed to VSU, primarily because it sees it as politically motivated. It can be found at http://www.wsws.org/articles/1999/apr1999/vsu-a03.shtml
Arguments in favour of voluntary student unionism
1. Students have been required to contribute toward non-academic services and facilities they may never use
It has been claimed that students should not be forced to subsidise services they do not need and will never use. One example sometimes quoted is the wide range of specialist sporting interests which is compulsorily supported by the entire student body via union fees. In a recent opinion piece published in Quadrant, it was claimed, 'there are many students who object to being forced to contribute to the "rugger buggers", that is the sporting teams and sporting facilities of various kinds which cater for a minority of students and in which many (probably the majority) have little or no interest. Perhaps swimming pools and gymnasia enjoy general support - the rest are an irritation.'
Another illustration of the same point has been made in the literature put out by both the Young Liberals and the Minister for Education, Dr Brendan Nelson. They each argue, 'Why is a single mother who is training to be a nurse paying for the canoeing club or the mountaineers?'
2. Part-time and external students are also currently required to contribute toward non-academic fees and services
It has been noted with disapproval by some critics of compulsory student unionism, that these fees are currently required of all students, irrespective of the use they are likely to make of services partially funded through student unions fees.
The Young Liberals Organisation has noted, 'Part-time students and external students, who may never set foot on a campus, are ... required to pay compulsory fees for services they do not use.'
The situation with regard to these two sets of students is seen as particularly inequitable. One part-time student commenting on an Internet forum noted, 'My problem with student union fees is this: I attend Sydney Uni two hours a week for lectures. I work full time. I have no interest in the uni social set or sport. I don't need any student services because I'm not disabled, a homosexual ... in need of childcare, in need of friends or in need of study help. I already pay taxes to help support disadvantaged people and do my bit for society. Why should I pay another "tax" to support services I do not use? On a cost benefit analysis, this money does nothing for me.'
3. Compulsory student union fees disadvantage low income students
It has been claimed that because student union fees are charged without taking into account the individual student's capacity to pay, they impact most heavily on low-income students. This claim has been made by the Young Liberals who have stated as part of their case against compulsory student unionism, 'Australian students currently pay between $100 and $590 a year in union fees as a condition of enrolment. These fees are unconnected to students' academic courses and are charged with no regard for their ability to pay.' The Young Liberals have further claimed that the consequence of this is that 'Many low-income students are deterred from university study or cannot complete their study due to the imposition of these up-front fees.'
Those opposed to compulsory unionism claim that is does not act to the advantage of students who could not otherwise afford the extra-curricular services that the unions fund, because these students are paying high union fees to effectively subsidize other students in the use of facilities that these less wealthy students may never wish to use.
4. Student union officers have received a range of benefits that are compulsorily paid for by students
Critics of compulsory student union fees argue that much of this money is not used to the benefit of the vast majority of students. Instead, they claim, some of this money is used to benefit student union officials. The Federal Education Minister, Dr Brendan Nelson, has stated, 'Student union representatives regularly claim that compulsory fees fund services. However they do not mention the facilities, allowances and air travel for student union officers which are also funded by fees. Many students who are forced to pay these fees would not even realise their money is being used to fund these activities.'
5. Under the new legislation students will still be able to pay union fees if they wish to do so
Defenders of voluntary student unionism claim they are not trying to destroy student unions, nor the services they provide. The Young Liberals organisation has argued, 'The good news for all students is that, if they choose to do so, they will still be able to pay fees to university unions. There is no law banning any Australian student from making a contribution to a student union ...
A recent survey commissioned by the University of Adelaide (see link below) found that 84% of University of Adelaide students supported paying student union fees ... If the finding is correct it demonstrates that, given choice, many students would still be willing to pay for the services they consume at university. So, this is good news for the 84% of students who would be willing to support services, and even better news for the 16% of students who will no longer be forced to pay up to $590 in up-front fees every year for services they don't consume.'
6. Student union political activities are not representative of the views of the majority of students
It has been frequently claimed that compulsorily acquired student union fees are being used to promote political causes not supported by a majority of students. In an editorial published in Quadrant in January-February 2005, it was noted, 'The political activities of the student unions raise ... important issues. This is because they have since the sixties become centres of extreme left activism which habitually apply to nefarious causes the funds contributed willy nilly by the mass of students, who do not take much interest in their politics, being too concerned with study and learning, and do not bother to vote in their elections. Opposition to the extremist activities of the university unions grew stronger as their abuses became more egregious.'
7. Student unions have not managed students fees responsibly
It has been claimed that student union officers are generally amateurs who are not capable of properly administering the enormous funds put in their hands through the payment of compulsory student union fees. On March 16, 2005, the Federal Education Minister, Dr Brendan Nelson criticised the apparent financial incompetence of those who administered the funds of the University of Melbourne's student union. Dr Nelson observed, 'The Melbourne University union, which had a revenue of $14 million a year, went into receivership and bankruptcy in a $44 million deal.'
8. Student unions are not genuinely accountable for how student fees are spent
It has been claimed that because students cannot chose to withhold their fees if they believe they are being inappropriately spent there is no effective control over how student union money is managed and used.
Alistair Campbell, a 15 year old Sydney high school student who describes himself as 'conservative' has stated, 'Taking away [the] ... right to abstain is taking away a primary right to choice and freedom of association. By introducing VSU, it will be run more like a business and less like a left-wing welfare agency. If membership goes down, it is simply displaying the fact the union has not catered to students' needs. The situation under the current system means student unions can take members for granted, knowing that students have no choice in paying the fee, whether they support the union or not.
Arguments against voluntary student unionism
1. The move against compulsory student unionism is politically motivated
It has been argued that the federal Liberal Government is opposed to compulsory student unionism because many student unions support very different political positions to those supported by the current government. This point was made in an opinion piece published on the World Socialist Website in April 1999. The author of the piece, Laura Mitchell, states, 'VSU has been a pet project of Liberal student clubs and of elements within the parent Liberal Party for well over two decades. Liberal hostility to student unions and associations was provoked by the radicalisation of young people during the late 1960s and early 1970s, which saw active support for Labor Party and left-wing student clubs, the election of "left" leaderships in campus elections and the formation of a national student union ... In 1994 when VSU was introduced in WA and Victoria, a Liberal party briefing document stated: "We do not want compulsory student monies flowing out to anti-Kennett and anti-Coalition (Liberal-National Party) campaigns and other fringe activities of the hard left."'
2. Student unions provide services that the vast majority of students need
Most student unions have vigorously maintained that the bulk of student union fees are spent providing services used by a majority of students. Typical of these claims are those made by the student union at Flinders University which has listed the services which it provides to students. These include: activities such as free barbeques, fair days, O'Week, O'Ball, and live band nights; services such as a CD listening service, a needle exchange program, free condoms, cheap movie tickets, a second hand book outlet, physio and massage rebates, BBQ hire, subsidised short leisure courses, locker hire, cheap faxing and photocopying; the Parent Centre / Vacation Care program (which cares for several dozen children aged between 0 and 5 years); the Orientation Program; the Student Diary; support services such as financial counselling, emergency loans, tax return assistance, accommodation assistance, advocacy and assistance with Centrelink and information on community services (including referrals if necessary); the student employment service, which finds over 5,000 part time and casual jobs for students each year; subsidised food and beverage products and subsidised retail outlets.
3. Student unions act as a voice for the student body
It has been claimed that student unions act as a valuable voice representing the interests of students with university administrations and others. An article published on the Sydney University Internet site described a publication outlining the nature of the advocacy services student unions provide. This included the following, 'Where do you go as a student if you are suddenly homeless, have problems with Centrelink payments or need help to appeal a university decision?
As university life becomes an increasing struggle for many students who are trying to juggle work and study, the SRC (Students' Representative Council) is the only body that can provide independent advice, advocacy and representation for students. These services are fully funded by universal student unionism.
Under the Federal Government's proposed Voluntary Student Unionism (VSU) legislation, the essential services provided by the SRC to all undergraduate students will be lost. These services include advocacy and advice on academic appeals; Centrelink and tenancy problems and legal advice ...
Many students don't think they need the help of the SRC until they find themselves in trouble.'
4. Voluntary student union fees would dramatically reduce the funding used by the unions to provide services and representation
A number of student unions have claimed that voluntary student union fees will dramatically reduce the money they have available to provide services for students.
The Flinders University Union has stated, 'The Flinders University Union, like the other five student organisations at Flinders University, currently receives a substantial amount of its annual income from the SSF.
Specifically, the Union receives approximately $1.3 million worth of fee income each year. Once VSU is introduced, the Union will no longer have access to this level of income, and will no longer be able to provide some of the services it currently funds with this fee income.'
The President of the Monash University Gippsland Student Union, Sean McLoughlin, has claimed that if the legislation is introduced it will kill the university community. 'If student associations don't have the capacity to guarantee a source of funding then we can't survive. This would be a terrible outcome for the students and the community as a whole.'
5. The diversity and interest of university life would be diminished if student unions are undermined
It has been stressed by supporters of compulsory student union fees that these fees contribute toward the support of a wide range of cultural and extra curricular activities which are a vital element of university life and which may well become unviable under voluntary student unionism. This point was made by Monash University vice-chancellor, Professor Richard Larkins, who claimed, 'We believe the educational experience for students is much more than lectures, books and the internet. University life is about broadening experiences from social interactions, sporting pursuits and activities in clubs and societies. We find it disturbing that these activities are threatened by the government's stance on voluntary student unionism.'
6. Undermining student unions will particularly disadvantage less well-off students and country students
It has been claimed that those students likely to be most disadvantaged by the introduction of voluntary student union fees are those who are less wealthy and those who study in country regions. This point has been made by the Democrat Senator Natasha Stott Despoja, who has stated, 'Poorer students will be hardest hit by VSU, as many will not be able to afford the full cost of services currently subsidized by student associations - such as counseling, childcare and advocacy. These services are particularly important in regional and rural areas, where student organisations may be the only organisations providing them.'
According to this line of argument, if university union services are undermined, only those students who can afford to pay independently for the services they need will not suffer. Further, in some country areas in has been claimed that such services are simply not available if not provided by student unions.
7. Without compulsory fees all students will benefit from what is paid for by only some students
It has been claimed that if, as the Federal Minister for Education, Dr Brendan Nelson has suggested, some 84 percent of students do in fact continue to pay student union fees then the consequence of this will be reduced quality and range of services for all students as the funding for such services will have been reduced by at least 16 percent. It has also been noted that from an equity point of view such a development would be inappropriate as it would mean that some 16 percent of students would be able to access services which they had not contributed toward funding.
If the number of students who continued to pay for services were to be significantly less than 84 percent then the inequity would be even greater with a higher percentage of students accessing diminished services without having contributed toward the establishment and maintenance of these services.
This point has been made by Eliza Muldoon of the University of New South Wales. Ms Muldoon has stated, 'I am ... currently co-convenor of the Postgraduate Board at UNSW, representing/ coordinating/ negotiating on behalf of postgraduate students throughout the university. I have found university management and departments responsive to students concerns and suggestions and I have come to further value student associations' essential role in the university structure. The argument that people should have the option not to pay for such representation opens the door for "free riding" on a massive scale. Would those students that don't pay a voluntary fee be refused access to free software that their student representatives may have negotiated? Should they be denied benefits of the improved supervision practices? Should they be refused access to new training, resources and infrastructure negotiated on their behalf? Should meetings with senior management only discuss the interests of paying students?'
8. Inefficiencies in student union administration can be addressed without making fee-paying voluntary
Finally, it has been claimed that student union financial mismanagement is a separate issue from whether student union fees should be compulsory. According to this line of argument, it would be possible to introduce additional auditing procedures or require the appointment of professional finance managers without making the payment of student union fees voluntary.
Further implications
Australian universities, as represented by the Australian Vice-Chancellors' Committee (AVCC), have generally been in support of universal membership and compulsory fees for student organisations for a number of reasons. Firstly, they prefer to leave service provision in the hands of students; secondly, the activities associated with campus organisations are an attractive feature to students; and thirdly, they view student political bodies as valid representative bodies.
VSU could potentially require universities to provide many of the services currently associated with student organisations. Universities appear to prefer to leave service provision to student organisation so that they are saved the financial and other burdens associated with the role. It is possible, especially given the finacial pressures they are currently facing, that universities will not adequately supply these student services should they now be required to accept principal responsibility for them.
Concern has also been raised that student support services, an attractive feature for international students, upon whom universities rely heavily for financial support, will be diminished under VSU. The Howard Government has stated that the Education Services for Overseas Students Act will still allow compulsory fees to be charged to international students in order to pay for student amenities and services.
It is interesting that the federal government appears to have no objection to overseas students being compelled to pay services fees. This adds support to the suggestion that the Government is not so much concerned about the complusory nature of such fees as what they are used to finance.
It remains to be seen whether, without the compulsory fees currently being paid by Australian students, it will be possible to supply any students, overseas or otherwise, with the level of service they presently enjoy.
Virtual Vertical File
(Newspaper items cached by the newspapers themselves, or by search engines or other third parties. Click entries to see if they are still available)
The Australian, 28/12.2005 - Comment by Janet Albrechtsen: 'An excellent year for conservatives and the country'
The Age, 14/12/2005, comment by James Norman: 'Ideals fall to ideology in student union shift'
Sydney Morning Herald, 14/12/2005, comment by Sunanda Creagh, 'It's curtains for 2005'
The Australian, 12/12/2005, comment by Glenn Milne, 'PM drunk on power'
Newcastle News, 20/12/2005, comment by LARISSA MEIKLE, Services could disappear
Brisbane Courier Mail, 7/1/2006, news item, 'Student fee laws 'curtains' for cinema'
Sydney Morning Herald, 23/12/05, analysis by Deborah Snow, 'The evolution of Brendan Nelson'
Herald-Sun, 12/12/2005, editorial, 'New era at uni' (NOTE: scroll down to the SECOND editorial on the page)
Adelaide Advertiser, 9/1/2006, news item by SEAN FEWSTER,
'Uni fights to keep sport'
Hobart Mercury, 11/1/2006, news item by Anne Mather, Uni to prop up student unions
The Australian, 21/12/2005, by Dorothy Illing and Michael McKinnon,
'Unis under pressure to fill fees gap'
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Newspaper sources
AUST, October 13, page 12, comment (with cartoon) by Michael Yabsley, `Campus elites deserve no subsidies'.
AUST, October 10, page 3, news item by M McKinnon, `VSU may force out deprived students'.
AUST, October 15, page 10, news item by L Macnamara, `"Mess" at unis over VSU plan'.
AUST, October 14, page 3, news item by L Macnamara, `Melbourne Uni blames VSU delay for compulsory fees'.
H/SUN, December 15, page 21, comment by Senator Steve Fielding, `We didn't do a deal for our VSU vote'.
AGE, December 14, page 21, comment by James Norman, `Ideals fall to ideology in student union shift'.
AGE, December 14, page 20, editorial, `From VCE to VSU: pity tomorrow's students'.
AUST, December 13, page 2, news item by Bockman and Maiden, `"Tax offer for VSU vote"'.
AGE, December 13, page 8, news item by Rood and Green, `Unis gear up for student service cuts'.
H/SUN, December 12, page 18, editorial, `New era at uni'.
H/SUN, December 12, page 12, news item by G McManus, `Fielding security tightened'.
AUST, December 12, page 9, editorial, `VSU, well overdue'.
AUST, December 12, page 8, comment by G Milne, `PM drunk on political power'.
AUST, December 12, page 2, news items by Karvelas and McNamara, `Joyce slams Fielding claim over VSU deal / Students split on unions law'.
AUST, December 10, page 1, news item by S Maiden, `PM steals victory on uni fees'.
AGE, December 10, page 1, news item by D Wroe, `PM has win on student unions'.
AUST, December 9, page 1, news item by S Maiden, `Barnaby attacked over uni law delay'.
AGE, December 8, page 6, news item by D Wroe, `(Senator Barnaby) Joyce vows to block uni bill'.
AUST, December 7, page 1, news item by S Maiden, `Grants carrot for VSU support'.
AUST, December 5, page 1, news item by S Lewis, `Nelson's uni fee vote for students'.