NON-STATE ACTORS IN EDUCATION
2.2 Non-state education provision
3.1 Regulations by distinct levels of education
- Early childhood care and education (Entry/Establishment ○ Financial operation ○ Quality of teaching and learning ○ Equitable access ○ Quality assurance, monitoring and accountability)
- Primary and secondary education (Entry/Establishment ○ Financial operation ○ Quality of teaching and learning ○ Equitable access ○ Quality assurance, monitoring and accountability)
- Tertiary education (Entry/Establishment ○ Financial operation ○ Quality of teaching and learning ○ Equitable access ○ Quality assurance, monitoring and accountability)
3.3 Supplementary private tutoring
The 2012 Education Act (which governs all education levels from early childhood to tertiary education in the Cook Islands) defines a “private educational institution” as an “educational institution other than a government educational institution or an internationally recognized university”. The managers of these institutions are referred to as “incorporated bodies” or “persons who control and manage the institution”.
2.1 State education provision
State schools
Most education at primary (6 years, ages 5 – 10) and secondary level (7 years, ages 11 – 17) in the Cook Islands is provided by state schools, which are owned, governed and funded by the Ministry of Education (MoE), with School Committees (comprised of parents, teachers, students, and community members) responsible for each school’s administrative management. In 2020, there were 31 schools in the Cook Islands, 23 (74%) of which were owned by the state, covering 80% of total enrolments on the islands. The majority of schools are so-called area schools, which provide education from early childhood (ages 3 – 4) to secondary level, with the highest enrolments in the island of Rarotonga (considered the main island of state). According to the 2012 Education Act, the state is obliged to provide free and compulsory education from the ages of 5 – 16 to all residents of the Cook Islands (provided with free education up to the age of 18), with foreign nationals subject to different fee structures. Senior secondary education (Grades 11 – 13) is available in the majority of islands, with some students from the southern or northern group islands provided with government assistance in the form of Pa Enua (Outer Island) Students’ Education Assistance Grants (covering transport costs and personal allowances) to continue their education in a different island.
The MoE has additionally established a few satellite schools in small islands and isolated villages (in the Southern Group islands) that operate under the administration of a larger, more central state school. These schools offer early education to small groups of children (usually less than 15 students), with older students commuting to the central school on a daily basis through government-provided transport.
Non-state managed, state schools
No information was found.
Non-state funded, state schools
No information was found.
2.2 Non-state education provision
Independent, non-state schools
No information was found.
State-funded (government-aided), non-state schools
Private schools are non-state schools which are owned, managed and operated by faith-based institutions and private providers, and individually governed by School Boards (comprised of parents, teachers, community members, and students). In 2020, there were 8 private schools in the Cook Islands (accounting for 20% of total enrolment), consisting of 5 church schools and 3 so-called independent schools, with no private schools in the Northern Group islands. The definition of “independent school” in government sources appears to refer to schools that are not affiliated with any particular ideology or religion, which is different to the definition of “independent” within these profiles (which focuses on independent funding). Out of the 3 independent schools, one only covers early childhood education level and another is an adult inclusive education centre (with only 1 independent school covering compulsory education levels). There is also 1 international school, which mainly caters to children of diplomats, NGO staff, or multinational corporation executives. The international school follows a curriculum standard based on the New Zealand standard and includes internationally accepted accreditation and examinations. While these schools are partially funded by student fees, all private schools additionally receive 100% of the equivalent government funding allocated to state schools to cover teacher salaries and operational costs based on each school’s enrolment. Similar to state schools, private schools are required to follow the national curriculum and offer instruction in both official languages of the Cook Islands, Māori (the indigenous language) and English (the international language).
Contracted, non-state schools
No information was found.
2.3 Other types of schools
Homeschooling
According to the 2012 Education Act, homeschooling is legal in the Cook Islands with parents allowed to apply to the Secretary of Education for exemption from compulsory school attendance (if the education received at home is considered equivalent to formal schooling). In addition to legalizing homeschooling, the MoE has developed an alternative e-learning online program known as Te Kura Uira, that allows teachers or tutors on the main island to teach the national curriculum to groups of students in multiple other islands through the use of video and audio conferencing.
During the global COVID-19 outbreak, the MoE published several documents on Learning During COVID-19, which included both home and school recommendations, as well as the Ministry’s COVID-19 Education Response Framework.
Market contracted (Voucher schools)
No information was found.
Unregistered/Unrecognized schools
No information was found.
The Cook Islands are comprised of 15 islands (with two thirds of the population residing on the island of Rarotonga). The education system from early childhood to tertiary level (including state and non-state institutions) is centrally governed and regulated by the Ministry of Education (MoE), with strong links to the New Zealand education system. According to the 2020 Statistics Report reporting the Governance, Management and Planning Policy 2016 “the Ministry of Education (MoE) is responsible for direct provision of education by government, as well as the regulation of education services provided by private providers and non-government organisations. It is responsible for translation of the vision for education as contained in the Education Master Plan (EMP) into policy.”
The Cook Islands Administrative Guidelines apply to: All Governing Bodies who are responsible for the management of schools in the Cook Islands and all state and private schools with students enrolled from pre-school to Form 7.”
Vision: According to the 2016 Communities, Partnerships and Communication Policy, the government strongly encourages “creative and dynamic partnerships” between families, community groups, non-government organisations (NGOs), commercial enterprises, and international partners in the provision of education as, in the government’s view, “a high-quality education sector cannot be built by (the) government alone”. This view is additionally reflected in the Learning for Life Cook Islands Education Master Plan 2008–23 and the MoE Statement of Intent 2020-23, which aim for “increased participation” and “involvement” of communities in education provision and management, as well as “expansion of partnerships across a range of education providers”.
3.1 Regulations by distinct levels of education
Early childhood care and education (ECCE) in the Cook Islands mainly covers ages 3 – 4 and while not compulsory, remains government-funded from the age of 3 years and above and integrated within existing primary and secondary schools. In 2020, there were 19 state schools and 6 private schools (4 of which are run by faith-based organizations) with integrated ECCE centres (Apii Potiki), with only one private (non-religious) stand-alone ECCE centre. The highest enrolments in ECCE are in state schools, which cover 66% of total enrolments in the islands (with most ECCE provision in the island of Rarotonga). ECCE is regulated by the MoE through the 2012 Education Act.
Registration and approval: See Multi-level regulations.
License: See Multi-level regulations.
Profit-making: No information was found.
Taxes and subsidies: See Multi-level regulations.
Quality of teaching and learning
Curriculum and education standards: All ECCE centres in the Cook Islands (state and private) are required to follow the 2011 Te Kura Apii a te Tamariki Potiki o te Kuki Airani (Cook Islands Early Childhood Education Curriculum), which is a play-based curriculum designed for children aged 0 – 4 that focuses on identity, communication, inquiry, involvement, and contribution. These focus areas are similarly developed in the Early Childhood Curriculum Statement as part of the Cook Islands Curriculum, which early learning providers are similarly required to comply with. The MoE encourages all ECCE centres to use the Cook Islands Māori language as their language of instruction.
Teaching profession: See Multi-level regulations.
Fee-setting: See Multi-level regulations.
Admission selection and processes: See Multi-level regulations.
Policies for vulnerable groups: See Multi-level regulations.
Quality assurance, monitoring and accountability
Reporting requirements: See Multi-level regulations.
Inspection: All ECCE classrooms (state and private) are inspected based on the Early Childhood Education Observation Guidelines checklist and ECCE Compliance Checklist. See Multi-level regulations for more information on inspections.
Child assessment: Assessments in all ECCE centres (state and private) mainly involves child observation of behaviour and learning as well as quality interaction that is linked to the curriculum goals set in the Te Kura Apii a te Tamariki Potiki o te Kuki Airani.
Sanctions: See Multi-level regulations.
Registration and approval: See Multi-level regulations.
License: See Multi-level regulations.
Water, sanitation and hygiene (WASH): WASH: The Cook Islands Education Guidelines require all educational institutions to develop a Health and Safety Policy that provides a safe and healthy learning environment for their students and complies with basic hygiene standards.
Profit-making: No information was found.
Taxes and subsidies: See Multi-level regulations.
Quality of teaching and learning
Curriculum and education standards: According to the Cook Islands Education Guidelines, all primary and secondary schools (state and private) are required to follow the Cook Islands Curriculum which identifies 8 essential learning areas and skills that all schools should work to incorporate. The curriculum promotes the use of both Cook Islands Māori (promoting national identity) and the English language (as the second official language) as languages of instruction, ensuring every student is able to attain a high level of bilingualism. Any school that wishes to deliver a different curriculum is required to obtain written consent from the Secretary of Education based on the Alternative Curriculum Form (which may grant schools permission to provide alternative instruction for specific periods of time).
Textbooks and learning materials: No information was found.
Teaching profession: See Multi-level regulations.
Corporal punishment: Corporal punishment is prohibited in all educational settings in the Cook Islands (state and private) (Education Act 2012, Sect.109).
Other safety measures and COVID-19: No information was found.
Fee-setting: See Multi-level regulations.
Admission selection and processes: See Multi-level regulations.
Policies for vulnerable groups: See Multi-level regulations.
Quality assurance, monitoring and accountability
School board: As stated in the 2016 Communities, Partnerships and Communication Policy, the 2016 Governance, Management and Planning Policy, and the 2014 Guidelines for School Associations and Committees, the MoE places high value on the contribution of local communities, parents, teachers, and students in the governance of each school, encouraging participatory and accountable systems of education management. All schools are required to establish a School Association consisting of the school principal and representatives for teachers, parents, community members, and students, in addition to a School Committee (with at least 2 School Association representatives).
Reporting requirements: See Multi-level regulations.
School inspection: See Multi-level regulations.
Student assessment: All schools (state and private) in the Cook Islands use the New Zealand Qualification of the National Certificate of Educational Achievement as a standards-based national qualification to ensure a uniform and consistent assessment and evaluation system across the state.
Diplomas and degrees: See Multi-level regulations.
Sanctions: See Multi-level regulations.
In 2020, the tertiary education sector in the Cook Islands was made up of one technical and vocational institute (a government institute operating under the jurisdiction of the Cook Islands Tertiary Training Institute) and a Cook Islands campus linked to the University of the South Pacific (which offers mixed modality courses). As the Cook Islands is considered a member nation of the University of the South Pacific, the government provides financial contributions to the University as set by the University Grants Commission. The tertiary education sector is regulated by the 2012 Education Act (similar to all other education levels), which allows non-state actors to establish private tertiary education institutions on the islands.
Registration and approval: See Multi-level regulations.
License: See Multi-level regulations.
Profit-making: No information was found.
Taxes and subsidies: See Multi-level regulations.
Quality of teaching and learning
Curriculum and education standards: See Multi-level regulations.
Teaching profession: See Multi-level regulations.
Fee-setting: See Multi-level regulations.
Admission selection and processes: See Multi-level regulations.
Quality assurance, monitoring and accountability
Board: No information was found.
Reporting requirements: See Multi-level regulations.
Inspection: See Multi-level regulations.
Assessment: No information was found.
Diplomas and degrees: See Multi-level regulations.
Sanctions: See Multi-level regulations.
3.2 Multi-level regulations
The MoE regulates all educational institutions in the Cook Islands (state and private) from early childhood to tertiary level through the 2012 Education Act.
Registration and approval: The 2012 Education Act requires all non-state providers that plan to establish a private educational institution (from early childhood to tertiary level) to apply for registration with the MoE based on the prescribed form and accompanied by the application fee and any other additional information required. In the case of private schools from early childhood to secondary level, the MoE requires applicants to register the school as a private institution, whereas tertiary education providers must be registered with the Ministry of Education (MoE) as private tertiary education providers. Private educational institution can be established by an incorporated body or persons, which must additionally demonstrate through their application that the establishment of the proposed institution fills a need in the Cook Islands and meets minimum standards that are comparable to those required by the New Zealand Qualifications Authority.
License: If the Minister for Education is satisfied that the school or provider (as the case may be) meets the minimum criteria and fulfils an education need in the Cook Islands, they may register the school or the provider (conditionally or unconditionally) and issue the applicant a certificate of registration.
Taxes and subsidies: All registered private educational institutions in the Cook Islands receive 100% equivalent government grants to state institutions (from the national education budget) to cover costs in teacher salaries and operations (the exact amount of which is calculated based on enrolment). As a condition for receiving these grants, private educational institutions are required to be open to financial audit and educational review by the government (as well as any other conditions that may be imposed by the government upon registration).
Quality of teaching and learning
Curriculum and education standards: According to the 2019 Te Peu e te Akonoanga Māori Policy, the curriculum in all educational institutions in the Cook Islands (state and private) must encompass the overarching philosophy of Te Peu e te Akonoanga Māori, embracing traditional Cook Island values, cultural heritage and knowledge. Moreover, all institutions must place importance in developing students’ bilingual proficiency in both official languages, Māori and English.
Teaching profession: Teachers employed in private educational institutions are not covered under the ‘Teachers’ sub-section in the 2012 Education Act, which explicitly “applies only to teachers in government schools and prevails over the 2009 Public Service Act”. Only government schoolteachers are required to be registered with the Secretary for Education and have a formal teaching qualification (depending on the education level), with no such requirement for private school teachers. Private school teachers are similarly not covered under the 2014 Code of Conduct Policy (which only applies to ‘public sector’ employees).
Fee-setting: While private educational institutions are free to charge additional fees and conduct fund-raising activities, all fees and funds collected by each institution must be accounted for and audited by the MoE to demonstrate financial accountability (based on a financial management policy). Moreover, any fees levied must be used to meet the educational needs of the students and institutions concerned.
Admission selection and processes: According to the 2016 Equity, Access and Participation Policy, all educational institutions in the Cook Islands (state and private) must be accessible to the widest extent possible to all Cook Islanders, regardless of gender, ability, location, language, ethnic group or wealth. Moreover, specialized programs should be developed to increase the participation of under-represented groups.
Policies for vulnerable groups: According to the 2016 Equity, Access and Participation Policy all state and private educational institutions must ensure that all their educational buildings are accessible to people with disabilities.
Quality assurance, monitoring and accountability
Reporting requirements: All private educational institutions are required to develop on-going programs of self-review (reviewing their curriculum, programs, achievements, and strategic objectives), annual reports, and operational plans (detailing which actions have been taken each year to implement the institution’s strategic plan) in accordance with their Memorandum of Understanding with the Secretary for Education. Moreover, as a condition for receiving government grants, all private educational institutions are subject to financial audits and educational reviews by the government.
Inspection: The Ministry of Education (MoE) is responsible for monitoring the quality assurance of all educational institutions in the Cook Islands (state and private). The Planning, Policy and Review division is responsible for monitoring the performance of all registered private educational institutions in order to ensure that all registration conditions, guidelines, and regulations are being complied with based on a School Compliance Checklist. All educational institutions (state and private) are reviewed by MoE Review Officers on average once every two years based on an annual review schedule issued by the MoE, while all institutions are provided with a detailed checklist to prepare for each review. Schools that are reviewed are given monthly notice, while Review Officers have the right to enter and inspect the school premises and review any relevant documents.
Diplomas and degrees: All private educational institutions in the Cook Islands are required to apply to the Secretary of Education for approval to provide formal qualifications, and register all their formal qualifications with the Cook Islands Qualifications Authority (which is then included in the National Register of Qualifications). If any provider issues or offers to issue a formal qualification which has not been approved by the Secretary and registered with the Cook Islands Qualifications Authority, they will be liable upon conviction to a fine not exceeding 15,000 NZD (10,449 USD), while the Secretary may revoke the approval at any time if the conditions imposed are not complied with. The Council of International Schools (CoIS) is a non-profit association of international schools and post-secondary institutions that provides educational accreditation, teacher and leadership recruitment services, links to higher education, governance assistance and help with founding new schools.
Sanctions: If any private education provider or institution fails to comply with their conditions for registration, regulations, or minimum requirements, the Minister for Education may cancel their certificate of registration. While no information was provided on institutional closures following deregistration (as a sanction), the 2012 Education Act states that private providers must give the Minister notice if they intend to close the school. If any private school or private tertiary education provider is operating unregistered from the MoE, they will be liable upon conviction to a fine not exceeding 25,000 NZD (17,433 USD), and if the offence continues, a fine not exceeding 2,500 NZD (1,743 USD) for each day the offence continues. Finally, all registered providers are required to strictly comply with their conditions for registration, otherwise, they will be liable upon conviction to a fine not exceeding 15,000 NZD (10,460 USD) and if the offence continues, a fine not exceeding 1,500 NZD (1,046 USD) for each day it continues.
3.3 Supplementary private tutoring
While Te Kura Uira (the alternative e-learning program) allows teachers and tutors on the main islands to teach the national curriculum to groups of students in northern or southern island groups through video or audio conferencing, no information was found on private tutoring specifically.
No information was found.
Financial operation and quality
No information was found.
The 2009 Public Service Code of Conduct and 2014 Code of Conduct Policy do not have any regulation or provision regarding teachers providing private tutoring services in the Cook Islands.
