We recently reviewed the report from The National Trend of School Refusal and Related Matters inquiry, conducted by the Australian Senate’s Education and Employment References Committee, chaired by Senator Matt O’Sullivan. Launched in October 2022, this inquiry explored the rising trend of school refusal and its impacts on students, families, schools, and the broader educational landscape.
Stakeholders were invited to provide input to clarify the complex drivers of this issue, including its implications for educational outcomes and mental health. MissingSchool participated by providing a written submission and presenting in person at the Senate Committee’s invitation. The final report, released in August 2023 on the Australian Parliament House website, contains six chapters that offer a comprehensive analysis of this important topic.
To help you quickly familiarise yourself with the report, we are summarising Chapters 2 to 6 in this blog series (Chapter 1 covers the inquiry’s purpose and scope). We hope these summaries will help guide you to the chapters and sections you may wish to explore in more detail on the report’s webpage sidebar. At the end of the summary below, we have included the full references used from the original report for Chapter 4.
Chapter 4: Addressing school refusal: the need for a national approach
Overview
4.1: Addressing school refusal is hindered by the lack of a nationally consistent approach, missing national standards for data collection, sharing, and reporting on school refusal and student engagement, and an absence of a robust evidence base for effective interventions.
4.2: The committee heard calls for a national focus on school refusal and improved data and research to build a strong evidence base.
A National Focus on School Refusal
4.3: Inquiry participants emphasised the need for a coordinated national approach to school refusal.
4.4: Save the Children, 54 reasons, and Associate Professor Glenn Melvin of Deakin University advocated for a national approach involving collaboration across government levels and sectors, including education and health.
4.5: Melbourne Graduate School of Education Disability Research Collaboration (MGSE DRC) argued that while school refusal currently falls under inconsistent state and territory jurisdiction, it is a “national epidemic.” Associate Professor Lisa McKay-Brown highlighted the need for a national framework similar to existing wellbeing frameworks.
4.6: MGSE DRC recommended a national approach with investment in evidence-based interventions within a multi-tiered system of support to address school refusal.
4.7: A national approach could improve collaboration. Associate Professor McKay-Brown noted experts are dispersed and disconnected. She and Dr Matthew Harrison of MGSE DRC noted a national approach would improve cross-sectoral connections and information sharing.
4.8: Some participants suggested national guidelines for specific student groups, such as gifted students, similar to the Disability Standards for Education 2005 (Mrs Melinda Gindy of Australian Association for the Education of the Gifted and Talented (AAEGT)).
4.9: Some submissions recommended linking school refusal strategies to a broader national focus on student wellbeing (Save the Children and 54 reasons).
4.10: Ms Julie Birmingham, Acting Deputy Secretary with the Australian Government Department of Education highlighted the Productivity Commission’s call for a national focus on student wellbeing.
4.11: Several submissions stressed importance of localised flexibility within a national framework.
Data and Research to Support a National Evidence Base
4.12: There was broad agreement on the need to improve data collection, sharing, and reporting for school refusal and student engagement. Participants also highlighted the need for a stronger evidence base to support effective intervention.
Data Collection, Sharing, and Reporting
Data Collection
4.13: Participants pointed out the current inability to measure school refusal levels and to measure COVID-19’s impact on school refusal due to a lack of standardised data (Dr Greg Elliot, Beyond Blue, Ms Julie Birmingham).
4.14: Submitters argued that improving data on school refusal should be a national initiative, requiring a consistent definition and guidelines for tracking absences across states and territories (Western Australian Council of State School Organisations, School Can’t Australia, Mr. Andrew Pierpoint, Dr. Stephen Stathis). Ms. Megan Gilmour of MissingSchool suggested creating national absence codes to enable detailed data breakdown at school, state, and national levels.
4.15: As noted in Chapter 2, education authorities indicate that absence codes specifically for school refusal are uncommon.
4.16: The need for a national definition of school refusal and standardised data collection was emphasised (The Autistic Realm Australia, Yellow Ladybugs Australia, School Refusal Clinic, Carers ACT, Brotherhood of St Laurence). Ms. Megan Gilmour of MissingSchool suggested creating national absence codes to enable detailed data breakdown at school, state, and national levels.
4.17: Parents noted limited options for reporting school refusal, with one parent highlighting that absence codes merge school refusal with other illness-related absences.
4.18: Some parents called for attendance data to better reflect partial attendance, time on school grounds, or time in the office but not in class
4.19: Professor McKay-Brown suggested using tools like the School Non-Attendance Checklist for a nuanced understanding of non-attendance.
4.20: The Australian Education Research Organisation (AERO) is currently reviewing national attendance reporting standards and systems.
4.21: Participants also requested data that can be broken down by socio-economic status, gender, disability, mental health, First Nations status, and other demographic factors.
4.22: While supporting improved data collection, some emphasised careful language use to prevent adding stigma to school refusal and highlighted the need to educate families on reporting accurately (Ms. Kamla Brisbane, Carers ACT; School Can’t Australia; Professor McKay-Brown).
4.23: Some participants recommended improved student wellbeing data collection at a national level (Save the Children and 54 reasons).
4.24 – 5: Ms Rachel O’Connor, Assistant Secretary with the Department of Education highlighted positive collaboration across states, territories, and the non-government sector, including a recent wellbeing summit focused on student mental health. Ms. Birmingham added that the upcoming National School Reform Agreement would aim to address and improve data collection in this area.
Data Sharing and Reporting
4.26: St Joseph’s Flexible Learning Centre and others expressed frustration that limited data sharing between school sectors stresses students and hinders funding, suggesting improved sharing would allow schools to focus on student needs.
4.27: Mr Mark Breckenridge and Mrs Robyn Thorpe of the Australian Secondary Principals’ Association described the challenges in transferring critical information, particularly for students moving interstate.
4.28: Participants recommended public reporting of school refusal and wellbeing data, with annual updates to education departments and availability on platforms like the Department of Education and My Schools websites (TARA, Save the Children, 54 Reasons, School Can’t Australia).
4.29: Associate Professor McKay-Brown supported categorised publicly available data access for research purposes.
Unique Student Identifier (USI)
4.30: Some participants suggested that the USI could enhance data sharing and reporting for school refusal, e.g. when students move between schools and systems (Victorian Government).
4.31: Adjunct Professor Frank Tracey of Queensland Health endorsed better data tracking to follow vulnerable students who may change schools.
4.32: Ms Kira Clarke from BSL highlighted the importance of tracking young people who disengage from school to understand their pathways and support re-engagement through service and family connections.
4.33: Ms Julie Birmingham emphasised the USI would be instrumental in helping identify and track students at risk.
4.34: Professor Jim Watterston advocated for prioritising the USI to track student progression across various supports.
4.35: Ms Birmingham noted that delays in the USI rollout have been addressed, and Education Ministers have now piloted and agreed on a model for national implementation.
Box 4.1 Unique Student Identifier (USI) The USI is a national policy initiative under the National Schools Reform Agreement, supporting understanding of student progression and enhancing the evidence base through a unique identifier for each student from kindergarten to higher education.
Research to Strengthen the National Evidence Base
4.36: A range of participants emphasised the need for more research to build a national evidence base on school refusal. The Peter Underwood Centre noted a lack of school refusal research in Australia.
4.37: Participants called for research to better understand school refusal’s scope, causes, and effective support strategies (Catholic Education Diocese of Parramatta, Ms. Grantskalns of Independent Schools Australia, Save the Children, 54 Reasons).
4.38 Carers Australia called for research on flexible learning options, and Associate Professor McKay-Brown on early intervention and integrated health-education support.
4.39: Associate Professor Glenn Melvin stressed the need for research to evaluate the efficacy of interventions and educational settings for students experiencing school refusal.
4.40: Associate Professor McKay-Brown argued that the current lack of research hinders collaboration and sharing of successful intervention strategies.
4.41: Ms Grantskalns called for shared resources to support schools in implementing effective practices for school refusal.
4.42: Associate Professor McKay-Brown endorsed a national approach to school refusal data and research to facilitate cross-sectoral connections and provide insights into effective interventions.
4.43: The Centre for Community Child Health proposed a collaborative, evidence-based framework to address school refusal, including a literature review and mapping of national and international initiatives.
4.44 – 5: The Centre for Community Child Health advocated for a national, evidence-based framework on school refusal, supported by a literature review, mapping of global initiatives, and an implementation strategy for schools and families.
The National Trend of School Refusal and Related Matters
We recently reviewed the full report from The National Trend of School Refusal and Related Matters inquiry, conducted by the Australian Senate’s Education and Employment References Committee, and chaired by Senator Matt O’Sullivan. To help you quickly familiarise yourself with the report, we’ve summarised Chapters 2 to 6 in this blog series (Chapter 1 covers the inquiry’s purpose and scope).
Introduction: Parliamentary Library Article on School Refusal
Chapter 2 – School refusal in Australia
Chapter 3 – The impact of school refusal
Chapter 4 – Addressing school refusal: the need for a national approach
Chapter 5 – Addressing school refusal: other barriers and opportunities
Chapter 6 – Committee view
The References used in the full report for Chapter 4 summarised above are:
[1]See, for example, Carers Australia, Submission 142, p. 2; Catholic Education Diocese of Bathurst, Submission 60, [p.8]; Name Withheld, Submission 97, p. 7.
[2]Save the Children and 54 reasons, Submission 20, p. 3.
[3]Associate Professor Glenn Melvin, Submission 34, [p. 2].
[4]Melbourne Graduate School of Education Disability Research Collaboration (MGSE DRC), Submission 15, [p. 2].
[5]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[6]MGSE DRC, Submission 15, [pp. 1 and 2]. According to the MGSE DRC, Tier 1 should consist of universal evidence-based strategies that are part of the daily school experience for all students. Tier2 supports should be provided to the subset of students who require additional assistance, while Tier 3 supports, which are individualised and resource intensive, should be reserved for the most chronic and complex cases. In addition, Tiers 2 and 3 should focus on capacity building, with Tier1 supports being sufficient to support all students most of the time.
[7]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2 and Dr Matthew Harrison, Senior Lecturer, Learning Intervention, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p.3.
[8]Mrs Melinda Gindy, President, Australian Association for the Education of the Gifted and Talented (AAEGT), Proof Committee Hansard, 22 February 2023, p. 51.
[9]Save the Children and 54 reasons, Submission 20, pp. 3 and 4. See also, Professor Jennie Hudson, Director, Research, Black Dog Institute (BDI), Proof Committee Hansard, 22February 2023, p. 45.
[10]Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, p. 55.
[11]See, for example, Centre for Community Child Health, Submission 145, [p. 9]; ProfessorJennieHudson, Director, Research, BDI, Proof Committee Hansard, 22 February 2023, p. 45; Victorian Government, Submission 25, p. 5; MGSE DRC, Submission 15, pp. 2 and 3.
[12]See, for example, Queensland Catholic Education Commission, Submission 13, p. 2; Associate Professor Glenn Melvin, Submission 34, [p. 1]; Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, p. 55; BDI, Submission 5, p. 1; Beyond Blue, Submission 6, p. 2; MGSE DRC, Submission 15, p. 3; Brotherhood of St Laurence (BSL), Submission 57, p. 18.
[13]See, for example, Learning Creates Australia, Submission 161, [p. 1]; South Australian Commissioner for Children and Young People, Submission 56, p. 4; Ms Veronica Elliott, Executive Officer, ACT Council of Parents and Citizens Associations, Proof Committee Hansard, 22 February 2023, p. 16; MS Megan Gilmour, CEO and Co-founder, MissingSchool, Proof Committee Hansard, 22 February 2023, p. 23; Professor Jennie Hudson, Director, Research, BDI, Proof Committee Hansard, 22February 2023, p.45; Carers Australia, Submission 142, p. 3; Catholic Education Diocese of Parramatta, Submission 2, p.2.
[14]See, for example, School Refusal Clinic, Submission 17, [p. 5]; Associate Professor Glenn Melvin, School of Psychology, Deakin University, Proof Committee Hansard, 23 February 2023, p. 46; Ms Carolyn Grantskalns, CEO, Independent Schools Australia (ISA), Proof Committee Hansard, 22 February 2023, p. 1; Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, pp. 1 and 2; Western Australian Council of State School Organisations, Submission 7, p. 4; Association of Parents & Friends of ACT Schools, Submission 14, [p. 2]; Centre for Multicultural Youth, Submission 16, [p, 1]; Peter Underwood Centre, Submission 24, p. 14; Centre for Excellence CFW, Submission 32, p. 4; Children and Young People with Disability Australia, Submission 39, [p. 1].
[15]Dr Gregory (Greg) Elliott, Director, Wellbeing, Catholic Schools Parramatta Diocese, Proof Committee Hansard, 22 February 2023, p. 8.
[16]Beyond Blue, Submission 6, p. 2.
[17]Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, p. 55.
[18]Western Australian Council of State School Organisations, Submission 7, p. 3.
[19]School Can’t (School Phobia, School Refusal) Australia (School Can’t Australia), Submission 76, p.5.
[20]Mr Andrew Pierpoint, President, Australian Secondary Principals’ Association (ASPA), Proof Committee Hansard, 20 April 2023, p. 2.
[21]Dr Stephen Stathis, Clinical Advisor, Mental Health, Alcohol and Other Drugs Branch, Clinical Excellence Queensland, Queensland Health, Proof Committee Hansard, 20 April 2023, p. 25.
[22]Queensland Department of Education answers to written questions on notice, 27 June 2023 (received 21 July 2023); Northern Territory Department of Education, answers to written questions on notice, 27 June 2023 (received 21 July 2023); Catholic Education Tasmania, answers to written questions on notice, 27 June 2023 (received 27 July 2023); Catholic Education Northern Territory, answers to written questions on notice, 27 June 2023 (received 27 July 2023); New South Wales Department of Education, answers to written questions on notice, 27 June 2023 (received 28July2023).
[23]The Autistic Realm Australia (TARA), Submission 55, p. 9 and Yellow Ladybugs Australia, Submission 59, p.6.
[24]School Refusal Clinic, Submission 17, [p. 5]; Carers ACT, Submission 26, p. 4; BSL, Submission 57, p.18. See also, Mr Mark Breckenridge, Vice-President, ASPA, Proof Committee Hansard, 20April2023, p. 2.
[25]Ms Megan Gilmour, CEO and Co-founder, MissingSchool, Proof Committee Hansard, 22February2023, p. 23.
[26]See, for example, Name Withheld, Submission 67, p. 4; Name Withheld, Submission 90, [p. 4]; Name Withheld, Submission 92, [p. 1]; Name Withheld Submission 97, p. 5; Name Withheld, Submission 105, [p.4]; Name Withheld, Submission 152, [p. 3]; Name Withheld, Submission 102, p. 4; Name Withheld, Submission 114, [p. 5]; Name Withheld, Submission 67, p. 4; Name Withheld, Submission 63, [p. 3].
[27]Name Withheld, Submission 105, [p. 4].
[28]Name Withheld, Submission 152, [p. 3].
[29]Name Withheld, Submission 67, p. 4.
[30]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[31]Australian Education Research Organisation (AERO), answers to written questions on notice, 27June 2023 (received 14 July 2023). This work forms part of AERO’s current research project on student attendance for the Education Ministers’ Meeting.
[32]See, for example, School Can’t Australia, Submission 76, p.11; Centre for Multicultural Youth, Submission 16, [pp. 2–3]; Children and Young People with Disability Australia, Submission 39, [p.4]; TARA, Submission 55, p. 9; Yellow Ladybugs, Submission 59, p. 5; Intersex Human Rights Australia, Submission 28, p. 16.
[33]Ms Kamla Brisbane, Manager, Policy and Advocacy, Carers ACT, Proof Committee Hansard, 22February 2023, p. 40.
[34]School Can’t Australia, Submission 76, p.6.
[35]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[36]Save the Children and 54 reasons, Submission 20, p. 4.
[37]Ms Rachel O’Connor, Assistant Secretary, Student Engagement, Wellbeing and Closing the Gap, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22February 2023, p. 57.
[38]Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, p. 56.
[39]St Joseph’s Flexible Learning Centre, Submission 143, [p. 2].
[40]Mr Mark Breckenridge, Vice-President, ASPA, Proof Committee Hansard, 20 April 2023, p. 5.
[41]Mrs Robyn Thorpe, Board and Committee Member, ASPA and President, Northern Territory Principals’ Association, Proof Committee Hansard, 20 April 2023, p.5.
[42]The Autistic Realm Australia, Submission 55, p. 9.
[43]Save the Children and 54 reasons, Submission 20, p. 4.
[44]School Can’t Australia, Submission 76, p.5.
[45]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[46]See, for example, Carers Australia, Submission 142, p. 3; Victorian Government, Submission 25, p.5; Professor Jim Watterston, Dean, Melbourne Graduate School of Education, University of Melbourne, Proof Committee Hansard, 23 February 2023, pp. 44, 45 and 47; Queensland Catholic Education Commission, Submission 13, pp. 2 and 7.
[47]Adjunct Professor Frank Tracey, Health Service Chief Executive, Children’s Health Queensland Hospital and Health Service, Queensland Health, Proof Committee Hansard, 20 April 2023, p. 25.
[48]Ms Kira Clarke, Principal Research Fellow, Skills and Training, BSL, Proof Committee Hansard, 23February 2023, p. 19.
[49]Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, p. 59.
[50]Professor Jim Watterston, Dean, Melbourne Graduate School of Education, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 47.
[51]Ms Julie Birmingham, Acting Deputy Secretary, Schools Group, Australian Government Department of Education, Proof Committee Hansard, 22 February 2023, pp. 58–59. Ms Birmingham explained that the USI reform was originally agreed by the Council of Australian Governments in 2009. Implementation of a USI was included under the current National Schools Reform Agreement but progress was delayed by the COVID-19 pandemic, as well as differences of opinion about how the system should be rolled out.
[52]Australian Government Department of Education, Schools Unique Student Identifier (USI), 18May2023 and Australian Government Department of Education, Skills and Employment, National Unique Identifier (USI) for school students, 5 May 2021.
[53]See, for example, Children and Young People with Disability Australia, Submission 39, [p. 1]; Name Withheld, Submission 95, [p. 5]; Western Australian Council of State School Organisations, Submission 7, p. 3; Name Withheld, Submission 102, p. 4; Name Withheld, Submission 105, [p. 4]; Name Withheld, Submission 111, p. 4; Association of Parents and Friends of ACT Schools, Submission 14, [p. 2]; Centre for Multicultural Youth, Submission 16, [p. 1]; ISA, Submission 29, p. 9; Centre for Excellence in Child and Family Welfare, Submission 32, p. 4; Name Withheld, Submission 72, [p. 2]; Catholic Education Diocese of Parramatta, Submission 2, p. 2; Mrs Melinda Gindy, President, AAEGT, Proof Committee Hansard, 22 February 2023, p. 50; Carers ACT, Submission 26, p. 4; Parents of Trans Youth Equity NSW & Parents of Gender Diverse Children, Submission 130, p. 2; Association of Independent Schools of South Australia, Submission 11, p. 1.
[54]Peter Underwood Centre, Submission 24, p. 14.
[55]Catholic Education Diocese of Parramatta, Submission 2, p. 2.
[56]Ms Carolyn Grantskalns, CEO, ISA, Proof Committee Hansard, 22 February 2023, p. 1.
[57]Save the Children and 54 reasons, Submission 20, p. 4.
[58]Carers Australia, Submission 142, p. 4. See also, Carers ACT, Submission 26, p. 4; Meg & Tara, Submission 149, p. 15.
[59]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 1.
[60]Associate Professor Glenn Melvin, School of Psychology, Deakin University, Proof Committee Hansard, 23 February 2023, p. 44.
[61]Associate Professor Glenn Melvin, Submission 34, [p. 4].
[62]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[63]Ms Carolyn Grantskalns, CEO, ISA, Proof Committee Hansard, 22 February 2023, p. 6.
[64]Mr David Smart, Deputy Head, Senior Specialist Care, Canberra Grammar School, Proof Committee Hansard, 22 February 2023, p. 6.
[65]Associate Professor Lisa McKay-Brown, Chair, MGSE DRC, University of Melbourne, Proof Committee Hansard, 23 February 2023, p. 2.
[66]Centre for Community Child Health, Submission 145, p. 9.
[67]Centre for Community Child Health, Submission 145, p. 9.
[68]See, for example, Name Withheld, Submission 116, [p. 13]; Raise Foundation, Submission 147, [p. 4]; Peter Underwood Centre, Submission 24, p. 14; School Can’t Australia, Submission 76, p. 14; Centre for Child and Community Health, Submission 145, p. 9.
