Select Committee on Education and Skills Minutes of Evidence


Examination of Witnesses (Questions 840 - 859)

WEDNESDAY 21 APRIL 2004

MR DAVID MILIBAND MP AND MR IVAN LEWIS MP

  Q840  Paul Holmes: Well, I think that was a constructive answer! The question of funding is more than just the technical issue of funding because funding drives policy. I met with the head of the LSC in Derbyshire last Friday, for example, and we were talking about this and obviously if you have a particular policy objective, it only works if the money follows it or the money is there to make it work. So, it is a fairly serious question. Looking at a slightly different aspect of this what many people out there would see as a lack of joined-up thinking and working by Government, the Department of Work and Pensions is, I think, the biggest single commissioner of adult training through its various New Deal and Jobcentre Plus and so forth programmes. Their stated intention when working with unemployed people is to get them to work as soon as possible because they work on the principle that the more weeks somebody is out of work, the less likely they are to get back to work. So, the whole emphasis is on a job, any job, in order to get the work skills rather than focusing on what training shortfalls there might be and that are needed. People who work in that sort of area say this is a big example of the lack of joined-up thinking between DfES objectives on the one hand and what the DWP are doing on the other hand. How are you overcoming that when you are looking at these reports?

  Chairman: Can we have a slightly shorter answer than the question.

  Mr Lewis: But he said he liked the answer! I will try my best, Chairman. You are absolutely right with the identification of the problem but again, give us credit for the solution. The National Employment Panel was asked to do a piece of work on this very issue. It has produced its report. The Chancellor announced in the Budget the New Deal for Skills and the New Deal for Skills is basically bringing together the role of the LSC and Jobcentre Plus making sure that we make sure that the funding of training and education courses is related to the needs of the labour market but also ensuring that Jobcentre Plus has a focus on sustainable employability, not just any employability, and, as a consequence of the National Employment Panel report, and the New Deal for Skills, what will happen is that there will be an alignment of the work that the LSC on the ground and Jobcentre Plus are doing in these areas. So, we have accepted the problem and we have identified the need to act. Of course, the challenge is getting the delivery right but we are now at least moving on to accept that the problem was there and to putting it right.

  Q841  Paul Holmes: Moving on to a different area, the whole thrust of Tomlinson is to try and get far more easy access into vocational education from 14 onwards and to try and create more of a parity between the two. There are lots of technical difficulties in that and I am just interested in how you are going to square the circle. For example, when I was still teaching, we had a very good City and Guilds course with GCSE equivalent level but the school had to scrap it because it did not register on the league tables, so we lost a really good vocational course because it would undermine league table positions. On Monday, we were talking about the Ofsted report on advanced vocational certificates of education saying that some of them were too academic and not vocational at all and that others were too vocational and not academic enough. I know from friends who teach advanced GNVQ that, over the last few years, the drive to make them more academic has lost, so my colleagues for the last couple of years say, all the vocational element that used to be there. How do you square the circle between academic rigour and the vocational point of these qualifications in the first place?

  Mr Miliband: I think the key is to ensure that the assessment system is fit for the purpose and it is often the assessment system that drives the so-called over-academicisation of some vocational courses. I know this is something that QCA are giving a great deal of attention to. I think it is also incumbent on us to ensure that equivalence and recognition is shown in our performance data. If you have a look at the draft guidance on this year's performance data, you will see how we are proposing to recognise vocational qualifications at 16 and beyond in that and I hope that recognises your point.

  Mr Lewis: With the Qualification and Curriculum Authority, and I think you met with Ken Boston and Mary Curnock-Cook last week, I think there is a real shift there in the priority and the commitment and the understanding that is now being given within that organisation getting the design of vocational qualifications right and I think that will make a real difference. As you probably know, they are engaged in a shake up of vocational qualifications in terms of creating more unitisation and credit transfer and therefore I believe that the accusation that sometimes vocational qualifications have been designed too much a" la academic qualifications is a fair one but I do believe that there is a real shift in trying to make that right. I also think that sometimes the analysis is not totally fair. For example, GCSEs in vocational subjects. Many people have made that accusation about those qualifications. If you actually closely look at whether it is fair in terms of the content of GCSEs in vocational studies, there is no evidence at all to say that they are more academic in their design than their predecessors. In fact, it is probably untrue.

  Q842  Valerie Davey: Just to come back to the specific in relation to the local professional collaboration between the LSC and the LEAs, which I think is important, it is very good, but funding means that the LEAs stop at 16 and LSCs come in at 16. If you are trying to do that collaboration 14-19 change in an area and you are out to consultation, both these bodies are organising the consultation. Would you agree that we have a lot of work to do in the public for parents and communities to understand and potentially a democratic deficit in whom, if they disagree with the LSC, they actually refer to.

  Mr Miliband: The short answer to that is "yes".

  Q843  Valerie Davey: What are we going to do about it then, Minister?

  Mr Miliband: I think the first thing to say is that the LSCs are relatively new organisations and it is important to remember why they were created. The LEAs were funding school sixth forms, the college-based education post-16 was being funded by another route. So, we have not moved from a situation of singularity to plurality, we have moved from a situation with one set of problems and we now have to take care of any consequences. My own impression is that the idea of having a unity across institutions post-16 in their funding matters is sensible. Hopefully, LEAs and LSCs are organising joint consultations, I hope there is not doubling up of consultative machinery. I may want to say a word about strategic area reviews if that is a particular issue.

  Mr Lewis: Very quickly, I think Ms Davey is absolutely right. I also think though we have to recognise the LSC is, as David says, a new organisation, with a new leadership, which again is proving to be, on the whole, extremely positively received by the partners out there, the new leadership, coupled with the fact that now there is a lead regional executive director in every region, and part of that person's responsibility is getting the partnership culture and partnership ethos right, and also, by the way, the political awareness. We have been talking about the democratic deficit, and one of the things I have been very keen on is that if you are talking about Strategic Area Reviews, it is absolutely essential that both locally elected members and Members of Parliament are totally engaged in those local Strategic Area Reviews from day one, because if they are not, what is absolutely certain is if the recommendations are controversial, but right, for example, and you do not have buy-in from elected representatives, you will have all sorts of difficulties in terms of implementing the changes that may well be necessary in any locality. So there is a need to raise political awareness. I believe the new leadership of the LSC has really got off to an excellent start, but I also believe the new structure that has been created, where we have a lead executive director in each region who is responsible for some of these partnership working issues, some of this political awareness and accountabilities, will make a big difference.

  Q844  Chairman: Has a memo gone out from your Department to every regional director along the lines of what you have just said about engagement at a democratic level?

  Mr Lewis: A memo? Absolutely repeatedly in meetings with both national representatives of the Learning and Skills Council, the chairman and the chief executive, and also when I do have meetings on occasions with people at a more local level, it is a point I emphasize every time. In one or two cases where that has not happened, we have got off to a bad start and I am determined that should not happen in the future.

  Chairman: I want to move on. I would like to stipulate that I do not want members of my Committee or Ministers evaluating the quality of each other's questions or answers. Put that to one side.

  Q845  Jonathan Shaw: Ofsted have said that the Advanced Vocational Certificate of Education, which is not a qualification, is not well designed. It says that it is not seriously vocational nor consistently advanced. QCA boss, Ken Boston, said that Ofsted misunderstood. What does the Department say?

  Mr Miliband: I have spoken both to Ken Boston and to David Bell about this and I have asked them to meet each other and come to a common view and then write to me.

  Q846  Chairman: They will both be on the terrace at one o'clock.

  Mr Miliband: Indeed. It may be that they will have other things on their minds.

  Q847  Jonathan Shaw: So you do not know. You said earlier about ensuring that vocational qualifications were fit for purpose, perhaps meeting the needs of SMEs, large businesses in the public sector. What are the deficiencies?

  Mr Miliband: I think all assessments should be fit for purpose, Jonathan, and by that I mean that if you are testing capacity to master A-level physics, it has to be fit for the purpose; if you are testing capacity in dance, it has to be fit for that purpose; and if you are testing for other more occupation-specific skills, it has to be fit for that purpose as well.

  Q848  Jonathan Shaw: Within the present structure, what are your concerns? What do you see as the deficiencies and what are you going to do about it?

  Mr Miliband: One concern Paul Holmes referred to, which is our assessment systems for what are called vocational subjects, but this morning I have tried not to fall into that jargon because I have seen that in previous sessions you have discouraged the reinforcement of that divide between academic and vocational. I think it is a problem with some of these so-called vocational subjects that the assessment systems have been imported from traditionally academic subjects and getting that right is a big challenge. The experience of NVQs is at the other end of the spectrum and has not been wholly satisfactory either. It is in the vocational area that we have our biggest challenge.

  Q849  Jonathan Shaw: Ivan Lewis, what do people say to you about the structures when you travel round the country? What do colleges say to you?

  Mr Lewis: That there is a need to get the design, the content and the assessment of vocational qualifications fit for purpose, that in some cases we have been able to do that, in others that we have not, that we need to look at David's point about assessment, and we also need to look at key skills, which are a constant challenge. Employers do talk about basic skills, and I would make the point to members of the Committee that the employers of today have not yet recruited the kids that have benefited from the literacy and numeracy strategy post-1997. I think we should make that point very clearly. But employers also do not just complain about literacy and numeracy. This is very important. The agenda is moving. Employers are also talking—and I have a lot of sympathy for this—about poor communications skills, poor inter-personal skills, no team work, a lack of leadership, all things that are absolutely essential in a modern labour market, and I personally think one of the challenges for Tomlinson and us post-Tomlinson is not just vocational qualifications, but if those young people achieving high-level qualifications, vocational or academic or both, in our system do not come out with those skills, ie the high-grade students, then there is something going wrong in our education system.

  Q850  Jonathan Shaw: It is not only Tomlinson who has made us aware of those sorts of deficiencies and those sorts of concerns. Colleges will be aware of that. Do they ever say to you "If only you would allow us to do this, if only you would allow us to do that"? Do they ever say that, and what is your response?

  Mr Lewis: What colleges I suppose want is a more flexible system that enables them to build a curriculum, build a learning experience, build a qualification route around the needs and the strengths of individual young people, the personalisation of education at the heart of where I believe this Government is taking our education system. But if we are going to do that, we have got to also maintain certain bottom-line standards and some rigour. We cannot have a free-for-all. So for example, when employers say, as they sometimes do, "We want employer fit-for-purpose qualifications" I say, "Absolutely, and we have not achieved that", but they have got to also understand that in a modern world we have to give young people generic skills as well. We cannot just train them in a very narrow way to do a very specific job; they have also got to be willing to see us, particularly if it is going to be publicly funded, support generic skills. I think what we have got to improve on, if I can say so, is that specialists in the field of vocational and employers have to have a far greater input into the content design of vocational qualifications than is the case.

  Q851  Jonathan Shaw: Why do people worry about saying vocational qualifications? It is politically correct not to say it. Is it not the case really that people do not want to start worrying about language? It is because of the deficiencies within the system. It is not what they are called; it is actually, more importantly, what is delivered to young people. On the issue about involving employers, involving SMEs, I am sure predecessors sitting in this chair going back 20 years have been hearing the same thing. In terms of involving employers, young people meeting the needs of employers, this is not something new, is it? How confident are you that this time you can make that difference?

  Mr Lewis: I am more confident in terms of the vision that we have established for the role of the Sector Skills Councils, and before the Chairman lambasts me by saying that there is none of them up and running yet, we have made significant progress since the last time I gave evidence on the development of Sector Skills Councils, and one of the clear briefs that we have given those organisations is that they have to be clear in articulating what they mean by meeting the needs of their sectors, because also there is a problem with employers, frankly, giving out very mixed messages in this area, being very unclear about what they actually want from the education and training system. Charles Clarke is probably the first Secretary of State in living memory who has stressed that point. He has said he wants to break down the barriers, one of his central objectives is to break down the barriers between the world of education and training and the needs of the labour market and the needs of employers. So the Sector Skills Councils I believe will be extremely important in terms of working with the QCA to get the design of these qualifications more fit for purpose than they have been in the past.

  Q852  Jonathan Shaw: What are the mixed messages coming from employers?

  Mr Lewis: That we do not have an education and training system that meets our needs. Then, when the Government says, "Absolutely right. We accept we need a more demand-led system. Come on a journey with us to make that happen" many employers start to flounder in terms of what they really want and what they really mean by that, and also, many employers, frankly, are not so sure that they want to commit to their responsibilities and duties in this area, to work in partnership with Government to raise the skills performance of the nation. Many employers are excellent, but we need a far greater buy-in from employers if we are going to create the education and training system that really does meet the needs of the labour market. I would say, very much in support of what David said on Tomlinson, that the other point that is very important here is that we have to design a system that is fit for purpose in terms of labour market requirements over the next 20-30 years, not fit for purpose in terms of the labour market today or what was needed 10 years ago.

  Q853  Jonathan Shaw: One final question. There is a lot of concern about the snobbishness—Ivan Lewis, this is what you referred to in your opening statement—in terms of vocational and academic qualifications, but clearly, would it not send out a very clear message that vocational qualifications were taken account of in terms of performance tables if it were not, as at the moment, only GCSE? Would that not be the biggest signal that the Government could give to young people that we value all the qualifications if they were included in school performance tables?

  Mr Miliband: We do recognise GNVQ beyond 16, and as I said, the latest publication or consultation that we have on this year's tables talks quite extensively about how we can give recognition and equivalence for vocational qualifications, and I think there is a real shared agenda. We want to see that done.

  Mr Lewis: As an example, last year when we were talking about the improvements in terms of GCSE performance, what did the media say? What was the focus? The improvements that have come have come via the improvements that have been achieved in vocational qualifications, not in the more traditional academic route, and therefore somehow that is less significant in terms of the improvements in performance at 16. That was the media focus on the results that we announced last summer. Those same media people will say "What we need is a better vocational education system. The Government should be doing more on apprenticeships." It is a contradictory way that we look at education culturally. So they are included. The debate is whether a wider range of qualifications should in the future be included in the performance tables? The implication, clearly, of Tomlinson is that that is something we would be aiming to achieve.

  Q854  Mr Jackson: Just tagging on to this, a very important feature of the Government's higher education policy is that there should be a big expansion of vocational higher education amongst the anticipated 50% participation. I wonder if Ministers could say something about how they see the developments that we are talking of in the 14-19 group preparing for this, and encouraging people to go down that route. At the moment it is, I think, clearly the case that the vocational element in higher education is requiring expansion and needs to be fed in order to expand.

  Mr Miliband: I am very excited about the prospects for joining strengthened vocational options at 14-19 with the expansion of foundation degrees in higher education, because the insight that drove the decision to aim for a 50% target was that in countries like the United States, the two-year community college was filling an absolutely critical role at the middle, technical area of further education, an area in which in this country we have historically been very weak. To deliver the supply routes into those foundation degrees we need to ensure that we have a 14-19 system that has the participation and the progression both in general skills and in more occupation-specific or vocation-specific areas that will supply those routes. I think the development of   the eight vocational GCSEs, the exciting developments post-16 as well, and above all, the really striking take-up rates of young people of these subjects suggests that we can create the participation and progression up to 18 or 19 that will supply into higher education. A final coda: a lot of people who go to do not just foundation degrees but any degree at all will not be coming in at 18 or 19; they will be coming in some time before they are 30, and we have to make sure that the system is sufficiently open to allow that sort of flexibility.

  Q855  Chairman: I want to move on in a moment to the Working Group on 14-19, but before we leave that, both of you mentioned in answer to something Jonathan Shaw said early on about the delivery of a vocational qualification, not just in terms of the curriculum, the qualification, but who delivers it, and I think you were hinting, David Miliband, at the fact that some of the shortcomings are that the way of delivering, the teaching, in a school situation of a vocational is difficult because here we have a cadre of teachers used to delivering an academic qualification, and they are finding it more difficult. There is some research—and we are getting this from our witnesses—that the college sector is very much better at delivering this kind of unified educational delivery and qualification and in a sense, is there not a problem here, which I touched on when we opened these proceedings, that there is going to have to be a very marked change in the way in which teachers teach to cope with that problem?

  Mr Miliband: I want to say quite strongly that I do not see as stark a divide as you do between college good, schools bad.

  Q856  Chairman: I was not making a stark divide, Minister. I was saying there are some problems.

  Mr Miliband: I think that there are challenges in both sectors. I think the way many schools have embraced some of the new subjects actually suggests that there is a willingness and a hunger to deliver. Where I am 100% with you is that for increasing numbers of students, while their home base will be in a sixth form or in a sixth-form college or in an FE college or in a workplace, there will be increasing demand for them to take other aspects of their study, spend other parts of their week in other institutions. That is one of the things that may be emerging, as you were referring to, and is certainly strongly coming through to me in my discussions with people and my visits around the country. That is the challenge that we have to get right. It is not school or college or work; it is probably going to be, for an increasing number of youngsters, especially those who are currently dropping out, a mix of the two or three.

  Q857  Helen Jones: You rightly said earlier on, Minister, that to move to a unified system requires a lot of detailed work, and I want to explore two aspects of that with you. First of all, you did not mention in your opening statement the work which perhaps needs to be done with parents in order to explain to them the system we are moving to so they can assist their youngsters to make choices. I would like you to say a little about what the Department's thinking is on that. Secondly, does it not also entail, if we are going to move to this system, quite significant changes in the way that both schools and colleges are set up and in their staffing so that we ensure that young people have the facilities to take the kinds of courses that they want to take? Have you looked at that at all as a Department, and what is the Department doing to prepare for a move to that system?

  Mr Miliband: To take the two points, we have increasing evidence from not just the programmes that we are running, the increased flexibility programme or the Pathfinder programme, but actually from schools and colleges which are not part of those programmes but want to deliver a wider offer, of how young people can be motivated to take these courses, stay on in education, go further in their studies, and parents do have an important role in that. I think it is premature to start selling to parents the choices that might be available in five, six or seven years' time. When Tomlinson reports, I anticipate there will be some short-run, some medium-run and some long-term changes that he proposes, and certainly at each and every one of those stages the explanation to parents above all, but also to pupils and the wider public, will be important. In relation to the staffing, I think we have talked before about how important it is for schools—this has been in the context of my responsibilities in relation to workplace reform—to expand the range of staff that work within schools. But I think, as I was implying in my answer to the previous question, it is not just a matter of ensuring that every institution can deliver every course; that is a holy grail that is not going to be deliverable. We have got to develop the systems that allow a college that has a particularly strong offer in a particular area for that to be available to youngsters for whom three-fifths or even four-fifths of the week is spent in school.

  Mr Lewis: Parents I feel quite strongly about, in terms of not so much how we explain to them the system, which is very important because it is not easy. The current system is never easy to explain to people, and the new system will be equally difficult. I think the whole issue of parental involvement in the achievement of educational objectives is something that we should have a greater focus on. I think low aspirations, whether they be community aspirations or family or parent, are a significant factor in terms of raising schools' standards and raising educational attainment. We need to look at, in the context of Every Child Matters, the Green Paper, the Children's Bill, not only the way that we positively support parents but also the way that we engage parents in the importance of education for the life chances of their children and families. I am also very strongly starting to speak about the relationship of what I do on the adult skills side of the Department and the contribution that bringing adults back into learning in their 30s, 40s and 50s, as parents and grandparents, can make to getting them to understand that education is for them, not for somebody else, to feel confident and to have their self-esteem improved in terms of supporting their own kids' and grandchildren's education and generally raising aspirations. David himself has been doing some specific work in the North-East, where I think it is regarded as a cultural issue that low aspirations permeate too many communities and, working with the Regional Development Agency and then the LSC, they are actually focusing in on the question of aspirations and I think, if the Chairman will forgive me, it is something that we all collectively need to look at in a far more significant way. On Ms Jones's question about vocation, I think that what has happened is that the vocational part of our education system was largely ripped out, torn to pieces, and we need to rebuild it, and part of rebuilding it is the work force; part of rebuilding it is the quality of the infrastructure. I think specialist status in many cases will help in that process. Further education, particularly in relation to courses that further education are particularly positive at putting on but also the centres of vocational excellence, of which we now have several hundred around the country, can play a major part. I also believe very strongly that we have to have a more dynamic relationship between employers and educational institutions. Employers have to offer more placements, but also what is starting to really make a difference is employers promoting mentoring from employees into local schools and colleges, supporting individual young people and making the link. It is really important that young people see the link between what they are doing in that classroom, whatever they are doing, and their future life chances. What we have been very poor at in the past is becoming increasingly clear in terms of surveying young people. Around this room we think education is a good thing. There are far too many young people out there who have not even got to base one in believing that education is a part of the solution to the things that they want for themselves in their lives, and a very important way of doing that is to make the link between what they are doing while they are 14, 15 or 16 or 17 and what kind of earning potential, what kind of quality of life they can have in the future if they have a higher level of education. All the evidence is now suggesting a growing number of young people believe the root to success is through Pop Idol or, dare I say it, through the Beckham route, which can be read in a few different ways at the moment. Many young people do not necessarily assume, as we do, that education is for them and is the route to the standard of living, the quality of life, the earning potential that is a massive motivator to today's generation of largely sophisticated young people. We need to actually make the case to them—not all of them—but particularly where parental aspiration does not exist, why education is exceptionally important.

  Q858  Helen Jones: Two things follow from that. Do you accept that if we are going to have an offer to young people which exists throughout an area so that they can move between institutions, there is an inevitable tension between that and developing things like specialist schools and city academics—not that they do not have advantages but you could end up in an area with, say, a couple of language schools and no school specialising in engineering or in IT, for instance. How do you resolve that question? The other question is that staffing has to go wider in terms of what you said about mentoring. Ken Boston, when he was giving evidence to us earlier in the week, talked about young people having a training and vocational education that was of industrial standards. Surely, if we are going to achieve that, there is going to have to be more movement of staffing between industry and education as well as mentoring. What thought has the Department given to how you achieve those two things: a proper offer throughout a district and the right standard of training with the required staff to do it, which requires employers to cooperate in that as well as the education system?

  Mr Miliband: I would say that in relation to the first question, the way in which a spread of specialisms is being developed, to take that as an example, is through dialogue. Schools that are now applying for specialist status are looking around them and if they see a language college next door they are actually thinking it would make more sense for them to go into science or another area, and I think you are also seeing local education authorities taking a strategic role. Sheffield is in my mind because they wrote to me last week. They have a plan for 28 secondary schools in Sheffield, each of them to have a specialism, and they are working with the schools to get the sort of spread. It is more of a challenge in rural areas because you might not have the nine schools to cover the nine specialisms. So I think it is dialogue that achieves that spread, and I think it is very important to say that every school or every college having a real sense of its own identity and its own contribution to the local system is the prerequisite for the sort of collaborative structures that we need. It is strong institutions that partner rather than weak ones.

  Q859  Helen Jones: Should not the funding system also encourage a spread of different specialisms?

  Mr Miliband: We have thought about that, but I think that would have to be a funding system from the centre, whereas actually you have such diversity in different areas, it would be very hard to tune a specialist school funding regime either on the capital side or the current side, and we think the benefit of simplicity, of saying it is £126 per pupil per specialist school, has greater clarity to it. We do make a particular effort in areas of sport and languages, and now in engineering as well, where if we have a job to do to make sure there is a proper national spread because they provide a national infrastructure, for example, of school sports co-ordinators. So that is the way we have done it rather than through the financial route, and actually the school sports co-ordinator model and the specialist sport college route suggests that we are getting a national infrastructure that I think you want. In relation to your second point about staffing, I think it is a very big step forward to say that the TTA is taking a wider range of responsibilities, and essentially becoming a sort of human resources directorate for the education system, and the evidence that we now have of career changers coming into teaching speaks directly to your point about getting the benefits of people from industry into education mid-career. It was reported in one of the papers last week that from being the 100th choice of job changers 10 years ago, education is now one of the top five choices for a career change, or even the top one, I think, according to some studies. That certainly is matched by the evidence we are seeing on the number of people coming into teacher training, either through conventional routes or through some of the newer graduate teacher programme routes. I think schemes like the graduate teacher programme will help deliver the sort of staffing that you want.


 
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