Memorandum submitted by the Trades Union
Congress (TUC)
INTRODUCTION AND
SUMMARY
1.1 The TUC welcomes the opportunity to
submit written evidence to the first phase of the Select Committee's
major inquiry into skills. This evidence is largely based on the
TUC's comments on the Working Group on the 14-19 Reform Progress
Report—Principles for Reform of 14-19 Learning Programmes
and Qualifications—published earlier this year.
1.2 The TUC has welcomed the proposals for
14-19 reform in the Progress Report and believes that it sets
out a progressive and challenging agenda, although there are a
number of areas of concern. The TUC welcomes:
— a flexible approach that seeks to
stretch all young people to their full potential and that recognises
all forms of achievements;
— the principle of parity of esteem
between academic and vocational qualifications; and
— the links to vocational options such
as Modern Apprenticeships and the need for synergy with other
developments within the Skills Strategy.
1.3 However, there are a number of areas
of concern:
— the implications of these changes
for employees in further education colleges and those supporting
the work-based route, in particular the need to make further progress
in achieving parity of wages and conditions between schools and
the further education sector;
— the need for changes to be appropriately
resourced and supported, including provision of training;
— the implications of the proposed
reforms—especially as regards assessment—for the workload
of teachers;
— some young people may be pressurised
into making subject choices too early, in practice at age 13;
— ensuring changes are piloted and
implemented over time with the opportunity for full input from
unions;
— the need for careful consideration
of the role that inspection will play;
— ensuring there is support and recognition
of achievement for young people that do elect to leave school
early;
— ensuring that learners are able to
re-enter the system if they are not able to achieve the diploma
the first time around;
— the need for increased attention
to be paid to the equalities agenda; and
— the provision of effective and objective
career guidance.
THE OBJECTIVES
OF REFORM
1.4 The TUC welcomes the principle that
"all young people must have access to a curriculum which
stretches them to their full potential, and qualifications which
recognise achievement of all types and levels and which command
widespread respect and esteem".
1.5 Education is a critical means through
which people's life chances are developed and active citizenship
is formulated. The current system has worked well for a large
section of the 14-19 population and the achievements of young
people and teachers should be recognised. However, the TUC supports
the need for change, and in particular the objective of boosting
vocational options and achieving parity of esteem between vocational
and academic options.
1.6 The 14-19 phase has important implications
both for the opportunities available for young people, as well
as broader implications for society and the economy. Currently
around 20% of young people leave compulsory schooling with no
qualifications and no intention of continuing to participate in
learning. It is critical that 14-19 pathways encourage more young
people to stay on by providing options that recognise different
interests and learning needs and also by enabling young people
to make different choices while having the opportunity to opt
back into learning at a later stage.
1.7 Currently over 56% of the workforce
have qualifications at or below level 2. This situation urgently
needs to be redressed if the UK is going to be able to compete
with countries like France and Germany, which have a much higher
proportions of their employees qualified to intermediate level.
It is also important that the achievements and potential progression
of those who do not achieve 5 A-C GCSE grades are recognised and
that these young people are given the opportunity to enter into
quality vocational options such as Modern Apprenticeships, further
education and good jobs.
1.8 The TUC welcomes the recognition in
the Progress Report of the importance of progression routes and
the links to Modern Apprenticeships. As the key vocational route,
it is critical that the 14-19 framework is set up in a way which
supports young people entering into Modern Apprenticeship programmes.
1.9 While the introduction of the 14-19
reform agenda is welcome, it is critical that any changes are
developed with proper consultation about the design of the overall
framework, including the substantive changes to be made as well
as the implementation of any changes. In particular it is critical
that there is ongoing consultation with unions. Furthermore, it
is also critical that any resulting changes are appropriately
funded and implemented through a realistic time-scale.
1.10 It is also critical that the link is
made between the 14-19 reform strategy and other policy reviews,
especially the Skills Strategy and the Innovation Review. A joined
up approach is required to ensure that not only are young people
given the opportunities to reach their individual potential, but
that good jobs are available that are appropriately rewarded.
1.11 While The TUC supports the criteria
outlined for a reformed 14-19 framework, there is a need for equality
of opportunity for all young people to be a central plank of the
14-19 agenda. Choices and opportunities made during the 14-19
phase have important implications for future career paths, earning
potential and quality of life. For example, subject choice is
often gendered and this reinforces occupational segregation, a
key factor in the pay gap between men and women. Furthermore,
evidence that many young people from ethnic minorities are disproportionately
failed by the education system impacts on their opportunities
for achievement. Addressing these issues during the 14-19 phase
is an important step in tackling inequality.
PRIORITIES FOR
14-19 LEARNING PROGRAMMES
1.12 The TUC agrees with the assessment
in the Progress Report that the main areas that require improvement
are most acute in vocational learning. This has potential implications
for further education colleges and the completion of vocational
learning via the work-based route. These issues require much further
consideration and consultation with trade unions.
1.13 The parity of institutional provision
is a key issue and inequality between school and college provision
needs to be addressed. This is an issue not only affecting pay
and conditions of staff, but also other areas, including student
support. Many pupils from minority ethnic groups are over-represented
in further education rather than schools. There is also evidence
that women and minority ethnic groups are over-represented amongst
further education staff employed on casual contracts.
1.14 All learning programmes at whatever
level must be of the highest quality and offer a choice of learning
styles. The new system must be flexible enough to accommodate
all learners at whatever pace they achieve. It will also be important
to allow a degree of specialisation for young people to keep their
motivation high.
1.15 The issue of flexible learning options
is key to the question of equality. However, it is critical to
ensure that this does not lead to not only differential but also
inferior pathways pursued by students who are considered not to
be academic or of benefit to a school in terms of its league table
position or equivalent ratings. This could mean that certain groups
(disabled or black students) become over-represented in particular
types of alternative provision. This could have major social inclusion
implications for the future. Any new flexible learning arrangements
would need to have in place clear monitoring and systems of accountability.
PRIORITIES FOR
14-19 ASSESSMENT ARRANGEMENTS
1.16 The TUC agrees with the principle that
assessment should not lead the curriculum. Furthermore, it is
also important that assessment arrangements are appropriate for
the type of learning undertaken.
1.17 The TUC also welcomes the recognition
that the extent of external assessment needs to be addressed.
Research conducted by NATFHE among its members working on Curriculum
2000 at the end of the first year of the reforms demonstrated
that valuable teaching and learning time was increasingly undermined
by the demands of assessment.
1.18 The recognition of the judgement of
professional teachers is most welcome. However changes will be
successful and sustained only if they receive additional and adequate
resources. Changes from external to more practitioner assessment,
even with the more extensive use of new technology, must not mean
increases to teachers' and lecturers' workload.
PRIORITIES FOR
THE 14-19 QUALIFICATIONS
FRAMEWORK
1.19 The TUC has long argued the need for
parity between vocational and academic qualifications, and the
fact that this is a stated key objective of the 14-19 reform agenda
is warmly welcomed. The TUC supports the renaming of the modes
of learning for this age group to general and specialist.
1.20 The proposal in the Report for recognition
at four levels will greatly assist in meeting the objective of
including all young people. It will be important that the new
qualifications framework contains clear differentiation of achievement.
The new qualifications framework should simplify and clarify the
array of programme and progression options that young people are
currently faced with.
1.21 One of the key issues for the TUC is
the importance of ensuring that students from disadvantaged backgrounds
are given the opportunity to reach their full potential. While
it is an important objective to try and achieve an outcome which
means all young people will stay on to achieve their full diploma,
in reality this will not take place without more energetic approaches
to tackling disadvantage. It is critical that these young people
are not further disadvantaged by any changes to the 14-19 qualifications
framework. The TUC believes that there must be recognition for
those who do not achieve the full diploma. It is essential that
people are able to opt back into learning if they desire to do
so.
1.22 Furthermore, the TUC welcomes the intention
to create a system where young people will be able to change their
minds about their intended route without having to start at the
beginning of another set of programmes.
THE OVERALL
STRUCTURE OF
14-19 PROGRAMMES AND
QUALIFICATIONS
1.23 Simplicity and transparency are key
elements of any new system. It is important that there is a clearer
structure of both programmes and qualifications suitable for the
full range of abilities among young people. The TUC supports the
idea of the establishment of a credit accumulation and transfer
system. This would assist the objective of transparency and the
certification of achievement, but would also be helpful for those
moving between institutions.
1.24 Another key issue with regard to 14-19
reform is progression. Progression routes are a critical issue
for young people and it is clearly important that the routes available
are as clear as possible. This clarity should be supplemented
by sound career guidance, and the role of the Connexions service
in providing expert, unbiased advice across the full range of
options will be important.
1.25 The TUC welcomes the focus of the Connexions
service on ensuring that the most disadvantaged young people remain
in education or training. However, there are concerns that in
some parts of the country the Connexions service currently does
not have adequate resources to offer career advice to the whole
secondary school population. As a result, many young people are
not being made aware of the increased range of vocational pathways
now on offer, such as Modern Apprenticeships, and this is limiting
their ability to make a considered decision. It is vital that
the 14-19 reform agenda addresses this issue.
1.26 Finally, the emphasis on differentiation
and personalised learning set out in the Progress Report means
that there is a need to consider workload and work/life balance
implications for the workforce. There is a danger these proposals
could worsen working hours for staff, particularly women, part-time
workers and staff with disabilities. There is a need for the proposals
to be supported by a thoroughly considered set of proposals for
adequate staffing and resources.
May 2004
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