Memorandum submitted by 157 Group
EXECUTIVE SUMMARY
1. The 157 Group of large General FE Colleges
serves 0.5 million students and together have a turnover of approaching
£1 billion. It is likely that many of the citizens undertaking
Skills training will be served by these colleges.
2. The memorandum outlines the key role
that FE Colleges can play in developing and delivering the government's
skills strategy. This starts with leadership of the 14-16 vocational
curriculum through to the awarding of foundation degrees. At 16+
the majority of students with less than five A-C GCSE grades are
to be found in General FE colleges. Most of them have vocational
ambitions but many employers would consider them lacking employability
skills. If this tail of underachievement is to be tackled, serious
investment is required in students studying at level 2 and below.
It should be possible for some lower level NVQ qualifications
to be achieved in college facilities where effective work simulation
can take place. Colleges should be encouraged to develop flexible
roll-on, roll-off facilities for year round recruitment. The DWP
16 hour rule should be consigned to the dustbin.
3. The need at a regional level for the
LSC, Development Agency and Skills Partnership to work together
to a shared agenda is highlighted. Self regulating networks of
providers emerging at sub-regional level are advocated to take
forward the role currently undertaken by LSC regional offices.
The broker network should be seen as a temporary catalyst leading
to a much strengthened interface between provider networks and
employers. The interface with schools and local authorities is
equally important. Further major structural and institutional
changes should be resisted. IAG for adults can be delivered by
colleges and Local Authorities with good web based back up as
part of their existing customer networks. The LSC, JC+ and the
LA must agree a local strategy for serving the non-waged that
is set out in the Local Area Agreement and is part of the funding
negotiation between the LSC and the LA over the Adult and Community
Learning budget.
4. The impact of the rising fee expectation
needs to be measured carefully and actions taken to protect communities
with low family incomes and a weak economic base to avoid a widening
of the participation gap. Current policies may also have an adverse
impact on level 3 adult participation and this will need to be
monitored.
5. An extension of "licence to practise"
is advocated backed by legislation and an implementation timetable
led by Sector Skills Councils. Train 2 Gain should be extended
to level 4 qualifications. The HE target should include the full
range of qualifications and encompassing adults up to the age
of 40. There should be a "test the nation" challenge
to encourage everyone to test their numeracy and literacy skills
that links to Learning Accounts and Learner Records.
6. Apprenticeship programmes should be extended
to level 1 and 4 with brokers charged with expanding the number
of apprentice places being offered by employers.
7. Finally the need to speed up progress
on the development of a Sector Skills Councils led national adult
qualification framework is signalled. They should link to the
"licence to operate" and "master craftsman"
status in each sector. It is necessary to ensure that the basic
skills curriculum and the funding methodology link to these frameworks
and that a unitised curriculum is fundable.
INTRODUCTION
8. The 157 Group of Colleges represent 23
of the largest General FE Colleges in England with 0.5 million
students and a combined turnover approaching £1 billion.
Together they cover the nine LSC regions and play a key role in
delivering the Government's Skills agenda. 157 Group Principals
seek to fulfil the wish expressed in paragraph 157 of Sir Andrew
Foster's report Realising the Potential "[...] to
explain the services Colleges give to society and how colleges
can make a significant contribution to the economy and to developing
fulfilled citizens".
CONTEXT: LEITCH
AND THE
SKILLS STRATEGY
9. The Leitch Report clearly and rightly
articulates the key role that skills play in the prosperity of
the UK economy. It highlights the gap between the skills profile
of the UK population with our key competitors. It particularly
emphasises the gap at Levels 3 and 4, the Advanced Technical,
Supervisory and Intermediate Management level. These are areas
where FE colleges can and do make a major contribution. Given
the reputation of colleges as one of the more responsive and flexible
parts of the education system it is reasonable to ask why we have
this problem.
10. In part, it is a reflection of the strong
academic focus of the English education system which seeks to
produce graduates, following a relatively short full-time study
route, at a relatively young age in areas often with limited vocational
applications. Many of these graduates in turn choose to follow
a career in the academic or the public sector. The graduate intake
into commerce and manufacturing, especially into medium and smaller
sized companies, is less well developed than in many other countries.
11. The Government recognises the need to
strengthen the vocational/technical routes at level 2 and 3, in
particular by encouraging the growth of Apprenticeships and then
to encourage part-time degree level study using the practical
Foundation degree as a key vehicle.
12. Colleges have grasped this part-time
route with enthusiasm given the sector's tradition of National
and Higher National Certificates. Too often Universities have
looked to the full-time route converting their Diplomas to full-time
Foundation degrees. It is much more likely that firms will support
their promising employees in their 20's and early 30's to continue
their studies if the provision is directly relevant to their work
and if it is delivered in a sufficiently flexible fashion. For
the larger firm this may be in the work-place, for the smaller
company it will often be in the employee's own time and needs
to be delivered using the maximum support from modern e-technologies
supported by workshops and ready access to tutors on-line. The
University for Industry might have developed along these lines
but it has instead focused on short cost effective, just-in-time
learning materials. Regrettably, the proportion of Advanced Apprentices
continuing to Foundation degrees is still small. The author's
institution is currently working with British Telecom to deliver
a Foundation degree that follows on from an Advanced Apprenticeship,
but this is not currently the norm. An early extension of Train
2 Gain to the level 4 NVQ and Foundation Degree areas could be
a valuable stimulus to these developments.
13. Many employers grumble that graduates
follow interesting but academic degree programmes that have little
relevance to their future career path. This is why they talk of
graduate apprentice programmes. These are typically in-house company
programmes used to bring graduates up to the level of their younger
apprentice trainee standards. This route is only peripherally
recognised by the main-stream education system. Though some HE
institutions, such as Staffordshire University, are willing to
accredit these in-house programmes their currency rests largely
on the reputation of the company providing such training. It is
clearly worth exploring the accreditation of in-company training
programmes below HE level in parallel with the Sector Skills Councils'
work devising sector wide approved qualifications. Such programmes
can be mapped against the sector standard, not necessarily to
force the company to fill in the gaps but rather to provide portability
for the employee who may wish to develop their learning into a
full qualification. They might do this with the help of Individual
Learning Accounts in their own time or with help from a future
employer.
14. Behind this current landscape is the
debate about the new 14-19 Specialised Diplomas. It is fair to
say that these Diplomas will have to be skilfully designed and
positioned if they are not just to become a means of bolstering
the academic route with the lightest of vocational seasoning.
15. Educationalists often forget that productivity
depends on more than the skills of the workforce. However good
the skills and qualification systems, productivity will also depend
on levels of capital investment and the skills of leadership and
management that bring together capital and labour and apply them
to meeting a well identified market opportunity. A weakness at
any point in this triangle can have significant implications for
productivity and competitiveness. For maximum impact government
needs to focus on the three elements. It is increasingly recognised
that leadership and management skills are a key precursor in any
organisation to a workforce development plan. This is recognised
by Regional Skills Partnerships, such as that in the West Midlands,
who have, in partnership with the RDA invested strongly in Leadership,
Management and Enterprise development in medium sized companies
who can provide the key drivers of economic growth in a regional
economy.
16. It should also be noted that the skills
of the workforce do not necessarily equate to the number of pieces
of paper that each employee obtains during their career. The Government
should be careful that it is measuring the right target. It is
instructive to reflect on why the Government wishes to move from
targets in schools that focus on five GCSE's at level C or above
and is now concerned to capture the distance travelled by each
student. They have recognised that our current system has a very
long trail of underachievement that threatens not only our economic
prosperity but also our social well being. The move from achievement
at specific times to achievement when each individual is ready
is to be applauded. This must be carried through into the post-16
funding model. The bulk of this long tail find themselves on Foundation,
level 1 and 2 programmes in FE colleges. With the disappearance
of low skill jobs intensive work is required to move these students
up to level 3 standards. Some of this remedial work can be carried
out through a more joined up approach to 14-16 education with
colleges entrusted to the lead role for the vocational strand
which would include the new specialist Diplomas.
Recommendations
1. Government should support the part-time
Foundation degree route through the FE sector with its legislative
plans to allow FE Colleges to develop and validate Foundation
degrees.
2. Companies should be incentivised to train
their workforce to Advanced Apprenticeship and Foundation degree
level by the extension of Train 2 Gain to level 3 and 4 qualifications.
3. Sector Skills Councils should map and
accredit company training schemes in such a way as to enable employees
to convert this learning into full qualifications possibly through
the support of Individual Learning Accounts.
4. The new specialist Diplomas must provide
a genuine route into vocational education. This is only likely
to be achieved by a significant input and support from the FE
sector.
5. The Government should consider productivity
and competitiveness as the interaction of leadership and management,
human and physical capital investment. This requires joined up
thinking and policies. At a regional level this can be encouraged
by the Regional Development Agencies and the links between leadership,
management and enterprise can be explored through the Regional
Skills Partnerships.
6. The Government should build on the moves
towards personalised learning in schools by strengthening the
funding of level 1 and 2 students in college post-16. This will
enhance the effectiveness of remedial work on the long tail of
underperformance inherited from the schools sector.
7. The Government should enable colleges
to take the lead role in vocationalising the 14-19 curriculum
through appropriate funding structures and planning expectations
including a lead responsibility for the introduction of the new
specialist Diplomas
NATIONAL POLICY/ISSUES
17. Like all policy priorities the focus
on "level 2" qualifications runs the risk of distorting
the market. There is much evidence that despite the demonstrable
value of level 3 qualifications, many industries and individuals
are prepared to leave their qualifications at level 2. This is
particularly pronounced in construction and service sectors such
as retail, hairdressing and catering. There is a culture of good
enough. Paradoxically where there is a clear requirement at level
2 of a "licence to practice" in areas such as health
and care and increasingly in construction there is clear evidence
of a willingness to pay. Colleges have consequently seen a drop
in fee income as a result of the right to a first level 2 with
out a pick up of fees at level 3 to compensate. The level 3 Train
2 Gain trial in the West Midlands and the North West has been
a near disaster as it attempts to persuade level 3 students to
pay 50% of the fees. Initial enrolments were minute. With ministerial
support the rates have now been reduced to about one-third. The
effectiveness of this move is currently being tested. This however
should be a strong warning sign that the swift move to raise fee
contributions, endorsed by Leitch needs to be reviewed. There
is a real danger that the result will be a reduction in level
3 achievements over the coming years. This is a key area for the
economy.
18. The 50% target has always been arbitrary.
In the UK we have had a relatively tight policy over access to
HE at 18+ but high retention and achievement rates. Other countries
have had a more open access approach but with high wastage rates.
The UK system is relatively cost effective. If the evidence shows
that retention and achievement can be maintained then the target
has its merits. A more significant measure might be the proportion
of the population qualified at level 4 by say age 40. This would
then encourage those in employment to continue their education
and training well into their career and embrace NVQs, Higher Diploma
and Certificates plus a range of Professional qualifications such
as Accounting Technician, Care Manager etc.
19. Colleges still have to cope with a range
of funding and data systems despite the government being the ultimate
funder in each case. Core LSC funding has different requirements
from work based learning (apprenticeships), which differs from
Train 2 Gain, which differs from European Social Fund projects,
which differs from Individual Learning Accounts, which differs
from a range of Job Centre+ funding streams which differs from
HEFCE funded programmes. We await the promised transfer of all
funding for training the unemployed from JC+ to the LSC. Even
if this happens it is possible that different funding approaches
will apply. Perhaps Job Seekers can be a key group to trial Individual
Learning Accounts.
20. Funding structures are still strongly
predicated towards the achievement of full qualifications. Provider
performance is also measured against full qualifications. This
militates against a flexible response except in the cases where
the employer or student is willing to fully fund the training.
It is the largest single complaint from employers that unless
they sign up their staff for a full qualification then they can
receive no funding support. The whole Train 2 Gain initiative
is predicated on the achievement of the qualification. 50% of
the funding is generated from the enrolment and the rest is paid
on full achievement. Most employers focus on the skills needs
of their staff not the qualification. Employees tend to have a
greater interest in the qualification because it offers portability.
There must be something wrong with our qualification structure
if there is such a significant gap. It is noticeable how few employers
are actively involved with their Sector Skills Councils and recognise
that the qualifications have been designed to meet there needs.
21. Qualifications need to be structured
into relatively small components of study that develop worthwhile
skills but don't cover everything that might be required in all
circumstances. These core skills can have separately funded extension
studies to meet particular employer's needs. The core forms the
basis of the national framework and the Sector Skills Councils'
map and accredit the extension curriculum. There should be a general
presumption that an employer knows his needs best. The Sector
Skills Councils' would assist SMEs to build a curriculum to meet
their needs. It could be that the national core attracts generous
public funding regardless of level and the employer pays for the
majority of the extension skills.
22. It is difficult to give a clear answer
to the balance question. The government's line that the balance
of benefit to the community or the individual is a key determinant
is eminently logical. It needs to be overlain with an understanding
of the ability to pay issue. Many large General FE Colleges find
themselves at the heart of deprived communities with family income
levels well below the average. In Stoke-On-Trent for example income
levels are 25% below the West Midlands' average. It is in such
communities that the impact of government policy is most pronounced
and where the needs for skills are most urgent. Price elasticity
of demand is high and education and training are the areas to
suffer when disposable income is at a premium. The family experience
and state of the local job market do not make the benefits of
high skills and qualifications immediately obvious. It becomes
a leap of faith. Over seven years Stoke-On-Trent College built
up student numbers from 24,000 to 40,000 but in the last three
years they have fallen back to 30,000. The trend looks set to
continue as increases bite. If the college doesn't apply the increases
it risks insolvency.
Recommendations
1. Review carefully the impact of fee increases
on participation before implementing the Leitch recommendations
in full.
2. Explore the benefits of extending the
licence to practice requirements across most craft and professional
areas and then review the policy on free provision.
3. Extend the target age for achieving level
4 qualifications to 40 and embrace NVQ 4 and professional qualifications.
4. Monitor closely the trend in achievement
of level 3 qualifications and in sectors where there is currently
little level 3 training explore the needs for employer and employee
incentives.
5. Focus all government education and training
funds through a single channel and require the funder to devise
an integrated funding and data collection system.
6. Reduce the scope of Vocational Qualifications
to a national core, generously funded and encourage employers
working with their Sector Skills Councils to develop extension
training that fits their specific needs.
7. Develop a system of funding support that
reflects both the balance of community/ individual benefits and
the situation of deprived communities with low income and poor
qualification profiles.
SUPPLY SIDE
23. Leitch suggests that the LSC becomes
a funding conduit rather than a planning body for adult provision.
The government envisages a planning partnership at local level
for 16-19 provision between the Local Authority and the LSC. Skills
training doesn't comfortably divide at 19+. It is arguable that
apprentice training and adult skills training are a continuum.
In both cases employer engagement is crucial. A strong FE sector
with well developed local networks should be able to develop and
sustain strong supply chain structures with employers. The American
Community College model demonstrates this very successfully in
many states. The current training broker network should be seen
as an interim measure to kick start that relationship. It can
easily become another bureaucratic hurdle to overcome rather than
a catalyst. It brings a significant financial overhead that is
reduces the money available to support training. Interesting work
is currently being undertaken to identify the contribution colleges
make to the local economy based on USA and Canadian models.
24. The current FE Sector is very diverse
with some large college and private sector providers and many
smaller providers. There has been significant rationalisation
in recent years, in part performance driven (encouraged by the
LSC and Inspection regimes) and in part finance driven. Train
2 Gain is encouraging collaborative working either through regional
or sector groupings. Often these groups encompass both private
and public sector providers. By funding these groups through lead
institutions who are held responsible for meeting contract volumes
and quality standards a national system is beginning to develop
that reduces the need for intermediaries. The next step is to
entrust these networks with the task of identifying local training
needs through their supply chain networks. This becomes the self
regulation system that is enjoyed by the American Community College
system. Incidentally this model fits well with the move to enable
FE colleges to accredit Foundation degrees.
25. If the LSC continued to operate at regional
level it could deal with five or six such groups which might each
serve an area akin to a county (replacing the local offices of
the LSC). The sector specific structure could operate as a matrix
with specialist providers in each network cooperating across a
region and with national sector skills academies. The 157 Group
of colleges are well placed to act as change agents to develop
such networks given their size and quality standing.
26. The idea of self regulating networks
is attractive as all will have an interest in the performance
of the group as a whole and none will want to face exclusion.
The Government through the LSC can drive this process forward
through the funding lever.
27. The LSC currently is an effective mechanism
for translating government policy into operational process. It
provides the funding conduit and it is able to measure and report
progress towards national targets. The government will always
need some organisation to carry out those functions. In many parts
of the country the LSC regionally has developed strong working
relationships with the Development Agencies and the Regional Skills
Partnership. This triumvirate is well placed to review regional
priorities and measure progress. In the West Midlands this is
well supported by a Regional Observatory that maps the region's
economic health and skills profile.
28. As the sector continues to grow in maturity
and confidence so empowerment should increase and inevitably the
need for an LSC infrastructure will decline though not disappear.
Rather like brokers, organisations such as the Quality Improvement
Agency and Centre for Excellence in Leadership should be regarded
as interim bodies that will help the sector towards high performance
and self regulation and then wind themselves up or be directly
supported by the sector as is the case with the AoC.
29. The current situation faced by colleges
and other providers wishing to respond swiftly to employer demand
is one of some frustration. All contacts that require T2G funding
have to be referred to a broker even if the company and provider
have an established and effective relationship. Brokers will require
significant information, may put the work out to competitive tender
and may take some time to provide an employer account number that
is the key to funding. If the employer doesn't want a qualification
on the approved list either no funding is forthcoming and the
college is seen as unresponsive, or a protracted negotiation may
take place with the local LSC office, the outcome of which is
uncertain. Problems also arise if the employer is designated as
large or if some of its activity falls outside regional boundaries.
At such times it is difficult to recognise the LSC as a national
organisation. Usually problems can be resolved but sometimes the
delays are unacceptable, especially from the perspective of an
employer who interprets it as government red tape.
30. Further structural reform is often unwelcome
and can significantly distract managers from their prime improvement
targets. Lord Foster in his report strongly backed an incremental
approach to reform rather than structural reorganisation. Given
a whole series of very positive improvement indicators across
the sector it may be more appropriate to look at the interface
between college and employer and between college and schools and
local authorities rather than redefine institutions. This has
already happened and will continue to happen with the right incentives.
Providers know they have to meet quality benchmarks and survive
in a tough financial climate. The need is to ensure that like
independent school academies and trusts, colleges are seen to
fit within a local 14-19 curriculum offer as full partners with
the local authority. At the same time for adult provision the
reach needs to be greater and hence the advocacy of sub-regional
networks serving a broad business and mobile adult student community.
The emerging leadership from within the sector, given appropriate
encouragement and support will effectively move the agenda forward.
Recommendations
1. Support and encourage networks of providers
to develop strong training supply chains with employers, using
brokers as a catalyst in the early stages but ensuring that they
don't become a bureaucratic obstacle to close employer/provider
links.
2. Encourage the development of self-regulating
provider networks with lead providers that work with the regional
LSC to serve sub-regions. These networks would assume the functions
of local LSC offices as they demonstrate maturity.
3. Encourage close working relationships
between the regional LSC, Skills Partnerships and Development
Agencies to address regional priorities and track performance.
4. Engage in a dialogue with the sector
to identify how it sees the relationship with supporting agencies
change as it grows in maturity.
5. Urgently address the relationship between
employer, provider, broker and the LSC to remove obstacles to
timely and responsive delivery of training such as artificial
geographic boundaries or undue bureaucratic process.
6. Focus on the interface with employers
and schools/ local authorities rather than changing institutional
structures. Encourage through funding and development initiatives
the emergence of self-regulating networks that will facilitate
that interface.
DEMAND SIDE
31. In classical economics the demand comes
from the buyer with the purchasing power and supply comes from
the producer with the product the consumer wants at a price they
are willing to pay. In education and training there is such a
market for products such as consultancy and management training
largely untouched by the public sector. Business Schools such
as Warwick, though in the public sector, derive the bulk of their
income from charges to business. To date the bulk of funding for
FE Colleges has come from public sources, typically 70-95%. For
many private providers operating in the apprenticeship market
the picture is similar. It is generally accepted that the planned
and public funded model is appropriate up to the age of 19 (and
beyond in substantial measure for HE). With the level 2 entitlement
and the soon to be introduced level 3 entitlement up to 25, this
model continues for "young adult" learners. Where the
state funds the training it quite reasonably sets the rules which
is where the conflict with employer "demand led" starts
to bite. If the state believes that education is an entitlement
and a strategic necessity for the nation for all up to 18 it is
likely to have to shoulder the lion's share of the cost.
32. For the adult workforce the upskilling
imperative is obvious to the nation as it faces international
competition. This isn't always so obvious to employers many of
whom are small and see themselves serving a local market untouched
by international competition. Their response is often to stay
small or seek to recruit from the pool of skilled labour that
someone else has trained. Large firm, in general, have always
taken their training responsibilities seriously. Without government
intervention it is still not clear that SMEs would act any differently
from the historic norm, driven by the short term profit imperative.
It is far from clear that Sector Skills Councils have had much
impact on the SME sector. The providers and to a lesser extent
the brokers have been able to "bribe" some reluctant
employers into accepting free training for their workforce but
this is hardly "demand-led". As we have seen recently
take up of level 3 qualifications has been patchy when a 50% contribution
has been sought.
33. As suggested above a tradition of a
highly skilled and qualified work force is unlikely to happen
by voluntary means alone. Leitch has hinted at legislation to
follow if voluntary agreements supported by the CBI don't deliver.
Where licences to practice are required in industries such as
gas, road haulage and financial services the training takes place
and the employers and/or the employee willingly pay for it. In
much of Europe it is recognised that this approach is necessary
and desirable. It ensures that basic standards of performance
and safety are likely to be delivered. It also confers status
on those who have achieved the licence. The state enjoys significant
financial savings and can use their funds to assist market flexibility.
Examples of this would include the urgent retraining needs where
a major redundancy has occurred such as with Rover in the West
Midlands or to assist regeneration areas where employer demand
is weak and the community has only a small proportion of highly
skilled workers. Such support would need to be combined with other
measures to create the job opportunities by for example planning
the relocation of public bodies to those areas were the workforce
is being upskilled.
34. Qualifications that are designed around
licences to practice rarely seem to generate the same level of
disagreement amongst employers. The focus on the compulsory licence
to practice rapidly brings the employers to the table. It is the
next logical step forward having established the Sector Skills
Councils and it will propel them centre stage. One word of caution,
work with the training providers to ensue that the curriculum
to be delivered is realistic and achievable.
35. With the legal backing of mandatory
licences the Trade Union Learning Reps will act as an effective
police force to secure compliance. This inbuilt training and development
requirement will help firms and Learning Reps working with their
local college partners to develop effective workforce development
plans; something that many firms still lack. In parallel to this
approach it is vital that support and training is provided for
management so that they have the skills to develop their organisation
and its work force. This is exemplified by the work done by the
West Midlands Regional Skills Partnership. The traditional stick
and carrot approach.
36. Employment agencies will need appropriately
qualified staff to meet employers requirements. They will be in
the same position as any other company and will have to respond
accordingly if they want to stay in business.
37. The supply side ever ready to grasp
the opportunity will be ready and waiting to deliver the training.
The evidence is available where such legally created markets exist.
The only point to watch is that this compulsion is not used as
a weapon to restrict supply and force up wages. The timescales
for introduction need to be carefully planned and signalled well
in advance. Success rates for appropriately skilled and qualified
staff who have received the necessary training and support should
be high, unlike the systems operating in the accountancy and legal
professions. The system is to guarantee standards of competency
not to ration. This principle is already largely accepted in the
apprenticeship structures for young entrants. It may be sensible
to extend the adult apprenticeship initiatives which operate in
pilot form across some parts of the country.
Recommendations
1. Introduce "licence to practice"
requirements for most employment sectors over a planned timeframe
with legislative backing for non compliance.
2. Require Sector Skills Councils to lead
on the development and implementation but bar them from any delivery
responsibilities to prevent any conflict of interest.
3. Use government funding that will be released
to support workforce reskilling in areas of redundancy and regeneration
supported by employment generation initiatives such as public
sector relocation schemes.
4. Use the Union Learning Reps to police
the introduction of licences and help them to build proper workforce
development schemes in all companies.
5. Complement this with subsidised management
development programmes for companies to enable them to develop
their companies and the workforce.
6. Employment Agencies as for all companies
will take the necessary steps to ensure that they can supply labour
who can meet the standards required.
7. The supply side will respond to a clear
market opportunity.
8. It is essential to ensure that the system
is used to achieve the necessary skills standards not as a rationing
mechanism to force up wages.
LEARNERS
38. There has been a tendency recently to
over play the role of employers in education and training and
underplay the role of the individual. The individual must be at
the centre of the education system. Employers come and go, they
expand and contract. The individual has a long working life and
family responsibilities to honour and the state has a role to
ensure that individuals can prosper both socially and economically.
No one should be more motivated than the individual to ensure
that they have those social and economic skills. The education
system has a duty to ensure that motivation and those skills can
blossom.
39. The FE sector post-16 sees too many
young people who haven't prospered and are lacking motivation.
It isn't just a school issue but clearly schools have a significant
role to play. In the author's own College with over 2,000 16-18-year-old
students only 11% have recorded both maths and English qualifications
at GCSE grade C or above. These are all students with vocational
aspirations and we face a mountain to climb to get them to a standard
that industry would recognise as employable in the two or three
years they are likely to stay with us. Too many give up and add
to the NEETs totals at 17+ storing up problems for the future.
We and many similar colleges across the country do have a significant
impact on those young people as the rapid improvement in student
numbers qualified to level 2 demonstrates. The Government needs
to recognise and embed that role from 14+ with colleges working
in partnership with the schools sector turning a two year experience
into a four or five year development programme; given our expertise
that should be a lead role. A key task is to attack the numeracy
and literacy deficit in a vocational context. The initially encouraging
results with the Young Apprentice scheme should encourage the
government to embed that as a key element in the 14+ entitlement.
40. There will not be enough quality employment
placement opportunities to enable all young people to have a meaningful
workplace experience 14-19. It is possible to improvise using
part-time jobs and family connections but it will continue to
be necessary for colleges to provide quality realistic work simulation
opportunities. The qualification system should formally recognise
this and licence colleges to deliver NVQ1 and in some cases NVQ2
qualifications away from the workplace. This shouldn't be the
norm but should be legitimate in certain prescribed circumstances.
It is now not unusual for a Technical Certificate to be achieved
in College, to then be converted to a full NVQ framework in the
work place.
41. Adults looking for training have a mixed
experience. Traditional evening courses are available and in some
cases day or block release ranging from basic skills to degree
programmes. This provision is not as plentiful as it used to be
with the focus now on work based training. This can be a problem
if your employer is not supporting work based training. Learndirect
from the University for Industry is a flexible alternative though
the nature and range of programmes is limited. Some colleges seek
to make learning on demand a reality through learning resource
centres. This could be supported by the LSC at relatively modest
cost. The current funding methodology tends to discourage learning
methods that involve less direct learner contact. Individuals
often complain about the focus on a September start and courses
running for a full year. It tends to be the economics rather than
curriculum issues that discourage more flexible offerings from
colleges.
42. Employees currently in employment but
seeking to change career direction can find it difficult to meet
the "on the job" requirements without giving up their
current employment. There is a reasonable range of provision for
those who are currently unemployed though the continued existence
of the "16 hour" rule frustrates the rapid acquisition
of new skills. In areas where student demand is high such as construction
training, the lack of employers willing to take on trainees to
gain the NVQ qualifications can limit the places available for
adults.
43. Information, advice and guidance is
available from most colleges and Connexion services. Learndirect
on-line provides a nationwide coverage. A broad range of information
is available on the internet but isn't always easy to find. If
IAG centres are backed up by quality web based information a reasonable
job can be done. Union Learning Reps can also be a conduit for
IAG with the appropriate training support. It would be sensible
to exploit the local council network as they assume a greater
role in supporting economic growth.
44. For those with little experience of
qualifications or employment there is a role for the adult and
community service to act as a focus working with the voluntary
sector and neighbourhood support groups. This could be a key duty
when Councils negotiate their ACL budgets with the LSC. Local
Area Agreements lead by local authorities would set out a strategy
that the LSC could fund with coordinated support from the relevant
central government department (Education, Work and Pensions, Communities)
45. Learner Accounts are being trialled
at level 3 and given the history need to be carefully managed.
The key is that the user should only be able to cash them with
quality approved providers. Clearly the relatively poor uptake
of level 3 qualifications indicates this is a appropriate area
to target.
46. Another key target group should be those
with Basic Skills needs. There is an initiative currently trading
under titles such as "Test the City" and "Test
the Company" which aims to get people to find out about their
basic skills needs. There is a case for rolling this out as "Test
the Nation". Give everyone a voucher that entitled them to
a free numeracy and literacy test. Following the test the voucher
would be exchanged for a card that would, like an eye test identify
the skills training required. Again using approved providers the
individual would be entitled to free support and a further test
to record progress at the end of the period. This would fit with
the national scheme to provide everyone with an electronic training
record. It would provide a much more effective picture of basic
skills levels across the nation and the card could easily double
as the Learning Account. It would be topped up with training funds
according to the current level of skills and previous spending.
Recommendations
1. Give the colleges the lead role in developing
the vocational agenda from 14+ with a requirement that all schools
participate in the programme.
2. Focus intensive support on those at 16+
in colleges who come with few formal qualifications.
3. Allow full NVQ1 and some NVQ2 qualifications
to be delivered by colleges that have appropriate facilities to
simulate work place training.
4. Support the development of flexible roll-on
roll-off facilities in colleges to support year round enrolment.
Ensure that funding doesn't discourage the development of flexible
remote learning routes.
5. Consign the 16 hour rule to history.
6. Focus IAG support through local authority
and College advice centres with a quality national web site back-up.
7. Require the LSC, local authorities and
Job Centre+ (supported by the relevant government departments)
to work together with the voluntary sector and neighbourhood teams
to produce a strategy and funding directed at reaching those with
few qualifications who are currently outside the world of work.
8. Learner Accounts should be combined with
the computerised learner record. Use of learner accounts should
be through LSC quality audited and approved learning providers.
9. A "Test the Nation" campaign
should be rolled out nationwide to get everyone talking about
numeracy and literacy skills. This will give a clear picture of
the nation's real skills levels and bring many back into formal
study with subsequent testing to measure progress. It can be linked
into the Learning Accounts/Record system.
APPRENTICESHIPS
47. Apprenticeships currently appear to
be fit for purpose. Apprenticeship routes seem to require differential
amounts of training which may imply different degrees of difficulty
whilst notionally being at the same level. This may not matter
if the outcome effectively meets the needs of employers. The brand
could be strengthened at both ends by the national roll out of
Young Apprentice, Adult Apprentice and Graduate Apprentice routes.
Apprenticeships need to be keyed into the licence to practice
requirement proposed above.
48. Key skills are increasingly coming to
be accepted as a crucial element in the full framework model.
It should be possible to secure further integration of these skills
into the NVQ. Technical Certificates are a useful complement to
the in-work NVQ element that can be delivered by trainers in partnership
with the employer.
49. Providers of full time FE courses and
work based training providers need to work closely together to
ensure effective access at 16, 17 and 18 to the apprentice route.
Apprentice training providers need to work closely with colleges
and universities to strengthen progression to foundation degrees
or NVQ level 4 qualifications. These could be a route to "Master
Craftsman" status.
50. Entry to Employment, the pre-Apprenticeship
route should be retitled Foundation Apprenticeship to emphasise
the feeder structure. A clear alternative for those not yet job-ready
that parallels full time Entry and Foundation courses in college
should be developed which could carry the E2E title.
51. A key role for T2G brokers could be
to promote apprenticeships with all employers. The base is still
too narrow.
52. Success rates on apprenticeships have
shot up in the last three years. We can realistically expect 60%
success rates by the summer of 2007. This compares with the low
30s for full frameworks in 2002-03 and is reaching comparability
with full time vocational qualifications delivered in colleges.
Recommendations
1. Investigate the difference in size and
difficulty between apprenticeship qualifications at notionally
common levels.
2. Develop the brand with a national roll
out of Young Apprentice, Adult Apprentice and Graduate Apprentice.
3. Introduce a new Foundation Apprentice
qualification and retarget the E2E qualification at those not
yet job-ready.
4. Improve the progression links between
full time college vocational courses and apprenticeships at 16,
17 and 18 and strengthen the progression routes on to foundation
degrees and NVQ4 qualifications.
5. Identify level 4 qualifications with
"Master Craftsman" status.
6. Set T2G brokers targets for generating
new apprenticeship places with employers.
QUALIFICATIONS
53. The qualification system still appears
a mystery to many employers. For 16-18-year-olds we have not yet
achieved the unified structure advocated by Tomlinson. With care
it should be possible to describe the three routes as vocational
(NVQ/ Apprenticeships), academic GCSE/GCE, and hybrid (specialist
Diplomas). It is sad that we haven't chosen to build the Diplomas
out of the well established and BTEC Diploma products. These are
used extensively in schools and colleges and have a strong vocational
flavour. Working with the Sector Skills Councils they could have
been updated and would have provided a continuity that has been
lacking with the succession of General National Vocational Qualifications,
followed by Applied GCEs.
54. The adult framework can be made to look
very complicated with a plethora of awarding bodies or relatively
simple if the focus is on level. The Sector Skills Councils are
charged with rationalising the system in conjunction with the
Qualifications and Curriculum Authority. If the recommendation
above to identify a core that forms the national framework is
accepted and that extension studies that meet particular employers
needs are endorsed by the SSC then the system will look relatively
straightforward. If these are keyed against the licence to practise
and master craftsman standards then the role of the qualification
system is clear and can be related to the academic route and university
entrance standards.
55. This system needs to be reinforced with
a national standard system for testing and developing numeracy
and literacy skills. These skills will be a prerequisite for licence
to practise status.
56. If the SSCs are developing the qualification
structure it has to be questioned whether examining bodies add
value by each developing their own syllabus and assessment methodologies.
57. Any funding methodology must be able
to fund any part of a qualification that leads towards a national
core framework. This reinforces the need to quickly develop a
qualification and skills profile for each individual student.
58. The pace of progress towards this core
qualification framework with a fundable unitised curriculum is
a cause for concern.
Recommendations
1. Consider building the specialist Diplomas
on the existing BTEC framework.
2. Encourage the SSCs to rapidly develop
core frameworks that link to licence to practice and master craftsman
status.
3. Ensure that a similar national is in
place for basic skills that links clearly to the frameworks.
4. Review the need for awarding bodies to
devise separate syllabus and assessment methodologies.
5. Ensure that any funding methodology supports
a unitised curriculum.
January 2007
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