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AoC evidence to Education and Skills Select Committee 14-19 Specialised Diplomas
A submission from the Association of Colleges January 2007
Submission from the Association of Colleges
14-19 Specialised Diplomas
Introduction
1. AoC is pleased to provide evidence to the Committee on the most wide ranging and potentially culture-changing curriculum development for many years.
2. The introduction of the Diploma is an opportunity for the value of skills, technical expertise and sector competence to be recognised as equally valuable to the economic and social success of the nation as learning through the traditional routes, be they academic or an Apprenticeship.
3. Colleges fully subscribe to this vision and want to make it a success. Our evidence is presented in this light - a sector with the greatest experience of delivering the skills agenda to young people determined that the high quality, applied learning approach will be implemented and maintained. As recent AoC research states -
There is clear and strong support in colleges for the principles of the reform. This is supported by evidence that colleges are trying to give that support practical expression.*
4. Where colleges have concerns, these are expressed in the submission but are balanced by action on the part of AoC to have them addressed. A summary of points discussed include:
· A recommendation that a statement is produced by Sector Skills Councils and Awarding bodies to indicate the direction of travel for the new qualifications, allowing colleges time to prepare for change · A desire for colleges' expertise to be fully utilised at developmental and operational stages · A recommendation that language must be explicit and emphasise the practical and vocationally related learning style that underpins Diploma pedagogy - the distinctiveness of the Diploma needs to be emphasised, and its relationship with, and separateness from, existing qualifications explained · A desire for a robust approach to ensure that industry standard equipment and professional staff always deliver Diplomas and that there is no dilution from this high standard · Concern that employers will demonstrate sufficient engagement in some areas · Concern that some schools may be holding back some Diploma development by choosing not to engage with the process or by a "wait and see" strategy · A recommendation that league tables may be holding back Diploma development rather than supporting it, and a suggestion that partnership targets and performance indicators would be more appropriate drivers of high quality, inclusive provision, rather than individual institutional measurement · An observation that there are examples of strong leadership reflected in strong Diploma partnerships in some areas, and that naturally developing partnerships work best but a recognition that there is a co-ordination and development role needed in other areas. · A confirmation that the Increased Flexibility Partnerships have the most expertise and should be harnessed to support delivery and workforce development; but an anxiety that IFP partnerships are under threat in some areas because from September it will lose its ring-fenced status · A reinforcement of the commitment of principals, many of whom have already invested heavily in 14 - 19 delivery · An observation that partnerships need stability in which to establish themselves, to increase capability and to build better facilities
What progress has been made on the development of diplomas to date? Where have been the sticking points?
5. Progress is being made to plan, with SSCs now handing over to awarding bodies their required content to the awarding bodies, following consultation with employers. This is a challenging process because it is new and because sectors' individual vision for "their" diploma needs to be rationalised into a coherent suite of qualifications which have the capacity to deliver generic as well as sector specific skills and knowledge.
6. Given the number of agencies involved, and with the benefit of the first round of development, we suggest that a development framework is designed that provides clear guidance to SSCs on aspects of Diploma shape and design, such as the incorporation of common elements (QCA is currently undertaking work on common units and elements).
7. So far, only statements of outline content by SSCs and QCA guidance on the structure of the diploma have been released into the public domain, following the extensive development period. This has been a frustrating wait for providers, keen to know how the content will translate into a qualification specification and, critically, into an assessment regime. Colleges will seek, as information becomes available, to align their current curriculum practice to emerging curriculum developments and will wish to begin the process of staff development, well ahead of implementation. Time is of the essence.
8. Given the significance of the curriculum development, AoC has pointed up the need for a "narrative" on progress that it could communicate to the sector and which would help colleges feel closer to the process.
9. To this end, the AoC workshops in the Spring with DfES support will provide practitioners with the first opportunity to see the awarding bodies' work in progress and provide colleges with the opportunity to feedback on the principal learning elements at a formative stage in the qualifications' development.
10. We believe practitioners should have more of a say in the design and development process. Their expertise as educators is critical in translating employer needs into relevant learning programmes. There need to be more opportunities created for colleges to play their part in influencing the development of Diplomas.
11. Colleges' perception of the development process is they were held at arm's length in the early stages. More recently, AoC at strategic level, and colleges working directly with SSCs, have had a greater input which we believe is essential to ensure that the emerging qualifications are deliverable and motivational for young people.
12. Where AoC and colleges have been involved, this has been a positive experience and we would hope and expect that colleges may have the opportunity to input earlier in future rounds. Colleges have significant experience in programme development and can offer a valuable insight into what will work with young people.
13. AoC therefore very much welcomes the invitation from QCA to form focus groups of practitioners for each line of learning to comment and feedback on the qualifications currently under development and leading on from the SSCs' work on content.
14. AoC has concerns about the current perception of the Diploma learning experience, based on the language used in the publications that are currently in the public domain. AoC research shows colleges have some anxiety that the distinctive, sector-related flavour of the diplomas, as conceived by the SSCs and built on practical, experiential learning in workshop or studio, may, in some colleges' words, be being "watered down".
15. AoC's conversations with DfES and with QCA in January 2007 have reassured us that there is no dilution or diversion, either from the original intention intended, or from the vision for Diplomas.
16. But we all recognise that the next stage of the development process will be critical to ensure that the high quality, vocationally related, practical and competence-based characteristics of the diploma are explicit. The language used in the specification and assessment criteria will need to reflect this.
17. AoC has offered to work with DfES and QCA as they develop their communications strategy, emphasising the importance of indicating the distinctiveness of the Diploma from other learning routes and the need to communicate these to young people, parents and their advisers.
What role have employers and Sector Skills Councils played in the development of diplomas?
18. AoC has welcomed the central involvement of SSCs in the development of the diplomas. Colleges need to be assured that the qualifications they are being asked to deliver are relevant and fit for purpose, and see SSCs, as employer representatives, as important partners in this process. AoC has recently set up a Strategic Skills group, from which the SSDA/AoC Skills Working Group has been formed. The purpose of this group is to encourage direct communications between the Sector Skills Councils and colleges as providers of skills training, including the Diplomas. AoC sees this as a significant development in light of the Leitch report recommendations that SSCs will play in future a central role in qualification reforms.
Employer engagement
19. We remain concerned that the level of engagement and commitment by employers to the Diploma remains unknown. There are many excellent examples of employer engagement that colleges have built up over the years and that they will be able to exploit for the benefit of Diploma learners. But it remains the case that, particularly in those colleges leading partnerships in more rural areas, concerns remain as to whether sufficient, high quality work experience placements will be offered by local employers. Through its direct relationship and its Strategic Skills Group, AoC will be encouraging SSDA to work with employers to raise awareness and commitment on their part.
Who is responsible for the co-ordination and development of diplomas? and Is there a case for a stronger co-ordinating role for one of the agencies involved, or for the appointment of a senior responsible officer or champion?
20. This is an interesting question, given that this is a unique curriculum development, involving many partners operating in a new way and accepting responsibilities that they have not had before. The development has had two stages so far, managed by QCA on behalf of the department. We see QCA's role as central to providing clear and unequivocal guidance to SSCs, to awarding bodies and to providers, working closely with QIA on the support programme for schools and colleges.
21. The operational stage, involving schools and colleges in collaborative partnerships is particularly complex, and AoC can see that there may be the need for a stronger, on-going co-ordinating role. An overview needs to be taken, for example, of the impact of revised funding arrangements and the potential for disjuncture; the relationships between, and efficacy of, LEAs and LSCs in relation to Diploma development; the impact of contestability; the evenness of provision and the choice available to learners; and, critically, the stability of Diploma partnerships.
22. The appointment of Sir Alan Jones, Sir Mike Tomlinson, Professor Deian Hopkin and Professor Michael Arthur as champions for the Diplomas is an extremely welcome move, both to act as advocates with industry and HE and to provide an overview to ensure the precise purpose and distinctiveness of the new qualification. The engagement of HEIs and employers with the Diploma is absolutely critical, because it will be the signals that admissions officers and recruitment officers give to young people that will inform the future choices they make. The success of the Diploma will depend on those signals.
23. So there may well be a case for a co-ordinating role to be extended further, though we do not seek a solution that increases bureaucracy.
Is there a clear system for accrediting and awarding the diplomas?
24. QCA undertook, through its consultants, a detailed and complex piece of work, successfully involving all stakeholders to determine the system. AoC was a member of the external stakeholder group. We were impressed by the way the different interests were balanced by the consultants and a workable system devised.
25. The broadest possible marketplace has been created for Diploma development which AoC believes will encourage innovation and creativity. Overall "Ownership" and awarding of the Diplomas is yet to be determined.
26. On a related matter, there remains the question of how much the Diploma is likely to cost. AoC has been working with the regulator more generally as she investigates the level of fees charged for registration for qualifications by awarding bodies. AoC has signalled generally that the level of fees is rising incrementally year on year and that colleges already spend £150 million pounds a year on examination registrations.
What are current levels of teacher/lecturer training activity in preparation for Diplomas? Is this sufficient to make diplomas a success?
27. AoC is pressing to ensure that maximum benefit is obtained by colleges from the natural staff development window at the end of the summer term 07.
28. We have been talking to the DfES about ways in which the specialist and generic skill sets that will be required by practitioners to successfully deliver the Diplomas could be identified ahead of that window. This mapping exercise of skills, which has been suggested by the department, is warmly welcomed by AoC. AoC has suggested that this research could be used by colleges as they undertake their regular staff appraisals in the summer term, which would identify staff development needs in preparation for QIA training planned for Autumn 07.
29. AoC is keen that strategies are devised that maintain the momentum in schools and colleges for preparation and development, regardless of whether or not they are selected in the first round of Gateway. We want to build on the work undertaken at the Diploma workshops. Particular attention needs to be paid to lifting and supporting those who are disappointed not to go through in the first round. Their support needs must be attended to as much, if not more, than the success for Gateway applicants.
30. We fully support QCA and the DfES in their intention that Diplomas should only be taught by professionals with specialist experience and industry knowledge.
31. Colleges are concerned that inexperience of vocationally related learning in many schools may lead some schools to believe that Diplomas can be taught by existing, non specialist staff and in an exclusively classroom based setting.
32. Robust messages on the nature of Diploma delivery, the requirements for industry standard equipment and highly qualified specialist staff need to be demonstrated in practice, to allay these concerns. These messages need to be contextualised within the requirements on partnerships.
33. The Spring AoC Diploma workshops will be used to signal what support for colleges is being planned. DfES has agreed to ensure the plan currently under development will be available for delegates at those conferences. Additionally, AoC has invited QIA to speak at the workshops and to indicate what training will be available, so that colleges are in a position to plan in good time.
34. AoC is also advocating the need for training and information for careers advisors in schools and colleges. Similarly there needs to be training in place for the tutors and specialist lecturers who monitor learners' progress and provide advice on progression opportunities.
35. We have suggested that publicity for the Diploma must define and clearly distinguish it from the applied GCSE at level 2 and applied A levels at level 3. The attributes of the Diploma route that make it distinctive and different need also to be emphasised in literature for parents, and must be in place ready for the Autumn term. Given the pressures to develop area prospectuses and common timetables and to start providing advice to young people and their parents in the Autumn term, this training and material needs to be prioritised even over practitioner development.
What is the current level of co-ordination between colleges and schools in local areas? and What are the barriers to co-ordination?
36. Where there has been a tradition of Increased Flexibility Partnerships, which have been addressing the needs of 14 - 16 year old learners in partnerships between schools and colleges, collaboration is strong and well established, usually with the college as lead partner. IFP colleges' perception is that generally they have not been as involved as they would have liked; they see next stage of development as an opportunity for their co-ordination and delivery experience to be harnessed.
37. Colleges' greater experience in delivering sector-related learning means that they are well-placed to steer and support development in partners, and many have expressed a desire to use their existing expertise as potential mentors for others. Our research indicates colleges would like to have a formal, recognised role in which their expertise is used for the benefit of diploma development.
38. AoC research has shown that there are different pictures emerging locally in respect of partnership formation and development. Some colleges are reporting that local authorities are taking a strong and positive lead to ensure that schools and colleges can work together to pool their strengths and expertise. In other areas, some colleges are expressing frustration that their own desire to embrace the Diploma and go forward in the early stages is not shared by school partners.
39. There are concerns about some resistance from some schools to the diplomas and a concern that underperforming students will be directed elsewhere to undertake Diploma learning, rather than through genuine partnership working.
40. AoC has suggested that the time may be right to reconsider how league tables operate; there could be an argument for moving away from individual performance measures for individual schools and colleges to collective targets and performance measures for local partnerships, now that it is the intention that young people's needs will be met through partnership working.
What are the lessons that can be learned from areas where there is strong co-ordination on 14-19?
41. AoC recommends that QIA would be well advised to harness colleges' experience and expertise and build this into their support programme. For example most IFP colleges will already be involved in hosting learning visits, and could, with the right resourcing, offer other support, that might include management advice, teaching and learning demonstrations and pedagogical development, mentoring and so on. AoC would be pleased to support any such approach.
42. Partnerships have developed different local and area models to prepare for Diploma delivery, including the appointment of co-ordinators, these being funded through LSC. AoC has had positive feedback that these dedicated appointments have significantly and positively influenced the development of new partnerships and smoothed the path between more reticent partners.
43. From September, funding for Increased Flexibility Programmes - the bedrock on which Diplomas will be built - will be removed from ring-fenced, LSC control and pass to LEAs to administer and will be subsumed within the wider budget for the provision of 14 - 16 year olds. Concerns exist that there is therefore the real risk that existing IFP teaching provision and local arrangements (that include LSC funded co-ordinators) may not necessarily continue to receive funding in the same form or, in some cases, risk being discontinued altogether. Should this happen, expertise would be lost and fragile partnerships be at risk.
44. AoC has agreed to work with the DfES to advise them of any loss of co-ordinator posts or other adverse consequences following the change in funding arrangements. AoC has agreed with the DfES to set up an AoC focus group that will be available to advise the department on Diploma issues, including the use of co-ordinators. We hope that this will meet for the first time in the Spring.
What are intermediary bodies such as LEAs and LSCs doing to foster co-operation?
45. AoC research shows that there are good examples of strong leadership being demonstrated by LEAs in co-operation with LSCs, although there are also examples where there is a less pro-active stance being taken, or one which appears to be weighted in favour of schools, rather than encouraging true partnership working as indicated in the White Paper. - "14 - 19 Education and Skills - 2005".
46. Often colleges, building on existing good practice and local relationships are seizing the initiative and there are reports of much work being undertaken by colleges behind the scenes.
47. Co-operation and collaboration seems to work best where it builds on existing relationships and natural alliances. The well established employer links that colleges already have in place are seen as critical to the success of Diplomas
How engaged are head teachers and college principals in the diploma agenda?
48. College principals are committed to the Diploma as, for most, the delivery of skills training is central to their mission.
49. Many Principals are questioning how the Diploma will fit alongside or supersede current delivery. Most colleges will currently be delivering BTEC National Diplomas at level 3 and BTEC First Diplomas at level 2 (or equivalents). These are tried and tested qualifications that are sector specific and which contain the level of specialism that already are highly successful in offering an alternative progression route to Higher Education and directly into jobs. These have so far been successful in meeting the requirements of young people who are ready to commit to a particular sector. They have been proven to be motivating and have successfully retained young people in full time education.
50. Colleges expect the Diploma - as the qualification with a specific brief to contribute to the up-skilling and education of the future UK workforce - to offer a similar opportunity to young people, with similar, practical workshop and studio based learning for those learners who seek sector related learning for employability.
51. AoC's view is that existing qualifications should remain available alongside the Diploma until the Diploma is embedded and has earned its place as a respected learning route. AoC research has shown there is a preference by colleges, as the Diploma develops and gains popularity with learners and parents, for the best of existing qualifications to be incorporated within it. AoC has already held talks with Edexcel on this matter and is encouraging their development of more flexible qualifications.
52. In relation to the commitment of School Head Teachers, the position as reported by the college sector and reflected in AoC research is that a mixed picture is emerging.
53. Unlike colleges, who are totally familiar with the pedagogy and different approaches required to the management of applied, practical learning, the adoption of the Diplomas by schools will mark a significant shift in culture and curriculum management.
54. Some, understandably are adopting a "wait and see" approach, which is frustrating for some colleges who are keen to take up the Diplomas in the first round, but who have been unable to secure willing partners.
55. Some colleges suspect that league tables, and concerns about the commitment to larger programmes (with the risk that this might pose to league table positions), may be inhibiting some schools from participation.
How are the rules on post-16 expansion likely to affect the rollout of diplomas?
56. The new presumption for expansion that now applies to colleges as well as schools creates another layer of complexity in the new approach to young people's education, now that institutions need to work collaboratively to deliver the curriculum. It also presents an added risk to partnership development.
57. Allowing more providers to expand does not necessarily have the effect of increasing choice, but can act in the reverse direction to diminish the range of options open to young people. Given the natural effect of the falling birth-rate - only just compensated for by a predicted rise in participation as more young people stay on longer in full time education - school sixth forms and colleges expansion can only dilute the volume of learners and make the management of their learning more problematic. Size does matter, in maximising the potential for viable groups, offering a wider choice of options and the spread of learning lines, from Apprenticeships to Baccalaureate. Recent research has shown that larger sixth forms perform better than those with fewer students.
58. AoC has referred in this submission to the need for stability and certainty in order that partnerships can plan for Diploma delivery and continue to invest in resources and expertise.
59. Colleges, which are absolutely committed to the new approach to 14 - 16 education, have already demonstrated that commitment through considerable investment in 14 - 19 education, as evidenced by LSDA research. The opening of new provision can have a significant disrupting effect, not just on one neighbouring institution, but on a whole area. And we are not persuaded that the presumption can be justified in that it always drives up quality - rather it could deplete the local supply of sector specialists and dissipate resources.
60. Some institutions thinking of major capital build projects tell us they no longer have the confidence in their projections of capacity and take up of specialist subjects by young people, due to the uncertainties in the local market. This may lead to risk-averse behaviour in the future, which cannot be helpful to the implementation of such innovative curriculum reform.
*AoC research 'Preparing for Diploma Delivery - college concerns and how to address them' January 2007
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