16-19 Participation in education

Written Evidence Submitted by Cumbria County Council

Written submissions to address the following points:

1) What impact EMA has had on participation, attendance, achievement and welfare of young people and how effective will the Discretionary Learner Support Fund be in replacing it.

2) What preparations are necessary for providers and Local Authorities to enable the gradual raising of the participation age to 18 and current states of readiness.

3) What impact raising the participation age will have on areas such as academic achievement, access to vocational education and training, student attendance & behaviour and alternative provision.

1. EMA

1.1 Discretionary Learner Support Fund (DLSF) is a much smaller budget – the funding for EMA is approximately £560m, with suggestions of the DLSF being increased to the region of £50-80m i.e. only 10-15% of the current cost of EMA – this will clearly not enable the same number of learners to participate in further education and training.

An average of 47% of 16-19 years old across Cumbria currently attract EMA and providers have reported that since its introduction EMA has contributed to an increase in the number of full time learners, with a subsequent impact on retention and achievement.

The number of 16-18 year olds participating rose by approximately 20% between 2007/08 and 2009/10.

FE retention for the last three academic years in Cumbria by Travel to Learn Area is as follows:

FE success rate data is as follows:

One local FE College reports that in 2009/10 retention rates of those students supported by EMA were 12% higher than those who did not. This is repeated in feedback from other FE institutions. Over the same period one provider’s retention rates for those on EMA was 5% higher and success rates 8% higher; whilst at another FE college retention was 7% higher and success 1% higher for EMA recipients on their level 2 programmes.

Further feedback from a fourth college shows that during the time frame that the EMA has been available the success rates for full time students have risen by 7% due to improved attendance and retention of learners across all their programmes.

Although the data for school sixth forms is not as clear cut, those sixth forms with good standards of performance report that the EMA has made a direct contribution to their ability to achieve year on year improvements in retention and successful completion.

1.2 As participation in 16-18 education and training becomes compulsory by 2015, families will be expected to support their children’s learning. This will undoubtedly place additional financial burdens on those least able to absorb it.

A number of FE and sixth form providers are already reporting that current 16 year old learners have indicated that, once the EMA ceases, they will be unable to continue on their learning programme. For some young people the EMA contributes to the family budget and without it there will be very real pressures on the young person’s ability to complete their course successfully.

Conversely, a very small number of cases are reported where the young person is in receipt of an EMA and the family circumstances would not appear to warrant it. This generally occurs in the more rural areas of the county and can be partially explained by links between EMA and available transport to access provision.

1.3 There are significant concerns about how learners with learning difficulties and disabilities will access the DLSF. There are many such learners within Independent Specialist Provision and Strategic Facilities who are heavily reliant on their EMA. It is not clear whether l they will receive an allocation for DLSF. In one county special school 65% of the post 16 cohort attracts an EMA.

1.4 Learners have to be enrolled at the institution to access the DLSF. As young people may decide against moving into further education for financial reasons this means that they may be dissuaded from even applying. Conversely, where a school has funding related post 16 recruitment and achievement targets, the availability of DLSF funding may be used as an unfair incentive to stay on at that particular institution. With the EMA, at the point the young person received the Notice of Entitlement they could make the decision as to which provider to enrol with on the basis of best match to their needs.

1.5 Young people may feel stigmatised by having to approach their college/school/provider to ask for help. The EMA is paid directly into the young person’s bank account, based on attendance and achievement of agreed targets. This enables the young person to be independent and begin to learn how to manage their work load, finances etc.

1.6 The administration of the DLSF is also an issue, for example, are providers expected to administer a weekly payment to those young people identified as needing support? If support isn’t linked to attendance and achievement of learning targets there is likely to be a knock on effect on retention and success rates. This then has significant implications for institutional funding for 16-19 year olds.

1.7 It is not just the loss of EMA that has to be considered. Eligible families were still able to access child benefit and child tax credits. It is not known how will this be affected?

1.8 The effect on retention into 2nd and 3rd year of courses also has to be taken into account. Learners will have enrolled onto courses based on having the financial security of EMA for equipment, travel etc. Without the EMA a number of young people will decide not to continue and this will impact on retention and achievement, resulting in increased numbers Not Education, Employment or Training (NEET) and in Jobs without Training (JWT).

NEET figures in Cumbria for the November 2010 to January 2011 three month average show an increase on the three month average for November 2009 to January 2010:

The larger proportion of 17 and 18 year olds within the NEET Group in Cumbria could be due to the completion of one year courses or young people leaving courses early or changing learning routes. The data above demonstrates that 18 year olds are more than twice as likely to be NEET as 16 year olds. This may be further exacerbated by those 18 year olds who completed ‘A’ levels and are unable to secure a place at University.

1.9 If provider success rates are affected this will also impact on provider

funding settlements and therefore their ability to recruit learners.

1.10 In 2010, 2,995 (49%) of the year 11 school leaver cohort in Cumbria

applied for EMA with 2,668 (90%) of those applying being successful.

1.11 Due to the severity of the cuts to the Local Authority’s budget it was necessary to put the removal of post 16 discretionary travel support out for consultation in Cumbria. If 16-19 school and college transport support is removed it will also have an impact on engagement in further education and training. Taken together with the loss of EMA support or a comparable replacement, this presents a bleak prospect for young people in Cumbria, particularly those young people from poor families living in isolated rural areas.

Cumbria is the second largest county in England with a population density that is well below the national average and a land mass that is overwhelmingly classified as ‘rural’. The true level of deprivation encountered by many rural residents has not been fully recognised or acted upon by those in the position to shape policy and take decisions.

Of the 496,900 people living in Cumbria, around 51.6% live in rural areas with 40% of all people classed as income deprived living rurally. This accounts for 10% of the rural population – higher than both the regional (8.1%) and national (9%) average. Similarly, 37% of children who live in income deprived households are rural residents. At a rate of 12.6% of all children living in rural Cumbria, this is again higher than both the regional (9.3%) and national (11%) averages.

Unfortunately these figures are not reflected in the widening participation factors contained within the indices of multiple deprivation or the incidence of take up (rather than qualification) for free school meals.

1.12 It is of serious concern that disadvantaged and vulnerable members of the Cumbria community will find it much more difficult to access further education or training – this is the sector of our society who most need to be assured of opportunities. The difference in choice for these young people is between unskilled and poorly paid work on the one hand and the option of having a career in skilled trades and professions and/or moving onto University on the other.

1.13 The social cost of the consequences of failing to support these families may well outweigh the savings made by the removal of EMA and could result in damage to the economic future of the county as a whole.

2. Preparation/readiness for Raising the Participation Age (RPA)

2.1 Due to the size and geographical nature of Cumbria, the overarching 14-19(25) strategy requires a differentiated approach to delivery. This is driven through Area 14-19 Partnerships that enable local needs to be addressed within the county strategy.

There are five Area Partnerships linked to established Travel to Learn Areas (TTLA) and they are based in West Cumbria, Furness, Carlisle, Eden and South Lakeland.

2.2 Young people’s barriers to participation have to be identified and addressed and targeted provision made available in order for RPA to be achieved.

Within each TTLA the area partnership will have to identify the cohort, segment the data, identify the different reasons for non-participation and target solutions accordingly.

Local knowledge within the partnerships is critical in ensuring that appropriate interventions are implemented – it cannot be left to the perceptions of individual providers.

Due to the size and geography of Cumbria, Partners will need to understand the crucial need to work together and subdue self-interest/wasteful competition in order to realise the greater benefits to young people that can be achieved through the raising of the participation age.

Without this work the LA will be unable to meet the RPA target with a corresponding increase in those young people Not in Education, Employment or Training (NEET) or in Jobs without Training (JWT). As at December 2010 NEET stood at 4.9% in Cumbria which is approx 967 of the cohort of 16-18 year olds who are in not in any appropriate provision. Additionally a significant number of young people are in Jobs without Training (JWT) and they are also a key target group in relation to RPA.

2.3 Critical to the preparations for RPA is effective data analysis in planning for the current year 8 and 9’s as the future 16 year olds in 2013 and 17 year olds in 2015. Currently there are approximately 5,524 Year 8’s and 5,765 Year 9’s in LA maintained schools across Cumbria for whom appropriate provision must be available in order for RPA to be achieved.

2.4 Additionally, identification and analysis of the barriers to learning among young people in JWT, alongside the barriers employers face in supporting young people back into learning is an important priority for action. It will also be necessary to factor in the impact of the introduction of the RPA legislation on young people’s and employers’ behaviour.

2.5 Initial research undertaken into those young people in JWT shows that the majority are 18/19 years old and have taken GCSE’s but wanted to move into employment at 16.

On the employer side most are SME’s who often regard interpersonal skills and motivation as more important than academic qualifications. In some instances employers want to establish whether a young person will ‘fit in’ before introducing qualifications. The preparation for RPA phase needs to address these behaviours proactively.

2.6 The ten key questions to enable projection of participation at both Local Authority and travel to learn area level are:

· How many 16 and year olds will there be in the next 3-5 years?

· Where in the system now are the future 16 and 17 year olds?

· How many future 16 and 17 year olds in each cohort are at risk of non-participation?

· How many future 16 and 17 year olds now are on track for participation?

· Why do 16-18 year olds not participate or drop out?

· Which providers have at risk pupils?

· Set system level priorities – given pupil and provider level analyses, what are the system level challenges?

· What actions will address the needs of at risk pupils and ensure they keep on track?

· What is the expected impact of the actions on future participation rates?

· When will the actions have an impact along the way to full participation?

2.7 Analysis of data is also being undertaken from as early as Year 9, to identify those young people who have special educational needs. The information can then be used to develop provision that meets needs both at post 16 and post 19. This will enable provision to be developed in travel to learn areas aligned with local care packages that will give opportunities for young people with additional needs to stay within their local community.

2.8 16-19 Commissioning within local authority areas must support the development of a broad and varied curriculum in order to facilitate raising participation, particularly focussing on Foundation Learning and Apprenticeships to reduce NEET and jobs without training.

2.9 Further development of Foundation Learning through a partnership approach will expand provision as well as ensuring the appropriate links between pre and post 16. This will result in maximised progression opportunities and continued participation in education/training.

2.10 Implementation of the Learning for Living and Work Framework also gives the opportunity to transform local provision for young people with learning difficulties and/or disabilities.

2.11 In order to increase apprenticeship numbers and expand provision a number of preparatory steps can be taken:

· Development of high quality presentations for year 9 options evenings.

· Development of clear policy and plans for the engagement of the public sector.

· Improve apprenticeship progression from level 2 to level 3.

· Increase opportunities for young women in apprenticeships.

· Expansion of the number and range of available frameworks.

2.11 The arrangements for September Guarantee delivery should be strengthened so that all offers of a place in learning are subsequently followed up to ascertain if the offer has become an actual start and, if not, identify reasons why.

3. Impact of raising participation age on academic achievement, access to vocational education and training, student attendance & behaviour and alternative provision.

3.1 You ng people’s experiences at the begin ning of their education are crucial in instilling a desire to continue in learning and to reach their potential.

The right support from parents is also important as young people

progress through their education to ensure that they are fully prepared

for all transition points and are motivated and supported to stay in

learning until at least 18 .

The parental role is crucial in supporting children’ s progression and participation, particularly for young people from more disadvantaged backgrounds . S upport mechanisms , including financial support , will need to be built into the system to ensure that all young people have equitable access to approp riate educational opportunities t o continue in learning , achieve and progress.

3.2 The raising of the participation age will only have an impact on academic achievement if the resources are in place to enable, encourage and assist young people’s participation in education and training.

3.3 If, through RPA, we can increase the number of young people who gain higher level qualifications, then we will be making a significant investment in young people’s futures, which in turn will produce long term economic benefits for the country.

3.4 We have evidence from initiatives like University Summer Schools that RPA can also support local and central government’s aim for a fairer and more equal society. Like elsewhere in the UK, there is overwhelming evidence to show the negative impact of leaving education or training with few qualifications at the age of 16.

3.5 Young people who leave education or training at the age of 16 are disproportionately from poorer families, a strong factor in becoming NEET, engaging in risky behaviours, having poorer health and low income. Again, in Cumbria the evidence points to supporting the national research showing that outcomes for 16 to 18 year olds in a job without formal training are only slightly better than for those young people who are NEET.

3.6 Participation cannot be seen as an end in itself, young people must be enabled to achieve higher qualifications and skills in order to progress to further learning or employment at 18. The phrase positive participation leading to purposeful progression needs to be fully understood by all partners.

3.7 The emphasis must still be on tackling NEET with an additional focus on those in employment without training. Every young person must be given the opportunity to progress and succeed.

In relation to those young people in jobs without training, closer partnership with the National Apprenticeship Service will be crucial in working to convert JWT into Apprenticeships.

3.8 Barriers to participation will have to be identified and addressed effectively, with targeted provision available in order for the objectives of RPA to be met.

3.9 Foundation Learning must be further developed – particularly in relation to a focussed, flexible full-time offer that secures a link between pre-16 and post-16 provision and leads onto further learning and employment.

Having an effective Foundation Learning offer in place will enable young people to access relevant vocational education and training, leading to improved student attendance and behaviour and therefore increased academic achievement.

There is some concern about the lack of focus for and capacity to develop an appropriate Foundation Learning offer under the new powers and duties given to all schools and colleges.

3.10 The provision of high quality, expert, impartial and independent careers advice is absolutely critical to the achievement of RPA.

The changes to careers education and guidance through the Education Bill must be managed in order to ensure that young people have access to all information needed to enable effective decisions to be made. Of particular importance is ensuring information is made available on all 16-18 options for education and training, including apprenticeships.

3.11 Achieving the desired impact of increasing academic achievement and improving behaviour and attendance as a result of RPA will depend on a number of factors:

· The future arrangements for the monitoring and quality assurance of Careers Education and Guidance.

· The volumes of learners and the ability of responsible bodies to segment and understand the different needs of the cohort.

· The range, quality and breadth of economically viable provision that 16-19 providers can offer.

· Lines of accountability established 14-19 and beyond into HE and Employment.

· Employers via the Local Enterprise Partnerships committing to supporting participation.

25th March 2011