Education CommitteeWritten evidence submitted by Warwick Institute for Employment Research (IER)

1. Warwick Institute for Employment Research (IER)

1.1 The Warwick Institute for Employment Research (IER) was established by the University of Warwick in 1981.1 The IER is one of Europe’s leading centres for research in the labour market field. Its work includes comparative European research on employment and training as well as that focusing on the UK at national, regional and local level. The Institute is concerned principally with the development of scientific knowledge about the socio-economic system rather than with the evolution and application of one particular discipline. Professor Jenny Bimrose is the Deputy Director and also leads the careers guidance, learning and counselling team at IER. She is a world renowned expert in careers research, policy and practice, as evidence by her academic publications and work with practitioners throughout the UK, Europe and internationally.

1.2 Professor Bimrose and research colleagues at Warwick IER2 have developed strong research and pedagogy-informed networks throughout the UK, European Union and more widely, for example, labour market intelligence and information developments within the International Centre for Career Development and Public Policy. The team are leading specialists in the provision of career education, careers information, advice and guidance delivery in schools, further education, higher education, local authorities and other community settings. Examples of published works include: “Establishing World-Class Careers Education and Guidance in Kent” (2011–2012); “Developing a Careers LMI Prototype Database” (2012); and “STEM online careers module” (2012).

2. International, EU and Home Nations findings

2.1 The changing economic, social and technological context in which careers education, information, advice and guidance (CEIAG) now operates in schools, colleges, universities and other community settings is fast changing. Having a future vision and leadership to drive forward a new agenda is necessary to in order to provide some form of continuity amidst the flux of change.

2.2 Three separate but overlapping major national and international policy agendas have CEIAG at their centre. First is the up-skilling agenda that seeks to address key skill gaps in the workforce, so that the UK can compete globally and play a leading role in economic growth. Second, is the lifelong learning agenda, which aims to facilitate the development of a knowledge society through individuals’ engagement in learning and training. Third, is the social equity agenda, which focuses on fair, inclusive and just processes and practices in the delivery of public services.

2.3 Other key policy drivers relate to the increasing pressure to achieve different types of economic growth (Europe 2020 strategy). For all of these and other relevant EU policy agendas, such as The Bologna Process (2020),3 careers services have an important role to play in supporting citizens, not only in managing transitions, but also in maintaining openness to change and adapting on a lifelong basis. There is also a growing trend towards customised “flexicurity”4 regimes across Europe in which the trade-off between flexibility for employers, and security for employees, is a significant preoccupation of governments in driving forward economic, social and cultural well-being.

2.4 There have been many policy reviews carried out within the last decade by various organisations. More recently, youth unemployment and under-employment is a growing problem that has significant long term consequences for individuals, communities and society. In the last decade, young people’s transitions from school to work have become longer, more complex and more turbulent (Hughes & Borbély-Pecze, 2012).5 National Labour Force surveys (Hoffman, 2011) highlight the magnitude of the problem. Recent findings from the OECD (2011) strongly suggest that policy makers must give greater priority to the challenges associated with youth unemployment, since this is at least 2.5 times higher than the adult rate. Not since 1995 has the issue of youth unemployment featured so strongly in the political, macro-economic and social discourse at a European Union and international level.

2.5 From available research evidence, it is clear that despite systematic progress being made across Europe (and further afield), gaps and deficits in careers provision exist in many countries. There is an urgent imperative in all countries to secure an appropriate balance between providing core services to all (avoiding “marginalising the mainstream”) and targeting intensive services to those who need them most. Given career development policies and provision are located within and across a range of sectors (eg schools, vocational education and training, higher education, adult education, and employment), the services to individuals need to be as seamless as possible. It is important to develop strategies that will help make good quality careers provision accessible to all whilst reducing unnecessary duplication of provision from key providers.

2.6 In England, “the requirements of the 2011 Education Act have created a policy environment akin to a torrential storm”6 with careers advisers’ identity and status continuing to be challenged as professional-type roles become increasingly open to public scrutiny, market-led environmental factors intensify, and budgets tighten. In the international debate surrounding “marketisation” people tend to be either in favour of, or strongly opposed to, the creation of a quasi-market. Meijers (2009) points to challenges in over-simplifying marketisation approaches as leading to decreased quality. Lessons learned from The recent experience in the Netherlands7 highlight that marketisation of the career services did not result in an improved arrangement, mainly because schools and parents did not wish to pay for the services. For careers provision in England, the importance of clear standards and quality assurance processes, for organisations, services (and for practitioners’ skills, training and qualifications), must remain a policy imperative.

3. Curriculum Developments: Models of Good and Interesting Policies and Practices

3.1 Evidence suggests8 that good-quality CEIAG interventions in schools can have a positive impact on decision-making processes, reduce course switching and drop-out rates, and contribute towards successful transitions within statutory and further education. This is often characterised by a programme that equips young people with essential career-related skills, such as career exploration, self-awareness, and self-confidence. It is tailored to individual need, integrated into the timetable and the wider curriculum, and delivered at relevant points in an individual’s educational career by qualified staff. Findings from the OECD and other studies (Sweet, 2010) highlight that within many schools, career education programmes that develop career management skills often remain an aspiration and many services appear to remain concentrated upon individual assistance for those about to leave school.9

3.2 There is a need for careful consideration in terms of rebalancing current levels of face-to-face, web-based and telephone helpline services. This will have significant workforce development implications, for those working in schools, colleges and HEI settings. Four distinct models of careers education curriculum provision can be identified: “integrated”, where this is embedded in various ways throughout the curriculum; “stand alone”, in which designated activities are delivered in specific identifiable lessons; “peripheral” where careers education is somewhat marginalised and ad hoc; and “transitional” where provision is in a state of flux because of changes within the institution. The OECD (2004) promotes a partnership model and highlights the limitations of an exclusively school/college-based model of CEIAG delivery, which includes:

a lack of impartiality, and tendency for schools to promote their own provision rather than vocational/academic college-or work-based routes;

weak links with the labour market, and a tendency to view educational choices as an end in itself without attention to career adaptability and longer-term career resilience.

inconsistency and ad hoc arrangements which, in the absence of strong policy levers, result on schools and colleges offering patchy provision both in extent and in quality.10

3.3 Strong CEIAG leadership and vision are two essential components required to make Partnership Agreements work effectively within the context of School Improvement Plans. There is also scope to involve parents more fully in supporting their off spring(s), as illustrated in ongoing labour market intelligence and information (LMI) developments in North America. Well developed support systems, underpinned by impartial information, advice and guidance, are required to ensure that young people (and their parents) are empowered to make well-informed decisions. Many young people from a wide range of socio-economic and cultural groups have indicated that specialist knowledge on labour market opportunities, potential career routes, and access to both “formal” and “informal” learning opportunities is expected. A decade ago, national research conducted on behalf of the Learning & Skills Council (2002) indicated that more than half (54%)11 of parents questioned did not know what options are available to their children when they leave school, and 70% feared broaching the subject because their attempts to do so lead to arguments. One other key issue is that LMI needs to be mediated as part of the careers guidance process for particular purposes. For example, in working with young people on the value of STEM subjects to future careers. A key finding from recent research is that there has to be an interpretative layer between the raw statistics and the user.

4. Delivery of Resources: High Performing Systems

4.1 A recent international review, undertaken on behalf of the Welsh Assembly Government (Bimrose & Hughes, 2012),12 highlighted four possible scenarios that reflect contemporary transformation in careers provision. High performing systems are context specific, defined in terms of either one or a combination of the following: school performance; advancements in the use of ICT; utilisation of effective tracking systems and connectivity to the labour market; and/or feature some form of outsourcing contract arrangements. Lessons learned are not always easily transferable to other countries. Examples from Wales, Scotland and New Zealand highlight ways of further integrating services and developing a more unified approach.

4.2 In Finland, guidance is a compulsory subject within the curriculum and there are clear guidelines for comprehensive and upper secondary schools, specifying the minimum level of guidance services permissible, together with a web-based service to support institutional self-evaluation of guidance services. Attempts have also been made to embed guidance policy issues in national in-service training programmes for school principals. Finland’s Employment Office also employs some 280 specialised vocational guidance psychologists. Each has a Masters degree in psychology, and also completes short in-service training.

4.3 In Denmark there exists a “mixed model” with the public sector leading on integrated online provision. The Ministry of Children & Education has recently overseen the management and delivery13 of an all-age National Guidance Portal “UddannelsesGuiden”.14 Alongside this initiative, an “e-guidance centre” resides within the Ministry in January 2011 to service the needs of young people, adults, parents, schools, colleges, training providers and employers. The work is also linked directly to the Youth Guidance and/or Regional Guidance Centres focusing mainly on targeted provision. A professional development section is available on the website for guidance practitioners (eVejledning15). The Ministry also has a new youth database system in place to collect data on all 15–29 years olds (in accordance with the Danish Civil registration system). New legislation has also been introduced that requires every young person to have an educational plan with the Youth Guidance Centres. Schools and youth guidance centres are strongly linked.

4.4 In Canada there is no well-defined and accepted definition of what comprises a “career guidance professional”, except perhaps in Quebec, where it is specifically defined by a Master’s level education. However, many provinces are adopting non-mandatory Certification that requires various levels of career development related training.16 National Standards and Guidelines exist that are not prescribed, but are adopted by many in differing ways across jurisdictions. These represent the glue that binds career guidance/development in Canada. At least three strands to their guidance/career development delivery system operate: (i) K-12 with “guidance” often embedded as an add-on course in the provincial school curriculum, very often taught not by a guidance counsellor but a teacher with available time (which can result in poor “buy in” from educators on career/guidance delivery). However, there is some availability of one to one guidance counselling in high school (typically a short appointment to review educational planning); (ii) Post-Secondary Career Guidance through Career & Health Centres and Co-op Education in Colleges and Universities; and (iii) Public Employment Services—Canada’s public employment services contract many career guidance services to community organisations, which are often seen as more attuned to the needs of particular groups: single parents or Aboriginal people, for example. It can be argued that because the Public Employment Services are the a driving factor in moving the field forward in Canada, since they are often out-sourced to community-based agencies that have a specific career development mandate and offer open access for citizens from 16 onward. This trend is also emerging in England. In Canada, the private sector has led on the development of virtual careers services for adult client groups, across a geographically spread population. Contracts are tendered by the government that focus on particular populations, for different purposes. Other models of practice (such as the United States and the Netherlands) feature the free market as a determining factor of careers guidance provision.

5. Urban and Rural: ICT Connectivity?

5.1 This generation of young people expect services to be available in digital format and to be able to access the information and advice they need at a time of their choosing. The proliferation of the use of technologies has combined with other factors (like changes in family structure and decline in manufacturing industries) to bring about profound shifts in how young people make sense of themselves. Information and communication technologies (ICT) also ensure that young people now have access to an instant, international, dynamically-shifting and vast range of stories and forms of knowledge that can inform their identity management.

5.2 The recent review of the UK’s technological readiness indicates how the Government is examining ways of ensuring that the most disadvantaged young people are not left behind because they lack the technical facilities they need in their homes. There is equal concern about adults who are disadvantaged because they lack crucial digital life and work skills. There is a real danger that disadvantaged individuals, with a particular need for careers guidance support, will be excluded if service delivery comes to depend on access to ICT before national policies address the twin issues of digital infrastructure and digital user skills.

6. Impact of Budget Cuts

6.1 In terms of the cost reductions required to meet budgetary constraints that are a reality, the twin dimensions of ICT integration and workforce competency are likely to pivotal. In general, careers services are gradually recognising the need to demonstrate both economic and social returns on investment—not only in their work with clients—but also in the context of effectiveness and impact. With so many competing policy strategies that require investment alongside reductions in budgets, it is increasing apparent that alternative and/or complementary funding models are becoming necessary. In broad terms there are three alternative policy strategies for publicly funding careers support services:

resourcing this through public funding as a free service (currently available in the four home countries of the UK);

offering it as a fee-paying service (for example, like that available in independent schools); or

embedding access to careers support in other provision (for example, within schools curricula, further education, vocational training, community learning and higher education programmes).

Each of the three strategies has problems: the public-funding option is likely to be regarded as too costly; the fee-paying option as excluding those unable or unwilling to pay; the embedding option as endangering impartiality. Therefore a “mixed strategy” is required for the future that draws upon a wide range of potential funding sources, wherever most appropriate.

7. Professionalisation

7.1 A drive towards stronger professionalism of careers guidance is supported by international and emerging EU evidence. The OECD review and more recent international studies have indicated that a number of European countries are now making significant moves towards more specialised training.17 Career guidance sector “in many countries is changing as career guidance becomes a separate practice and a distinct occupation, pushing the sector towards professionalisation”.18 The recent work of the UK Careers Profession Alliance19 is creating new possibilities for careers teachers, careers advisers, career coaches and other qualified professionals to join a UK-wide register of practitioners suitably trained and qualified to deliver high quality careers provision. In parallel to this, UKCES is supporting the development of the Welfare to Work workforce. There is scope to further strengthen these arrangements.

8. Conclusions

8.1 A reinforcement of strong leadership, vision, impartiality and equal opportunities as key principles underpinning careers education, information, advice and guidance services for all young people and adults should be given priority.

8.2 The Communiqué of the Sixth International Symposium on Career Development and Public Policy, held in Budapest in December 2011, recommends that where countries have established a career development policy forum, they consider what structure would best suit their needs, and how they can draw from the experiences of other countries. In this regard, the National Careers Council performs a vital role.

8.3 A national strategy, to help steer England’s career guidance system and services toward a model that will better address both individual needs and public policy goals, could be the next step.

October 2012