Defence CommitteeFurther written evidence from the Ministry of Defence

FOLLOW–UP TO ORAL EVIDENCE SESSIONS

1. Functional Skills

New Functional Skills qualifications were introduced by the Government in September 2010 and these replaced “Key Skills” within apprenticeships over the period April 2011 to March 2013. During 2012, this new contextualised approach was adopted across the Armed Forces (in apprenticeships and replacing “Skills for Life”) and there have been no registrations for Basic Skills literacy or numeracy qualifications since September 2012. The Services’ adoption of Functional Skills reinforces the importance of learning in context and developing transferable skills.

2. Policy of Recruiting U18s

The minimum age for entry into the UK Armed Forces reflects the normal school leaving age of 161. Evidence of age is required, and formal written consent is required from the parents of those under 18. There is no compulsory recruitment into the UK Armed Forces, and personnel under 18 have a statutory right to discharge from the Armed Forces if they wish to leave. There is no intention to change this policy, which is compliant with the United Nations Convention on the Rights of the Child. We believe that our policies on under 18s in Service are robust and comply with national and international law. In addition to the comprehensive welfare system that is in place for all Service personnel, we remain fully committed to meeting our obligations under the UN Convention on the Rights of the Child Optional Protocol on the Involvement of Children in Armed Conflict, and have taken steps to bestow special safeguards on young people under the age of 18. We take pride in the fact that our Armed Forces provide challenging and constructive education, training and employment opportunities for young people and that the Armed Forces remain the UK’s largest apprenticeship provider, equipping young people with valuable and transferable skills.

The numbers of U18s entering each Service are recorded in Defence Statistics’ National Statistics Publication. In 201112, 90 U18s entered the Naval Service, 2,930 joined the Army and 110 enlisted in the RAF. There is evidence that those joining at a younger age remain in service for longer and that Army Foundation College, Harrogate (AFC(H)) cohorts were more likely to have continued in Service than those trained under Standard Entry (SE); Tables 1 and 2 at Annex A detail age on entry and LoS. For cohorts who joined the Army in 200104 and were still on strength in January 2010, those trained at AFC(H) were slightly more likely to have achieved the rank of LCpl/Cpl. Details are in Table 3 but, of note, 23% of the 2001 cohort from AFC(H) had achieved the rank of LCpl/Cpl/Sgt while only 16% of their SE counterparts had done so.

The Naval Service and RAF do not make a distinction in the training provided to U18s and over 18s (O18) so costs are the same. For the Army, the initial training provided for a Junior Entrant (JE) was changed in 2000 and again post SDSR, when all JE training was moved to AFC(H). Phase 1 training wastage is now comparable between SE and JE when JE(Short) and JE(Long) are taken together (approx 24%) and the costs per successful Phase 1 trainee (less SE Infantry who complete a combined Phase 1/Phase 2 course) were as follows:

JE (Long). 50 week course costing £69k (U18s only).

JE (Short). 23 week course costing £32k (U18s only).

SE (non-Infantry). 14 week course costing between £20K and £24K depending on location (both U18s and O18s).

A full VfM case for the additional costs involved in conducting Phase 1 training at AFC(H) cannot be made until 2024 when the first cohorts who joined the new college will have completed their maximum engagement length. Were U18 recruiting to be stopped, yearly inflow would need to be substantially increased. There would need to be a significant financial incentive to make good the shortfall of c30% of the total intake to the Army were JE to be curtailed. A sophisticated and bespoke costing model would be required to fully expose the VfM of recruiting U18s.

3. Financial Support for Education in the Armed Forces

The Standard Learning Credit (SLC) scheme, which supplies financial support, throughout the Service person’s career, for multiple, small scale learning activities, is designed to enhance educational or vocational achievement. Under the SLC scheme personnel may claim 80% of course fees, up to a maximum of £175 per financial year, paid to civilian bodies for certain personal development courses, examinations and support.

Complementing the SLC scheme, there is the Enhanced Learning Credit scheme (ELC) providing help to personnel who qualify with a single payment, in each of a maximum of three separate financial years, offering to pay 80% of the fees up to a maximum £1k or £2k (depending on qualifying scheme membership of either 4 or 8 years’ service) to help pay towards the cost of higher-level learning. The ELC scheme helps to motivate full time members of the Armed Forces to pursue their higher level personal development, both during their Service and for up to ten years afterwards, subject to the qualifying criteria being met.

An Individual Resettlement Training Costs (IRTC) grant is payable to Service Leavers (SL) with more than 6 years service to help towards the cost of resettlement training. A full refund for fees paid (up to a maximum of £534) may be claimed. IRTC may be claimed at any time in the last two years of service but normally in the last 9 months.

The Further Education/Higher Education Support Scheme provides eligible SL who have four years full-time service with fully subsidised tuition fees for a first full Level 3 or a first HE qualification, including foundation or full undergraduate degrees. SL must be registered for the ELC scheme. MOD pays a contribution per claim if any unused ELC credits remain, with BIS or the devolved administrations contributing the balance of the course fees:

Example A. Pte Active joins the Army and registers with the ELC scheme during initial training. Each year, she completes elective learning and claims her SLC refunds for 80% of the course costs. After 3½ years, she leaves the Army. Maximum payments: 3 x £175 = £525

Example B. Leading Hand Bright registered with the ELC scheme on enlistment in the Royal Navy. During his five years of service, he claimed SLCs each year. On leaving the service, he goes to university and has his tuition fees (in this example, £9k per year) paid by the FE/HE Support Scheme, using all three unclaimed Tier 1 ELC claims. Maximum payments: 5 x £175 plus 3 x £9k = £27,875

Example C. Cpl Clever was always interested in learning so registered for ELCs when he joined the RAF. He took a number of GCSEs and A Levels using SLCs and, after five years, started a part time HND using one of his three ELCs. He stopped studying due to pressure of work and retired from the RAF at the 8 year point, after doing a resettlement course in finance. Later, he returned to studying and began a degree using the remainder of his ELCs. Total payments: 8 x £175 plus £1k plus £534 plus 2 x £2k = £6,934

4. OFSTED Inspections

MOD commissions Ofsted to inspect the care and welfare of Armed Forces initial training establishments. These cover outcomes for recruits and trainees as well as the quality of teaching and learning but they are separate from Ofsted’s regular inspections of BIS-funded education and training delivered within the Ministry of Defence. In 2010/11, 11 establishments were inspected and 10 were visited in 2011/12. The grades awarded are shown in Table 4.

5. Examinations and Qualifications

The Services reported completion of civilian exams on board ships or in deployed location for FY 12/13, as shown in Table 5. Candidates who are registered through the Defence Exam Centre are able to change the location where they sit exams if they are relocated as a result of service obligations.

Table 6 shows the qualifications (excluding apprenticeships) gained by Armed Forces personnel as a result of their Service training. Higher qualifications are taken to be those at Level 5 or higher on the Qualifications and Credit Framework and a total per annum is shown.

6. Accreditation—Reserves and Military Medic Training

Reserves

The Future Reserves 2020 (FR20) Green Paper articulated the MOD’s intent to “develop mutual benefit through reward, incentives and skills development”. Accreditation is one of the ways in which the skills part of that intent is being delivered. An accreditation project will support the Reserve “offer” to individuals and employers by improving the accreditation of training, skills and experience gained through Reserve service. In addition to the potential to directly support recruiting, the outcome may indirectly influence employers’ perceptions of Reservists and the enhanced commercial and operational utility that employing reservists with accredited skills may offer. Terms of Reference for the FR20 accreditation project are at Annex B.

Paramedic qualifications

MOD’s efforts in accreditation for military medics are focused on training medics that meet the future needs of Defence, as well as developing skills that could be harnessed by the NHS, particularly when individuals leave military service. Three associated pilot programmes are either in place or being considered.

For new trainees, a “Defence Medic” course, currently being scoped, would close the gap between basic military medic training and what is required to work in civilian ambulances. Military training does not cover certain areas (eg children and old people which represent significant vulnerable groups for ambulance services but are not found in the military) so the training is not accredited to the Level 3/Level 4 awards required for employment as Emergency Medical Technicians or Emergency Care Assistants. If approved, the intent is to deliver a tri-Service pilot course commencing September 2014. This would have an annual training requirement of approximately 470 students. It is intended that for selected students, this training will allow clearer access to the paramedical practice training pathway by means of a foundation degree.

We are also looking at professional recognition for existing military medics, starting with the Army. A number of Army medics have already completed a pilot project to take Combat Medical Technicians up to the Level 4 award in Pre-hospital Emergency Care. Thirty of these medics have been selected for a further pilot course with Cumbria University and the Yorkshire Ambulance Service to attain the Level 5 Foundation degree in paramedic practice. When the pilot course completes, the intent is to expand the numbers and provide placements with ambulance trusts in a wider range of locations within 50 miles of a medic’s military base. West Midlands and East of England Ambulance Trusts have each expressed an interest in participating by providing placements, although we will seek to coordinate these arrangements through the Association of Ambulance Chief Executives.

7. Qualifications and Levels of Cognition Required for Officers

There is no requirement for non-specialist officers to have degrees before entry into officer training, nor is the award of a degree a prerequisite for selection for promotion. However, all Services accept a high proportion of graduates and acknowledge there is a requirement to develop an individual’s intellectual capacity during a Service career. The RN has conducted a number of studies which broadly suggest that officers are required to operate at graduate level (regardless of qualification). Service comments on the qualifications and levels of cognition for officers are in Table 7.

The Army has completed some analysis on the cognition levels required of its officers. Analysis of the Framework for Higher Education Qualifications (FHEQ)2 showed that all officers operate in roles that require them to demonstrate the intellectual qualities associated with degree level education or higher. Recent experience and studies3 also indicated a requirement for all officers to have cognitive skills associated with Levels 4—6. If the current generic officer Operational Performance Statement is mapped to FHEQ levels it also confirms the Army’s extant requirement for its officers in their first appointment to operate at least at Level 4 in the following areas: competence in communication, decision-making, knowledge, critical analysis and understanding.

There is evidence that graduates generally perform better than non-graduates once recruited into the Army, particularly when the application of intellectual agility is compared. This evidence is clearest at RMAS, but becomes less easy to discern further into service, although is apparent once again at ICSC(L)4. On average graduates fared better on ICSC (L) than non-graduates in the formal assessments. Non-graduates did achieve better results in 2 areas of the assessment, both of which are independent study in their own time, perhaps reflecting diligence more than the application of an agile intellect under pressure. The graduates performed much better in the informal assessment on ICSC(L), with significant differences in both effective intelligence and written communication, reinforcing the supposition that the agile application of intellect is where the graduate outpaces those who haven’t had the benefit of HE.

The Defence Training Board commissioned a review of the requirements and Service need for higher level education for senior military personnel (taken to be OF5, ie RN captain, colonel or group captain and above) within Defence. The Terms of Reference for this review are at Annex C.

Annex A

TABLES OF STATISTICS AND SUPPORTING DATA5

Table 1

EXITS AND LENGTH OF SERVICE BY AGE ON ENTRY (FY 09/10, 10/11 and 11/12)

	17y6m or under		More than 17y6m		Remarks
	Exits	Mean LoS	Exits	Mean LoS
Naval Service	2,480	17.6	9,290	10.3
Army6	11,630	9.9	21,010	6.9	There are considerable differences in LoS by capbadge.
RAF	1,950	22.7	8,930	16.1

Table 2

NUMBERS STILL ON REGULAR ARMY6 STRENGTH AT EACH 1 JANUARY POINT AFTER ENTRY (ALL SOLDIER INTAKES FROM JULY 2001 TO SEPTEMBER 2004)

Entry Type	Intake Cohort	Year 1	Year 2	Year 3	Year 4	Year 5	Year 6
Total	19,820	78.9%	63.4%	56.8%	52.1%	44.2%	35.9%
AFC(H)	4,250	86.1%	70.6%	61.4%	56.2%	51.6%	44.0%
JE Other	2,030	75.7%	58.9%	50.0%	45.6%	41.4%	34.4%
SE	13,540	77.1%	61.8%	56.3%	51.7%	42.3%	33.6%

Table 3

NUMBERS STILL ON REGULAR ARMY⁶ STRENGTH IN JANUARY 2010 BY SUBSTANTIVE RANK ACHIEVED

Intake still on strength by substantive Rank	Entry Type
	All		AFC(H)		JE Other		SE
2001 Initial Intake Still on Regular Trained Strength January 2010
All	3,400	100.0%	850	100.0%	400	100.0%	2,160	100.0%
Pte	840	24.6%	240	28.3%	100	25.4%	490	23.0%
LCpl	230	6.8%	40	5.3%	40	8.8%	150	7.0%
Cpl	340	10.0%	110	12.7%	50	11.6%	190	8.7%
Sgt	260	7.7%	90	10.3%	20	5.0%	150	7.1%
2002 Initial Intake Still on Regular Trained Strength January 2010
All	6,320	100.0%	1,320	100.0%	550	100.0%	4,451	100.0%
Pte	1,650	26.2%	380	28.6%	120	21.6%	1,160	26.0%
LCpl	540	8.6%	120	9.3%	50	9.6%	370	8.3%
Cpl	700	11.2%	170	12.9%	50	9.1%	480	10.9%
Sgt	390	6.2%	80	6.4%	20	2.9%	290	6.6%
Lt	10	0.1%	-	-	-	-	10	0.2%
2003 Initial Intake Still on Regular Trained Strength January 2010
All	6,460	100.0%	1,161	100.0%	660	100.0%	4,640	100.0%
Pte	1,950	30.1%	370	32.2%	170	26.2%	1,400	30.2%
LCpl	860	13.4%	160	13.7%	100	14.4%	610	13.1%
Cpl	800	12.4%	170	14.6%	60	9.5%	570	12.3%
Sgt	280	4.3%	40	3.8%	20	2.3%	220	4.7%
Lt	~	~	-	-	-	-	~	~
2004 Initial Intake Still on Regular Trained Strength January 2010
All	3,650	100.0%	920	100.0%	430	100.0%	2,300	100.0%
Pte	1,340	36.7%	400	43.7%	150	34.7%	790	34.3%
LCpl	720	19.7%	210	22.8%	90	22.0%	410	18.0%
Cpl	530	14.5%	180	19.4%	40	10.5%	300	13.3%
Sgt	90	2.5%	10	1.5%	10	2.1%	70	3.0%
Lt	~	~	-	-	-	-	~	~
Capt	~	~	-	-	-	-	~	~
Total	3,650	100.0%	920	100.0%	430	100.0%	2,300	100.0%

Table 4

OFSTED GRADINGS FOR DEFENCE TRAINING ESTABLISHMENTS

	2010–2011	2011–2012
Outstanding	HMS Sultan	HMS Raleigh Officer and Air Training Unit, RAF College Cranwell
Good	Army Training Regiment, Bassingbourne Army Training Regiment, Winchester Army Training Centre, Pirbright Defence College of Policing and Guarding	Royal Armoured Corps Training Regiment, Bovington 14th Regt Royal Artillery, 24 (Irish) Battery 2 (Training) Regiment, Army Air Corps 3 RSME Regt, Royal School of Military Engineering RAF Honnington RAF Cosford
Satisfactory	Infantry Training Centre, Catterick 25 Training Regiment, Royal Logistic Corps (RLC) Royal Military Academy Sandhurst RAF Halton RAF Honnington 11 Sig Regt, Blandford	Infantry Training Centre, Catterick Defence Medical Services Training Centre
Unsatisfactory	Nil	Nil

Table 5

CIVILIAN EXAMINATIONS TAKEN BY SERVICE PERSONNEL ON BOARD RN SHIPS OR IN DEPLOYED LOCATIONS (FY12/13)

	Basic Skills Literacy/Numeracy (L1 or L2)	Functional Skills: English/Maths (L1 or L2)	GCSE	A Level	OU Exam	Remarks
Naval Service	440	50	160	~	Not known
Army	2130		10	~	40	JTEC, Camp Bastion, Afghanistan7
RAF	Data not held but the Defence Exam Centre routinely transfers approx 5 papers per GCSE exam period (10 per annum) from home stations to Falkland Islands, Kandahar or Camp Bastion
Total	2620		170	10	40	Excludes RAF

Table 6

QUALIFICATIONS (EXCLUDING APPRENTICESHIPS) GAINED BY ARMED FORCES PERSONNEL AS A RESULT OF THEIR SERVICE TRAINING8

Type of Qualification	FY 2005–06	FY 2006–07	FY 2007–08	FY 2008–091,	AY 2009–10	AY2010–11	AY 2011–12
Stand alone NVQ and other L2	10,895	7,592	5,725	9,971	13,282	17,204	11.195
Stand alone NVQ and other L3	1,148	1,758	5,018	6,538	6,813	8,105	7,592
Stand alone NVQ and other L4	418	266	1,225	2,251	2,670	2,519	2,249
HND (L5)	140	238	185	4,517	4,774	5,113
Foundation Degrees (L5)	541	502	435				3,582
Other L5	337	436	1772
Honours Degrees (L6)	81	185	146	1,163	543	779	915
Other L6	-	27	123
Postgrad Degrees/Diploma and Higher Degrees	136	168	353	983	596	218	1,578
Total number of higher qualifications (L5 and above)	1,235	1,556	3,014	6,663	5,913	6,110	6,075

Notes:

1. The format for the collection of Accreditation Statistics was simplified for FY 2008–09 to show levels of accreditation only.

2. From 2009–10 Stats were collected by the Academic Year (1 Aug—31 Jul).

Table 7

SERVICE COMMENTS ON THE QUALIFICATIONS AND COGNITION LEVELS REQUIRED OF OFFICERS

Service (a)	Detail (b)	Comment (c)
Naval Service	The majority of officers commissioning into the Naval Service (both RN & RM) are graduates. Non Graduate, Direct Entry RN Officers can access a number of fully funded degree programmes dependent on the branch (these may require them to undertake additional study in their own time), a similar scheme is being developed for the RM. There are a number of opportunities available for officers to undertake funded post graduate studies on a full and part time basis, individuals are selected with care for these places to ensure that the investment represents value for money to the service.
Army	85% of RMAS officer cadets are graduates. As senior captains, officers complete 3 x week-long, Masters level courses in Military Analysis and on promotion to major, the ICSC(L)9 is also at Masters level. Up to 6 officers per annum have the opportunity to complete an MPhil.	Details of qualifications held by senior officers are not available
RAF	Approximately 65% of officers commissioned in the RAF are graduates. The importance of HE in developing intellectual capacity as part of wider human capability is understood and the RAF offers a limited number of opportunities for postgraduate study each year. There are no requirements to hold qualifications to be selected for promotion.	Details of qualifications held by RAF officers are not recorded
Joint	The Advanced Command and Staff Course (attended by OF4s) and the Royal College of Defence Studies course both incorporate MAs from King’s College, London.

Annex B

TERMS OF REFERENCE FOR FR20 ACCREDITATION PROJECT

Overview

The project requires single Services to identify what Reserve training they could accredit, at what cost, in the following groupings:

Phase 1 and Generic training (Command, Leadership & Management, First Aid, etc).

Phase 2 and 3 specialist trade and career training (equipment or role related).

Timescale

March to June 2013: Scope and cost options.

Jul to September 2013: Refine proposals.

October 2013: FR20 Programme Board—Consider proposals & confirm.

November 2013: Implementation by the single Services.

Endstate

The project end-state will be a clearly articulated and defined reserve accreditation proposition.

Annex C

A REVIEW OF THE EDUCATION10 AND TRAINING OF SENIOR MILITARY OFFICERS (SMO):

Terms of Reference

1. Over the next 5 years, it is predicted that the number of SMO at OF5 and above (c1600) serving in the Armed Forces will reduce by at least 10%11. Individual Services employ and manage their SMO in different ways. For example the Army categorises appointments in career fields (eg Combat, Defence Policy, Technical, Logistics, Human Resources) and the RAF has introduced a model based on mainstream and executive stream SMO. These Service differences lead to separate approaches to training and education (T&E) requirements, listed in individual job specifications and agreed between employing officers and Defence/Service Secretaries.

2. Historically, T&E of SMO has been delivered through centralised and hierarchical Defence courses including: the one year academic course at the Royal College of Defence Studies, based at Seaford House in Central London; the 15 week Higher Command and Staff Course at the Joint Services Command and Staff College; a range of strategic business courses run by the College of Management and Technology; and de-centralised fellowships and university post graduate degree courses, covered by the Higher Defence Studies Programme, a Tri-Service programme established in the MoD Policy Area in 1980, which funded the first 10 years of the MPhil in International Relations at Cambridge. Academic input tends to be focused on international theory, political science, military history and their derivations including conflict studies, international security, contemporary warfare, strategic studies, etc. Additionally, there are shorter interventions such as a mandatory SMO course for Army OF5/6 officers at Warminster and UK PINNACLE for 2* officers.

3. Despite “customer” consensus about the benefits of these courses, some of the incoherence identified by DOC in the 2010 audit of Joint Staff T&E12 remains. Subsequent studies such as the Defence Reform Unit review of T&E and the Defence Training Board (DTB) review of the Advanced Command and Staff Course (ACSC) combined with continuing resource pressure has led DTB to agree an action for ACDS (Pers & Trg) “to review the requirement and delivery options for education and training above ACSC of senior military personnel within Defence”13.

4. Taking account of previous research14 and the New Employment Model, Hd TESRR is to lead the review of SMO education and training, focusing on Service needs and the following areas:

Update key data, including costs15 and mapping SMO requirements for each Service.

Recommend options to co-ordinate Defence and Service Requirements for higher level education and training for OF5 officers and above for FY 14/15 and beyond, including RCDS and HCSC.

Recommend options for the future delivery of education and training, including a hierarchy of courses, accreditation and assurance.

5. The review team is to update TEPAG and DTEG members and widen this stakeholder group to include Service Secretaries, partners across government and civilian academic providers. A final report is to be circulated to DTB members in Oct 13.

6. In applying strategic coherency, any recommendations must be compliant with the Defence Vision and Operating Model, the Defence Joint Operating Concept, the New Employment Model, Future Reserves (FR) 20 work and pan-government/Joint Services policies.

7. The review is to hold 3 stakeholder workshops to consider:

Existing Senior Officer Job Specifications and Requirements by end May, to include Service Secretaries/Head Office/Defence Policy Career Field representatives. This event should allow discussion of: the link between strategic education and high rank; selection policies and criteria; talent management; subsequent employment; the roles of HCSC and RCDS and the optimal balance in terms of Ends, Ways and Means.

Governance and Resource issues in early Jun to include Service Commands. This event should include discussion of: decision making processes; sponsorship; programmed funding; risk; capitation rates.

Delivery Options by end Jun, to include DEFAC/Civilian Academic Providers. This event should include discussion of: Training Needs Analysis; the Defence Statement of Requirement; distance learning and distributed training; length of courses; accreditation and assurance.

8. The following assumptions will apply:

Senior military personnel are defined as officers at OF5 and above, regular and reserve.

The number of SMOs16 will decrease by at least 10% over the next 4 years.

SMO T&E requirements will increase commensurate with Defence and Security complexity.

Decreasing Defence T&E resources will attract pan-government value for money analysis.

The review will build on endorsed changes to the Advanced Command and Staff Course (ACSC) in 201417 and focus on T&E interventions based on Ends, Ways and Means, relating to Joint Operations and Defence Policy (or Service equivalent).

Specialist training, such as medical and engineering will not be included in the review.

Research doctorates sponsored by Defence (eg dstl projects) will not be considered.

The review will build on DOC audits of the Higher Command and Staff Course18 and Joint Staff Training and Education19 and other relevant work.