TUC Response to the 14-19 Reform Progress Report (Tomlinson Working Group)
TUC Response to the Working Group for 14-19 Reform Principles for Reform of 14-19 Learning Programmes and Qualifications
Introduction
The TUC welcomes the opportunity to comment on the Working Group on the 14-19 Reform Progress Report ‘Principles for Reform of 14-19 Learning Programmes and Qualifications’ (the Progress Report).
We understand that a number of TUC affiliates will be making their own separate, and detailed submissions, our comments are therefore more general in nature and thus do not follow the question format as set out in the consultation paper.
Summary of TUC Response
The TUC welcomes the proposals for 14-19 Reform and believes that the Progress Report sets out a progressive and challenging agenda, although there are a number of areas of concern. The TUC welcomes:
· A flexible approach that seeks to stretch all young people to their full potential and recognises achievements of all types;
· the principle of parity of esteem between academic and vocational qualifications;
· the links to vocational options such as Modern Apprenticeships and the need for synergy with other developments such as the Skills Strategy.
However, there are a number of areas of concern:
· The implications of change for learning in further education colleges and via the work-based route, in particular parity of wages and conditions between schools and further education;
· The need for changes to be appropriately resourced and supported, including provision of training;
· The implications of changes to assessment on the workload of teachers;
· Some young people may be pressured into making subject choices too early, in practice at age 13;
· The need to ensure changes are piloted and implemented over time, with the opportunity for full input from unions;
· The need for careful consideration of the role that inspection will play;
· Ensuring there is support and recognition of achievement for young people that do elect to leave school early;
· Ensuring that learners are able to re-enter the system if they are not able to achieve the diploma the first time around.
· There need for increased attention paid to the equalities agenda; and
· The provision of effective and objective career guidance.
The Objectives of Reform
The TUC welcomes the principle that ‘all young people must have access to a curriculum which stretches them to their full potential, and qualifications which recognise achievement of all types and levels and which command widespread respect and esteem’.
Education is a critical means through which that people’s life chances are developed and active citizenship is formulated. The current system has worked well for most and the achievements of young people and teachers should be recognised. However the TUC supports the need for change, and in particular the objective of boosting vocational options and achieving parity of esteem between vocational and academic options.
The 14-19 phase has important implications both for the opportunities available for young people, as well as broader implications for society and the economy. Currently around 20% of young people leave compulsory schooling with no qualifications and no intention of continuing participation in learning. It is critical that the 14-19 pathways encourage more young people to stay on, provide pathways that recognise different interests and learning needs, and are able to make different choices and opt back into learning.
Currently over 56 per cent of the workforce have qualifications at or below level 2, a situation that needs to be redressed if the UK is going to be able to compete with countries like France and Germany, which have much higher levels of intermediate skills. It is also important that the achievements and potential progression of those who do not achieve 5 A-C grades are recognised and that these young people are given the opportunity to enter into quality vocational options such as Modern Apprenticeships, further education and good jobs.
The TUC welcomes the recognition in the Progress Report of the importance of progression routes and the links to Modern Apprenticeships. As the key vocational route, it is critical that the 14-19 framework is set up in a way which supports young people entering into Modern Apprenticeship programmes.
While the introduction of the 14-19 reform agenda is welcome, it is critical that any changes are developed with proper consultation in the design of the overall framework, the substantive changes to be made as well as the implementation of any changes. In particular it is critical that there is ongoing consultation with unions. Further, it is also critical that any resulting changes are appropriately funded and implemented through a realistic time-scale.
It is also critical that the link is made between the importance of 14-19 reform and other areas of review, such as the Skills Strategy White paper, and the Innovation Review. A joined up approach is required to ensure that not only are young people given the opportunities to reach their individual potential, but that good jobs are available that are appropriately rewarded.
The TUC supports the criteria outlined for a reformed 14-19 framework, however there is need for equality of opportunity for all young people to be a central plank of the 14-19 agenda. Choices and opportunities made during the 14-19 phase have important implications for future career paths, earning potential and quality of life. For example, subject choice is often gendered, which then reinforces occupational segregation, a key factor in the pay gap between men and women. Further, evidence that many young people from ethnic minorities are disproportionately failed by the education system impacts on their opportunities for achievement. Addressing these issues during the 14-19 phase is an important step in tackling inequality.
Priorities for 14-19 Learning Programmes
The TUC agrees with the assessment in the Progress Report that the main areas that require improvement are most acute in vocational learning. This has potential implications for further education colleges, and the completion of vocational learning via the work-based route. These issues require much further consideration and consultation with trade unions.
The parity of institutional provision is a key issue, as inequality between school and college provision need to be addressed. This is an issue not only for pay and conditions for staff, but for other areas including student support. Many pupils from minority ethnic groups are over represented in further education rather than schools. There is also evidence that women and minority ethnic groups are over represented amongst further education staff employed on casual contracts.
All learning programmes at whatever level must be of the highest quality and offer a choice of learning styles. The new system must be flexible enough to accommodate all learners at whatever pace they achieve. It will also be important to allow a degree of specialisation for young people to keep their motivation high .
The issue of flexible learning options is key to the question of equality. It is critical to ensure that this does not lead to not only differential but also inferior pathways pursued by students who are considered not to be academic or of benefit to a school in terms of its league table position, etc. This could mean that certain groups (disabled or black students) become over represented in particular types of alternative provision. This could have major social inclusion implications for the future. Any new flexible learning arrangements would need to have in place clear monitoring and systems of accountability.
Priorities for 14-19 Assessment Arrangements
The TUC agrees with the principle that assessment should not lead the curriculum. Further, it is also important that assessment arrangements are appropriate for the type of learning undertaken.
The TUC also welcomes the recognition that the extent of external assessment needs to be addressed. Research conducted by NATFHE among its members working on Curriculum 2000 at the end of the first year of the reforms demonstrated that valuable teaching and learning time was increasingly undermined by the demands of assessment.
The recognition of the judgement of professional teachers is most welcome. However c hanges will only be successful and sustained if they receive additional and adequate resources. Changes from external to more practitioner assessment, even with the more extensive use of new technology must not mean increases to teachers' and lecturers' workload.
Priorities for the 14-19 Qualifications Framework
The TUC has long argued the need for parity between vocational and academic qualifications, and the key objective to achieve this via the 14-19 reform process is warmly welcomed. The TUC supports the renaming of these modes of learning to general and specialist.
The proposal in the Report for recognition at four levels will greatly assist in meeting the objective of including all young people. It will be important that the new qualifications framework contains clear differentiation of achievement. The new qualifications framework should simplify and clarify the array of programme and progression options that young people have.
One of the key issues for the TUC is the importance of ensuring that students from disadvantaged backgrounds are given the opportunity to reach their full potential. While it is an important objective to try and achieve an outcome which means all young people will stay on to achieve their full diploma, in reality this will not take place without more energetic approaches to tackling disadvantage. It is critical that these young people are not further disadvantaged by any changes to the 14-19 qualifications framework. The TUC believes that there must be recognition for those who do not achieve the full diploma. It is essential that people are able to opt back into learning if they desire to do so.
Further, the TUC welcomes the intention to create a system where young people will be able to change their minds about their intended route without having to start at the beginning of another set of programmes.
The Overall Structure of 14-19 Programmes and Qualifications
Simplicity and transparency are key elements of any new system. It is important that there is a clearer structure of both programmes and qualifications suitable for the full range of abilities among young people. The TUC supports the idea of the establishment of a credit accumulation and transfer system. This would assist the objective of transparency and the certification of achievement, but would also be helpful for those moving between institutions
Another key issue with regard to 14-19 reform is progression. Progression routes are a critical issue for young people, and it is clearly important that the routes available are as clear as possible. This clarity should be supplemented by sound career guidance, and the role of the Connexions service in providing expert, unbiased advice across the full range of options will be important.
Given the emphasis on differentiation and personalised learning, there is a need to consider the workload and work/life balance implications. There is a danger these proposals could worsen working hours for staff, particularly women, part time workers and staff with disabilities. There is a need for the proposals to be supported by a thoroughly considered set of proposals for adequate staffing and resources.
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