Influential think tank calls for college-only route to replace the level 2 apprenticeship

Left-wing think tank IPPR wants the government to phase out level two apprenticeships for 16-18 year olds, and replace them with a programme only offered by colleges.

Entitled ‘Earning & Learning – Making the Apprenticeship System work for 16-18 year olds’, its new report warned youth unemployment is being fuelled by “too many” 16–18 year olds studying level two courses that do not help them progress through vocational education or into work.

Authors Joe Dromey, senior research fellow on work, skills and family at IPPR (pictured above), Jonathan Clifton, who left the IPPR to become Head of Strategic Policy at Department for Education after drafting the report and Charlynne Pullen, now head of workforce data at The Education and Training Foundation, instead proposed that level two apprenticeships should be replaced by “a distinct pre-apprenticeship programme”.

This, they added, should “only be offered by FE colleges, or training providers which are run on a not-for-profit basis”.

The report said that level two apprenticeships “are often very job specific, they do not include much off-the-job training, they only last one year, and – from next year – they will not be required to include a recognised qualification”.

The authors added: “Young people who leave full-time education with a level two qualification have an employment rate of 70 per cent – which is almost 20 percentage points lower than those who leave full-time education with a level three qualification or higher education.”

In addition, they said, wage returns for level two qualifications are low, and relatively few of these learners progress to level three – only 39 per cent of those on one year level two courses.

In contrast to the current system, IPPR said, pre-apprenticeships would be “explicitly designed to help young people move onto a full level three apprenticeship at age 18 or 19”.

The proposed scheme would differ from the current system in a number of ways, including “more ‘off the job’ training”, “more general education (including English and maths)”, and a final “transferable qualification” at its outcome.

The report also suggested “employers do not want to hire young apprentices” and therefore should be subsidised for taking on a young person on a pre-apprenticeship – for example by being “allowed to use their levy payment” to cover the wages.

In response to the report, David Hughes, chief executive of the Association of Colleges, said: “The AoC has been calling for the introduction of a pre-apprenticeship offer for some time, so it’s good to see other organisations pushing for the same idea.

“All FE colleges provide apprenticeships and are keen to do more, so it is interesting to see the suggestion that this offer should only be open to colleges and not-for-profit training providers. I’m sure that will be debated long and hard.”

AELP chief executive Mark Dawe, who has written an expert piece on this, commented: “We should be debating what is in the best interests of young people based on evidence rather than institutionally-biased proposals.

“Many industries need and want a level two starting point and therefore it would be a denial of social justice to disallow a 16 year old the opportunity to gain knowledge and proper experience of work.

“Moreover due to failings in the schools system, many 16 year olds need to start at level two and yet some opinion-formers seem bent on punishing them further.”

Last year there were 130,400 16-18 year olds apprenticeship starts, of which 86,700 (66%) were on level two frameworks.

When asked to respond to the report recommendations, skills and apprenticeships Minister Robert Halfon said: “We are determined to ensure that people of all backgrounds and all ages can get on the ladder of opportunity. That is why we introduced traineeships, which are backed by business, and provide young people with the vital work experience and skills they need to gain an apprenticeship or a job.

We want to transform this country into an apprenticeship nation and Level 2 apprenticeships are a key part of that. Level 2 apprentices can earn up to £74,000 more over their lifetime, thanks to the skills they gain. We are also supporting young people into full-time jobs with training through 16- 18 apprenticeships – providing sustainable careers, with proven returns on future earnings and employment.”

 

IPPR recommendations:

  • The government should abolish level two apprenticeships for 16–18-year olds and replace them with a pre-apprenticeship programme
  • Pre-apprenticeships should contain more off-the-job training and a final transferable qualification
  • Employers should be subsidised for hiring pre-apprentices – giving them a clear financial incentive to take part in the programme
  • There should be one pre-apprenticeship programme for each of the 15 technical pathways
  • Pre-apprenticeship programmes should only be offered by FE colleges or not-for-profit training providers
  • Pre-apprenticeships should be explicitly designed to help young people move onto a full level three apprenticeship at age 18 or 19

 

How to fix the skills system

Government’s recent apprenticeship reforms were well-intentioned but miscalculated, says Tom Richmond, co-author of today’s Policy Exchange report, ‘The skills we need, and why we don’t have them’.

“No matter who I speak with, when I mention apprenticeships people react warmly.” So said Doug Richard in his review of apprenticeships back in 2012. This warmth ensures that whenever a politician declares their commitment to supporting or expanding apprenticeships, they can be assured of an equally positive response.

But what if apprenticeships weren’t always as beneficial as they might appear? What if apprenticeships were not always the dynamic and valuable choice for young people and adults that you assumed them to be? What if everything you knew about apprenticeships was wrong? The report that I have written with the Policy Exchange think tank poses precisely these questions.

Since Doug Richard’s review, the government has quietly but systematically been reforming our apprenticeship system. In order to truly understand the impact of the government’s actions, you have to stop fretting over the apprenticeship levy or subcontracting arrangements and instead take a long hard look under the bonnet of these reforms. Our conclusion is that in too many areas, the laudable ambition of high-quality apprenticeships across the economy has not been met.

The reform programme has been beset by weaknesses and miscalculations

Some of the apprenticeships designed by trailblazers are excellent and promote the kind of training that embodies apprenticeships in this country and abroad. However, we found that the reform programme has been beset by weaknesses and miscalculations that have undermined its intentions.

To be clear, an ‘apprenticeship’ is not a synonym for ‘training’. It is an education programme that focuses on systematic long-term training both on- and off-the-job in a new and skilled occupation. Our report has identified many of the new apprenticeship standards – perhaps as many as a third – that do not meet the definition of an apprenticeship used in other countries or historically in this country.

We found examples of standards where the content is insufficient to meet skills needs, or relates to a low-skill occupation – contrary to the government’s stated intention that every new apprenticeship standard should be in a highly skilled role. We came across standards that we estimate require only a few weeks of training. We identified new standards that could more accurately be deemed professional development courses for existing staff, and which do not help a learner into a new role or responsibility. What’s more, several standards duplicated others, either across different areas, or between Level 2 and Level 3.

Our report also demonstrates how the speed with which the government pushed through their reforms has lessened the opportunities to address these concerns over apprenticeship quality. As FE Week has shown already, the arrangements for ‘end-point assessments’ for apprentices have resulted in some organisations who lack any prior assessment experience being put in charge without any agency, regulator or government department monitoring them. The government’s requirement that new apprenticeships must contain 20% off-the-job training is not consistently enforced, while previous commitments that the assessments used for new apprenticeships will be valid, reliable and judged independently ought to have received much more attention.

If you want to understand how such a well-intentioned set of reforms to a much-loved educational brand could have produced such mixed results, the report we have published today is required reading. Our estimate is that without change, £500 million pounds a year by 2020 could be spent on apprenticeships which are, in fact, not apprenticeships at all.  There is too much at stake, both educationally and financially, to allow these reforms to continue without changes.

Robert Halfon and the newly unified Department for Education have a real opportunity here but it will require relentlessly focussing on high-quality apprenticeships above all else, alongside reforming the way in which apprenticeships are designed, bringing Ofqual in to regulate all assessments and giving more power and true independence to the new Institute of Apprenticeships. 

A skills system in a country that works for everyone, not just a privileged few, has the potential to do so much better. Our report sets out how it can be done.

 

By Tom Richmond, sixth-form college teacher and former senior adviser to skills ministers Nick Boles and Matt Hancock

Government meddling blamed for 2 year apprenticeship delays

Government meddling has meant that students didn’t start on some apprenticeship standards for two years after they were launched.

Using the latest Skills Funding Agency data FE Week examined the first standards given government sign-off in 2014.

We found two had no starts at all in that academic year or in 2015/16, while low numbers of students were recorded in several others.

The National Skills Academy for Food and Drink took a lead role developing one of the apprenticeships which had no learners, for food and drink maintenance engineers.

Justine Fosh, its chief executive, laid the blame for squarely at the door of the government.

She said employers involved with the trailblazer group led by NSAFD, which developed the standard, had been “frustrated by the evolutionary nature of the government’s decision making process for approval”.

“We were advised at the start that this new and innovative approach was called ‘open policy-making’, whereby new ideas were tested to see if they worked or not.

“Unfortunately policy implementation does not lend itself well to this approach and valuable employer time and effort has been spent unpicking decisions made as policy decisions have firmed up.

“This has led to redrafting, reworking and lost time, such that the industry has written to the new skills minister, requesting that the Department for Education implements a far more structured and clear process for the future.”

She claimed that the standard had not actually been ready for apprenticeship starts until the start of this academic year, though “at least 60 students that I know of” have started since September.

When asked to explain more about the causes of the delays, Ms Fosh pointed to confusion surrounding the assessment plan.

The first one, she said, to be initially approved Wincluded detail on the mechanism of the end assessment”.

“In the first approved version, 40 per cent of the grade that the candidate would achieve resulted from the score for the qualification that they undertook on programme – i.e. they could take their score from the qualification into the assessment room,” she said.

“But subsequently the Department for Business Innovation and Skills decided that on-programme qualifications could not form part of an end assessment. As a result we had to redo the assessment plan.”

FE Week contacted a number of employers involved with developing those standards which had had few or no starts over the past two academic years.

They all declined to comment on why they did not take on apprentices themselves.

The DfE told FE Week in October that a change in policy would in future “require all groups of employers bidding to develop a standard to commit themselves to using it”.

In response to Ms Fosh’s complaints, a DfE spokesperson said: “We expect to see starts on employer-led standards increase over the course of this parliament as providers and employers adapt their delivery models towards new standards.

“The open policy-development approach towards standards and assessment was adopted to ensure that input from employers and other stakeholders could be taken into account along the way so that all new standards deliver the skills that they need.”

Education secretary commits to focusing ‘much more’ on FE

A firm commitment has been made by education secretary Justine Greening to “focus much more” on FE.

She made the encouraging comments during a speech at an event in London today to celebrate the Education Endowment Foundation’s fifth anniversary.

Ms Greening admitted that the government had “for a long time” focused mainly on improving academic rather than vocational-based education.

But she said: “It is now time we bring that same lens and focus on to the more technical education routes, which let’s face it, most young people follow.

“As we look at a Brexit Britain it is important we look at our skills and to skill-up. I don’t think we can afford to have any young person not delivering on their potential, which they otherwise could have done if we had taken more care in FE.

“We need to focus much more on this and that is what I intend to do. I’m really excited about the role FE can play.”

The minister cited the 15 new “high quality” technical professional education routes planned through the government’s Skills Plan unveiled in July, based on recommendations by Lord Sainsbury, as well as apprenticeship and traineeships training.

She indicated that she believes these “can work together” with classroom-based academic studies.

Also, with regards to maths and English resit results, which colleges have been criticised by Ofsted over, she looked towards “making sure FE colleges become steady centres of excellence and really bring on those young people who go through and do GCSEs, which is just simply harder”.

It comes after the government made it a condition of funding in 2014, that all 16 to 19 year olds who did not already have at least a grade C in GCSE English or maths should be enrolled in courses in these subjects.

This was changed the following year to require all those with a grade D in those subjects to do to a GCSE course, rather than an equivalent ‘stepping stone’ course.

Ofsted chief inspector Sir Michael Wilshaw has repeatedly hit out at standards of English and maths provision in colleges, and caused an uproar by suggesting that all 16 to 19-year-olds should be educated in schools.

The chief executive of the Association of Employment and Learning Providers called on the government to scrap its GCSE resit policy, as results published in August showed huge numbers of learners aged 17 and over failed their GCSE English or maths.

Figures released by the Joint Council for Qualifications showed that almost 122,500 learners aged 17 or above did not get at least a grade C in maths, while 93,000 failed to secure at least a C in English.

Mark Dawe called today’s results a “body blow” for the learners who did not make the grade.

Ms Greening added today: “FE is the final part of that strategy what we need to have in post-16 to finish off all of the improvements we have seen pre-16 around driving performance in maths and English and classroom altogether.

“We need to help FE position itself as a centre of excellence.”

Carmichael backs more FE investment as he rejects new grammars

New grammar schools have been rejected by influential education select committee chair Neil Carmichael, who called instead for more investment in the “much neglected” FE sector.

The Tory MP (pictured) said in a new blog for conservativehome.com it would be wrong of the government to lift the ban on these selective secondary schools, with the intention of improving social mobility, when other provider types were better suited to helping realise this aim.

General FE colleges, university technical colleges, and independent training providers were identified as neglected “Cinderella areas”, which he claimed colleagues on all wings of his party agree need more financial support ahead of the November 23 autumn budget.

Mr Carmichael warned “evidence argues that attending a grammar school does not make less advantaged children more likely to be upwardly mobile – but it helps them move further if they are upwardly mobile”.

But he insisted: “There is much more to be done in funding and expanding schools (the majority in our education system) which are providing more technical and vocational routes into the world of work, such as UTCs and the much-neglected FE Sector.”

The House of Commons committee chair added that outgoing Ofsted boss Sir Michael Wilshaw “has said grammars do nothing to improve social mobility, and share the concerns it will distract us from the debate about early years and a vocational route to success in life”.

It comes after former skills minister Nick Boles conceded in the introduction to the new Skills Plan, unveiled in July in response to Lord Sainsbury’s recommendations, that “technical education remains the poor relation of academic education”.

However, he added that while his department accepted and “will implement all of the Sainsbury panel’s proposals”, this would only happen “where that is possible within current budget constraints”.

The plan, based on recommendations by Lord Sainsbury and his panel, was for radical simplification of the post-16 vocational qualification system – with 20,000 courses to be replaced with 15 new “high-quality routes”.

It was understood at the time that each of the 15 routes would controversially only be available by a single awarding organisation.

But FE Week reported last week that this “myth” had been debunked by the deputy director 16-19 strategy at the Department for Education, Warwick Sharp.

He told the Association of Employment and Learning Providers’ autumn conference on November 1:“There is myth out there that there are 15 qualifications because there are 15 routes,” adding: “I think it will look different across each route.”

Don’t abolish 16-18 apprenticeships!

IPPR are wrong – employers do want to give 16-18-year-olds apprenticeships. The real problem is that schools won’t promote them and government won’t fund them, says Mark Dawe.

A report has been published by an influential think tank that attempts to influence ministers based on a false premise: i.e. employers aren’t interested in offering 16- to 18-year-olds apprenticeship opportunities. This has been presented in Earning and Learning, the latest report from the Institute for Public Policy Research (IPPR), as a reason for doing away with the programme altogether for this age group and replacing it with a predominantly classroom-based pre-apprenticeship programme.

So let’s have a look at the hard data. It is true that the worst economic recession since the war had a negative impact on 16- to 18-year-old apprentice recruitment, but this was temporary. Businesses did look for young people with more work experience for a couple of years, but the number of apprenticeship starts recovered in 2014-15 (to 125,900) and, based on the first nine months’ figures available for 2015-16, we would expect that number to increase again this year. To add to that, employers are currently advertising over 25,000 vacancies on the Find an Apprenticeship website, with the vast majority open to the youngest age group, after legal requirements are taken into consideration.

Combine these numbers and you will really struggle to maintain that employers aren’t interested. However, the reforms mean that from next April, apprenticeships will be the only Department for Education 16-18 education and training programme not completely funded by the government when, in our view, employers should be fully subsidised for taking on these young apprentices.

What privileged and narrow world do these commentators come from?

No, the problem is not employers but the need to make more young people aware of the apprenticeship opportunities available, and not allowing them to be persuaded that apprenticeships are the wrong choice even before they have had the chance to consider all of their options. Neil Carmichael and his committee of MPs have regularly covered the issues surrounding poor careers advice in many of our schools and I’ve written about them in the next edition of FE Week.

The IPPR report further argues that apprenticeships suffer from a lack of progression at level 2. In the past it has been a challenge to persuade employers to move their successful apprentices up further levels but again, this is rapidly becoming out of date when you look at the recent increased take-up of apprenticeships at higher and degree levels. Judging by conversations between providers and large employers planning for the levy’s start, we can anticipate a further boost in numbers at level 4 and above. Part of the problem is the frameworks or standards just did not exist; again, this is being dealt with.

AELP agrees with the IPPR that there is much to commend in the Sainsbury review but neither the review nor the government’s accompanying Skills Plan recommended the abandoning of 16-18 apprenticeships or the introduction of a new pre-apprenticeship programme, when we already have traineeships. They probably recognised that for young people who have been disengaged and demotivated at school, it is not a good idea to force them into a classroom for another two years.

Many industries need and want a level 2 starting point and therefore it would be a denial of social justice to disallow a 16-year-old the opportunity to gain knowledge and proper experience of work. Moreover, due to failings in the schools system, many 16-year-olds need to start at level 2 yet some opinion-formers seem bent on punishing them further. Some even argue that there are no skills developed moving from entry level or level 1 through to level 2. What privileged and narrow world do these commentators come from?

We should be debating what is in the best interests of young people based on evidence rather than institutionally-biased proposals. Brexit and likely controls on migration also mean that it would be madness to starve employers of young people who can earn while they learn. Instead we need to get on with implementing what has already been proposed by the government.

 

Mark Dawe is chief executive of the Association of Employment and Learning Providers

Outstanding Ofsted for Fashion Retail Academy

A glowing ‘outstanding’ Ofsted report has been published today on independent training provider the Fashion Retail Academy.

Inspectors returned grade one verdicts across the board, with managers and governors praised for establishing “a culture of excellence that results in very high achievement for learners”.

The performance of the London-based provider was an improvement on the grade two-overall Ofsted verdict from its previous inspection in 2009.

Principal Lee Lucas said: “We are delighted at the recognition of the unique and pioneering nature of the FRA.

“This would not be possible without the support of our employer and retail partners along with our dedicated and passionate staff.”

The provider, which has charitable status, opened in 2005 as a joint venture between the government and fashion retail.

It was given a mission is to develop and inspire talent for a specialist career in that industry.

At the time of inspection, approximately 900 learners were studying full-time courses from level two to four.

The majority (671) were aged 16 to 19, and most of them were on level three programmes in fashion retail or design.

The report said that teaching, learning and assessment were of the “highest quality”, with working relationships between students and staff “exemplary”.

This applied to numeracy and literacy as well as fashion related studies, as an impressive level of commitment was recognised to all learners achieving “a high standard of skills in English and mathematics”.

It added that learners were helped to develop “a keen awareness of how society and cultural influences impact on retail fashion”, through teachers carefully selecting topics and images to challenge learners’ preconceptions.

It explained this develops their “ability to debate and discuss – for example, in one lesson the teacher presented recent catwalk images of models wearing face-obscuring masks together with newspaper coverage of the ban on wearing a burka in France.

“Learners and the teachers then explored their own views on the subject and discussed what challenges this presented for the industry.”

Support into jobs after courses are completed was also recognised as a priority.

The inspection team, noted: “All learners benefit from a carefully planned work placement or internship within a high street fashion retail business.”

“As a result of excellent ongoing careers advice and guidance, almost all learners gain employment at their first-choice employer or move into higher education.”

Industry masterclass lectures were also praised for helping “learners to thoroughly grasp the necessary skills and attributes demanded by employers and also provide good opportunities for learners to network and talk to a wide range of high-profile fashion retail personalities”.

Reflecting on the success of FRA, which has trained over 7,000 students over the last 12 years, Mr Lucas said: “It has been a catalyst for bringing together an extremely competitive industry for a common purpose to achieve a shared goal; to develop and inspire talent for a specialist career in fashion retail.

“I believe that it is these relationships, along with our continued focus on ensuring everything we do results in positive outcomes for learners, that is the biggest factor in our success.”

Prisoners to work towards apprenticeships

Offenders will be able to work towards an apprenticeship while in prison for the first time under new plans put forward by the government.

The new prisoner apprenticeship pathway, set to be introduced next year, is one of a number of proposals to reform prison education included in the Prison Safety and Reform white paper, published by the Ministry of Justice and National Offender Management Service yesterday (November 3).

Prisoners are not able to study an apprenticeship while in prison.

But the new pathway would mean that education and training done in prison could count towards an apprenticeship after a prisoner’s release.

“We intend to introduce a Prisoner Apprenticeship Pathway to offer prisoners opportunities that will count towards the completion of a formal apprenticeship on release,” the white paper said.

“Prisoners will have access to the same high quality training and education that an apprentice could expect in the community, and will not need to repeat training that they have successfully completed in custody on release, if they can demonstrate competence in the activity they are being trained in during the apprenticeship.”

The education proposals in the white paper are based on the recommendations from a review into prison education carried out by Dame Sally Coates and published in May.

They include plans to hand over responsibility for education and training provision to prison governors, to allow them to commission providers for their individual prisons once their existing contracts have come to an end.

The proposed changes been welcomed by the Association of Employment and Learning Providers, which described the new prisoner apprenticeship pathway as “a major step forward”.

It said that the new proposals would allow prison governors to offer joined-up services for offenders by commissioning the same provider to provide services inside the prison and to support prisoners after release.

“We believe that the key to progress is much greater integration between the education and training opportunities that an offender receives inside the prison gate and the training and employment finding support available to the same individual on release,” an AELP spokesperson said.

Currently prison education is delivered through Offender Learning and Skills Service (OLASS) contracts, held at present by three colleges and one independent learning provider, which are given out by the Skills Funding Agency (SFA).

Manchester College holds the contracts for London, the North East, North West, Kent and Sussex, and Yorkshire and Humber, while Milton Keynes College holds contracts in East Midlands, West Midlands and South Central.

Weston College holds the contract for the South West of England, and People Plus, formerly known as A4E, holds the contract for East of England.

The first prisoners are expected to begin the prisoner apprenticeship pathway in 2017.

The white paper said that full details of how the government will implement the recommendations from the Coates review would be set out in a detailed education strategy next year.

AELP chief executive Mark Dawe said the white paper had the potential to be “the most important game-changer in decades for transforming the successful rehabilitation of ex-offenders, saving the taxpayer millions of pounds in the process”.

 

Consultation sparks hope for early years educator apprenticeships u-turn

Campaigners hope overwhelming pressure has forced the government to clear the way for a u-turn over GCSE requirements for early years educator (EYE) apprenticeships, following the launch of a new consultation.

It follows outrage when it was announced in September 2014 that EYE applicants would have to gain at least a C in maths and English before they could graduate.

A campaign to convince the Department for Education to reverse the decision for level three apprenticeships was launched in April by Cache, a specialist awarding organisation for courses in the care, health and education of young people.

It thinks viable alternative qualifications, such as Functional Skills, should be allowed.

Today’s launch of the consultation on what numeracy and literacy skills are needed by EYEs, by the minister for early years Caroline Dinenage, was greeted as a major step in the right direction.

Caroline Dinenage
Caroline Dinenage

Julie Hyde, associate director of Cache, said she hopes it will “pave the way for the GCSE-only rule to be dropped, and for Functional Skills to be reinstated as an equivalent qualification for level three EYE.

“There is no doubt that the GCSE-only policy has seriously impacted on recruitment.

“Reinstating Functional Skills will enable early years settings to again hire the brilliant practitioners they need, and will again allow staff to progress, and remain in the workforce. “We fully support the need for early years practitioners to have high-quality literacy and numeracy, and Functional Skills provides this.”

She added: “Caroline Dinenage deserves credit for listening to the sector and to our concerns, and for launching the consultation.

“We would encourage everyone to respond.”

FE Week’s sister paper FE Week also reported a shortage in early years teacher trainees in January this year.

In a speech in July at the National Day Nurseries Association Conference in Milton Keynes, then childcare and education minister Sam Gyimah acknowledged widespread concern about the impact of the GCSE requirements on EYE teacher recruitment.

Mr Gyimah said: “The most common issue that people have raised with me in terms of attracting staff has been the recruitment of staff at level two and three since the introduction of the GCSE requirement for level three staff in September 2014. “I have heard from employers that they feel the requirement is reducing the pool of new staff coming into the sector.”

He added: “I have heard the concerns from significant parts of the sector for swift action to remove the GCSE requirement and I want to ensure you that I will be revisiting the options on how to make sure the sector has both the right number of staff and the right quality of staff.”

Commenting on the launch of the consultation that will run until November 28, Mr Gyimah’s replacement, Ms Dinenage, said: “Making sure our children learn, develop and flourish at this critical time in their lives is vital – we want to recruit and retain the very best staff for this, that’s why we are looking at the skills needed.”

She is set to make her first major speech to childcare professionals at the Nursery World Business Summit 2016 next Tuesday (November 8), when it is thought she will indicate willingness on the part of the government to compromise on the issue.