Written evidence submitted by the Department for Business, Innovation and Skills (ALE0036)

Introduction

1.1              Good English and maths skills are the foundation on which all achievement in education depends.  They also enable people to work and function in everyday life and are associated with other positive outcomes, such as improved health and well-being. It is this Government’s priority to help all adults throughout England get the literacy and numeracy skills they need to find, sustain and progress in employment, support their families and engage in their communities.

1.2              The 2011 Skills for Life survey[1]reported that 24 per cent of adults aged 16-65 (8.1 million people) lack functional numeracy skills[2] and 15% (5.1 million) lack functional literacy skills.[3] Furthermore, 2012 data[4] show that around 37 per cent of 19 year olds had not yet attained GCSEs at A* - C level, or equivalent qualifications, in both English and maths.   This picture was confirmed by the OECD’s International Survey of Adult Skills (ISAS) published in October 2013[5]; England is around the OECD average for adult literacy skills, but is below average for adult numeracy, ranking 17th out of the 24 participating countries.

1.3              Both the Skills for Life Survey and the ISAS show that literacy levels have improved over the last decade and, indeed England is one of the few countries to have experienced this change.  However, improvements in other countries mean that we continue to perform at the average internationally and we have made little progress in improving the numeracy skills in the adult population.

1.4              When this Government came into office in 2010 we were determined to raise the standard of English and maths and increase the level of skills in the economy.  This requires us to improve the performance of the further education (FE) sector by setting challenging aspirations and high expectations of learners and providers. The ISAS[6] Survey gave a clear message of the continuing need to do this and, in particular, to urgently address the poor basic skills of young people in England. 

1.5  Central to this is to make sure that all people, and particularly young people, are clear about the importance of studying English and maths alongside their other choices and continuing to do so until they have achieved GCSE A*-C[7].  We have embedded English and maths in all our major programmes, including Apprenticeships and traineeships, and within study programmes for 16-19 year olds to ensure people understand the significance of these subjects.

1.6              We continue to fully fund English and maths for all adults with an identified need up to and including GCSE regardless of their employment status.  Since 2011, we have also actively prioritised support for unemployed people who need to improve their skills to get into work.  Closer working between Jobcentres, colleges and other providers means that many more learners are starting English and maths courses after being referred by their Jobcentre adviser.

1.7              We know that many adult learners with poor English and maths skills may have had a difficult experience of education in the past.  We encourage and support a wide range of different types of provision so that adults can learn in the way that suits them, for example, by learning in the workplace, learning in community settings, through traditional college courses and using technology and online learning. 

1.8              We are investing in the FE sector to build up the capabilities of the teaching workforce by investing in continuing professional development and encouraging good quality graduates to come into the profession.  We are also challenging the sector to raise standards and innovate through adopting new approaches and using learning technology.  We are confident that our reforms to English and maths qualifications, to Skills Funding Agency audit arrangements and to the way in which providers are rewarded and held to account will, once fully implemented, result in a significant improvement in the quality of the education that is provided and ultimately to the skills of the nation.

1.9              We are, however, not complacent. We know we still have a long way to go to match the best in the world. We are determined to address the challenges presented by the OECD survey as well as responding to other evidence and ideas of what works best for learners in reading, writing and maths.

2.              What is the Government currently doing to help adults improve their reading, writing and maths skills?

2.1              Every year we support over half a million adults to improve their English and maths skills.  Provisional data for the first quarter of the 2013/14 academic year shows that, 521,400 adult learners aged 19 and over participated on English and maths training. Of these 403,400 participated on an English course and 388,100 participated on a maths course. Final data for the 2012/13 academic year show the success rate for English and maths courses increased by 3.3 percentage points to 83.4 per cent.

2.2              To support this, Government investment in adult FE and skills in 2013-14 will be £4.1bn. This investment has the capacity to support more than 3 million learners.  In the academic year 2012/13 we spent £178million on English course provision and £168 on maths.  It is calculated that each pound of government investment in basic skills generates net economic benefits of £23 over the rest of the learner's working life[8].

2.3              We know that some people may have had previous negative experience of learning and can be intimidated by formal courses in college venues.  Community Learning helps engage some of the most disadvantaged individuals and groups in our communities. Community Learning takes place through flexible, non-formal but structured courses.  Within Community Learning, family learning programmes, including Family English, Maths and Language (FEML), are being delivered in local venues using a diverse range of learning approaches.  Government is supports Community Learning in 2013/14 with a contribution of £210m per year.

Supporting young adults

2.4              A good transition from school to further education and employment is an important factor in young peoples’ success as adults. We are improving transitions by: raising the quality of further education and training; reforming qualifications and the curriculum to better prepare pupils for life after school and college; making the higher education system more efficient and diverse; and providing nearly half a million employment and training opportunities for 18 to 24 year-olds.

2.5              Professor Alison Wolf recommended that ‘students who are under 19 and do not have GCSE A*-C in English and/or maths should be required, as part of their programme, to pursue a course which either leads directly to these qualifications, or which provide significant progress towards future GCSE entry and success’[9]

2.6              We accepted this recommendation and are now setting high expectations for our young people so they are clear about the importance of studying English and maths alongside their other choices.   As part of the 16-19 Study Programmes students continue to study English and maths if they did not achieve a GCSE grade C in these subjects by the age of 16. The increased focus on improving attainment in maths (and English) GCSEs is supported by a funding condition on providers which comes into effect from September 2014.

Improving qualifications

2.7              We have a programme of reform underway to simplify the qualifications regime and improve their quality. These reforms will encourage schools and colleges to offer those qualifications which support progression from school to further education and university and which clearly signal the skills and knowledge that employers have told us they require, so that people can enter an Apprenticeship or other skilled occupation.

2.8              The provision of English and maths are at the heart of our secondary school qualification reforms and fully-funded English and maths provision up to level 2 is available for adults who lack these skills with GCSE A* to C being the gold standard aspiration for all.

2.9              In 2017, reformed GCSEs in English and maths will replace existing GCSEs as part of the study programme English and mathematics requirement. The new English and maths GCSEs will have a closer focus on essential skills like spelling, grammar and problem solving.  In simplifying post-16 education, we are undertaking a cross-Government review on the future of other post-16 English and maths qualifications.

2.10              The reformed GCSE subject content will provide pupils, post-16 students, adults, employers and further and higher education institutions with the reassurance that those who achieve have sufficiently rigorous numeracy and literacy skills to progress into further study, training and employment. For example, in mathematics we have strengthened the Key Stage 3 content which is essential for all students, (such as arithmetic, ratios, proportion), increased the percentage of marks allocated to real world problem solving, and in English, we have increased the proportion of marks on SPaG from 12% to 20% as this is essential for progression into both further study, training and the world of work.

2.11              We withdrew Adult Basic Skills Certificates from September 2012 in favour of Functional Skills and GCSEs which provide greater rigour in assessment standards and more stretching for the learner.

Developing the workforce

2.12              It is essential that we attract new teachers and trainers into further education and ensure existing teachers and support staff increase their skills to deliver English and maths to a higher standard.

2.13     We are providing funding of £9m in 2013-14 and £6m in 2014-15 to attract new, graduate teachers of English and maths and those wanting to specialise in teaching students with special educational needs in the further education (FE) sector. This includes bursaries of up to £20,000 for maths graduates and £9,000 for English graduates to teach in these areas.

2.14     We will continue to support the maths enhancement programme designed by NCTEM (National Centre for Teaching Excellence in maths) which will train up to 2,000 existing maths teachers to enhance their knowledge and skills to teach this subject. The Education and Training Foundation is supporting the scheme with funding of £300k for subsidies in 2013/14.

2.15              We have allocated £200K to support development of an English enhancement programme for post-16 English teachers, similar to that which exists for maths. In addition we are allocating £810,000 in 2013-14 and £540,000 in 2014-15 to fund FE Centres of Excellence in Teaching and Training (CETTs) that will deliver ITT and CPD; identify innovative and best practice in teaching English and maths to post-16 students.

2.16    We are introducing a ‘premium graduate entry scheme' to support recruitment of maths and English graduates to FE. Participants will achieve a Masters degree in two years of commencing teaching. We will expand National College for Teaching and Leadership (NCTL) marketing activity for schools and information supplied by UCAS, so it covers Further Education for 2014/15.

2.17              We will introduce a FE Subject Knowledge Enhancement Scheme, to better prepare graduates who otherwise would not be able to do FE Initial Teacher Training because they lack the necessary subject knowledge to start FE ITT maths courses. In addition we plan to introduce a ‘Golden Hello’ programme to encourage retention of new maths teachers and introduce an award to incentivise and support institutions to recruit additional maths graduates in 2014.

2.18   We are also supporting the Education and Training Foundation to create a cadre of English and maths specialists, who will support teaching of English and maths in a locality. This takes forward an important recommendation from the independent Commission on Adult Vocational Teaching & Learning.

Ensuring quality

2.19              We have set high expectations for learners, so that each one can be stretched and helped to gain the skills and knowledge that employers want. Many providers already do this but, as Ofsted and the Skills Funding Agency audits have confirmed, too often people have not been properly assessed or challenged and so finish their courses knowing little more than when they started, and certainly not enough to consolidate and build on those skills. 

2.20              Through the Skills Funding Agency, we have strengthened the Assurance Arrangements through which we hold providers to account for their use of public funds. From August 2013, we made clear the requirement for more evidence that learners have been put on an English or maths course which stretches them to achieve at a higher level than they were when they started.

2.21              We will also develop methods of capturing the value that providers add during learning.   Effective management information systems which can systematically collect and report initial assessment data and subsequently record learning and qualification outcomes are however not used routinely by every provider.  To help improve this we plan to develop and trial a means of capturing data on learner progress over the course of a learning programme. This will initially focus on measuring and recording distance travelled for English and maths learners. 

2.22              Linked to our workforce development programme we are raising the status of the FE profession, with a Chartered Status for high performing colleges.

2.23   Inspection of English and maths provision by Ofsted is at the heart of the Common Inspection Framework for further education and skills. The Department for Business Innovation and Skills' FE Commissioner also plays an integral part in our plans to create a rigorous and responsive system that delivers the best for learners, employers and the economy. The FE Commissioner will lead a faster and more robust intervention process in response to findings from independent inspection reports.  The FE Commissioner will review the position of any college which has been graded as ‘inadequate’ by Ofsted, fails to meet national minimum standards of performance set by the Department or which receives an inadequate assessment for financial health or management by the Skills Funding Agency. The FE Commissioner will challenge failing colleges to take the necessary action to swiftly tackle any poor performance including a process for administering failing colleges while protecting learners.

2.24              The Education and Training Foundation is supporting the drive for high standards in teaching and learning across all aspects of delivery including English and maths as well taking forward the recommendations from Frank McLoughlin’s important commission into adult vocational teaching and learning (It’s About Work[10] – March 2013).

Improving performance and accountability

2.25              To improve performance we are bringing ‘rigour and responsiveness’ to the further education and skills system so that it can deliver an internationally competitive skills base that will help businesses to grow, and individuals to reach their potential.

2.26              We know we need high quality 16-19 education and training to ensure young people are equipped to go on to higher education or sustainable employment.  To secure this we need an approach to accountability that incentivises high quality provision for all students, encourages students to make informed choices, and identifies poor performance quickly. 

2.27              The proposed new measures in our 16-19 Accountability consultation included, for the first time, recording student attainment at level 2 and below including reporting the attainment of English and maths for those who failed to achieve a grade C or above at age 16 in additional measures in 16-19 performance tables.  This will ensure that schools and colleges are doing their best to support all students in securing positive outcomes, not just high attainers.

2.28              In addition we are introducing a new school and college performance measure which recognises the highest level of technical training achieved by students aged 16-19. This measure will be known as the Technical Baccalaureate (TechBacc). It will be introduced for courses beginning in September 2014, for reporting in the 16-19 performance tables from 2016. To achieve the TechBacc, students will need to obtain:

• an approved level 3 Technical Level qualification (from the list expected to be published in November 2013 or its successors);
• core mathematics – a level 3 mathematics qualification which may be an A level, AS level, an International Baccalaureate maths certificate, or another approved level 3 mathematics qualifications, when these become available; and
• an Extended Project Qualification.

Supporting Innovation and the use of learning technology

2.29              We want to see many more radical approaches to the use of available educational technologies. It is clear that the use of Open Educational Resources and online learning have some clear advantages over the traditional approach, such as, accessibility and inclusivity as well as allowing access to the best content and teachers regardless of location. There is evidence that, properly employed, new technology can enhance teaching and drive up standards. We will ensure that the funding and regulatory system encourages providers to innovate with online learning alternatives to traditional delivery routes.  For 2014/15 the Skills Funding Agency, working with the sector, will look at how we can put in place appropriate funding mechanisms to better facilitate online learning and the use of technology. It will focus on a specific range of qualifications and will test out approaches working with awarding organisations and with the sector.

2.30              Through a Randomised Control Trial, we are examining the effectiveness of different modes of learning for English and maths, linked with a large longitudinal study. We are testing for any difference in skill gain between traditional 'face to face' learning and 'blended learning' (where significant elements are delivered via on-line alongside classroom based teaching) and, if there is, the size and direction of the difference.  The longitudinal aspect of the study will measure any potential loss of skills over time and whether a lack of use contributes to this.

2.31              We are keen to drive up the use of technology in English and maths learning and will be trialling innovative approaches to its use. We will test the impact of mandating, from day one, 18-21 year old JSA claimants with English and maths skills below Level 2 to English and maths training that is predominantly blended and online.

Working with partners

2.32              We have supported NIACE in conjunction with a number of key partner organisations across the public and private sector to set up the Maths4us initiative to recruit maths champions and create a number of resources to support learners in developing and improving their maths skills.

2.33              We are also aiding National Numeracy with the launch of the National Numeracy Challenge in March 2014. This is designed to improve adults' confidence and competence with maths.  It will harness the talents of employers, colleges, community organisations and individuals to improve their maths using methods that suit them.

3.              How can the Government make sure that adults have the right skills that can help them find a job, which in turn will help the country, and more widely?

3.1               A high quality skills base underpinned by good literacy and numeracy skills will help build a strong, sustainable and balanced economy. Improvements in workforce skills account for about a fifth of UK economic growth[11]. Although literacy and numeracy levels in the UK are around or below the OECD average, high skilled workers are more likely to be employed than in other countries[12], and workers make more frequent use of English and maths skills than across the OECD on average[13]. The Government recognises that improving skills in reading, writing and maths is a proven way of improving people’s chances of getting into and staying in work and this gives us a good foundation for growth in the future.

3.2              By creating more flexible labour market policies we are enabling employers to make the most effective use of the skills supply through the way they hire and manage staff and we will continue to work with employers to make the labour market more flexible, efficient and fair. 

3.3               We know the earnings returns to Level 1 numeracy qualifications increase over time – from 3% in Year 1 to 12% in Year 6. There are also immediate and persistent earnings returns to numeracy qualifications at Level 2 - starting at 1.7% immediately post attainment rising to more than 13.7% after seven years[14].  Likewise, completers of Level 2 numeracy qualifications see an immediate 3.5% increase in employment outcomes. This increases steadily to almost 10% after seven years. The impact of attaining Level 2 literacy qualifications is also positive, with a 4.8% impact at the end of Year 7[15].  It is these strong returns to individual outcomes and to the economy that underpin our commitment to continuing to invest in education and training for adults and to help them get the skills they need to work.

3.4              Adults without basic literacy and numeracy are more likely to be unemployed.  We therefore fully fund targeted training in English and maths and other subjects for people on Jobseeker’s Allowance (JSA) and Employment and Support Allowance in the Work Related Activity Group (ESA (WRAG)) from day one of their claim.  Universal Credit claimants also have a Claimant Commitment that sets out the work preparation activities that they have to undertake as a condition for receiving Universal Credit. This can include mandatory English and maths training if the Jobcentre adviser identifies a learning need below level 2 that may be a barrier to work.

3.5              We have given colleges and other training providers the discretion to fully fund training for people on other benefits, provided that providers have sufficient funds to do so and that they can demonstrate that the training is being provided to help individuals enter or return to work.

3.6              Pre-employment training can be delivered as single units from the Qualification and Credit Framework or full qualifications, depending on what the individual needs to help them obtain work and progress. In the 2012/13 academic year 500,900 learners benefited from support for the unemployed (those nearest the workforce), of which 496,200 were aged 19+.[16]

3.7              We introduced our new traineeship programme in August 2013.  This is focused on giving low-skilled, unemployed 16-23 year olds the skills and experience they need to be able to successfully apply for an Apprenticeship or other jobs.  A traineeship is an education and training programme that has at its core work preparation training, English and/or maths and a high quality work experience placement.  Employers are clear that literacy and numeracy are crucial employability skills and therefore English and maths are a central element of traineeships. All young people undertaking a traineeship will be required to study English and maths, unless they have achieved a GCSE A*-C in those subjects or, for those aged 19 and above, a GCSE A*-C or a functional skills qualification at Level 2. Traineeships have received strong backing from employers and over 500 training organisations have indicated they will deliver them in 2013/14.

3.8              Within the Autumn Statement 2013 we announced that we will pilot a new scheme of support, predominantly online, for 18 to 21 year olds on Jobseeker’s Allowance in two parts to ensure they continue to work towards achieving the levels of skills that are vital in the labour market. JSA claimants without level 2 qualifications in English and/or maths will be required to study these subjects for up to 16 hours per week alongside job search.  After 6 months on JSA, claimants will be required to participate in a work experience placement, a traineeship or other relevant skills provision, or community work placement.

3.9              Within our offender learning programme we ensure that offenders in custody are given the opportunity to acquire the underpinning functional, employability and vocational skills including skills in literacy and numeracy, that will enable them to gain worthwhile, sustainable employment and in-so-doing reduce the likelihood of re-offending.  Learning is increasingly provided through secure IT systems and it is supplemented with advice from the National Careers Service and initiatives to support those offenders interested in developing their own enterprises. 

Supporting employers and enabling local action

3.10              For many people, it is the opportunity and to learn at work that provides the best stimulus to take up training.  Employers in the UK make a very substantial investment in the skills of their workforce, but we recognise that more needs to be done to increase this and ensure that the contribution from public funds is directed towards training that is most likely to raise productivity and employee skill levels. Employers are working with government to help shape skills provision, including literacy and numeracy, through our £340 million Employer Ownership Pilot. We actively encourage collaboration between colleges, universities and business to help ensure the basic skill levels and employability of vocational learners and graduates meets the needs of employers.

3.11              We have increased expectations for learning English and maths within our Apprenticeships programme.  In order to stretch apprentices and give them the best chance to progress in their careers, from 2014/15 all intermediate apprentices will be required to work towards achieving a Level 2 qualification in English and maths.  We will continue to review requirements to ensure apprentices have the skills and qualifications that are widely recognised and valued by employers. We have also said that we will make sure more apprentices and training providers are aware of the reasonable adjustments applicable to disabled learners studying English and maths.

3.12              Local enterprise partnerships (LEPs) bring together local authorities with businesses in their area, to tackle the issues that are preventing their business environment from being as good as it might be and directing investment towards local economic development.

3.13              England’s cities are being given new powers and freedoms through City Deals. This will support skills growth, from engaging with local businesses to boost employers’ demand for literacy and numeracy skills and Apprenticeships to using creative incentives to attract private sector investment or retain skilled graduates. We believe that transferring powers from government to cities makes it easier for cities to help achieve economic growth.

4.              What are the best ways to help adults learn how to read, write and do maths—through formal education providers or in a different way?

4.1              Learning to read, write and do maths requires many different forms of learning which are designed to suit different people at different times and varying stages of their “learning journey”. The nature of the funding entitlement and the freedoms and flexibilities available to providers mean that provision can be adapted to fit learner needs and circumstances.

4.2               A recent review of evidence on improving adult literacy and numeracy skills[17] identified several features of effective literacy and numeracy provision. The review found that teachers need to have both good generic teaching skills and subject area knowledge. Effective practice in both literacy and numeracy builds on learners’ experiences and addresses a lack of confidence by allowing adequate time for active reading or helping learners to overcome fears or misconceptions about maths. Learners make greater improvements when they are taught by English teachers with qualified teacher status and maths teachers qualified in maths to Level 3 or above. Learners also benefit from being taught by full-time teachers.  

4.3 English courses generally cost more than maths courses, with Entry Level provision being the most expensive, since learners at lower levels tend to have greater needs. Furthermore, longer courses tend to be most cost-efficient due to fixed starting costs.

4.4 Workplace-specific English training can be expensive and participation on short workplace training is shown to have limited impact on employee literacy in the short term. However, such courses do reach people who do not normally access such learning opportunities. Workplace learners who engage voluntarily and use their newly-acquired skills at work or in everyday life do improve their skills and they are more likely to go on to engage in further education and other training. Additionally, vocational courses where literacy and numeracy training is embedded have higher retention and success rates than courses where these are not embedded.

4.5 There are greater gains for lower level English and maths learners where courses involve tuition of over 100 hours, as learners require more support and time to make significant progress than is generally available in short courses. However, short courses are often sufficient for people needing to ‘brush up’ existing skills.

4.6              Community Learning provides flexible, non-formal and usually unaccredited but structured courses, based on national objectives. Wave 1 of a longitudinal survey of 4,000 learners who had taken part in community learning found that as a result of their course:

71% felt their quality of life had improved;

82% felt more confident in their abilities;

51% felt they had a better understanding of what they wanted to do in life;

68% felt they had more opportunities.

4.7              Family learning programmes are a key element of Community Learning covering a diverse range of learning approaches in which children learn with their parents, grandparents or carers. Family learning offers two main types of course: Wider Family Learning (WFL) and Family English, Maths and Language (FEML).  FEML provision is designed to improve the English, maths and language skills of parents/carers and their ability to help their children as well as improving children's acquisition of English, maths and language skills and developing information and communication technology (ICT) skills.  FEML programmes cover topics such as family literacy, playing with language, family numeracy and family finance. In 2012/13, there were 52,600 participants in Family English, Maths and Language and 74,400 Wider Family Learning participants.

4.8              BIS supports unionlearn, the learning and skills organisation of the TUC, to encourage individuals both in the workplace and their local communities to engage in learning activities. The funding provided by BIS supports individual projects aimed at reaching workers, many of whom would not otherwise engage in learning such as older workers,  the disadvantaged, workers with no qualifications, those with low skills or literacy and numeracy needs.  

4.9              We know that for many people with learning difficulties and/or disabilities school and adult education can be a rewarding experience helpings them gain the basic skills which they need for employment and to participate in their community and lead a more independent life. We are clear of the importance of tackling the issues faced by those who have dyslexia or dyscalculia but also recognise that dyslexia and dyscalculia do not necessarily prevent people from having a good standard of English and maths.  Some aspects of literacy and numeracy are harder to teach and to learn and may require different teaching techniques but we do not believe that people should have low expectations just because people find some things difficult to learn.

4.10              The provision of support to learn to read, write and do maths has to be broad and delivered flexibly. There is considerable scope for new opportunities and routes for adult learning.  We value the role that training providers and support organisations play across all parts of the FE and Skills system in the successful delivery of learning and skills, particularly in supporting those furthest away from learning and employment and look forward to a positive and engaging debate through this Inquiry.

6 February 2014