NALA Submission to SOLAS

8/3/2019 NALA Submission to SOLAS

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NALA submission (19/1/2012)

to the consultation paper on

the establishment of SOLAS

A consultation on the establishment of SOLAS

1. The questions in this survey relate to the text of the consultationdocument which has been circulated. Questions 2 - 7 relate to PolicyArea 1: How we administer and fund Further Education and Training

in Ireland. Questions 8 - 13 relate to Policy Area 2: How to decidewhat courses to deliver? Questions 14 - 18 relate to Policy Area 3:How we guide and support learners and potential learners inchoosing the right course. Questions 19 - 21 relate to Policy Area 4:How we manage and support our staff. There are also some finalquestions at the end of the survey.

Your organisation and contact details

National Adult Literacy Agency

Sandford LodgeSandford CloseRanelaghDublin 6Website: www.nala.ie

Contact person: Inez BaileyEmail: [email protected]

Telephone: 01 412 7900

2. Policy Area One - How we manage, fund and administer FET

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NALA provided the following response (19/1/2012) tothe consultation paper issued by the Department ofEducation and Skills (20/12/2011) on theestablishment of SOLAS.

The submission responds to the set of specificquestions provided in that paper, in the order theywere asked.
http://www.nala.ie/mailto:[email protected]://www.nala.ie/mailto:[email protected]


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How can we use funding and administration structures to improve

outputs and outcomes?

Our response to this question focuses on two elements:

building on examples of proven best practice, and

connecting funding to targets and monitoring their progress.

Building on examples of proven best practice

The National Qualifications Authority of Ireland (NQAI) is a good exampleof an established organisation which could usefully inform thedevelopment of SOLAS. Over the last 10 years it overcame manychallenges, in particular the way it balanced the legal functions thatimpacted on a significant number of institutions and organisations acrossthe education and training sector. It:

successfully bridged the education and training divide, and, developed good working relationships with all stakeholders.

A key element of their success lay in their approach and their strongvalues and principles, formulated in their first and successive strategicplans. A set of values and principles is contained in their current strategicplan see http://www.nqai.ie/documents/strategyreport2008-2012.pdfpage 11 or below:

____________________________________NQAI Values and Principles

Focus on the learnerWe will promote a culture of lifelong learning and the continued development ofan accessible, responsive, flexible and integrated qualifications system. Thelearner is the focus of the qualifications system. We will promote equality for alllearners and access to the qualifications system for all in society.

Partnership with stakeholdersWe place particular importance on working effectively and efficiently with allstakeholders in education and training and beyond to achieve our goals. We willwork in consultation and co-operation with national stakeholders andinternational partners to achieve our goals. We will respect their individual rolesand responsibilities. We will seek, where appropriate, to lead change and todevelop co-ordinated approaches to qualifications issues.

QualityQuality is integral to the qualifications system and to how we approach our work.We will work to the highest standards of public service with due regard to bestmanagement practices, value for money, accountability and service delivery.

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Transparency and clarityWe will maintain an open and transparent approach to our work and makeoptimum use of information technology and communication tools. Clarity andsimplicity will inform our engagement with stakeholders.

Research and evaluation

Our work will be informed by evidence, research and evaluation. This comprisesawareness of qualifications needs and major trends and developments in relationto both qualifications and the public service context in which we operate.

____________________________________

SOLAS could use the above values and principles as a basis to determineand publish their own values and principles under which theorganisational structures will operate. This will enable SOLAS to develop atransparent and consistent way of working with a diverse range of

stakeholders, and assist in the building of common understanding andgoodwill within and between organisations. It should also assist SOLAS torecognise the distinct traditions and values of education and training inorder to ensure that both continue to evolve and flourish within the newsystem. This will contribute to improved outputs and outcomes.

Examples of how the NQAI values worked

1) In their Consultative Group they asked stakeholders to discussparticular issues with them when necessary. This meant NQAI staffdeveloped good working relationships with staff in other bodies,understood the perspectives of multiple stakeholders as well asshared information about their work in a positive and open way.Meetings were very well attended and well received. The NQAI alsopublished much of their documentation on the web which showedtheir transparency.

2) The NQAI has much experience of working with other groups thatSOLAS need to consider: The Authority considers that theinterdependence among stakeholders for the achievement of the

goals and objectives set out in this plan is a positive aspect of thenature of the work of the Authority. Nevertheless, the Authorityrecognises that there are risks associated with this and will workwith stakeholders to mitigate risks, while also recognising that thenature of the risks can equally enhance the potential for effectiveimplementation. (Strategic Plan)

Connecting funding to targets and monitor progress

The following need to be set and agreed with providers: Objectives and targets for funding received;

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Costs of interventions and programmes for specific target groups;and

Monitoring of these targets and their resourcing

People with the lowest educational attainment have benefitted least from

education and training, including FET. Funding incentives to work withidentified target groups need to be put in place.

Funding for priority groups, for example, people with low educationalattainment, should be estimated for each Local Education and TrainingBoard (LETBs) and aligned to national targets (for example, National AntiPoverty and Social Inclusion Strategy (NAPs Inc) and National SkillsStrategy (NSS)). This can be best achieved through the Central StatisticsOffice (CSO) figures for people with less than a level 4 qualification.

Funding should be made available based on the estimated need in an areaand numbers who can be supported within the FET infrastructure.

Existing FET infrastructure should be expanded through the use ofdistance, self-directed and blended learning provision.

Greater flexibility in provision should also be required by SOLAS, such asweekend provision.

In relation to people with literacy and numeracy needs, there should alsobe a relationship between the national target to reduce the number ofpeople with low literacy and a related target set for each of the LETBs.

The provider should collate information and report each year on progressmade as a result of an FET intervention based on:

initial and final assessments, and

certification achievement, if appropriate.

Progress at an individual level can be recorded using a personalidentification number (PIN), such as the PPS number, while evaluationscan provide efficacy data at programme level.

Progress towards adult literacy and numeracy targets can be informed byinternational studies such as PIAAC (Programme for the InternationalAssessment for Adult Competencies) and evaluations of progress at LETBlevel. Adult literacy targets are identified in the NAPS Inc and in a broadersense the Programme for Government 2011, which commits to:

address the widespread and persistent problem of adult literacy

through the integration of literacy in vocational training and throughcommunity education.

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3. Is there a particular funding model which works best?

Currently, 0.3% of the total education budget is allocated to discrete adult

literacy development, with funding for other further education and trainingcontaining no obligation to raise adult literacy and numeracy standards aspart of their programmes. There is simply not enough value being gainedfrom the resources allocated to all further education and training. Thereneeds to be a policy shift to make sure that scarce resources are prioritisedfor those with the greatest need, that is, people with less than a Level 4qualification. This should be done by:

ring-fencing dedicated resources for adult literacy to respond to thesignificant demand for discrete adult literacy services.

connecting funding to the raising of adult literacy and numeracystandards as part of all FET programmes.

Irish evaluation results

The evaluation of the Labour Market Activation Fund (LMAF) programme hasmade recommendations about the strengths of the LMAF funding model. Oneof the areas it highlighted was the difficulty of reaching and supporting certaingroups of people.

Some key learning points from this evaluation relevant to funding are:

To ensure a comprehensive approach to meeting particular labourmarket activation needs, consideration should be given to splittingany future funds into dedicated theme-based streams. Thesefunding streams would offer packages of funding for whichproviders could compete based on demonstration of how they wouldaddress, for example: a particular activation issue or target cohort;skills needs in a particular sector (or issues arising from decline in aparticular sector); or roll-out of a proven activation level at a widerregional or national level.

A multi-annual approach to funding labour market activationprojects should be considered in any future Fund to maximise theimpact of interventions which are able to demonstrate success.

As part of the approach to funding, potential should be investigated forsetting aside resources to address barriers to participation and engagementsuch as travel and childcare barriers, allowing proposals for holistic responsesto meet target group needs.

International evaluated approaches

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Early in the 1990s, Sweden suffered a severe recession, with unemploymentsoaring 482% between 1990 (1.7%) and 1993 (8.2%). In 1997 Swedenlaunched the Adult Education Initiative (AEI), a five-year adult education andtraining programme with the aim of halving Sweden's unemployment rate.Also known as the "Knowledge Lift, the initiative sought to reduce

unemployment not through providing specific workplace vocational training,but by achieving a general, rapid boost in the overall knowledge and skills ofthe population, with particular emphasis on individuals with lower levels ofeducation (Ministry of Education and Science Sweden, 1999). Theunemployment rate was reduced to 4% by 2000.

Finland's Noste initiative (2003-2009) was similar to the Swedish approach.Both were large scale policies, targeted at workers with relatively poor skills,with the aim to increase qualification and participation rates. It enabled theachievement of a large number of qualifications, and has been shown tohave provided a range of employability-related benefits for those with thelowest skills.

In the US, the state ofMassachusetts has been particularly successful atimproving adult literacy provision. External evaluations found a high rate ofprogression for adult literacy students, with 56% gaining at least one gradeequivalent and approximately 30% gaining at least two grade equivalents(Comings and Soricone, 2005). This occurred as policy shifted its focus toimproved service quality. For example, in 1991 funding was very low but the

system took on 40,000 learners. Soon after, Massachusetts decided to cut itsnumbers of learners by two-thirds to enable a focus on delivering qualityservices. Over time, funding levels have risen and Massachusetts againserves nearly 40,000 learners per year, but with much greater effectivenessthan it did in 1991. Quantity has followed quality.

4. How can we better measure value for money?

Value for money is usually defined in terms of economy, efficiency andeffectiveness and is concerned with rationale, continuing relevance andimpact.

We can better measure value for money by:a) Agreeing a shared understanding between all stakeholders at the

start about what is meant by value for money and how it will bemeasured; and

b) Regularly measuring value of money internally and externally.

SOLAS and the LETBs need to:

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Develop and embed a culture of evaluation using tools such as theBalance Scorecard system which encompasses a number ofperspectives to be considered when measuring value for money in acontinuous systematic fashion. The Evolving Quality Framework forAdult Basic Education is another useful tool to support evaluation;

Be properly resourced to do evaluations; and Publish evaluation results.

SOLAS also need to:

Do a quality review within the timeframe of the SOLAS strategicplan;

Be subject to a performance review by the Minister for Educationand Skills in line with the provisions of the Qualifications and QualityAssurance (Education and Training) Act 2011 (this would be in

addition to the work of the Comptroller and Auditor Generalsoffice);

Review the performance of LETBs; and

Ensure that self evaluation processes involving customers orlearners should be a feature of all FET funded programmes.

Value for money in adult basic education

When assessing adult basic education initiatives, international policymakerstend to focus either on achievement or participation rates. Measures of

achievement tend to be based on qualifications, as these are more readilymeasured than improvements in skill levels. Both England and the US focusprimarily on measures of achievement; however, the alternative offers abroader range of positive outcomes. Most countries focus on participationlevels, an approach supported by research evidence (See A LiteratureReview of International Adult Literacy Policies NALA / NRDC, March 2011)which finds a wide range of individual benefits associated with taking part inadult education including adult basic education. A focus on participation alsosuggests a policy emphasis on adult literacy as a means for improving social

capital and civic engagement. Therefore, metrics for people who aremost in need should include participation and persistence as well asachievement.

In the late 1990s, NALA with the VEC adult literacy service devised anEvolving Quality Framework for Adult Basic Education. This Frameworkoutlines what a good adult literacy service looks like and a means by which itcan evaluate itself. This work informed the development of qualityframeworks in other programmes (Youthreach and Community Education).

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5. What criteria or requirements should be included in Service

Level Agreements?

Service Level Agreements should include the following:

success criteria and how they will be measured;

data collection and reporting responsibilities; and demonstration of processes to ensure learner involvement, as well

as other local stakeholders in decision making.

The following are specific inclusions around adult literacy:

Service Level Agreements should have specific success criteria ofmaking improvements in literacy and numeracy levels.

Service Level Agreements should allocate a set minimum of fundingfor adult literacy provision for those with the greatest need.

Service Level Agreements should require providers to have a policy,implementation plan, and evaluation system to integrate literacy into FET.

Service Level Agreements should require providers to buildcomprehensive blended learning approaches into programmes, suchas www.writeon.ie.

6. How can we ensure an appropriate mix between public and

private provision?

SOLAS should have public tendering opportunities to enable theappropriate mix of provision.

7. How can we improve our IT systems in an integrated way

while avoiding the risks associated with big IT infrastructure

projects?

Not applicable.

8. Policy Area Two: How do we decide what courses to deliver?

What information does SOLAS need to inform the delivery of

courses and how can it access that information?

SOLAS needs information to show they are funding courses that areincreasingly relevant, effective and that meet individual needs and national

targets. To do this SOLAS needs to coordinate the existing researchinformation being provided and share it with the providers it funds. Building

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on the work of the CSO, Expert Group on Future Skills Needs (EGFSN) andFS Skills and Labour Market Research Unit (SLMRU), it should ensure thereis a commonly understood and easily accessed annual report comparingfuture needs with current and planned provision to identify new courserequirements to providers.

Informed by such analysis, SOLAS should include key objectives and targetsin Service Level Agreements. Reports from providers should be designed insuch a way that they can contribute to the strategic information needs aswell as indicate emerging demand and regional or national issues.

SOLAS should create a mechanism, such as a national forum, tofacilitate discussion between employers, trade unions, learners andproviders to better match provision to demand and guide instructionaldesign and development of new courses.

SOLAS should also commission research studies in key strategic areasas required. Longitudinal studies of learner cohorts would be particularlyuseful, and may be a more cost effective way of providing robust data.

9. How can SOLAS encourage the design of new courses for the

jobs of tomorrow?

SOLAS should:

create a system to facilitate the sharing of publicly funded resourcesand programmes through a national resource repository, for example theNational Digital Learning Repository, and a programme bank.

resource the professional development of instructional designers andprogramme developers, as well as those tasked with the training of staffdelivering new programmes.

develop a policy on the use of technology and blended learning inFET.

develop a policy on the integration of literacy and numeracy whichwould lead to the explicit inclusion of these skills in the design ofnew courses.

identify and publicise success stories relating to new courses in the FETsector which have lead to graduate employment, as well as employmentpathways via higher education.

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10. How can SOLAS encourage the appropriate provision of

basic skills courses and provide for the important role of

community education?

Provision of basic skills coursesSOLAS should develop an Adult Literacy and Numeracy Strategy thatwould be underpinned by Guidelines for Good Adult Literacy Work(NALA,2005). The Adult Literacy and Numeracy Strategy should include: Integration of language, literacy, numeracy and technology acrossFET programmes at levels 3-6.

Support for family literacy programmes for adults through theLETBs, on the basis that schools and adult education providers workwith parents to combat educational disadvantage for children and

adults. Extending the range of quality and flexible learning opportunities

prioritising adults with less than a Level 4 qualification. Providing supports and pathways to progression for adults with the

greatest need. Prioritise funding to providers that build technology and

comprehensive blended learning approaches into programmes.

Background

The International Adult Literacy Survey (IALS) in 1997 highlighted theextent of literacy difficulties among Irish adults (Morgan, M. et al (1998)International Adult Literacy Survey: Results for Ireland. Dublin: StationeryOffice). According to the survey, one in four Irish adults has asignificant literacy difficulty. This remains the most up-to-dateinformation on adult literacy levels in Ireland. The most recent results fromthe OECD (PISA) point to a dramatic decline in standards among Irish 15-year-olds in literacy and mathematics. (Educational Research Centre (2010)PISA 2009: The Performance and Progress of 15-year-olds in Ireland

Summary Report. Dublin: Department of Education and Skills)

Missing out on the skills of literacy and numeracy is not just a tragedy for theindividual: that personal tragedy is also an enormous loss for all of us in Irishsociety. Research has shown clearly that mastering the skills of literacy andnumeracy brings with it many social, economic and health benefits for theindividual and society as a whole. We know too that children who do not learnto read, write and communicate effectively are more likely to leave schoolearly, be unemployed or in low skilled jobs, to have poorer emotional and

physical health, to have limited earning power, and to be more likely to beimprisoned. (Department of Education and Skills, 2010)

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Even with the policy commitments and increased resources in furthereducation in recent years, there is insufficient progress in addressing adultliteracy. A fifth of the labour force -383,800 has less than a level 4qualification, of which 117,600 have primary level or no qualifications. (CSO

website: http://www.cso.ie/en/qnhs/releasesandpublications/qnhs-calendarquarters/ Table S9a, Q. 3, 2011) People with literacy difficulties areat greater risk of social exclusion and are among the most disadvantaged inIrish society.

The Houses of the Oireachtas have consistently called for an adult literacystrategy. In 2006 this was described as the most urgent requirement toaddress the unacceptable adult literacy levels in Ireland (Houses of theOireachtas Joint Committee on Education and Science (May 2006) FourthReport: Adult Literacy in Ireland. Dublin: Stationery Office). A recent Reportfrom the Houses of the Oireachtas named a key recommendation:

In tandem with this Bill and the proposed legislation to establishSolas (new further education and training body), a National AdultLiteracy Strategy should be developed and published as a

matter of top priority.(Joint Committee on Jobs, Social Protection and Education, Report on Heads ofthe Education and Training Boards Bill, 2011)

What is required is that SOLAS develops an Adult Literacy and

Numeracy Strategy.

It would represent the first time adult literacy and numeracy would bestrategically considered across further education and training. Within thestrategy three initiatives can make a critical difference in tackling the adultliteracy and numeracy challenge. They involve new thinking more than newfunding and contribute to the reform agenda in public services. These areintegrating literacy, family literacy and flexible provision.

(i) Integrating literacy and numeracy development into all publicly

funded education and trainingIntegrating literacy means designing and delivering education and trainingprogrammes in a way that develops core skills in different contexts andcourses. This will produce the double duty dollar effect, where forexample, the state pays for vocational training, but gets a second return improved literacy and numeracy levels. International evidence clearlyindicates the efficacy of the integrating literacy approach (see Casey, H. etal (2006) and Hegarty & Feeley (2009)). Adopting an integrated approachis predominately cost neutral, but it involves the prioritisation of

continuous professional development and training budgets. NALAscollaboration with the IVEA, through an integrating literacy working group,

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and with FS Community Training Services can provide practical examplesof such an approach, most notably in relation to Level 4 programmes.

SOLAS needs to oversee the delivery of the integration of literacy acrossfurther education and training programmes. SOLAS shouldprioritise funding to

providers that have a policy, implementation plan, and evaluation system tointegrate literacy into FET provision.

(ii) Family literacy provides a win-win scenario to policy makers

Literacy standards in primary schools have not changed in 30 years(Department of Education and Skills (2011), The National Strategy to ImproveLiteracy and Numeracy among Children and Young People). Two-thirds ofpupils in the most disadvantaged schools achieved at or below the 20thpercentile on standardised tests (compared to 20% nationally) and

performance declined as pupils progressed through the school.

A national strategic approach to improving literacy and numeracy levelsrequires that there is a joined up approach across initial, further and highereducation. As the new authority for FET, SOLAS must create links with otherstrategies including the National Strategy to Improve Literacy and Numeracyamong Children and Young People (July 2011). For example, we know thatparental engagement in a childs learning has a bigger impact on schoolperformance than school effects (Desforges & Abouchar, 2003; Sacker et al

2002).Family literacy initiatives offer potential opportunities to break inter-generational cycles of under-achievement by working with those families whodo not, or may not know how to, best support their childs learning.

SOLAS should support family literacy programmes for adults through theLETBs, on the basis that schools and adult education providers work withparents, guardians and other family members to support literacydevelopment and to combat educational disadvantage for children andadults.

(iii) Flexible high quality adult education and training provision

In spite of the expansion of adult literacy learning opportunities, less than 10%of adults with literacy needs are accessing literacy tuition. Currentlymainstream VEC adult literacy services provide an average of 2 to 4 hourstuition per week, which is equivalent to two full time study weeks per annum.

There are limited intensive tuition options available of 6 hours per week theIntensive Tuition in Adult Basic Education (ITABE). UK and US research shows

that at least 100-200 hours are required to move up a level on their NationalFramework of Qualifications. The Moser Report (1999) states that in the USA,

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the research shows that between 550-600 hours of instruction are needed tobecome fully literate and numerate. Intensive literacy offers adult literacytuition on a more concentrated level and facilitates accelerated progress.

It is essential to respond with targeted and flexible learning opportunities for

people who wish to develop their literacy and numeracy. This means providingadult literacy and numeracy services across a wider range of settings, includingthe workplace, and by different modes, including distance and blendedlearning, intensive options and at weekends.

The use of technology as a learning aid should be integral to all programmesat these levels.A distance learning service, where learners can progress their skills throughself-directed learning should be a permanent feature of FET provision inIreland. This could be based on the NALA distance learning portalwww.writeon.ie which provides learning and certification options at levels 2and 3.

SOLAS needs to extend the range of quality learning opportunitiesprioritising adults with less than a Level 4 qualification.

SOLAS should prioritise funding to providers that build technology andcomprehensive blended learning approaches into programmes.

SOLAS should also ensure that ESOL learners, who have literacydifficulties in their first language, have access to high quality languageand literacy learning opportunities.

Provide for the important role of Community Education

Recent AONTAS research (2010) highlighted the valuable role ofcommunity education, particularly in supporting the most disadvantagedcommunities and sectors of Irish society. The AONTAS CommunityEducation Network position paper (2010) outlined an effective and

sustainable model of funding. SOLAS should use these as key documentsin the development of community education.

SOLAS should:

Recognise the key role and value of Community Education withinFET.

Define Community Education and set defined guidelines for eachLETB on Community Education provision, including working withcommunity and voluntary sector providers.

Set the national level of funding allocated and targets to be

achieved for Community Education.

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Facilitate joined-up opportunities between all providers ofCommunity Education and those working in the wider FET system.

Liaise with other government departments and state agenciesinvolved in funding Community Education.

11. What role can IT systems play in this? How can we improve

our IT systems while avoiding the risks associated with big IT

infrastructure projects?

IT systems across all providers should be standardised and considerationgiven to linking these into accreditation IT systems. There is a uniqueopportunity now to achieve greater efficiencies in this area and create aworld class integrated IT system for further education and training on a

national basis.

IT system requirements include:

A single central database to standardise tracking of learnersprogress and achievement using a personal identifier (for examplePPS number).

A single online reference bankfor programme delivery, whichlinks content andadministration.

Centralised programme and resource repositories (for exampleNational Digital Learning Repository)for all public fundeddevelopments.

Link with Qualifax.

12. There are a range of other providers of FET programmes

what way should SOLAS and LETBs engage or deal with those

bodies to ensure a joined-up approach?

SOLAS should create a mechanism whereby they and the LETBs can meetaltogether with other providers of FET programmes to discuss identifiedthemes. This should happen at least annually and would establish anopportunity to create synergies between providers where appropriate.

Building on Qualifax, all courses and provider information should be availableon one central website. This website should be user-friendly to enhance theuser experience of engaging with the FET sector. Clear, concise and easyaccess to information is the first step in an effective FET system.

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The Upskilling Coordination group is a good example of a DES initiativechaired by the Minister of State in which providers and other stakeholderscame together to exchange information. This type of group could beenhanced by the development of detailed terms of reference making it clearthe expectation on members to share information and contribute to a wider

FET sector development.

13. How can SOLAS encourage new programme delivery

methods, like distance learning or online provision, and what

courses can be appropriately delivered through such methods?

Firstly it will be necessary to promote the benefits of new delivery modes suchas blended learning delivery and support using online and distance resourcesand methodologies. SOLAS should require that providers build distanceand blended learning approaches into provision. This is essential toexpand capacity sufficiently so that FET can respond to the challenge ofensuring that all unemployed persons are provided with learning opportunitiesas soon as possible, as well as impacting on adult literacy levels.

There will need to be capacity building, as well as developments in technical,institutional and management areas to ensure the optimum use of technologyin FET. Based on the experience of distance learning and blended learningsince 2007, NALA advocate that a dedicated unit is established tofacilitate and coordinate the use of technology in FET and to maximisethe benefits to learners, providers and funders. This could take the form of anexpert high level Learning Technology Team with the mandate to work withall public funded providers. The key role is to ensure consistent standards andsharing of technology in FET development. This would maximise the publicinvestment in educational design and methodologies by achieving aconsistency in instructional design, as well as in the coordination of sharedprogramme and resource repositories. The unit would also contribute to highquality learning and content management systems. Synergy with the National

Centre for Technology in Education should also be explored.

This approach could be achieved by an external body or, using thefollowing steps, within SOLAS itself.

Create a dedicated Learning Technology Team, employingexperienced Instructional Designers from industry.

Perform an Instructional Design analysis of existing contenttypes and delivery methods. This is an essential step to providing an

objective account of what is currently happening, and to identify keygaps and priority areas.

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Map content to delivery methods. Every course should includesome distance and/or blended and/or online elements. By promotingtechnical delivery approaches, SOLAS should be able to demonstrategreater efficiencies in course delivery costs across all areas of educationand training in the future.

Create a single online reference point for development ofcontent and administration. For example, www.writeon.ie has aLearner and Content Management System that provides both thesedatasets.

Set up dedicated Learning Labs in all LETBs with goodbroadband, projected screen, basic PCs with audio and graphicscards with headsets. (An example is the Open Learning Centre inColiste de in the CDVEC.)

Develop delivery models as templates. Create courses per delivery

model to demonstrate practicalities. (An example is the FESSsystem of common programme development for VECs.)

Create a central repository of learning content within the NationalDigital Learning Repository. (The NDLR has already created a robustsystem, and its use would also bring an alignment between FE andHE.)

Develop case studies of best practice from Ireland andinternationally. Showcase these case studies, focussing onadvantages such as improved results, increased capacity,

integrated learning content, reusability of content, more effectiveuse of teaching hours, reduction in administrative time and costs,etc. This is critical to ensure buy in from providers and practitioners.

This could be achieved with a social media site, including videocontent.

Provide training to tutors and teachers on how technology can helpthem in their work. (An example is the WIT Digital Literacies moduleon the Higher Certificate in Literacy Development.)

Create content between the Technology Learning Team and the

providers content experts. Set up a system of ongoing mentoring and support from the

Learning Technology Team. Ideally every centre should have onededicated learning technologist within 2 years of starting thisprocess. (NALAs experience of working with the VECs andcommunity education highlighted that blended learning usingwriteon.ie worked best when there was good internal mentoring andsupport.)

Standardise tracking of learners so a single database is collatedcentrally this will massively reduce administration and greatlyimprove access, transfer and progression options for learners.

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SOLAS should fund a distance learning service to provide free selfdirected learning opportunities at levels 1-4 for people who are not in learningprogrammes. SOLAS should require that this service provides a suite of shortonline courses that are:

(i) easy to access,(ii) offer short, interesting and challenging modules,(iii) are accredited nationally, and(iv) offer progression to other courses.

SOLAS should develop an integrated national system for the

recognition of prior learning (RPL), based on the EGFSN reportDeveloping Recognition of Prior Learning (RPL), (April 2011). RPLdevelopment can be a catalyst in the ongoing transformation of the Irishfurther education and training system of provision. On the demand side, itwould facilitate a more direct focus on learner needs, interests, andprogression, while on the supply side, it can lead to streamlined and moreefficient responses from providers.

All FET courses can be delivered with online and technological resources andsupport, and through blended learning. All learners in FET would benefitfrom blended learning delivery modes and supports.

14. Policy Area Three: How we guide and support learners and

potential learners in choosing the right course

Do the benchmarks that the Group has set make sense? YesAre there others? Yes

Following profiling and PEX score by the National Employment andEntitlement Service (NEES), the provider should carry out a learningassessment of needs to ensure appropriate course placement. As part

of this, every client would be helped to identify course relatedliteracy, numeracy and other needs in relation to their intendedprogramme. The EU Action Plan on Adult Learning: Basic skillsprovision for adults: policy and practice guidelines (Final Report 2010)recommends that Guidance personnel carry out initial screening(preliminary assessment) to identify whether an individual may havea literacy and/or numeracy need. If such a need is identified a morethorough assessment is undertaken by staff with specific training inteaching adult literacy and/or numeracy. (Guideline No. 3.1.7 The

role of Guidance, page 14.)

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Every learner should have an individual learning plan (ILP), agreedwith the provider, responding to individual needs, goals, interests,skills and abilities; social development; and employment pathways.ILPs are central to the EU Action Plan on Adult Learning: Guidelines.Other supports include an assessment framework for adult basic

education called Mapping the Learning Journey, and there are alsobuilt in learning plans as of the distance learning service onwww.writeon.ie.

There should be input from learners into the development andmonitoring of the system of referral and guidance to facilitate anincreasingly user friendly system and ensure customer experiencehelps drive improvements. This could be achieved by inclusion oflearner representative bodies in the new structures and through

evaluations.

Literacy and numeracy issues should be taken into account in thepolicy and procedures for enrolment and in the Equality checklist.

15. How can we simplify the system of eligibility criteria for

different FET programmes so that we minimise delays and

differences, perceived or otherwise, in the administration ofincome support and participant allowances

There are currently no eligibility criteria for the adult literacy service andthis should be maintained. SOLAS should ensure access to all FETprogrammes for anyone who has less than a level 4 qualification and is inreceipt of state benefit. This would reinforce a priority within FET to thosewith the greatest need. In addition there should be no time waiting periodbefore you can enrol on a programme.

This suggestion is in line with European policy. The EU Action Plan on AdultLearning: Basic skills provision for adults: policy and practice guidelines (FinalReport 2010) recommends A statutory right to education equivalent toprimary and secondary level exists for low skilled and low-qualified adults.(Guideline No. 1.1.8 Policy-making, page 14)

In NALAs experience of running a project under the Labour MarketActivation Fund in 2010-11, we encountered many people who metdifferent labour market criteria which impacted on their eligibility to enter

programmes. In the case of people with less than a level 4 qualification

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and in need of literacy and numeracy support, it would be beneficial toclassify them all as a priority irrespective of which unemployment benefitthey receive. The system of eligibility could be further simplified byallowing anyone who is identified through PEX at being high riskimmediate access to a learning programme.

16. How can we marshal our often fragmented system of

referral and guidance into an integrated service while

maintaining resources in critical areas?

There should be one central referral and guidance service that is nationallyadvertised and branded, where the customer can access information on allservices and options available to them. This would include one website,email, freephone, text that would be developed in plain English. It should beclear that the national service corresponds to a local system of referral andguidance operated in the LETBS.

There should be a clear distinction and link between educational guidanceservices and employment guidance services.

In addition, prioritisation of target groups within further education andtraining should be given to those with the least educational achievement.

The Evaluation of the Labour Market Activation Fund (LMAF) 2010recommends:To facilitate a more integrated approach to identifying individual needs,tracking upskilling (including major, minor and special purpose awards atNFQ level) and recording progression outcomes, the feasibility ofestablishing shared databases across the key agencies along the progressionpathway should be investigated, taking full account of data protectionimplications. It is important that such databases not only record completion,accreditation and progression but also gather robust information on drop

outs from programmes. (page viii)

Using the National Framework of Qualifications, a chart of further educationand training should be devised for the public. It should capture the types andlevels of learning opportunity available and should be the keycommunications visual used by all providers and stakeholders. This wouldsignificantly reduce the confusion around FET and reduce the need forspending on multiple branding of courses, colleges, providers, qualityassurers and funders.

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17. Course placement based on course availability rather than

participant needs or desires and continued delivery of courses that

are not relevant to national skills needs.

SOLAS needs to ensure that the most appropriate courses are delivered to

learners most in need. A review of existing course provision as part of thequality assurance process should be undertaken every five years todetermine the validity of courses.

In order that education and training programmes should respond to skillsneeds, SOLAS and NEES should have a defined way of working withproviders, potential learners and employers.

Use of self directed distance learning resources (such as www.writeon.ie),and the proposed nationally integrated system for RPL, can facilitate amore direct focus on learners needs and interests, and lead to morestreamlined and efficient programme offers from providers. They can alsocontribute to significantly raising the capacity of the FET system to meetthe challenges of servicing the unemployed and adults with literacyneeds.18. What do we need to do to ensure appropriate tracking of

learners between NEES and LETBs and between LETBs to

minimise information gathering and maximise progression

opportunities?

One major weakness in governance in FET is the lack of data on the progressmade as a result of adult education and adult literacy interventions. Atnational level, the Irish adult literacy targets have never been measured orevaluated. At provider level, the relative value of programmes has not beensystematically evaluated, and the progress individuals make is notadequately recorded. SOLAS should ensure there are robust evaluativeprocesses at national, provider, programme and individual levels.

SOLAS should have one central database that allows for tracking oflearners between NEES and LETBs and accessible by personnel in both. Acentral system would minimise duplicate information gathering and showtrends that would inform policy and practice going forward.For this purpose, every client should have a personal identificationnumber (currently it is their PPS number).

It is important to design learner input into the development and operationof tracking systems. This could be achieved through quality and

evaluative processes. The NALA Evolving Quality Framework is anexample of a quality support process that involves learners. Learners

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should be encouraged to keep an account of their own learning journeysso that they can see how they are realising their Individual Learning Plan.

19. Policy Area Four: How we manage and support your staff

What kind of qualifications would be required of staff in the FET

sector-pedagogical and otherwise?

To ensure a consistent standard of service provision and to supportcontinuous professional development, clear career paths andqualifications should be identified for adult educators and trainers. Anyqualifications selected should include the integration of adult literacy andnumeracy in FET and provisions should be made to skill up specialists inliteracy and numeracy development.

Suggested qualifications are from Waterford Institute of Technology (WIT),who in partnership with NALA, has supported professional development foradult literacy practitioners since 1997, with Higher Certificate and degreeprogrammes qualifications at Levels 6 to 9 on the National Framework ofQualifications. These qualifications are recognised as appropriatequalifications for Adult Literacy Organisers.

However, there is currently no formal agreement on appropriatequalifications for adult literacy tutors. This should be formalised in order to

support and manage staff, ensuring equality of opportunity and theprovision of clear career paths. It is vital to the future development of FETthat there is parity of esteem for all FET tutors.

20. What kinds of skills would staff need, in terms of

management, as well as delivering tuition?

The WIT professional development programmes in adult literacy and adult

education cover the broad extent of expertise required of adult educators,including pedagogic and management expertise. Key areas include:

Social marketing,

Curriculum development and management,

Assessment including initial, formative and summative assessmentand accreditation processes,

Basic counselling / guidance skills,

Literacies development (for example, digital, family, literacy,numeracy, as well as ESOL),

Integrating literacy,

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Blended learning,

Management, and

Research and evaluation.

There will be significant change involved in the reorganisation of Further

Education and Training. We recommend that managers across the neworganisation are appropriately equipped with competencies in strategicmanagement, change management and strategic planning in education.

Guidance staff should have specific expertise in screening for learningneeds, including literacy and numeracy and specific learning difficulties,particularly with hard to reach groups. Staff with specific training in adultliteracy and/or numeracy will also be required to carry out diagnosticliteracy /numeracy assessments, as recommended by the EU Action Planon Adult Learning: Basic skills provision for adults: policy and practiceguidelines (Final Report 2010).

21. What should be the nature and extent of the SOLAS role in

managing and supporting staff?

LETBs and other providers are best placed to manage and support staff.However SOLAS should maintain a quality control role, ensuring that allproviders / trainers are appropriately qualified to deliver their contracted

training. Work by the IVEA with a range of higher education providers shouldfeed in to this work. SOLAS should identify the minimum qualificationrequirements for the various roles in FET, including for adult literacy andnumeracy tutors.

Appropriate qualifications for adult basic education and training includethe suite of programmes developed by WIT at Levels 6 to 9 on theNational Framework of Qualifications.

NALA advocate that FET tutors delivering literacy and basic skillsdevelopment should have literacy/numeracy specific expertise to theminimum standard of the WIT Higher Certificate in Literacy Developmentor equivalent.

All FET tutors should have professional development in the integration ofadult literacy and numeracy in FET programmes at NFQ levels 4-6.

Volunteers have an important role in adult literacy and community education

and a volunteer charter should be developed and adopted nationally. Thischarter should identify initial, continuing training and support requirements.

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22. Final questions

What other things could SOLAS do to improve the customer

service overall?

SOLAS should have a structured process to hear customer voices. Thereshould be a dedicated learner sub-group and learnerrepresentatives within the SOLAS operational structures. This formalconsultation and feedback agreements should be reviewed each year.

SOLAS should require details on communication arrangements with andbetween providers, such as LETBs and private providers, and learnerrepresentatives.

As part of our consultation process on this Paper, NALA convened a focusgroup of adult literacy learners to inform our submission. Learnersemphasised in particular that SOLAS measurement metrics should notbe focussed on certification only, as literacy students do not base theirprogression solely on certification. They also stressed that in any SOLASreporting, it is important to ensure that literacy learners can maintaintheir confidentiality.

23. Should Youthreach and Community Training Centres be

merged and should SOLAS continue to administer them?

X Merge.

Do not merge.X Solas shouldadminister.

Solas should notadminister.

Comment

These services should be merged and administered by SOLAS through theLETBs following a consultation process.

24. Should FET delivered in specialised or atypical outreach

settings like prisons or care services be managed by SOLAS or

another Department or agency?

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X Should be managed by Solas.

Should be managed by relevant agency.

Depends on nature of provision.

Comment

As the further education and training authority, SOLAS should haveoversight of all FET programmes. A consultation process should informthis development.

25. Any other comments?

NALA understand and agree that there should be a focus on retraining theunemployed, however, they would also petition SOLAS to retain literacylearning as a separate group, remembering that some unemployedliteracy learners have a long road to travel before becoming job ready. Inessence it is important that literacy learning and other forms of adulteducation continue to be funded for all adults and not be limited to theunemployed.

As promised in this document, learners were most keen that SOLAS andthe LETBs ensure consistency of standard and service. This would requireevery front line member of staff to:

adopt the same customer service module, and

have equal access to one online, central referral system.

The new customer service approach should be clearly explained to thepublic before implementation and any referral system should have apublic portal for transparency and reference purposes.

SOLAS and the LETBs should be under the Freedom of Information Actwhilst at the same time endeavouring to be as open and as transparent aspossible.

NALA appreciate the opportunity to feed in to the consultation processand wish the Department of Education and Skills well in theirdeliberations. NALA looks forward to contributing to the ongoing dialogueand consultation on the development of the SOLAS Action Plan, and to ourfuture collaboration in raising adult literacy and numeracy levels inIreland.

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NALA, 19 January 2012

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NALA Submission to SOLAS

Documents

Transcript of NALA Submission to SOLAS