Review of Adult Vocational Qualifications in England · strategy for adult vocational...

Review of Adult VocationalQualifications in England

November 2013

Led by Nigel Whitehead, UKCES Commissioner and Group Managing Director, BAE Systems plc

2 | ADULT VOCATIONAL QUALIFICATIONS REVIEW

CONTENTS

1 Foreword 3

2 Executive summary 4

3 Introduction 6

4 The vision 7

5 The strategy 10

5.1Thecurrentsystem 10

5.2Problemswiththecurrentsystem 16

5.3Immediateactions 20

5.4Arecommendationforasustainable longer-termvision 24

6 Summary of the key differences between current and future systems 30

7 Conclusions 32

8 Design principles for high quality vocational qualifications for adults 33

Annex1:Threecasestudiesforillustrationofimpactinkeysectors 38

Annex2:Examplehighleveloutcome-basedstandardsfromGermany 40

Annex3:Technicaldiagramoftheproposedfuturesystem 42

Annex4:Highlevelimplementationplan 44

Annex5:Glossaryofterms 47

ADULT VOCATIONAL QUALIFICATIONS REVIEW | 3

Asaformerapprentice,IwasdelightedtobeinvitedbytheSkillsandEnterpriseMinister,MatthewHancock,todevelopavisionandstrategyforadultvocationalqualificationsinEngland,buildingonanumberofrelatedreviews.Todothis,Iconsideredwhatgoodmightlooklikeandthenatureofthefuturevocationalskillssystemthatcoulddeliverit.Thisreviewbeginswithmyvisionforvocationalqualifications,thenusesasystemsengineeringapproachtomapthecurrentsystem,analyseitsproblems,andpointtothecriticalfunctionsofaviablealternativefuturesystemwhichputsemployersandemployeesfirst.Irecommendsevenpracticalstepsthatwillneedtobetakentoachievethevision.

Indoingso,Ihaveborrowedfromrelatedreviews.DougRichard’sReviewofApprenticeshipsandAlisonWolf’sReviewofVocationalEducationareclearabouttheimportanceofrobuststandardsandassessmentinvocationaleducationandtraining.DougRichard’sReviewisbeingimplementedthroughtheRichardReviewImplementationPlanandAlisonWolf’sReviewisbeingtakenforwardthroughanumberofreforms,includingtheintroductionofTechLevels,whichareparticularlyrelevanttothisreview.TheCommissionforAdultVocationalTeachingandLearning(CAVTL)andFurtherEducationLearningTechnologyActionGroup(FELTAG)identifyandchampionbestpracticeandinnovationindelivery.Thesereviewshavehelpedme–andIthanktheauthors.Theirworkprovidesafirmfoundationforlookingatadultvocationalqualifications.

TakingthetimetolookattheentiretyoftheexistingEnglish1adultvocationallandscapehasallowedmetoidentifyandaddressanumberofsystemicweaknessesandunintendedoutcomes.Thisreviewrecommendsfundamentalchangestore-orientatetheskillssystem,replacingwhatexiststodaywithafunctioningsetofprocessesandredefinedornewrolesforkeyplayersintothefuture.Inshort,asystemthatrestsoncentralgovernmentcontrolwouldbesupersededbyasystemthatputsemployerdemandandbusinessgrowthatitsheart,enablingabettermatchbetweensupplyanddemand.

Ahealthyvocationalqualificationsmarketisimportant.Therehastobesimple,accessibleinformationaboutthevocationalqualificationsavailableforentrytoanddevelopmentofcareersinanoccupation;andclearevidenceoftheimpactthesevocationalqualificationshave.Myproposalsaimtodothis,andtode-clutterthesystem.Iamkeentomakeiteasierforemployerstostepupandworkcollaborativelywithkeypartnerstodesign,todevelopandtodelivervocationalqualifications.Myrecommendationsarethestartofajourney–withgovernmentcreatingthespaceforemployersandunionstotakeownershipofvocationalqualificationssupportedbywell-regulatedawardingorganisationsandresponsivetrainingproviders.

Nigel Whitehead

GroupManagingDirector,BAESystemsplc

UKCommissioner

1 Foreword

1 Parts of the vocational landscape are relevant to Scotland, Wales and Northern Ireland (for example, NOS across the Devolved Administrations; and QCF to Wales and Northern Ireland). The systems approach makes the overall study relevant to England only, as different skills and education policies affect parts of the analysis for the Devolved Administrations.


OurapproachinthisreporthasbeentoanalysethecurrentsystemforvocationalqualificationsinEngland,toidentifyareasthatrequireimprovementandtomakerecommendationsforreform,buildingonandcelebratingwhatworks.

Forindividualsandemployerstohavetheskillstosucceed,vocationalqualificationsshouldbe:

• Relevanttoindividualsandemployers,andaffordableforallsizesofbusiness(includingmicro-businesses)andforindividuals

• Rigorousandbasedonarobustfuture-lookingoccupationalstandard,designedandassessedbythesector

• Recognisedasworthyofinvestment,givingaclearsignaloftheeconomically-valuableskills,knowledgeandunderstandingrequiredinanoccupationnowandintothefuture

Keytoachievingthisisforemployersandunionstoworkinpartnershipwithwell-regulatedawardingorganisationsandflexibletrainingproviderstodesign,todevelopandtodeliverthevocationalqualificationsthatdrivebusinessgrowthandproductivity.Overtime,thesepartnershipswillcometogetherandtakeend-to-endresponsibilityforworkforcedevelopmentintheirsectors.Shortterm,thefollowingactionsshouldbetaken.

1. Ofqual should require awarding organisations to engage actively with employers in sectors where they provide vocational qualifications; and awarding organisations should require training providers offering their vocational qualifications to engage with employers locally.Awardingorganisationsshouldinclude

employersfromrelevantsectorsdirectlyinthedesignanddevelopmentofvocationalqualifications,andtrainingprovidersshouldbringinemployerstosupportcurriculumdesignanddelivery.Thisischallenginganditmaybepossibletostrengthenandapplyregulationmorerigorouslytosupportit,butitwouldalsorequireawardingorganisations,trainingprovidersandemployerstoworktogethercollectively.Thisrecommendationbuildsonbestpractice,andwouldgiveemployersandindividualstheconfidencethatawardingorganisationsandtrainingprovidershaveexperienceoftheirsectors,andallownewinnovativeapproachestocollaborationtoenterthemarketasindustrialpartnershipsform.

2. The UK Commission for Employment and Skills should work with employers to agree the future model for occupational standards; and employer-led collaborations (industrial partnerships) should ensure that future occupational standards articulate their ambition and aspiration for their workforce clearly and effectively.Employer-ledcollaborationsorindustrialpartnershipsofemployerswillsetoccupationalstandardswhereindustryneedsthemandtheydonotexistalready.Industrywillbefreetodefinethesestandardswithoutthecurrentlevelsofprescription,and,inEngland,theoccupationalstandardwillbethesameforadultvocationalqualifications,ApprenticeshipsandTechLevels.Usingthisapproach,occupationalstandardswillbeambitious,aspirationalandaccessibletoawiderrangeofbusinesses(includingowner-managers),moreadaptabletochange,andwillaccommodateinnovativeapproachestoassessmentanddelivery.

3. Ofqual should introduce our proposed new design principles for vocational qualifications giving vocational qualifications a clear identity and should make the prescribed unit format and sharing of units optional. Ournewdesignprinciples(Section8)willgivevocationalqualificationsaclearidentityandwillapplytovocationalqualificationssupportinginitialorcontinuingvocationaleducationandtraining.

2 Executive summary


TheseprincipleswillnotrequiretheQualificationsandCreditFramework(QCF)unittemplatetobeusedorunitstobesharedbetweenawardingorganisations.UsefulaspectsoftheQCFthatsupportlabourmobilityacrosstheUKandintomainlandEuropesuchastheuseofagreedcreditvaluesandleveldescriptionsshouldcontinue.Thesechangeswillallowformoreflexibilityincurriculumdesignanddiscouragea‘tick-box’approachtoassessment.

4. Awarding organisations and training providers should report on the impact of their vocational qualifications to their customers.TheDepartmentforBusiness,InnovationandSkills(BIS),awardingorganisationsandtrainingproviderswilldevelop,agreeandmakesuccessmeasuresvisiblepublicly,buildingonexistingwork.Thiswillhelpemployersandindividualstochoosewhichawardingorganisationsandtrainingproviderstouseonthebasisoftheimpactthatvocationalqualificationshaveonprogressionforindividualsand,wherepossible,businessperformanceforemployers.

5. Ofqual with the Skills Funding Agency (SFA) and UK Commission should create a single point of access to the different qualifications databases.Employersandindividualswillbeabletointerrogatedatabasesofregulatedvocationalqualificationsbyoccupation,withouthavingtobeexpertsinthetechnicallanguageofqualifications,andwillseequicklytherangeavailableforbothinitialandcontinuingvocationaleducationandtraining.Accesstothisinformationwillmakeiteasierforemployersandindividualstouseandinvestinregulatedvocationalqualifications.

6. Ofqual, Ofsted and SFA should ensure that arrangements for regulation, inspection and funding provide appropriate incentives and do not inhibit training providers and awarding organisations from using technology in the delivery and assessment of vocational qualifications.Technologyoffersindividualsandemployerstheopportunitytolearnanywhere,anytime,butthedesignanddeliveryofvocationalqualificationshasnotkeptpacewiththese

changes.Ourrecommendednewdesignprinciplesforvocationalqualificationswilladdresspartoftheproblem,butthedeliverysystem(trainingprovidersandawardingorganisations)needsmoreencouragementtoadoptnewtechnologies.

Forthelongerterm,governmentcouldenhancetheprocessbysteppingbackandgivingemployersthespacetoworkwithpartnerstomakesurethatvocationalqualificationsarealignedwiththeworkforceskillsvaluedbyemployersandindividualsinthesector.

Therefore,ourfinallongertermrecommendationisto:

7. Encourage more leading employers to work in partnership to develop recognised, rigorous and relevant vocational qualifications.Thereisstrongevidencethatemployersarewillingtoworkcollaborativelywithotheremployers,unions,trainingproviders,professionalbodiesandawardingorganisationstodelivervocationalqualificationsthatgiveindividualstheskillstheyneedtosucceed,andbusinessestheworkforcetocompeteandgrow.Theyneedtheencouragementandspacetodothisthroughhavingalesscentrally-prescribedvocationalqualificationssystem.BuildingonthesuccessoftheEmployerOwnershipPilots,weproposethatgovernmentcontinuestoincentiviseemergingandnewindustrialpartnershipsthroughco-investmenttodesign,todevelopandtodeliverstrongvocationalqualifications,TechLevelsandApprenticeshipsasanintegralpartoftheirstrategiesforgrowthintheirsectors.


Thisreviewpresentsavisionandstrategyforadultvocationalqualifications,buildingonotherrelatedreviews.Ourfocushasbeenonadults,althoughwerecognisethatvocationalqualificationsarenotage-related.Themaindifferencesinvocationalqualificationsarebetweenthosedesignedforinitialentrytoanoccupationandrequiringsignificantnewknowledgeandskills,andthosedesignedtosupportcontinuingprofessionaldevelopmentforindividualsalreadyinwork.

OurprinciplesforadultvocationalqualificationssupportinginitialentrytoanoccupationhavethesamecharacteristicsasTechLevels,designedprimarilyfor16–19yearolds,Apprenticeships(postRichardReview),andhaveinformedtheSFA’snewrulesforapprovingqualificationsforfunding.Mostoftheseprinciplesarethesameforvocationalqualificationstosupportcontinuingprofessionaldevelopment.Theexceptionsaresizerequirementsandgrading,wherethereneedstobemoreflexibilitytoaccommodatequalificationsup-skillingacrossawiderangeofdifferentoccupations.

Wehavemappedthecurrentvocationalqualificationssystemtoassessitscapacitytodeliverthisvision,andwehavebuiltontheCommissionforAdultVocationalTeachingandLearning(CAVTL)andtheFurtherEducationLearningTechnologyActionGroup(FELTAG)reviewslookingatinnovationandbestpracticeindelivery.Thereismuchthatispositivetodrawon.Criticaltothesuccessofthevocationalqualificationssystemisputtingemployersandemployeesfirstaskeybeneficiaries,andbuildingasystemthatdeliversbusinessgrowthforemployersandcareerprogressionforindividuals.

Itisfromthisperspectivethatourreportpresentsourvisionindetail,reviewsthecurrentsystem,analysesthebarrierstoachievingthevision,andpresentsitssevenkeyrecommendations.

3 Introduction


Our vision is that adult vocational qualifications are valued as worthwhile investments, enabling individuals to progress in their careers and employers to grow their businesses and improve their competitiveness. To achieve this, vocational qualifications should be relevant, rigorous and recognised.

Relevant

Vocationalqualificationshavetoberelevanttotheneedsofindividualsandemployers,matching the skills, knowledge and understandingindividualsrequireforentryintoanoccupationorprogressioninacareer.Theyshouldbebasedonoccupations,andgiveclearsignalstoindividualsaboutwhichskillsarevalued.Currently,therearemanyqualificationsdescribedas‘vocational’butnotlinkedtooccupations.Oftenthesearedesignedtobuildanindividual’sconfidenceinpreparationforworkortohelpsomeonemoveclosertothelabourmarket.Thesequalifications(usuallyatEntryLevelorLevel1)canbeveryusefultoindividuals,buttheyarenot‘vocational’andshouldnotbedescribedassuch.

Adultvocationalqualifications,TechLevelsandApprenticeshipswillbealternativeroutestothesameend–achieving an occupational standard, including sound knowledge and understanding of the sector.Thisoccupationalstandardwillbedefinedbyindustry,and

assessedconsistentlyacrosstheseroutes.ThedifferencebetweentheroutesisthatthosetakingApprenticeshipswillbeemployedandmainlytaughtinwork,withperiodsofoff-sitelearning,andthosetakingadultvocationalqualificationsandTechLevelswillbetaughtawayfromwork(throughtrainingprovidersandtechnology)withsubstantialperiodsofworkplacement.Usingthisapproach,adultvocationalqualificationsandTechLevelswillprovideindustrywithatalentpipelinetogrowbusinessesandcompetitiveness,andgiveindividualsworthwhilevocationaleducationandtrainingrelevanttotheirchosenoccupationsandfuturecareers.

Also,adultvocationalqualificationswillprovidecontinuing professional developmentforthoseinwork.Theywillconfirmthatindividualshave:developedfurthercompetency;specialisedinparticularaspectsofanoccupation;understoodthetechnicalitiesofaproductfromacompany;orre-affirmedtheirsuitabilitytopractise.Thesevocationalqualificationsareaboutprogressioninwork,andtheywilltendtobeshorterwitharangeofdeliveryandassessmentapproaches,notnecessarilyincludinggradingorlinkedto‘timeserved’inaparticularoccupationorsector.

Qualificationsmustworkforbusinessesofallsizes,includingthoserunbyowner-managersandsmallerbusinesses.Theyhavetobeaffordablebothintermsoftimespentawayfromthejobandactualcostsofregistering,deliveryandcertification.Relevanceandsavingscanbeimprovedbyreducingthetimetakenfordesignanddevelopment,andremovingunnecessarydelaystomarket.Newtechnologiescansupportthis,butawardingorganisationsandtrainingprovidersneedtorecognisethathardwarecostsandup-skillingtheirstaffareinvestmentsforthefutureandthatthevocationalqualificationssystemisstable.Theyalsorequireconfidencethatotherpartsofthesystem(regulation,fundingandinspection)donotpresentunnecessarybarriers.

4 The vision


Rigorous

Rigourinvocationalqualificationsisaboutreliable,robustdeliveryandassessmentofcompetence(includingknowledge)inanoccupation,andanunderstandingofhowtheoccupationfitsintothewidersector.Thiscallsforaclear,ambitiousoccupational standard,whichcanbeassessedandgradedandwillencourageindividualstostriveforexcellence.Thisambitiousstandard,assessedandgradedtothesamerequirements,willbeavailableforApprenticeships,TechLevelsandadultvocationalqualifications.Thissupportscareermobilityforindividuals,savesunnecessarytrainingcostsforemployers,andultimatelylinkstrainingandqualificationstovocationalskillsinawaythatleadstosustainablegrowthandcompetitivenessforbusinessesandcareerprogressionforindividuals.

Currently,thereisarangeofstandardsinexistence,includingthosecreatedbyindustrytoaddressstatutoryrequirements,standardsdevelopedbyprofessionalbodiesandNationalOccupationalStandards(NOS)designedbystandard-settingbodies.Wherethesearegenuinelyemployer-led,theywillbeoccupationalstandardsregardlessofwhodevelopsorfundsthem.Industrywillbefreetodesignthestandardsitneeds-andmoveovertimetoalessprescriptiveoutcome-basedstandardratherthancontinuewithatightlyprescribedcentralisedapproach,whichcanmakeNOSlessrelevanttosmallbusinessesortothoseoperatingdifferentprocesses.

ToconvertNOSintovocationalqualifications,theyarere-writtenintoaunitformatandmadeavailableintheQualificationsandCreditFramework.2Thisaddsalayerofdetail,looseningthelinkswiththeinitialoccupationalstandard.Awardingorganisationsarereluctanttosharetheirintellectualpropertywithcompetitors,and

putimportantinformationintotheirownguidanceinsteadoftheunit.ThesharingofunitsintheQCFeasesmarketentryforawardingorganisationswithoutsectorexpertiseoremployerinvolvement,andencouragestrainingproviderstofocusonassessmentratherthandeliveryofcurriculawhenprovidingvocationalqualifications.Alltheseunintendedconsequenceshaveanegativeimpactonrigour.

TheuseoftheunitformatandsharingofunitsintheQCFneedstobeoptionalforawardingorganisations.Awardingorganisationsoughttorequiretrainingproviderstodelivercurriculaforvocationaleducationandtraining,ratherthantick-boxassessment,andworkdirectlywithemployersinthesectorsforwhichtheyprovidevocationalqualifications.Importantdesignrulesrelatingtoleveldescriptorsandcreditvalueswillcontinue.ThesesupportalignmentacrosstheUKandinternationallyandareimportantforprogression and labour mobilityforindividuals,reducingthelikelihoodofunnecessaryrepeattraining.

Recognised

Vocationalqualificationshavetoberecognisablebyemployersasclearsignalsthatindividualshavetherelevant skills, knowledge and understandingtoperformwellinoccupations.Informationaboutwhichqualificationsdelivertheoccupationalstandardcanaddressthisinitially.Overtime,developingsuccessmeasurestoshowtheimpactofvocationalqualificationsonprogressionforindividualsandbusinessgrowthwillhelpthemarketoperatemoreeffectively.

Simple, accessible informationaboutthevocationalqualificationsonofferandhowtheyrelatetooccupationswillhelpemployersandindividualsknowwhichvocationalqualificationsanindividualneedsforinitialentryintoanoccupation,andwhichcansupporttheircontinuingprofessionaldevelopment.Ideally,thisinformationwilllinktowherehighqualitydeliveryisavailable,andeligibilityforpublicsubsidy.Currently,qualificationsdatabasesaredetachedfromeach

2 Some of the current qualifications (eg National Vocational Qualifications) are included in the National Qualifications Framework (which accommodates general qualifications such as A-Levels and GCSEs) as well as the QCF.


otherandemployersorindividualsneeddetailedtechnicalknowledgetousethem.Towidenuseofregulatedvocationalqualifications,employersandindividualsneedeasyaccesstoinformationaboutwhatisavailable.Thiswillencourageuseoftheregulatedsystemandhelpbusinessestodeveloptheirworkforceandindividualstomakeinformedchoices.

Overtime,thereoughttobesupplementarydatagivinginformationabouthoweachindividualvocationalqualificationperforms,includingitseconomicreturns.Thiswillincentivisetrainingproviderstotestthemarket,andofferindividuals,employersandgovernmentinformationtosupporttheirinvestmentsinvocationalqualifications.Ifdatafromreturnstoqualificationswereavailable,therewouldbevisibilityofthebestperformingqualificationsofferedbytrainingprovidersandawardingorganisations.

Employer Ownership

Adultvocationalqualificationswillonlyberelevant,rigorousandrecognisedwhentheyarealignedwiththeskillsemployersneedandthemodesofdeliverythatindustryrequires.

Ourvisionisbestachievedthroughtheprinciplesofemployerownershipofskills.Throughemployerownership,governmentcantransformthewaythatitinvestsintheskillsandtalentsofpeople,makingvocationalqualificationsintegraltobusiness growthandindividual prosperity.

Centraltothislongtermvisionisthatemployersstepupandworkinpartnershipwithcompetitors,supplychains,unions,trainingproviders,professionalbodiesandawardingorganisationstotakeend-to-endresponsibilityforworkforcedevelopmentintheirsectors.Theseindustrial partnershipsarebeingformedthroughbusinessleadershipratherthangovernmentplanninginkeyprioritysectors,aspartofthewiderindustrialstrategyforjobsandgrowth.Thereisscopetosustainthismomentumandincentiviseco-investmentthroughindustrialpartnershipsinawiderangeofsectorsintheeconomy.

Ourvisionisofade-clutteredskillslandscape,makingiteasierforindustrialpartnershipstousetheregulatedqualificationssystemtoalignskillswithvocationalqualificationsintheirsectors.Throughthisapproachadultvocationalqualificationswillsupportworkforcedevelopment,leadingtogrowthandcompetitivenessforbusinesses,andcareersuccessforindividuals.


To work out how best to achieve the vision, systems engineering methodology has been used to review the current system, analyse the barriers to the vision, and propose a future system, with key recommendations.

5.1 The current system

Thecurrentsystemhasover19,000regulatedvocationalqualificationsavailablethrough176awardingorganisations.Manyofthesehavelimitedtake-up:1,780vocationalqualificationsaccountforover90%ofachievement.Therearelargenumbersofvocationalqualificationswithlowtake-up,someofwhichmaybeservingnichesectors.Conversely,manyvaluedandpopularvocationalqualifications(suchasvendorqualifications)operateoutsidetheregulatedqualificationssector,attractinginvestmentfromindividualsandemployersinpreferencetoregulatedqualifications.

Theprivatelyfundedtrainingmarketissignificantlylargerthanthepubliclyfundedmarket.ThemostrecentUKCommission’sEmployerSkillsSurvey(2011)indicatesthatemployersinEnglandspent£40.5billionayearontraining.3PublicinvestmentthroughSFAwasapproximately£2.7billionin2011/12.4In2011/2012,around30%ofregulated

qualificationswereprivatelyfunded,withonlyaround7%oftheseprivatelyfundedqualificationsdeliveredthroughFEcolleges.5

Table2opposite,illustratesthatthemajorityoflearningaimsdeliveredthroughpublicfundingwereatEntryLevelandLevels1and2.Thoselikelytoconferoccupationalcompetence(Level3andabove)canattractprivateinvestmentfromemployersandindividuals(particularlywheretheyareco-fundedforthoseaged24+).Theyaccountforaround19%ofpublicinvestment.Clearlythereisscopeforsignificantgrowthinthemarketforregulatedvocationalqualifications.Torealisethispotential,employersandindividualswouldhavetounderstandtheregulatedvocationalqualificationssystemandhowitaddsvalue.

Toinvestigatehowthiscanhappen,thecurrentregulatedsystemhasbeenmapped,lookingatwherevalueisaddedfortheemployerandindividual.Figure 1showstheactivitiesinvolved,theorganisationsthatparticipate,andthekeyoutputs.Itisclearfromthemapthattherearemanystakeholdersandprocessesparticipatinginthedesign,thedevelopmentandthedeliveryofadultvocationalqualifications.Althoughthereareinstancesofbestpracticeinworkingrelationshipsbetweenemployers,awardingorganisationsandtrainingproviders(includinginformalwaysofreportinghowbenefitsaccrue),thesearenotthenorm.OnlytypicalinteractionsareillustratedinFigure1.

5 The Strategy

3 Davies, B. et al. (2012) UK Commission’s Employer Skills Survey 2011: England Results. UK Commission for Employment and Skills, Wath-upon-Dearne.4 Based on the 2011/12 budget and taken from: SFA (2013) Annual Report and Accounts 2012. Skills Funding Agency, London.

5 Based on estimates comparing the volume of funded qualifications by SFA and EFA through the ILR against the total volume of vocational qualifications awarded, as reported by Awarding Organisations to Ofqual.


Level 1 & Entry

Level 2

Level 3

Level 4, 5 or Higher

Other

1,480,350

834,500

363,430

13,540

238,220

76,990

272,000

1,290

31,520

4,220

40

5,270

0

70

265,120

942,080

50,670

078,500

Table2:Numberofregulatedqualifications6fundedbylevel,2011/12

Education and Training

Work Place Learning

Apprenticeships

Community Learning

0 100 200 300 400 500 600 700 800 900 1,000 1,100 1,200 1,300 1,400 1,500

6 Referred to as ‘learning aims’ by the SFA.

370,930


Oversight and design of the English adult vocational qualification system (Figure 1 – Top Left)

• TheDepartmentofBusiness,InnovationandSkills(BIS)overseespolicyforadultvocationalqualificationsinEngland.Therearetwoothergovernmentdepartmentswithacloseinterest:TheDepartmentforEducation(DfE)foralignmentwithvocationalqualificationsforyoungpeopleandtheDepartmentforWorkandPensions(DWP)tosupportyoungpeopleandadultsintowork.

• TheDevolvedAdministrationshavesharedinterestsinthesystemwithregardtoNationalOccupationalStandards(NOS)(allDevolvedAdministrations)andtheQualificationsandCreditFramework(QCF)(WalesandNorthernIrelandonly).

• OfqualregulatesawardingorganisationsandthevocationalqualificationstheseofferinEnglandandNorthernIreland.

• TheSkillsFundingAgency(SFA)administerspublicfundingforadultfurthereducationandskillstrainingandApprenticeships(includingvocationalqualifications)accordingtoprioritiesdeterminedbyBIS.

• OfstedassessesthequalityofteachingandlearninginEnglandagainsttheCommonInspectionFramework.

• TheUKCommission(UKCES)commissionsNOSandotherpubliclyfundableworkrelatingtostandardsandframeworksonaUK-widebasis.Thistakesplacethroughapreferredsupplierlistselectedviaacompetitionamongstsectorbodies.

• Someemployersareabletoarticulatetheirskillsneeds,workingwithawardingorganisationsandtrainingproviders.

Development and modification of qualifications and associated training courses (Figure 1 – Top Right)

• Awardingorganisationsidentifytheneed7fornewvocationalqualificationsbasedontheirviewsofnationalorlocalemployerdemandandhowlargethemarketis,usuallyassistedbyinformationfromoneormoreoftheirtrainingproviders.8

• VocationalqualificationsbasedonNOSare(inmostcases)designedusingtheQCF.Amongstothercriteria,theQCFhasasetofdesignrulesrequiringvocationalqualificationstobemadeupofunitswithlevelsandcredits.

•AwardingorganisationschooseunitsfromtheQCFdatabankoraddnewunitssothattheycandevelopspecificationsforvocationalqualifications.Specificationscompriselistsofunits,rulesforcombiningtheunits,andarrangementsforassessment,qualitymanagementandguidance.

• AwardingorganisationssubmitvocationalqualificationstoOfqualforaccreditationandplacingontheOfqualRegisterofRegulatedQualifications.

• TheSFAapprovesvocationalqualificationsfromtheOfqualRegisterforpublicfundingbasedongovernmentfundingandeligibilityrules.

• Apprenticeshipframeworkdevelopers(usuallySectorSkillsCouncils(SSCs)butitisanopenmarket)designApprenticeshipframeworksaccordingtoagivenstandard(SpecificationofApprenticeshipStandardsforEngland–SASE)andincluderegulatedvocationalqualificationsintheseframeworks(wheretheymeettherequirements).

7 Our evidence shows that there is no standard process for this.

8 The term ‘training provider’ is used here to refer to any college, private training organisation or other organisation offering regulated vocational qualifications.


• IssuingAuthorities9(usuallySSCs)issueApprenticeshipframeworksforasector,whentheycomplywiththerequiredstandard,andmonitorthevocationalqualificationsinApprenticeshipframeworkstomakesuretheystaycurrent.

Delivery of training and assessment of individual achievement (Figure 1 – Bottom Right)

• Trainingproviderschoosewhichawardingorganisationstouse,andwhethertotestthemarket.Usuallythecostofawardingservicesdoesnotmakeitalegalrequirementtotestthemarket.

• Trainingprovidersapplytoawardingorganisationsforapprovaltodeliverthequalificationsofthatawardingorganisation.

• Trainingproviderspromotethevocationalqualificationstheydelivertolearnersandemployerslocally.

• Trainingprovidersdevelopanddelivertrainingprogrammescoveringtheskillsandknowledgedefinedintheunitsmakingupthequalifications.

• Ofstedreviewprovisionattractingpublicfundingtoassessquality,andinsomecasesotheragenciessuchasprofessionalbodiesorSectorSkillsCouncilsreviewprovisionwheretheyhaveendorsementarrangements.10

• Theindividualstakingthequalificationsareassessedinaccordancewiththequalificationspecification.

• Wheretheassessmentsrelyonevidencefromworkorfromotherlocally-basedassignments,employersand/ortrainingprovidersassesstheachievementsofindividualslocally.

• Awardingorganisationssamplelocalassessmentstoassurevalidity,usuallythroughperiodicexternalreview.

• Awardingorganisationsissuecertificatestoindividualsconfirmingthequalificationisachieved.

• AwardingorganisationssubmitannualreturnstoOfqualontheircomplianceandcanbesubjecttoscrutinybyOfqual.

• Ofqualcanapplysanctionstoanawardingorganisationwhereitfailstocomplywithregulatoryrequirements.

Employers and individuals benefit from up-skilling resulting from attainment of qualifications (Figure 1 – Bottom Left)

• Employersrecruitindividuals,usuallylookingforpeoplewhohaveachievedparticulareducationallevels(oftenbenchmarkingagainstacademicstandards),andsupporttheirdevelopmentinworkwithfurthertrainingtohelptheirperformanceandeffectiveness.

• Individualstakeadultvocationalqualificationsavailablefromtrainingproviders,anticipatingthatthesewillofferprogressiontoandwithinemploymentoreducation.

• Someawardingorganisationsandtrainingproviderscollectanduseinformationtheyreceivefromindividualsabouttheirprogresstohelpimprovetheirqualifications.

• SomeSSCsandawardingorganisationscollectandrespondtofeedbacktheyreceivefromtheemployerstheyengagewithaboutNOS,Apprenticeshipsandvocationalqualifications,toinformfuturedevelopment.

9 Issuing authorities are organisations designated by BIS to issue Apprenticeships that comply with the Apprenticeship standard (SASE).

10 Ofsted reviews provision where there is direct public funding. The SFA has a Register of Training Organisations eligible for public funding.

14 | ADULT VOCATIONAL QUALIFICATIONS REVIEW ADULT VOCATIONAL QUALIFICATIONS REVIEW | 15

Employers and Individuals benefit from up-skilling resulting from attainment of Qualifications

Oversight and Design of the English Adult Vocational Qualification System Development and Modification of Qualifications and associated Training Courses

Delivery of Training and Assessment of Individual Achievement

info

rm

support / recognise

support / endorse

liaise

liaise

regulate

regulate

regulate

develop

transaction / partner

liaise, occasionally

partner

teach / educate

em

plo

y /

educate

on-going professional development

promote for funding

set standards for teaching quality

approve

approve fund

fund

informs

policy steer /

policy steer /

policy

steer

/ re

port

back

policy

steer

/ re

port

back

report

back

report b

ack

develop

work

for

Maintain standards in occupations

[Professional Bodies]

Approve and assure qualification assessment

[Awarding Organisation, Providers and employers can contribute]

Approve and assure vocational training

[Professional Bodies and Ofsted]

Provide careers advice

[National Careers Service]

Deliver vocational training

[Training providers, inc. colleges, private providers and unions]

Regulate adult voc qualsfor sector entry e.g. limiting provision to specific awarding bodies

[Sector based regulators]

Develop / modify qualification - learning outcomes

(QCF / syllabus)- assessment methods- quality management

[Awarding Organisation]

Regulate adult voc quals

[Ofqual]

Articulate skills need in sectors

[Employers and employer/employee representative groups inc. SSCs, UKCES, unions, professional bodies]

Approve qualifications and units for public funding, set the price, distribute government funding

[SFA]

Define teaching standards

[Ofsted]

Develop QCF units

[Awarding Organisations, SSCs and other units developers]

Set standards (NOS)

[Ofqual, sectors based regulators, employers, UKCES]

Syllabus and QCF Units

Qualification

Overall oversight and policy responsibility for adult voc quals in line with national priorities

[BIS, DfE, DWP]

Develop / modify training courses and apprenticeships

[Training providers & unions]

Develop workforce to deliver business / service outcomes

[Employers]

Select courses with intention to acquire new skills to move into work and progress

[Individuals]

Conduct qualifications assessment

[Awarding Organisation, (accountable). Providers and employers]

Key tO the DiAgRAM

rela

tion

ship

Activities are performed as part of the future English Adult Vocational Qualification System.

Actors are organisations or individuals who participate in Activities.

Relationships (or Interfaces) connect Activities. Some less important Relationships are shown as dashed lines.

Significant Output from an Activity which is used by other Activities.

Output

Activity

[Actor]

Figure 1: Current Adult Vocational Qualification System – Key Functions and Transactions


5.2 Problems with the current system

Thecurrentsystemhasmuchtocommendit.Some(mostlylarge)employersengagewiththesystemandarehappywiththeirexperience,feelingthatvocationalqualificationscovertheskillsneededbytheirbusinesses,allowstafftoworkflexibly,anddonotrequiremuchtimeawayfromthejob.11Someawardingorganisationsandtrainingproviderscollectandactonprogressiondataabouttheirlearnerstoimprovetherelevanceoftheiroffer(althoughthereisnoformalsystemforthis).QCFleveldescriptionsandcreditvalueshelpalignvocationalqualificationsacrosstheUKandEurope,encouraginglabourmobility;andcansupportlearnersfurtherfromthejobsmarket,orthosewantingtotakevocationalqualificationsinstagesbyrecognisingpartialachievement.

However,manyemployers(especiallysmalleremployers)failtoengagewiththevocationalqualificationssystem.Only28%ofbusinessestrainedstaffusingvocationalqualificationsintheyearbeforethesurvey.Thisdropstojust16%ofbusinesseswith2-4employees,asymptomoftheinaccessibilityofthesystemtothesmallestbusinesses.12Thecomplex,over-prescribedsystemisabarriertomanyemployersanddoesnot,evenwiththehelpofsignificantlevelsofpublicfunding,generatevocationalqualificationsthatarevaluedwidelyorseenasasignalofmarketableskills.

Successivegovernmentshaverecognisedthis,andintervenedtogetabettermatchbetweenskillsandvocationalqualifications.13Theseinterventionshavecreatedamorecentralisedsystem,unwittinglydevelopedon“lowtrustprinciples”,wherequantityofvocational

qualificationsachievedismeasuredratherthanqualityorimpact.

1. Weak accountabilities in the vocational qualifications system

Thecurrentsystemdoesnotexpectawardingorganisationstoprovideinformationaboutthevalueaddedbytheirvocationalqualificationsorrequirethemtobeconsistentwithotherawardingorganisationsintheirapproachtoapprovingtrainingprovidersawardingtheirvocationalqualifications.Asaresult,thereislimitedinformationtohelptrainingproviders,employersorindividualstochoosebetweenawardingorganisations.Thisproblemiscompoundedbythenumberofrecognisedawardingorganisationsandregulatedvocationalqualifications.

Theawardingmarketisdominatedbyasmallnumberoflargeawardingorganisationsthatoperateinmanysectors.Ofqualregulates176awardingorganisations,ofwhichthethreelargest(Pearson,City&GuildsandOCR),accountforoverhalfofthemarket.Pearsonacountsfor25%,City&Guilds16%andOCR11%.The50largestawardingorganisationsaccountfor97%ofthemarket.Thismeansthat126awardingorganisationshavejust3%marketshare.14

11 Shury, J. et al. (2012) UK Commission’s Employer Perspectives Survey 2012. UK Commission for Employment and Skills, Wath-upon-Dearne.

12 Ibid

13 Concurrent work by the OECD identifies many of the same problems as this report, including the need for improved accountability and the flexibility to respond to employer need.

14 Ofqual (2013). Annual Qualifications Market Report 2013. Ofqual, London.

3%

97%

126awardingorganisationsaccountforatotalof3percentofthemarket

Therest

Top50


Themajorityofawardingorganisationsoperateinasmallnumberofsectors:72operateinonlyonesector;andjust8operateinmorethan11.Wheretheyoperateinonesector,theytendnottodominatethatsector.Instead,largerawardingorganisationsissuethemostcertificates.ThisisillustratedbysectorinAnnex 1.

Choicebetweenawardingorganisationscanbehelpfulandshouldencouragecompetition.However,thereislittleinformationtohelptrainingproviders,employersorindividualstochoosebetweenawardingorganisations.TheOECDreport,SkillsBeyondSchoolinEngland,15suggeststhatinthesecircumstanceschoicecanhaveanegativeimpactonqualityasthereislimitedotherinformationavailabletocompareawardingorganisations.Theriskisthatselectiontakesplaceonfactorssuchasthehighcostofswitchingawardingorganisations,ortheperceivedeaseofattainingcertainvocationalqualifications.Thiscanleadtoa‘racetothebottom’inquality.

Totestthelevelofflexibilityinoneaspectofthequalityassurancearrangements,aquickreviewwasconductedofcentremanualsissuedbyawardingorganisationstotrainingproviders.Thesedocumentsexplainthequalityassuranceprocessesofawardingorganisations.Thereissignificantflexibilityinthemodelsawardingorganisationsuseandtheinformationavailablepublicly.Theseprocessesarecostly,sotheincentivecanbetodoless.Giventhecompetitivepressuresonawardingorganisationstokeepcostsdownandtheincentivestorunlessrobustqualityassuranceofassessment,agreaterlevelofspecificitywouldhelptomitigateagainstthis.

2. NOS are too specific and constrain use by small employers or employers with unique processes

Industry-ledoccupationalstandardsaredevelopedusinganumberofdifferentapproaches,throughprofessionalbodies,sectorregulatorsandstandards-settingorganisations.Therearearound940NOS,giving56%coverageofoccupations(basedonSOCcodes).16NOSsummarisethecompetencyrequirements(skills,knowledgeandunderstanding)foranoccupation.

Occupationalstandards(includingNOS)supportemployersandindividualsbygivingthemclearindustry-ledstandardstoworkto,oftenbenchmarkedagainstbestpracticeinternationally,andcontributingtowardsup-skillingandcompetitiveness.Forindividuals,havingaclearstandardcanfacilitatelabourmobilityacrosstheUKandinternationally;andforemployersitcanbeanindicatoroflevelofcompetenceachievedandreducecostsbyavoidingunnecessaryrepetitionoftraining.

NOSarecommissionedthroughtheUKCommissiononbehalfofthefournations.PriorityisgiventoNOSrevisionsinlinewithchangestolegislationinsectorsandtogrowthsectorsforeachUKnation,workingthroughapreferredsuppliernetworkchosenfortheircapacitytodeliver.Overthelasttwoyears,investmentsof£2.7millionand£2.3millionrespectivelyhavebeenmadeinNOSthroughtheseUK-widearrangements.PolicyrelatingtoNOSisnotpartofthecommissioningprocessandrestswithgovernmentsineachnation.

Forvariousandhistoricreasons,includingthelackofconfidenceinlevelsofemployerinvolvementinthedesign,thedevelopmentandthedeliveryofvocationalqualifications,NOStendtoprescribe

15 McCoshan, A. and Hillage, J. (2013). OECD Review: Skills Beyond School Background Report for England. UK Commission for Employment and Skills, Wath-upon-Dearne.

16 SOC (Standard Occupational Classification) is a common classification of occupations for the UK. Jobs are classified in terms of their skills levels and content.


outcomestoadegreeofdetailthatcanrestrictassessmentforawardingorganisationsanddeliveryfortrainingproviders.TheuseofthesetightlyprescribedNOSlimitstherelevanceofvocationalqualificationsbasedonNOSforsmallemployersorlargeremployersoperatingwithuniquesystemsandstructures,asthelevelofdetailconstrainstheirflexibilityindifferentcontexts.Over-detailedNOScanalsoconstrainassessment,limitingittoatick-boxapproachandmakeitdifficultfortrainingproviderstocustomisethecurriculumtomeetlocalneeds.Anumberofrecentreviews17,18,19identifythisnarrownessandtightprescriptionasaproblem.

3. Vocational qualifications have no clear identity or specific design principles, are poorly quality assured and proliferate through the QCF

AllregulatedqualificationsinEnglandhavetocomplywithOfqual’sGeneralConditions,whichdonotspecifyparticularapproachestoqualificationdesign(exceptforcertainacademicqualifications).AdultvocationalqualificationsseekingeligibilityforpublicfundingareexpectedtocomplywiththerequirementsfortheQCF,buttherearenospecificdesignprinciplestogivevocationalqualificationsanidentity.Theytendtobeseenasthosequalificationsthatarenotacademic.Thisisaproblemforemployersandindividualslookingtodevelopvocationalqualificationsbasedonanoccupationalstandard.Manyqualificationssupportingthosefurtherfromthelabourmarketcangetconfusedwithvocationalqualifications.

TheuseoftheQCFhascompoundedtheproblem.NOShavetoberewrittenintoastandardQCFunitformatandtheseunitsareaddedtotheQCFunitdatabank.Thereisnoqualityassuranceprocesstochecktheseunitsreflecttheinitial

NOS,arewrittenclearlyorareofanappropriatequality.TheconversionofNOSintounitsaddsasteptothedevelopmentprocess.TheapproachofusingastandardQCFunitformatwasintroducedsothatindividualscouldchangevocationalqualificationsandcouldtransferbetweenawardingorganisationsmoreeasily,avoidingunnecessaryrepetitionoftraining.Inpractice,thereislittleevidencethattheunitssystemhasresultedinindividualstransferringbetweenawardingorganisations.Instead,theunitformathasresultedinadatabankofunitsnotqualityassuredandusedasbuildingblocksforvocationalqualifications.Theformathasalsoencourageda“tickbox”approachtocurriculumanddiscouragedassessmentthatconfirmedtheoverallstandardhadbeenreached.

ThefreedomforallawardingorganisationstointroducenewqualificationsbasedonQCFunitshaseasedmarketentryandreducedproductdevelopmentcostsforawardingorganisations,withoutreferencetotheirlevelofemployerinvolvementorsectorexpertise.Ithasalsocontributedtoaproliferationinthenumberofvocationalqualifications,weakenedthelinkwiththeoccupationalstandard,andmadethesystemmorecomplicated.Forexample,inEngland,eachunitcanbeaqualificationinitself,orpartofanaward,certificate,diplomaorextendeddiploma.InScotland,wherethecreditsystemwasintroduceddifferentlyandtherecontinuestobeadirectrelationshipbetweenNOSandScottishVocationalQualifications,onepartoftheretailsectorhasfivevocationalqualificationsbasedonNOS.InEngland,thesameNOSconvertedintoQCFunitsgeneratearound140separatevocationalqualifications.

4. Too little emphasis on economically valuable skills

Inthecurrentskillssystem,successismeasuredonthenumberofthosegainingvocationalqualifications.Thisdoesnotindicatetherelevanceofskillsprovidedtothelabourmarketorthequalityofprovision.Thereisnoformalfeedbackloopthatdemonstratesthereturnoninvestmentforemployersorindividualsofachievingavocational

17 Wolf, A. (2011). Review of Vocational Education – The Wolf Report. DfE, London.

18 Richard, D. (2012) The Richard Review of Apprenticeships. BIS, London.

19 CAVTL (2013). It’s about Work… Excellent Adult Vocational Teaching and Learning. Learning and Skills Improvement Service, Coventry.


qualification.Whilesomeresearchisconductedontheimpactofqualificationsonwages,thereisnostandardisedmechanismfortrackingprogression.

Asaresult,thereisnoclearindicationofwhichtrainingproviders,awardingorganisationsorevensubjectareasprovidesufficientreturnoninvestment.Capturingthisinformationischallenging,butitisimportantthatthosedeliveringandawardinghaveclearsightofimpactsothatqualificationscanberefinedinlinewithindividualexperienceandlabourmarketneed.

BISistakingforwardworktodevelopsuccessmeasuresfortheFEsector,focusingonearnings,destinationsandprogression.Additionally,someawardingorganisationsareworkingtomeasuretheimpactoftheirqualifications.Onthewhole,althoughworkisinprogresstoimprovethis,thereisverylittlevisibleinformationatasufficientlevelofgranularitytogiveindividualsandemployersclearinformationaboutthelikelyimpactofparticularvocationalqualificationsontheircareerorfortheirbusiness.

5. Confusing qualification titles and complicated databases

Vocationalqualificationsareobscuredbythenatureofthecurrentdatabasesandtheconventionsusedfortitlingandcounting.VocationalqualificationsofferedbyapprovedawardingorganisationsarelistedonadatabasemaintainedbyOfqual(theRegisterofRegulatedQualifications);thosequalificationseligibleforpublicfundingarelistedonaseparatedatabase(LARA);20SSCshavewebsitesshowingtheofferfortheirsector;andawardingorganisationsandtrainingprovidershavewebsitescontainingtheirownadultvocationalqualifications.NOSandApprenticeshipframeworksarelistedintwoadditionalseparatedatabases.Thesedatabasesdonotconnectandcanbedifficultforemployersandindividualstonavigate.

Forexample,Ofqual’ssearchengineasksfortechnicalinformationincludingqualificationlevelandtype.Employersorindividualslookingforqualificationswouldnotusuallyhavethistechnicalexpertise.Forregulatorypurposes,Ofqualhastobeabletoidentifyallvocationalqualificationsuniquely,includingthoseofferedbydifferentawardingorganisations.Vocationalqualificationstendtobecountedonthebasisoftheseidentifiers,artificiallyinflatingthenumberofdifferentvocationalqualificationsavailable.Althoughtheuniqueidentifierisimportant,thereneedstobeabetterapproachtoidentifyingvocationalqualificationsforemployersandindividualstoreducethecomplexityandgivevisibilityofwhatisavailable.

6. Barriers to the use of technology in the delivery and assessment of adult vocational qualifications 21

Recenttechnologicaladvancesineducationoffertheopportunityforbetterflexibilityandvalueformoneyindeliveryandassessmentofvocationalqualifications.Unfortunately,manystakeholdershaveyettoadoptthem.Thereislittleincentivefordeliveringlearningquickly,flexiblyandaffordablythroughtechnology,assomebusyindividualsandemployerswouldprefer.Trainersandteacherscanalsobethebarrier.Theymaynotbetrainedorconfidentintheuseofnewtechnology,andmaydiscourageitstake-up,possiblybecauseoflimitedaccesstocontinuingprofessionaldevelopmentopportunitiesorpersonalpreferencestowardslow-technologyteachingmethods.

7. Limited effective employer involvement in vocational qualifications

Thecurrentregulatedsystemdoesnotencourageemployerownershipofvocationalqualifications.UnlikeinmainlandEurope,thereisnotthehistoryacrossallsectorsofemployersbeinginvolvedinvocationalqualifications.Successivegovernments

20 N.B.: LARA also generates funding calculations and allocations and has links to Individualised Learner Records (ILR), which record learners and their learning with information collected from providers.

21 We would like to acknowledge the input of the Further Education Learning Technology Action Group (FELTAG) in shaping this recommendation.


havetriedtomandatethis,mostrecentlythroughsettingupanetworkoflicensedSSCs.Thebestofthesedevelopedstrongemployer-ledgovernanceandco-investedinskills,usuallywheretherewasasharedneedtoaddressskillsissuestosupportbusinessgrowth.Othersstruggledtoinvolveemployers,andweredependentonpublicfunding.ThesetendedtofocusonthedetailofvocationalqualificationsandApprenticeshipreforms,andhadstrongrelationshipswithgovernmentratherthanemployers.Also,someawardingorganisationsandtrainingprovidersengagedmorewiththeseintermediariesratherthanworkingwithemployersdirectly.

Afurtherbarriertoengagementforemployersisthecomplexityandlackofstabilityofthevocationalqualificationssystem.Employershavelimitedtimetodevelopthelevelofunderstandingnecessarytomaketheiropinionsknown,andwantconfidencethattheyarecontributingtoasustainableapproach.Thereisnoguaranteedmechanismforensuringemployerinputintoqualificationdesign,developmentordelivery.Atthenationallevel,scopeforengagementcanbethroughSSCsorintermediaries,andthedesignofNOS,butthelevelofdirectemployerengagementcanbevariable,particularlyinhighlycompetitivesectorswithoutahistoryofcollaboration.Atlocallevel,trainingprovidershaveverylittlediscretiontonegotiatethecurriculumdirectlywithemployersbecauseofthecentralprescriptionofthecurrentoffer.

Thisleavesthedesignandprovisionofqualificationsopentoperverseincentives.Theendresultcanbevocationalqualificationsdesignedandredesignedtochasepublicfundingratherthantosuittheneedsofthelabourmarket.Inresponse,employershavetendedtocommissiontheirowntrainingwithoutusingregulatedqualifications.Thisleadstotwomarketsforskills:oneinwhichgovernmentinvests,andthemuchlargeroneinwhichemployersinvest.Theambitionofthisreviewistobringthesemarketstogetherwhereverpossibleandleverageupsignificantlythelevelofinvestmentemployersandindividualsmakeintheregulatedmarket.

5.3 Immediate actions

Consideringtheaboveproblems,thefollowingactionswouldaddclarityandaccountabilitytotheadultvocationalqualificationssystem.Sixinitialrecommendationsareprovidedinthissection,followedbyaseventhrecommendationinthesubsequentsectiontorealisethelonger-termvision.AsummaryoftheserecommendationsandtheeffecttheywillhaveisprovidedinSection 7.TheserecommendationsbuildontheRichardReviewofApprenticeships,TechLevels,theCommissionforAdultVocationalTeachingLearning(CAVTL)andtheFurtherEducationLearningTechnologyActionGroup(FELTAG).

1. Ofqual should require awarding organisations to engage actively with employers in sectors where they provide vocational qualifications; and awarding organisations should require training providers offering their vocational qualifications to engage with employers locally.

Awardingorganisationsandtrainingprovidersshouldhaveaclearlineofsighttoemployersandindividualsworkinginorenteringthesectorstheyserve.Ofqualshouldexplainitsrolemoreclearlyandworkwithawardingorganisationstoencouragemoreeffectiveemployerengagement(forexample,throughindustrialpartnershipsastheyemerge),andsubjectthosenotabletointeracteffectivelywithemployerstoregulatoryaction.

Awardingorganisationsshouldrequiretrainingprovidersofferingvocationalqualificationstoworkcloselywithlocalemployersinrelevantsectors.Workingwithemployerslocallywillhelptrainingproviderstooffercoursesrelevanttolocalbusinessneeds,andmakethecoursedesignanddeliveryunderpinningthevocationalqualificationrelevanttotheindividualandemployer.Thiswillgiveemployersandindividualstheconfidencethatemployersareinfluencingvocationalqualificationsintheirsectors.Therewouldbevisibilityofwhichawardingorganisationsandtrainingprovidersoperateinparticularsectors,andemployersand


individualswouldseethebenefitofinvestingintheregulatedsystem.

Thelikelyresultwouldbe:

• Greaterinvolvementofemployersinthedesign,thedevelopmentandthedeliveryofadultvocationalqualifications,TechLevelsandApprenticeships

• Clearinformationaboutwhichawardingorganisationsofferadultvocationalqualificationstoeachsectorandwheretheyaredelivered,supportingemployerandindividualchoice

2. The UK Commission for Employment and Skills should work with employers to agree the future model for occupational standards; and employer-led collaborations (industrial partnerships) should ensure that future occupational standards articulate their ambition and aspiration for their workforce clearly and effectively.

TheUKCommissionshouldhavepolicyandcommissioningresponsibilityforoccupationalstandards,anduseitsstrengthsinlabourmarketanalysisandevaluationtoallocateanypublicfundingavailableappropriately.Inpractice,thiswouldprobablybetomeetgrowthprioritiesofnationsand,forEngland,tounderpinTechLevels,Apprenticeshipsandadultvocationalqualifications.

IntakingforwardpolicyonNOS,theUKCommissionshouldreviewthecurrentcriteriaandguidanceforNOS,andfreeupoccupationalstandardssothatthelevelofprescriptionwouldremainonlywhereindustrywantsitorthereisastatutoryrequirement.Thiswouldallowvocationalqualificationstobecontextualisedlocallytomeettheneedsofspecificindustriesandindividuals,allowinga‘coreandoptions’approachtobedevelopedanddelivered.

Examplesofwhatsuchhighleveloutcome-basedstandardsmightlooklikeareincludedfromthe

FederalInstituteforVocationalEducationandTraining(BIBB)inGermany(Annex 2).22Employerswoulddesigntheoccupationalstandardsforadultvocationalqualifications,TechLevelsandApprenticeships,givingindividualstheopportunitytoreachtherequiredstandardwhereveritisdelivered.Wherestandardsareneededandthereisnoemployerleadership,theUKCommissionwouldcommissionthestandardthroughappropriateemployer-ledarrangements.

3. Ofqual should introduce our proposed new design principles for vocational qualifications giving vocational qualifications a clear identity and should make the prescribed unit format and sharing of units optional.

Therearetwodifferenttypesofadultvocationalqualifications:

• ThosesupportinginitialentrytoanoccupationwouldbebasedonthesamestandardandassessmentasApprenticeshipsandTechLevels.

• Thosesupportingcontinuingprofessionaldevelopmentencouragelearningbeyondinitialtraining,whichwouldbeeitherknowledgeorcompetencybasedoramixtureofthetwodependingontheneedsofthesector.

ThisapproachtoinitialvocationalqualificationsgivesprimacytoApprenticeshipsandsupportseconomicrecoverybyputtinginplaceapipelineoftalentduringaneconomicdownturn;andtheapproachtovocationalqualificationssupportingcontinuingprofessionaldevelopmentunderpinslifelonglearningandencouragesdevelopmentofskillsbeyondinitialachievement.

Thecurrentrequirementsforvocationalqualificationsshouldbereplacedbyasinglesetofnewdesignprinciplesthatgivesvocationalqualificationsaclearanddistinctidentity(Section 8).Theseprinciplesshouldsetoutclearlywhatlearnersshouldknowandbeabletodouponcompletionatalevelofdetailthatismeaningfulandrelevanttoemployersandindividuals.

22 The included examples are for illustration purposes only.


Thesedesignprincipleswouldnotrequireuseoftheunitformatorexpectawardingorganisationstogiveuptheirintellectualpropertyrights.Thisreducesthelengthofthedesignprocessandremovesakeysourceofproliferationofvocationalqualifications,andreaffirmstheimportanceofqualitybydiscouragingassessmenttobedeliveredascurriculum.Thesechangeswouldfreeupthedesignfeaturesforvocationalqualifications,encouraginginnovationincurriculumandassessment,includingtheincreaseduseoftechnology,andfacilitatetheintroductionofgradingtodriveuplevelsofperformanceandsupportcompetitiveness.TheuseofcreditvaluesandleveldescriptionswouldcontinuetoshowthedistancetravelledandtosupportlabourmobilityandeducationalprogressionacrosstheUKandEurope.

4. Awarding organisations and training providers should report on the impact of their vocational qualifications to their customers.

Trainingprovidersandawardingorganisationsshouldprovideinformationonoutcomesandimpactforlearners,includingevidenceofstudents/employeespassingadultvocationalqualificationsgoingontostudyatahigherlevel,orsecuringemployment(includingwhetherthecoursewasrelevanttotheemployment)oranApprenticeship;23wherepossible,informationaboutemploymentprogressionshouldalsobeincluded.

Todothis,awardingorganisationswouldberesponsibleforcollectingdataandusingittoimprovetheiroffer.Theinformationwouldbepubliclyavailabletohelptrainingproviderstesttheawardingmarketandselectthebestvalue,aswellastodemonstratetoindividualswhichawardingorganisationsandqualificationsdeliverthebestresults.

Thereisarangeofwaysinwhichimpactinformationwouldbecollected.Awarding

organisationsandtrainingprovidersshouldworktogethertodeterminethemostappropriateoption,whichcouldinclude:

i Awarding organisations/training providerssurveyinglearnersaftercompletion(proportionatetothenumberoflearnersundertakingthequalification),andpotentiallysharingsurveyquestionstofacilitatecomparability.

ii Awarding organisations collecting centrally defined information requirementssimilartotheDestinationofLeaversfromHigherEducationsurvey(DLHE),whichrecordsprogressionintosubsequentworkoreducation,includingjobtitles,payandthetypeofworkundertaken.

iiiAnalysis of publicly-available data.Useofmatcheddatatotracklearnerswhohavecompletedaqualificationtofindouttheiremploymentstatusandwagelevels(beingtrialledbygovernment).

Awardingorganisationdatawillcomplementexistingandevolvingrequirementsfortrainingproviderstopublishinformationabouttheimpactofstudyingattheirinstitutionandsignalbroadersupportforasystemthatvaluestheoutcomesoflearning.

Thereisworkunderwayalreadytogatherandpresentsomeofthisinformationinacosteffectivemanner.Forexample,FEChoicesprovidesinformationaboutpubliclyfundededucationandtrainingtohelplearnersandemployersmakeinformeddecisions.Anumberofawardingorganisationsarelookingatsuccessmeasuresthatfocusontheimpactofqualificationsonemploymentandwageprogressionforlearnerstohelpinternaldecision-makingaboutproductdevelopment.Also,governmentismovingtodevelopsuccessmeasuresforvocationaleducationbasedonoutcomesandprogression.

ThroughjointworkbetweenBIS,awardingorganisationsandtrainingproviders,thesedifferentdatasetscouldbematched,usedforarangeofdifferentpurposesandmadevisibleinappropriateformats.Thiswouldreducecosts,

23 Aligned to the DfE pre-19 recommendations.


preventduplicationofeffortandgiveemployersandindividualsarichersourceofinformationtosupporttheirchoices.Inthefirstinstancecollectingsuccessmeasurescanbeexploredatawardingorganisationandtrainingproviderlevelbutthisinformationneedstobeavailablesystematicallyatvocationalqualificationlevel.Government,workingwithpartners,shouldconsiderthemostappropriateandcost-effectivewayofdoingthis.

Bycollectingandreportingnewoutcome-basedperformancemeasures,trainingproviderswillbecomemorediscerningpurchasersandawardingorganisationshaveinformationtoclarifyandimprovethemarketvalueoftheirqualifications.

5. Ofqual with SFA and the UK Commission should create a single point of access to the different qualifications databases.

Throughoursurveyandfocusgroups,itwasclearthatemployerswantasimplecatalogueofvocationalqualificationswhichtheycanusetomakeinformeddecisions.Forthis,thereshouldbeasinglepointofaccesstotheOfqualRegisterofRegulatedQualifications,theSFALearningAimsReferenceApplication(LARA),theNOSdatabase,andtheApprenticeshipframeworksdatabase.24

Thefirststepinbringingclaritytothequalificationsofferistocreateasinglefront-endwebsitethatdrawsinformationfromtheseparatedatabasesintooneplace,allowingtheoriginalownersofthedatatomaintainthequalityoftheinformation.Itwoulddisplayvocationalqualificationsbyoccupationandcouldbeusedwithouttechnicalknowledgeofqualifications.Itwouldincludeasimplesearchfunctionthatproduceseasilyunderstoodresults,aswellasadvancedsearchoptionstoaccommodateprofessionalusers.Itshouldclearlyindicatewhichqualifications–ifany–areeligibleforgovernmentfunding.

Vocationalqualificationsofferedbymultipleawardingorganisationsshouldonlycountasonequalification,withtheawardingorganisationslistedassecondaryinformation.Thiswouldmakethequalificationsdatabaseseasiertonavigateandhelpremovesomeoftheconfusionaboutwhichvocationalqualificationsareavailable.Quicktestsinthreesub-sectorsshowthatifthesamequalificationsofferedbydifferentawardingorganisationswerecountedasasinglequalification,thenumberofqualificationswouldbereducedasfollows:

• anengineeringsub-sector-from334to166qualifications

• acaresub-sector-from302to58qualifications

• aretailsub-sector-from236to66qualifications

ThisisfurtherillustratedinAnnex 1.

6. Ofqual, Ofsted and SFA should ensure that arrangements for regulation, inspection and funding provide appropriate incentives and do not inhibit training providers and awarding organisations from using technology in the delivery and assessment of vocational qualifications.

Recenttechnologicalinnovationshavemadeiteasiertodeliverandassesslearningthatispricedcompetitivelyandsuitstheneedsoflearners.Useoftechnologyensuresvalueformoney,reducingthecostoftaughttimeandbringingdowntherecurringcostofdeliveringqualifications.Thisisparticularlyimportantforowner-managersandsmallbusinesses,whohavesmallerbudgetsthanlargeorganisations.Appropriatetechnologycanincreaseaccessibilityandsupportflexibilityoflearning,allowinglearnerstoaccessonlineresourcesintheirowntimeratherthanbeingtiedtorigidschedules.

Itisimportanttonotethatsavingsresultingfromlearningtechnologiesaremorelikelytoaccrueovertime,ratherthanimmediately.Thefollowingrecommendationswouldeasethistransition.24 Any developments relating to the NOS database would need to

be taken forward in conjunction with Scotland, Wales and Northern Ireland.


Encouragingtake-upofflexible,economicalelectronicresourcesrequires:

• Supporting the continuing professional development of vocational teachers and trainers:ThisreviewmirrorstherecentCAVTLreportinrecommendingthatteachersbeprovidedwithtrainingonthenewestelectronicresourcesandhowtousethemtosupportlearning,improveassessmentandcollectmeaningfulandmeasurabledata.

• Working with universities and other training providers of initial teacher training (ITT) to enhance the curriculum to include the use of digital technologies:ITTprogrammesshouldincludespecifictrainingonhowtodeploydigitalmediainsupportofteaching,learningandassessment.

5.4 A recommendation for a sustainable longer-term vision

Adultvocationalqualificationsreformisoneimportantpartofabiggerchallenge–encouragingemployerstoinvestinestablishingatalentpipelinefortheirsectoranddevelopingtheirworkforce.Thisfinalrecommendationdescribesalongertermvisionforadultvocationalqualificationswithinthebroadercontextofanend-to-endapproachtoskillsasanintegralpartofbusinessgrowthandcompetitiveness.Itplacesemployersandindividualsasthe“goldenthread”runningfromoversightthroughdesignanddeliverytobenefitaccrual.

7. Encourage more leading employers to work in partnership to develop recognised, rigorous and relevant vocational qualifications.

Tomaximiseoureconomicadvantageandcompetitiveness,employersneedtoworkinpartnershiptodevelopasharedvisionfortheirindustrythatprovidesbenefitsoverthelongerterm.Workforcedevelopmentwillneedtobeanintegralpartofthisvisionandindustrialpartnerships–coalitionsofleadingemployers,unionsandotherpartners–canensureinvestment

inpeopleisoptimisedbyaligningittoabroaderindustrystrategy.Toachievethis,governmentandkeystakeholdersneedtocreatethespaceforemployerledpartnershipstostepupandtakeresponsibilityforworkforcedevelopmentintheirsector.

Suchindustrialpartnerships25wouldhaveresponsibilityfordevelopingindustry-ledresponsestomarketfailuresthatencompassthesupply,utilisationanddemandforskills.Overtime,industrialpartnershipshavethepotentialtodevelopanambitiousremit;forexampleencouragingmoreandbetterinvestmentinpeople;workingwithgovernmenttocreateconditionsthatsupportthosebusinesseswantingtomoveupthevaluechain;takingstepstoreduceyouthunemployment;reducingrelianceonmigrantlabouranddiminishingtheproductivitygapwithcompetitornations.Theywilllookacrossafullrangeofmeasurestoaccomplishthis.

Withinthequalificationscontext,therolewouldincludesettingthehighleveloccupationalstandardthatreflectstotalindustryneedandbeinginvolvedinthedesign,thedevelopmentandthedeliveryofadultvocationalqualifications,TechLevels,andApprenticeships.Developingstandardsthroughindustrycollaborationensuresthattheyhavecredibilitywithbusinessandrespondtotheneedsofemployeesandemployers,andinvolvementinassessmentanddeliverygivesemployerstheconfidencethatvocationalqualificationsarefitforpurpose.

Theformofsuchpartnershipswillvarydependingontheneedsandmake-upofdifferentsectors.However,therewillbesomekeycharacteristicsinplace:

• Genuine business leadership:avoluntarycoalitionofleadersfromhighprofilebusinessesthatoperateintheinterestsofthewholeindustry.

25 These industrial partnerships of employers will look to achieve growth in their sectors and are likely to engage with Scotland, Wales and Northern Ireland where their employers have interests in Devolved Administrations.


• Clear industrial strategy / broader growth agenda:industrialpartnershipsalignworkforcedevelopmenttowiderindustrychallenges(e.g.trade,accesstofinance,innovation).

• Activities determined by need and economic development:functionsandactivitiesaredeterminedbymarketfailuresaffectingindustrygrowthratherthansolelydesignedtofulfilfunctionsoftheskillssystem.

• Take a ‘whole’ approach to workforce development:monitoringthesupply,utilisationanddemandofskills.

• Exclusive rather than inclusive:industrialpartnershipswillnotgiveeconomy-widecoverage,theywillemergewherethereisneedandbusinessleadership.

• Accountable to the entire sector/industry:governancearrangementsenablethepartnershiptobeownedbythesector(i.e.throughdemocraticleadership).

• Representative of employees:unioninvolvementandactiveemployeeengagementwillbeencouraged.

• Ambitious:havingabroadremit,operatingwellbeyondwhatispubliclyfunded.

• Able to generate finance:themembershipinvestsininterventionsandservices.

Insectorswherenoindustrialpartnershipexists,alternativearrangementscanbeputinplacetodeliveraspectsthatgovernmentwishestofund.ThiscanhappenbyworkingwithBISandtheDevolvedAdministrationstorefinetheapproachtocommissioningthedevelopmentofstandards,Apprenticeshipframeworksandrelatedqualificationsactivities.ThefutureapproachwouldaddresssectorsimportanttonationalprioritiesinallpartsoftheUKandthosenotcoveredbyindustrialpartnerships(wherepublicco-investmentisfromEngland).Overtime,asemployersbecomemoreconfidentintheirownershipofskills,therewillbemoreemployerscomingforwardand

recognisingthebenefitsofcollaborationandco-investment.

ThroughtheEmployerOwnershipofSkillsPilotswehaveseensubstantialappetitefromleadingbusinessestoworkinpartnershipandtakeresponsibilityforworkforcedevelopmentintheirsector.Suchindustrypartnershipsareintheearlystagesoftheirdevelopment,butwiththerightleadershiptheycan:

• Increasethecredibilityofandinvestmentinadultvocationalqualifications,TechLevelsandApprenticeshipsthroughtheactiveinvolvementofleadingedgeemployers(includingsmallerbusinesses),employeerepresentativebodies,tradeassociationsandprofessionalbodiesintheirdevelopment.

• Increasetherigourandresponsivenessoftheskillssystemandqualificationsmarket.

• Ensuretheskillsandqualificationsthatpeoplegainarealignedtothelabourmarketandarefocusedonambitionsofgrowth.

• Focusqualificationsoneconomicandindividualgrowth,ratherthangrowthofthevariousorganisationswithintheskillssystemorsuccessinattractingpublicfunds.

GovernmentshouldbuildonthesuccessoftheEmployerOwnershipofSkillsPilotsbycontinuingtoco-investwithemployerstoincentivisetheformationofmoreindustrialpartnershipsacrossabroaderrangeofsectors,andtohelpmakenewlydevelopedpartnershipsself-sustaining.PuttingtheskillsagendainthehandsoftheseindustrialpartnershipswillensurestrongemployerengagementinthedesignofApprenticeships,TechLevelsandadultvocationalqualifications.

Thenextpageshowsapotentialfuturemodelforthequalificationssystem,withcalloutsreferringtotheareasofkeydifference.AtechnicalrepresentationisprovidedinAnnex 3.Whilethefuturesystemisstillunderstandablycomplex,thehighpotentialfordysfunctionisremoved.


Other key actOrs

- Dept. for Business, Innovation, and skills- Dept. for education- Dept. for Work and Pensions- Ofqual- Ofsted- skills Funding agency- Ukces

employers integral to the vocational

qualifications system

a simpler system for employers to engage with

success measures feed back to the

industrial partnership

Oversight and design of English adult vocational qualification system

Employers and individuals benefit from up-skilling resulting from attainment

of qualification

Development and modification of qualifications and associated training courses

Delivery of training and assessment of individual achievement

Industrial partnerships set high-level outcome

based standards

approved awarding organisations create qualifications from standards

approved training providers develop courses

awarding organisations confirm assessment and grading of individuals

Individuals use skills and employers develop

workforce

Vocational training in a range of settings, with appropriate technology

Better intelligence about what employers and individuals value

skills employers want, with flexibility and demonstrated rigour and recognition

‘Value for money’ for those paying for qualifications; flexibility for students

trust built into the system

Qualifications that are relevant to the needs of industry and valued by individuals

Businesses achieve growth due

to better skilled workforce

support of progression

through careers

emPlOyers

traDe UnIOn / PrOFessIOnal BODy

aWarDIng OrganIsatIOn

traInIng PrOVIDer

BeneFIts

PrOcess

Future Adult Vocational Qualifications System


Oversight and design of the English adult vocational qualification system (Top Left)

• Employer-led industrial partnerships,astheyform,comeforwardtotakeend-to-endresponsibilityforskillssolutions(includinghighleveloutcome-basedstandardsforvocationalqualificationsandApprenticeships)andsupportgenericvocationalskillssuchasmanagementandleadershipaslinkedtotheirwiderindustrialstrategy.Wherenoindustrialpartnershipsform,investmentcontinuesthroughtheUKCommission’sUK-widearrangements.

• Awarding organisations and training providers work directly with employersinsectorstheyrepresent,andnew design principlesgivevocationalqualificationsaclearidentity.

• Individuals, through their employers, personal investment or 24+ Advanced Learning Loans, invest directlyinvocationalqualifications,knowingwhichvocationalqualificationsarevaluedandmostrelevanttothem.Thiswillremovetheincentivetodesignandredesignvocationalqualificationstochasepublicfunding.Governmentwoulddecidehowlimitedpublicresourcesarespent.Forexample,itmaychoosetoincentiviseco-investmentingrowthsectorsoronlyinvestinthoseindividualsfurthestfromthelabourmarket.

Development and modification of qualifications and associated training courses (Top Right)

• Awarding organisations26are accountabletothesectorstheyareoperatinginthroughemployerinvolvementandimpactmeasures.Theyusetheappropriatehighlevelstandardsandthenewdesignprinciplestodesignadultvocationalqualificationsthatallowacoreandoptionsapproach,givinglocalflexibility.

• Awardingorganisationsdevelopvocationalqualificationsonlywherethere is evidence of clear economic value.Awardingorganisationsarerequiredtoprovideevidenceoftheimpactofvocationalqualifications.

• Vocationalqualificationsaredevelopedusingthehighleveloccupationalstandardscreatedbytheindustrialpartnerships.Thenewdesignprinciplesensurethatthequalifications are rigorous.

• Trainingprovidersdevelopcoursestodeliverthecontentofqualifications,withmorescopefore-learning.The core optionsapproachallowsthemtoworkwithlocalemployerstoadapttheircoursestofitlocalneeds.

• Awarding organisations(orothersuppliers)approvetrainingprovidersonlywheretheyhavethecapabilityandemployer involvementtodeliverhighqualityvocationalqualifications.

Delivery of training and assessment of individual achievement (Bottom Right)

• Training providers become discerning customers,usingthemarkettoengagewithawardingorganisationswithevidenceofbeingprogressiveandinnovative,andofferingcoursesthatdeliveremploymentandprogression.

• Training providers work with employerstoconfirmpriorities,designcurriculumandmarketadultvocationalqualificationstoemployersandindividualsinresponsetolocalneeds,withtheopportunitytocustomiseaportionofthequalification(variablewithinsectors).

• Ofstedoverseestheoverallqualityofdeliveryofthelearningofferrecognisingtheimportanceofvocationalqualificationsaccruing benefits for employers and learners.

26 Note that our use of the term ‘awarding organisation’ includes any organisation that holds an awarding function, including industrial partnerships where they meet Ofqual’s requirements to do so.


Employers and individuals benefit from up-skilling resulting from attainment of qualifications (Bottom Left)

• Trainingprovidersandawardingorganisationsreport publicly on the impactofadultvocationalqualificationsaspartoftheirannualsuccessmeasures.Thesemeasuresfocusbeyondtheimmediateachievementofthequalificationandincludeemployment outcomes for the individual, and benefits to businesses.

• Employersandlearners,ascustomersofthesystem,areabletousethenew vocational qualifications databasetomakeinformed decisionsaboutwhichvocationalqualificationstheytake,knowingthesuccessmeasuresforthesequalifications.


6 Summary of the key differences between current and future systems

Weak accountabilities in the vocational qualifications system

NOS written with excess detail, constraining qualification design

New design principles giving a clear identity, but not based on a unit format or shared units

Ofqual should require awarding organisations to engage actively with employers in sectors where they provide vocational qualifications; and awarding organisations should require training providers offering their vocational qualifications to engage with employers locally.

The UK Commission should work with employers to agree the future model for occupational standards; and employer-led collaborations (industrial partnerships) should ensure that future occupational standards articulate their ambition and aspiration for their workforce clearly and effectively

Ofqual should introduce our proposed new design principles for vocational qualifications giving vocational qualifications a clear identity and should make the prescribed unit format and sharing of units optional.

Ofqual requires awarding organisations to involve employers and representative organisations directly in the design and development of vocational qualifications, and awarding organisations require centres to involve employers in course design and delivery.

Single, clear high level outcome-based standards used for adult vocational qualifications, Tech Levels and the Richard Review in England.

New design principles for vocational qualifications will give vocational qualifications an identity, and more robust assessment and grading (Section 8).Make use of the unit format and shared units optional to awarding organisations.

Increased employer and individual confidence in vocational qualifications and the benefits of regulation, with employers integral to the vocational qualifications system.

Clarity of what the standard is, with reduced detail, making it easy to update, and allowing individuals to change routes as economic circumstances alter. Reduced costs of developing and updating the standard. Continued relevance across the UK and internationally to support labour mobility.

The design principles give adult vocational qualifications a clear identity alongside Tech Levels and Apprenticeships. They share the same standard and assessment, helping to build a talent pipeline into an occupation. The features of the QCF that are important to labour mobility (level descriptions and credit values) are retained, but those putting quality at risk are removed.

DIFFERENCE BENEFITSFROm TO

Fewer dead ends for employers and individuals – better informed choices about awarding organisation and training provider achievements.

Better intelligence about what employers and individuals value, driving quality into the system.

Helps individuals and employers to make informed decisions.

Better use of technology means that individuals and employers can decide where and when they want to learn and do not have to take time off work to learn.

Vocational qualifications relevant to the needs of industry.

Support of progression through careers.

Trust built into the system.

A simpler system for employers and individuals to engage with.

BENEFITS

Too little emphasis on economically valuable skills

Confusing qualification titles and complicated databases

Barriers to the use of technology in the delivery and assessment of adult vocational qualifications

Limited effective employer involvement in vocational qualifications

FROm

Awarding organisations and training providers responsible for collecting data and using it to improve their offer.

Simplifies the qualifications offer by creating a single access point for employers and individuals, the true customers.

Incentivises awarding organisations and training providers to utilise the newest technological advancements.

Leading edge employers, trade unions, training providers, exemplary SSCs and awarding organisations supporting the design of vocational qualifications to ensure that they provide relevant skills and promote progression into and through work. Industrial partnerships, employer-led collaborative arrangements, will take responsibility for representing the skills needs of their sector (as they form).

DIFFERENCE

Awarding organisations and training providers should report on the impact of their vocational qualifications to their customers.

Ofqual, with SFA and the UK Commission should create a single point of access to the different qualifications databases.

Ofqual, Ofsted and SFA should ensure that arrangements for regulation, inspection and funding provide appropriate incentives and do not inhibit training providers and awarding organisations from using technology in the delivery and assessment of vocational qualifications.

Encourage more leading employers to work in partnership to develop recognised, rigorous and relevant vocational qualifications.

TO


Thisreviewbeganwithavisionofwhatgoodadultvocationalqualificationslooklike.Itbuildsonrecommendationsfromrelatedreviews,includingtheRichardReviewofApprenticeships,therecommendationsforTechLevels,theCommissionforAdultVocationalTeachingandLearningandtheFurtherEducationLearningTechnologyActionGroup.Itmapsthecurrentsystemthroughasystemsengineeringapproachand,forthefirsttime,mapsthesystemthoroughlytoillustrateareaswhereithasthepotentialtobedysfunctional.

Thereviewidentifiesconstructiveworkalreadyunderwaythatwillcontributetoimprovingadultvocationalqualifications,andidentifiesmuchthatworksinthecurrentsystem.Italsoclarifiesareaswhereweneedtogofurtherandfastertoconnectvocationalqualificationstotheskillsneedsofindustry.Takingthestepssetoutinthisreportwillgiveemployersthespacetoleadthedesign,thedevelopmentandthedeliveryoftheadultvocationalqualificationsthatEnglandneeds,supportinggrowthandboostingcompetitiveness,andhelpingindividualsintorewardingcareers.Achievingthismeansputtingemployersandindividualsfirstandhavinganeffectivefeedbackloopshowingtheimpactofadultvocationalqualifications.Theeffectofthesechangesissummarisedinthekeydifferencetable,Section 7.

Therecommendationsbreakdownthebarrierstothemosteffectiveuseoftheskillssystem.AnumberofthecharacteristicsoftheQCFandNOSshouldberevisedorreformed.Awardingorganisationsandtrainingprovidersshouldbeheldtoaccountforprovidingvocationalqualificationsthatdeliverrelevant,reliableskills.Datacollectedandavailableonqualificationsdatabasesshould

beaccessibletoemployersandindividuals.Thiswillsupportinformedchoicesandcareerprogression.Technologycanimproveflexibilityandaddvalueformoneyindeliveryandassessment.

TheworkundertakenonemployerownershipbytheUKCommissionprovesthatsignificantnumbersofemployerswanttotakegreaterownershipofskillsandarewillingtostepupandtakeend-to-endresponsibilityforskillsintheirsectors.Governmentanditsagenciescouldbenefitfromsteppingbackandallowingthistohappensothatindustrialpartnershipscancomeforwardandaligntheskillssystemwithbusinessgrowthandtheneedsofthewidereconomy.Thefuturevisionisoneinwhichemployersandindividualshavetheconfidencethatvocationalqualifications,TechLevelsandApprenticeshipsarevalidrepresentationsofassessed,up-to-datevocationalcompetency.Thefuturevocationalqualificationssystemcandothis,butitwilltaketimeandcommitmenttorealiseitsfullpotential.GovernmentcanhelpbycontinuingtobuildonthemomentumfromtheEmployerOwnershipPilots,andencouragingindustrialpartnershipstoformthroughbusinessleadershiptosecurelongtermgrowthandcompetitivenessforbusiness,andrewardingcareersforindividuals.

7 Conclusions


These new design principles were developed by the UK Commission to give vocational qualifications a clear identity and purpose.

Design Principle 1: Identity

• Qualificationscanbeidentifiedasbeingvocationaliftheyrelatetoparticularoccupations,andattesttoholders’specialistknowledgeandskillsrelatingtothoseoccupations.InthetermsusedbytheCommissionforAdultVocationalTeachingandLearning,theyarequalificationsthat‘provideaclearlineofsighttoajobortoarangeofjobs’.ThisdesignprincipleissharedwiththenewTechLevelsfor16-19yearolds,whicharetocountinschoolandcollegeperformancetables.Togivethisidentityandprovideaclearlineofsighttojobs,businessessetthestandard.

Vocational qualifications need a clear link to the jobs they describe. This connection is what makes them worthwhile to employers and individuals.

Design Principle 2: Size

• Adultvocationalqualificationsidentifiedaccordingtodesignprinciple1rangeinsizefromqualificationswhosecontentcantypicallybemasteredinasingleday(e.g.foodhygienecertificates)toqualificationswhosecontentmighttakeyearstomaster.Asizecriterionwouldnotbeappropriatebecausevocationalqualificationshavetoaccommodatetheseshortvocationalqualificationsconferringlicencetopractisetothoseinwork,inadditiontovocationalqualificationsforthosenewtoanoccupation.Thiswouldnotstopasub-sethavingspecificsizerequirements.Theotherdesignprincipleswouldapplyregardlessofaqualification’ssize.

All vocational qualifications can share the characteristics that provide value to employers and individuals, regardless of their different sizes.

Design Principle 3: Declared purpose

• Althoughthespecificationsforallregulatedqualificationsarealreadyrequiredtoincludedescriptionsofthequalifications’objectives,thedescriptionsaremadeingeneralterms.Thisdesignprincipleasksformoredetailthatwouldmaketheintendedvalueoftheadultvocationalqualificationcleartoemployersandtoindividuals.ItalignstotherequirementthatTechLevelsareforstudentswishingtospecialiseina‘technical

8 Design principles for high quality vocational qualifications for adults

Vocationalqualificationsforadultsareidentifiedasthosethatrelatetotheirholders’specialistabilitiestopractiseand/ortoprogressto,orwithin,identifiedoccupations.Thatis,theyarequalificationsthatprovidea‘clearlineofsight’toarangeofjobs.

Vocationalqualificationsforadultsshouldcomplywiththesamedesignprinciplesregardlessoftheirsize.

Thespecificationforavocationalqualificationprovidedforadultsshoulddeclarethequalification’spurpose,includingspecifyingtheoccupationsand/oroccupationally-specificeducationalcoursesforwhichthequalificationisrelevantatentry.


occupationoroccupationalgroup’withintheStandardOccupationalClassification(SOC)coding.

An employer who wishes to provide training should be able to recognise immediately qualifications that relate to comprehensive courses, and know exactly the content taught.

Design principle 4: Recognition

• Thevalueofanoccupationalqualificationprovidedforadultswillderivefromtheextenttowhichitfulfilsitspromise–theextentthatitreallydoesenableprogressintoandwithintherelevantoccupations,and/orintoorwithinotheroccupations.Thisvaluewilldependonthehowwellthequalificationmeetstheneedsofemployersandotherstakeholders,soitistheywhoshouldcontrolthequalification’sdesignanddelivery.Industrialpartnershipscanprovidetheappropriatemixofrelevantstakeholders,whichwillvarybetweenqualificationsbutwhichwillalwaysincludeemployers,andwillprobablyalsoincludetradeunions,professionalbodies,regulatorybodies(ifthesectorisregulated),educationalinstitutions(ifthequalificationisintendedtoleadtofurtherstudy)andclientorconsumergroups(ifthequalificationhasaroleinconsumerprotection).TheTechLevelssuggestendorsementbyfiveemployers–thisistoofewinmostsectorsforadultvocationalqualificationswheretherearelargenumbersofdifferentemployersandpotentialinterestgroups.Theexceptionmightbeinhealth,whereonelargepublicsectororganisationdominates.

Individuals choosing to take vocational qualifications should be able to assume that the qualifications will be recognised by employers and other potential users.

Design principle 5: Recognised national standards

• Theknowledge,skillsandunderstandingtobeassessedfortheawardofvocationalqualificationsforadultsarecurrently,inmanycases,definedinQCFunits.ThegranularnatureoftheassessmentcriteriahasledtowhattheCommissionforAdultVocationalTeachingandLearninghasdescribedas‘assessmentaslearning’.ThisdesignprinciplepicksupontherecommendationintheRichardReviewthatnewapprenticeshipqualificationsshouldbebasedon‘recognisedindustrystandards…thatclearlysetoutwhatapprenticesshouldknowandbeabletodo,attheendoftheirapprenticeship,atahighlevelwhichismeaningfulandrelevantforemployers.’Itgeneralisestherecommendationtoapplytoalladultvocationalqualifications,andprovidesmorefreedomfortrainingproviderstoinnovatewithinthecurriculum.

The high level outcome-based standard will be a simple, understandable document that does not demand a constraining level of detail. The specification for the vocational qualification will add the assessment requirement and make the purpose of the qualification clear.

Thedesignanddeliveryofvocationalqualificationsforadultsshouldbecontrolledbyrelevantemployersandtheotherstakeholdersforwhomthequalificationsareintended.

Thespecificationsforvocationalqualificationsprovidedforadultsshouldbebasedonwhatindustrywants–highleveloutcome-basedstandards(basedonNOSorotherrecognisedindustrystandards,wherethereisanalternativestandardwithcredibility)thatsummarisetheknowledge,skillsandunderstandingrequired,atahighlevelthatwillberelevantandmeaningfulforemployerswhentheyaremakingdecisionsaboutanindividual’scapabilityandsuitabilityforajobrole.


Design principle 6: Recognised local standards

• TheCommissionforAdultVocationalTeachingandLearningrecommendedthatvocationalqualificationsshouldbedevelopedonthebasisofa‘coreandtailored’approach,withthetailoringallowingforresponsivenesstotheneedsoflocalemployers.Accommodatingsuchvariationwithinthesamequalificationtitlewouldcounteractthecurrenttendencyforaproliferationofqualificationsthatarenearlyequivalent.

Small and medium-sized businesses will be able to make use of qualifications that rely on a national core but that can include some locally-specified standards to address their particular needs. This will allow for customisation without the burden of complete qualification design.

Design principle 7: Grading

• Manyvocationalqualificationsalreadyusegrading.Thereasons,asdescribedforTechLevels,aretoencouragestudentmotivation,todifferentiatebetweentheresultsofdifferentcandidates,andtoensurethatthereissufficientrigourinthequalificationassessmenttoprovideconfidenceforqualificationusers.Thisdesign

principleistoencouragetheuseofgradinginvocationalqualificationsprovidedforadults,whereveremployersandotherstakeholdersjudgethatitwillprovideassociatedbenefits,whileacknowledgingthatforsomequalifications,includingsomelicencestopractise,thecostsofintroducinggradingmayoutweighthebenefits.

Introducing grading encourages individuals to strive for excellence and signals to employers where it has been achieved.

Design principle 8: Assessment fit for purpose

• Themethodsofassessmentusedforvocationalqualificationsforadultshavetocomplywiththesamerequirementsasallregulatedqualificationsinthattheyhavetobevalid,reliable,comparableandmanageable,andavoidbias.TheremovalofthestandardisedunitformatallowsamoveawayfromtickboxassessmenttosomeofthemethodsofassessmentcommonlyusedforGCSEs,ASandAlevels,highereducationqualificationsandprofessionalqualifications,andwiththoserequiredforTechLevels.Allowingthefullrangeofmeth-odsofassessmenttobeused,includingmeth-odsenabledbynewtechnologies,wouldallowawardingorganisationstorelatethequalificationsmoreclearlytoothereducationalandprofessionalqualificationstructureswhereappropriate.

Awarding organisations are allowed to use valid assessment methods that will provide rigorous assessment of real-world skills.

Thespecificationsforvocationalqualificationsforadultsshouldalsoallowforaproportionoflocally-specifiedstandards(companyorlocality),withoutarequirementtointroduceanewqualificationtitle.

Vocationalqualificationsprovidedforadultsshouldbedesignedtouseapass,merit,distinctionstructureoramoredetailedscale,wheresuchdifferentiationwillincreasethequalifications’valuetoemployersandindividuals.Thegradingcanapplytotheoverallqualificationand/ortoindividualunits.

Assessmentmethodsrelatingtovocationalqualificationsforadultsshouldnotbeconstrained,butshoulddrawonthefullrangeofmethodologiesappropriatetothepurposesofthequalificationsandtheneedsofthecandidatepopulations.


Design principle 9: External control

• TheRichardReviewrecommendedthatthe‘testingandvalidationprocessshouldbeindependentandgenuinelyrespectedbyindustry’andthat‘assessorsshouldbeindependentandhavenoincentiveordisincentiverelatedtotheoutcomeoftheassessment’.However,asnotedintheguidanceforTechLevels‘thenatureof…occupationalstudymeansthatcourseworkwillcontinuetoplayasignificantroleintheassessmentandawardofqualifications’.Formanyothervocationalqualifications,evidencefromemploymentwillalsobeimportant.Thisdesignprinciplemaintainsexternalcontrolwhileacknowledgingthevalueofcourseworkandevidencefromemployment.

Internal assessment continues to be used to provide realistic challenges to candidates, but it is subject to effective external verification.

Design principle 10: Distance travelled

• Vocationalqualificationsprovidedforadultsarealreadydescribedintermsofcreditvaluesrelatedtothelearningtimerequiredtoachievethequalifications.Suchvaluesonlyhavemeaningwheninterpretedwithreferencetothecandidates’

startingpoints.Thisdesignprincipleprovidesmeaningforthecreditvaluesbyindicatingthestartingpointsassumedwhenthecreditvaluesaredetermined.Whereprerequisiteachievementsareexpressedintermsofpreviousqualifications,thisdesignprinciplewillalsoshowwherequalificationsrequirecandidatestoprogresstohigher-levelwork.

Specifying prerequisite achievements clarifies the distance travelled that is represented by the qualification, both in breadth and depth of learning.

Design principle 11: Progression

• Eventhoughtherearealreadyinitiativesthatcouldcontribute,implementationofthisdesignprinciplewouldneedtobeintroducedgradually,becauseitwillbechallenging.Thecurrentinitiativesincludegovernmentschemestoanalysetheimpactofpublicly-fundedvocationaleducationandtraining,andtrainingproviderandawardingorganisationschemestomonitortheimmediatecareerprogressionofstudents.However,thisdesignprincipleisincludedasalong-termaim.PreviouslyitwasrevealedintheWolfReview(2011)thatmanyofthevocationalqualificationsprovidedfor16-19yearoldswereofverylimitedvalue,eithertoemployersorindividuals.Thishasledtofar-reachingreforms.Itisessentialtoconfirmthatvocationalqualificationsprovidedforadultsdoprovidevaluetoemployersandindividuals.Theprecedingdesignprinciplesarefocusedonthisaimbuttheyrelatetotheintentionsofthequalificationprovidersandthemethodstobeused.Thepurposeofthisdesignprincipleisto

Assessmentsrelatingtovocationalqualificationsforadultsshouldbesubjecttocontrolsthatareindependentofthelearningprovider,eitherbyusinginternalassessmentswitheffectivesystemsofexternalverificationorbyusingexternalassessment.

Thespecificationsforvocationalqualificationsprovidedforadultsshouldincludedescriptionsofprerequisiteachievementsassumedforthemaincandidatepopulation,toindicatetheextentoflearningthatthequalificationsrepresent.

Providersofvocationalqualificationsforadultsshouldpublishdataabouttheprogressionofsuccessfulcandidatesintotherelatedoccupationsandintotheeducationalcoursesreferencedinthequalificationspecifications.


enableconfirmationthatthequalificationsdoinrealityprovidetheperceivedvaluethatwillhavejustifiedtheirtakeup.

Employers and individuals will have available information about how the qualifications are used after completion of the relevant courses.

Design principle 12: Employer involvement

• Thefirstdesignprincipledescribedvocationalqualificationsforadultsasqualificationsthatprovidea‘clearlineofsight’toarangeofjobs;andthefourthdesignprincipleexplainshowemployersshouldbeinvolvedinthedesignanddelivery,astheyhavetheclosestunderstandingofthejobs’demandsandthemostup-to-dateknowledgeofcurrenttechniquesandtechnologies.Theyalsoneedtotakepartinthequalifications’evaluationsothattheycanevaluatetheirpreviousdecisionsinthelightofexperienceandofchangeswithinthesector.Inshort,asrecommendedbytheCommissionforAdultVocationalTeachingandLearning,theyneedtobeseen‘notjust(as)customersofvocationalteachingandlearning,but(as)engagedateverylevelinhelpingtocreateanddeliverexcellentvocationalprogrammes’.

Effective vocational qualifications for adults require genuine collaboration between employers, colleges and training providers.

Thedesign,thedevelopment,thedeliveryandevaluationofvocationalqualificationsforadultsshouldbeledbyemployers.


ANNEX 1: THREE CASE STUDIES FOR ILLUSTRATION OF IMPACT IN KEY SECTORS

Engineering

Of the 334 qualifications meeting our definition of ‘vocational,’ 22

166 are unique.

Adult Social Care

Of the 302 qualifications meeting our definition of ‘vocational,’ 58 are unique.

Retail

Of the 236 qualifications meeting our definition of ‘vocational,’ 66 are unique.

Engineering

97% of qualifications are offered by 3 AOs.

Adult Social Care


Retail


0 50 100 150 200 250 300 350

Current total

Remaining after reforms

0 50 100 150 200 250 300 350

Current total


0 50 100 150 200 250 300 350

Current total


City and Guilds of London Institute

EAL

Other

Pearson Education Ltd

Other

EDI

Skillsfirst Awards Ltd



British Safety Council



EDI

NCFE

Other

3%

41%

34%

22%

32%21%

18%

11%

9%

9%

11%

29%

16%

17%

27%

22 The methodology involved identifying those qualifications which met the definition of adult vocational qualifications using the Ofqual Register ‘purpose definitions’


TheseareNationalOccupationalStandardsissuedbytheFederalInstituteforVocationalEducationandTraining(BIBB)inGermany.Thetwoexamplespresentedbelowshowhowoccupationalstandardscanbewrittenatahighlevel.

Example 1 Engineering draftsman / draftswoman

RecognizedbyRegulationof17December1993(BGBI.I,p.25)

Duration of traineeship

3.5years

Onethirdofthetrainingtimeisdevotedtooneofthefollowingspecialisms:

• Mechanicalandplantengineering

• Heating,plumbingandairconditioning engineering

• Structuralsteelandmetalengineering

• Electricalengineering

• Woodengineering

Thevenuesfortrainingdeliveryarethetrainingcompanyandthevocationalschool.

Field of activity

Engineeringdraftsmen/draftswomenaretrainedtoproduceengineeringdrawingsindependently,takingthenecessaryparametersfromsketches,hand-modifieddrawings,plans,writtendescriptionsandoralinstructions.Theirworkfocusesonvariousfieldsandtypesofassignmentdependingontheirareaofworkandcorporaterequirements,e.g.designordevelopmentfunctionsinindustryandthecraftsector.

Occupational skills

Engineeringdraftsmen/draftswomenarepredominantlyinvolvedindetailwork,supplementingandperfectingtheparameters

givenbydesignerstoproducethefinal,completedrawing.Theycarryouttasksbothmanuallyandcomputer-aided,andensurethatthedatatheygeneratearesecureandcanbefurtherprocessed.Theyareresponsibleforthecompletenessandclarityoftheirengineeringdrawingsanddocumentsandalsoforensuringthatthesearedrawnupincompliancewithstandards,intendedfunctionandintendedmodeofmanufacture.Theymusttakedueaccountintheirworkofeconomicandenvironmentalconsiderationsandalsohelpensurepropercommunicationwiththecorrespondingcorporatedivisions.

Engineeringdraftsmen/draftswomenspecialisinginmechanicalandplantengineering

• Produceengineeringdrawings,sketches, plansandschematicrepresentations

• Carryoutdetailingworkandmakecalculations

• Produceperspectiveviewsandaccompanying technicaldocumentation

• Contributetheirexpertisetotheworkof otherspecialists

• Engineeringdraftsmen/draftswomenspecialisinginheating,plumbingand

• Airconditioningengineering

• Produceengineeringdrawings,sketches, plansandschematicrepresentations


• Producedevelopedviews,perspectiveviews andaccompanyingtechnicaldocumentation


ANNEX 2: EXAmPLE HIGH LEVEL OUTCOmE-BASED STANDARDS FROm GERmANY


Engineeringdraftsmen/draftswomenspecialisinginstructuralsteelandmetalengineering

• Produceengineeringdrawingsandsketches forworkshopsandconstructionsites


• Producedevelopedviews,penetratingviews andperspectiveviews

• Takeaccountoftherequirementsof buildingphysics


Engineeringdraftsmen/draftswomenspecialisinginelectricalengineering

• Produceengineeringdrawings,sketches andplans

• Designandproducecircuitdocumentation

• Makecalculations

• Produceaccompanyingtechnical documentation


Engineeringdraftsmen/draftswomenspecialisinginwoodengineering

• Producesketches,engineeringdrawingsfor productionandassembly


• Takeaccountoftherequirementsofbuilding physics

• Determineparametersforsurfacingandsurface finishing


Example 2 Sales assistant for retail services

Recognisedbyordinanceof16July2004(BGBl.Ip.1806)

Duration of traineeship

2years

Thevenuesfortrainingarecompanyandpart-timevocationalschool(Berufsschule).

Field of activity

Salesassistantsforretailservicesworkintradeenterprisesofdifferentsizes,typesandgoodsassortments.Theirmaintasksinvolvesellinggoodsandcarryingoutpre-saleandpost-saletasksinassisted-serviceandself-serviceenterprises.Furtherareasofactivityincludeacceptanceandstorageofproducts,tillservice,salespromotion,stockmaintenanceandinventory.

Occupational skills

Sales assistants for retail services

• Sellgoodsandservices

• Informandadvisecustomersandoffer customerservice

• Makeuseofproductknowledge

• Arrangeandpresentgoodsinthesalesarea

• Areinvolvedinsalespromotionactivities

• Checkandmaintainproductstocks

• Operatethetillandcalculatethetillbalance

• Areinvolvedinacceptingandcheckingproducts

• Labelandstoreproducts

• Makeuseofcommercialproductcodes

• Areabletoworkinateam,inacustomerand process-orientedway,usingtheircustomer serviceskills

• Useinformationandcommunicationtechnology


wor

k fo

r

informs

data/information

policy steer / report back

policy steer / report backregulate

develop

steer / report back

fund

set standards for teaching quality

fund / transaction / partner

liaise, occasionally

partner

teach / educate

info

rm

on-going professional development

loan

s /

fun

din

g

choo

se a

war

din

g or

gan

isat

ion

info

rm

regu

late

employ / educate

outcome

outcome

Key to the diagram

outc

omes

an

d f

eed

bac

k

rela

tion

ship

activities are performed as part of the future English Adult Vocational Qualification System.

Key Relationships are shown with a golden thread.

actors are organisations or individuals who participate in Activities.

relationships connect Activities. Less important relationships are shown as dashed lines.

Significant output from an Activity which is used by other Activities.

qualification information

outc

omes

an

d f

eed

bac

k

polic

y

qualification information

steer / report back

polic

y

Employers and Individuals benefit from up-skilling resulting from attainment of Qualifications Delivery of Training and Assessment of Individual Achievement

Development and Modification of Qualifications and associated Training CoursesOversight and Design of the English Adult Vocational Qualification System

maintain standards in occupations

[Professional Bodies]

approve and assure qualification assessment

[Awarding Organisation, Providers and employers can contribute]

approve and assure vocational training

[Professional Bodies and Ofsted]

Provide careers advice

[National Careers Service]

high level outcome based

standard

[Industrial partnership]

develop / modify training courses and apprenticeships

[Training providers & unions]

develop workforce to deliver business / service outcomes

[Employers]

Select courses with intention to acquire new skills to move into work and progress

[Individuals]

regulate adult vocational qualifications system

[Ofqual]

define teaching standards

[Ofsted]

overall oversight and policy responsibility for adult voc quals in line with national priorities

[BIS, DfE, DWP]

deliver vocational training

[Training providers, inc. colleges, private providers and unions]

Conduct qualifications assessment

[Awarding Organisation, (accountable). Providers and employers]

output

activity

[Actor]

Set end to end solutions for workforce development, including: - standards - awarding and delivery

monitoring impact

[Industrial partnership]

Qualification

distribute funding: - individual loans - wider Fe funding - employer

co-investment

[SFA, LEPs, UKCES, JCP]

information about

qualifications available on

new, improved database

Provide feedback for improvement and refinement

define qualifications specification: - outcome based

standard- assessment, grading- quality assurance

[Awarding organisation selected by IP]

Annex 3: Technical Diagram of the Proposed Future System


Ofqual

Awarding organisations

Training providers

UK Commission

UK NOS Governance Group

LEAD STAKEHOLDER

IncreasedadministrationforOfqual

Reaffirmswhatawardingorganisationsshoulddoalready

Shouldsavecostsbyusingthemarket

COSTS AND SAVINGS

1. Ofqual should require awarding organisations to engage actively with employers in sectors where they provide vocational qualifications; and awarding organisations should require training providers offering their vocational qualifications to engage with employers locally.

2. The UK Commission for Employment and Skills should work with employers to agree the future model for occupational standards; and employer-led collaborations (industrial partnerships) should ensure that future occupational standards articulate their ambition and aspiration for their workforce clearly and effectively.

RECOmmENDATION

Ofqual• Consultonanewregulatoryapproachtosecureeffectivedeliveryofvocationalqualifications,withstrongemployerengagement.

• Runaprocesstoidentifyawardingorganisationscapableofofferingvocationalqualificationsbasedonournewdesignprinciples

Awarding Organisations• Provideevidenceofemployerengagementandsectorexpertise

• Ensuretrainingprovidershaveappropriateemployerengagementandimprovequalityassuranceoftrainingproviders

•Workwithemployerstoensurethatqualificationsfilleconomicneed

Training Providers•Makeuseofthemoretransparentawardingmarketwhenchoosingwhichawardertoworkwith

• Submitevidenceofeffectiveemployerinvolvementindeliveryofvocationalqualificationslocally

UK Commission•Workwithindustrialpartnershipsandcollaborationsofemployersandgovernmentsineachnationtoagreethecriteriaandguidanceforhighleveloutcome-basedstandards

• Reviewandrevisetheapproachtocommissioning,thedatabase,andgovernancetoreflecthowhighleveloutcome-basedstandardsshouldbetakenforward,includingstrengthenedlinkswithresearchandevaluation

Devolved Administrations •Workonthecriteriaandguidanceforthenewhighleveloutcome-basedstandard

•Makesurethenewapproachtocommissioningreflectsnationalprioritiesappropriately,includingtheapproachtocommissioning,thedatabase,thegovernance,thelinkstoresearch,andtheimpact.

ACTIONS AND ImPLICATIONS

ANNEX 4: HIGH LEVEL ImPLEmENTATION PLAN


Ofqual


Training providers

Employers


Training providers

BIS

LEAD STAKEHOLDER

ConsultationcoststoOfqual

Savingstoawardingorganisationsbynotusingunitdatabank

Costneutral–possiblyeasierforawardingorganisationsandtrainingproviderstoworkwith

Costneutralbecauseofbenefitsofgettingrightskills

Costsofcollectingdata–awardingorganisationsandtrainingproviders–butpowerfulevidenceofsuccess

CurrentBISdevelopmentalcosts

COSTS AND SAVINGS

3. Ofqual should introduce our proposed new design principles for vocational qualifications giving vocational qualifications a clear identity and should make the prescribed unit format and sharing of units optional.

4. Awarding organisations and training providers should report on the impact of their vocational qualifications to their customers.

RECOmmENDATION

Ofqual• Consultonandadoptdesignprinciplesforadultvocationalqualifications.

• AspartofthereviewoftheQCFremoveanyrequirementsforawardingorganisationstouseaunitformatandtomakeunitsfreelyavailable

Awarding Organisations•Wheretheawardingorganisationhastheexpertiseandlevelofemployerinvolvement,designanddevelopthenewqualificationsbasedonnewoutcome-basedstandardsanddesignprinciples

Training Providers•Makeuseoftailoredaspectsofqualificationstosuitlocalemployerneeds

Employers•WorkwithawardingorganisationstodesignandtodevelopvocationalqualificationsandApprenticeships

•Workwithtrainingproviderstohelpdelivercoursesleadingtovocationalqualificationsandskills

Awarding Organisations• Developmeanstoreporttheimpactoftheirqualificationstocustomers

Training Providers• Developmeanstoreporttheimpactoftheirtrainingtocustomers

Government• Prepareacost/benefitanalysisofimplementingsuccessmeasuresthroughthedifferentapproachesandagreewhichtoadopt

• Basedontheabove,takeforwardthemostcosteffectiveapproachtodevelopingsuccessmeasures,workingwithtrainingprovidersandawardingorganisations



Ofqual

SFA/UK Commission

Training providers

SFA

Ofqual

Ofsted

Employers

UK Commission/BIS

LEAD STAKEHOLDER

Obtainanestimatefordatabasereforms

Costsavings–smalladministrativecostsforbigsavings

CorebusinessforSFAandOfqual

Savingsfortrainingprovidersandemployers

Investmentunderway–furtherco-investmentfunds

SavingsoncostofNOSdevelopment

COSTS AND SAVINGS

5. Ofqual, with the SFA and UK Commission should create a single point of access to the different qualifications databases.

6. Ofqual, Ofsted and SFA should ensure that arrangements for regulation, inspection and funding provide appropriate incentives and do not inhibit training providers and awarding organisations from using technology in the delivery and assessment of vocational qualifications.

7. Encourage more leading employers to work in partnership to develop recognised, rigorous and relevant vocational qualifications.

RECOmmENDATION

Ofqual• Developitsproductcataloguegivingaccessvocationalqualificationsbyoccupations

• Leadworkwithpartnerorganisationstoconnectrelateddatabasesappropriately

SFA and UK Commission•WorkwithOfqualtosupportsingleaccesspointandaligndatabasesappropriately

Training Providers• Assistsmalleremployersinupskillingtheirworkforcebymakingbetteruseoftechnologyinthedeliveryofvocationaltraining

SFA• Reviewfundingmethodologytoensureitissensitivetouseoftechnologyande-learning

Ofqual• Newdesignprinciplesforadultvocationalqualificationswillmakeiteasiertousee-assessmentande-learning

Ofsted• Ensuretheinspectionprocessissupportiveofuseoftechnologyindelivery

Employers• Stepupandformindustrialpartnershipswithotheremployers,tradeunions,trainingprovidersandawardingorganisations,totakeend-to-endresponsibilityforskills

• Sethighleveloutcome-basedstandards

UK Commission• Co-investinindustrialpartnerships


ANNEX 4: HIGH LEVEL ImPLEmENTATION PLAN (continued)


ANNEX 5: GLOSSARY OF TERmS

Products

Learning Aims Reference Application (LARA):thedatabasethatcontainslearningaimsrecognisedbytheEducationFundingAgencyandtheSkillsFundingAgency.Itholdsinformationonbothpubliclyfundedandnon-publiclyfundedqualifications.

National Occupational Standards (NOS):statementsofthestandardsofperformanceindividualsmustachievewhencarryingoutfunctionsintheworkplace,includingtheunderpinningknowledgeandunderstanding.

Ofqual’s Conditions of Recognition:conditionsthatawardingorganisationsmustadheretoinordertooperatewithintheregulatedqualificationssysteminEngland.

Ofqual Register of Regulatory Qualifications:aregisterholdinginformationonallregulatedqualificationsinEngland,WalesandNorthernIreland.

Professional Standards:standardsdevelopedbyprofessionalbodies(membershiporganisationssettingstandardsfortheirmembers).

Qualifications Specifications:qualificationsstandards,plusadditionalinformationthatcanincludeassessmentandqualityassurancearrangements.

The Qualifications and Credit Framework (QCF):thenationalcredittransfersystemforqualificationsinEngland,WalesandNorthernIreland.Theframeworkhascreditvalues(whereonecreditrepresents10hoursoflearningtime),andlevelsofdifficultyfromEntryLevelatthebottomtoLevel8atthetop.

Specification of Apprenticeship Standards for England (SASE):setsouttheminimumrequirementstobeincludedinarecognisedEnglishapprenticeshipframework

Standard Occupational Classifications (SOC):acommonclassificationofoccupationsfortheUK.Jobsareclassifiedintermsoftheirskillslevelsandcontent.

Tech Levels:forstudents(primarily16–19yearoldsbuteligibleforfundingforupto25yearolds)wishingtospecialiseinatechnicaloccupationoroccupationalgroup.

Reviews

Further Education Learning Technology Action Group (FELTAG):convenedbyMatthewHancock,MP,MinisterforSkillsandEnterprise,DepartmentforBusiness,InnovationandSkills.TheworkofFELTAGisfocusedonmakingpracticalrecommendationstoenhancetheeffectiveuseoftechnologyinlearning,teachingandassessmentintheFEsector.

The Richard Review of Apprenticeships:areviewexamininghowthequalityofApprenticeshipscanbeimprovedinEngland,supportedbythegovernment(England)withanimplementationplanscheduledfortheendofSeptember2013.

Skills Beyond School in England, OECD:reviewofvocationaleducationandtraining,publishedinlateSeptember2013.

The Wolf Review:areviewthatlooksintohoweducationcanbeimprovedfor14-to19-year-oldsinEngland.ThisisbeingimplementedbytheDepartmentforEducation.

Organisations

Awarding Organisations:anyorganisationholdinganawardingfunctionforqualifications(bespokeorganisationsorpartsoflargerorganisations).

The Commission on Adult Vocational Teaching and Learning (CAVTL):acommissionthatidentifiesbestpracticeinthedeliveryofvocationalteachingandlearning.TheCommissionischairedbyFrankMcLoughlin.

The Department for Business Innovation and Skills (BIS):investsinskillsandeducationtopromotetradeandboostinnovation.

The Department for Education (DfE):responsibleforissuesaffectingpeopleinEnglanduptotheageof19,includingchildprotectionandeducation.

Industrial Partnerships:employer-ledcollaborativearrangementsbeginningtocometogetherinanumberofkeysectorstosupportgrowthandcompetitiveness.

Issuing Authorities:organisationsdesignatedbyBIStoissueApprenticeshipsthatcomplywiththeApprenticeshipstandards(SpecificationofApprenticeshipsStandardsforEngland).

Local Enterprise Partnerships (LEPs):voluntarypartnershipsbetweenlocalauthoritiesandbusinesses.

Ofqual:Regulatestomaintainstandardsandconfidenceinqualifications.LooksafterGCSEsandALevelsinEngland,andawiderangeofvocationalqualificationsbothinEnglandandNorthernIreland.AlsoregulatestheNationalCurriculumAssessmentsinEngland.

Ofsted:inspectsandregulatesservicesprovidingeducationandskillsforlearners.

Professional Bodies:membershiporganisationsthatsetstandardsformembers.Somearealsorecognisedawardingorganisations.

Sector Skills Councils (SSCs):independent,employer-led,UK-wideorganisationsthatseektocreatetheconditionsforincreasedemployerinvestmentinskills.

Skills Funding Agency (SFA):apartnerorganisationoftheDepartmentofBusinessInnovationandSkills,whichadministersfundsandpromotesadultfurthereducation(FE)andskillstraininginEngland.

Trade Unions:consistofworkersandtradeunionleaders,whocollaboratetoensurethatworkers’interestsareupheldintheworkplace.

Training Providers:anycollege,trainingorganisationorotherorganisationofferingregulatedvocationalqualifications.

UK Commission for Employment and Skills (UK Commission):apubliclyfunded,industryledorganisationprovidingstrategicleadershiponskillsandemploymentissuesinthefourhomenationsoftheUK.

Other

Further Education loans (FE loans):loansgiventolearnersaged24orabovetofundavocationalqualificationtakenatLevel3orhigher.

Government regulated qualifications:AqualificationthatisapprovedbyOfqual,theindependentregulator.Thisisincontrasttoprivately-developedqualificationswhichexistoutsideofthepublicsystem.

The UK Commission for Employment and Skills supports businesses to invest in the skills of their people and provides access to investment, world-class research and expert insight. Uniquely, we are led by Commissioners, who are entrepreneurs, leaders of large businesses, the third sector, trade unions and Further and Higher Education. Our chairman is Sir Charlie Mayfield, Chairman of the John Lewis Partnership. Together our Commissioners represent a form of social partnership. We are a government partner organisation sponsored by BIS and DWP.

UKCES Renaissance HouseAdwick ParkWath Upon DearneRotherhamS63 5NB

T +44(0)1709 774 800F +44 (0)1709 774 801

UKCES Sanctuary BuildingsGreat Smith St.WestminsterLondonSW1P 3BT

T +44(0)20 7227 7800

www.ukces.org.uk© UKCES 1st Ed/11.13

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