14-19 CURRICULUM AND

QUALIFICATIONS REFORM

Final Report of the Working Group on 14-19 Reform

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Working Group on 14-19 ReformLevel 1Caxton HouseTothill StreetLondonSW1H 9NA

The Rt Hon Charles Clarke MPSecretary of StateDepartment for Education and SkillsRoom 7.53Sanctuary BuildingsGreat Smith StLondon SW1P 3BT

Mike TomlinsonChairman

18 October 2004

Dear Secretary of State

It is with pleasure that I present to you the report of the Working Group set up by Ministers to advise on reform of curriculum and assessment arrangements for 14 to 19 year olds.

It is our view that the status quo is not an option. Nor do we believe further piecemeal changes are desirable. Too many young people leave education lacking basic and personal skills; our vocational provision is too fragmented; the burden of external assessment on learners, teachers and lecturers is too great; and our system is not providing the stretch and challenge needed, particularly for high attainers. The results are a low staying-on rate post 16; employers having to spend large sums of money to teach the “basics”; HE struggling to differentiate between top performers; and young people’s motivation and engagement with education reducing as they move through the system.

Our report sets out a clear vision for a unified framework of 14-19 curriculum and qualifications. We want scholarship in subjects to be given room to flourish and we want high quality vocational provision to be available from age 14. These are different, but both, in their own terms, are vital to the future well being of young people and hence our country. We want bring back a passion for learning, and enable all learners to achieve as highly as possible and for their achievements to be recognised. We must ensure rigour and that all young people are equipped with the knowledge, skills and attributes needed for HE, employment and adult life.

Despite its weaknesses, the current system has its strengths. Many elements of the reforms we propose can already be found in schools and colleges around the country and we want to build on their good practice. We also wish to retain the best features of existing qualifications and particularly the well-established GCSE and A level route. While they would not be available as separate qualifications, GCSEs and A levels and good vocational qualifications would become

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“components”, which form the building blocks of the new system.

Change should be a managed evolution and not a revolution. It is vital that all stakeholders are involved in the detailed work necessary and that all decisions are informed by sound evidence borne out of careful piloting and modelling. Teachers, lecturers and trainers will need support throughout and their experience drawn upon. Parents, governors and young people should be kept fully informed and the credibility of the current qualifications protected through the period of change.

I commend this report to you and in doing so wish to place on record my sincere thanks to members of the Working Group, the various sub-groups, the associate network members and officials. Their unstinting support has been key, as has the active involvement of employers, higher education, teachers, lecturers, trainers, parents and young people in our work. A particular thanks is owed to the secretariat supporting the Working Group, so ably led by Matthew White.

I believe there exists substantial consensus about the need for reform and broad proposals set out. We believe they satisfy your five tests and look forward to the Government’s response in due course.

Yours sincerely

MIKE TOMLINSON

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CONTENTS

EXECUTIVE SUMMARY AND SUMMARY OF RECOMMENDATIONS....................................5

SECTION 1: INTRODUCTION.....................................................................................................16CHAPTER 1: INTRODUCTION........................................................................................................17

SECTION 2: A UNIFIED FRAMEWORK FOR 14-19 LEARNING...............................................20CHAPTER 2: PROGRAMMES AND DIPLOMAS..................................................................................21CHAPTER 3: CORE AND MAIN LEARNING.......................................................................................30CHAPTER 4: DIPLOMA VOLUME, THRESHOLDS AND PROGRESSION.................................................46CHAPTER 5: MEETING THE NEEDS OF DIFFERENT LEARNERS – ENTRY, FOUNDATION, INTERMEDIATE AND ADVANCED PROGRAMMES AND DIPLOMAS..............................................................................52CHAPTER 6: ASSESSING THE DIPLOMA.........................................................................................58CHAPTER 7: GRADING AND REPORTING ACHIEVEMENT..................................................................71

SECTION 3: THEMES.................................................................................................................. 78CHAPTER 8: STRENGTHENING THE VOCATIONAL OFFER................................................................79CHAPTER 9: REDUCING THE ASSESSMENT BURDEN......................................................................86CHAPTER 10: STRETCH AND CHALLENGE.....................................................................................91CHAPTER 11: RAISING PARTICIPATION AND TACKLING DISENGAGEMENT.........................................93CHAPTER 12: QUALITY OF LEARNING AND TEACHING....................................................................96CHAPTER 13: ENTERING AND LEAVING 14-19 LEARNING – PROVIDING A COHERENT EXPERIENCE FOR LEARNERS AND MEETING THE NEEDS OF END-USERS....................................................................99

SECTION 4: DELIVERING THE NEW SYSTEM........................................................................104CHAPTER 14: QUALITY ASSURANCE OF THE NEW SYSTEM...........................................................105CHAPTER 15: A SUPPORTIVE INFRASTRUCTURE.........................................................................108CHAPTER 16: IMPLEMENTATION.................................................................................................112

SECTION 5: ANNEXES.............................................................................................................119ANNEX A: GLOSSARY...............................................................................................................120ANNEX B: CONSULTATION.........................................................................................................125ANNEX C: CORE COMPONENTS.................................................................................................129ANNEX D: PROGRAMME AND DIPLOMA DESIGN PARAMETERS......................................................135ANNEX E: A SYSTEM OF IN-COURSE ASSESSMENT......................................................................143ANNEX F: A MODEL FOR THE ENTRY DIPLOMA............................................................................147ANNEX G: THE TRANSCRIPT......................................................................................................151ANNEX H: WEAKNESSES IN EXISTING VOCATIONAL PATHWAYS....................................................155ANNEX I: INTEGRATING APPRENTICESHIPS WITHIN THE DIPLOMA FRAMEWORK..............................157ANNEX J: INTERIM CHANGES TO GCSE AND GCE & VCE ADVANCED LEVEL...............................162ANNEX K: COLLABORATION IN 14-19 PATHFINDERS....................................................................167ANNEX L: IMPLEMENTATION......................................................................................................168ANNEX M: CASE STUDIES ILLUSTRATING THE NEW FRAMEWORK..................................................171ANNEX N: MEMBERSHIP OF THE WORKING GROUP ON 14-19 REFORM AND THE SUB-GROUPS....182ANNEX O: TERMS OF REFERENCE.............................................................................................188Annex P: full list of recommendations.....................................................................................191

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Executive summary and summary of recommendations

Why is reform needed?

1. This report sets out our proposals and recommendations for reforming 14-19 curriculum and qualifications, building on strengths within the current system while addressing its weaknesses, to:

Raise participation and achievement – by tackling the educational causes of disengagement and underachievement and low post-16 participation.

Get the basics right – ensuring that young people achieve specified levels in functional mathematics, literacy and communication and ICT, and are equipped with the knowledge, skills and attributes needed to succeed in adult life, further learning and employment.

Strengthen vocational routes – improving the quality and status of vocational programmes delivered by schools, colleges and training providers, setting out the features of high quality provision and identifying a clear role for employers.

Provide greater stretch and challenge – ensuring opportunities for greater breadth and depth of learning. This will help employers and universities to differentiate more effectively between top performers. Stretch and challenge at all levels will encourage young people to think for themselves and be innovative and creative about their learning.

Reduce the assessment burden for learners, teachers, institutions and the system as a whole by reducing the number of times learners are examined; extending the role of teacher assessment; and changing assessment in A levels in order to improve the quality of teaching and learning.

Make the system more transparent and easier to understand by rationalising 14-19 curriculum and qualifications within a diploma framework, where progression routes and the value of qualifications are clear.

2. Every young person should be able to develop her/his full potential, and become equipped with the knowledge, skills and attributes needed for adult life. This includes preparation for work to which they are well suited, development of positive attitudes to continuing learning and active participation within the community.

3. Our proposals centre on two linked developments:

a common format for all 14-19 learning programmes which combine the knowledge and skills everybody needs for participation in a full adult life with disciplines chosen by the learner to meet her/his own interests, aptitudes and ambitions; and

a unified framework of diplomas which: provide a ready-made, easy to understand guarantee of the level and breadth of attainment achieved by each young person, whatever the nature of his or her programme; offer clear and transparent pathways through the 14-19 phase and progression into further and higher learning, training and employment; are valued by employers and HE; and motivate young people to stay on in learning after the age of 16.

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A new framework for 14-19 learning

4. All 14-19 year olds should have access to coherent and relevant learning programmes. These should comprise:

core learning which is about getting the basics right, and developing the generic knowledge, skills and attributes necessary for participation in higher education, working life and the community; and

main learning – chosen by the learner to develop knowledge, skills and understanding of academic and vocational subjects and disciplines which provide a basis for work-based training, higher education and employment.

5. For 14-16 year olds, the programme will also include the Key Stage 4 statutory National Curriculum, which lays the basis for core learning and can also contribute towards main learning.

6. A major feature of our proposals is the inclusion of an extended project as part of core learning. Selected by the young person to pursue her/his interests and extend her/his learning in creative and innovative ways, it may take a variety of forms from an essay to a performance or artefact. Its completion will enable learners to develop and demonstrate a range of generic skills, such as problem solving, research and managing own learning.

Summary recommendations: coherent programmes

All 14-19 programmes should comprise core and main learning.

Core learning should ensure:

o specified levels of achievement in functional mathematics, functional literacy and communication, ICT;

o completion of an extended project appropriate to the level of the diploma;

o development of a range of common knowledge, skills and attributes (CKSA), such as personal awareness, problem-solving, creativity, team-working and moral and ethical awareness;

o an entitlement to wider activities; and

o support for learners in planning and reviewing their learning, and guidance in making choices about further learning and careers.

All 14-16 year olds should continue to follow the statutory National Curriculum at Key Stage 4 and other statutory curriculum requirements.

7. We propose that achievement within 14-19 programmes should be certified by diplomas available at the first four levels of the National Qualifications Framework, and using a credit system compatible with that being developed by QCA for adult qualifications. Diplomas at successive levels would overlap, so that achievement at one level would provide the basis for progression to, and achievement at, the next.

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8. All diplomas would be named based on the lines of learning they relate to. One line would recognise achievement in ‘open’ programmes, where learners can choose a mixture of subjects and/or vocational options from different lines. The remaining lines would provide more specialised named pathways, covering broad academic and vocational domains.

Summary recommendations: the diploma framework

The existing system of qualifications taken by 14-19 year olds should be replaced by a framework of diplomas at entry, foundation, intermediate and advanced levels. Successful completion of a programme at a given level should lead to the award of a diploma recognising achievement across the whole programme.

There should be up to 20 ‘lines of learning’ within the diploma framework. These must:

o reflect sector and disciplinary boundaries at the time of implementation, but be flexible and kept under review;

o cover a wide range of academic and vocational disciplines, combining them where appropriate and allowing further degrees of specialisation within individual ‘lines’;

o ensure relevance and lead to higher education, employment or both;

o include a line which recognises achievement in ‘open’ programmes, where learner choice is relatively unconstrained; and

o be transparent and readily understood by end-users.

Outline diploma framework

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Diplomas Current Qualifications

Advanced Core Main learning Level 3Advanced Extension Award; GCE and VCE AS and A level; level 3 NVQ; equivalent qualifications

Intermediate Core Main learning Level 2GCSE grades at A*-C;

intermediate GNVQ; level 2 NVQ; equivalent qualifications

Foundation Core Main learning Level 1GCSE grades D-G; foundation GNVQ; level 1 NVQ; equivalent

qualifications

Entry Core Main learning Entry Entry Level Certificates and other work below level 1

Improved vocational programmes

9. As well as preparing individual young people for particular training and employment, vocational learning provides both an opportunity to enrich the experience of learners, and to develop the skills needed by employers and for national economic success.

10. Our proposals seek to build on the strengths of good vocational provision to raise the quality of the overall vocational offer and provide opportunities for achievement and progression in the same ways as for academic studies. This does not mean trying to fit vocational programmes into an ‘academic’ mould, but recognising what is distinctive and valuable about vocational learning and ensuring that it is respected and valued in its own right.

11. Improved vocational learning will be secured through:

better vocational programmes of sufficient volume to combine core learning (including basic and employability skills) with a specialised vocational curriculum and assessment and relevant work placement. Vocational programmes would be designed with the involvement of employers and should be delivered only in institutions which are suitably equipped;

rationalised vocational pathways capable of providing progression within the diploma framework to advanced level and beyond, and linked, where appropriate, to National Occupational Standards in order to provide avenues to employment;

a series of vocational options which can be combined with general and academic subjects in mixed programmes;

better work-based learning through the integration of apprenticeships and the proposed diploma framework; and

stronger incentives to take vocational programmes, as the common requirements for content, volume and level of study mean that all diplomas have general currency while also signifying relevant attainment within a particular vocational area.

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Summary recommendations: vocational learning

Vocational programmes should be developed with the involvement of employers, HE and other stakeholders to offer:

o coherent delivery of the knowledge and skills needed by different employment sectors; and

o relevant, structured work placements.

There should also be ongoing evaluation and improvement of the work experience delivered as part of general programmes, particularly at KS4, to ensure that it delivers benefits to learners (and employers) and adds value to the work-related components of post-14 programmes.

Vocational learning should be delivered only where there are appropriate facilities and teaching and training staff with relevant expertise.

Apprenticeships should be integrated with the diploma framework.

Assessment

12. Diplomas and components would be assessed in ways which support teaching and learning and greater intellectual and skills development, and are fit for purpose. Within open diplomas up to and including intermediate level, assessment of main learning and the extended project would be predominantly teacher-led. This does not mean the end of examinations and tests. Assessment should be conducted through a range of different styles including time-limited tests and examinations, set assignments, and practical and written tests and observations, some of which should be externally assessed, both to reinforce teachers’ own assessments and to aid national monitoring of standards.

13. Functional mathematics, functional literacy and communication and functional ICT would be predominantly externally assessed. Common knowledge, skills and attributes (CKSA) would not be formally assessed, but their development should be attested and recorded on the transcript. At advanced level and in specialised vocational learning a balance of in-course and external examinations would remain.

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Summary recommendations: assessment

At entry, foundation and intermediate levels, in place of existing GCSE-style examinations, teacher-led assessment should be the predominant mode of assessment though an element of external testing should remain. The focus of external assessment and quality control should be on ensuring that teacher-led judgements are exercised reliably and fairly for all young people, through mechanisms such as:

o inspection, monitoring and approval of institutions to carry out assessment;

o establishment of a network of Chartered Assessors to lead good assessment practice in each institution;

o teacher training and development;

o systems for monitoring, evaluation and professional development at institutional level; and

o national sampling of learners’ work to ensure consistent application of standards between institutions and over time.

At advanced level, assessment should remain a balance between external examinations and in-course assessment, drawing upon the new quality assurance arrangements to place greater weight on the professional judgement of teaching staff.

Assessment of the core should combine in-course and external assessment methods.

Recognising achievement

14. Foundation, intermediate and advanced diplomas should be graded to provide an incentive for learners to achieve beyond the minimum pass threshold and enable employers, HEIs and others to identify learners who have excelled across their full diploma programme. Components would also be graded on one of three grading scales to give a level of differentiation appropriate to their content and level.

15. Achievement should be recorded on transcripts designed for use by learners in a variety of settings and to give end-users easily accessible information about the range of learners’ achievements across their programmes. This includes the components and grades contributing to award of the diploma, as well as other achievements, in wider activities, for example.

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Summary recommendations: recognising achievement

All diplomas at foundation, intermediate and advanced level should be graded pass, merit or distinction. Entry diplomas should not be graded.

Grades above pass should be awarded on the basis of achievement of breadth and/or depth beyond the threshold.

Each main learning component should be graded using one of three scales, based upon its content:

o fail/pass;

o fail/pass/merit/distinction; and

o fail/E/D/C/B/A/A+/A++ (some advanced level components only).

All learners should receive detailed transcripts of achievement to accompany the award of a diploma and/or to provide a record of progress at key transition points, such as moving between institutions.

The offer to learners and teachers

16. The 14-19 curriculum and qualifications outlined in our final report are designed to meet the needs of all 14-19 learners.

17. The offer for learners centres on the provision of clear and meaningful choices, which stretch and excite them, which can be tailored to their needs, interests and aspirations and which materially advance them towards their goals in adult life. In particular, the diploma would provide the opportunity for all learners to discover and enjoy the use of their particular talents, to the highest level possible, while also acquiring the basic capabilities needed for success in adult life:

the reforms would ensure that where young people are capable of learning at a level above most of their peers, the qualifications framework encourages this. For example, a particularly gifted young person studying for an advanced diploma would be able to include some components from higher education in her/his diploma and would get credit for these on the transcript. Excellence across the diploma, in breadth or depth, would be rewarded by a ‘merit’ or ‘distinction’;

young people who particularly require external motivation will be able to ‘bank’ credits as they go along, and take tests in functional mathematics and literacy and communication as they are ready. The interlocking nature of the diploma means that as soon as a diploma is claimed, the learner automatically has some of the components to achieve the next level diploma, thus helping to bridge the pre-16/post-16 divide and providing a motivation to continue in learning and achieve qualifications which are credible with employers and others. Similarly it should be possible to use credit from some diplomas to contribute to qualifications in the adult credit framework;

personal review, planning and guidance would be at the heart of the diploma, ensuring that young people integrate what they have learned from different parts of the diploma, including wider activities, and make well-founded choices. Young people who decide that they have chosen the wrong specialism would be able to

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use their core learning and possibly some specialist learning, to move across to a different diploma, without having to start again at the beginning;

the reduction in assessment and the introduction of the extended project mean there would be more space for exploratory learning and learning tailored to particular interests. This and the other reforms should lead to improved behaviour in the classroom and a better teaching and learning environment for all.

Summary recommendations: stretch and progression

Young people should enter the diploma framework at the level appropriate to them and progress at a pace appropriate to their abilities. Learners would not be required to achieve a diploma at each level before progressing to the next, though many might do so.

Diplomas should interlock so that achievement at one level provides the basis for progression to, and achievement at, the next.

It should be possible to move from one programme to another at the same level. This would be facilitated by the transferability of relevant components, notably core components.

Greater stretch and differentiation should be introduced into advanced level programmes by the introduction of the extended project and by absorbing Advanced Extension Award type assessment of high order skills and deeper knowledge in a revised A2, and extending the grading scale to reflect this.

18. Teachers, lecturers and trainers would benefit from:

a reduced assessment burden and enhanced professional status as assessors as well as teachers in a system where assessment is recognised as an integral part of the teaching process, and teachers’ professional judgements are valued;

more time to do what they do best – to inspire learners by delivering a varied and interesting curriculum in ways that motivate and are relevant and exciting to learners. This includes opportunities to develop locally-relevant curricula recognised within the national framework;

the opportunity to develop and use their specialist expertise and professional judgement;

training, guidance and support needed to make the most of this enhanced role; and

learners who are motivated by the interesting and relevant curriculum options available to them and therefore less at risk of disengagement and/or disruptive behaviour.

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Reducing the assessment burden

19. The burden of assessment on learners, teachers, lecturers and institutions and the system would be reduced by:

cutting the number of examinations taken by learners, particularly by providing opportunities for stretch and progression which take the emphasis away from pursuing large numbers of qualifications at the same level;

making teacher judgement the predominant method of assessment at intermediate level and below for components derived from existing GCSEs;

reducing the number of assessment objectives in many subjects and courses; reducing substantially the amount of formal coursework; and, at advanced level, reducing the number of assessment units across AS and A2 from six to four; and

tackling the administrative burden on institutions by modernising and streamlining examination and assessment processes.

Benefits of the diploma

20. Some of the improvements identified may be secured by reforms to the existing system and should be implemented quite quickly. These include:

changes to the structure, content and assessment of existing qualifications to reduce the burden of assessment;

development of components in functional mathematics, literacy and communication and ICT to be made available as stand-alone qualifications;

development of new vocational programmes and the components within them, which meet the needs of employers and the local labour market;

development of criteria for the extended project; and

use of a transcript of achievement to provide more information on learners’ performance to help universities in particular to distinguish between top performers.

21. However, our analysis of the aims of 14-19 learning and the weaknesses of the current system leads us to the recommendations in this report for a system of coherent programmes. The diplomas themselves are the necessary glue which would pull together all the elements of those programmes into a single whole. The diploma would provide incentives for learners to pursue balanced programmes of study, encouraging them to greater breadth and depth of learning and experience than they would otherwise attempt. If a learner could not achieve a diploma without achieving a specified level in functional mathematics and functional literacy and communication, or a subject or area of learning in main learning, they would be better motivated to persist in studying them to reach the required level.

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22. In addition, the diploma would:

ensure that all young people develop essential knowledge, skills and attributes, including specified levels in functional mathematics, literacy and communication and ICT;

provide learners with coherent and relevant programmes tailored to their needs, interests and aspirations and mitigate barriers to accessing them;

ensure breadth of study, particularly through core requirements;

enable certain features to be balanced across the whole programme – for example, use of a range of assessment methods, and development of common knowledge, skills and attributes. This would lessen the pressure on individual components;

ensure depth of study within individual disciplines by developing main learning components which offer young people scope to pursue aspects of their subjects in depth and to draw down components from higher levels;

offer clear progression routes in all subjects and areas of learning to advanced level within the diploma framework and into HE or other education and training and employment beyond; and

place all learning in a single framework, which emphasises the equally valid, but different, academic and vocational learning.

Meeting the needs of end-users

23. Our proposals must meet the needs of end-users, particularly employers and HE. Their support and involvement is vital if the curriculum and qualifications advocated are to be relevant and valued.

24. We have sought to respond to the concerns of employers through our focus on:

getting the basics right – all learners would be expected to achieve in functional mathematics, literacy and communication and ICT, progressing over time towards at least level 2;

developing employability skills – specific skills and the ‘right attitude’ developed across the curriculum and through particular experiences, like wider activities;

strengthening vocational pathways – especially through the involvement of employers in the design and delivery of programmes and raising the currency and status of apprenticeships; and

making the system simpler and more transparent.

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25. We have also listened to the needs of HE. Like employers, HE would benefit from attention to the basics, and from:

learners developing skills for independent study – particularly through the extended project, personal review, planning and guidance and wider activities;

the opportunities for all learners to experience stretch and challenge, including higher attainers who would be stretched by an extended range of demands and grades at advanced level, and who may have undertaken level 4 components;

ensuring breadth in advanced level programmes, through core requirements and opportunities for young people to undertake more subjects, including contrasting or complementary learning;

bringing vocational programmes, including apprenticeships, within a common framework, providing a wider range of potential entrants; and

making details of the extended project available to admissions officers at the earliest opportunity as a way of providing textured information to support the admissions process.

26. Both HE and employers would benefit from transcripts which would help them to differentiate between candidates by:

making clear what level of the National Qualifications Framework had been reached;

providing details of achievement in core and main learning components; and

offering electronically accessible information on the full range of young people’s achievements, including activities outside formal learning.

Implementing the proposals

27. Our report contains details of how the proposals could be implemented. Implementation would be driven by the need to ensure stability within the system, to maintain momentum for change over the long implementation period, to monitor the impact of the reforms to ensure that they do not disadvantage any groups of learners, and to communicate our aims and expectations clearly. It should be overseen by an independent advisory group.

28. The reforms we propose build on existing good practice within education and training. They are about evolution, rather than revolution. They will take at least 10 years to implement in full.

1.

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SECTION 1: INTRODUCTION

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Chapter 1: Introduction

Our vision

29. Our work is underpinned and inspired by a conviction that the 14-19 phase of learning is crucial for all young people. They deserve the best chances of success, in activities that are demonstrably worthwhile, and widely recognised to be so. We passionately believe our work must be a catalyst for a step-change in the way all qualifications are viewed, and in breadth, depth and relevance of attainment.

30. We believe that by 19 all young people should have the skills, knowledge and attributes necessary to participate fully and effectively in adult life. They should have had the opportunity to develop their individual potential to the full, whether intellectual, creative, practical, or a combination of these. They should be active citizens, equipped to contribute to the economic, social, political and cultural life of the country as well as developing an understanding of the wider international community. They should share in the cultural heritage of the country and of its many communities. They should have a passion for learning and should see it as a natural, necessary and enjoyable part of adult life.

31. To achieve this goal, 14-19 learning should be inclusive and challenging. It should cater for and excite all young people, whatever their aspirations, abilities, interests and circumstances. It should build upon learning up to 14 and provide pathways beyond 19 to further learning or employment. It should value and encourage a variety of content, styles and contexts of learning, including ‘academic’ and ‘vocational’, school-, college- and work-based. It should recognise and reward all successful learning, differentiating between individuals and celebrating outstanding achievements.

32. The system should meet the legitimate demands of learners themselves and of parents, employers, HE and other stakeholders. It should be clear and simple to understand. It should provide teachers, lecturers and trainers with the time, space and support to provide exciting and challenging learning experiences for young people, where assessment is recognised as an integral part of the teaching process, and professional judgements are respected and valued.

Why reform is needed

33. The current system works well for many. We want a system that works well for all. To achieve our vision, we need to build on strengths within the current system while addressing its weaknesses, in order to:

Raise participation and achievement – for participation at 17, 2002 data rank the UK 24th out of 28 OECD countries with a participation rate of 76%.1 More than 5% of young people reach the end of compulsory schooling with no qualifications. Particular care will be needed to ensure that we raise the disproportionately low participation and attainment of some minority ethnic groups.

Get the core right – the literacy and numeracy and Key Stage 3 strategies are improving basic skills among our young people, but there is still more to do to ensure that all young people have the skills needed to succeed in higher education (HE) and the workplace.

1 OECD, Education at a Glance (2004). Of those not participating, 9% are not in employment, education or training, and a further 15% are in employment without training.

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Strengthen vocational routes – the existing patchwork of vocational qualifications fails to provide coherence and progression for learners. Too many are of uncertain quality and fail to provide clear progression routes to further learning and/or employment.

Provide greater stretch and challenge – this year, 22.4% of A level entries achieved an A grade. Higher education admission officers and employers complain they are finding it increasingly difficult to distinguish between top flight candidates and learners themselves are being held back by the lack of opportunity to demonstrate their full potential.

Reduce the assessment burden – excluding the National Curriculum and vocational qualifications other than GNVQs and VCEs, there were around 7.5 million subject entries in 2004, with 57,000 examiners. The sheer volume of assessment creates a formidable burden at all levels of the system and is only partially off-set by the benefits derived from assessment.

Make the system more transparent and easier to understand for learners, universities and employers – too many learners lack a clear route map through the system, and end-users are often unclear about the relevance and value of qualifications which young people hold.

A new framework

34. The diploma framework we propose would provide a challenging educational experience for all young people. It offers breadth and the opportunity to explore academic and vocational areas in greater depth. It would respond to personal skills and qualities and foster creativity through the extended project. With guidance, progression routes lie ahead at every level for every learner. The transcript, available for admission to higher and further education, training and employment, would ensure that all achievements are recognised and rewarded.

The report

35. Section 2 sets out our proposals for a unified framework for 14-19 learning, including its structure, content and assessment at each level, and how it would be graded and reported. Section 3 draws out some of the key themes running through our proposals and how they would meet the five tests set by the Secretary of State in February 2004:

Excellence – will the reformed 14-19 framework stretch the most able young people?

Vocational – will it address the historic failure to provide a high quality vocational offer that motivates young people?

Employability – will it prepare all young people for the world of work?

Assessment – will it reduce the burden of assessment?

Disengagement – will it stop the scandal of our high drop out rate at 16 and 17?

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36. Section 4 outlines how our proposals could be made a reality. It identifies the mechanisms that would need to be put in place to quality assure standards in the new system, particularly the assessment regime. It highlights where the infrastructure would need to change to support the diploma framework, including collaboration, governance, funding and performance management arrangements. The final chapter sets out proposals for how reform could be implemented.

The process

37. The Working Group was established by the Secretary of State for Education and Skills in February 2003 to respond to the remit contained in 14-19: Opportunity and Excellence.2 We published a progress report in July 2003. Our interim report in February 2004 set out proposals for the framework of diplomas described in greater detail here.

38. Many people and organisations have contributed to our deliberations, through consultations following our progress and interim reports, and involvement in the sub-groups established to support particular aspects of our work.3 We are grateful to all these people and organisations whose thoughtful insights and inputs have helped to shape the detail of this report.

What happens next?

39. It is now for the Government to decide how it wishes to take forward the proposals set out in this report. They do not provide a complete blueprint, but do set out a clear vision for a unified system of 14-19 curriculum and qualifications and how this can be achieved. It has been a privilege for us to have been asked to play a role in such a vital area of reform.

2 Our terms of reference can be found at annex O.3 Details of the consultation following publication of our interim report can be found at annex B, and annex N provides details of those involved in our sub-groups.

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SECTION 2: A UNIFIED FRAMEWORK FOR 14-19 LEARNING

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Chapter 2: Programmes and diplomas

14-19 learning is currently fragmented with a proliferation of qualifications of different types and sizes, few of which offer a balance between the knowledge and skills which everybody needs to play an active part in society and the specialised knowledge and skills for particular areas of learning and work.

This chapter provides a brief outline of the working group’s proposed framework for 14-19 programmes and diplomas. We propose that:

all 14-19 programmes must ensure that young people acquire a range of essential skills, knowledge and understanding which they need for further learning, employment and adult life; and provide progression within the diploma framework and to destinations in learning or employment;

14-19 programmes should comprise both:

o a core of knowledge, skills and experiences common to all diplomas at a given level

o main learning focusing on the subjects or area of learning chosen by the learner;

all 14-19 programmes should be organised within a unified framework of diplomas awarded at one of four levels from entry through to advanced. Possession of a diploma should offer a readily understood guarantee about the overall breadth and level of a young person’s achievement against clear national standards;

within the 14-19 framework there should be up to 20 named diploma lines covering a range of vocational areas and academic disciplines. While most would show that the learner has specialised in areas of learning, an ‘open’ line would allow a relatively unconstrained choice of subjects, similar to the mixed A level, GCSE and equivalent vocational programmes followed by many learners at the moment;and

learning programmes and diplomas for 14-16 year olds should be open, though they may incorporate components linked to specialised lines. They should also reflect the requirements of the Key Stage 4 (KS4) National Curriculum, but, as is currently the case, achievement of a diploma should not require specific levels of study or levels of achievement in compulsory KS4 National Curriculum subjects.

All of these proposals are considered in more detail in subsequent chapters of this report.

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Coherence and relevance

40. In setting up the Working Group, the Secretary of State asked us to make proposals to achieve greater coherence in learning programmes for all young people throughout the 14-19 phase. Responding to the remit, we have understood coherent programmes to mean programmes in which components combine to produce a whole that is greater than the sum of its parts. They should be relevant, providing young people with:

the specific knowledge, skills and understanding needed to progress and succeed in learning and employment pathways; and

the ability to progress and succeed in learning, HE, employment and adult life, and to take their place as well-informed members of their community and wider society.

Balanced programmes

Recommendation 1

To provide all young people with a balance of generic and specialised learning, all 14-19 programmes should comprise:

Core learning, designed to ensure that all young people develop a range of generic knowledge, skills and attributes necessary to progress and succeed, including progression over time to at least level 2 in functional mathematics, functional literacy and communication, and functional ICT; and

Main learning designed to ensure achievement and progression within recognised academic and vocational disciplines which provide a basis for progression within the diploma framework and access to employment, work-based training and HE. Main learning defines the type of programme and may be chosen to reflect learners’ strengths, interests and aspirations.

41. More detail on core and main learning is set out in chapter 3 and annexes C and D.

Programmes and diplomas

42. Throughout our work, we have sought to make a clear link between the programmes that young people undertake and the qualifications they gain from their learning. The link between the two is not straightforward: it is reasonable to expect all young people to follow a programme covering a defined range of learning, but it is constraining and unrealistic to demand that they demonstrate a specific level of achievement in every aspect of their learning. The content of each programme – what young people actually learn - is critical, whether or not it is all formally assessed. Nevertheless, the present qualifications system does help shape learners’ choices and the overall content of their learning. Our intention is to produce a qualifications system which rewards coherence and balance.

43. Too many learners at present follow narrow programmes that do not equip them with the range of knowledge, skills and attributes they need to succeed; and too many

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are able to construct programmes composed of qualifications which, although credible in their own right, when taken together do not amount to a coherent, relevant programme. We have sought to address this by proposing a system of diplomas each of which covers and accredits a broad programme as a whole rather than breaking down programmes into their constituent elements and accrediting each separately.

44. Diplomas are not the same thing as programmes. Programmes are likely to be wider than the minimum threshold of breadth and level of achievement required for diplomas at any given level. There should be space within teaching and learning time for learners to pursue subjects and areas of learning in greater depth or to add additional breadth. Their achievement beyond the minimum requirements for the diploma would be recognised by a detailed transcript and by grading the diploma (see chapter 7).

Recommendation 2

The existing system of qualifications taken by 14-19 year olds should be replaced by a system of diplomas, available at entry, foundation, intermediate and advanced levels.

Each diploma should be sub-divided into separately assessed components.

A diploma should be awarded for successful completion of a coherent programme meeting threshold requirements at a particular level. Achievements in the programme beyond the threshold should be recorded on a transcript of achievement (see chapter 7).

Young people should be able to enter the framework at age 14 at the level that best meets their capabilities and complete more than one diploma as they progress through the 14-19 phase.

Existing qualifications such as GCSEs, A levels, and NVQs should cease to be free-standing qualifications in their own right but should evolve to become components of the new diplomas.

Diploma lines and programme types

45. The existing qualifications framework is fragmented with many different types of qualifications and thousands of titles. It can be confusing both to learners in choosing their pathway and to employers, HE and others who use qualifications as a basis for recruitment. We propose a rationalised, more transparent system in which all young people progress through a unified framework towards qualifications which are clearly understood and relevant to the further learning or employment to which they aspire.

46. Our interim report identified two broad classifications of diploma design:

Open diplomas combining freely chosen subjects. Mixed programmes of A levels or GCSEs already have a proven track record. They prepare young people successfully for many HE courses, training and employment for which the prime requirement is a demonstrable level of general educational achievement, rather than achievement focusing on a single discipline or employment sector.

Specialised diplomas within which content would be prescribed according to the

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specialism. Progression into many disciplines and employment sectors requires quite specific and specialised combinations of knowledge and skills which should be delivered and accredited through carefully designed programmes and diplomas.

47. We do not, however, propose to label any individual diploma awarded to a young person as ‘specialised’. Every diploma would either be ‘open’ or be labelled according to the area of specialisation. Naming diplomas according to subject content would provide clarity and transparency both for end-users – who would know that certain named diplomas met their needs; and for learners, who would be able to easily identify routes through the system and into the further learning or employment for which they are aiming.

48. Within the open line, young people would be able to select from a range of components designed and approved for inclusion within open diplomas at the relevant level. These would comprise both subject components similar to, and often evolved from, existing GCSEs and A levels, and components designed to provide a link with each of the specialised lines. The content of the specialised lines would be prescribed to ensure that these diplomas are relevant to, and offer a sound basis for progression within, the specialism. Specialised diplomas would therefore place greater constraints on the choice which the learner can exercise over the content of the diploma.

49. The number of lines must be kept manageable to avoid reproducing the current confusing proliferation of qualifications of different types and titles. Transparency and relevance would be secured by identifying up to 20 diploma ‘lines’. This would offer clear signposting of routes and provide a balance between clarity and choice within the new framework. These lines would have titles which reflect programmes covering specific academic and vocational disciplines.

50. In our interim report, we suggested that the QCA framework for sectors and subjects provided a useful starting point for identifying specialised lines of learning. However, the QCA framework (figure 2.1) is a classification of qualifications rather than a design template for a unified qualifications system, and further work is needed to ensure appropriate groupings. Given the timescale for implementation, the need for further consultation and the changes likely over that time it would be premature to attempt a definitive classification system in this report.

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Recommendation 3

We propose that there should be up to 20 ‘lines of learning’ within the diploma framework.

Diplomas within each line should be named – and sometimes sub-titled - according to the content of the main learning.

One line should be open, providing a relatively unconstrained choice of subjects and diploma components, similar to the mixed programmes of A levels or GCSEs or equivalent vocational qualifications that many young people currently undertake. Learners should be able to select from a wide choice of subjects and areas of learning, including traditional academic subjects and specially-designed components distilled from the content of specialised diploma lines. In this way, young people would be able to elect to take relatively short vocational options so that they could sample, and make a start on, the content of the more substantial vocational pathways represented in the specialist lines.

The other lines should cover a wide range of employment sectors and/or academic areas of study. These lines would not normally be available to pre-16 learners.

Recommendations for integrating the diploma framework and apprenticeships are set out in chapter 8 and exemplified in annex I.

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Figure 2.1: QCA framework for sectors and subjects

Health, public services and care

Science and mathematics

Agriculture, horticulture and animal care

Engineering manufacturing technologies

Construction, planning and the built environment

Information and Communication Technology

Retail and commercial enterprise

Leisure, travel and tourism

Arts, media and publishing

History, philosophy and theology

Social sciences

Languages, literature and culture

Education and training

Preparation for life and work4

Business, administration and law

51. Within each specialised line, there should be options for progressively developing a particular occupational or disciplinary focus. For instance, a broad engineering line might include options to focus especially upon aeronautical engineering and motor vehicle engineering. Any further degree of specialisation should also be recognised in the title of the diploma – e.g. Science and Mathematics (natural sciences). Experience from other countries and from well-established diploma-style qualifications in the UK, would suggest that perhaps 100 diploma sub-titles of this kind would offer a thorough coverage, while remaining transparent and manageable for young people and end-users alike.

52. The design of specialised diplomas should ensure that every diploma is fit for purpose as a basis for progression into relevant higher level study or vocational sectors. The design must reflect the objectives of the overall diploma framework as well as 4 This category includes employability programmes, foundation studies, life skills, basic skills, key skills, citizenship, and return-to-work and vocational skills. These would not constitute a separate diploma ‘line’ in their own right, but would contribute to other programmes.

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specialist requirements. Awarding bodies should lead in the development of the content and assessment for individual components and programmes meeting criteria developed by the QCA. Generally, we would expect the design of specialised diploma content to take particular account of the views of:

employers, including relevant Sector Skills Councils who should clearly have a prominent role in specialised diplomas of a vocational nature;

HE;

professional and statutory bodies; and

schools, colleges and training providers who would be delivering the diplomas.

53. Criteria for the design of specialised diplomas are set out in subsequent chapters of this report and in annex D.

54. Learning beyond that required to attain any given diploma in a particular line would be recognised on the transcript (see chapter 7).

Recommendation 4

We recommend that drawing upon subject aggregations used successfully here and abroad, QCA works with relevant subject and sector bodies, including subject associations, HE, Sector Skills Councils, employers, and providers to develop a framework and design criteria for up to 20 named lines which:

include a line that recognises achievement in ‘open’ programmes, where learner choice is relatively unconstrained;

cover a wide range of options, combining them where appropriate;

ensure that programme content is relevant to the needs of learners aspiring to particular destinations and to the needs of individual academic and employment sectors;

allow for the development of optional areas of further specialisation;

are flexible and kept under review; and

are transparent and readily understood by end-users.

2.

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Key Stage 4

55. The distinction between programmes and diplomas is particularly important at Key Stage 4. It is our belief that coherent programmes for 14-16 year olds should be ‘open’ and must include the statutory KS4 requirements set out in the Government’s White Paper, Opportunity and Excellence.

56. These statutory requirements would not be included in the core, but achievement in them could contribute to the main learning requirements of diplomas at the appropriate level. In particular, we would expect the vast majority of 14-16 year olds to undertake accredited main learning components in science which meet the full National Curriculum science requirements. In addition, some subjects may be a supplementary requirement for some specialised lines taken post-16 – science for engineering or a modern foreign language for business and tourism, for example – and learners could achieve these at Key Stage 4 and carry forward the credit.

57. Retaining the National Curriculum requirements would in effect mean that diplomas achieved by young people before age 16 would be ‘open’ in nature. It would still be possible to ensure that 14-16 year olds could opt for vocational and practical learning, in the same way that many currently undertake a substantial element of vocational learning now, for instance through Young Apprenticeships. This is discussed in more detail in chapter 5.

58. Significant numbers of young people are currently exempted from parts of the National Curriculum, through ‘disapplication’ procedures, in order that they can apply themselves to topics which are more likely to advance their interests. Our view is that the introduction of foundation diplomas, giving a positive alternative to current GCSEs, would considerably lessen the need for such disapplication. For the great majority open diplomas at foundation level would be appropriate and enable full coverage of the National Curriculum, but for a small number of young people, with careful counselling it may be sensible to embark on a more specialised programme.

Recommendation 5

All 14-16 year olds should be required to follow the statutory National Curriculum at Key Stage 4 and other statutory curriculum requirements, such as RE, as they are now. Achievement in statutory KS4 subjects, such as science, which are not part of the core, should give credit towards main learning.

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Chapter 3: Core and main learning

This chapter and the supporting annexes (C and D) set out in more detail what we mean by core and main learning and the purposes of each. We propose that:

the core should comprise: functional mathematics; functional literacy and communication; functional ICT; and an extended project. In addition, learners should experience a range of common knowledge, skills and attributes (CKSA) which should be integrated into all 14-19 programmes but with no requirement that they are separately taught or assessed. In addition, learners should be supported in reviewing their learning, with guidance to help them make choices about further learning and careers;

all 14-19 year olds should be entitled to access wider activities such as work experience, service within the community and involvement in sports, the arts or outdoor activities. Participation and (where appropriate) achievement in these should be recorded on the diploma transcript;

main learning should form the bulk of most learners’ programmes and achievement towards the diploma. It should comprise either the knowledge and skills required to achieve a specialised diploma at any given level; or a combination of components capable of meeting the threshold requirements for an open diploma; and

components available for combination within open diplomas must be sufficiently large to maintain the coherence of the component subject and to prepare young people for further learning in that subject.

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Figure 3.1: Template for 14-19 programmes

The core

59. The core would ensure that young people acquire the functional mathematics, functional literacy and communication, functional ICT and common knowledge, skills and attributes (CKSA) they require to succeed and progress in learning, HE, employment and adult life. No young person would be able to achieve a diploma without having acquired them.

60. The core would also provide space for innovative and exploratory learning, particularly in the extended project and wider activities.

61. Underpinning their programme, all learners should receive high quality, impartial advice and guidance to help them make the most of the opportunities 14-19 learning presents.

62. The components of the core would be common to all programmes and diplomas, although there would be an element of choice for young people to pursue particular interests in the extended project and wider activities. Teaching and learning related to the core may be tailored to reflect specialisation within learners’ wider programmes, while preserving the common content of knowledge and skills which the core is designed to deliver.

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MAIN LEARNING- Specialisation, - Supplementary learning- Learner choice

Commonknowledge,

skillsand

attributes(CKSA)

- Functional mathematics- Functional literacy and communication- Functional ICT- Extended project- Wider activities entitlement- Personal review, planning and guidance

CORE

63. Achievement in assessed components of the core would be a requirement for the award of a diploma. But the level of achievement required would vary depending on diploma level. For the award of entry to intermediate diplomas, achievement in assessed components of the core should be at the level of the diploma. At advanced level, the extended project should be completed at advanced level, while the other components should be at a minimum of intermediate level.

Recommendation 6

We propose that the core, common to all programmes and diplomas, should comprise:

functional mathematics;

functional literacy and communication;

functional ICT;

an extended project;

common knowledge, skills and attributes (CKSA);

personal review, planning and guidance; and

an entitlement to wider activities.

Functional mathematics, literacy and communication, and ICT

64. Components in these subjects should be accessible to all 14-19 year olds and produce the step change in achievement which is needed if young people are to be prepared effectively for later learning, employment and adult life. They must produce a significant improvement in the 42% of 16 year olds who currently achieve grade C or better in both mathematics and English GCSE. The development process must take account of the lessons from existing GCSE provision and the experience of the development and delivery of Key Skills.

65. The development of functional mathematics within the diploma must also take account of, and build on, the proposals made earlier this year by Professor Adrian Smith in his report, Making Mathematics Count (see paragraph 92).

66. We believe that the content of functional mathematics, literacy and communication and ICT should be based on a common understanding of what learners need to develop in each subject, including both knowledge and capacity to apply it. It must:

equip young people with the knowledge and skills in each subject that they will need to progress and succeed in learning, HE, employment and adult life. That means that it can only be determined in consultation with end-users, including HE, employers and community groups;

encourage progression to at least level 2, as young people move through the diploma framework, with opportunities and encouragement to progress to level 3; and

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encourage the extended study of these subjects as part of main learning (see paragraphs 91-93).

67. The content of each component would determine its size, and there is no reason why each of the three subjects should require the same volume. We would expect them to occupy between 50% and 80% of a current typical GCSE. This smaller volume of essential learning would be accompanied by assessment which ensures that in order to ‘pass’ the core, young people master the full range of skills covered by these components. Learners would not be able to compensate for lower performance in one area by higher performance in another (see chapter 6). Many young people would also undertake extended study of maths, English and ICT as part of their main learning (see paragraph 91-93).

Recommendation 7

We recommend that QCA works with all stakeholders, including end-users and subject experts, to develop core components in functional mathematics, functional literacy and communication and functional ICT which:

are based on an understanding, shared between stakeholders, about what constitute common requirements for informed citizens, effective learners and a wide range of workplaces;

reflect the detailed criteria for these subjects in annex C and, in the case of functional mathematics, build upon the recommendations made by Professor Adrian Smith for reform of mathematics education;

meet the needs of end-users; and

are available at all levels within the diploma framework, from entry level to advanced level.

These components should be available in advance of the introduction of the diplomas to begin meeting the needs of employers for more thorough acquisition of the relevant skills.

Until the new components are in place, all young people should continue to be encouraged to undertake the available options, such as Key Skills, in these subjects as part of their 14-19 learning programmes.

Extended project

68. The extended project is a major feature of our proposals. It is not a new idea. A personal project is a long-standing and highly-regarded feature of the International Baccalaureate. Project work already features in some vocational qualifications such as BTECs and is a significant implicit, and in some cases explicit, part of apprenticeship programmes. Many schools already offer an extended project along the lines we propose.

69. At higher levels of the diploma framework the project should take the form of a single piece of work which requires a high degree of planning, preparation, research and autonomous working. The final outcome would vary according to the nature of the project. For instance, it may be a written report, a product such as a construction or a piece of artwork, or a performance.

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70. At lower levels of the framework the project may take the form of a personal challenge based on clearly defined learning objectives, agreed with a tutor - for instance, a series of linked tasks, which taken together would ensure that the learner has demonstrated the necessary range of skills at the level at which he or she is working. This approach is a feature of ASDAN awards.

71. The extended project would:

ensure that all learners develop and demonstrate a range of generic skills, including research and analysis, problem solving, team-working, independent study, presentation and functional literacy and communication and critical thinking;

help to reduce the assessment burden by assessing these skills, which are currently tested, in many existing schools and colleges, in numerous pieces of coursework across the curriculum, through a single task;5

encourage cross-boundary and/or in-depth learning and wider application of knowledge developed through main learning. In this way the extend project would provide a means of synthesising main learning, while integrating it with the core; and

provide a personalised ‘space’ within 14-19 programmes for young people to pursue areas of particular interest to them.

72. For some learners, especially those on specialised programmes, the extended project provides an opportunity to supplement and extend main learning.

Sir Bernard Lovell School

As part of the 14-19 Pathfinder project this school has introduced a personal challenge.

The personal challenge varies for each young person. This year the theme is work-related learning. Pupils dedicate two hours a week to their personal challenge in collaboration with ASDAN. This includes supervised time of approximately one hour, where research can be undertaken in class and feedback sought from a tutor.

Assessment consists of: a review meeting three times a year to assess progress towards targets. In term one, the research undertaken and actions plans produced by the learner form the basis of the assessment. Learners must provide an evaluation of their own performance. They must display or give a presentation on their work to governors and parents. Learners are increasingly encouraged to be aware of the criteria they are being judged on.

Staff share their judgements after the final projects are submitted and moderate them where necessary. This is done on a subject or department basis.

Common knowledge, skills and attributes (CKSA) 5 This means that coursework need only be used elsewhere in the curriculum to develop and demonstrate subject-specific skills and knowledge where it is an appropriate vehicle for doing so.

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73. The Interim Report identified three broad strands of CKSA:

the reflective and effective individual learner;

the social learner; and

the learner in society and the wider world.

74. These categories should draw upon the content of existing elements of the curriculum, such as PSHE, citizenship, religious education and work-related learning.

75. We propose that CKSA should have the following coverage:6

The reflective and effective individual learner is someone who is personally aware, who has experienced a range of learning and teaching method and is aware of how best they learn, but who is able to apply other methods appropriately and creatively to a variety of contexts, and who shows resilience, perseverance and determination in her/his work. Such learners have the skills and attributes necessary to:

o organise and regulate their own learning;

o set and meet challenging, but realistic objectives;

o manage time effectively;

o undertake research;

o identify and solve problems;

o identify, analyse and evaluate relevant information derived from different sources and contexts; and

o think and use their skills creatively.

The social learner is someone who is able to learn and achieve in groups of different sizes and varying compositions, including:

o understanding how groups work and the factors that can influence and shape group learning;

o undertaking different roles within a group, including those of leader and team-member;

o challenging or defending a position as appropriate;

o compromising; and mediating and resolving conflict;

o seeking, understanding and evaluating others’ viewpoints and ideas;

o giving and receiving support and feedback; and

6 These definitions have been informed by the work of an EU Member States Working Group on basic skills, foreign language teaching and entrepreneurship.

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o empathising and understanding the needs of others around them, including those of employers and colleagues in a workplace.

The learner in society and the wider world is aware of the multiple communities to which they belong and is able to participate constructively in them. Such learners would:

o be aware of their rights and responsibilities;

o have the skills and attributes necessary for active citizenship and the workplace;

o be morally and ethically aware; and

o know about other countries and other cultures, and understand and value ethnic, cultural and religious diversity.

Recommendation 8

Opportunities to develop CKSA should be integrated into all 14-19 programmes through carefully managed institutional teaching and learning strategies. They need not be separately assessed, but delivering them within all programmes would mean that learners cannot achieve their diploma without developing them.

Schools, colleges and training providers should be responsible for ensuring that learners develop the CKSA across the learning programmes which they offer. Specialised diplomas should be designed from the start to recognise the full range of CKSA.

The effectiveness and quality of delivery of CKSA within individual institutions should be monitored through external inspection and centre approval arrangements.

QCA should develop guidance and exemplars setting out how CKSA can be integrated into institutions’ teaching, learning and assessment. Guidance and exemplar models for effective delivery should also be developed. This should include an examination of the role to be played by personal review, planning and guidance.

Building upon existing qualifications and assessment systems which already accredit some aspects of what we have labelled CKSA, such as the wider Key Skills, diploma components should be available for those who wish some formal accreditation of their attainment within the core and personal development.

Personal review, planning and guidance

76. Personal review, planning and guidance is crucial to underpin the proposed programme and diploma framework, and to help young people develop the common knowledge, skills and attributes that will be of benefit to them throughout life. It would serve the particular purposes of:

supporting coherence across learning programmes, particularly by drawing out and underlining the cross-curricular applicability of the core, and identifying opportunities to access breadth and wider activities;

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developing and teaching the common knowledge, skills and attributes which young people will need for success in learning and employment – this would include personal awareness, how they seem to others, and encourage them to develop a coherent view of themselves;

encouraging and helping young people to have a vision of themselves and their future; and

helping learners to identify and choose appropriate learning and career paths.

77. Personal review, planning and guidance should be a compulsory component of the diploma at all levels, but there would not be a common specification nor any requirement for formal assessment of the process. There would, however, be a requirement on institutions to provide (or ensure the provision of) personal review, planning and guidance.

78. The delivery of personal review, planning and guidance would vary depending on the needs of the young person. We would expect learners to receive support from a range of sources. For instance, teachers, lecturers and trainers may be better placed to help young people develop and review their capabilities and achievements; while external agencies such as the Connexions Service and mentors could play a greater role in advising impartially on options for further learning and careers. However it is organised, young people must have access to a competent information and guidance service outlining the options that are available and the routes to achievement, including navigation of the diploma framework. Mentoring, coaching and one-to-one support may come from inside or outside the institution.

Recommendation 9

All 14-19 programmes should include regular formal personal review, planning and guidance to enable learners to:

review and draw together their progress and achievements, and identify the knowledge, skills and understanding they have gained from the full range of their learning;

raise their personal awareness, understand their strengths and identify learning and development needs; and

formulate and review medium- and long-term objectives and goals, based on sound, impartial advice and guidance about the options open to them.

Guidance and exemplar material should be made available to schools, colleges and training providers to support effective delivery and the recording of the outcomes of personal review, planning and guidance.

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Case studies: personal review, planning and guidance

Northallerton College

Learners are grouped in tutor groups for PSHE sessions, which are double-staffed. One teacher delivers the tutorial programme, and the other, the group’s personal tutor, withdraws learners for one-to-one learning reviews. A learner can expect to meet her/his tutor in this way once a term. Learners’ performance data is gathered twice-termly and is based on standardised testing, but also includes information about meeting coursework and homework deadlines, as well as effort and progress. This information is held in the college’s data base and can be accessed by tutors at any time. The meeting is logged on special record pages in the Student Planner, along with any targets set. Although tutors and students meet up on a daily basis for registration and assembly purposes, allowing both formal and informal contact, the allocation of time-tabled time to focus on student progress and the factors which affect it, underlines the primary function of the tutorial role, which is to support learning, and encourage the student to think and plan ahead.

Bury College

Student H set out to succeed at Bury College and, with a minimum of support, proved to be one of the most enthusiastic and successful of AVCE ICT students.

Student H achieved a grade C at the end of Year 1 coupled with a huge growth in personal confidence.  He is now predicted to achieve above grade C overall for the Double Award and is looking forward to Year 2.

From enrolment onwards, Student H's course team, his family and the Additional Support Team service worked together.  He has mild cerebal palsy which leaves him physically weak and with a dyspraxic profile.  However, the regular one-two-one subject specific mentoring for success sessions, loan of a laptop, coupled with extra time for all assessments, ensured Student H's success.

Marlborough College

Students are members of one of 14 boarding houses under the supervision of a housemaster or housemistress (HM). Each HM has a team of trained tutors drawn from the teaching staff and additional staff at a ratio of one tutor to eight students. Students will expect to see their tutor individually once each week to review progress across a wide range of areas including previously agreed targets. Students’ performance is reported electronically every three or four weeks and discussed at the next weekly session: students are encouraged to seek assistance informally at other times from their tutor or HM on any personal matter. At the end of term, students see their report and complete a record of their achievement which is discussed with their tutor with targets being agreed for the following term. Specialist academic, HE and careers guidance is given at appropriate times during the school year in good time for future plans to be agreed between parents, students, tutors and HMs to whom tutors are responsible.

Wider activities

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79. In our Interim Report, we recognised the significant role of wider activities7 as a vehicle for learning through experience and for developing CKSA. Wider activities provide the opportunity to enrich learners’ lives and support their engagement as active citizens within their communities. For some young people, participation in wider activities provides an incentive to remain in learning, and for others it provides a way back into formal learning.

80. We want to bring wider activities within the diploma framework, to ensure that the learner gains recognition for undertaking them and for the skills developed by them. However, the volume and range of wider activities available to young people vary, and we recognise the widespread concern about the principle of withholding a diploma award from young people who have not undertaken a specified threshold of such activities. We also appreciate the difficulties of assessing wider activities in a way that would be both equitable and appropriate. We do not, therefore, propose that wider activities should be compulsory for award of the diploma, but that all young people should have an entitlement to wider activities as part of their 14-19 programme. We anticipate that the volume of wider activities to support a programme would normally be around 120 hours.

81. Learners would be strongly encouraged, particularly through the personal review, planning and guidance process, to undertake wider activities as part of their learning programme. The benefits of participation in wider activities would need to be clearly explained to highlight the contribution they can make to learning and how voluntary participation in activities could send positive signals to the community, employers, and Higher Education Institutions. To advise effectively, the institution would need to be aware of the range of wider activities available in the local area. This might include some activities available through the institution itself.

82. Wider activities would typically not be assessed formally, but participation and skill development could be recognised and attested on the transcript should the learner so wish. No young person should be penalised for not wanting to record their wider activities, for whatever reason.

83. In the longer-term we would like to move to a situation where all young people participate in wider activities. As a first step, it would be useful to determine the exact extent of provision8 and measure how far this could meet demand.9 If equality of access to participation in wider activities of an agreed standard could be secured, further consideration should be given to whether wider activities should become a compulsory component of diplomas.

Recommendation 10

7 Wider activities are activities usually undertaken outside formal learning time and include: the arts; sports and recreation; science and technology; family responsibilities; community service; and part-time employment.8 It is estimated that 500,000 young people annually are involved in informal award schemes in England (Source: Framework of Awards 2003). Some awards, e.g. ASDAN, Duke of Edinburgh’s, Girlguiding and Scouts, are available throughout England. However, some of the awards operate in defined geographical areas and others may have more provision or projects working in some areas than others. In addition to these accredited awards, there are many young people involved as millennium volunteers, gaining local youth service awards and certificates, undertaking a range of sports and arts activities, faith-based, community or family activities and in part-time employment, all of which would need to be incorporated in a mapping and modelling exercise.9 We are aware of discussions that are taking place between the National Youth Agency and the Network for Accrediting Young People’s Achievement as to how to determine how to map existing provision and plan for its extension.

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Wider activities should not be a compulsory component of the core, but they should be an entitlement for all learners. Learners would be strongly encouraged to undertake one or more wider activities which could be detailed on their transcript if they so wished.

Recording and attestation models should be developed and piloted, involving a range of providers and drawing upon existing practice in this field.

Research should be undertaken to establish the extent of the current provision of wider activities and the strategies required to secure equity of access to provision of an agreed standard.

Options for further enhancing the status of wider activities within the diploma should be kept under review in the light of progress towards securing consistent access for all young people.

Main learning

84. Main learning would form the majority of most young people’s programmes of study and approximately two-thirds of the diploma threshold requirements at foundation, intermediate and advanced level would be met through main learning. At entry level the figure would vary depending on the nature of learners’ personalised programmes.

85. Main learning would:

enable young people to select coherent programmes to pursue their own interests, strengths, gifts or talents. Up to 16, this would be within the context of a broad programme covering statutory curriculum requirements at KS4 (see chapter 2);

be delivered through discrete components of learning, each of which would contribute credit towards the award of a diploma;

ensure achievement and progression within individual subjects, disciplines and lines of learning which provide a basis for progression within the diploma framework and entry to employment (in general and to specific sectors), work-based training and HE; and

include learning which supplements any areas of specialisation, such as mathematics for scientists.

86. Main learning components should be available at all levels of the diploma framework, from entry level to advanced level. All advanced level components should be divided between A1, broadly equivalent to the less demanding elements undertaken within the first year of a two-year programme, and A2 components, broadly equivalent to the more demanding material undertaken in year 2. This is similar in concept to the existing division of A levels into AS and A2. In some cases, it may be impractical or artificial to divide A1 and A2 material into separate components. In such cases, the credit value of a single component may be divided between A1 and A2 credits. This may particularly be the case for advanced vocational and competence-based components.

87. Further details about component design and types is included in chapter 4 and annex D. Some components would evolve from existing qualifications, such

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as A level, GCSEs, NVQs and some awarding bodies’ own-brand qualifications such as BTECs and OCR Nationals and City and Guilds. Other components would need to be designed afresh for the new framework.

Recommendation 11

Criteria and processes for the development of 14-19 learning programmes and components should be adopted by QCA following the design principles and recommendations set out in this report, as a basis for the design of diplomas and components by awarding bodies and relevant stakeholders.

Particular attention should be paid to:

the need to ensure that the content of specialised diplomas is coherent and relevant to the area of specialisation. In many cases this would mean a single awarding body or consortium taking responsibility for the overall content and division into components of main learning within individual diplomas.

preserving within individual components the integrity of individual subjects and areas of learning and preventing these from becoming fragmented.

Vocational main learning

88. The division of the framework into lines of learning does not make the traditional distinction between vocational and academic learning. We consider this to be a strength, but we are also conscious of the critical need specifically to improve the status, relevance and quality of vocational learning. Chapter 8 sets out in more detail our proposal for strengthening the vocational options available to young people, including the integration of apprenticeships within the diploma framework.

89. Within the reformed 14-19 framework, vocational options would consist of:

specifically designed vocational components designed to fit into open diplomas in the same way that vocational A levels and GCSEs in vocational subjects may currently be combined with traditional GCSEs and GCE A levels. These components should draw upon and provide links with the specialised lines of learning;

whole vocational programmes forming specialised diploma lines. These would be designed as coherent programmes, including the core, and sub-divided into components. Some components might be drawn from the adult qualifications framework,10 but many would be specifically designed for the programme of which they form part; and

apprenticeships which are composed of NVQs, Key Skills and technical certificates; and which should become aligned with the structure we propose for

10 The consultation revealed that employers and others had particular concerns about the role of NVQs in the new framework. Our proposals for the reform of vocational programmes and the development of new vocational programmes and components must ensure that assessment style is matched to the purpose of the learning. NVQ-style assessment of workplace competence would certainly have a place within many diplomas, but it should be carried out in settings which offer credible evidence of achievement within the workplace or a credible proxy for workplace circumstances.

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the diploma framework.

90. The design of vocational programmes and diplomas should follow the principles set out in annex D for the design of specialised programmes more generally. The key outcomes of this process would be that:

all diplomas which relate to vocational areas or occupational sectors would be designed with significant input from Sector Skills Councils, other sectoral and employer bodies, providers and HE to ensure that the diploma content was relevant to their needs and would be coherent and credible as a basis for progression into employment, training and HE, as well as progression within the diploma framework;

within each vocational diploma line, young people would be able to opt either: to devote their entire programme to a broad vocational area offering a general introduction to the relevant sectors; or to devote some of it to a sub-specialisation, including some which would be highly occupationally specific, and may be localised, to meet the needs of local industries;

vocational lines would typically require learners to undertake a substantial period of structured work placement with an employer in the relevant sector. The precise requirements for each diploma should be determined in consultation with the bodies identified above, in light of the circumstances of each sector and availability of placements. This requirement should not result in unduly restricted access to vocational programmes;

all programmes, whether vocational, general or a combination of these, would be delivered using appropriate facilities and teacher expertise; and

assessment of vocational skills and occupational competence would take place in settings which are relevant to the way these would be deployed in the workplace.

Recommendation 12

Vocational programmes giving access to a diploma should replace the existing range of vocational qualifications taken by young people.

These should be developed by awarding bodies, working closely with employer organisations, including SSCs, 14-19 providers and HE. They should build upon the best of existing qualifications and operate within design criteria specified by QCA, based on the design parameters set out in this report.

Most vocational lines should incorporate a substantial period of structured work placement, related to the area of specialisation and giving credit towards main learning.

Centre approval criteria should ensure that vocational learning is only delivered where there are appropriate facilities and teachers, tutors and instructors with relevant expertise.

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Curriculum flexibility – Cumbria 14-19 pathfinder

A wide range of activity aimed at increasing post-16 participation and raising achievement in Key Stage 4 has been under way in West Cumbria for a number of years. There is a long history of link courses between the schools and the college, mainly aimed at disaffected or underachieving young people in Key Stage 4, and the Increased Flexibility Programme has helped to foster greater collaboration.

At least three schools have disapplied some National Curriculum requirements to provide work-related learning opportunities for 14-16 year olds in partnership with local employers.

Most schools have run at least one GNVQ Part One programme and many have implemented full award GNVQ intermediate in Key Stage 4.

New GCSEs in vocational subjects have been introduced, building on existing expertise and provision in institutions within the pathfinder.

The outcomes are impressive:

Over three times as many 14-16 year olds are following vocational courses compared with 1999/2000.

There has been a significant increase in the number of learners taking GCSEs in vocational subjects, with similar increases projected in those opting for vocational A levels and other vocational qualifications at 16.

Attendance and motivation have improved.

Increases in attainment at 16 are rolling through into increases in intermediate and advanced achievement at 19.

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English, mathematics and ICT in main learning

91. Alongside the core subjects of functional maths, literacy and communication and ICT, all young people must have access to wider or more conceptual and theoretical mathematics, English and ICT, either as key components of their main learning or to supplement another specialism within a named diploma.

92. Any learning and achievement beyond the core requirements in these subjects should be accredited and contribute to the main learning requirements of the diploma. This would require the development of a range of components alongside those which are designed simply to satisfy the core requirements. Drawing upon the model developed by Professor Adrian Smith for post-14 mathematics in his report, Making Mathematics Count we believe that the range of components should comprise:

core components – components which meet only the core requirements of a diploma at each level;

extended components – components which satisfy the core requirements in the relevant subject but also cover broader or more theoretical and conceptual aspects of the subject. Such components would count towards the main learning requirements as well as the core requirements in the relevant subject; and

transition components – components which bridge the gap between core and extended component, and therefore enable young people who have already passed a core component to upgrade their achievement as a basis for progressing to higher levels of achievement in the wider study of mathematics, English or ICT. Transition components would count only towards main learning requirements.

93. In addition, we believe there will be a strong case for the development of mathematics, English and ICT components for learners not taking them as subjects in their own right, but who will need elements of them to support, and count towards, their main learning. Such components would build on the current availability of qualifications like statistics for non-specialists, which can be tailored to support a variety of other subjects and areas of learning.

Recommendation 13

We recommend that - alongside functional maths, literacy and communication and ICT – extended, transition and supplementary components should be available to ensure that these subjects can be pursued in breadth and depth as part of the main learning requirements of 14-19 programmes and diplomas.

Modern foreign and community languages

94. Modern languages skills have a particular importance to economic success in the increasingly internationalised business environment. Alongside the specific skills which it delivers, the teaching and learning of a foreign language is an effective way of fostering the understanding of other countries and other cultures which we have identified as an

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element of CKSA. Within the overall 14-19 framework, we are concerned to ensure that all young people have access to flexible teaching and learning in modern foreign languages, building upon the developments already in hand through the Government’s national languages strategy, and that community languages are given the respect they deserve and recognised as a valuable asset for the future.

95. In particular we support the development of a graded ‘languages ladder’ to enable learners to progress in one or more of the four skills (listening, speaking, reading, writing) in one or more languages.

96. We also support the current statutory entitlement of all 14-16 year olds to study at least one modern foreign language. To ensure consistency across the 14-19 framework, we believe that this entitlement should be extended to 16-19 year olds.

97. For those who wish to focus on language learning after compulsory schooling, there should be within the diploma lines options to specialise in modern foreign languages. Within other specialisations, languages may also have a role in supporting the main area of specialisation either as an elective or compulsory component of main learning. Such options may well be tailored to support the main ‘named’ area of learning.

Recommendation 14

In developing the new 14-19 framework the Government should ensure a comprehensive and flexible modern foreign language offer, building upon the national languages strategy, and ensuring that the ‘languages ladder’ is integrated into the reformed system.

The existing entitlement to study a modern foreign language at Key Stage 4 should be extended to 16-19 year-olds.

The diploma lines should include the option to specialise in modern foreign languages.

The design criteria and process for all named diploma lines should ensure that consideration is given to the inclusion of supplementary modern foreign languages learning as either an elective or a compulsory component.

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Chapter 4: Diploma volume, thresholds and progression

This chapter sets out proposals for establishing the thresholds for the combination and level of core and main learning and the overall size of all diplomas within the new framework.

The threshold requirements for each diploma should be achieved through specified combinations of components at the level of the diploma and at the level below, so that they ‘interlock’ and ‘pull’ young people through the diploma levels, helping in particular to tackle the current high drop-out rates at age 16/17.

Components within diplomas should also be transferable where relevant to other diplomas at the same level. This would facilitate transfer and progression within the level.

A credit system should be used as the basis for establishing the threshold requirements for each diploma:

For the purposes of exemplifying the system, this chapter assumes that each diploma would require the learner to pass core and main learning components in specified combinations worth a total of at least 180 credits.

Approximately one-third of the credits should be allocated for successful completion of the core, with the remainder being achieved through main learning.

Diploma levels

98. Each level of the framework would represent at least the same level of demand as typical programmes within the current system and in many cases would be more stretching. For example, the requirement of the intermediate diploma to achieve the core at intermediate level in some respects makes it more demanding than currently where intermediate achievement is usually understood to be five GCSEs at grades A*-C in any subjects, with no requirement to achieve in mathematics or English.

99. The division of the framework into diploma lines would ensure that all learners could identify clear and transparent progression routes. At no stage would they hit dead ends or barriers within the framework.

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Figure 4.1: The diploma framework and existing qualifications

Diploma level National Qualifications Framework level

Existing national qualifications

Advanced Level 3 Advanced Extension Award; GCE AS and A level; level 3

NVQ; equivalent qualifications

Intermediate Level 2 GCSE at grades A*-C; intermediate GNVQ; level 2

NVQ; equivalent qualifications

Foundation Level 1 GCSE at Grades D-G; foundation GNVQ; level 1

NVQ; equivalent qualifications

Entry Entry Entry Level Certificates; other work below level 1

Interlocking diplomas

100. The minimum requirements for all diplomas should include learning not just at the level of the overall diploma (e.g. the intermediate components within an intermediate diploma) but also some at the level below (e.g. foundation components within an intermediate diploma), so that diplomas at different levels overlap or ‘interlock’. Through this interlocking, young people achieving, for instance, a foundation diploma, would also begin to satisfy some of the requirements for an intermediate diploma, thus providing a bridge between diplomas at these levels and promoting progression from one level to the next. This pattern of learning is already evident in many existing 14-19 programmes both in learners mixing GCSEs and A levels, and in many large vocational qualifications, such as BTEC National Diplomas, which although at advanced level overall, contain units at intermediate level. It is also a feature of some apprenticeships.

101. Those learners who are able to could exceed the minimum by securing a greater proportion of achievement at the higher of the two levels. For example, a learner could achieve an intermediate diploma on the basis of components all at intermediate level, rather than a combination of foundation and intermediate components. Learners could also receive credit for components above the level of the diploma. For instance, a learner whose main programme is aimed at achieving a foundation diploma could study at intermediate level in one or more subjects. Achievement at this level should generally be able to take the place of a foundation component in the same subject within the diploma (i.e. the higher level subsumes the lower) and would be recorded through the transcript accompanying the award of the foundation diploma, as well as counting towards a subsequent intermediate diploma. This applies equally at advanced level, where those who can should be able to progress beyond advanced level in some aspect of their learning. This, too, should be recorded on the transcript.

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Recommendation 15

All diplomas should contain learning not just at the level of the diploma but also at the level below.

Designers of specialised diplomas should be asked to ensure that there is some overlap between the intermediate and advanced versions of their diplomas (e.g. that advanced level diplomas contain some intermediate material), whilst also ensuring that the balance of the diploma conforms with the requirements for the relevant level.

Progressing through the system

102. The framework would allow learners to achieve diplomas at successive levels during the 14-19 phase. Many learners, particularly those entering the framework at intermediate or foundation level, would progress through the system in the same way that young people move through different qualifications now, by completing a diploma at that level before moving on to the next. But this method of progression would not be a requirement, and some may move quickly through a lower level and on to advanced level without ‘claiming’ a diploma at lower levels, receiving only one diploma towards the end of the 14-19 phase.

103. Some learners may achieve more than one diploma at the same level, progressing from an open diploma to greater specialisation. In doing so they would be able to transfer credits gained for relevant (particularly core) components.

104. Many young people proceed at a different pace in different elements of their programmes. They may, for instance, be working at foundation level in some subjects and intermediate or advanced level in others. The diploma would facilitate such patterns of learning, ensuring that faster progress in some components would be recognised on the transcript and provide the basis for achievement at higher levels.

105. This flexibility would be further enhanced by the absence of any expectation that diplomas would be awarded at specific ages. This means that those who needed it could

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Intermediate

Entry and personalised

Entrydiploma

Foundationdiploma

Intermediate diploma

Advanced diploma

Foundation

Entry

Advanced

Figure 4.2: Interlocking diploma thresholds

take an extra year to gain a diploma at a higher level, rather than settling for one at a lower level.

106. Interlocking also enables many young people who have achieved a diploma at the lower level to complete a relatively short conversion programme to gain a diploma at the next higher level in only one year, often focusing on a particular specialist area. This builds on current practice, particularly in colleges, where some post-16 learners take one year to build on their achievements to 16 to obtain an intermediate level qualification, often focusing on a vocational specialism, before progressing to advanced level. In designing the detailed diploma framework, further work is needed to ensure that such young people are able to count their attainment pre-16, towards such ‘conversion’ programmes to promote their continued engagement and progression and enable them to move quickly to advanced level.

Using a credit system

107. Any system which combines units or components into whole programmes needs a means of measuring the amount or volume of learning successfully undertaken by the learner. We believe that a credit system provides the most appropriate means of expressing and measuring the amount of learning undertaken by learners within the reformed 14-19 framework, and of providing a mechanism for consistent aggregation of components into whole diplomas.

108. There might be various ways of measuring the volume of learning within individual components. A common measure is the amount of taught, guided and supervised learning time. This is an effective measure of the time and teaching resource needed to deliver the learning; and it would be necessary to ensure that the content of 14-19 programmes and diplomas can realistically be delivered within approximately 1,200 hours of taught or guided learning. But this takes no account of the additional learning which learners may need to undertake outside the classroom.

109. The QCA work on the adult qualifications and credit framework takes a broader view by assigning a single credit to each 10 hours of notional total learning time, including unsupervised learning such as homework assignments. This is closer to being a measure of the total amount of learning and we propose a compatible credit arrangement for the 14-19 framework, to promote smooth progression and credit transfer between 14-19 and adult learning.

Recommendation 16

Each available diploma component should be assigned a credit value according to the volume of learning it contains, and each diploma should require successful achievement of a minimum number of credits. The way credit is established for 14-19 diplomas should be the same as that for qualifications within the adult framework.

Diploma volume

110. For the purpose of this report we have assumed that each diploma should require the learner successfully to complete at least 180 credits at the appropriate levels. Of course the length of time that a learner may take to complete a programme and achieve 180 credits may vary. Some may attain the minimum threshold in two years.

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Others may take longer or may be able to build on earlier achievements to meet threshold requirements in just one year. Within the threshold requirements for each diploma:

main learning should normally account for approximately 70% of the minimum required credits at all diploma levels (except within entry diplomas where the volume and balance of learning will be determined more flexibly); and

core learning would normally account for approximately 30% of the minimum required credits at all diploma levels (again except within the more flexible entry diplomas). The credits would be achieved through the functional mathematics, literacy and communication, and ICT components and the extended project.

Component level

111. In addition to specifying the volume of learning through credit values, the system must also be able to differentiate between components at different levels. Broadly this means that while credit is a measure of volume, it is not a measure of the level of learning. At each level, diplomas require exactly the same number of credits, but the level of the components that generate those credits would be different in each case.

Diploma thresholds

112. The following illustrates how the minimum thresholds for open diplomas at advanced, intermediate and foundation levels might be expressed in terms of credits and component level. The entry diploma has also been expressed in terms of credit. Credit in this case would be awarded for successful completion of a personalised programme:

Advanced diploma

113. Over the period of the programme, the learner would need to have attained a minimum of 180 credits:

Main learning - 120 credits At least 40 credits at advanced (A2) levelRemaining credits (up to 80) at advanced (A1) level

Core - 60 credits Extended project 20 credits at advanced level

Functional mathematics )) Total 40 credits at ) intermediate level )

Functional literacy and communicationFunctional ICT

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Intermediate diploma

114. Over the period of the programme, the learner would need to have attained a minimum of 180 credits:

Main learning - 120 credits At least 60 credits at intermediate level or above Remaining credits (up to 60) at foundation level

Core - 60 credits Extended project 20 credits at intermediate level

Functional mathematics )) Total 40 credits at ) intermediate level ) )

Functional literacy and communicationICT

Foundation diploma

115. Over the period of the programme, the learner would need to have attained a minimum of 180 credits:

Main learning - 120 credits At least 60 credits at foundation level or aboveremaining credits (up to 60) at entry level

Core – 60 credits Extended project 20 credits at foundation level

Functional mathematics )) Total 40 credits at ) foundation level )

Functional literacy and communicationICT

Entry diploma

116. Over the period of the programme, the learner would need to have attained a minimum of 180 credits. These credits would be accumulated through a personalised programme. Components would be available for inclusion in personalised programmes which meet the entry level threshold of the National Qualifications Framework. These components would contribute towards foundation diplomas, ensuring that entry and foundation levels interlock.

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Chapter 5: Meeting the needs of different learners – entry, foundation, intermediate and advanced programmes and diplomas

The preceding chapters have set out the generic template for 14-19 programmes and diplomas. This chapter focuses on the distinctive features of programmes and diplomas at entry, foundation, intermediate and advanced level. These have been designed to meet the needs of different groups of learners:

young people who are not ready or able to access full programmes and diplomas at foundation level or higher;

young people at foundation level, some of whom will progress to intermediate level and others who are unlikely to do so during the 14-19 phase, though they may do so later;

young people on the borderline between foundation and intermediate level, who need flexibility to work and achieve at both levels;

young people at intermediate level, some of whom will progress to advanced level and others who are unlikely to do so during the 14-19 phase, though they may do so later; and

young people at advanced level, including very able learners who need to be challenged and able to demonstrate their full ability.

Entry programmes and diplomas

117. More learners at entry than at other levels are likely to experience difficulty with learning, to be involved with other agencies such as health and social services and to need additional time to consolidate progress made in learning. We recognise that young people who have special educational needs will be engaged at all diploma levels although those with the most significant and profound may continue studying for their entry diploma throughout the 14-19 phase.

118. Lord Dearing’s Review of Qualifications for 16 –19 Year Olds (1996) recommended the establishment of entry level because of the motivation it would offer learners. This has been borne out in the success of Entry Level Certificates and motivation is prioritised in the model for entry programmes and diplomas offered here. Entry level has not been considered a pre-requisite for progression within the qualifications framework or to employment. The motivational benefits to the learner secured by successful completion of an entry programme could therefore be available to all learners below foundation level.

119. Learners’ programmes at this level would be based on an Individual Learning Plan designed around their strengths and needs, together with personal learning targets. Achievement against these targets would be measured by the teacher. Those who achieve their targets should receive an entry diploma, recognising their progress and achievement.

120. Targets must be both realistic and challenging for the individual learner, and those who are capable of doing so should be encouraged to undertake some components at foundation level or above. Those who find it difficult to make progress would have personal targets that reflect the distance they have travelled in their learning, even if they fall short of established national qualification levels.

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Recommendation 17

learners who cannot access full programmes at foundation level or above should have access to programmes based on personalised planning and targets and entry level components.

the entry diploma should incorporate all the principal features of the diplomas at other levels, including all the elements of core and main learning tailored to the learners’ needs. The balance between, and levels of achievement within, core and main learning should be allowed to vary according to the capabilities of the learner.

in-course assessment should predominate at this level, supported by training and exemplars to ensure consistent application of standards. Achievement of the diploma should be based on the attainment of individual learning goals.

successful completion of a personalised programme below foundation level should be recognised through award of an entry diploma.

entry diplomas should interlock with foundation level through target-setting processes which ensure that learners with the capability undertake components at entry, foundation or higher levels as part of their personalised programme.

121. The opportunity to engage in an extended project (see chapter 3) would be particularly motivational at this level. In many cases it would be the vehicle through which many of the learning goals of the diploma can be achieved.

122. Within main learning, we have identified four areas which evidence shows would allow many learners at this level to make progress. Because they are so key to success we propose that post-16, learners have the opportunity to focus on one or more of:

preparing for employment;

preparing for independent adult living;

developing study or learning skills; and

preparing for supported living.

123. Pre-16 main learning would cover the statutory requirements of Key Stage 4 where applicable.

124. Centres would be free to devise their own programmes, but, as at other levels, components should also be available nationally for inclusion in entry diplomas and programmes where appropriate. The availability of such components would help to make the delivery of the diploma manageable for providers.

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Recommendation 18

Entry programmes and diplomas should provide and recognise a range of options relevant to learners’ particular needs in employment, later learning and adult life. This should include to the opportunity to undertake components in:

preparing for employment;

preparing for independent adult living;

developing study or learning skills; and

preparing for supported living.

The broad design framework of entry components should be determined centrally, but schools and colleges should be able to develop their own components and programmes to meet the individual needs of their learners.

a central bank of ‘off-the-shelf’ components should be available to support entry diplomas.

125. A model of the entry diploma can be found at annex F.

Foundation and intermediate level

126. The great majority of young people will follow a foundation and/or intermediate level programmes at some time between the ages of 14 and 19. These will represent a stepping-stone for some and considerable terminal achievement for others. Some learners would achieve a foundation or intermediate diploma by the end of Key Stage 4, while others would get the diploma at 17, 18 or 19. For these latter young people in particular, we strongly believe that a foundation or intermediate diploma should represent a positive celebration of relevant achievement.

127. This relies upon good quality provision across the full range of diploma options. Outside the well-known GCSE route, too many current options at these levels lack credibility, status or relevance. It is essential that this is tackled through the availability of high-quality options and components which are closely linked to and designed for further progression within the diploma framework and/or which equip young people at this level with knowledge and skills which will be valuable in employment and adult life. These components must build on learners’ interests and aspirations to ensure that they remain engaged and motivated. This is particularly important for those learners who find the current diet of GCSEs inappropriate and demotivating.

128. It is necessary also to strike a balance between allowing young people to find their own level within the foundation and intermediate range, and not seeing foundation level as a ‘failed intermediate’. The current GCSE pattern of covering both levels in a single qualification, based largely on the result of a terminal examination, meets the first requirement by recognising a broad span of achievement, but it has also created a widespread perception that anything less than a grade C is failure. Nevertheless, we believe it right in principle that diploma components should be able to cover both levels where the content is appropriate (broadly, those in which the subject content is the same but the level at which the learner covers it can differ widely). This allows ‘headroom’ for learners on the borderline who may be capable of achievement at intermediate level.

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129. The nature of some subjects, in which the actual content (rather than level of knowledge and understanding) is different at foundation and intermediate level, will be an obstacle to designing components capable of recognising achievement at more than one level. In such cases, teacher-led assessment would facilitate early judgements about the higher potential of some learners, who can be transferred to higher level components accordingly.

130. Fostering appreciation of foundation level as worthwhile in its own right means creating a culture in which learners understand their progress, using an assessment regime that helps them build up a picture of their progress as they learn. The award at the end of the programme can then be seen as recognition of achievement and progress built up over time - and not hinged on an ‘all-or-nothing’ terminal examination as is often the case currently. This would ensure that those at foundation level get positive, on going recognition for their achievements, while those on the borderline and potentially capable of achieving at intermediate level, would have the opportunity to do so.

131. Open diplomas at foundation and intermediate level would be the principal offer for young people in Key Stage 4. These diplomas must build on the strengths of the current GCSE route, but should also offer motivational and relevant alternatives for learners for whom the existing GCSE diet is demotivating or inappropriate. The existing National Curriculum requirements enable 14-16 year olds to spend at least 40% of their teaching and learning time on non-compulsory options. Existing initiatives such as the Increased Flexibility Programme, and GCSEs in vocational subjects, are increasingly allowing young people to focus on practical or vocational options while also meeting the requirements of the National Curriculum. The more recent introduction of Young Apprenticeships has taken the delivery of structured vocational learning at KS4 a step further. All of these may be developed into specialised, and especially vocational, options within open diplomas at foundation and/or intermediate level. It is critical that they be carefully linked to, and allow progression to, the specialised diploma lines at higher levels, as well as within the open diploma line.

Recommendation 19

Components and programmes should be developed that recognise the particular needs of learners for whom foundation level would be a significant achievement. These must stand in their own right as effective preparation for employment and adult life for those who are not yet capable of progressing further in learning. Alongside specialised vocational and practical options, these might include components in life skills such as personal finance and food preparation.

Specialised options should be developed within open programmes at foundation and intermediate level, building upon initiatives such as the Increased Flexibility Programme and Young Apprenticeships to provide practical, coherent alternatives to GCSE at key stage 4 and to promote progression into relevant open and specialised diploma lines at the end of Key Stage 4.

Assessment at foundation and intermediate components should either:

o enable learners to demonstrate a range of achievement spanning foundation and intermediate level; or, where this is not possible; and

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o allow and encourage rapid progression from foundation level to components at intermediate level.

Advanced programmes and diplomas

At advanced level the key issues are:

raising the proportion gaining advanced level qualifications to the proportion found in many other European countries, particularly through the introduction of specialised diplomas of a vocational nature;

raising the ceiling on advanced level to enable the most able learners to demonstrate and gain clear credit for achievement beyond that currently identifiable within existing advanced level qualifications and programmes;

promoting greater breadth of knowledge and experience within advanced level programmes, and more effective acquisition of high level research, problem solving and independent working skills; and

reducing the burden and constraints of assessment and allowing more space for learning and for learners to pursue aspects of their subjects in greater depth.

132. Advanced level must be flexible enough to accommodate and meet the needs of the highest achievers in the 14-19 cohort, preparing them to progress effectively into higher education and demanding training or employment. At the same time it needs to provide an upper secondary terminal certificate for well over the 50% of 17 year olds who currently study at this level11 so as to bring us into line with participation and achievement rates in other advanced economies.

133. Raising participation at advanced level crucially depends on developing solid vocational programmes at this level, as other countries have done, and as we have partially attempted in the past. Fewer than one in five of our 17 year olds currently study for advanced level in a vocational topic. The number of young people starting an advanced apprenticeship has halved since 1997. Our proposals for specialised diplomas are designed to make a major impact in this respect, with fluid progression routes to them from both intermediate open diplomas and from specialised diplomas at the intermediate level.

134. The increasing proportion of young people achieving the highest grades at advanced level has reduced the extent to which the current A level grading range is providing the information needed to differentiate between high achievers. There would be a range of arithmetical means of sub-dividing grade A candidates – for instance by publishing scores as well as grades for whole A levels or individual units or by identifying where in the grade A range the candidate lies. Such methods might be useful additional information, which could be made available to HE admissions officers, employers and others, but they would not guarantee that advanced programmes within the diploma framework test a higher level of knowledge, skills and understanding than current A level examination or that learners themselves are stretched to achieve above the existing range of A level achievement.

135. We therefore propose that the highest levels of achievement should be recognised by extending the grading range at advanced level by incorporating the levels of demand currently associated with Advanced Extension Awards, and by remodelling 11 DfES, SFR 18/2004, Table 4b.

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advanced vocational programmes to enable young people to demonstrate similarly high levels of achievement relevant to their chosen specialisation. This will ensure that high achievers are able to demonstrate not only that they are positioned very high in the A level cohort, but that they have achieved beyond the levels tested by current advanced qualifications.

136. For some learners, even this extended range of advanced level achievement would not be sufficiently testing. They need a greater challenge, which can be provided by the availability of components at level 4. While such outstanding progress would not itself result in a higher diploma award, it would be recognised on the transcript, providing strong evidence of a very high level of achievement – attractive to HE and employers alike.

137. Breadth of achievement would be secured by core requirements to attain intermediate level in functional mathematics, functional literacy and communication and functional ICT. For those who have already achieved this, advanced level components in these subjects should be available. In addition, high level investigation, planning, and analysis that begin to draw on the research skills commonly seen in industry and in higher education would be developed through the extended project. Breadth in main learning would be encouraged by opportunities to undertake complementary or contrasting learning and for this to contribute to the award of a merit or distinction for the diploma.

138. Reduction in the volume of assessment at advanced level (described in chapter 9) would ensure that all learners at advanced level have the space to pursue specific aspects of their chosen subjects or areas of learning in depth, rather than always requiring coverage of the whole syllabus (though this may still be appropriate for some components).

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Chapter 6: Assessing the diploma

This chapter proposes significant reform in the nature of assessment and testing, particularly at intermediate level and below. The current system, particularly within GCSEs, encourages a repetitive and burdensome focus on external assessment of individual learners and fails to make use of the significant expertise and professional judgement of those who know the learners’ work the best – their teachers and lecturers. A young person doing eight GCSEs and three A levels will take 42 external examinations, and lose about two terms’ worth of learning in preparation and examination time. An average school pays £150,000 a year in examination entry fees, and an average college £300,000.

For assessment of components derived from the existing GCSE system, we believe it is possible to make a radical shift in this balance. The key to this is to use external scrutiny not principally to mark and grade individual learners’ performance but to maintain the quality and professionalism of teachers’ own judgements. Teachers should be given the freedom to make definitive, evidence-based judgements on their learners’ work, according to clearly established national standards, and a quality control framework which guarantees the dependability of teacher-led assessment.

At advanced level, the changes to the assessment regime would reflect the need for finer distinctions between candidate performance and its role in leading to a wider range of destinations/progression opportunities than at other levels. For these reasons advanced level would maintain a balance between internal and external assessment. However, we believe that this can be made to be more fit for purpose, with subject content determining the balance and nature of assessment, assessment taking place in relevant contexts and a substantial reduction in the burden of assessment.

In time, we believe that the assessment regime at other levels may be applied to advanced level, although it would remain the case that advanced level would continue to require a higher degree of competitive differentiation among candidates, particularly A2, because performance is more finely judged for the purpose of entry to employment and higher education.

Principles

139. Assessment during the 14-19 phase performs the following functions:

diagnosis: helping young people to establish a baseline and understand their progress, strengths and development needs;

recognition and motivation: recording and rewarding learners’ progress and achievement;

standard setting: confirming levels and thresholds of achievement; and

differentiation and selection: enabling employers and HE to understand what young people have achieved, and how individuals compare to their peers.

140. All of these purposes are useful and necessary. But the relevance of each, and the balance between them, will vary at different points during the 14-19 phase and with different types of learning.

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141. To fulfil these purposes, assessment should:

measure achievement in ways suited to the subject, level and type of learning, testing different types of knowledge, skills and understanding in ways which reflect their nature. Practical and skills-based learning should be assessed differently from subject knowledge and theoretical understanding, so that a young person’s results are an accurate and realistic representation of the contents of their learning;

have consistency and wider currency, underpinned by appropriate quality assurance, to enable employers, HE and others to understand what young people have achieved and to select and differentiate between them;

help learners to extend, deepen or consolidate their knowledge, skills and understanding and provide formative feedback on their progress as a natural part of teaching and learning;

enrich their experience through a variety of types and styles of assessment which test their attainment in a variety of ways, including time-limited tests and examinations, project and portfolio work and through on going assessment of their progress and capabilities;

avoid undue burden on learners, teachers, and awarding bodies; allow time for learning; and embrace the potential benefits of e-assessment; and

make appropriate use of the professional judgement of teachers, who are in the best position to follow and assess learners’ progress and attainment over the course of the programme.

142. In balancing these factors in different ways and for different purposes across the 14-19 phase, we believe it is necessary to tackle the following concerns about existing assessment arrangements:

over-reliance on formal, externally set and marked examinations part-way through the 14-19 phase, which contributes to the perception of age 16/17 as a break-point in learning and reinforces the pre-16/post-16 divide;

‘academic drift’ in the assessment of vocational learning – movement away from practical and continuous assessment towards external written examinations which skew the teaching and learning of some practical and vocational courses;

excessive burdens on learners, teachers, institutions and awarding bodies, from the number of examinations which many young people now take, the increasing number of examination entries and the administrative and other arrangements which support the examinations system;

unimaginative, over-specified and repetitive coursework, often testing the same skills in several subjects; and

lack of scope for learners to demonstrate in-depth knowledge and critical analysis, driven by the need for teaching and learning to focus on broad, but relatively shallow, coverage across the whole of each subject.

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International systems

143. No other qualifications and assessment system in Europe is built solely on national examinations. In many other countries, high status qualifications and assessment systems are built on different processes. Teacher assessment is a common, often dominant, characteristic of the lower secondary phase of education in the Netherlands, Finland, Sweden, Germany and in France.12 Such a system also operates in Australia,13 the United States and in New Zealand.

Sweden

The Swedish school leaving certificate (Slutbetyg från grundskolan) taken at the end of compulsory comprehensive education, is assessed mainly by teachers, with national standardisation through the quality assurance measures taken by the municipality. There are national tests in Swedish, English and mathematics, which are used to calibrate school assessments, but it is not essential for each pupil to take the tests.

The upper secondary school leaving certificate (Slutbetyg från gymnasieskolan) offers a choice of 17 programmes, two of which are academic. Syllabuses are nationally determined, with core and optional subjects. There are compulsory national tests in Swedish/Swedish as a second language, English and mathematics; for other subjects teachers decide the assessment method and undertake the assessment.

For the apprenticeship programme learners take a school component, based on the upper secondary curriculum and a locally determined and assessed component of ‘learning in working life’.

144. Such systems are also characterised by:

a mixed economy of internal and external assessment in upper secondary education (post-16);

teachers being trained effectively for their role in assessment.

145. In tackling the concerns about assessment in this country we believe we can learn from these examples and develop a system which recognises much more clearly the distinction between milestones and progress checks part-way through 14-19 learning on the one hand, and terminal assessment and certification at the end of the phase on the other.

146. In particular, we believe that within the diploma framework a radical shift can be effected in the assessment methods and processes currently associated with GCSEs by moving to a system in which the professional judgement of teachers predominates.

Assuring standards

12 T. Leney and C. Ward,(QCA)) What can we learn from present-day teacher assessment practices internationally? (2004 – unpublished).13 G.S. Maxwell, Progressive assessment for learning and certification: some lessons from school-based assessment in Queensland (March 2004). Paper presented at the Third Conference of the Association of Commonwealth Examination and Assessment Boards, Redefining the Roles of Educational Assessment, Fiji.

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147. The first priority in the reform we propose is to ensure that the teachers are equipped with the knowledge and expertise to play a greater role in the assessment of their learners, underpinned by robust national and local quality assurance systems which offer a guarantee of comparability of standards across the education and training system as a whole. Currently, the guarantee of consistency of standards is provided very largely through external judgement about each learner’s achievement. We envisage that it is possible to move to a system in which external quality assurance focuses on the ability of institutions and teachers to make such judgements themselves.

148. The quality assurance system we envisage is one where:

QCA would be responsible for overseeing national consistency in the demand of diplomas, including components and diploma content and clear statements about the levels of achievement expected at any given level. National exemplars and guidance would be developed and used for training of teachers and other assessors;

only approved or licensed awarding bodies would contribute to the diploma system, on either a full diploma or component basis. Approval would depend in part on the quality of their standard-setting and support for individual teachers and institutions. Consistency in the judgements would be obtained through these bodies supporting local and/or subject-based networks of teachers, developing and consolidating assessment expertise supported by training and clear guidance on standards;

the quality and consistency of judgements made in institutions would be tested through national ‘sampling’ and comparison of assessment outcomes;

awarding organisations would have a role in providing moderation (i.e. double-checking of the original assessment) of judgements made by institutions. Their role could also include the organisation of local moderation arrangements. Decisions would probably need to be made at a subject level;

centre approval would act as a ‘licence to assess’ diplomas, depending in part on inspection and other evidence of institutions ability to conform to national standards of assessment and quality assurance in applying professional teacher-led judgements;

an Institute of Assessment would support the professional development of teachers and ensure that all of those operating the system develop expertise in assessment practice; and

internal quality assurance systems would include internal moderation and verification procedures. Chartered Assessors in each school, college and training provider would be integral to developing their institutions’ assessment strategies and managing this process.

149. The Institute of Assessment is to be made operational in 2005. We believe it will have a pivotal role in providing rigour and quality of assessment in schools, colleges, training centres and the workplace. The Institute will support the professional development and standing of teachers, markers, examiners, moderators, assessors and verifiers by providing membership services, training and qualifications. It will have an important role in supporting public confidence and recognition of the role of assessors. As the Chartered Assessors initiative develops, under the auspices of the institute, it will be important to give careful thought to how their role in quality assuring the assessment

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process in institutions might work. The co-ordination of assessment activity and the need to raise the profile of this role and its importance in securing quality teaching and learning is a critical function in our vision of in-course assessment. Many further education institutions are accustomed to the responsibilities described here and it is important that we can learn from this experience in rolling out a national system for quality assurance.

Entry, foundation and intermediate level assessment: the model

150. With a quality assurance system along these lines, we believe that, in place of the existing GCSE style assessment which most learners undergo part way through their 14-19 learning, it would be possible to move to a system of assessment led by teachers, tutors and trainers exercising their professional judgement. For many this would not be a new role. Currently there are 57,000 teachers who work as professional examiners, moderators and verifiers, therefore providing an immediate pool of expertise within schools and colleges. In addition, every teacher and tutor is already engaged in setting and marking assignments, tests and practical projects as a part of everyday teaching and learning. This work typically contributes very little to the learner’s final grade, with minimal time for developing the activities, marking and sharing interpretations of the standards with other teachers.

151. A formal assessment system built around teachers’ assessment of the on going work of the course (not formal coursework specified by an awarding body) would:

support high quality teaching and learning;

increase learners’ ownership of their own work, encouraging them to work consistently well throughout the course;

allow for more assessment in authentic settings, allowing for subject/sector validity;

empower and motivate teachers, giving greater ownership of assessment, and therefore greater control of the curriculum; and

promote good practice across the system as a whole.

152. The system of professional judgement that we propose would be the main form of assessing the majority of components for open diplomas at entry, foundation and intermediate levels and would be characterised by the following practice:

assessment takes place at the point of learning in the workshop, work-based setting or classroom;

assessment is conducted through a range of different styles including time-limited tests and examinations, set assignments, and practical and written tests and observations;

judgements are made against a clear standard that sets out the expected level of performance and is updated on the evidence collected during the course;

overall judgement of each young person’s progress is continuously updated as s/he completes more of her/his programme and the evidence of her/his capabilities accumulates to provide a final assessment of overall attainment at

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the end of the programme or component;

young people can monitor their progress on a regular basis through feedback from their teachers, improve their work and work towards the highest levels of attainment of which they are capable;

teachers and trainers are fully trained and supported for their role as assessors, mentors and advisers, and this expertise attracts professional recognition;

training in the interpretation of nationally determined assessment criteria and their consistent application is provided using externally produced exemplar material and tests. Local and subject-based networks of teachers and assessors promote best practice and ensure that standards are consistent between institutions and within and across subjects;

teachers can draw on a bank of national tests, some of which are externally marked, to reinforce the assessment tasks they set themselves and to assist in the national quality assurance system;

each institution has a cadre of Chartered Assessors to lead in the development and implementation of its assessment strategy; and has the systems - and staff with the expertise - to underpin effective assessment, verification and moderation; and

awarding bodies are responsible for ensuring that assessment is of the appropriate quality to verify grades and to handle appeals.

153. The assessment and quality assurance process are illustrated in figure 6.1 Annex E sets out further details on how a teacher-led system of assessment could operate.

The role of formal external assessment and time-limited examinations

154. Good quality examinations are effective tests of knowledge, understanding and critical capacity. In-depth questions drawing on what has been learnt from across the course (synoptic assessment) help learners to develop the ability to select from and analyse a wide range of material to develop arguments and conclusions. Formal examinations and tests, when used appropriately, can target precise elements of knowledge very accurately. Such examinations can be set and/or marked either by teachers (internal examinations) or by awarding bodies (external examinations). In either case, the test results would contribute to the teacher’s overall judgement.

155. While we have characterised this system as being predominantly based on teacher judgement, there would still be an important role for traditional external assessment – set and marked by awarding bodies. We propose that a process of external examinations should be developed appropriate to the nature of the subject. We would expect every programme to include an element of nationally prescribed tests to help reinforce teachers’ own judgements. Using banks of appropriate pre-tested questions there would be no requirement for such tests all to be sat at a particular time on a particular day. The marking of such tests would be open to both internal and external moderation and these results, based upon a secure national standard, could be used to moderate the teacher judgements of the in-course assessment, forming a strand of the quality assurance system.

E-assessment

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156. The capacity and technology for e-assessment is developing rapidly. We recognise the potential of this development to enhance the quality and efficiency of assessment. E-assessment should not be construed as limited to quick multiple-choice testing; it has the potential to test learners in both structured and unstructured environments, with both short and long answer questions, as well as the ability to use techniques such as video clips to test a wider range of knowledge, skills and understanding than is possible at present. Such tests can be assessed rapidly by awarding bodies, reducing the burden on all. We have not sought to predict what may be possible over the 10 years it will take to implement our proposed reforms, but the implementation process must take account of the new opportunities which technological development permits and lessons learned from the QCA’s work on the KS3 ICT assessment pilot.

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Figure 6.1: Assessing the diploma: entry, foundation, intermediate

- Diploma components

- Assessment styles

- supporting effective assessment

- assuring quality

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chartered assessor in every institution

Awarding body devised course material, & assessment

guidance

training and develop-ment of staff

Judgementschecked & compared

Main

Extended Project

CoreICT

Maths

Comm

Assessment set by awarding body; marked &

 moderated by centre

Assessmentsset, markedmoderatedby awardingbody

Assessmentsset, marked

moderated within centres

Making the transition

157. We recognise the extent to which these proposals are a departure from existing practice and represent a significant shift in the existing culture, which places a premium on external examinations. While we believe that this is achievable there can be no irrevocable change without the most careful preparation and testing. A pre-condition is robust evidence that all the aspects of this system can be put in place and made to operate effectively and fairly. To manage the transition effectively while maintaining public and professional confidence, a carefully managed programme of preparation would be required, which would need to be based on:

extensive research, testing and piloting to ensure that the methods are manageable and for learners and teachers alike, and that their impact on equal opportunities is monitored;

extensive training and support beginning at the earliest opportunity; and

excellent communication with teachers and those operating the systems of assessment and quality assurance.

158. The evidence resulting from research, testing and piloting must indicate that this approach is fair, manageable and carries the support of parents, teachers, employers and higher education.

159. There is experience from previous practice in the United Kingdom on which to build, such as Mode III Certificate of Secondary Education in the 70s and 80s and the 100% coursework option for the GCSE English in the 80s and 90s. The lessons from these need to be absorbed into the 14-19 reform process. Encouragingly there is also a number of pilot qualifications that have been accredited by QCA that aim to test and evaluate different approaches to in-course assessment. The results of this work and the development of further trials would need to inform the development of in-course assessment models.

160. Further work will be needed too on the implications of a teacher-led assessment system on measures of institutional performance, which for 16 and 19 year olds are based on externally-assessed qualifications. Chapter 15 sets out the principles which we believe should inform the necessary review of institutional performance measurement.

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Recommendation 20

In open diplomas at entry, foundation and intermediate levels, in-course assessment within clear national standards should be the predominant mode of assessment.

Assessment should be based upon a mixture of: ongoing assessment; one-off, time limited, internal and external written and practical tests and examinations; and project/portfolio work.

Teachers should be able to draw upon banks of tests to supplement the assessment tasks which they devise themselves.

The focus of external assessment and quality control should be on ensuring that teacher-led judgements are exercised reliably and consistently, through mechanisms such as institutional inspections and validation, teacher training and development; sampling of candidates’ work; and the establishment of a network of Chartered Assessors who can act as a focus for quality-control within their institutions.

Sufficient resources are made available for: the training and development of teaching staff; the quality assurance system set out in paragraph 148 above; a national information system and ICT infrastructure that supports tracking of performance data; and performance measures and accountability systems that support this form of assessment.

Terminal assessment at intermediate level and below

161. The proposals above primarily concern the components which develop from, and replace, GCSEs. GCSE is the form of assessment which young people are most likely to undertake at or around the mid-point of the 14-19 phase, and which currently creates an unnecessary and constraining burden on the system. While far too many young people still leave learning at this point, it is, and increasingly will be, more in the nature of a progress check or stepping stone to further 14-19 learning.

162. However, many young people currently also follow intermediate qualifications or below which are much more likely to be their exit points from 14-19 learning, although they may lead on to further qualifications outside the diploma framework. These are typically:

intended for post-16 learning lasting one to three years;

delivered in a college or workplace;

vocational or occupational in nature; and

assessed through a mix of external tests and internal assessment of knowledge, skills and competence.

163. We do not propose radical reform of the arrangements for assessing such learning. The existing range of vocational and occupational provision also includes a very wide range of assessment styles, tailored to the nature of the content of such courses and intended to underpin effective acquisition and recognition of the knowledge and skills which are relevant to work and further learning. Many existing vocational qualifications incorporate well-established and credible assessment regimes which we

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would like to see carried forward into the assessment arrangements for relevant parts of the diploma framework – principally within specialised diplomas of a vocational nature.

Assessing functional mathematics, literacy and communication and ICT

164. In keeping with the role of functional mathematics, literacy and communication and ICT as elements of core learning within all diplomas and their function in providing transferable skills and knowledge, we propose that these components are externally set, marked and moderated in ways which are appropriate to the content and skills of the area. Assessment should be suited to the nature and volume of learning. Young people should be able to take them when they are ready to be assessed and have the opportunity to take them as many times as required to pass. Deciding when a young person is ready to be assessed should be agreed between the tutor and young person. The detail on the approach to assessment of these areas would need to be developed by QCA. However, we would propose that they should be developed using a ‘mastery’ model, unlike assessment of GCSEs which allows high performance in one aspect of a subject to compensate for lower performance in another. This would mean that to attain in core learning, young people would need to command good knowledge and skills in every aspect of the component. It would make this assessment a more significant hurdle, but it would ensure that all young people are adequately equipped across the range of functional mathematical, literacy and communication and ICT skills.

165. Assessment could be embedded in wider mathematics, English and ICT components, but the functional skills should be clearly identifiable. We see a potential role for e-learning and e-assessment in assessing these areas.

Recommendation 21

Assessment of functional mathematics, literacy, and communication and ICT should:

o be externally set, marked and moderated and based on a mastery model;

o not create a large additional burden on learners, and where appropriate be subsumed within assessment of another relevant subject, such as English; and

o be available to be taken when a young person is ready be assessed in that area.

QCA would need to develop approaches to the assessment of these subjects.

The extended project

166. Assessment of the extended project should operate the same system as for main learning. Ongoing assessment of the young person’s performance as s/he progresses through the stages of the project would be suited to this area of learning. In addition to assessing the process skills associated with project work, such as effective planning and investigation, ability to monitor and review and to evaluate, the final outcome and its quality would also need to be judged. Young people should also be able to account for and explain their work – an ability which might be assessed through an oral presentation or viva. It is likely that assessment will take place in defined stages at various intervals

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over the project’s duration, to ensure it remains manageable for both institutions and learners.

167. While in many cases the project would be supervised by staff within the school, college or training provider, there should also be the possibility of supervision, assessment and mentoring from outside organisations. People in business and higher education, for instance, might well have expertise and interest in playing such a part.

Recommendation 22

Assessment of the extended project should be in-course, carried out by teaching staff or suitably qualified people in other organisations, and should assess the quality of the processes as well as the final piece of work; and

Assessment should take place in stages throughout the project, including an oral presentation or viva by the learner, and against level descriptions and nationally agreed guidance and criteria.

Advanced level model

168. Although discussion of assessment at advanced level is often dominated by the arrangements for GCE A levels and their traditional reliance on externally marked public examinations, these are only one strand of advanced qualifications. Many others feature a much greater degree of in-course and continuous assessment. In particular in many well-established and highly-regarded vocational and occupational qualifications, such assessment has been effective and credible as part of a balanced package of different modes of assessment. Our proposals do not call into question these arrangements by imposing a single model for the balance between external and teacher-led assessment.

169. It would remain the case that advanced level would continue to require a finer degree of differentiation between candidates, particularly A2, because the need to permit competitive selection between individual learners means that achievement at this level is often more finely judged for the purpose of employment and, particularly, higher education. However, we believe that it would be possible to reduce significantly the quantity of assessment currently undertaken at AS/A2 level within GCE A levels because:

a significant proportion of the generic skills which currently underpin A level coursework would be developed through the extended project; and

the quality assurance arrangements and teachers’ greater expertise in assessment at lower levels would also provide a secure basis for a greater reliance on professional teacher-led assessment at advanced level.

170. In particular we would expect the system to be able to move quickly towards a greater proportion of teacher-led assessment within the new A1 components. This would help address the problem identified elsewhere in this report of over-constrained

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and burdensome assessment which means that young people embarking upon A level courses have very little time to explore their chosen subjects, and find that their learning is driven by the need to undertake a high volume of regular external examinations and prescribed coursework.

171. In addition we support the recent proposal by QCA to reduce the number of assessment units within AS and A2 from three to two to allow more in-depth and exploratory learning. This should be carried through into the A1 and A2 diploma components derived from current A levels.

172. There is no single assessment model which can fit all advanced learning. Some subjects and areas would lend themselves to, and benefit from, a high level of external testing and time-limited, written examinations. Others might be more suitable for practical, teacher-led professional judgement. We see few if any arguments for a greater degree of external assessment than now in any parts of the proposed 14-19 system. Where teacher-led assessment already plays a significant part, it should be retained.

Recommendation 23

Advanced level assessment should be a balance between assessment based on professional judgement (in-course) and formal external assessment which reflects both the nature of the learning being assessed and the levels of differentiation required within individual subjects, areas of learning and individual components.

In time, there should be a shift away from external and coursework assessment towards professional, teacher-led assessment, especially at A1, underpinned by the proposed quality assurance arrangements to maintain the dependability of teacher judgements.

The AS and A2 elements of existing A levels should each consist of two rather than three assessment units. In time, this arrangement should be reproduced in equivalent A1 and A2 diploma components.

The levels of teacher-led assessment currently associated with many vocational and occupational qualifications should be retained.

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Chapter 7: Grading and reporting achievement

This chapter sets out our proposals for recognising and recording achievement within and across each diploma.

Achievement in individual components should be graded to recognise and reward higher achievement in individual subjects or areas of learning where such grading is relevant to the content and to the needs of recruiters such as HE, employers and training providers. More than one grading scale should be available across the diploma system to ensure that each component may be graded in ways that reflect the nature of the learning and the requirements of recruiters and others who may need to understand what young people have achieved.

We want to reward achievement beyond the basic threshold pass in foundation, intermediate and advanced diplomas. We believe that diploma grading above the pass threshold would offer an incentive for learners to achieve more than the minimum needed to gain the diploma, and would enable employers and HE to differentiate effectively those learners who have excelled across their full diploma programme. We therefore propose grading the diploma as pass, merit or distinction at these levels. Entry diplomas should not be graded.

Detailed reports of performance within the programme should be available to the learner, and to employers, HE and others. These ‘transcripts’ should record individual components taken, credits and grades achieved and other relevant information about the learner’s programme such as any wider activities and achievement. Available electronically, the transcripts might also provide a gateway into more detailed information, such as component scores (rather than grades), portfolios of the learner’s work, and references from school, college or training provider.

Component grading

173. While possession of a diploma would offer an assurance that a young person has completed a broad and challenging programme, it would not on its own offer the detailed information about, or recognise high achievement within individual diploma components. This information is needed to ensure that informed judgements can be made about young people’s achievement in specific subjects or areas of learning within their programmes. Learners themselves should be rewarded for higher achievement within specific elements of their programme; and employers, HEIs and others need to be able to differentiate effectively the achievement of potential recruits within the individual elements of the programme which they value most highly.

174. We therefore propose that many components of main learning should be graded above the basic pass threshold. Given the diversity in the range and type of components that would make up a diploma programme, a single grading scale would be too inflexible. Some subjects and areas are more suitable for grading than others, and components of interest to different end-users may require varying levels of differentiation. Some may require detailed grading information. Others may look simply for skills above a pre-determined threshold and not be interested in fine levels of difference. It would be inappropriate and burdensome to grade all components according to the needs of one set of ‘end-users’. We therefore propose a flexible system, in which components may be graded according to one of two grading systems, depending upon the content of the component and the needs of likely end-users. At advanced level a third grading scale should be available for some components.

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175. At foundation and intermediate levels we propose either a two point or a four-point grade scale for all components. This would reflect the levels of differentiation that are typically appropriate at these levels. The appropriate choice between these two grading scales would be determined by the designers depending upon the content of the component.

176. At advanced level we propose to add a further option - an eight-point grade scale, reflecting the existing A level grade scale of A-F, extended above the A grade to recognise the very high levels of knowledge and understanding associated with the existing Advanced Extension Awards. The design of the scale must take account of the implications for attainment of grades at the other end of the scale and not disenfranchise learners in the middle and lower bands. This extended scale would be appropriate only for components where very high levels of differentiation are needed within individual subjects to aid competitive recruitment. This raises some significant technical issues about the extent to which it will be possible to devise examinations, which can reliably identify performance at the full extended range of grades in some subjects and areas of learning. While it would be desirable to avoid tiered examinations, such an option may need to be considered for some linear subjects.

177. This degree of differentiation is not needed at intermediate level and below. Some universities and employers use detailed information about GCSEs when recruiting candidates. This is currently used as a proxy for a broad general education. We believe that the manner in which achievement would be accumulated over the course of advanced programmes, and the guarantee of functional mathematics, literacy and communication and ICT within the core of the diploma would make recruiters less dependent upon information about learners’ achievement at earlier stages within the 14-19 phase.

Two-point scale Four-point scale Eight-point scale(Some advanced level components only)

Pass

Distinction

A++

A+

A

MeritB

C

PassD

E

Fail Fail F

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Recommendation 24

Each main learning component should be graded appropriately and would use one of three scales:

fail/pass;

fail/pass/merit/distinction; or

for some advanced components, fail/E/D/C/B/A/A+/A++.

These three scales should retain common grade boundaries to establish the equivalence of components graded in different ways.

Grading foundation, intermediate and advanced diplomas

178. In consultation on our Interim Report, opinion was divided upon whether diplomas should be graded. We are particularly conscious of the risk that the availability of higher grades could appear to devalue the achievement of a threshold diploma pass. We therefore believe that diplomas should be graded providing that technically secure grading criteria can be established which represent recognition of added value in young people’s achievements beyond the pass threshold. However, grading would send a clear signal about the calibre of the achievement and provide an incentive for learners to achieve above the minimum threshold across their programme.

179. Grading would also help shape desirable patterns of higher and broader achievement independently of the requirements of specific recruiters such as the universities or individual employers. It would send a strong message about the value of the diploma over and beyond its individual parts.

180. In shaping criteria for higher grades, the requirements should combine:

higher achievement in the components needed to complete the minimum threshold –

a) higher grades in main learning, higher levels of achievement in main learning; and/or

b) higher grades in the extended project; and/or

c) higher levels in the core functional skills; and/or

broader achievement – i.e. passing more components that demonstrably add to the demand of the programme, and require additional and relevant knowledge and skills which would be valued by HEIs, employers and others. This extra breadth would usually be expressed as additional main learning credits and/or the requirement to pass specified additional components.

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181. Further analysis would be needed during the implementation phase before grading criteria can be firmly established. This work should take account of patterns of achievement within the existing qualifications system when determining the appropriate criteria. It should recognise the required breadth and demand of the diploma.

182. We believe that as a starting point, the grading should confirm the following principles for each grade:

a) pass diploma - recognised as a substantial achievement in its own right and therefore establishing the diploma pass as the most likely outcome;

b) merit diploma - recognised achievement that is significantly broader and higher than the threshold;

c) distinction diploma - marking outstanding achievement and possibly gained by only a small proportion of the young people-perhaps just 10% of distinction diplomas awarded, broadly equivalent to the proportion of A level candidates who currently achieve three A grades at A level.

183. However, grading of diplomas should not be norm-referenced over time. If an increasing proportion of young people meet the established criteria for higher grades then the proportion achieving those grades should be allowed to rise.

184. The precise combinations of breadth and depth for the higher grades may well be different for different lines of specialised diploma. For instance, in some fields or areas of study specific additional areas of knowledge or skill might be more valuable than higher achievement within the basic threshold programme, and in other programmes, very high achievement across a narrower programme might be more relevant. The design process for specialised diploma lines should include consideration of appropriate grading criteria, so that both additional breadth and depth contribute useful additional achievement above the threshold. This might mean, for instance, specifying particular additional components which would add valuable additional knowledge or skills within the context of a named diploma.

185. The open diploma line should have a single set of grading criteria.

Figure 5.1: Illustration of potential grading scale for an advanced ‘open’ diploma

Grading criteria for an advanced ‘open’ diploma might be:

Pass (minimum threshold) 60 core plus 120 main learning credits; all components gained at pass grade or above.

Merit: 60 core credits; 140 main learning credits, including 60 at A2, (approximately equal to four A1s and three A2s) – 70 main learning credits to be achieved at grade C or above.

Distinction: 60 core credits, including either functional mathematics or functional literacy and communication at advanced level; 160 main learning credits, including 80 achieved at A2 level – 110 main learning credits achieved at grade A or above.

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Figure 5.2 Illustration of potential grading scale for advanced diploma in a specialised line

Grading criteria for an advanced diploma might be:

Pass: 60 core credits, plus 120 main learning credits from components specified by the awarding body.

Merit: 60 core credits, plus 140 main learning credits from components specified by the awarding body; 100 of these credits achieved at merit grade or above.

Distinction: 60 core credits, including either functional mathematics or functional literacy and communication at advanced level; 160 main learning credits from components specified by the awarding body, including at least 80 achieved at distinction grade.

186. QCA should be responsible for ensuring the broad comparability of demand between diploma lines. Given the varying demands of different specialist areas, attempts to set hard and fast rules for diploma grades beyond those described would be arbitrary at this stage. However, the system would need to at least:

guard against the unnecessary accumulation of components;

show that any additional component clearly increases the demand of, and adds value to, the programme and has been achieved at a minimum standard; and

demonstrate that the relative demands of diplomas are comparable.

187. We do not propose grading the entry diploma. The distinctions required at other levels of the diploma do not apply at this level and would be inappropriate in the context of programmes based on personal target setting. The main focus here is on motivation and recognition of progress.

188. The detailed system needs to be developed by the QCA working with awarding organisations and other partners. Over time it would be necessary to monitor the impact of grading the diploma to ensure that it does not lead to undesirable behaviours or act as an obstacle to progression.

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Recommendation 25

All successfully completed diplomas at foundation, intermediate and advanced level should be graded pass, merit or distinction.

Grades above pass should be awarded on the basis of a combination of breadth and depth of achievement.

Grading criteria should be fixed and transparent, so that any candidate who achieves the defined breadth and depth should receive the relevant grade. This means that patterns of achievement may vary over time.

QCA should advise on establishing grading criteria for each diploma line which represent increments of additional value above a threshold pass.

Entry diplomas should not be graded.

The transcript

189. If the diploma framework is to enable effective recording of achievement it must be supported by a means of recording detailed information about the content of learners’ programmes and about their achievement in the range of activity that contribute to the diploma. The transcript would do this and provide a mechanism to present evidence for the progression within the diploma framework and selection for HE, work-based training and employment. It should be available electronically via a secure database, and on paper.

190. The transcript would need to record a range of information including:

all components contributing to the diploma, including constituent units;

credit and (where applicable) grades awarded for each component;

details of wider activities undertaken and the skills developed; and

achievement in any additional components beyond the diploma threshold.

191. The transcript would be in two parts. The front end document would be available both electronically and on paper and would record the information set out above. The electronic transcript should also be a gateway to a more detailed portfolio, including additional information about the learner’s achievements, such as component scores (additional to the grades available at the top level), examples of the young person’s work, including their extended project, a personal statement, and contextual data about their school/college/training provider. We recognise the need for a national ICT infrastructure that permits the transcripts to operate in the ways we have described.

192. There would need to be security measures put in place to ensure that the information on the transcript would not be corrupted. In addition, a legally secure framework for access and ownership of personal data would need to be established. Learners, as owners of their transcripts, would then be able to allow secure access to the two levels of their transcript to interested individuals and organisations, including prospective employers and Higher Education Institutions.

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193. A model of the transcript can be found at annex 6 and electronically at www.14-19reform.gov.uk/transcript

Recommendation 26

All learners should receive a transcript, detailing achievements within their 14-19 programmes to accompany the award of a diploma and to provide a record of their progress at key transition points, such as moving between institutions.

The transcript should be available electronically and be capable of acting as an on-line gateway to further more detailed information about the learner.

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SECTION 3: THEMES

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Chapter 8: Strengthening the vocational offer

This chapter expands the proposals set out in chapter 3 for vocational learning within the diploma framework.

In order to tackle fragmentation, low status and low participation in vocational pathways in this country compared to many other countries a range of vocational diplomas should be developed with the involvement of employers, HEIs and other stakeholders to offer:

o coherent delivery of the knowledge and skills needed by different employment sectors;

o options to specialise in particular occupations within broad vocational areas, with clearly defined routes into apprenticeships as well as employment and higher education; and

o relevant, structured workplace experience.

Vocational learning should be delivered only where there are appropriate facilities and teaching and training staff with relevant expertise.

Over time, apprenticeships should be integrated with the diploma framework.

194. There is no absolute distinction between vocational and general (or academic) learning. Good vocational provision develops skills, knowledge and attributes that are desirable in adult life generally, and not only in the workplace; conversely, much of what is learnt in general or academic learning is relevant to employment.

195. In this chapter we focus on full-time vocational programmes, that is on programmes specifically designed to develop the knowledge, skills and attributes directly relevant to an occupation or a field of employment. The remit from the Secretary of State invited us to make proposals to strengthen such programmes. This is central to our basic endeavour to increase participation and attainment in the final phase of secondary education. What is apparent to us, particularly by looking at successful 14-19 systems abroad, is that vocational learning is not just a matter of contributing skills to the economy, nor of providing opportunities to young people who find difficulty with academic subjects – though it can do both of these things. Soundly-based vocational education is an absolutely key feature in the education project itself as it is capable of attracting large numbers of young people to participate in, and attain at, advanced level study.

196. It is precisely in this area that we fall behind in international league tables. The OECD has pointed to our low participation rate at 17 (despite good attainment results at 15). We have high participation at 17 in academic studies, but only one in five of our young people undertake vocational education at advanced level, whether in apprenticeship or in full-time programmes. In Section 2 we have proposed specialised diplomas in vocational areas, supported by employers and – crucially – part of a pathway that leads readily from intermediate to advanced level, with clear opportunities for advancement into vocational higher education programmes as well as into higher apprenticeships and work. Such programmes would mirror best practice abroad, which has been shown to boost overall participation in the 14-19 system. These vocational

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diploma ‘lines’ are explored further here, together with other aspects of vocational education and apprenticeship.

197. In discussing vocational programmes, we should recognise that they have an important role as a vehicle for general education as well as for occupational preparation. Moreover, many vocational learners may still be tentative or undecided in their occupational choices, or may subsequently change their minds. A large proportion of young people eventually find work in occupations other than those for which they have studied and gained qualifications. Vocational programmes should therefore be designed to achieve broad objectives and to support progression to a wide range of destinations.

198. Vocational programmes cover a broad spectrum of education and training from job-specific to work-related:14

work-based and job-specific programmes and qualifications normally attest to the ability to fully meet the performance standards expected in the work environment as a result of a period of extended application, a quality which has come to be termed ‘competence’. Apprenticeships and NVQs are examples;

work-related programmes tend to focus on providing a range of skills and knowledge that are relevant and show that the individual is ready to take advantage of employment opportunities or has gained an insight into an employment sector. Programmes with an emphasis on Key Skills and work experience are examples; and

qualifications associated with an intermediate phase of transition to employment often involve a blend of theoretical and practical learning and allow the practice of real work activities and skills in a simplified or protected environment, especially for the purposes of either training or risk reduction where costly or safety-critical processes are involved. BTECs and VCEs are examples.

Proposals for improving the vocational offer

199. Bringing vocational pathways into a single framework would give formal equality of standing between, academic, vocational and mixed pathways; recognise areas of overlap between them; provide opportunities to combine, transfer and progress between them; and ensure general educational content within vocational programmes. It would make it easier for learners to identify progression routes to advanced level and beyond.

200. In comparison with many other countries, we have a proliferation of vocational qualifications of various sizes and many different types, often without any clear routes of progression between them. As a result, learners and employers are often confused, and the recognition for, and currency of, many vocational qualifications is low. Many of our qualifications are short, particularly at intermediate level, so that young people often leave the system at 17 after only a year of post-compulsory learning. In the labour market, wage returns to vocational qualifications tend to be below those for academic qualifications at the same level. This reflects and exacerbates the perception that vocational learning is inferior to academic study and only for those of lower ability. More detail on weaknesses in existing vocational pathways can be found at annex H.

201. Other countries (e.g. Sweden, Finland and increasingly, France) have reformed their systems and improved staying-on rates by offering more substantial vocational courses of two to three years duration, and generally aiming for advanced level as the

14 We are grateful to the Federation of Awarding Bodies, whose paper on The Essential Characteristics of Vocational Provision is heavily drawn upon here.

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exit point. We believe that the English system should move in this direction also, building upon elements of the existing qualifications framework which already have the desirable characteristics.

202. In designing a vocational programme for young people our aim is to balance a number of objectives. First, we need to give students a solid grounding in their chosen area, for example that of the hospitality industry, to develop the general skills and knowledge needed in that sector and to give the context in which more precise choice of occupation may be made. Second, it is important to allow specialisation for a particular occupation giving the skills required in depth, recognising that full proficiency is unlikely to be obtained until a person is actually working in that occupation. Third, we need to continue elements of general education which will assist not only in future careers, but also in adult life more generally. And fourth, we need to provide skills and knowledge that will be valuable in a range of occupational destinations, in addition to the specialism of the programme, enabling young people to keep their options open and to thrive in a dynamic labour in which occupational change is frequent.

Involvement of employers

203. A range of stakeholders will need to be involved in the development of vocational learning, but we believe that the importance of involving employers cannot be over-stated. It is only through their involvement that vocational pathways will attain real value, relevance and authenticity. Throughout the consultation employers expressed the desire and willingness to be involved in the design and the delivery of vocational pathways. All of the employers at our consultation event in July thought they had a role to play. We urge the Government and policy-makers to build on this momentum.

204. Employer involvement must mean seeking their input in and encouraging ownership of:

the structure of diplomas providing access to their sectors;

the content of vocational programmes based on lines of learning, which they must also have a role in identifying (see chapter 2);

the curricular content of core components (common across all diplomas);

the design of work experience and work-related learning; and

the delivery of all of these – from acting as mentors to young people completing their extended project or personal challenge and developing CKSA, to providing work experience opportunities, to delivering diploma components.

205. Although much remains to be done in identifying the best mechanisms for securing employer engagement in 14-19 learning (and education generally), progress has been made in recent years. The Skills for Business Network (the Sector Skills Development Agency and Sector Skills Councils) provides the focus for identifying employer and economic needs and considering how these can be addressed through education and training. The Government and its partners should continue to foster development of the Network, including enlisting sectors not currently represented, and should ensure that it fulfils its potential as a partner in the reform of 14-19 curriculum and qualifications.

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Appropriate curriculum and assessment

206. In developing components and programmes for inclusion in the diploma framework, awarding bodies should build on the best of existing qualifications and include them as components and programmes of the new system where it is appropriate to do so. New vocational components and programmes should also be developed, including at foundation level, for inclusion in both open programmes and specialised lines.

207. In undertaking this work, awarding bodies should work with employers, teachers, lecturers, training organisations and HEIs to ensure that the structure and content of components and programmes meet their needs and those of learners and provide access to HE or training and employment. The National Occupational Standards developed by Sector Skills Councils should provide a useful starting point in determining the nature of vocational pathways, particularly those designed to provide progression to specific sectors.15

208. An appropriate vocational curriculum must be matched by appropriate assessment. It is particularly important that assessment of vocational learning reflects the nature of the knowledge and skills which are being developed, and the practical, workplace and other settings in which they will be used.

Work placements and experience

209. Where practicable all vocational programmes should require structured and relevant work placements. In other countries where vocational learning is more highly regarded, work experience is an integral part of vocational programmes and does much to make the programmes relevant and realistic.16 It has a similar impact in vocational programmes in England, but is not yet the norm. We believe it should be if vocational programmes are genuinely to prepare young people for work. In specialised vocational programmes, work placement should constitute a structured component related to the area of specialisation, giving credit towards main learning.

210. Work experience also has a role to play in other programmes because it can provide young people with real insight into the skills and attributes needed to succeed in the workplace. During the 14-19 phase young people should be able and encouraged to take up such opportunities even when these are not required elements of the diploma they are working towards. Any employment or work experience would contribute to the wider activities entitlement within core learning.

211. When it works well, work experience can deliver significant benefits for both employers and young people, and more must be done to ensure that these benefits are delivered consistently. This means involving employers not just in delivering work experience for individuals, but systematically in identifying how work experience can

15 The Skills for Business Network has the specific responsibility to “develop occupational standards defining the skills needed in their sectors informed by best practice and relevant across the UK as the basis for designing up to date high quality courses and qualifications”. These ‘National Occupational Standards’ are required to ‘include the essential knowledge and understanding required, the relevant technical, planning and problem-solving skills, the ability to work with others, the ability to apply knowledge and understanding, and other skills which would enhance flexibility in employment and opportunities for progression’. They must also ‘meet the needs and have the support of all significant groups of employers and potential users’. 16 See Ofsted, Pathways to parity: A survey of 14-19 vocational provision in Denmark, Netherlands and New South Wales (January 2004).

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best be structured so that it is an attractive proposition for learners and employers.17

Appropriate facilities

212. Although we are keen that all young people who wish to should have access to vocational opportunities, we do not believe that all institutions will be able to provide them. Indeed we do not think that all institutions should try to do so. High quality vocational learning is dependent on the availability of appropriate facilities that mirror the workplace as closely as possible. Not all institutions, and particularly schools, will be able to provide this.

213. We recognise and welcome the opportunities presented by the CoVEs and Specialist Schools initiatives to develop appropriate facilities and expertise within schools and colleges. Initiatives like Building Schools for the Future will also offer some opportunities for schools to upgrade their facilities. However, where good facilities already exist in a nearby institution or training provider, schools would be better advised to invest in collaboration with such partners. The importance of collaboration is examined in greater detail in chapter 15.

Placements for school and college teaching and lecturing staff

214. Relevant expertise among teaching and lecturing staff is also an important factor in high quality vocational provision. Teachers, lecturers, tutors and instructors are already encouraged to undertake placements to ensure that their knowledge is up-to-date and accurate, and efforts are also being made to foster even closer links between education and business. However, more needs to be done to ensure that staff in schools and colleges have the expertise needed to deliver high quality vocational programmes based on knowledge and recent experience of the business environment.

Integrating apprenticeships within the diploma framework

215. Over a quarter of a million young people over 16 are now undertaking work-based training and the Secretary of State’s remit invited the Working Group to make recommendations for integrating apprenticeships within a new unified 14-19 system.

216. The recommendation in the Working Group’s Interim Report, that apprenticeships should be fully incorporated into the proposed diploma framework, was warmly welcomed in responses to the consultation. Integration of apprenticeships would also increase opportunities for progression from the work-based route to higher-level programmes, contributing to the Government’s aim of widening access to HE.

217. Apprenticeships combine vocational main learning, in the form of NVQs and Technical Certificates, with a core of Key Skills, employment rights and responsibilities and other components, and thus are already close to our proposed diplomas at intermediate and advanced level in many respects. Some make extensive use of project work as an important part of the training process. Also, in common with an increasing proportion of future 14-19 provision, apprenticeships are delivered through a process of collaboration between training providers, colleges, employers and, in some cases, schools.

17 We have heard from a lot of employers through our consultation who are engaged in work experience. They have emphasised the importance of preparing young people for the experience and identifying clear objectives, as well as drawing out the learning afterwards. Many employers feel that the young people who come to them are not adequately prepared and that this is to the detriment of both the young person and the employer.

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218. Employers have consistently complained that too many young people are not properly prepared for the world of work and the standards expected of work-based learners should be no different to those demanded of learners who choose school- or college-based programmes. We believe, therefore, that apprenticeships should incorporate the same components as the diploma core designed to address this. However, the methods of assessment used in schools and colleges would not necessarily be appropriate for use in work-based training and apprenticeships.

219. The individual core and main learning components of diplomas would be transferable between, and give credit towards, all diplomas for which their subject material is relevant. Similarly, wherever appropriate, apprenticeships and their counterparts in school/college-based vocational programmes should lead to the same diploma award. Nevertheless, apprenticeship programmes should retain their distinctive identity, recognised by sector body certification, whilst providing full or partial credit towards an intermediate or advanced diploma award.

Recommendation 27

All apprenticeships at levels 2 and 3 (equivalent to intermediate and advanced levels) should eventually incorporate the same components of core learning that are adopted for every other 14-19 programme at that level, but with sector bodies determining all other aspects of programme content to meet the employment requirements of their sector and satisfy the needs of the young people concerned.

Sector bodies should be encouraged to adopt the components of core learning by the early development and release of specifications and the provision of appropriate resources and support to assist their introduction.

Technical Certificates used in apprenticeship should, from the start, feature as options within relevant diploma lines.

Sectors with apprenticeships that already include some or all of the components of core learning and meet the minimum threshold size of an intermediate and/or advanced diploma award should be encouraged to align their frameworks with the diploma system, with appropriate incentives for them to do so.

Once the appropriate systems are in place, trainees should receive full credit for all their achievements during the apprenticeship programme and recognition by means of the transcript.

220. It is likely that the present diversity of apprenticeships will continue and that, for many sectors, aligning their frameworks to meet the full diploma thresholds at intermediate or advanced level would be regarded as inappropriate by employers and prospective trainees alike. So it will take time, and in some sectors may never be feasible, for apprenticeship to become fully integrated with the diploma system. Nevertheless it is an achievable and important aim that firm links with apprenticeship should be designed into the diploma framework from the start:

those achieving diplomas in vocational areas should be able to gain material credit towards apprenticeship – this would attract them into apprenticeships as a progression route and make them attractive recruits for apprenticeship employers;

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diploma core learning should count for Key Skills; and

the specialist options that we have proposed should include the Technical Certificates that form part of apprenticeships.

In these ways learners studying diplomas could gain a significant requirement for their apprenticeship before starting on it.

Recommendation 28

We recommend that once the new diploma system is in place for all 14-19 year olds:

apprentices whose sector frameworks do not meet the threshold requirements for a diploma award should be guaranteed access to impartial advice and guidance on completion of the relevant diploma, if they wish to do so; and

sector bodies with apprenticeship frameworks which do not meet the threshold requirements for a diploma award should design one or more ‘bridging programmes’ to enable those who wish to do so to complete a full diploma that is relevant to the employment needs of the sector and satisfies the aspirations and potential of the individual.

Gender and ethnic stereotyping

221. Gender and ethnic stereotyping has been a major unintended feature of the take-up of many vocational programmes and options. Efforts to counteract its effects have had only mixed success. With stereotyped attitudes already well-established by the start of Key Stage 4, the uptake of Year 10 work experience placements is highly gender stereotypical and, instead of broadening pupils’ horizons, their perceptions of the adult workplace are frequently being reinforced by work experience practice. Among young people from ethnic minorities, participation in many apprenticeship frameworks also remains very low. Stereotyping helps to exacerbate sector skills shortages. Care must be taken not to perpetuate these perverse outcomes within the new framework.

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Chapter 9: Reducing the assessment burden

We have seen significant progress in assessment over the past 20 years. There are more young people than ever before taking increasing numbers of qualifications and passing them and there is greater variety in the forms of assessment available generally. However, with this progress have also come problems, specifically in relation to the burden of assessment and its implications for teaching and learning.

As part of our remit to improve the learning experience for 14-19 year olds we were asked to look at ways to reduce the burden of assessment in general and general vocational qualifications.

The exact nature of the burden of assessment varies according to constituency; for learners, teachers, institutions, awarding bodies and the wider system the burdens are different. We identify four main sources of burden, which are:

volume of qualifications and assessment;

type of assessment;

specification/syllabus design and impact on teaching and learning; and

the administrative and management features of the system.

We believe that our proposals reduce the overall burden of assessment, rather than shifting it from one constituent to another. It is achievable through:

reducing the number of times learners are examined, particularly the repetition of some GCSE coursework assessment;

introducing teacher judgement as the dominant method of assessing main learning at intermediate level and below;

changing the design of specifications to encourage more sampling of learning and to minimise the number of assessment units (going from 6 to 4 in A levels) and decoupling GCE AS from A2; and

tackling the administrative burden on institutions by modernising and streamlining systems.

What are the burdens?

222. The volume of assessment is significant:18

This year there were around 7.5 million qualification entries in the national school and college qualifications (GCSEs, VCE and GCE A levels, AEAs and GNVQs) and 11.6 million unit entries, covering 262 specifications of learning.

Awarding bodies deal with 26 million scripts each year.

18 Excluding the National Curriculum and vocational qualifications other than those listed, there were 25.6 million examination transactions in 2004, and around 57,000 examiners. Approximate examination entries were as follows: GCSE 5.4 million; AS 983,000; A2 720,000; GNVQ 123,000; entry 127,000; VCE 104,000; AEA 7,200. Source: National Assessment Agency (NAA.)

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The majority of 15 year olds attempt at least 9 GCSEs/GNVQs (75%), nearly half (46%) attempt 10 or more.19

Coursework assessment is often overly structured, and reduces the opportunity for innovation and dynamic learning.  The requirement for coursework in every GCSE, even when the tasks do not fit easily into the approach of the subject, makes this an exercise, rather than a learning experience.  It creates a bottleneck at a specific time of the year, when all coursework must be completed, marked and a sample prepared for moderation.

Currently it is estimated that £60 million is spent on moderators and examiners for GCSE/GNVQ and GCE entries. This could be redirected to institutions.

223. All this reflects the fact that most learners are examined at 16, 17 and 18. In addition, doing more subjects at the same level is the main way in which stretch is provided for the most able learners. Our proposals challenge both this definition of stretch and the notion that learners need to be repeatedly assessed through external examinations during the 14-19 phase. Learners would be stretched through broader programmes, more varied learning and assessment styles and the possibility of moving faster to a higher level, rather than simply doing more subjects.    

Changes to the assessment regime

224. The move to a system of assessment based on the professional judgement of teachers and tutors would reduce significantly the overall burden associated with external examinations, allowing resources to be redeployed within the system and creating more time for teaching and learning. Nevertheless we are conscious of the need to ensure that these proposals do not replace the burden of external assessment with a new burden upon teaching staff.

225. We believe that it is possible to avoid this by:

building teacher-led assessment upon the significant amount of assessment which teachers already carry out as a natural part of their work and which at the moment plays no part in the outcome of qualifications. In feedback from teachers in a survey of their time, we understand that about 0.2 hours a week is spent by school teachers on administering and invigilating examinations. Time spent marking pupil work is about 6.4 hrs a week and planning, preparing of practical tests or other assessments is about 3.2 hrs a week. Our proposals would embed assessment time within the teaching day. Tasks and activities that are part of the learning programme already would contribute to teacher judgements. Additional time might be required for planning and moderation, but this would be absorbed in part by training days, and help teachers to improve their teaching. We would also expect a little more time for teachers to be able to question young people effectively to help them improve their work; 

supporting teachers with high quality training and support from awarding bodies and from within their own institutions, including, for instance, exemplar assessment material, and nationally-available tests;

redeploying the examiner time and other resources currently devoted to marking of external examinations, and rewarding those teachers who take on additional

19 31% obtain 9 A*-C GCSE/GNVQ passes, 18% obtain 10+ A*-C GCSE passes (DfES statistics).

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responsibilities in relation to assessment, such as becoming Chartered Assessors; and

making effective use of the emerging possibilities for e-learning and e-assessment in transforming both teaching practice and assessment.

226. Development of the reformed assessment system must be accompanied by very careful monitoring to assess its impact on teacher workload.

Design of specifications and qualifications

227. The way in which content and assessment tasks are specified is also seen to lead to burdensome assessment practice. Evidence in this area is limited, but clearly specifications have become more detailed ‘statements defining the purpose, content, structure and assessment arrangements for a qualification’ (QCA/ACCAC/CCEA). Assessment criteria require adherence to the specification, because it makes assessment more accessible and transparent. However, many complain that it leaves little room for intellectual growth, in-depth study and experimentation.20

228. To address the problem in the short term, it is possible for awarding bodies to build a level of flexibility into qualifications which allows centres greater freedom in tackling assessment tasks. In the medium term, specifications would need to be redesigned to suit the new system of assessment, for example as pre-defined standards supported by more holistic assessment approaches, with exemplars to guide teachers. Criteria would need to be detailed enough to support judgements and sufficiently flexible to allow teacher choice. The burden experienced by adhering to overly specified tasks would be removed. It would remove a mechanistic approach to subjects, which has been highlighted by some teacher associations in their response to the Interim Report.

229. During our consultation, many respondents expressed concern about the constraints of existing forms of coursework in GCSE in particular where it is repetitious, but also within GCE specifications. Our proposal for a single large extended project that focuses on developing and assessing skills of planning, investigation and analysis was welcomed and it was felt it could replace much of the existing coursework. At the earliest opportunity coursework criteria should be relaxed or the requirement for coursework should be removed. This needs to be carefully aligned with development of materials and criteria to support an extended project.

230. The number of assessment units also adds to the burden - in all but a few GCE A levels and VCEs there are at least six units. We believe that the burden can be lightened immediately by reducing the number of assessment units from six to four within each A level. This aligns with the QCA proposals for developing the qualification.21

This recognises that the assessment of the qualification can be more holistic and focused on the broader areas of learning while retaining and enhancing the depth and variety of assessment. VCEs are to be relaunched as GCEs in 2005, when they will be ready for first teaching. In considering the number of assessment units in GCEs, the appropriateness of fewer assessment units in vocational areas should be evaluated.

231. A modest reduction in overall burden would also flow in time from more A2 components which can accredit an extended range of attainment in the diploma and would thus remove the need for separate AEA examinations.

20 A. Hodgson and K. Spours, 2003 Beyond A levels; Reforming the Curriculum and Qualifications System from post 14 + (2003).21 Ken Boston, Speech to Secondary Head Association and Association of Colleges Conference (2 March 2004).

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Administrative systems

232. The National Assessment Agency is working to reduce the administrative burden of assessment in schools and colleges, among awarding bodies and the system as a whole. It is working to modernise the examinations system and this includes a convergence in IT systems to improve electronic administration of assessment and the professionalisation of examinations offices and officers.

233. These features of modernisation provide an important platform on which to build our reforms. A young person’s programme might involve a combination of provision from a range of providers, using components from a variety of awarding organisations. To minimise the burden on providers, it would be important for them to make just one entry to register a young person for a diploma programme. Institutions should not have to deal separately with multiple awarding bodies for this entry and other administrative arrangements, though they may need to in relation to the curriculum and content of specific programmes and components. This single point of entry and certification would be critical to managing diploma assessment. Achievements could then be tracked and could contribute to a central pool on which a transcript system can be built.

234. The bureaucratic burden associated with vocational assessment must also be tackled. Achievement is shown through the compilation of portfolios and records that provide evidence of what the young person can do. The processes for verifying and moderating those can lead to rather large portfolios showing every element of learning. Electronic portfolios are providing exciting new opportunities for learners to record their achievements in an efficient way. They enable use of video clips, voice recordings etc. and we believe this type of development has the potential to reduce the burden of managing some vocational assessment.

235. Other administrative issues which are seen to add to the burden include the timetabling of assessments. For instance, many GCSE candidates need to prepare and submit 10 or more pieces of coursework for assessment within the same limited timeframe. Institutions have to submit marks and sample work within a given period. A further concern is the timetabling of GCE and VCE AS and A2 examinations, which in some institutions can curtail the time available for teaching and learning at the end of the first year. These problems would be addressed by our proposals for the reduction in coursework and changes to GCE and VCE examinations.

Recommendation 29

GCE A level specifications should be revised to reduce the number of units in an A level from six to four, and reduce the weight and prescription of the assessment criteria, as already proposed by QCA.

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GCSE and GCE should have no specific requirement for coursework.

Research into the impact on attainment for specific groups of learners should be undertaken.

The NAA’s work on modernisation should be extended to cover the vocational awarding bodies.

Moving swiftly to establish a single point of entry for registration of learners for qualifications would reduce considerably the assessment burden on centres.

Use of electronic learning and assessment in 14-19 provision should be extended.

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Chapter 10: Stretch and challenge

The proposed reforms would ensure that all young people, whatever their capabilities, are stretched and challenged to achieve their best, through:

broader programmes incorporating a wider variety of skills and experiences than many young people have access to now;

the possibility of learning above the level of the diploma by drawing down components from a higher level;

moving more quickly through levels within the framework; and

increased ‘headroom’ and opportunities for greater breadth and depth at advanced level.

Challenge for all

236. All young people should be challenged in their learning. They must have demanding, but realistic goals, whatever their personal capabilities and aspirations. While many young people are challenged and motivated to achieve highly by the current system, too many are not.

237. The proposed framework would ensure that all learners can follow challenging programmes that meet their needs and at which they can succeed.

238. The focus on whole programmes rather than smaller free-standing qualifications would ensure that many learners follow programmes which are broader than now, and which deliver generic and broadly-based knowledge, skills and experiences which would enrich their learning while making greater demands on their abilities. In particular, core learning would provide a solid foundation, which many young people currently lack, for further learning, employment and adult life.

239. The ability to tailor programmes by drawing down components from higher levels would ensure that no young person need be held back in subjects where they have a particular talent, even if they are not yet ready to undertake a whole diploma at a higher level.

240. For those who are capable of progressing more quickly across their programme as a whole, they may enter the diploma framework at the most appropriate level and move as quickly as their abilities allow, either taking less time to complete lower levels or skipping lower levels of assessment and moving on to the level at which they expect to emerge from the 14-19 framework.

Advanced level: stretching higher attainers

241. For the highest attaining young people, the framework offers the prospect that whatever their diploma line they would be able to take their learning as far and as fast as they are capable of, through:

the extended advanced level grade range, incorporating the levels of demand currently associated with the AEA in the A level system, with equivalent levels of achievement being equally recognised in vocational learning;

the availability of components at level 4;

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opportunities for more in depth learning through the remodelled A1/A2 syllabuses and assessment regimes, which reduce the number and weight of individual assessment objectives currently associated with AS/A2;

opportunities to take functional mathematics, functional literacy and communication and ICT at level 3; and

the opportunity to develop and demonstrate higher level research, problemsolving, analytical and presentational skills through the extended project.

Stretch and challenge – Cumbria 14-19 pathfinder

The Excellence Cluster within Cumbria has had particular success in linking up with HE and developing opportunities for gifted and talented students. Together with the e-learning based pilot of the “Scholar” learning environment for A levels in maths and science, there is now a good range of support and learning opportunities for gifted and talented students. For example, there are over 110 young people in Year 12 currently engaged in Open University Units.

In addition, 25 of the 42 secondary schools in the County have enabled pupils in Year 10 to take a wide variety of GCSE examinations a year early. Just over 10% of the Year 10 cohort in these schools took one or more GCSEs in 2004, and 62% achieved passes at A*-C. Seven schools are developing access to Year 11 entry to AS examinations. Twenty-two young people were involved in 2004 and they all achieved grades A-C in between one and five subjects.

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Chapter 11: Raising participation and tackling disengagement

At 76%, UK participation at age 17 is fifth lowest among 28 OECD countries. Too many young people are turned off learning and fail to achieve between 14 and 19.

Disengagement peaks during Key Stage 4 and is manifest in truancy, exclusion and bad behaviour. Some of the causes of disengagement are cultural, social and economic and not easily addressed through changes to curriculum and qualifications.

Our proposals would raise participation and tackle the educational causes of disengagement by:

offering a choice of relevant programmes and activities, which allow young people to pursue their interests and aspirations, while working towards high status qualifications linked to progression in learning and employment;

sign-posting progression routes within the diploma framework and making it easier for learners to follow them because diplomas would interlock;

ensuring that all young people develop the knowledge, skills and attributes needed to access the curriculum; and

enabling young people to build confidence by gaining credit for small steps of achievement, which is recognised on a transcript.

They should be underpinned by high quality teaching and learning, collaboration between institutions and improved information, advice and guidance, as set out in chapters 12 and 15.

242. The real scandals of our low participation are the 9% of young people who are not in education, employment or training (the NEET group) and the 15% in employment without training.22 We share the Government’s aspiration that all young people should remain in some kind of education or training until they are 19, recognising that for some this will be combined with employment. To do this, we must tackle the high drop-out rate at age 16/17 and provide young people with relevant and motivating choices, leading to qualifications which are valued by employers and HEIs.

243. Many young people leave learning at 16 or 17 after making a calculation of the balance between the immediate rewards of entering employment and the longer-term benefits of staying in learning. One way to improve staying-on rates is therefore to increase the perceived value of post-16 learning by ensuring that it is seen to deliver clear benefits in terms of access to desirable employment, education and training. We believe that our proposals would achieve this by replacing the existing proliferation of qualifications, many of which have uncertain currency, with a framework of diplomas which are seen to open doors to employment and further learning, thus persuading young people that they can benefit from staying on and completing a diploma.

244. Young people who may be described as ‘disengaged from learning’ can be found across the spectrum of achievement. Hilary Steedman’s (2003) summary of a seminar series on how to motivate (demotivated) 14-16 year olds, with special reference to work-related education and training focuses on disengaged learners who achieve less than 5 GCSEs at A*-C. It examines the success of recent initiatives intended to help these learners. Its main findings can be summarised as follows:

22 2001 figures based on an analysis of learning activity and the labour market of 16-18 year-olds.

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the hardest to reach are the very small group (1-2%) who lose touch with school between 14 and16. Evidence suggests that this group make some progress in alternative provision, which provides one-to-one contact, an adult approach and atmosphere, and the opportunity to mark progress through certification;

the larger “disaffected but in touch” group which comprises approximately 20% of 14-16 year-olds have been shown to respond to a range of initiatives which often share the characteristics of taking them out of school, whether into work-related settings (e.g. FE college, workplace) or a setting associated with leisure and cultural activities (e.g. football club, music). However, benefits tend to take the form of general reanimation, rather than increases in attainment; and

disengaged learners with 1-4 GCSEs at A*-C account for up to a further 20% of the cohort. For this group, better vocational options can have a highly motivating effect and raise young people’s performance.

245. These findings demonstrate how choice and relevance play an important role in motivating young people to learn. This applies both to learners at risk of disengagement before 16 and those making their choices at 16.

246. All young people would be able to select programmes from a clear suite of options covering a range of subjects and areas of learning, including improved vocational and practical options which would have a greater general currency than many existing vocational qualifications. The ability to construct personalised entry programmes and improved foundation programmes and components would be particularly important for learners at the lower end of the achievement spectrum and those with special educational needs, but choice and relevance would be available to all and should equally benefit ‘bright but disengaged’ learners and those considering their options at 16

247. Once engaged on a programme, the learner would be able to pursue his or her interests and aspirations through a choice of main learning components (greater in open programmes than in the specialised diploma lines) and the extended project. The entitlement to and recognition of wider activities would motivate learners by enabling them to build on informal learning in the family, community, cultural sphere and workplace, and help them more easily combine earning and learning.

248. The ability to succeed once enrolled on a programme has a vital part to play in keeping young people in learning and ensuring that they do not become discouraged and demotivated. The multi-level learning inherent in the diploma proposals would ensure that all programmes would contain a ‘learning gradient’ which would enable young people to build their confidence quickly by accumulating early achievement.

249. The diploma framework would provide clear sign-posting to learners about how they can build on their achievements to progress to programmes at higher levels or more specialised programmes at the same level or apprenticeships or Entry to Employment programmes appropriate to their needs and aspirations. The interlocking nature of diplomas and transferability of relevant components would facilitate and encourage progression by ensuring that achievement in one diploma would form the basis of progression to and achievement in other diplomas at the same level or the next.

250. Core learning would provide young people with the functional mathematics, literacy and communication skills, and the personal, inter-personal and learning skills that they need to access the rest of the curriculum. Teacher-led assessment would give young people a clear insight into their progress from the outset of the programme and

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recognise progress along the way. Personal review, planning and guidance would help learners to understand what they have learned and consider how it can help them to achieve their aspirations. The ongoing coaching and encouragement young people would receive as part of the assessment and personal review, planning and guidance processes would be particularly beneficial to those at risk of disengagement or non-participation post-16.

251. 14-19 components and programmes would be delivered in schools, colleges and workplaces. Collaboration between institutions should ensure that young people have access to a range of curriculum options, delivered in a setting appropriate to both the content and the learner’s needs. This should have particular benefits for young people who prefer the more adult environment associated with colleges and workplaces. Wherever learning and teaching takes place, it should be of high quality and based on high expectations.

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Chapter 12: Quality of learning and teaching

Our proposals are designed to deliver significant improvements to 14-19 learning, with broad and clear curricular choice allowing learners to follow programmes suited to their individual needs, interests and aspirations. These must be underpinned by:

time for learning;

excellent teaching; and

better use of learner feedback.

Time for learning

252. We have been careful to ensure that the template for 14-19 learning we have specified would not place unmanageable demands on learners or teachers. This is because we recognise that the quality of learning must improve. 14-19 programmes need to be brought to life by engaging and innovative teaching and time must be released to allow this to happen.

253. Time for learning would be secured through:

changes to the assessment regime, which would reduce the burden of assessment;

diploma thresholds which are smaller than the total available curriculum time; and

acknowledgement of informal learning, particularly through wider activities.

254. Changes to the assessment regime would not only free more time for learning, but would ensure that assessment supports learning and teaching, rather than being the driver of it. Subject specifications would be reviewed to tackle concerns about mechanistic assessment objectives and tasks, which have encouraged ‘teaching to the test’. This would ensure that teaching is about inducting young people into a body of subject knowledge or area of learning and equipping them with the variety of skills they need to access and apply it.

255. Meeting the requirements of the diploma would not absorb all the curriculum time available and this would allow young people to study additional subjects that contrast with or complement their learning. The quality of the overall programme would be enhanced by this opportunity to secure additional breadth and/or depth.

256. Additional time within the curriculum is complemented by our recognition of the learning that goes on outside formal education and training. The curriculum accounts for only about 20% of young people’s time and we believe that they learn a great deal in the other 80%. We do not wish to formalise this learning because what makes it so valuable is the fact that it is something young people do for other reasons – often for enjoyment, but also to make a contribution to the family or community or to earn money. We do, however, want to provide the opportunity for young people and others to appreciate that learning is taking place and for their achievements to be recognised. This would emphasise the wide applicability of knowledge and skills, which can be transferred between formal and informal settings and would help to generate an appetite for lifelong learning. Teachers would have an important role to play in drawing out the learning in young people’s wider activities and personal review, planning and guidance

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would provide a context in which they could do so.

Quality of teaching

257. The quality of learning depends heavily on the quality of teaching. Time would enable teachers, lecturers and trainers to do more of what they do best – that is to inspire learners by delivering a varied, relevant and interesting curriculum in ways that motivate them. Teachers would also have the time to develop and use their specialist expertise and passion for subject depth. Where there is a particular local demand, teachers would have the opportunity to work with stakeholders to develop locally relevant curricula for recognition within the national diploma framework (see annex D).

258. To make the most of these opportunities, teachers need high-quality training, guidance and support. Initial teacher training (ITT) and continuing professional development (CPD) form a major strand of our implementation plan. They must ensure teachers possess both the specific subject knowledge and repertoire of teaching skills to excite learners and to develop them to their full potential. Where vocational areas are concerned this must also mean ensuring that teachers have up-to-date and accurate knowledge and recent experience of the area they teach.

Making better use of learner feedback

259. Gathering and analysing feedback from learners is now established practice in many institutions, producing vital evidence for use in self-assessments and inspection. The best schools, colleges and training organisations already know what their learners think of the teaching and support they provide and welcome criticism as an opportunity for improvement. According to Ofsted, one of the key features of effective school improvement is that the views of learners are sought and are acted upon.

260. Within a much more learner-focused 14-19 system, it is entirely appropriate that we consult learners on whether their needs are being met and how the teaching and learning process might be improved. However, actively involving learners in this way can also help develop valuable skills and attributes and contribute to wider programme objectives. These include:

linking learner feedback processes with the development of functional literacy and communication, mathematical and ICT skills;

promoting reflection, critical thinking, respect for others’ opinions, collaboration in groups;

providing a vehicle for active citizenship and positive learner engagement;

challenging limited or stereotyped aspirations;

development of personal awareness;

demonstrating the contribution that individuals can make to process improvement in the adult workplace; and

providing opportunities for wider community involvement with 14-19 education and training (e.g. Connexions advisers, Trade Union officials, school and college governors, LEA elected members, employers etc.).

261. Only by consulting learners can we discover how they feel about the education

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and training system and whether the reforms are working as they should.

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Chapter 13: Entering and leaving 14-19 learning – providing a coherent experience for learners and meeting the needs of end-users

14-19 reform cannot be seen in isolation. It must be consistent with what comes before and after if it is to form part of a smooth lifelong learning experience for individuals and meet the needs of end-users in HE and employment.

This chapter sets out where learners need to be by 14 if they are to make the most of the new opportunities for 14-19 learning and how the diploma framework integrates with the Framework for Recognising Achievement for adults.

It also considers how the diploma framework prepares young people for HE and employment.

Outcomes at 14

262. We have not been able to give detailed consideration to the implications of our proposals for KS3 and primary education. However, we do have a strong sense of the knowledge, skills and attributes learners will need to have developed during these phases if they are to take advantage of the opportunities available to them post-14 and the type of provision this will require.

263. Pre-14 education must deliver a broad curriculum as the basis for further subject learning and choices 14-19. It should:

ensure coverage of essential content and skills in subjects which may be dropped at 14;

provide a foundation of knowledge, skills and attributes. This should include both generic CKSA alongside knowledge and skills specific to some of the subjects which will be studied 14-19, particularly mathematics, communication and ICT;

help learners to understand their strength in subjects and vocational areas of learning and experience success in them;23 and

provide an enjoyable experience, which prevents young people becoming disengaged, particularly during KS3.

264. Young people must be equipped with the skills and capabilities they will need to progress and succeed in the variety of programmes offered 14-19, including project and autonomous working. We do not expect 14 year-olds to have fully developed the set of common knowledge, skills and attributes that we have identified, but we do expect the foundations to have been laid. This means developing learning skills in particular, including the capability to work independently and in a group, and to understand what is required by different tasks and have some capacity to think about how they might be 23 With many more vocational and work-related options now available for 14-16 year olds and the take-up of GCSEs in vocational subjects already exceeding initial expectations, pupils are increasingly having to make important choices in Year 9 which, for many, could have a significant impact on the direction of their future education and training. The launch of the Young Apprenticeships programme for Key Stage 4 pupils represents a further expansion of work-based learning and introduces a new opportunity for promoting the apprenticeship route and influencing occupational choice. It is essential that these young people are better prepared to take such decisions.

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tackled. We expect that by 14, young people will have experienced a range of teaching and learning styles, including some associated with vocational learning, and to understand which best suit them.

265. Assessment and reporting at the end of KS3 should provide information about learners’ achievements and capabilities, as a basis for:

identifying any particular weakness to be addressed (particularly in core components) or strengths to be nurtured; and

measuring progress/distance travelled post-14 – that is, KS3 assessment needs to provide a baseline for 14-19 assessment.

Recommendation 30

5-14 education, and particularly KS3, should be reviewed to ensure that it prepares young people to make the most of opportunities post-14. Particular attention should be paid to lessons from the KS3 strategy and 2 year KS3 pilot, particularly in focusing on basic skills, and options for enhancing curriculum flexibility to allow time for learning.

Systems should be introduced for identifying and measuring, during KS3, as full a range as possible of each young person’s latent potential - in the form of aptitudes, interests and other characteristics - as a basis for building confidence and motivation, informing the choice of pathways through the 14-19 phase, underpinning the development of individual learning plans and choice of work experience placements, and providing a foundation for subsequent career, learning and life decisions.

Interface with the Framework for Recognising Achievement

266. The Interim Report outlined the Working Group’s commitment to ensuring a seamless transition from 14-19 to adult learning, while recognising the distinctiveness of the two phases. Coherence and broad preparation must underpin all 14-19 programmes, which aim to provide a foundation of knowledge, skills and attributes necessary for further learning, employment and life. By contrast, the flexibility of the Framework for Recognising Achievement allows learners to mix smaller units to suit their particular and changing needs at different points in time. While this is appropriate for adults, it could easily lead to an unsatisfactory and fragmented experience if applied to 14-19 programmes.

267. For this reason we are proposing that the diploma system be the qualification for the 14-19 phase and replacing other qualifications. However, learners would often be able to draw-down qualifications from the adult framework in the form of components as part of their main learning or to supplement or extend their diploma programme beyond the minimum threshold required for any particular diploma.   The exception to this is for those young people who have left 14-19 learning for employment outside the apprenticeship framework, and whose employers wish them to acquire specific skills or gain an adult qualification necessary for them to perform effectively in their job.  In such cases we believe it right that the young people in employment should be able to undertake such training even if it is not part of a diploma programme.

268. The diploma and adult frameworks must fit together to provide a seamless

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transition from 14-19 into adult learning. Both use credit to recognise achievement, and a common approach to credit would ensure that learning and achievements have currency and can be transferred between the two frameworks (see chapter 4 for a fuller discussion of credit).

269. In designing the diploma framework, and specific diplomas within it, components based on qualifications from the adult framework would sometimes form part of the specified threshold requirements for 14-19 diplomas. Such components would need to meet specified requirements for level and volume and be assessed in a way which is consistent with the diploma assessment framework. Such components should not be ‘cashed in’ for qualifications other than the diploma before the age of 19, but after this age attainment, within 14-19 programmes could be carried forward to give credit towards adult qualifications where appropriate.

Recommendation 31

The approaches to credit in the diploma framework and Framework for Recognising Achievement should be developed to ensure consistency and transferability where appropriate across the two frameworks.

Interface with the labour market and benefits for employers

270. We have sought to respond to the needs and concerns of employers and to ensure a smooth transition from learning to the labour market through our focus on:

getting the basics right – all learners would be expected to achieve in functional mathematics, literacy and communication and ICT, progressing over time towards at least level 2 (see chapter 3);

developing common knowledge, skills and attributes – specific skills and the ‘right attitude’ developed across the curriculum and through particular experiences like wider activities (see chapter 3);

strengthening vocational pathways – including through the involvement of employers in the design and delivery of programmes to ensure that they fully meet employers’ needs (see chapters 3 and 8); and

making the system simpler and more transparent and presenting young people’s achievements clearly on the transcript.

Interface with HE

271. Higher Education Institutions (HEIs) value much in the existing qualifications framework. A number of developments have, however, led many in HE to favour reform. It is widely accepted that the most able must be stretched, that performance at the top end needs to be carefully assessed and differentiated; that high quality vocational qualifications should offer clear pathways into HE; that a still stronger emphasis needs to be placed on learners refining basic skills and developing their ability to undertake major projects and manage aspects of their own learning; and that all learners need to pursue programmes that reflect the pace of change in the knowledge economy.

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272. We are building on the best practice in education and training, to design a system that prepares them for HE, in particular by:

increasing stretch and differentiation at the top end (see chapter 10);

ensuring a wide range of high-quality vocational and academic pathways, all capable of leading to higher education (see chapter 3);

providing detailed information on the transcript about the type and level of achievement contributing to each diploma, including individual component grades, and contextual information relevant to the HE applications process. We also propose that admissions officers should have access to the extended project at the earliest possible opportunity (see chapter 3);

reducing the burden of assessment, increasing the time available for teaching and learning and the scope for learners to study in depth in their chosen subjects (see chapter 9); and

developing consistent standards of oral communication, literacy and numeracy, and – especially through the extended project - young people’s capacity to undertake research, self-managed learning, defend an argument, and for practice-based programmes, to produce and assess an artefact where appropriate (see chapter 3).

Participation

273. We envisage that our proposals would significantly increase participation post 16, giving HE:

an increased pool of potentially well-qualified applicants, which would assist in progress toward a 50% participation rate; and

significantly enhance participation rates amongst young people from social classes IIIM, IV, and V. The effect of enhanced participation rates post 16 would therefore facilitate HE institutions in meeting their targets for widening access.

Post Qualification Application

274. In his report, published in September 2004, Professor Schwartz proposed Post Qualification Application (PQA) as an alternative to the current mechanism for applying for a place at an HEI. The diploma framework is flexible enough to work effectively with the current arrangements, or, if PQA is taken forward, could be adapted to facilitate PQA. However, the Government would need to consider the implications for the diploma framework in adapting it to meet the requirements of PQA. We recognise the potential benefits to learners and HEIs, but we also recognise that there are a number of issues and practicalities for the government, examining bodies, schools, colleges and HEIs to address, when considering the introduction of PQA.

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Additional testing

275. As Professor Schwartz noted in his report, there are three reasons why some HEI use their own admission tests:

to differentiate between similarly qualified applicants;

to identify potential; and

to test subject specific skills.

276. We recognise that some institutions currently rely on their own admissions arrangements and tests to differentiate between candidates, and understand that they endeavour to ensure that their admissions policies are fair, and any additional tests are demonstrably fit for purpose. However, by offering greater stretch and differentiation, and by contextualising a candidate’s performance through data on the transcript, we expect that our proposals would reduce the need for HEIs to develop their own tests. Because of the challenges that some face in judging between candidates and assessing potential as well as achievement to date, we recommend that urgent attention is given to providing greater differentiation in the assessment of current qualifications, and an early introduction both of the transcript and the extended project.

277. Professor Schwartz recommended that consideration be given to a national test to assess potential for higher education. We considered this issue, and, at this stage, we would not recommend this type of test should be part of the diploma framework. We do, however, welcome the Schwartz proposal of a research project and/or a pilot to investigate the benefits of such a test. Our view is that a national test would need to contribute to fair admissions and help to widen participation. The test would also need to be available and accessible to all learners aspiring to enter higher education. If, on the basis of a robust pilot, a decision were taken to introduce such a test, administered either by the universities or by the assessment bodies, it would seem sensible to incorporate it within the diploma framework.

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SECTION 4: DELIVERING THE NEW SYSTEM

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Chapter 14: Quality assurance of the new system

This chapter builds upon the quality assurance system for teacher-led assessment proposed in chapter 6 and outlines the procedures that would need to be put in place to guarantee the quality of the new system as a whole.

Our proposals for the diploma and for assessment require a shift in the balance between validation of inputs and monitoring of outputs in favour of the former. This will ensure that the quality of 14-19 programmes and assessment can be guaranteed, including those aspects that do not produce easily measurable outcomes.

The quality assurance arrangements we propose rely on:

careful monitoring of the content and assessment frameworks developed for programmes and components; and

centre approval.

Quality of programmes, components and assessment frameworks

278. Improving the quality of programmes means ensuring that they are coherent and relevant. This implies:

ensuring that all programmes promote achievement in core and main learning, including CKSA;

developing main learning programmes and components based on identified lines of learning and capable of providing progress to higher levels of achievement, and to HE and employment; and

systematically involving end-users alongside subject experts and learned bodies in designing the structure and content of programmes and components.

279. QCA would need to develop a regulatory framework to ensure that these principles were embedded in diploma design and content, and that components also met specified demands of level and volume. Inspection should reinforce this process by identifying any weaknesses emerging during delivery.

280. Approved awarding bodies would design, develop and offer diploma programmes and components. They would be responsible for maintaining the standard of their products. They would need to show that they have the expertise to support the assessment framework and the system to manage a national award.

281. Regular national audits should monitor assessment practice and manageability, as well as the coherence and relevance of the knowledge, skills and understanding developed by diplomas and their components. This should also include a national sampling exercise, which focuses on the quality of teacher-set assessments, their marking and judgements.

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QUALITY ASSURANCE PROCESSCore Maths,IT, & Comm

Extended Project

Awarding bodies (AB) devise course specifications & exemplar materials

AB set, markassessment

Centres, supervise & mark

CentresModerate/verify

Centre develop own assessments- chartered assessors control quality

Awarding bodies moderate judgementsSupported by local moderation or training

Judgements & Core results verified and logged

Adjustments – national sampling might adjust centre marks

Inspection verifies quality of assessment practice in centre

Centre approvalreaffirmed

pass grade grade

Awarding body moderates

AB moderates

National sampling

inspection

Diploma grade

Internal Assessment

Centre approval

282. Inspection by Ofsted and ALI, working with awarding organisations, monitors the quality of provision in schools, colleges and training providers. The move towards area inspections is making it easier to hold groups of institutions to account for provision within a locality. To ensure that 14-19 programmes and diplomas conform to the principles outlined in this report, we propose that inspection is used to underpin the validation of institutions or groups of institutions to ensure that they:

collaborate to provide a wide range of programme and diploma options to young people within an area, with care taken to ensure that one institution has lead responsibility for each young person;

have appropriate accommodation and facilities and teachers with relevant and up-to-date expertise;

have arrangements in place to ensure that all components of the programme are delivered, with particular attention paid to arrangements for those components which do not have easily measurable outcomes:

o CKSA;

o personal review, planning and guidance; and

o entitlement to wider activities;

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Figure 14.1:

have robust arrangements in place that would ensure the validity and integrity of assessment, including:

o administrative systems;

o robust internal quality assurance systems including a potentially pivotal role for Chartered Assessors in institutions, responsible for co-ordinating assessment across the institution, and ensuring that standards are applied consistently and codes of fair practice are adhered to; and

o training for other teachers to ensure that they understand their role as assessors and the standards they must apply.

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Chapter 15: A supportive infrastructure

This chapter outlines changes to the infrastructure that will be necessary to make a reality of our proposals.

Our proposals for the diploma and for assessment require a shift in the balance between validation of inputs and monitoring of outputs in favour of the former and require institutions and the system to work in different ways. In particular, there will need to be greater collaboration between institutions to provide the full range of 14-19 options. This will have implications for governance, funding and performance management arrangements.

Further pressure for changes to performance management arrangements arise from the enhanced coherence of the 14-19 phase, which should reduce the importance of 16 as a break-point in education and training.

Changes will also be necessary to the awarding infrastructure and to information, advice and guidance arrangements.

Collaboration

283. It is our aspiration that, in time, all young people in an area should be entitled to access the full range of diploma lines and main learning options. This cannot be achieved without a significant level of collaboration and planning across an area.

284. The new system would rely on schools, colleges and training providers working collaboratively. Collaboration is not a new idea and we want to build on existing good practice, such as that developed in the 14-19 pathfinders (see annex K) and the Increased Flexibility Programme. However, collaboration would need to happen more systematically if all learners are to have access to a range of options, delivered in institutions with appropriate facilities and expertise.

285. At the local level, collaboration would require resolution of a number of issues:

identification of a lead institution with responsibility for the learner – particularly to ensure coherence across the learner’s programme, that they receive personal review, planning and guidance and are registered with awarding bodies;

child protection issues and joining up with other agencies; and

resource allocation and sharing between institutions.

286. Particular issues would arise in rural areas where the distance between and small size of institutions can make it difficult to provide a full range of options. Further consideration and piloting of measures to mitigate these difficulties are needed.

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GATESHEAD PATHFINDER – COLLABORATION

The area of Central Gateshead covered by the Central Gateshead 6th Form strand of the pathfinder includes some of the most deprived areas of the Borough from which participation rates post-16 are comparatively low. CG6 is a collaboration between Kingsmeadow, Thomas Hepburn and Joseph Swan Schools and Gateshead College all of which are situated within the central Gateshead area. The first two schools are 11-16 only, Joseph Swan School is 11-18 and Gateshead College is a general FE college with a broad range of provision. The overall aim of the CG6 strand of the pathfinder is to provide a full range of progression opportunities within central Gateshead in the belief that this will encourage participation by young people who would not choose to continue their education and training if even a modest amount of travel is involved.

Outcomes

Enhanced advice and guidance was a key objective for CG6 and the four partners have combined the best practice from each institution to produce an agreed statement of learner entitlement to ensure that all learners from the Central Gateshead area obtain the same high standard of support. The delivery of that entitlement is being monitored by a working group with the assistance of a consultant. The partnership has, as intended, delivered a broader range of subjects at AS and A level and a greater variety of work-related learning opportunities building on the strengths of each partner. By sharing staff and resources it has been possible to provide opportunities for post-16 learning in a wider range of locations and this has contributed to an increase in participation within the inner urban area.

Transferability

Much of the development work carried out through the CG6 strand of the Gateshead Pathfinder is transferable both within and outside of the Borough. This part of the project has demonstrated the benefits to be gained from collaboration across a broad front. The four institutions have shared good practice across a range of issues including tutorial and pastoral care, staff development, curriculum development, timetabling and marketing of the provision.

Institutional governance

287. Collaboration has implications for the governance of institutions. Governance models would vary from locality to locality and should not be centrally prescribed. However, arrangements should be put in place to facilitate the development of new governance arrangements, including legislative changes where necessary.

Funding

288. The regime for Government funding of schools, colleges and training providers would need to take account of a range of issues arising from our recommendations, including the implications of collaboration especially where this cuts across the schools/FE/training provider divide. Other issues include differences in pay and conditions between these three sectors and differing professional qualifications for teachers, lecturers and trainers. Different funding arrangements for 14-16, 16-19 and adult learning would also need to be reviewed if young people are to be able to progress smoothly through the 14-19 phase and into later stages of learning.

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Institutional target setting and performance measures

289. It lies beyond the remit of the Working Group to make detailed recommendations on the targets and performance measures which should accompany our proposed reforms. However, it is self evident that the current system based on existing free-standing qualifications would need to change if those qualifications are no longer available.

290. It is clear also that the ways in which performance measures judge the performance of institutions has significant impact on their behaviour. It is essential that a new performance measurement regime reflects and reinforces the overall objectives of the new framework.

Recommendation 32

We recommend that in reforming the performance management system, the Government should pay particular attention to:

promoting participation at levels appropriate to the young people concerned, by recognising increased success in keeping young people in learning, especially after the end of compulsory schooling;

fostering flexible progression throughout the 14-19 phase which recognises that not all programmes at a given level will take the same length of time for all learners, especially by focusing on continued participation and distance-travelled, rather than specific outcomes at specific ages, before the end of the phase;

recognising institutions’ success in raising the highest level of achievement which their learners reach, especially by focusing on achievement when young people leave the phase;

ensuring that the achievements of all young people are counted, enabling all young people to feel pride in their achievements;

recognising the collaborative efforts of all those institutions which contribute to 14-19 programmes, by giving credit for success to all partners in collaborative arrangements; and

promoting responsible, professional assessment by teachers, by ensuring that their primary consideration is to deliver valid, dependable judgements on their learners, rather than to provide institutional performance monitoring data.

Awarding infrastructure

291. The awarding infrastructure for the diploma needs to be configured in a way that ensures that young people are correctly registered for the diploma, receive accurate information about their achievements, and that information across the range of diploma achievements can be put together without undue complexity.

292. In the interim report we offered four models for awarding diplomas. They were:

a separate certification agency, working with lots of individual awarding bodies to collect data and award;

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a franchise – where individual diploma titles are designated to specific awarding bodies;

a limited number of awarding bodies offering a diploma having met specified requirements; and

a single awarding body responsible for the range of diplomas.

293. There are two key issues here. First, whether a single or multiple bodies should be able to certify whole diplomas, and second, how the awarding bodies responsible for individual diploma programmes and components should be organised.

294. It is our view that a central body will be needed to collect achievement data and award the diplomas. This would simplify arrangements for collating achievements which may cover two or more separate diploma programmes and involve transferring credit from one to another. It would also ensure a clear single point of national recognition for 14-19 qualifications.

295. The organisation of awarding bodies is less clear cut in our view. We believe that some rationalisation of the existing number of awarding bodies (currently in excess of 100) is inevitable and desirable, but the exact nature of the final structure must take account of issues which go wider than our remit, especially the rationalisation of adult qualifications and the development of an adult credit framework. Any reform of awarding bodies must also safeguard the stability and reliability of the qualifications system during the transition period.

Information, advice and guidance infrastructure

296. Personal review, planning and guidance forms part of core learning for all 14-19 programmes. If it is to be successfully delivered, resources will need to be made available to ensure significant development of and improvement in the information, advice and guidance provided by schools, colleges and training providers and by Connexions.

297. In responding to the recent review of careers education and guidance and developing an information, advice and guidance (IAG) infrastructure to support the diploma framework, policy-makers should consider the need for:

impartiality – ensuring that young people are made aware of the full range of options available to them and can access specific advice, focused on their individual needs, when they need it;

easily accessible and up-to-date information on 14-19 pathways and labour market information. This should provide both the national picture and reflect regional and local variations; and

workforce development to ensure that those responsible for giving IAG (whether personal advisors, teachers/lecturers or support staff) are properly trained to undertake the role.

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Chapter 16: Implementation

The reforms described in this report are ambitious and far-reaching and it would take at least 10 years for their full implementation. There are multiple and interconnecting strands to the work and these should be carefully aligned to ensure manageability for those responsible for delivery.

A strong coalition between teachers, employers and HEIs, between different government departments and between communities and a host of agencies providing services to young people would be needed if the reforms are to be a success. Perhaps the most significant challenge for implementation is the change in mindsets that our proposals demand. Thinking would need to be in terms of whole programmes rather than individual qualifications. This has implications for everything from day-to-day teaching to institutional boundaries and accountability measures.

Full introduction of the proposals would take 10 years, but some changes should be introduced earlier to alleviate quickly some of the more pressing weaknesses of the system. These ‘quick wins’ include:

changes to the structure, content and assessment of qualifications to reduce the burden of assessment;

development of components in functional mathematics, literacy and communication and ICT to be made available as stand-alone qualifications;

design of vocational programmes to form specialised diploma lines and development of vocational components for open diplomas;

development of criteria for and piloting of the extended project; and

greater availability of information on learners’ performance to help HEIs, in particular, to distinguish between top performers.

Each reform should secure significant improvements, but the full benefits would not be felt until the diploma is introduced. This should only happen after careful piloting of the full system.

Timescale

298. Annex L sets out an illustrative timetable and milestones for implementation of our proposals.

299. Sufficient time must be given to the development work needed, to put the supporting infrastructure in place, and to carry parents, teaching staff, employers, HEIs and others with us. It takes time to build trust, introduce new ways of thinking and to shape expectations. It takes time to develop the new resources to support delivery and to secure agreement on common ends and how to achieve them.

300. We can also learn from other reform programmes such as Scotland’s Higher Still reform and GCSE introduction and GCE A level reforms. They show that when reforms aim to create unified frameworks the task of building understanding and support is both difficult and important. In working up the detailed features of our reform proposals, we should expect changes, but hold firm to the principles.

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301. To introduce our reforms successfully, we believe the following approach to implementation would be necessary:

maintaining the momentum towards full implementation, because we cannot wait ten years before experiencing at least some of the benefits of reform. This includes carrying out extensive research, modelling and testing of the operation and manageability of our proposals with deliverers and users;

ensuring the stability of the existing system of qualifications and that any short-term changes feed into the long-term proposals for change. It is important that, in the interim, young people continue to experience good quality provision; and

good clear communication with the key stakeholders to ensure that they both understand the reforms and are involved in the process of winning hearts and minds.

Momentum

302. In the ten years between now and full roll-out of the diploma system considerable gains could be made for many 14-19 year olds by integrating into current qualifications, programmes and structures changes that take us closer to reform. Many teachers, employers and HEIs are impatient for change. They want to see improvements in participation and attainment in the short to medium term that clearly feed into long-term changes. To minimise disruption to the existing system, interim changes would need to be carefully integrated. Further advice would be needed on the detailed timing and sequencing of the reform to systems and programmes.

303. Reductions in the burden of assessment in qualifications could be introduced early. This involves changes to their structure, content and assessment. QCA believes that redeveloped GCEs and GCSEs can be with institutions in 2007 and 2008 respectively.

304. Employers and HEIs are clamouring for a significant rise in the number of young people with a good command of functional mathematics, functional literacy and communication and functional ICT skills. Components in these subjects should be available as stand-alone qualifications by 2008 for use both by the wider cohort and for pilot centres.

305. Development of enhanced vocational programmes and options should begin immediately, including:

establishing of the framework of specialised diploma lines, in consultation with relevant stakeholders;

developing design criteria to ensure progression, integration between the diplomas and apprenticeship frameworks and bridging courses between the two;

design of diploma content, including modification to existing qualifications; and the development of common components that would support horizontal transfer;

design of vocational options drawn from these lines for inclusion within open diplomas.

306. Much of this work could form part of the existing Sector Skills Strategy for improving vocational provision, and should be ready by 2010.

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307. HEIs want to be able to discriminate better between candidates presenting A grades. A profile of grades and scores for each unit assessed can already be provided and should be made available systematically as a fore-runner to the transcript. The introduction of the extended project would also aid differentiation, and criteria and guidance to support its use should be introduced early, by 2008. In the longer-term, changes to the demand of A levels would inject greater challenge into all advanced programmes. This alongside an extended grading scale would need to be trialled ahead of implementation.

Research and piloting

308. Piloting the whole diploma system is important. Without an assessment of the full impact of the package of reform on learners, institutions and their staff, we are in danger of adding to workloads and burden. The system should be tested through:

pilots of individual elements of the diplomas framework, such as the core components; and 14-19 curriculum innovation projects such the Increased Flexibility Programme and 14-19 Pathfinders, which should be extended to allow the evaluation of some of the key features of diploma type programmes;

extensive research and evaluation into the assessment regime and its impact on different groups of learners, benefits to learners, teacher workload and professionalism and general institutional manageability of quality assurance; and

a four-year pilot of the full system, including evaluation against the objectives set out in this report and for the purposes of identifying any unintended consequences.

309. The strands of work that must be completed before the system can be piloted 24 include:

workforce training and development and assessment of the impact on managing workload;

infrastructure changes – including governance, funding, performance management and information, advice and guidance arrangements as detailed in chapter 15; and

the development of data management systems.

310. We believe the implementation must be supported by research and modelling of the reforms, to provide a secure basis for their final introduction. This would ensure that further developments and detailed features of the system are carefully underpinned through working with those who have to operate the system - teachers, lecturers, tutors and training providers. This is particularly true of the proposed assessment regime and quality assurance arrangements. This modelling work would need to be built into the implementation programme at all stages.

311. During implementation, it would be important to ensure that reforms remain true to the principles we have set out and that any deviation from them has a sound basis. An independent group should be set up to monitor this and to provide a consistent overview as Ministers and potentially Governments, as well as key personnel in partner organisations, change. Arrangements would also need to be put in place to consider

24 COI Communications, A summary of research findings in implementation planning. A report prepared for 14-19 Working Group on Reform (July 2004).

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how the reforms impact on different groups of learners.

Communication

312. Clear and consistent communication and an open dialogue with those ultimately responsible for delivering the diploma system during the implementation phase would be important. Full consultation with all stakeholders would be vital during implementation. This should include young people themselves. Transition to the new framework should not present any surprises to key partners. The information and examples gleaned from pilot activity and curriculum innovation projects should be shared nationally.

313. At a strategic level, the impact of the proposal for other policy areas should not detract from the need to make change and for a sensible timetable for their implementation. Government commitment to the proposal would need to go across departments and functions.

Recommendation 33

The strategy for implementing reform should include:

early implementation of some changes that would deliver benefits in their own right and pave the way for implementation of the new system;

continuation and support of curriculum innovation projects to encourage them to accommodate and pilot elements of the new system;

establishment of a four-year pilot of the diploma system with a sample of 14-19 year olds. Evaluation of the pilot prior to full roll-out should consider whether it meets the objectives we have set and whether it has any adverse impacts on specific group of learners; and

extensive research and modelling of the proposals and their impact on institutions and systems.

A strategy for communication between those involved in delivery, and with stakeholders, young people and the public should be established in the early stages of the work and maintained throughout.

Costs

314. We believe that our reforms would offer value for money, not least from the increased economic activity that should result from better trained and educated young people, and the benefits to young people themselves. Based on information and data provided by DfES, LSC and QCA, we believe the additional costs should not be substantial compared to the overall costs of operating the education and training system as a whole. A significant amount could be achieved by refocusing and reallocating existing resources in support of the reforms.

315. It is self evident that the implementation process and the reforms themselves would need to be adequately resourced and that the method of implementation would impact on the cost. While more detailed work to cost reform must follow, what is clear is

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that the biggest costs would derive from the increased participation we expect to result from our reforms, though this would carry significant economic, social and educational benefits and therefore represent good value for money.

316. We welcome the Secretary of State’s recent announcement that money would be set aside to begin to develop our proposals over the next three years.

Cost categories

317. The costs of reform fall into four main categories. These include:

maintenance of the existing system;

transition to the new system (includes development and pilot);

impact of new system e.g. participation;

operation of the new system.

318. Within these main categories, there are five principal features of the system against which costs arise. They feature as costs for both transition and ongoing operation and include:

Curriculum and assessment development work. This would form part of early work, but will need continuous updating.

Workforce training/recruitment would require considerable input in the earliest stages, but as practice becomes embedded in initial rather than continuing teacher education, costs would reduce. Nevertheless this will still potentially cost more than in the current system.It should include including workforce development to ensure that those responsible for giving information, advice and guidance (whether personal advisers, teachers/lecturers or support staff) are properly trained to undertake this role.

Infrastructure. This includes at a national level: establishing and operating a national database and also funding, regulation and quality assurance of other structures. At a local level it includes local planning for collaboration, timetabling, and support for wider activities and guidance which present additional costs.

Higher participation as a result of the new system. Increased post-16 participation is already a key objective of Government policy. Our proposals are part of an overall strategy for securing it.

Additional costs per learner under the new system, arising particularly from the increased proportion of vocational provision which is typically more expensive to run than other courses, and the increased average volume of 14-19 programmes in institutions where current programmes fall below the volume required for a diploma.

.

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Recommendation 34

We recommend that funding of the reforms should take account of:

Transition costs, including:

o workforce development;

o curriculum and assessment development;

o developing and piloting the diploma components and system in operation, including the infrastructure to support the system;

o building the national and local infrastructure - including ICT-based information systems, and awarding infrastructure support for extended projects, wider activities and common skills, local planning and increased collaboration; and

o communication.

Steady state costs, including:

o the impact of increased participation, greater take-up of vocational courses and their additional cost and higher average programme volume;

o funding per pupil;

o local infrastructure, to support the assessment system, local timetabling, increased collaboration and improved, information advice and guidance with better advice on pathways and opportunities; and

o maintenance of national infrastructure, including ICT and data management to support the diploma system.

Overseeing implementation

319. While it is clearly right that the Government should lead and be accountable for strategic reform on the scale which we propose, effective delivery would require a coalition across the very wide range of those who have a stake in the delivery and outcomes of 14-19 learning. Managing this would be a complex task. It would require a strong strategic focus and continuing dialogue with those involved in making it happen, including those in the many areas of the country where significant progress has already been made towards improving 14-19 learning. In the early stages, it would be important to work with teachers, lecturers, trainers and those running education and training institutions to model the impact of the reforms and to explore different approaches to their implementation. This would provide useful information on which further

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refinements of the system can be made. It would be important to involve inspection and funding agencies fully to ensure that systems align to support the principles of reform, as well as the detail. There would be an important role for development and support for curriculum and assessment bodies in testing methodologies and approaches and preparing guidance and support.

Recommendation 35

Alongside the implementation programme, management arrangements would be needed to ensure that all the strands of activity are co-ordinated and contribute effectively to the implementation process. We recommend the establishment of an independent advisory panel comprising key stakeholders and experts (including young people and representation of equal opportunities issues) to advise upon the implementation of the reforms.

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SECTION 5: ANNEXES

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Annex A: Glossary

Term Meaning

Academic Focusing on the acquisition of facts, information and abstract theoretical, rather than practical, knowledge.

Advanced Extension Awards (AEA)

An examination available in 17 areas for advanced level candidates who are particularly gifted and expected to attain a grade A. The AEA is grade as merit or distinction.

Assessment for learning

Assessment/judgements used to support teaching and learning, monitor learners’ progress and illuminate their strengths and weaknesses. Also formative assessment/judgement.

Common Knowledge, Skills and Attributes (CKSA)

The knowledge, skills and attributes that all young people need for learning, employment and adult life. For example, personal awareness, problem-solving, moral and ethical awareness. CKSA forms part of the core.

Complementary learning

Learning related to the focus of a learner’s main learning, such as Latin for a learner with a modern foreign languages focus. It may contribute towards achievement of the threshold or be additional to it.

Component The building blocks for the proposed diploma system. A discrete subject or area of learning with its own assessment arrangements, achievement in which gives credit towards the award of a diploma. Components will build on existing qualifications, such as GCSEs and A levels, GNVQs and other existing qualifications.

Contrasting learning Learning not directly related to the focus of a learner’s main learning, such as chemistry for a learner with a humanities focus. It may contribute towards achievement of the threshold or be additional to it.

Core (learning) Skills, knowledge and experiences common to and required for the achievement of all diplomas: functional literacy and communication, functional mathematics, functional ICT, extended project, CKSA, personal review, planning and guidance, and an entitlement to wider activities.

Credit Value ascribed to a component based on a measure of notional learning time. Nothing smaller than a component can provide credit towards a diploma.

Decoupling Separation of AS and A2 within GCE A level into free-standing qualifications.

Diploma Proposed qualification recognising achievement in a programme that meets threshold requirements for core and main learning.

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End-user Ultimate beneficiaries of the 14-19 education and training system, especially HE and employers.

Extended (core) component

Component which satisfies the core requirements in functional literacy and communication, functional mathematics or functional ICT, but which also includes broader or more theoretical and conceptual aspects of the relevant subject (i.e. English, mathematics or ICT).

Extended project A significant autonomous piece of work completed by each learner as part of their core learning. Completing the extended project would require learners to develop and demonstrate a range of skills, like planning, research and problem-solving. The final outcome would be dependent on the nature of the project selected by the learner. It might be a written report, but could also be a piece of artwork, a construction or a performance.

(Formal) external examinations

Examinations set or defined and marked and/or moderated by awarding bodies.

FE Further education.

Formative assessment/judgement

See assessment for learning.

Functional ICT The ICT skills young people need to function as informed citizens and effective learners and in the workplace. A component of the core.

Functional literacy and communication

The literacy and communication skills young people need to function as informed citizens and effective learners and in the workplace. A component of the core.

Functional mathematics

The mathematical skills young people need to function as informed citizens and effective learners and in the workplace. A component of the core.

GCE General Certificate of Education or A levels – an advanced level general qualification.

GCSE General Certificate of Secondary Education.

GNVQ General National Vocational Qualifications – intermediate and foundation level qualifications covering broad vocational sectors, such as health and social care. In the process of being withdrawn.

HE Higher education.

ICT Information and communication technology.

In-course assessment Work set and marked by teachers over the duration of the course that contributes to the award of a grade in a subject or

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area of learning. Also professional judgement.

Level Demand or difficulty of a qualification, programme or component. See table of equivalences below.

Lines (of learning) Group together related subjects or areas of learning. Programmes and diplomas will be based on one of about 20 lines.

Main learning Learning chosen by the learner which constitutes the bulk of each diploma. It should ensure achievement and progression within individual subjects and areas of learning.

Moderation A process of checking a sample of assessed work for the consistency of marking and to arrive at a grade for work. Moderation is carried out by examiners other than those involved in the original marking.

Notional learning time An approximate measure of the total amount of time required to complete a component or programme, which includes taught time and unsupervised learning.

Occupational Learning geared to a particular occupation or career path.

Open (diploma or programme)

Offers learners relatively unregulated freedom to mix components, though they must still successfully complete the core to achieve a diploma.

Pathway A progression route through the diploma framework.

Personal review, planning and guidance

Support for the young person to understand themselves as a learner and how the different parts of their programme relate to one another; and to identify their learning and career goals and how to achieve them.

Professional judgement

See in-course assessment.

Programme Overarching term for a combination of components followed by a learner or group of learners. Programmes may differ in content, volume, level and length, but share the characteristic of bringing components together into a whole. Achievement in a programme should be recognised by the award of a diploma, providing that threshold requirements are met. A programme may be bigger than a diploma and additional achievement beyond the required threshold should be recorded on a transcript.

Specification Approved document detailing the content of the subject or area of learning that must be learned, understood and demonstrated in order to achieve a qualification.

Summative assessment/judgement

Assessment used to measure performance, usually at the end of a unit, component or programme.

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Teacher Usually used generically to denote those who deliver programmes to learners – includes lecturers and trainers, as well as those delivering in a school setting.

Teacher(-led) assessment

See in-course assessment.

Threshold The minimum level and volume of achievement in core and main learning required for the award of a diploma.

Transcript Document providing details of the components that constitute a learner’s programme and achievement in them. This includes non-assessed activities like CKSA and wider activities, and achievement beyond the threshold required for award of a diploma.

Transition component Component which enables young people who have already passed functional literacy and communication, functional mathematics or functional ICT to upgrade their achievement to provide the equivalent of an extended component.

Unit Block of teaching and learning within a component. Units may be separately assessed, but do not on their own provide credit towards a diploma.

Unitary Awarding Bodies

Organisations that develop, assess and certificate achievement in GCSE, GCE and VCE.

VCE Vocational Certificate of Education or vocational A levels. In September 2005, the qualification will be relaunched and will have the same AS and A2 structure as GCE A levels.

Vocational Learning which develops the knowledge skills and attributes directly relevant to the workplace in general or a job in particular. It is usually practical or applied, rather than abstract or theoretical.

Volume Amount of learning, often represented as credits.

Wider activities Activities which take place outside the formal classroom or other learning environment, including community work, sports and arts, part-time work or work experience, and personal awards, such as Duke of Edinburgh.

Work-based learning Learning which takes place predominantly on-the-job, rather than in structured learning settings.

Young people 14-19 year-olds.

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Level equivalences

Diploma level National Qualifications Framework level

Existing national qualifications

Advanced Level 3 Advanced Extension Award; GCE AS and A level; level 3

NVQ; equivalent qualifications

Intermediate Level 2 GCSE at grades A*-C; intermediate GNVQ; level 2

NVQ; equivalent qualifications

Foundation Level 1 GCSE at Grades D-G; foundation GNVQ; level 1

NVQ; equivalent qualifications

Entry Entry Entry level Certificates; other work below level 1

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Annex B: Consultation

3. The results of the consultation process provided valuable feedback on the proposals outlined in the Interim Report and helped considerably in shaping and developing the recommendations and policy in the Final Report. We are extremely grateful to all of those who responded.

4. A variety of consultation methods was used to give as many stakeholders and interested parties as possible the opportunity to comment on the proposal. Consultation activities included:

Formal written consultation

5. There were 338 responses to the written consultation. The responses covered various sectors which included multi-national corporations, trade unions, teaching associations, LEAs, work-based training providers, universities, schools and FE colleges, Sector Skills Councils, charitable organisations, professional and awarding bodies, parents and young people.

6. Respondents to the written consultation were asked to comment particularly on issues outlined in chapter 9 of the Interim Report which included:

the content of the core;

parameters and guidelines for the content and organisation of diploma programmes;

component design parameters;

the volume of teaching, learning and assessment;

development of the entry level diploma; design specification for foundation, intermediate and advanced diplomas;

variable pace and progression through the diploma framework;

assessment;

transcripts; and

implementation and implications for the wider education and training system.

7. Mike Tomlinson and Ian Ferguson wrote to the FTSE 100 Chief Executives to seek a business perspective.

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Stakeholder conferences

8. Working Group and sub-group members headed a number of consultation events which were aimed at key stakeholders from higher education, business and the special educational needs sector. These were held to gauge whether the proposals met the needs of their particular sector and to secure constructive feedback on a range of issues which include:

personalised learning;

grading of the diploma;

greater integration of vocational qualifications, especially apprenticeships into the new system;

careers and education guidance;

open and specialised diplomas;

collaboration between schools and FE colleges; and

training needs for practitioners.

9. In recognition of the fact that teachers and lecturers would be the main deliverers of the new system and young people the beneficiaries, six regional events were held primarily aimed at seeking their views and those of the Connexions service.

Meetings and discussions with key partner organisations

10. We established an Associate Network of stakeholders to discuss and evaluate the priorities and key proposals as they emerged. Meetings were also held with a wide range of stakeholder organisations.

Focus group-based discussions with young people

11. The Young People’s sub-group arranged (through the National Youth Agency) a number of focus groups to seek the views of young people on the Interim Report and to address any issues or concerns raised by them. We appreciate the value and importance of engaging young people in the consultation process and the results from the focus groups and regional events influenced the final report.

12. Comments that young people made included the desire to have more practical everyday life skills taught, which included communication and ICT (both core components). There was support for the extended project and demands for better careers and education guidance (CEG). Young people appreciated the opportunity to study a range of subjects within main learning, citing this as the one of the best elements of the current system. There was strong support from young people for giving recognition within the diploma framework to their wider activities.

Active stakeholder involvement in the Group’s work through a range of policy sub-groups

13. The Working Group created a number of sub-groups to ensure stakeholders had a direct influence on the Final Report. These included: employers; higher education; young people; and special educational needs and equal opportunities. In recognition of

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the implementation difficulties surrounding wider activities and apprenticeships within the new system, sub-groups were established in these two areas.

Overview of response

14. The majority of respondents broadly welcomed the proposals in the Interim Report to reform the current 14-19 education system and implement a more unified and coherent programme of learning. Respondents recognised the need for change and were generally supportive of the proposed diploma framework.

15. The four levels of the diploma and the interlocking design of the diploma were welcomed as they would encourage learners to progress, stretch the most able and reward achievement. There was also strong support for the credit based system which would provide greater flexibility than the current system. The drive to raise the profile and status of vocational subjects was especially welcomed along with the expectation that, apprenticeships would be integrated with the new system.

16. There was significant concern regarding the proposal to have ‘open’ and ‘specialised’ diplomas with many respondents believing that this would reinforce the academic and vocational divide. These concerns are addressed in chapter 2 of the report.

17. The inclusion of mathematical skills, communication skills and ICT as a choice of subjects within the core was well received, with respondents noting that the level of demand would increase as learners would have to achieve a minimum level in these components if the diploma was to be awarded. There was strong support for the extended project as it would develop skills that higher education in particular sought and avoid the repetition of coursework. Respondents noted that this element of the core would have to be effectively moderated to ensure that the wide variety of projects undertaken were comparable and it did not become too resource-intensive for teachers to manage, supervise and assess.

18. Delegates who attended the regional consultation events approved of the inclusion of wider activities within the core, acknowledging that it would motivate and engage learners in education whose strengths did not lie in academic subjects. However, concerns were raised, particularly in stakeholder meetings and in written consultation responses, that it would be inequitable to make wider activities compulsory as certain learners for socio-economic reasons would not be able to participate in a wider activity. This issue of equity was consistently raised by representatives in the special educational needs sector. These concerns are reflected in our proposals that wider activities should be an entitlement but not a requirement for award of the diploma.

19. A recurring issue that was raised by respondents was the need for personal review, planning and guidance so young people clearly understood the new system and the various pathways available to them, and could make well-informed choices about their future. Respondents cited that improving CEG so it was impartial was essential to making a reality of the learner being at the centre of the new system. Respondents voiced reservations on the possible lack of impartiality of teachers who could offer advice and present options that best met the needs of the institution, arguing that the Connexions service would be best placed to provide this service.

20. The majority of respondents were supportive of the proposals to reduce the burden of assessment as it would free up time for learners to study subjects in greater depth. The greater use of in-course assessment was welcomed though concerns were raised that it needed to be carefully managed so it did not have an adverse impact on

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teaching time. There was support for the development and implementation of e-assessment though there was recognition that this would be more applicable to some subjects than others. Ensuring all learners had access and understood the new technology would be paramount to avoid certain learners being disadvantaged.

21. The transcript was well received as a universally recognised record of achievement which would be beneficial to employers and higher education, though some respondents noted that it should not become too burdensome on teachers. From the written consultation, views were mixed on whether individual components or the overall diploma should be graded. At the consultation events, the general consensus was for the diploma to be graded overall with a differentiation of pass, merit and distinction to give the diploma added value as a standalone qualification over and above the component parts.

22. Practitioners were encouraged that the proposals sought greater collaboration between institutions, but raised a number of practical issues that would need to be addressed. Increasing collaboration between schools and colleges was viewed as incompatible with the retention of performance tables. In addition, concern was raised over the feasibility of retaining the current funding arrangements where allocations are made on a per learner basis to one institution. The perception that learners are ‘owned’ by an individual institution would need to be broken down and the differences in teachers’ and lecturers’ pay would also have to be resolved. There would also need to be a certain degree of co-ordination between school/college timetables and syllabuses which would require a significant degree of forward planning.

23. Employers were often extremely supportive of the diploma framework as a whole, believing that a whole-scale reform of the current 14-19 education system is necessary, with the proposed new system increasing the employability of a future workforce. There was support for the core, though the curriculum content of these components would need to be defined more clearly if widespread acceptance by employers was to be achieved. Employers were keen to promote better work-based learning within main learning which would help to raise the status of vocational courses. There was also widespread support for the integration of apprenticeships into the diploma framework over time. There was some concern to ensure that the wider reform of the qualifications framework did not detract from a focus on getting the basics of numeracy and literacy right.

24. Representatives from the higher education sector focused their comments mainly on the design and content of the advanced diploma and were broadly supportive of a single coherent phase of learning for 14-19 year olds. A significant majority emphasised the importance of getting the balance right between the core and main learning to ensure that learners would have sufficient depth of knowledge in their main learning components and as a result better prepared for entry to HE. The interlocking diploma design and the transcript were well received. Respondents suggested that the transcript should contain full details of a learner’s programmes and achievements and more specifically the individual component scores in percentile format which would assist HEIs in differentiating between learners. There was strong support for the extended project as it would avoid the repetition of coursework and develop skills that the current system has failed to do. Representatives from HE wanted reassurance that the most able learners who wished to progress into HE would be sufficiently stretched so their full potential was met. It was noted that if this was not the case then schools or FE colleges would examine the use of alternative qualifications which could potentially damage the esteem of the diploma framework. Complementary learning was welcomed to support breath of learning so learners would acquire a continuum of knowledge and skills related to chosen subjects within main learning.

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Annex C: Core components

Content Delivery Assessment and recording of achievement

FunctionalMathematics

To be determined by QCA, actively seeking advice and views from experts and end-users.Must: meet the needs of end-users – particularly through the

development of mathematical skills and the use of ICT; prepare young people for adult life – this should include

financial literacy alongside the application of mathematics in a variety of other real world contexts;

encourage the wider study of mathematics as a subject in main learning – by providing foundations in a range of mathematical concepts and techniques; and

encourage progression to level 3.This means developing a range of pathways, as set out in Adrian Smith’s report, which offer learners a choice of: a free-standing core for those not studying a wider

general maths programme;  whole maths components, as proposed by Smith –

which must guarantee reliable teaching and assessment of the core, to ensure a sound grasp of the core and avoid the need for separate delivery/assessment;

core-to-general maths transition components; and specialised maths extensions.

Determined by the institution based on the options and opportunities provided by the way the curriculum is designed. We expect that curriculum designers would ensure flexibility for institutions by developing units for functional mathematics that can be delivered separately or embedded in main learning mathematics.

External. Could take the form of separate when-ready assessment, though different arrangements may be more appropriate where the core is embedded in main learning.Pass demands in functional mathematics should be high, requiring each young person to have a good command of the range of knowledge and skills covered.

Functional literacy and communication

To be determined by QCA, actively seeking advice and views from experts and end users.Must: meet the needs of end users particularly, in terms of

written and oral communication; prepare young people for adult life – including critical

Determined by the institution.

Balance between in-course (speaking and listening) and external (reading and writing). Could take the form of when ready assessment. Different arrangements may

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reading of print and digital texts and critical analysis of oral communication; and

encourage appreciation of language in use, so that learners can be effective communicators in a range of contexts.

The core should include: speaking and listening, reading and writing; focus on the skills needed to function effectively in

society and employment; understanding of how language varies according to

purpose, context and medium; and literacy skills, including reading for meaning and effect,

accuracy in writing, fluency and cogency in speaking, and perceptive listening.

be necessary where embedded. Pass set at a high threshold, requiring good command of arrange of knowledge and skills.

Functional ICT To be determined by QCA, actively seeking the advice of experts and end users.

The ICT core must: meet the needs of end users; support effective personal use of ICT to support further

learning, employability and life skills, including e-learning and managing transactions;

ensure personal security and safe use of technology; consider the ethical, social and economic impact of ICT

on society; and encourage further optional study of specialist ICT in main

learning needed by ICT sector.

The ICT core should ensure that all learners: Find informationAre able to identify information needs, locate and access appropriate resources - info seeking strategies.Understand classification structures and use search

Determined by the institution.

Externally assessed. Opportunity to be taken when ready. Alternative arrangements where embedded in main learning.

The pass set at a high threshold requiring coverage of key areas.

Self assessment might be feasible long term.

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techniques efficiently.Make judgements about appropriateness and efficacy of information, understanding validation and verification techniques.Understand issues of copyright, plagiarism and the implications of how data is collected and used in society. Use informationDevelop ideas by reorganising, editing and combining information. Analyse, interpret and derive new information.Use/create ICT models to explore alternatives Communicate informationCommunicate effectively using ICT with an awareness of audience and common forms and conventions, including print and screen based communications and presenting to a range of audiences.

Note: QCA and experts groups shouldl also consider whether young people will have developed sufficient knowledge and skill in ICT by the end of KS3. If this is generally the case, then ICT as a core component at 14-19 may only be provided to bring learners who have not reached it to intermediate level.

Extended project

Chosen by the learner, supported by a tutor.The tutor would require an awareness of: institutional and other constraints – this would enable

them to come to a view about whether or not the learner’s proposal is feasible; and

whether a particular proposal is relevant and will add value to the learners’ programme, by adding an appropriate contrast or complement to their main learning

Guidance should be issued to help learners and tutors.

Determined by institutions, but we expect that: in many cases,

completion of the extended project would be supported by an appropriate underpinning course, in theories of knowledge,

Assessment of the extended project should support its role in helping learners to develop and demonstrate a range of investigative and critical/analytical skills. Project supervisors conduct assessments, which are

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for example. Achievement in such a course would provide credit towards award of the diploma

Institutions would provide group and individual tutorial support for learners, which would enable them to plan and complete the work effectively.

The cross-programme nature of the extended project would require institutions to think carefully and innovatively about how individual extended projects are supervised. Some examples of how institutions are currently managing extended project type activities are included in annex M.

validated externally.

CKSA QCA would develop guidance and exemplars to assist designers in building CKSA (described in chapter 3) into their curricula and assessment. This should be based on the best features of existing qualifications like the wider Key Skills, citizenship and critical thinking.

CKSA would be embedded in core and main learning. QCA should develop guidance and exemplars to help institutions and teachers develop common knowledge, skills and

CKSA would not be assessed, but they would be built into teaching of 14-19 programmes in such a way that learners cannot achieve their diploma without developing them.

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attributes across learners programmes. Personal review, planning and guidance would provide the opportunity for learners to reflect on their learning and the common skills they have developed, including through wider activities and the extended project.

CKSA would be attested and recorded on the transcript. This could take the form of a short statement by the tutor highlighting the key common knowledge, skills and attributes developed by the learner across the diploma programme.

Personal review, planning and guidance

There would be no specified content as personal review, planning and guidance is about offering personalised support to learners. However, guidance could usefully be drawn up to elaborate the role of personal review, planning and guidance and should offer case studies and exemplifications demonstrating good practice.

There would be a variety of delivery models at institutional level. This should be supported by central provision of: workforce development

to ensure that tutors (whether personal advisors, teachers/lecturers or support staff) are properly equipped to undertake the role;

guidance on the outcomes and successful delivery of personal review, planning and guidance, including case studies and exemplifications; and

impartial information

A box on the transcript would confirm learners’ participation in personal review, planning and guidance.Institutions could define criteria for the successful completion of this component appropriate to their delivery model – participation in a certain number of tutorials, for example – to be reviewed as part of the inspection/validation process.All young people should maintain an individual learning plan, to be presented alongside the transcript on request.

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about 14-19 pathways and destinations – including labour market information.

The infrastructure needed to support effective guidance is further considered in chapter 15.

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Annex D: Programme and diploma design parameters

Components

1. Programmes and diplomas would consist of components, which:

must have integrity in themselves – to allow flexibility, we have not specified a minimum size for components, but their volume and content must be sufficient to provide learners with a grounding in the subject or area learning, as existing qualifications do;

must be transferable where they are relevant to different programmes – the ascription of credit to components will facilitate transferability; and

could be broken down into units, which may be treated as distinct for teaching and learning, but not necessarily assessment purposes. Units would not, however, contribute to the award of a diploma in their own right.

Design principles

2. There are a number of principles that apply to the design of all 14-19 programmes and diplomas. These should ensure that:

content is appropriate to the level of the diploma, sufficient to meet threshold requirements and provides learners with a good grounding in each component and the programme as a whole;

the content of main learning is manageable in volume for the learner and the institution when it is placed alongside the core requirements;

where practicable, gradient is built into programmes and components so that learners can access and experience success in less demanding material, before progressing to more demanding material. However, this may not be appropriate for all components;

core requirements are fulfilled, and in particular:

o learners are able to undertake an extended project chosen to reflect their interests and aspirations. It is likely that the extended project would relate to their main learning, especially where the learner is working towards a specialised diploma, but this would not be a requirement;

o common knowledge, skills and attributes are integrated effectively and appropriately into the programme and assessment arrangements; and

o all learners have access to high quality advice and guidance.

Design principles for specialised diplomas

3. The design processes for specialised diplomas should be driven by the clear objective of ensuring that every diploma is fit for purpose as a basis for progression into the relevant academic or vocational sector. Stakeholders must, therefore, be involved in

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the design process. The range of stakeholders involved in each of the broad diploma lines might vary according to the nature of the specialisation. Generally, we would expect the design of specialised diploma content to take particular account of the views of:

employers, including relevant Sector Skills Councils, who should have a prominent voice in relation to sector-specialist diploma lines;

HE providers;

professional and statutory bodies; and

schools, colleges, training providers and employers who will be delivering the diplomas.

4. Design principles for specialised diplomas should ensure that, in addition to the general requirements outlined above:

specialist content within individual diplomas is appropriate to the area of specialisation;

content provides clear signalling to end-users and sign-posting for learners about the knowledge, skills and experiences covered;

where different lines share specialised content, components covering this content should have a common design wherever possible and should be portable between diplomas to support flexible progression routes;

assessment styles are appropriate to the type of learning undertaken;

whatever option is chosen, progression is available to advanced level within the diploma framework, and then into HE programmes related to the specialist area; and

different types of learning are delivered and assessed in the most appropriate settings. For instance, theoretical knowledge and skills would normally be delivered in educational environments, whilst many experimental and vocational skills need to be developed and tested in a practical environment

5. In addition, specialised diplomas in vocational areas should:

offer clearly defined routes into related work-based training and employment, as well as HE;

be informed by relevant National Occupational Standards;

include a substantial period of properly structured and accredited work placement, and progression routes to relevant modern apprenticeship frameworks should be clearly established to enable a path to full occupational competence for young people entering the labour market; and

through carefully managed local flexibility, provide opportunities for tailoring diplomas to local labour markets or other factors.

Main learning within specialised diplomas

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6. 14-19 programmes would include components (or units within them) of 3 types and would be consistent with the models being developed for the adult credit framework. The three component types being proposed are underpinning learning; focused learning and localised learning:

Underpinning learning is the knowledge and skills that provide a general overview of subjects and/or areas of learning within a particular line. It should have integrity in its own right (i.e. stand alone without the need for additional focused or localised options) and, therefore, may provide opportunities for transfer between different diploma lines. Underpinning learning is likely to form all or a substantial part of most 14-19 programmes, to provide a foundation for greater specialisation subsequently;

Focused learning is the knowledge and skills that provide a particular focus within a line; and

Localised learning is the knowledge and skills required by a particular employer, university or region, and is what gives the diploma the flexibility to meet not only these particular needs but the capacity to respond new developments at a sub-national level.

7. Some units or components of each type of learning may be compulsory, but it is expected that additional units and components would be selected by learners from a menu of options. Learners should also be able to select complementary or contrasting learning options. Those responsible for designing each line should determine whether such learning can be accommodated within the diploma threshold or is additional to it.

[Level] diploma in [name of line]e.g. Advanced Diploma in

Engineering and ManufacturingTechnologies.

Complementary or contrasting learning (optional)

Underpinning learning

Core

[Level] diploma in [name of line(branch name)]

e.g. Advanced Diploma inEngineering and Manufacturing

Technologies (MechanicalEngineering)

[Level] diploma in [name of line(localised name)]

e.g. Advanced Diploma inEngineering and Manufacturing

Technologies (NauticalEngineering)

Branches(focused learning)

Knowledge and skills that provide aparticular focus within a line

Localised learningKnowledge and skills required by a

particular employer or region – givesthe diploma the flexibility to meet

specific employer or regional needse.g. tailored to the needs of the local

ship-building industry

General line(underpinning learning)

Knowledge and skills that provide ageneral overview of subjects and/or

Areas of learning within a particular line

8. The diagram shows the three types of learning and how they might be combined with the core and complementary or contrasting learning in diplomas of varying degrees of specialisation. The core and underpinning learning shared

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between these three diploma programmes and the portability of other relevant components in them will enable learners to move between diploma programmes if necessary, transferring relevant credit as they do so.

Exemplars: open and specialised diplomas

9. The following models have been developed to exemplify the design principles set out in this annex. The exemplars are based on existing qualifications and units, which could form the basis of components within the new system, providing they complied with the principles here and the quality assurance arrangements outlined in chapter 14.

Open diplomas

BTEC National DiplomaUnit: Producing print

media

CORE

L3: Extended project:Production of a specialedition of local paper

Common knowledge,skills and attributes

L2: Functionalmathematics

L3: Functionalcommunication

L2: ICT

Personal review,planning and guidance

Wider activitiesentitlement

A1: Latin

A2: French

Core – 30% Main learning – 70%

Advanced Diploma (Open)

A2: Applied businessBTEC National DiplomaUnit: Publishing media

products

BTEC National DiplomaUnit: Page layout

and design

A1: Applied business A1: Media studiesA1: French

10. The learner in this model meets the threshold for main learning by mixing A1 components in Latin, French, media studies and applied business with A2 components in French and applied business. In addition, s/he takes 3 units derived from the BTEC National Diploma in Media (Publishing), which are approved for combining into an open diploma. This additional learning could contribute to the award of a merit or distinction for the diploma.

11. Delivery of the programme is shared between a school sixth form and a college. Work experience supports the business and media elements.

12. The extended project builds on the media component and units and associated work experience in main learning. The output is a special edition of the local newspaper. Beyond the core threshold, the learner also achieves advanced level in functional literacy and communication, which could contribute to the award of a merit or distinction for the diploma.

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CORE

L2: Extended project:Town planning

Common knowledge, skills and attributes

L2: Functionalmathematics

L2: Functionalcommunication

L2: ICT

Personal review,planning and guidance

Wider activitiesentitlement

A1:Architecture

Core – 30% Main learning – 70%

Intermediate Diploma (Open)

Intermediate:Mathematics

Intermediate:Geography

Foundation:Physical education

Intermediate:Technical drawing Foundation:

History

13. This open programme has been selected by a learner with a particular interest in architecture and town planning. S/he exceeds the threshold in both volume and level terms, taking an additional (foundation) component in history and drawing down an A1 component in architecture. This could contribute to the award of a merit or distinction for the diploma.

14. The core is at the threshold level. The extended project builds on the learner’s interest in town planning and in completing it the learner undertakes a work placement with the local council.

Specialised diplomas and options

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Advanced Diploma in Social Sciences

A1: Chemistry

Core – 30% Main learning –70%

CORE

L3: Extended project:Family and kinship inBethnal Green

Common knowledge,skills and attributes

L3: Functionalmathematics

L2: Functionalcommunication

L2: ICT

Personal review,planning and guidance

Wider activitiesentitlement

A1: Social scienceresearch methods A1: Economics

A2: Sociology A2: Economics

A1: Sociology A1: Politics

A2: Politics

15. The learner in this model meets the threshold for an advanced diploma by completing A1 components in social science research methods, sociology, politics and economics, and A2 components in sociology and politics. In addition, s/he completes an A2 component in economics and a contrasting A1 component in chemistry. This could contribute to the award of a merit or distinction for the diploma.

16. The extended project relates to the learner’s sociology components and builds on the skills developed in the social science research methods component. The learner exceeds the core requirements by attaining advanced level in functional mathematics, which might contribute to the award of a merit or distinction.

17. The whole programme could be delivered within a school or college.

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CORE

L3: Extended project:Production of a painttin

Common knowledge,skills and attributes

L3: Functionalmathematics

L2: Functionalcommunication

L3: ICT

Personal review,planning and guidance

Wider activitiesentitlement

Core – 30% Main learning – 70%

Advanced Diploma in Engineering and Manufacturing Technologies (Mechanical Engineering)

Manufacturing systems andtechnology

Mathematics for technicians

Manufacturing

Communications for technicians

Business systems fortechnicians

Finishing/Secondary Processes

CNC Machining

Plate and sheet-metal patternDevelopment using CAD

Computer aided design

Engineering design

Engineering drawing

Further mathematics fortechnicians

Mechanical principles

Introduction to robot technology

Programmable controllers

Quality assurance and control

Health, safety and welfare

Science for technicians

18. This model is based on the existing BTEC National Diploma in Manufacturing Engineering (Mechanical), which comprises 18 units. In the diploma framework, these units could each become components if they adhered to component design principles, or they may be grouped together to form components. Their reformulation as components would also need to take account of:

the level of demand of different components, and particularly the extent to which there is some overlap with the equivalent diploma at intermediate level, as well as a reasonable gradient within a 2-3 year advanced programme;

how the units/components should be sequenced within the programme, bearing in mind that underpinning components need not always precede more focused ones. Indeed, motivation might be enhanced through a focus on practical application subsequently being related to the theory; and

integration into the programme of a period of work placement.

19. Main learning in this model is more focused than in the social sciences example above and is reflected in the title of the diploma awarded. Main learning does not exceed the threshold, but the core is exceeded by attainment of advanced level in functional mathematics and ICT. The extended project builds on the knowledge and skills developed in main learning.

20. The programme could be delivered in a college and workplace.

21.

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22. This programme provides a specially designed introduction within the open line to food preparation and service. The components themselves are all general, introductory components appropriate to the level of the diploma. They provide the foundation for a specialised diploma in food preparation and service at intermediate level.

23. Attainment in both main learning and the core meet, but do not exceed, the threshold for a foundation diploma. As in the other exemplars, the extended project builds on main learning. However, the learner might equally decide to do a project in an area that interests them that is not related to their main learning.

24. The programme could be delivered in a college and a workplace. Work placement or work-based learning would be integrated into the programme.

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Annex E: A system of in-course assessment

1. This annex anticipates some of the questions that may arise from our proposals for assessing main learning components taken by 14-16 year olds that are of the GCSE-type. The system proposed is one of professional judgements by teaching staff, underpinned by externally set requirements and controls.

What would teachers do?

2. The regime would allow for teachers’ formative judgements to be formalised into summative statements of achievement. As part of the normal process of teaching and learning teachers would make judgements of learners’ attainment based on work done by the learners generally in the classroom and the workshop. These judgements would be shared with learners on an ongoing basis and with others, such as parents, at specific times. The process would be essentially one of continuously updating judgements on the levels of attainment reached by learners. There is nothing new about the process. It is at the heart of good teaching and learning and is therefore already followed in schools and colleges and forms the basis of assessment in many vocational courses.

What would be the experience of young people ?

3. This process would form the basis of the judgements made about learners’ attainment in main learning for the award of the diploma. Young people would be assessed on their performance in assignments, on projects, in tests and other subject based activities that meet the requirement of the course. They would be able to improve on work submitted during the course and the teachers would make a final judgement about the young person’s performance towards the end of the course, when all elements have been completed. It would encourage and motivate young people to high levels of achievement, asking them to work at a consistently high standard throughout their programmes. At the same time, the judgement about their ability would not rest largely on their performance in a limited assessment of their skills, knowledge and understanding, on particular day. Young people who transfer from one institution to another or who are excluded from school for whatever reason or who are learning on a part time basis would have a record of their progress and achievement in the same way as other learners.

4. Other arrangements would need to be made for young people educated outside of formal institutions, such as the home-educated. This might involve, for example, the use of external tests or independent assessors.

How will the system quality be assured?

5. Teachers need to be able to exercise sound judgements, which would both enhance learning and be credible outside the institution. This should be achieved through the quality assurance process described in chapters 6 and 14.

6. At the same time as wanting robust quality assurance system, we must also ensure that moderation and validation processes minimise the demand on institutions. The detail of such processes would need to be worked through in detailed discussions with the QCA. But it might, for instance, take the form of external tests, of a variety of forms, to be taken in normal classroom time. The tests could be provided though electronic means. They could be scored by the awarding body or marked by teachers using mark schemes provided by the awarding bodies. They might be tests taken by

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every learner, providing them with both an opportunity to draw together the strands of their learning and a benchmark of their progress. The test results could be incorporated into the teacher’s final overall judgement of each learner’s attainment. 25 The tests might also enable teachers to have an on-going awareness of their interpretation of and conformity to national standards. For example, teachers’ judgements could be compared by the awarding body with the test outcomes and adjusted if they fell outside agreed tolerance limits. Support could then be targeted to institutions that need to improve assessment performance.

7. Another approach might be external moderation of a sample of work (for example, in vocational components and subjects such as Art and Design) with adjustments where teacher judgements fell outside tolerance. As with the external tests some moderation might take place during the course for new or ‘at risk’ teachers.26

8. The moderation system could be supported and augmented by networks of subject teachers where, for instance, standards-recognition forms part of on-going professional development. Awarding bodies could contribute their expertise to such networks when required. Special education needs regional partnerships could also play a role in this process, particularly for entry level diplomas.

9. The awarding structure would need to make clear where responsibility lay for the standards of awards and for the award of grades to individual learners. Awards should not be made by teachers, but by external bodies accredited by the QCA to ensure consistency of awards. Appeals against component grades would therefore be made to the external body.

10. Centres would need to be approved, and this is a particularly important feature for those offering entry and named vocational diplomas. They would need to demonstrate their capability in developing assessments that present the appropriate challenge, training assessors, making consistent judgements, and applying a robust internal quality assurance system effectively.

11. National standards would need to be monitored and maintained, We envisage a system that involves national sampling, where a regular cycle of collecting and comparing samples of learner work and judgements made by teachers operated.

A fit for purpose assessment regime

25 Tests could also be used on a sample of students as a means of monitoring the judgements made by teachers. Throughout the programme it would be possible for all students to have some exposure to external testing and thus experience the benefits of this external benchmark.

26 The moderation system must be such as to make the minimum demands on school/college time while being sufficiently robust as to command public confidence. The external testing and moderation system would enable resources to be better directed at problem areas and thus provide value for money.

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12. One of the main principles of the assessment regime for the diploma, is that it should be fit for purpose. The system of teacher judgement operating in a context of external controls would be fit for purpose on a number of counts, it would:

provide for assessment at the point of learning in line with the diploma’s emphasis on the importance of the learning process;

enable young people to monitor their progress and strive for the highest levels of attainment, avoiding external and inhibiting labels of ‘foundation level’ for example;

support teachers in their role as mentors and advisers, providing them with training in the interpretation of nationally determined assessment criteria and the recognition of standards through the use of externally produced exemplar materials and tests;

provide a robust system of externally produced tests which would both be part of the professional judgement of attainment and a means of monitoring teachers’ interpretation of standards;

build on what is best in both current ‘general’ and ‘vocational’ programmes. A common approach across all programmes of study, with an increased emphasis on locating teachers and trainers within a community of experts in their subject or area, would do much to enhance the status of learning experiences in different contexts;

make good use of the emerging e-technology which would be in full (and as yet unimagined) use by 2014;

provide for a coherent system of inspection which would inform the external moderation process;

simplify the system for learners, teachers and providers of assessment while providing robust information about attainment; and

recognise the responsibility of awarding bodies for standards and the verification of grades, with appeals against grading continuing to be directed to the awarding bodies.

13. It is important to remember that the new system of assessment would come into being some years hence in a context very different from the current assessment regimes. The following assumptions are made:

Assessment would be established as an essential tool for the teaching/learning process. Assessment skills would be incorporated into initial teacher training and be a requirement of continuing professional development. An Institute of Assessment27 would exist and all schools and colleges would have on their staff individuals with assessment expertise. These individuals would form part of the network within and outside schools and colleges, which would underpin the assessment system. They could also be the group from which external examiners and moderators would be drawn and appointed by awarding

27 As all teachers become versed in assessment the Institute might have a role to play in the ongoing professional development and revalidation of teachers’ expertise.

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bodies. Their presence in a school or college would add to the confidence of awarding bodies in the judgements made in that institution, thus enabling resources to be targeted where external moderation was most needed.

The assessment system would be enhanced by the use of e-technology. Externally produced tests would be readily available for use by teachers and trainers on an individual learner or group basis. They would be incorporated into the teaching/learning programmes and could be a requirement of the verification system.

A coherent inspection system would exist across schools and colleges which would, as part of its remit, inspect the systems in schools/colleges for training and supporting teachers, data handling and storage and security. Information would need to be shared with awarding bodies in order that judgements could be made about the frequency of external monitoring and moderation as described above. The awarding bodies would remain responsible for the standards and reliability of judgements made by teachers.

A national database would form the basis of the award of the diploma (whether by a single central body or by organisations contracted to provide the service). Each school/college would have access to the system to submit learner-achievement data (where appropriate)28, check achievements to date (especially when an individual or group of learners change institution) and ensure consistency between the ongoing transcript of achievement and the data which contributes to the award of the diploma. Organisations approved to award the diploma would also have access in order to make the final award.

28 The system might demand that all formalised assessments, which are moderated, are submitted to the database by awarding bodies rather than teachers. However, this could become bureaucratic and submission by teachers as and when students are ready for the award for the diploma might be more appropriate. If the latter, robust data management systems would be needed at each institution. The pros and cons of each approach would need to be thought through.

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Annex F: A model for the entry diploma

Entry level as presently understood

1. Entry level qualifications are currently available at entry 1, entry 2 and entry 3. These levels correspond broadly to National Curriculum levels 1, 2 and 3 respectively. This means currently those learners who operate beneath this level are unrecognised in the National Qualifications Framework.

In 2000, QCA’s statistics show that post 16 there are:

15,000 learners at entry level or below in post-16 units of special schools;

15,000 learners at entry level or below in specialist FE colleges; and

139,000 learners at entry level or below in general FE colleges.

2. The number of learners operating at entry level or below with work-based training providers is unknown, but some local figures exist which suggest the figure is relatively high. Taken together these figures suggest that between 4% and 6% of the 16–19 cohort operates below foundation level.

3. Precise figures are unavailable for pre-16 learners. However, 33,628 16 year olds – or 5.4% of the cohort – achieved no GCSEs or GNVQs in 2003. We can presume that a significant proportion of these were working at entry level or below.

An inclusive model for the entry diploma

4. The entry level diploma will be designed to encourage and recognise the achievement of all learners working below foundation level, regardless of their starting point.

5. Flexibility will be achieved through the setting of personalised learning goals, negotiated between the tutor/trainer and the learner and/or their advocate. There will normally be between four and eight goals. It is these goals which will give the diploma its unique personalised shape for each learner. The goals do not have to relate discretely to either core or main learning; each goal may well cover aspects of both. It is the completion of these goals that means the diploma has been achieved.

6. The goals must:

provide relevance and a suitable challenge to the learner;

relate to the core and main learning; and

be of sufficient quantity to allow the learner in meeting them to gain 180 credits.

Core learning will be the same as for diplomas at other levels, but will be personalised to meet the needs and goals of each learner. Core learning will contribute at least 80 credits to the diploma.

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At Key Stage 4, for the ‘initial’ diploma, main learning will include the statutory requirements of the National Curriculum.29 Further learning will be based around the individuals’ needs, interests and aspirations.

7. Post-16, for the ‘supplementary’ diploma, main learning will be based on an entitlement for all candidates to have access to units in the following areas:

Preparing for employment

8. Units could include:

work experience;

health and safety;

employability skills;

vocational skills (as a context);

employment law/rights and responsibilities;

interpersonal skills.

Preparing for independent adult living

9. Units could include:

Citizenship;

household management;

budgeting/financial management;

negotiation skills.

Developing study or learning skills

10. Units could include:

29 For some students, centres already have considerable power to modify the Key Stage 4 curriculum through both current flexibilities and through use of the statutory statement on inclusion in the National Curriculum handbook, Inclusion: Providing effective learning opportunities for all pupils.

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sampling different areas of learning to plan route to foundation;

study skills;

transfer of knowledge;

informed decision making;

wider key skills;

identifying learning styles; and

self-confidence.

Preparing for supported living

Units could include:

community awareness;

leisure activities (identify and access);

programmes linked to home;

physical mobility including therapies

person-centred planning;

taster placements in adult services;

tasters in residential settings;

personal care; and

independent skills.

11. Main learning will contribute a maximum of 100 credits to the diploma.

12. It will be important to make the diploma manageable for centres developing individualised programmes for each entry level learner. We are therefore proposing that a number of ‘off-the-shelf units’ will be available from a central bank, held by one or more awarding bodies. Furthermore, as centres develop their own units, these will be added to the bank of centrally devised materials. Precedents for such a model exist, for example the Open College Network or AQA’s Unit Award Scheme.

How will the foundation and entry level diplomas interlock?

13. Fifty per cent of the main learning for the diploma can be achieved at entry level.

14. Within the central unit bank, there will be units which are specifically devised to provide progression to main learning components of the foundation diploma. Credit obtained through the achievement of these units will count towards the achievement of the foundation diploma. The existing entry level certificates could be used as a starting point for developing such components. At least 20% of these must be drawn from the units in the study/learning skills area of entitlement.

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Assessment

15. One hundred per cent of the assessment for the entry level diploma (i.e. for both the core and main learning) will be teacher assessment. Rigorous systems of internal and external moderation will ensure that the assessment is valid and reliable. Inter-centre moderation may also be adopted, along the lines of that currently operated by awarding bodies such as ASDAN.

Quality assurance

16. The majority of quality assurance for the entry level diploma will be front-loaded in that centres must meet strict criteria in order to be able to run the scheme. This approach is necessary because of the flexibility of goal-setting needed to meet the needs of such a wide cohort of learners. Models of ‘up front’ quality control already exist, for example in BTEC qualifications.

17. Criteria for approval will include:

sufficient suitably-qualified staff;

suitable equipment and teaching resources;

ability to undertake inter-centre moderation;

ability to devise tailormade units; and

ability to work with other providers and agencies.

18. In addition, the awarding body or bodies will set up procedures for the sampling of units and the awarding of diplomas upon completion.

19. Such an approach will involve considerable staff development as many centres currently will not have appropriately experienced staff. Similarly many centres will be inadequately resourced in terms of equipment and facilities.

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Annex G: The transcriptThe transcript would record:

Learner information: name; date of birth; sex; and institutional reference number.

Qualification: name of qualification; level; date awarded; name of awarding institution; name of the institution responsible for delivering the programme; professional body accreditation; and statutory regulatory body recognition/approval.

Record of learning and achievement: name of programme; unit study code; unit study title; number (and level) of any credits awarded for each unit completed; date (year) in which credit awarded; mark or grade for each unit studied; and number of attempts to complete a unit (if more than one attempt has been made).

Other types of learning within the context of a programme: study abroad; work placement; and wider activities.

Award: date of award; overall credits achieved; overall marks and grade; overall classification or performance indicator (e.g. distinction).

Authentication: date of issue; signature/seal/code; and telephone number for validating information.

Explanatory information: guidance on how to interpret the transcript; information on the grading scheme; overview of the National Qualification Awards Framework (to be agreed by national bodies); overview of the UK HE system (to be agreed by national bodies).

Links: to a web-portal containing the learner’s e-portfolio; to the learner’s institution’s website. The opportunity to create further links to enhance the learner’s transcript could be available.

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Example transcript

An interactive version of the example below can be found at the Working Group web site www.14-19reform.gov.uk

Part A: Transcript Details

Date of Issue 30/06/2017Authentication Code 2016 1254 2282 5582 A1

Part B: Personal Details

ID Number 2225 2251/2014 B1Surname NewmanFirst name JoeSex MaleDate of Birth 31/01/2000

Part C: Statement of Common Knowledge, Skills and AttributesA statement by the learner indicating what they feel they have gained from their learning programme, skills development and participation in Work Based Training and Wider Activities.

C1

Part D: Learning and Achievement

Period From: 01/09/2014 To: 30/06/2016Institution Allgood School, Newtown, D1

BuckinghamshireAward/Programme Intermediate Diploma D2

Open

Period From: 01/09/2016 To: 30/06/2017Institution Allgood College, Newtown, D3

BuckinghamshireAward/Programme Advanced Programme D4

Science and Mathematics

Part E: Work Based Training

Period From: 01/09/2017 To: 30/06/2018Location Allgood Computers, Newtown, E1

BuckinghamshireTraining Computer Hardware Engineering E2

Skills and Competencies E3

Part F: Wider Activities

Period From: 01/09/2014 To: 30/06/2018Location Allgood Community Centre, Newtown, F1

Buckinghamshire

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Activity Voluntary Centre Support Worker F2Skills and Competencies F3

Part D: Learning and Achievement

Authentication Code 2016 1254 2282 5582

Period From: 01/09/2014 To: 30/06/2016Institution Allgood School, Newtown, D1

BuckinghamshireAward/Programme Intermediate Diploma Home

Open

Core LearningSubject/Sector Functional Literacy and Communication SkillsLevel 2 Grade PassCredits 13 Awarded 30/06/2016Subject/Sector Functional MathematicsLevel 2 Grade PassCredits 13 Awarded 30/06/2016Subject/Sector Information and Communication TechnologyLevel 2 Grade PassCredits 13 Awarded 30/06/2016Extended Project Computer Controlled Robotic Arm EP2Level 2 Grade MeritCredits 20 Awarded 30/06/2016Total Credits at Level 2 59

Main LearningSubject/Sector MathematicsLevel 2 Grade ACredits 18 Awarded 30/06/2016Subject/Sector PhysicsLevel 2 Grade ACredits 18 Awarded 30/06/2016Subject/Sector ChemistryLevel 2 Grade BCredits 16 Awarded 30/06/2016Subject/Sector BiologyLevel 2 Grade BCredits 16 Awarded 30/06/2016Subject/Sector Computer Aided DesignLevel 2 Grade BCredits 16 Awarded 30/06/2016Subject/Sector French Level 1 Grade CCredits 14 Awarded 30/06/2016Subject/Sector ArtLevel 1 Grade CCredits 14 Awarded 30/06/2016Subject/Sector GermanLevel 1 Grade C

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Credits 12 Awarded 30/06/2016Total Credits at Level 2 84Total Credits at level 1 40Part D: Learning and Achievement

Authentication Code 2016 1254 2282 5582

Period From: 01/09/2016 To: 30/06/2017Institution Allgood School, Newtown, D3

BuckinghamshireAward/Programme Advanced Programme Home

Science and Mathematics

Core LearningExtended Project Computer Controlled Robot EP3level 3 Grade Not AwardedCredits 10 Awarded N/ATotal Credits at level 2 10

Main LearningSubject/Sector Computer ScienceLevel 3 Grade ACredits 18 Awarded 30/06/2016Subject/Sector ChemistryLevel 3 Grade N/ACredits 10 Awarded N/ASubject/Sector Pure MathematicsLevel 3 Grade N/ACredits 10 Awarded N/ASubject/Sector French Level 2 Grade CCredits 14 Awarded 30/06/2016Total Credits at level 3 38Total Credits at level 2 14

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Annex H: Weaknesses in existing vocational pathways

Existing vocational provision has a number of weaknesses:

High drop-out rates – Youth Cohort Study (YCS) data reveal that 14% of young people working towards a vocational qualification drop out by spring of the first post-compulsory year.30 The real concern is the 9% of young people who are not in education, employment or training (the NEET group) and the 15% in employment without training.31

Lack of balance between vocational and general content – compared to vocational qualifications in much of the rest of Europe, British vocational qualifications for 14-19 year olds tend either to be narrow and lack general educational content, or to offer only a diluted vocational experience. Some, but relatively few, of our qualifications have balanced these characteristics successfully.

Limited or unclear opportunities for progression – many vocational qualifications have been developed to support progression within or towards employment and fail to provide a basis for progression into further learning or training. While this may be appropriate for adults, vocational programmes for young people should include sufficient transferable knowledge and skills to provide progression within education and/or training, as well as into employment sectors. However, care needs to be taken to avoid the opposite danger, where the content is so general and progression opportunities so diffuse, that how to progress is unclear to the learner.

Lack of employer involvement – in the Pathways to Parity survey,32 Ofsted found that in Denmark, the Netherlands and New South Wales, employers were much more directly involved in determining the content and assessment of vocational courses than in England. This helps to give the courses and associated qualifications currency and status. It also helps to ensure that vocational provision is more closely aligned to the needs of the economy than it is in England.

Inappropriate curriculum and assessment – VCEs in particular have been criticised for their lack of vocational content and the limited use made of work experience.33 Case study evidence gathered by QCA (between September 2000 and July 2001) revealed that VCEs were considered to be much more theoretical than advanced GNVQs, demanding a more academic style of teaching of subject content. This was exacerbated by burdensome and inappropriate assessment requirements.

Inadequate facilities – particularly since the introduction of VCEs and GCSEs in vocational subjects, much vocational learning takes place in schools; which do not have the necessary accommodation and facilities to provide learners with an experience that mirrors the work environment.

Lack of teacher expertise – lack of up-to-date and accurate knowledge among

30 J. Payne, Vocational Pathways at age 16-19, DfES Research report RR501 (December 2003).31 2001 figures based on an analysis of learning activity and the labour market of 16-18 year olds.32 Ofsted, Pathways to Parity: A survey of 14-19 vocational provision in Denmark, Netherlands and New South Wales (January 2004).33 Ofsted, Vocational A levels: the first two years (March 2004).

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teaching staff is also a problem. Ofsted noted how in Denmark, the Netherlands and New South Wales, teachers of vocational courses are normally required to have industrial experience, which is regularly updated through placements. This helps to ensure that teaching is firmly embedded in current practice and that strong links are forged with employers, who sometimes undertake inward placements.

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Annex I: Integrating apprenticeships within the diploma framework

1. Apprenticeships represent a diverse and expanding feature of post-16 work-based provision. While most existing apprenticeship programmes would provide significant credit towards the minimum threshold requirements of a named intermediate or advanced diploma, some would meet those requirements in full and others would exceed them, providing additional credits at levels 3 and 4.

2. The following examples illustrate this diversity and the extent to which sector bodies believe their current frameworks align with the Working Group’s recommendations. However, while there are published figures for the guided learning hours associated with Technical Certificates, where these are applicable, corresponding data for NVQs rely on sector bodies’ own estimates or figures produced for SVQs.

Construction sector

3. Construction industry apprenticeships are designed to provide all the necessary skills, knowledge and initial experience required for a wide range of specific occupations. They are aimed at 16-19 year olds and will in future include those who have already successfully completed a Young Apprenticeship incorporating the GCSE in Construction and the Built Environment. Employers recruit the young people and then work in partnership with colleges and other training providers in delivering the training and assessment required.

4. At intermediate level, a high proportion of trainees will enter self-employment on completion of their apprenticeship and will continue without the need for further formal qualifications. A smaller percentage, around 25%, will be encouraged by their employer to progress to an Advanced Apprenticeship or to achieve NVQ level 3.

5. At present, apprentices must complete Key Skills in communication and application of number at level 1. However, raising this to level 2 and adding IT and Working With Others in preparation for the new system will undoubtedly serve to benefit the sector and improve the future employability of the young people concerned. Apprentices currently complete a Construction craft NVQ level 2 and an appropriate Technical Certificate, which together represent approximately 800 notional learning hours.

6. Advanced Apprenticeships are also aimed at 16-19 year olds and, on successful completion of their training, some will be encouraged by their employer to progress to an HNC, Foundation Degree or NVQ level 4, or into another level 3 technical or supervisory function. Advanced Apprentices currently complete a Construction craft NVQ level 3 together with a Technical Certificate, which together represent approximately 1,220 notional learning hours.

7. The Advanced level apprenticeships already include Key Skills in communication and application of number at level 2. Adding IT will be of benefit to the sector and to the trainees and some employers may encourage progression to level 3. Although not mandatory, good practice already exists in the sector in the form of ‘craft projects’ that serve to integrate the Key Skill requirements within the vocational training. Designing and incorporating an extended project that builds on such good practice is not expected to present any major difficulties for either the intermediate or the advanced level apprenticeships.

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8. Close employer involvement in planning the integration of Construction apprenticeships within the new 14-19 system will be essential, especially in important areas such as assessment, recording and grading.

Information Technology sector

9. A new IT Advanced Apprenticeship for IT Services and Development is already under development in consultation with employers, designed to reflect the increasing diversity of job roles within the sector. It must also ensure that apprentices with the necessary aptitude and motivation can progress to Higher Education, thus enabling them to achieve their full potential, and to meet the needs of IT.  This is particularly important in a sector where a level 4 qualification is often an entry requirement. 

10. The IT sector has traditionally placed great emphasis on product or platform-specific training and education, often referred to as 'Vendor Qualifications'.

11. Although these continue to be important, the value of more general employability skills and competencies has also been recognised. Awarding Bodies are working in partnership with a number of vendors and have either linked Technical Certificate units to vendor units or have included vendor units within the Technical Certificate, therefore enabling them to be incorporated more easily within apprentice training programmes.

12. The design of the new flexible Advanced Apprenticeship is expected to align well with the proposed diploma model. Where necessary, functional mathematics and literacy and communication skills at intermediate level will be developed alongside the wider common skills, such as team working and problem solving, as an integral part of an apprentice’s work-based learning. The other key component of the core, the extended project, is particularly well-suited to apprentice training and will be a welcome opportunity for IT trainees to undertake a demanding assignment of direct relevance to their employer for which they can receive full recognition towards their diploma.

13. The new IT framework recognises that a level 3 Advanced Apprentice will not necessarily operate at that level across all aspects of their work, but will often include some higher or lower-level activities. The ability to accommodate this within a future framework is seen as highly desirable.

14. A number of Technical Certificates have been identified for use in this apprenticeship, ranging from 450 to 1,080 guided learning hours. At this stage, it is estimated that the total notional learning hours over a two to three year programme, including the Technical Certificate, induction, NVQ and other components, is likely to be between 1,475 and around 2,400.

Land-based sector

15. The diverse nature of the land-based industries offers a wide variety of opportunities for work-based training. At intermediate level, the Apprenticeship in Animal Care is seen as a general entry route into the industry, leading to a variety of occupational routes from animal welfare charities, pet shops and grooming parlours to wildlife parks and zoos. Although designed to be suitable for 16-19 year olds with the necessary enthusiasm and commitment, there are no specific entry qualification requirements and many animal care organisations, particularly welfare charities, prefer to take on mature adults rather than school leavers. The apprenticeship is offered by numerous training providers, including colleges, with larger employers such as the RSPCA offering their own training programmes.

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16. For those with the ability and motivation, there are opportunities for progression from level 2 to level 3, and on to management qualifications or higher education.

17. IT is not currently included within the apprenticeship and employers report difficulties with the Key Skills tests, particularly application of number, as these are not work-related and many apprentices struggle to pass them. The Working Group’s emphasis on developing these skills to the required level before entry to work-based training will be widely welcomed. Some providers already incorporate extended projects, usually linked to one or more units from the NVQ, which offer opportunities for developing and demonstrating Key Skills. However, external testing, unrelated to the work role, is currently regarded as a problem, with extra tuition being provided simply to train apprentices to pass the test.

18. Apprentices currently complete an NVQ level 2 in Animal Care, while at advanced level, the programme includes an NVQ level 3 in Animal Care plus a relevant level 3 Technical Certificate. The Advanced Apprenticeship is therefore likely to involve a total of at least 650 notional learning hours.

19. Other apprenticeships are designed to meet the needs of a specific occupation and, as in the case of farriery, provide the only route into that profession. Most of those who embark on the four year Advanced Apprenticeship in Farriery are aged 16-25 with at least four GCSEs at grades A*-C including English or Welsh, although occasionally older apprentices come through via the armed services. An affinity with horses is essential and apprentices are assigned from the start to ‘approved training farriers’, with the whole programme being controlled by the Farriery Training Service which monitors both the on-the-job training and the four colleges in the UK that provide courses for farriers on a block-release basis.

20. On completion, many will become self-employed and are encouraged to undertake further qualifications through the Worshipful Company of Farriers, progressing to become approved training farriers themselves.

21. Key Skills in communication and application of number at level 2 are already a requirement within the framework with IT, as it relates to farriery, being taught as part of the college course alongside basic business skills.

22. Advanced Apprentices complete an NVQ level 3 in Farriery plus the diploma of the Worshipful Company of Farriers, a total of at least 1,200 notional learning hours.

Sports sector

23. A new Advanced Apprenticeship was approved in March 2004, designed specially for young people with a realistic potential to achieve excellence in their sport and who are seeking to perform at the highest level as their main career goal.

24. The apprenticeship allows employers to manage the development of a young person’s sporting abilities, while also meeting their broader educational needs. The programme includes level 3 NVQ in Achieving Excellence in Sport but caters for longer term development needs by providing opportunities for further learning or indeed career change. It provides, for the first time, a unique opportunity for young athletes to train over a two-year period on a structured programme that links the sporting workplace to the wider learning.

25. The design of the apprenticeship lends itself to the proposed diploma structure, requiring all six current Key Skills to be demonstrated, with some of the wider Key Skills,

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such as problem solving, being integrated within the overall programme. The Technical Certificate requirement includes a range of possible qualifications combining to a minimum of 780 guided learning hours, tailored to meet individual needs. The framework has been designed to support trainees’ progression into full-time activity in their chosen sport, to related work roles in broader sporting environments, as well as to further and higher education, and indeed self-employment.

26. The total volume of the two-year programme is likely to be in excess of 1,600 notional learning hours.

Engineering sector

27. In engineering, although many of the larger companies have given colleges and other training providers the responsibility for managing their apprenticeship schemes, others continue to maintain in-house young people training departments, with their own professional staff and workshop facilities.

28. In one such company, the Advanced Apprenticeship is aimed mainly at 16-19 year olds and typically takes up to four years to complete. Some existing employees over 24 years of age also undertake a full National Framework programme to level 3.

29. Following induction, including Employment Rights and Responsibilities, trainees with GCSE grades A* - C will begin their Technical Certificate course, a BTEC National Certificate in Engineering, with opportunities for progression to the Foundation Degree in Manufacturing and Mechanical Engineering after two years. Those who enter the apprenticeship with appropriate A levels are enrolled immediately on the Foundation Degree, designed in collaboration with FE and HE partners and undertaken over three years by day release. Continued progression to an appropriate day-release Honours Degree is generally supported for those successfully completing the Foundation Degree.

30. Alongside their vocational education, trainees will also undertake a comprehensive programme of off-the-job training in machining, fitting, welding, fabrication, electrical and electronic skills, completing 10 to 14 units of the NVQ level 2 in Performing Engineering Operations. They will then move on to their NVQ level 3, with eight to 12 units carefully selected to match the particular skill requirements of the work for which they are being trained. The development of Key Skills level 2 in communication, application of number and IT is supported during the off-the-job training, with trainees following technical programmes achieving Key Skills at level 3 during their work-based training attachments. Apprentices also complete the Key Skills units in Working with Others and Improving Own Learning and Performance. Project work already plays an important part, with project presentations and other activities contributing further to their Key Skills development.

31. In addition to the national requirements for engineering, modern work practices including team working, workplace efficiency (5S) and visual communication are introduced during off-the-job training and recorded against seven units from the level 2 NVQ in Business Improvements Techniques, for which all apprentices are registered.

32. The Advanced Apprenticeship also incorporates a structured programme of wider activities giving the trainee the opportunity to engage in Schools Liaison Activities, German Exchange programmes, Challenge Courses and Community Projects. The total notional learning hours for a typical programme following the BTEC National route, are estimated to be in excess of 3,900, not including the Foundation Degree.

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Annex J: Interim changes to GCSE and GCE and VCE advanced level

1. Existing public qualifications need to be modified and adapted in order to fit into our diploma framework. We believe it is possible to preserve their strengths in terms of aspects of the content, but changes to standards and structure are necessary. The changes we set out below to GCE, VCE and GCSE must be embraced in the medium term, if they are to pave the way to quality provision within a diploma.

GCE

2. We propose a significant change to the GCE advanced level standard and some structural changes too. These will introduce greater stretch and challenge to the qualification overall and reduce the burden of assessment on learners.

3. Specifically, we propose that the range of achievement covered by the higher advanced level grades be extended by incorporating the level of demand associated with the AEA.

4. In addition, greater space for in-depth learning should be created within advanced programmes by:

focusing assessment objectives clearly on the key aspects of the subject and ensuring they are less closely linked to each element of the specification to allow more in-depth learning and intellectual challenge;

reducing the number of assessment units at AS/A2 from six to four; and

shifting the balance of work assessed during the programme from externally set coursework tasks to the extended project and teacher-led assessment within individual components, especially at A1 level.

Reduction in the number of assessment units

5. The number of assessment units adds to the burden, (in all but a few GCE A levels and VCEs there are six units). However, the vast majority of learners welcome the unitised approach to these qualifications, and it accounts for some of the improvement in performance. We believe that the burden on all parties can be lightened immediately by reducing the number of assessment units from six to four. This aligns with QCA proposals for developing the qualification.34 It would not reduce the overall content of the A level, but would reduce the volume of assessment. This change could be made immediately and could be worked into the QCA programme of revision to the qualification planned for 2007.

Managing content

6. In some specification, the volume of learning at AS is considered to be high and therefore places pressure on teachers to teach to the test, in the early part of the course. In the medium term, the re-accreditation of qualifications should ensure that content at AS and A2 is manageable and lends itself to sufficient time for quality teaching and learning.

34 K. Boston, Speech to Secondary Head Association and Association of Colleges Conference (2 March 2004).

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7. While the evidence base is limited, it is clear that the way in which assessment criteria are currently specified leads to little time for investigative or in-depth learning. Assessment objectives that allow for sampling of content, rather than coverage of every element of course content, will allow teachers and learners to cover some areas in greater depth. This will raise the intellectual challenge of programmes and improve skills.

Decoupling GCE AS and A2

8. Our terms of reference ask us to consider decoupling the AS and A2 qualifications, which was specifically recommended in the Final Report of the Inquiry Into A level Standards (November 2002).

9. The relationship between GCE AS and A2 is seen by some as responsible for creating a burden on learners. The aggregation of AS and A2 results to produce a single A level grade is a technical process that does not in itself add to the administration burden on awarding bodies or institutions. Nevertheless, decoupling of AS and A2, and reporting achievement in each separately, is a necessary step towards the diploma and free-standing A1 and A2 components. The timing for separating the assessment of AS and A2 is important to avoid the risk from making multiple simultaneous changes to the existing qualifications during the lead-in to the diploma framework. In our view, the revision of existing AS and A2 specifications to reduce the weight and prescription of assessment is the more urgent change.

10. Decoupling of AS and A2 is not straightforward. Each subject treats content differently over the two qualifications. In some specifications, the demand of the A2 part of the programme is focused on covering some of the same areas, knowledge and skills, but in greater depth, technical accuracy or wider application. In others, the specification demands additional areas of learning are covered. These differences in how the split between AS (to become A1 in the new diploma) and A2 is defined would need to be taken into account when decoupling the qualifications. We advise that A1 and A2 is decoupled, and that simultaneously the A2 is recalibrated to create new more demanding A2 components. This should form part of the redevelopment of components prior to their incorporation into the diploma.

Recommendation 36

AS and A2 should be decoupled as A1 and A2 diploma components at the point of transition from free-standing A levels to the diploma system.

Enhancing differentiation 11. We envisage more demanding A2 components in the diploma that incorporate AEA type assessment, with performance reflected in the grading, to challenge the most able learners. This year, 22.4% of A level candidates achieved a grade A in a subject and higher education admission officers and employers say they are finding it increasingly difficult to distinguish between top-class candidates. The number of candidates taking the AEA (which is available in only 17 subjects), and which is an additional examination that provides stretch, totalled 7,246 this year. A more demanding A2, that incorporates the extended challenge of the AEA, but without an added exam, would provide access to top-class achievement to all A level candidates, but without the additional examinations burden. The grade scale should indicate this additional stretch.

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12. Measures would need to be taken to ensure that changing the standard had no adverse impact on middle and lower grade bands.

13. The AS (A1) should retain its role in providing a stepping stone from intermediate to advanced attainment. The overall demand of the A1 should broadly remain at the current AS standard. There may be a need to review the demand in some specifications where problems have been identified.

Timetable for GCE

Revisions to A levels should be undertaken to provide a new A1 and A2. The A2 should be demanding, and include type of learning required by AEAs.

By 2007:

reduce the number of assessment units in AS/A2 from six to normally four, reflecting some subject flexibility as is presently the case;

realign the content of AS and A2 in some subject specifications to address concerns about overcrowding content in the AS;

move away from prescriptive coursework tasks to the extended project and teacher-led assessment.

By 2014:

new components comprise reconfigured A levels (trialled in prior years). The new A1 and A2s operate as stand-alone components;

components include recalibrated A2s which are more demanding than the current A level by absorbing AEA type assessment of high order skills and deeper knowledge; and

extend the grading scale for A2 to reflect the change in standard and ensure that learners in the lower bands are not disenfranchised by the change to the standard.

VCE

14. The VCE changes we propose relate mainly to enhancing the vocational relevance of programmes and their assessment. The VCE will be relaunched next year as new GCEs in vocational subjects. Like current GCEs, it will have an AS and A2 structure.

Vocational relevance

15. The redevelopment programme took into account concerns about the vocational relevance of programmes and concerns about the appropriateness of the assessment. These concerns were further highlighted this year in the Ofsted report on the quality of teaching and learning on VCE programmes. It was critical of the construction of programmes and their lack of vocational relevance and said that assessment

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requirements exacerbated this problem. The fitness of centres to support vocational programmes needs to be reviewed to ensure that they have access to the expertise and quality control features to support such programmes.

Assessing vocational A levels

16. The possibility of in-course assessment taking a greater role at AS would consolidate the vocational nature of the programme. It is clear however, that as with GCEs, the qualification design requirements would also need to comprise the extended standard and grade scale proposed. The impact and appropriateness of this finer grading on advanced vocational programme should be evaluated. It should not be assumed that the number of assessment units required for assessing vocational A levels should be the same as for other A levels. This will need to be reviewed by QCA in its redevelopment programme. More vocationally relevant assessment should be a feature of the revised specifications, but we would welcome changes that required more assessment that took place in work-related settings.

Timetable for VCE

By 2010:

The planned changes to VCE, which are to become new GCEs in the applied subjects need to be reviewed prior to further redevelopment. QCA should advise on how all GCE developments will align.

Quality assurance arrangements must ensure that centres have access to the expertise and other resources and structures that effectively support the vocational relevance of the programme.

The balance of in-course and external assessment of the qualification should be considered in their redevelopment.

The impact of the change to the GCE standard at A2 on vocational programmes should be considered. The implications of finer grading for GCEs in vocational subjects should be considered further by QCA.

GCSE changes

17. The development of GCSE qualifications also covers changes to structure and assessment.

18. In particular, we propose the use of in-course assessment by teaching staff for GCSE. The basis for operating this type of assessment regime in the interim, outside a diploma framework will be worked through existing and planned pilots of the assessment. Coursework requirements should be reviewed to accommodate more flexible approaches akin to those anticipated for in-course assessment.

19. Plans to structure the qualification into units that have credit values attached, form part of QCA plans for redeveloping the qualifications. This will prepare the way for their inclusion within the diploma framework. However, we are concerned to ensure that in the medium term, the assessment of the qualification does not become burdensome as a result of unitisation.

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20. The further development of the qualification should also report achievement at two levels, foundation and intermediate. It will be necessary to develop some specific provision at foundation level.

21. The construction of core mathematics, communication and ICT at foundation and intermediate levels as part of GCSEs redevelopment will be critical to preparing for the diploma. Whether separately assessed or embedded, the learning will take place within the broader programme for the majority of learners. It will be critical to have enhanced GCSE that pave the way to a successful core in these areas at the earliest stages.

22. All of these changes can be in place for first teaching in September 2008.

Timetable for GCSE

The redevelopment of the qualification for first teaching in 2008 should:

report achievement at foundation and intermediate level;

develop, through pilot programmes, approaches to in-course assessment and adopt in-course assessment in greater proportion;

assign a credit value to the qualification, but ensure that their unitisation does not add excessively to the burden of assessment; and

develop core learning and assessment opportunities for mathematics, communication, information and communication technology within the redevelopment of GCSE in maths, English and ICT.

By 2014:

specific foundation level provision for the diploma should be developed where it is deemed necessary, including possibly more vocational options; and

assessments of components should be within the in-course assessment framework, with external tests used as part of a range of information on which teachers make summative judgements.

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Annex K: Collaboration in 14-19 pathfinders

1. Collaborative working was a particularly strong area of development in the Department’s pathfinders. By September 2003, all pathfinders responding to the research survey had made at least ‘as expected’ progress on collaboration and 60% had made more progress than expected.

2. Twenty-five partnerships were awarded phase one pathfinder status in 2002/03. These were based all around the country in a range of different circumstances from inner city and urban to rural areas. The pathfinders varied in the size of geographical area covered and the number and types of institutions involved. These typically included 11-16 schools, 11-18 schools, further education colleges, sixth-form colleges and work-based training providers.

3. The development of a collaboration model is at an early stage, but key principles have been agreed:

the development of provision should be informed by the identified needs and aspirations of the learner and the requirements of the local labour market;

this needs to be driven by a robust process of monitoring, review and planning;

district management needs to be underpinned by programmes of inter-agency professional development which support collaboration and break down institutional barriers;

structures and processes need to ensure that the voice of young people, their parents/carers and ‘face-to-face’ workers can inform the planning and delivery of provision.

the districts will link strategically with the wider District Service Delivery Partnerships to ensure appropriate multi-agency working around the needs of the learner, engaging with Health, Social Services, Housing, Youth Offending Teams and others.

4. No national blueprint has been created for collaborative working in the development of 14-19 education and training. Pathfinders were expected to build on existing partnerships, effective collaborative working arrangements, and respond to local circumstances and needs.

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Annex L: Implementation

1. This annex illustrates a broad approach to implementation. We have said that it would take at least 10 years to implement our reforms, with visible improvements leading to longer-term reform becoming evident in the first five years. The implementation sequence and timetable will depend crucially on choices made in the early stages of the implementation process. We have not sought to pre-empt these by devising detailed plans, but early development of a detailed implementation plan and timetable should be a top priority.

2. Implementation will involve taking forward multiple strands of work, and ensuring that they join up. We have identified some of the key strands under eight groupings:

Preliminary development work – including agreeing the framework for specialised diploma lines, the identification of any primary legislation requirements, and implications for Northern Ireland and Wales. It may take up to two years for some elements of the programme of work to be fully scoped and agreement reached.

Curriculum and assessment development – the first four years will need to focus on developing diploma design criteria, programmes and components. Thereafter, further refinement and new development work in assessment and quality assurance systems will need to continue until full roll out.

Data management and quality assurance – data management needs can take a long time to establish and there are competing pressures in other policy areas for establishing information systems. The scope of the work needs to be determined early. In the short term, data needs could be met by stand-alone arrangements that build on existing systems.

Enhanced coherent programmes – building on existing initiatives like the Increased Flexibility Programme and 14-19 pathfinders.

Whole diploma testing and evaluation – arrangements will need to be put in place to protect the interests of learners involved in the pilot, and may include making components available as separate qualifications for the duration of the pilot.

Workforce development and supporting arrangements will need to be attentive to the needs of all staff involved in delivering the reforms in institutions: tutors, support staff, training and community providers. Early work will need to scope the implications for inducting and training teaching and non-teaching staff and other providers, and for continuing professional development.

Infrastructure arrangements such as governance, funding, performance management and information, advice and guidance will need to be reviewed and may require legislative change to legislation. The extent to which existing arrangements can be adapted or need to be changed should be determined at an early stage.

Timetable

3. The first five years will focus on the design of diploma framework, models, curriculum and assessment systems, and changes to infrastructure. This will prepare

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the ground for a pilot of the programmes, components and systems that together make up the diploma framework. After piloting and adjustments, the diploma will be introduced, possibly rolled out over a few years.

By 2008

33. We anticipate there will be visible improvements to the existing system of qualifications and the diploma design and development process will be complete:

All GCE and GCSEs will have been revised to:

o introduce more in-course assessment in more GCSEs

o reduce the number of assessment units in the majority of GCEs (and possibly VCEs) to four instead of six.

Components in functional mathematics, functional literacy and communication and ICT will be available as stand-alone qualifications.

The framework and criteria for specialised diplomas will have been developed and, specialised diplomas will be under development leading to piloting. Existing vocational options will be significantly improved as a result of the ongoing re-accreditation process.

More detailed information about qualification and unit grades and scores will be available to universities and employers.

Criteria for the extended project will have been developed.

The proposed Institute of Assessment will be in operation and beginning to establish proposals and standards for training assessors.

There will be a single on-line registration system for qualification assessment, reducing administrative complexities.

The data management needs of the new system will have been determined.

By 2014

4. In the period of time leading up to implementation, curriculum, assessment and infrastructure arrangements will have been tested and trialled, and many features of the new system we propose will start to be clearly encouraged in preparation for full roll out:

In-course assessment will become more frequent as a mode of assessment. Inspection and quality assurance arrangements would accommodate this.

Induction and training for the new system would include a focus on new assessment practice in initial teacher training. The Institute of Assessment exemplifies good practice and Chartered Assessors are in position in most institutions.

Extensive trialling and testing of diploma programmes, components and supporting infrastructure will be near completion. Findings from ongoing evaluations will have influenced the next stages of development and assessed its

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impact on Key Stage 4 and different groups of learners, and its implications for Key Stage 3.

Data management arrangements would have been developed and trialled via diploma pathfinders.

Development of infrastructure, including governance, funding, performance management and information, advice and guidance completed.

Communication strategy ensuring that stakeholders, young people and the public are prepared for the new system would be in place.

Making a difference to teaching and learning

5. There are several important milestones which will directly affect the way schools, colleges and training providers deliver 14-19 learning and the learning experience for young people during the implementation period. They include:

2007 – a single on-line qualification/examination registration system to be operational.

2007/08:

o first teaching of revised qualifications in preparation for diploma changes, including improved vocational components;

o GCSEs contain more in-course assessment;

o core components in functional mathematics, functional literacy and communication and ICT are available as stand-alone qualifications;

o criteria for the extended project available for use;

o new entry level components available;

2009 – restructured advanced components to include more demanding A2 and an extended grade scale and decoupled A1 and A2 available for piloting in preparation for the diploma;

2009/10 - full pilot commences;

2010 – the adult vocational framework of achievement is fully operational, with credit system in place; and the apprenticeship framework is aligned with the new diploma system;

2013 – new infrastructure arrangements in place; and

2014/15 – new diploma system starts – a two-year roll out culminating in the withdrawal of qualifications for 14-19 year olds and the introduction of the diploma.

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Annex M: Case studies illustrating the new framework

The case studies in this annex offer some fictionalised examples of the way young people may move through the proposed 14-19 framework.

Greg

From age 14 to 16 Greg’s learning programme was comprised of eight main learning components, including mathematics and computer studies. The school had been refurbished as part of the ‘Schools for the 21st Century’, agenda and was well resourced. At age 15, Greg had already attained intermediate level components in mathematics and computer science. His programme at age 16 included advanced level components in pure mathematics and computer science. Greg continued to play golf on the weekends with his dad, and as a wider activity enrolled on the Duke of Edinburgh Awards Scheme. By the age of 16, he passed seven main learning components at intermediate level and by age 17 passed two main learning components at advanced level and had attained the Silver level in his wider activity.

Under the current system, Greg’s progression in mathematics and computer science may not have been so rapid. Under the diploma framework, his successes at intermediate level, and at advanced level enabled him to achieve an advanced diploma with distinction, and he had the opportunity to progress at his own pace. At age 18, Greg’s advanced diploma with distinction and credit and grades he achieved in the constituent components provided him with a strong transcript. Greg had attained Gold level in his wider activity and had also worked successfully on his extended project – he created and ran a community project using old computers from local businesses to provide disadvantaged children with access to ICT. Greg liked working on the community project and helping children to learn with whom he would not normally have associated. It was partly though his extended project experience that Greg decided to become a teacher.

Greg had an enquiring mind and was keen to understand how you could relate mathematics to everyday life. He decided to study mathematics at university. After gaining his Masters degree, he attained a PGCE.

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Karen

Karen was a popular girl, she was well liked by her teachers and class mates and worked well. By the age of 14, Karen enrolled on a Young Apprenticeship programme in Business Administration. The work experience provided her with real insight into the skills and attributes needed to succeed in the workplace. Karen had no clear career plans but maintained her interest in business administration through her programme which included Applied Business and Administration Technical Certificate at intermediate level. Her school advised her that she would be able to specialise in Business Administration when she was 16.

From age 14 to 16 Karen’s main learning programme included English, mathematics and vocational components in Business Administration. Karen did not have a computer at home, but used the ICT skills aspect of her core programme to help develop her use of new technology. Through the core programme Karen also developed skills in working with people, communicating ideas, solving problems, and managing resources. Karen was also a member of the Girl Guides and identified this interest as a wider activity.

By the age of 16, she attained five intermediate level components (including English and mathematics) and two technical certificates at intermediate level and one foundation level component. She also attained intermediate level in her core programme, including ICT skills, for which she received additional support from the school. This enabled her to claim an intermediate diploma.

Under the current system, Karen would have attained four intermediate level qualifications (including English and mathematics), but her weakness in ICT and the use of technology might have held her back. Under the diploma framework, her intermediate core programme prepared her for study at the higher level. She was also more able to study independently, because of the skills which she acquired in her core programme at intermediate level.

Karen sought advice through the review, planning and guidance aspect of her diploma on what her options might be. Following this advice, Karen enrolled at a Further Education college to continue her studies working towards an advanced diploma in Business Administration and Law. From age 16 to 18, Karen was able to integrate elements from her programme into her extended project, which examined and reviewed the strategic objectives of the college and the business processes underpinning the objectives and the legal implications. Her project recommended re-engineering a number of business processes, some of which the college implemented.

At age 19, Karen attained her advanced diploma in Business Administration and Law and intends to go onto university to study Business Law.

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Maxwell

Maxwell (Max) was a young man in his mid teens who over the years had had various brushes with the police and was well known to all the Community Support Teams in his area. Max drifted in and out of school, he liked the English teacher, so went to that lesson but tended to be disruptive to get attention. He had also been very aggressive to the other pupils and had physically assaulted a teacher. He had been excluded from school as a result of severe bullying and had drifted from placement to placement with very little success. Max’s only aim in life was to get into the Army, but this had been dashed when he was excluded from the local college’s diploma framework, which would have provided him with the necessary foundation to join the Army, midway through, due to his aggressive behaviour and violence.

Max had very little interest in school or studying. He knew he had to read and write for the Army and know some maths but in reality the only aspect of the diploma that he enjoyed was the wider activities component. Max came onto the E2E Duke of Edinburgh’s Award Programme and initially presented a challenge due to his aggression. However, over the course of the 12 week programme this element of his behaviour settled and he became a lot more stable in his behaviour and a lot more mature in his outlook on life. By the end of the initial 12 week programme, Max accompanied the group on a long weekend to Cumbria and completed his Scuba-Diving Training – an accomplishment of which he is very proud and one which has led to a vastly improved sense of self-esteem.

Under the current system Max would have remained excluded. Frustrated and misunderstood, Max’s attempts to re-engage through informal learning may not have become apparent.

Max now openly admits that his previous behaviour was wrong and regrets it deeply. So much so that he has openly apologised to another participant on the programme who at school was his main bullying “victim”. Since taking part in the programme, Max has been re-admitted onto an intermediate programme to enable him to acquire the components required to achieve an intermediate diploma (Open). Not only is this an achievement, but he was voted best speaker on the course for his presentation of the diving trip and has now been accepted into the Army, the first phase of training for which he is due to start in the autumn.

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Peter

Peter did well at school, he was well liked and enjoyed learning. Peter spent most evenings and weekends helping out in a local restaurant dishwashing and keeping the kitchen area tidy to make some pocket money. He did not know what he wanted to do after he left school.

From age 14 to 16 his learning programme comprised six main learning components, including mathematics and English. Working at the restaurant had given him an interest in food preparation and nutrition; and he had decided to take components in Practical Food Technology and Nutritional Science.

By the age of 16, he passed five main learning components at intermediate level (including maths) and one at foundation. The broad learning programme that Peter studied and the progress he made in communication enabled him to claim an intermediate diploma. Peter listed his part-time paid employment as a wider activity. He also prepared an extended project on school meals looking specifically at the nutritional value of the meals provided and how the meals could be improved and still stay within budget.

Under the current system, Peter’s progression in education and training may not have encouraged his interest in food which related directly to his part-time paid employment. Under the diploma framework, his interests and assessment successes are recognised.

Peter decided to take a catering and nutrition course at the local Further Education college. Through the information, advice and guidance provided by his school through the personal review, planning and guidance element of the core, Peter knew exactly what he needed to achieve at college to enable him to move into the food industry. His extended project continued the work he had produced for his intermediate diploma and examined the impact of infant and childhood nutrition on health and obesity.

At age 19, Peter attained his advanced diploma but continued to work part-time at the restaurant where he was given some responsibility for planning menus and buying in the ingredients. He is keen to pursue a career in catering and is planning to study part-time for a Foundation Degree in Hospitality Management with the option of progressing to the third year of an Honours degree.

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Jason

Jason struggled with written communication and showed a real dislike for English at school. He spent most evenings and weekends working on a nearby farm and in his spare time playing football with his friends. Jason was also a very able footballer and played for his year’s school team. He did not know what he wanted to do after he left school, and had always assumed that he would work on one of the farms near the village.

From age 14 to 16 his learning programme comprised six main learning components, including one in mathematics and two in land management. The village school did not offer that provision, so Jason attended classes at the Further Education college in the town and used ICT for virtual lectures. His programme also included a core component in communication at foundation level.

By the age of 16, he passed two main learning components at intermediate level (including maths) and three at foundation. The broad learning programme that Jason studied and the progress he made in communication enabled him to claim a foundation diploma with credits towards an intermediate diploma. He continued to play football. He was captain of the school team and was also a striker in the local village league. His sporting activity and part-time farm work met the wider activities requirements of his diploma programme.

Under the current system, Jason’s progression in education and training may have ended at 16. Under the diploma framework, his successes at intermediate level, including maths, were credits towards the next level of the diploma which he recognised as potential further success in education and training.

His interests became much more orientated towards agriculture. Jason’s foundation diploma and credits provided him with the incentive to study for an intermediate diploma, the interlocking diploma framework provided him with a strong foundation and he recognised that he was already part way there. He enrolled at the Further Education college in the town and chose to specialise in land-based provision. He knew that he needed to gain the threshold minimum of intermediate level in communication skills to attain the intermediate diploma and received special coaching from the college. He worked successfully on his extended project - a three year business plan on agriculture and farm estates business - during the final year of his programme. He demonstrated a variety of Key Skills through this project. At age 19, he attained the minimum threshold in his core programme and sufficient passes in his main programme to gain the intermediate diploma in Land-Based Provision. Jason still plays football for the village team and also coaches an under 11 primary school team. He is currently working as a farm manager’s assistant and is studying Land Management at agricultural college on a part-time basis.

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Paul

Paul grew up in a small town with his father, a divorcee. At age 11, he was sent to an independent boarding school in the North East that taught pupils from 11 to 18. He was particularly gifted in music: he was a chorister and played both the piano and violin. He had always been academically bright and especially liked maths and ICT. From the time Paul joined the school, his teachers appreciated his musical talent and vocation, and at age 14 it was clear that he would be aiming for an advanced diploma. His teachers advised him to keep his options open. He was happy to do this but, as his passion was music, he wanted to specialise as soon as possible, with a view to becoming a professional musician.

From age 14 to 16 his main learning programme comprised six intermediate components including Choral studies and Orchestration. He was also able to skip intermediate level music and instead chose to follow an advanced component in music. Although he was an able mathematician, he never really developed an aptitude for science. He elected to pursue an intermediate component in scientific awareness. Outside of his school curriculum he attained Grade 8 in Piano and Grade 6 in Violin.

By age 16, Paul had attained six components at intermediate level (including English and maths) and one component at A1. He also successfully completed his core requirements at intermediate level and received an intermediate diploma with credit towards an advanced diploma in mathematics, English and the advanced music component. His extended project was to compose a piece for piano, which he performed at a recital during the summer term. Paul’s attainment was recorded on his transcript. Under the current system, Paul’s progress would probably have been have been limited to intermediate level by this age, he would not have been stretched and his musical skills would have remained undeveloped.

Paul stayed on at the school, and by age 17, he attained a total of six components at A1. He elected to continue four of those, and by age 18, he attained four components at A2 (Performing Arts, English Literature, Italian and French) while also studying components in music equivalent to the first year of an undergraduate degree. He successfully completed his extended project: a piece for four voices which he composed and arranged himself and performed with three of his friends. He was awarded a distinction in his advanced diploma in Arts and Languages at the school graduation ceremony. Paul plans to read music at university and then to become a professional musician.

At age 25, Paul has completed his Masters degree. He formed a band while at university, with three friends from his course. They were discovered by a large record company and are currently on tour in the Far East.

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Ishmail

Ishmail grew up in a large city with his parents and four other siblings. At age 11, his parents enrolled him at a local comprehensive school with a sixth form. He was a quiet boy and spent a lot of his time in his bedroom on his computer. He did not like sports and preferred to play computer games.

By the age of 14 he was very proficient in the use of computer technology. From 14 to 18 his learning programme included vocational components in computer science and engineering. He particularly enjoyed maths, science and ICT, but he struggled with English, which was not his first language. His core programme addressed this issue with an emphasis on communication skills.

At age 16, Ishmail had attained six components at intermediate level, including maths, science, and engineering; and one component at advanced level in ICT. He had also attained one component in English at foundation level. However, his core programme had also allowed him to attain an intermediate level component in communication. This provided him with sufficient passes to claim the intermediate diploma. Under the current system he would not have had his communication skills enhanced through a core programme, and would not have been able to study ICT to advanced level .

Following the success of the diploma programme and his desire to have more experience designing and building machines, Ishmail decided to move into the field of engineering. At age 18, he completed the advanced diploma in Engineering, Technology and Manufacturing. For his extended project, he designed and built a computer-controlled robot. Although he had attained a merit in his advanced diploma and enjoyed the theory, he wanted more hands-on engineering experience, so he chose an Advanced Apprenticeship programme in Engineering, which he completed at age 22, having already gained the core (Key Skills) and Technical Certificate requirements as part of his advanced diploma programme.

At age 25, Ishmail has completed his Advanced Apprenticeship programme and is currently working as an engineer in a local business.

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Sally

Sally described herself as an above average girl, although she never stood out for any reason. Sally told her tutor that she did not want a career, she wanted to get married, settle down and have children.

At age 14, her career aspirations had not changed. From the age of 14 to 16 her learning programme consisted of the National Curriculum. At school, she would drift from lesson to lesson and occasionally out of school. She rarely applied herself and thought school was boring. At age 15, she fell pregnant. She insisted that she would have the baby and gave birth two weeks before her exams. She had not been able to prepare for her exams properly and had missed a lot of schoolwork since becoming pregnant. At age 16, she left school without any qualifications.

The new diploma structure offers her a clear range of relevant post-16 options which would enable her to identify a suitable nationally-recognised programme if she chooses to re-enter learning at a later date. If she had passed any of the core components for a diploma, these would provide credit towards a subsequent diploma programme.

Sally became unemployed after leaving school. By age 18, she had decided to return to education and training and enrolled at a Further Education college. Her mother looked after Sally’s daughter during the day. She felt that the health and social care would be a good preparation for childcare courses, such as CACHE Early Years Care and Education (NVQ levels 2 and 3). Although she recognised that this foundation diploma programme helped her to develop her teamwork and portfolio-building skills, she found after a few months that did not enjoy the specialist content, even though she had completed some components to a high standard. Because she had also always enjoyed cooking and preparing food for parties, she switched to a foundation diploma in Commercial Enterprise, specialising in catering, and was able to retain credit for her progress within the core during her previous programme. During this new programme she worked part-time for a local private catering company.

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James

James did not like school. He was disruptive and bullied the other pupils with the threat of his older brother. He would often skip lessons and when challenged would became abusive. He was suspended on a number of occasions.

At age 14 he still felt disengaged with school. The only lessons he enjoyed were craft lessons; he enjoyed working with his hands and liked the craft subject teachers. He had very little interest in the other subjects that were offered in the National Curriculum. He was quite a skilled carpenter and he also enjoyed metal work. His work based training was with a local joinery firm. Much of the equipment was computerised and he found a new interest in working with computerised lathes. He also discovered an interest in technical drawing using computer-aided design. His skills developed in marquetry and he developed an appreciation for applied maths.

At age 16 James attained three components at intermediate and two at foundation level. He also achieved an intermediate level extended project and foundation level in the other aspects of his core programme. This success enabled him to claim a foundation diploma. His transcript emphasised the work-based training that he had undertaken.

Under the current system, James would have attained three intermediate qualifications (including maths) and two at foundation level. Under the diploma framework he identified how he could progress through the diploma system with limited academic study by concentrating on the key skills and ensuring that he had the threshold requirements for the diploma.

He enrolled at a local Further Education college on an intermediate diploma programme in Construction. He was advised that he would need to balance his curriculum with mathematical skills and communication in order to attain his intermediate diploma. He also worked part-time at a local joinery to gain further experience and learned how to use a computer-aided Design system to plan out designs for architects.

At age 19, James attained his intermediate diploma in Construction and gained additional credit towards an advanced diploma in the same area. He is now employed as a joiner and is continuing to study part-time for his advanced diploma in Construction.

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Razia

Razia was a quiet girl. Despite her quiet nature, her teachers had recognised that she was academically very able. By the age of 14, she had demonstrated an interest in science. She also enjoyed English but was not strong in maths. She had no definite career plans but knew that she wanted to go to university with her friends. Her school advised her that she would be able to specialise in science when she was 16; but that her weakness in maths might be an obstacle, and she needed to address a weakness in working collaboratively with her peers.

From age 14 to 16, Razia’s main learning programme included English and vocational components in applied science. Her core programme developed mathematical skills as well as working with other people, communicating ideas, solving problems, managing resources, critical thinking and independent learning. She also worked towards an ASDAN Bronze/Silver award.

By the age of 16, she attained four intermediate components (including science and English) and three foundation components. She also attained intermediate level in her core programme, including mathematical skills, for which she received additional support from the school. This enabled her to claim an intermediate diploma.

Under the current system, Razia would have attained four intermediate level qualifications (including English and science), but her weakness in maths might have held her back. Under the diploma framework, her intermediate core programme prepared her for study at the higher level. She was also more able to tackle project work effectively and study independently, because of the skills which she acquired in her core programme at intermediate level.

Her interests had become much more orientated towards the sciences. She enrolled at a Further Education college to continue her studies working towards an advanced diploma. From age 16 to 18, She wanted to expand her knowledge in health-related subjects and her scientific awareness, so she studied advanced level components in biology, chemistry, statistics and health and social care for an advanced diploma. She also sought to convert her mathematical skills to more theoretical and conceptual mathematics at intermediate level to support her science studies. She was able to integrate these subjects in her extended project, which examined the views of a statistically valid sample of users of local ante-natal services. Her college worked in collaboration with the local hospital trust on health-related science issues. She attended lectures at the Further Education college and worked as a volunteer at the hospital trust. Her work at the hospital was recognised as a wider activity and this was listed on her diploma transcript.

At age 19, Razia attained three A2 and four A1 components and completed her extended project. She also passed an intermediate component in mathematics for scientists, and achieved a merit in her advanced diploma in Sciences. Razia went onto university to study pharmacology.

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Danielle

Danielle (Danni) was on a programme that should lead to an advanced diploma in Engineering and Manufacturing Technologies. Danni had worked hard at school and had already achieved an intermediate diploma by the age of 16. She had also been a member of her local Open Award Centre for some time and had already completed her residential project as part of the wider activities component of her advanced diploma. Danni had already accumulated over 80 credits towards her advanced diploma, when she became involved with drugs and received a two-year prison sentence.

With the support of the staff at the residential project, and advice from an award contact outside, she set herself the target of using her time to complete as much of her advanced diploma as possible. Danni was granted a special licence which enabled her to leave prison once a week to undertake a peer education project for her service, speaking to other teenagers about the dangers of drug abuse. In the prison kitchens she worked hard for an NVQ in catering for her skill, and in the gym she kept fit with aerobics for her physical recreation.

Released after just a year and a half Danni strived to find her feet in the ‘real world’. Using her credits towards her advanced diploma and her award involvement as a platform she was soon accepted at college, and after some persuading, successfully completed her expedition training and practices, and her final venture - an exploration - on an Open Gold Award. With just the last few months of her skill to complete, Danni signed up for a car maintenance course with the lads at college and successfully completed her award. Danni worked hard at college to complete the other elements of her programme including mathematical skills and ICT skills to advanced level. Danni achieved a merit in her advanced diploma in Engineering and Manufacturing Technologies.

Under the current system Danni’s spell in prison would have severely disrupted her education. It would have been difficult for Danni to return to education to continue where she had left off. The credit that Danni had accumulated towards her qualifications would have been lost.

Danni's commitment to the diploma and the way in which her wider activities had been a positive influence on her has seen her in action as guest speaker on a number of occasions, and shortly after her release she stood before a roomful of prison officers and told them that the diploma had saved her life - a powerful advert. Danni is now half way through her first year at university where she is taking a degree in Engineering.

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Annex N: Membership of the Working Group on 14-19 Reform and the Sub-Groups

I. Working Group on 14-19 Reform

Chair: Mike Tomlinson

Members:

John Berkeley Senior Fellow and Director, Apprenticeship MonitoringUnit, SEMTA/University of Warwick

Simon Culmer Operations Director, Cisco Systems UK and Ireland

David Eastwood Vice Chancellor, University of East Anglia

Carmel Flatley (up to June 2003) Director of HR and Training, McDonald’s Restaurants Ltd

Ian Ferguson (from July 2003) Chairman, Data Connection Ltd

Helen Gilchrist Principal, Bury College

Edward Gould Master, Marlborough College

John Guy Principal, Farnborough Sixth Form College

Carolyn Hayman Chief Executive, the Foyer Federation until August 2004, presently Chief Executive, Peace Direct

Colin Hilton Executive Director, Liverpool City Council

David Melville Vice Chancellor, University of Kent

David Raffe Professor of Sociology of Education, University ofEdinburgh

Jennifer Slater Principal, Northallerton College

Ken Spours University of London Institute of Education

Kathleen Tattersall Former Director General, Assessment andQualifications Alliance

DfES Observers: 2003 - Janice Shiner, Director General for Lifelong learning, DfES 2004 - Rob Hull, Director for Qualifications and Young People, DfES

Secretary: Matthew White

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Secretariat team: Suzanne Agha, Audrey Beckford, Nicholas Holmes, Ashni Jugurnauth, Nancy McLean, Lucy McKenzie, Yvonne Onyeka, Francesca Orpen, Rob Simpson, Kate Taylor

II Sub-Groups

Assessment Sub-Group

Chair: John Guy

Members:

Alan Brown(From January 2004) Warwick UniversityDelyth Chambers University of BirminghamSara Coldicott OCRMike Cresswell AQAMartin Cross Edexcel Andrew Grant St Albans SchoolCelia Johnson DfESSue Kirkham Walton High School, StaffordshireKathleen Tattersall ex- Assessment and Qualifications AllianceRobert Taylor QCALiz Whittome QCAAlison Wolf Institute of Education(Until January 2004)

Secretary: Yvonne Onyeka Secretariat: Ashni Jugurnauth Coherent Programmes Sub-Group

Chair: Jennifer Slater

Members:Gary Forrest QCAStuart Gardner Learning Skills CouncilHelen Gilchrist Edward Gould Carolyn Hayman Chris Humphries City and GuildsJohn Jones DfESMartin Lamb Learning Skills CouncilFiona McMillan Bridgwater CollegeJudith Norrington Association of CollegesDavid Sherlock Adult Learning InspectorateKen Spours Hilary Steedman Senior Research Fellow, London School of

Economics

Secretary: Kate TaylorSecretariat: Francesca Orpen

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Employers Sub-Group

Chair: Brian Stevens

Members:

Nicky Bishop Royal Bank of Scotland GroupMatthew Chiles Business Development Unit, DfESIan Ferguson Data Connection LtdLinda Graham Marks and Spencer PlcCaroline Hughes ClickHere LtdTim Hutchings Hertfordshire Chamber of Commerce & IndustryKalpana Joshi Sector Skills Development Agency Jim Moore Broadmind Consultancy LtdAlice Teague Federation of Small BusinessesStewart Thompson NHSUChris Rogan North West Development Agency

Secretary: Kate TaylorSecretariat: Nicholas Holmes

Higher Education Sub-Group

Chair: David Eastwood

Members:

Patricia Ambrose SCOPRobert Burgess University of LeicesterWilliam Callaway University of HertfordshireKel Fidler Northumbria UniversityAnthony McClaran UCASDavid Melville Jane Minto Oxford UniversityJohn Rushforth HEFCEYvonne Salter Wright University of WarwickRuth Thompson DfESFiona Waye Universities UKGeoff Whitty Institute of Education Secretary: Rob Simpson Secretariat: Suzanna Agha

SEN and Equal Opportunities Sub-Group

Chair: Colin Hilton

Members:

Robert Berkeley The Runnymede Trust(From February 2004)John Brown Diversity and Inclusion Consultant, QCAJeremy Crook Black Training and Enterprise GroupLesley Dee(Until May 2004) Cambridge UniversityJennie Espiner Itchen College

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Peter Gray NASEN Diana Leonard Institute of EducationLiz Maudslay Skill: National Bureau for Students with DisabilitiesGillian Reay OfSTEDRuth Perry QCANicola Rollock(Until February 2004) The Runnymede TrustJanet Ryland Learning and Skills Council (National Office)Christine Steadman OfSTED

Secretary: Yvonne OnyekaSecretariat: Ashni Jugurnauth and Audrey Beckford

Unified Qualifications Framework Sub-Group

Chair: Mike Tomlinson

Members:

Simon CulmerJohn Dunford Secondary Heads AssociationIan FergusonJohn JonesAnn Hodgson Institute of Education David MelvilleJudith NorringtonDavid RaffeBrian StevensKathleen Tattersall

Secretary: Rob SimpsonSecretariat: Suzanne Agha

Young People Contact Sub-Group

Chair: Carolyn Hayman

Members:

John BerkeleyLaura Brickwood National Union of StudentsJulia Carlin The Princes TrustStuart Gardner Learning and Skills CouncilCarol Jackson The National Youth Agency Margaret Maden Formerly of Keele UniversityJohn Ratcliff Learning and Skills CouncilOli Watts Educational Consulting

Secretary: Ashni Jugurnauth

Wider Activities Sub Group

Chair: Mike Tomlinson

Members:

Norrine Betjemann Education and Learning, Arts Council for EnglandDavid Brockington ASDANJennie Butterworth Fairbridge

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Julia Carlin Peter Cross Ministry of DefenceJohn Crossman Contin YouJessica Dabbs Girlguiding UKStuart GardnerBill Garland Community Service Volunteers Scott Hartley Sport EnglandCarolyn HaymanJane Haywood DfESLura Hughes Girlguiding UKRob HullCarol Jackson The National Youth AgencyJohn JonesChristine Kent Raleigh internationalPeter Loewenstein The National Youth AgencyMichelle McKendry Young EnterpriseTom Overstone Scout Association Stephen Peck The Scout AssociationPalle Pedersen YWCA Stephen Quashie National Council Yvonne Richards UK YouthSteve Sharp The Duke of Edinburgh’s Award Roger White ASDANJo Williams MencapKevin Williams YMCARandell Williams English Outdoor CouncilRichard Williams Rathbone CI

Secretary: Francesca Orpen

Apprenticeships Sub Group

Chair: John Berkeley

Members:

John Allbutt DfESBrandon Ashworth Sector Skills Development AgencyMary Curnock-Cook QCAIan FergusonJohn Landeryou Adult Learning InspectorateStephen Gardner Learning and Skills CouncilKeith Marshall SummitSkills (Sector Skills Agency)Graham Hoyle Association of Learning ProvidersCaroline Smith TUC

Secretary: Francesca Orpen

III. Technical Sub Groups

Chair: Kathleen Tattersall

Members:

Bob Adams WJECAngus Alton QCAJo-Anne Baird AQAGeorge Barr City and GuildsTamsin Barton NAA

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Mary Bennett OCRAmy Budd QCAIan Crees OCRElizabeth Gray OCRJohn GuyKaren Hughes EDEXCELTina Isaacs QCACelia Johnson Tom Leney QCAJean Marshall OCRRachael Meech QCAPaul Newton QCAPaddy O’Hagan QCAYvonne OnyekaJeremy Pritchard EDEXCELJim Sinclair EDEXCELPauline Sparkes NAASandra Stalker QCAJeremy Tafler AQA Martin Taylor QCARobert Taylor QCAKath Thomas EDEXCELLiz Walters QCAGillian Whitehouse EDEXCEL

Secretary: Yvonne Onyeka

Entry Level Expert Panel

Chairs:

Ruth Perry QCAJohn Brown QCA

Members:

Roberta Fulford St Hughes Secondary Special SchoolRichard Sharples Education Relations ConsultancyHelen Sexton Association of National Specialist CollegesShereen Benjamin University of BirminghamChristine McDermott Birmingham RathboneCatherine Cole Consultant

Secretary: Yvonne Onyeka

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Annex O: Terms of reference

The Working Group is invited to consider the three overlapping strategic directions for change identified in the Department's response to its consultation on the Green Paper, 14–19: extending opportunities, raising standards, and to make recommendations.

2. The Government is looking for progress over time towards:

strengthened structure and content of full-time vocational programmes, and to offer greater coherence in learning programmes for all young people throughout their 14–19 education;

assessment arrangements for 14–19 year-olds that are appropriate to different types of course and styles of teaching and learning, with the overall amount of assessment manageable for learners and teachers alike; and

a unified framework of qualifications that stretches the performance of learners, motivates progression, and recognises different levels of achievement.

3. In considering these three overlapping areas the Group should identify and propose action to resolve the range of issues affecting an effective 14–19 strategy that have not been already addressed by the agenda set out in the Government's response to its 14–19 Green Paper. The Group is asked specifically to consider the recommendations for the longer term identified by Mike Tomlinson in his second report into A level standards. The Group is also asked specifically to consider the following:

Coherent learning programmes:

4. To examine and, where appropriate, make recommendations on how:

programmes, particularly predominantly vocational programmes, should be better structured to offer clear progress and achievement;

such programmes can be more readily understood as part of a clear framework, progressing from Key Stage 4 to further options in skilled employment or higher education;

such programmes might be developed to achieve broad public recognition and currency with employers and HE providers as a distinctive choice with respected outcomes;

the qualifications goals in programmes can best provide an appropriate combination of general and specialist education;

14–19 programmes generally can help promote the acquisition of essential, practical skills for life, and how also they might encourage the development of analytical, problem-solving and thinking skills and the confidence and ability to present and argue conclusions;

the contribution of employers to the design and delivery of this framework could be strengthened; and

additional breadth and complementary study should be included within the post -16 element of 14–19 programmes, particularly for the most able learners.

5. Though this aspect of the Group's work should encompass all learning within the 14–19 phase, the priority is to address 16–19 programmes of study outside the A level

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route.

6. The Group should focus on programmes from level 1 to level 3 and should reflect the needs of learners at all levels. The Group should include the contribution of the Key Skills qualifications, including the wider Key Skills. The Group will note that the structure and promotion of Modern Apprenticeships have been the subject of a recent major review under the chairmanship of Sir John Cassells and the reforms that are being taken forward by the Learning and Skills Council.

Assessment arrangements

7. To examine and, where appropriate, make recommendations on how the nature and amount of assessment for 14–19 year-olds should develop to ensure that arrangements:

are fit for purpose and match the teaching and learning styles appropriate to both qualification and course of study;

are manageable for learners, taking account of the amount of assessment during the 14–19 phase and during examination periods;

ensure manageable administrative costs on schools, colleges, training providers and awarding bodies;

motivate all learners, including support for those facing physical or social barriers to learning and slower learners so that perception of earlier failure is avoided;

maintain sufficient independence and transparency to deliver consistent, reliable standards; and

command the support of employers, higher education and the wider public, including young people.

This strand of work, which should focus on the principles underpinning effective assessment rather than looking at the detailed arrangements within individual qualifications, will include the assessment of all general qualifications which may be undertaken by young people from the start of Key Stage 4 to the age of 19. It should, however, consider Mike Tomlinson's recommendations for the decoupling of the AS and A2 to create two free-standing qualifications.

8. It should take account of the assessment required at the end of Key Stage 3 to provide a basis for wider curriculum choice at 14.

9. The work of the Group on assessment should include GNVQs and A levels in vocational subjects but excludes NVQs, other occupational qualifications and the requirements of Modern Apprenticeships (but the work of the Group on coherent learning programmes must include NVQs and other occupational qualifications).

A unified framework of qualifications

10. To examine and, where appropriate, make recommendations for a unified framework of qualifications for the 14–19 phase of education that will:

provide a challenge for all learners, including the most able;

embrace the full range of programmes of study; raise standards of achievement at 19;

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provide a template for a broad and engaging educational experience;

deliver consistent robust standards and be capable of rigorous, impartial assessment; and

be capable of commanding a wide range of support among key stakeholders, in particular higher education and employers.

11. The Group should advise on the practical steps that would be necessary to implement such a model, on potential costs and on a process for implementation that would minimise the risk of adverse impact on young people's education or the management of the education system. In doing so, it should consider the merits and implications of decoupling the AS and A2 to create two free-standing qualifications as recommended by Mike Tomlinson, as a practical step towards the implementation of such a model.

12. The Group should include all education and training undertaken by young people in the 14–19 phase. The Group should consider how the achievement of a Modern Apprenticeship should be integrated within the awards structure.

Cross-cutting considerations

13. The Group should have regard to the following cross-cutting priorities:

to increase post-16 participation and attainment, and to narrow the attainment gap;

to enhance diversity and breadth of provision, local innovation and learner choice;

to meet the needs of low achievers and those who face significant obstacles to learning;

to reduce the significance of 16 as a potential break point and focus on outcomes at 19; and

to reduce unnecessary burdens on the system, especially on teachers and learners.

14. The Group will be expected to:

consult and take account of the views and requirements of key stakeholders including employers, higher education and young people themselves;

take account of the ways in which these issues are managed in other countries;

ensure that proposals take due account of the need for value for money and cost-effectiveness in the use of resources; and

take into consideration the early emerging evidence from the 14–19 pathfinder projects.

15. The Group should issue an Interim Report on its findings within a year, with a view to finalising its work within 18 months. It will also be expected to provide interim reports on progress with aspects of its work at intervals to be agreed.

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Annex P: full list of recommendations

Recommendation 1: balanced programmes

To provide all young people with a balance of generic and specialised learning, all 14-19 programmes should comprise:

core learning, designed to ensure that all young people develop a range of generic knowledge, skills and attributes necessary to progress and succeed, including progression over time to at least level 2 in functional mathematics, functional literacy and communication, and functional ICT; and

Main learning, designed to ensure achievement and progression within recognised academic and vocational disciplines which provide a basis for progression within the diploma framework and access to employment, work-based training and HE. Main learning defines the type of programme and may be chosen to reflect learners’ strengths, interests and aspirations.

Recommendation 2: programmes and diplomas

The existing system of qualifications taken by 14-19 year-olds should be replaced by a system of diplomas, available at entry, foundation, intermediate and advanced levels.

Each diploma should be sub-divided into separately assessed components.

A diploma should be awarded for successful completion of a coherent programme meeting threshold requirements at a particular level. Achievements in the programme beyond the threshold should be recorded on a transcript of achievement (see chapter 7).

Young people should be able to enter the framework at age 14 at the level that best meets their capabilities and complete more than one diploma as they progress through the 14-19 phase.

Existing qualifications such as GCSEs, A levels, and NVQs should cease to be free-standing qualifications in their own right but should evolve to become components of the new diplomas.

Recommendation 3: diploma lines and programme types

We propose that there should be up to twenty ‘lines of learning’ within the diploma framework.

Diplomas within each line should be named – and sometimes sub-titled - according to the content of the main learning.

One line should be open, providing a relatively unconstrained choice of subjects and diploma components, similar to the mixed programmes of A levels or GCSEs or equivalent vocational qualifications that many young people currently undertake. Learners should be able to select from a wide choice of subjects and areas of learning, including traditional academic subjects and specially-designed components distilled from the content of specialised diploma lines. In this way, young people would be able to elect to take relatively short vocational options so that they could sample, and make a start on, the content of the more substantial vocational

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pathways represented in the specialist lines.

The other lines should cover a wide range of employment sectors and/or academic areas of study. These lines would not normally be available to pre-16 learners.

Recommendations for integrating the diploma framework and apprenticeships are set out in chapter 8 and exemplified in Annex I.

Recommendation 4: subject aggregations

Drawing upon subject aggregations used successfully here and abroad, QCA works with relevant subject and sector bodies, including subject associations, HE, Sector Skills Councils, employers, and providers to develop a framework and design criteria for up to 20 named lines which:

include a line that recognises achievement in ‘open’ programmes, where learner choice is relatively unconstrained;

cover a wide range of options, combining them where appropriate;

ensure that programme content is relevant to the needs of learners aspiring to particular destinations and to the needs of individual academic and employment sectors;

allow for the development of optional areas of further specialisation;

are flexible and kept under review; and

are transparent and readily understood by end-users.

Recommendation 5: Key Stage 4

All 14-16 year olds should be required to follow the statutory National Curriculum at Key Stage 4 and other statutory curriculum requirements, such as RE, as they are now. Achievement in statutory KS4 subjects, such as science, which are not part of the core, should give credit towards main learning.

Recommendation 6: the core

We propose that the core, common to all programmes and diplomas, should comprise:

functional mathematics;

functional literacy and communication;

functional ICT;

an extended project;

common knowledge, skills and attributes (CKSA);

personal review, planning and guidance; and

an entitlement to wider activities.

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Recommendation 7: functional mathematics, literacy and communication and ICT

We recommend that QCA works with all stakeholders, including end-users and subject experts, to develop core components in functional mathematics, functional literacy and communication and functional ICT which:

are based on an understanding, shared between stakeholders, about what constitute common requirements for informed citizens, effective learners and a wide range of workplaces;

reflect the detailed criteria for these subjects in annex C and, in the case of functional mathematics, build upon the recommendations made by Professor Adrian Smith for reform of mathematics education;

meet the needs of end-users; and

are available at all levels within the diploma framework, from entry level to advanced level.

These components should be available in advance of introduction of the diplomas to begin meeting the needs of employers for more thorough acquisition of the relevant skills.

Until the new components are in place, all young people should continue to be encouraged to undertake the available options, such as Key Skills, in these subjects as part of their 14-19 learning programmes.

Recommendation 8: common knowledge, skills and attributes (CKSA)

Opportunities to develop CKSA should be integrated into all 14-19 programmes through carefully managed institutional teaching and learning strategies. They need not be separately assessed, but delivering them within all programmes would mean that learners cannot achieve their diploma without developing them.

Schools, colleges and training providers should be responsible for ensuring that learners develop the CKSA across the learning programmes which they offer. Specialised diplomas should be designed from the start to recognise the full range of CKSA.

The effectiveness and quality of delivery of CKSA within individual institutions should be monitored through external inspection and centre approval arrangements.

QCA should develop guidance and exemplars setting out how CKSA can be integrated into institutions’ teaching, learning and assessment. Guidance and exemplar models for effective delivery should also be developed. This should include an examination of the role to be played by personal review, planning and guidance.

Building upon existing qualifications and assessment systems which already accredit some aspects of what we have labelled CKSA (such as the wider key skills) diploma components should be available for those who wish some formal accreditation of their attainment within the core and personal development.

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Recommendation 9: personal review, planning and guidance

All 14-19 programmes should include regular formal personal review, planning and guidance to enable learners to:

review and draw together their progress and achievements, and identify the knowledge, skills and understanding they have gained from the full range of their learning;

raise their personal awareness, understand their strengths and identify learning and development needs; and

formulate and review medium- and long-term objectives and goals, based on sound, impartial advice and guidance about the options open to them.

Guidance and exemplar material should be made available to schools, colleges and training providers to support effective delivery and the recording of the outcomes of personal review, planning and guidance.

Recommendation 10: wider activities

Wider activities should not be a compulsory component of the core, but they should be an entitlement for all learners. Learners would be strongly encouraged to undertake one or more wider activities which could be detailed on their transcript if they so wished.

Recording and attestation models should be developed and piloted, involving a range of providers and drawing upon existing practice in this field.

Research should be undertaken to establish the extent of the current provision of wider activities and the strategies required to secure equity of access to provision of an agreed standard.

Options for further enhancing the status of wider activities within the diploma should be kept under review in the light of progress towards securing consistent access for all young people.

Recommendation 11: main learning

Criteria and processes for the development of 14-19 learning programmes and components should be adopted by QCA following the design principles and recommendations set out in this report, as a basis for the design of diplomas and components by awarding bodies and relevant stakeholders.

Particular attention should be paid to:

the need to ensure that the content of specialised diplomas is coherent and relevant to the area of specialisation. In many cases this would mean a single awarding body or consortium taking responsibility for the overall content and division into components of main learning within individual diplomas; and

preserving within individual components the integrity of individual subjects and areas of learning and preventing these from becoming fragmented.

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Recommendation 12: vocational main learning

Vocational programmes giving access to a diploma should replace the existing range of vocational qualifications taken by young people.

These should be developed by awarding bodies, working closely with employer organisations, including SSCs, 14-19 providers and HE. They should build upon the best of existing qualifications and operate within design criteria specified by QCA, based on the design parameters set out in this report.

Most vocational lines should incorporate a substantial period of structured work placement, related to the area of specialisation and giving credit towards main learning.

Centre approval criteria should ensure that vocational learning is only delivered where there are appropriate facilities and teachers, tutors and instructors with relevant expertise.

Recommendation 13: English, mathematics and ICT in main learning

We recommend that - alongside functional maths, literacy and communication and ICT – extended, transition and supplementary components should be available to ensure that these subjects can be pursued in breadth and depth as part of the main learning requirements of 14-19 programmes and diplomas.

Recommendation 14: modern foreign and community languages

In developing the new 14-19 framework the Government should ensure a comprehensive and flexible modern foreign language offer, building upon the national languages strategy, and ensuring that the ‘languages ladder’ is integrated into the reformed system.

The existing entitlement to study a modern foreign language at Key Stage 4 should be extended to 16-19 year-olds.

The diploma lines should include the option to specialise in modern foreign languages.

The design criteria and process for all named diploma lines should ensure that consideration is given to the inclusion of supplementary modern foreign languages learning as either an elective or a compulsory component.

Recommendation 15: interlocking diplomas

All diplomas should contain learning not just at the level of the diploma but also at the level below.

Designers of specialised diplomas should be asked to ensure that that there is some overlap between the intermediate and advanced versions of their diplomas (e.g. that advanced level diplomas contain some intermediate material), whilst also ensuring that the balance of the diploma conforms with the requirements for the relevant level.

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Recommendation 16: using a credit system

Each available diploma component should be assigned a credit value according to the volume of learning it contains, and each diploma should require successful achievement of a minimum number of credits. The way credit is established for 14-19 diplomas should be the same as that for qualifications within the adult framework.

Recommendation 17: meeting the needs of different learners – entry programmes and diplomas

Learners who cannot access full programmes at foundation level or above should have access to programmes based on personalised planning and targets and entry level components.

The entry diploma should incorporate all the principal features of the diplomas at other levels, including all the elements of core and main learning tailored to learners’ needs. The balance between, and levels of achievement within, core and main learning should be allowed to vary according to the capabilities of the learner.

In-course assessment should predominate at this level, supported by training and exemplars to ensure consistent application of standards. Achievement of the diploma should be based on the attainment of individual learning goals.

Successful completion of a personalised programme below foundation level should be recognised through award of an entry diploma.

Entry diplomas should interlock with foundation level through target-setting processes which ensure that learners with the capability undertake components at entry, foundation or higher levels as part of their personalised programme.

Recommendation 18: meeting the needs of different learners – entry programmes and diplomas

Entry programmes and diplomas should provide and recognise a range of options relevant to learners’ particular needs in employment, later learning and adult life. This should include to the opportunity to undertake components in:

o preparing for employment;

o preparing for independent adult living;

o developing study or learning skills; and

o preparing for supported living.

The broad design framework of entry components should be determined centrally, but schools and colleges should be able to develop their own components and programmes to meet the individual needs of their learners.

A central bank of “off the shelf” components should be available to support entry diplomas.

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Recommendation 19: meeting the needs of different learners – foundation and intermediate level

Components and programmes should be developed that recognise the particular needs of learners for whom foundation level would be a significant achievement. These must stand in their own right as effective preparation for employment and adult life for those who are not yet capable of progressing further in learning. Alongside specialised vocational and practical options, these might include components in life skills such as personal finance and food preparation.

Specialised options should be developed within open programmes at foundation and intermediate level, building upon initiatives such as the Increased Flexibility Programme and Young Apprenticeship to provide practical, coherent alternatives to GCSE at Key Stage 4 and to promote progression into relevant open and specialised diploma lines at the end of Key Stage 4.

Assessment at foundation and intermediate components should either:

o enable learners to demonstrate a range of achievement, spanning foundation and intermediate level; or, where this is not possible,

o allow and encourage rapid progression from foundation level to components at intermediate level.

Recommendation 20: in-course assessment

In open diplomas at entry, foundation and intermediate levels, in-course assessment within clear national standards should be the predominant mode of assessment.

Assessment should be based upon a mixture of: ongoing assessment; one-off, time limited, internal and external written and practical tests and examinations; and project/portfolio work.

Teachers should be able to draw upon banks of tests to supplement the assessment tasks which they devise themselves.

The focus of external assessment and quality control should be on ensuring that teacher-led judgements are exercised reliably and consistently, through mechanisms such as institutional inspections and validation, teacher training and development; sampling of learners’ work; and the establishment of a network of Chartered Assessors who can act as a focus for quality-control within their institutions.

Sufficient resources are made available for: the training and development of teaching staff; the quality assurance system set out in paragraph 148; a national information system and ICT infrastructure that supports tracking of performance data; and performance measures and accountability systems that support this form of assessment.

Recommendation 21: assessing functional mathematics, literacy and communication and ICT

Assessment of functional mathematics, literacy and communication and ICT should:

o be externally set, marked and moderated and based on a mastery model;

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o not create a large additional burden on learners, and where appropriate be subsumed within assessment of another relevant subject, such as English; and

o be available to be taken when a young person is ready be assessed in that area.

QCA would need to develop approaches to the assessment of these subjects.

Recommendation 22: assessing the extended project

Assessment of the extended project should be in-course, carried out by teaching staff or suitably qualified people in other organisations, and should assess the quality of the processes as well as the final piece of work.

Assessment should take place in stages throughout the project, including an oral presentation or viva by the learner, and against level descriptions and nationally agreed guidance and criteria.

Recommendation 23: advanced level assessment

Advanced level assessment should be a balance between assessment based on professional judgement (in-course) and formal external assessment which reflects both the nature of the learning being assessed and the levels of differentiation required within individual subjects, areas of learning and individual components.

In time, there should be a shift away from external and coursework assessment towards professional, teacher-led assessment, especially at A1, underpinned by the proposed quality assurance arrangements to maintain the dependability of teacher judgements.

The AS and A2 elements of existing A levels should each consist of two rather than three assessment units. In time, this arrangement should be reproduced in equivalent A1 and A2 diploma components.

the levels of teacher-led assessment currently associated with many vocational and occupational qualifications should be retained.

Recommendation 24: component grading

Each main learning component should be graded appropriately and would use one of three scales:

- fail/pass;

- fail/pass/merit/distinction; or

- for some advanced components, fail/E/D/C/B/A/A+/A++.

These three scales should retain common grade boundaries to establish the equivalence of components graded in different ways.

Recommendation 25: diploma grading

All successfully completed diplomas at foundation, intermediate and advanced level

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should be graded pass, merit or distinction.

Grades above pass should be awarded on the basis of a combination of breadth and depth of achievement.

Grading criteria should be fixed and transparent, so that any candidate who achieves the defined breadth and depth should receive the relevant grade. This means that patterns of achievement may vary over time.

QCA should advise on establishing grading criteria for each diploma line which represent increments of additional value above a threshold pass.

Entry diplomas should not be graded.

Recommendation 26: the transcript

All learners should receive a transcript, detailing achievements within their 14-19 programmes to accompany the award of a diploma and to provide a record of their progress at key transition points, such as moving between institutions.

The transcript should be available electronically and be capable of acting as an on-line gateway to further more detailed information about the learner.

Recommendation 27: integrating apprenticeships

All apprenticeships at levels 2 and 3 (equivalent to intermediate and advanced levels) should eventually incorporate the same components of core learning that are adopted for every other 14-19 programme at that level, but with sector bodies determining all other aspects of programme content to meet the employment requirements of their sector and satisfy the needs of the young people concerned.

Sector bodies should be encouraged to adopt the components of core learning by the early development and release of specifications and the provision of appropriate resources and support to assist their introduction.

Technical Certificates used in apprenticeship should, from the start, feature as options within relevant diploma lines.

Sectors with apprenticeships that already include some or all of the components of core learning and meet the minimum threshold size of an intermediate and/or advanced diploma award should be encouraged to align their frameworks with the diploma system, with appropriate incentives for them to do so.

Once the appropriate systems are in place, trainees should receive full credit for all their achievements during the apprenticeship programme and recognition by means of the transcript.

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Recommendation 28: bridging between diplomas and apprenticeships

Once the new diploma system is in place for all 14-19 year-olds:

apprentices whose sector frameworks do not meet the threshold requirements for a diploma award should be guaranteed access to impartial advice and guidance on completion of the relevant diploma, if they wish to do so; and

sector bodies with apprenticeship frameworks which do not meet the threshold requirements for a diploma award should design one or more ‘bridging programmes’ to enable those who wish to do so to complete a full diploma that is relevant to the employment needs of the sector and satisfies the aspirations and potential of the individual.

Recommendation 29: reducing the assessment burden

GCE A level specifications should be revised to reduce the number of units in an A level from six to four, and reduce the weight and prescription of the assessment criteria, as already proposed by QCA.

GCSE and GCE should have no specific requirement for coursework.

Research into the impact on attainment for specific groups of learners should be undertaken.

The NAA’s work on modernisation should be extended to cover the vocational awarding bodies.

Moving swiftly to establish a single point of entry for registration of learners for qualifications would reduce considerably the assessment burden on centres.

Use of electronic learning and assessment in 14-19 provision should be extended.

Recommendation 30: Key Stage 3

5-14 education, and particularly KS3, should be reviewed to ensure that it prepares young people to make the most of opportunities post-14. Particular attention should be paid to lessons from the KS3 strategy and 2 year KS3 pilot, particularly in focusing on basic skills, and options for enhancing curriculum flexibility to allow time for learning.

Systems should be introduced for identifying and measuring, during KS3, as full a range as possible of each young person’s latent potential, in the form of aptitudes, interests and other characteristics, as a basis for building confidence and motivation, informing the choice of pathways through the 14-19 phase, underpinning the development of individual learning plans and choice of work experience placements, and providing a foundation for subsequent career, learning and life decisions.

Recommendation 31: aligning 14-19 and adult learning

The approaches to credit in the diploma framework and Framework for Recognising Achievement should be developed to ensure consistency and transferability where appropriate across the two frameworks.

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Recommendation 32: institutional performance measurement

In reforming the performance management system, the Government should pay particular attention to:

promoting participation at levels appropriate to the young people concerned, by recognising increased success in keeping young people in learning, especially after the end of compulsory schooling;

fostering flexible progression throughout the 14-19 phase which recognises that not all programmes at a given level will take the same length of time for all learners, especially by focusing on continued participation and distance-travelled, rather than specific outcomes at specific ages, before the end of the phase;

recognising institutions’ success in raising the highest level of achievement which their learners reach, especially by focusing on achievement when young people leave the phase;

ensuring that the achievements of all young people are counted, enabling all young people to feel pride in their achievements;

recognising the collaborative efforts of all those institutions which contribute to 14-19 programmes, by giving credit for success to all partners in collaborative arrangements; and

promoting responsible, professional assessment by teachers, by ensuring that their primary consideration is to deliver valid, dependable judgements on their learners, rather than to provide institutional performance monitoring data.

Recommendation 33: implementation strategy

The strategy for implementing reform should include:

early implementation of some changes that would deliver benefits in their own right and pave the way for implementation of the new system;

continuation and support of curriculum innovation projects to encourage them to accommodate and pilot elements of the new system;

establishment of a four year pilot of the diploma system with a sample of 14-19 year olds. Evaluation of the pilot prior to full roll-out should consider whether it meets the objectives we have set and whether it has any adverse impacts on specific group of learners; and

extensive research and modelling of the proposals and their impact on institutions and systems.

A strategy for communication between those involved in delivery, and with stakeholders, young people and the public should be established in the early stages of the work and maintained throughout.

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Recommendation 34: resources

We recommend that funding of the reforms should take account of:

transition costs, including:

o workforce development

o curriculum and assessment development

o developing and piloting the diploma components and system in operation, including the infrastructure to support the system

o building the national and local infrastructure - including ICT-based information systems, and awarding infrastructure support for extended projects, wider activities and common skills, local planning and increased collaboration

o communication;

steady state costs, including:

o the impact of increased participation, greater take up of vocational courses and their additional cost and higher average programme volume

o funding per pupil

o local infrastructure, to support the assessment system, local timetabling, increased collaboration and improved, information advice and guidance with better advice on pathways and opportunities

o maintenance of national infrastructure, including ICT and data management to support the diploma system.

Recommendation 35: advising on implementation

Alongside the implementation programme, management arrangements would be needed to ensure that all the strands of activity are coordinated and contribute effectively to the implementation process. We recommend the establishment of an independent advisory panel comprising key stakeholders and experts (including young people and representation of equal opportunities issues) to advise upon the implementation of the reforms.

Recommendation 36: decoupling of AS and A2 (Annex J)

AS and A2 should be decoupled as A1 and A2 diploma components at the point of transition from free-standing A levels to the diploma system.

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