Sheila Edward

Modernisation and the Role of Policy Levers in the Learning and Skills Sector.

This paper examines the changing use of policy levers in the English postcompulsory education and training system, often referred to as the learning and skills sector (LSS). Policy steering by governments has increased significantly in recent years, bringing with it the development of new forms of arms‐length regulation. In the English context, these changes were expressed during the 1980s and 1990s through neoliberal New Public Management and, since 1997, have been extended through the New Labour government’s project to further ‘modernise’ public services. We look here at the changing use of policy levers (focussing in particular on the role of targets, funding, inspection, planning and initiatives) over three historical phases, paying particular attention to developments since the formation of the Learning and Skills Council (LSC) in 2001. We conclude by considering the range of responses adopted by education professionals in this era of ‘modernisation’.

Endless change in the learning and skills sector: the impact on teaching staff

This paper explores the impact of change on tutors and managers in 24 learning sites in England, in vocational courses at Level 1 or Level 2 1 in further education (FE) colleges and in basic skills provision in adult community education and workplaces. We discuss the views of these participants in the research project, The Impact of Policy on Learning and Inclusion in the Learning and Skills Sector, funded through the Teaching and Learning Research Programme (TLRP) of the UK Economic and Social Research Council (ESRC), in relation to other research on professionals in the sector. We then consider in turn the diversity in a group of tutors and managers we interviewed; their perceptions of the sources of change in their sector; and changes in the learner groups with whom they work. Three examples of changes affecting staff, and their responses to those changes, are then discussed, one from each of the research contexts: FE colleges, adult and community learning (ACL) and work‐based learning (WBL). We raise serious questions about the pace of policy‐led change, the management of change and professionals’ responses to turbulence in the sector, and stress the need to consider the impact on staff, and to listen to those who work closely with learners.

‘Bunking off’: the impact of truancy on pupils and teachers

There is widespread interest in the impact of unauthorised absence on pupil attainment, links with disaffection, exclusion from school and criminality. However, little is heard about what those who take unauthorised absence from school think that the effect has been on them; nor do we hear the voices of other pupils and their teachers. This article presents evidence from a one‐year study of absence in seven local authorities in England funded by the Department for Education and Skills. It defines ‘truancy’, explores some issues from existing literature on pupil non‐attendance, and presents evidence to show the impact that absence from school has on truants, other pupils and teachers. Finally, it suggests that although the greatest impact is on the academic and socio‐psychological development of persistent absentees, the attitudes and learning of other pupils and the workload and morale of teachers are also affected.

How policy impacts on practice and how practice does not impact on policy

The TLRP project reported on in this article attempts to understand how the Learning and Skills sector functions. It traces how education and training policy percolates down through many levels in the English system and how these levels interact, or fail to interact. The authors first focus upon how policy impacts upon the interests of three groups of learners: unemployed people in adult and community learning centres, adult employees in work-based learning and younger learners on Level 1 and Level 2 courses in further education. They focus next upon how professionals in these three settings struggle to cope with two sets of pressures upon them: those exerted by government and a broader set of professional, institutional and local factors. They describe in particular how managers and tutors mediate national policy and translate it (and sometimes mistranslate it) into local plans and practices. Finally, the authors criticise the new government model of public service reform for failing to harness the knowledge, good will and energy of staff working in the sector, and for ignoring what constitutes the main finding of the research: the central importance of the relationship between tutor and students.

Riding the waves of policy? The case of basic skills in adult and community learning in England

This paper draws on data from secondary sources and in‐depth interviews to explore the question: What is the impact of policy on teaching, learning, assessment and inclusion in Adult and Community Learning (ACL) Skills for Life (SfL) provision? In particular, it focuses on the government’s use of five policy‐steering mechanisms—funding, inspection, planning, targets and policy initiatives (in this case SfL). The design of the study allows us to use evidence from four sets of interviews with teachers, learners and managers of ACL in eight sites of learning (four in London and four in the North East) over a period of 26 months of considerable policy turbulence. We argue, first, that there is a symbiotic relationship between ACL and SfL provision; and second, that while the combined effects of targets and funding have the most powerful effects on tutor and manager actions, inspection, planning and tutors’ and managers’ own professional values also have an important role in shaping the teaching of literacy and numeracy in ACL sites. We conclude by suggesting that professionals at the local level should be allowed to play a greater role in SfL policy‐making to ensure effective policy and practice.

A new learning and skills landscape? The central role of the Learning and Skills Council

This is the first paper from a project which is part of the Economic and Social Research Councils programme of research into ‘Teaching and learning’. The project, entitled ‘The impact of policy on learning and inclusion in the new learning and skills sector’, explores what impact the efforts to create a single learning and skills system are having on teaching, learning, assessment and inclusion for three marginalized groups of post‐16 learners. Drawing primarily on policy documents and 62 in‐depth interviews with national, regional and local policy‐makers in England, the paper points to a complex, confusing and constantly changing landscape. In particular, it deals with the formation, early years and recent reorganization of the Learning and Skills Council (LSC), its roles, relations with government, its rather limited power, its partnerships and likely futures. While the formation of a more unified learning and skills system is broadly seen as a necessary step in overcoming the fragmentation and inequalities of the previous post‐16 sector, interviewees also highlighted problems, some of which may not simply abate with the passing of time. Political expectations of change are high, but the LSC and its partners are expected to carry through ‘transformational’ strategies without the necessary ‘tools for the job’. In addition, some features of the learning and skills sector policy landscape still remain unreformed or need to be reorganized. The LSC and its partners are at the receiving end of a series of policy drivers (e.g. planning, funding, targets, inspection and initiatives) that may have partial or even perverse effects on the groups of marginalized learners we are studying.

Learners in the English Learning and Skills Sector: the implications of half-right policy assumptions

The English Learning and Skills Sector (LSS) contains a highly diverse range of learners and covers all aspects of post‐16 learning with the exception of higher education. In the research on which this paper is based we are concerned with the effects of policy on three types of learners—unemployed adults attempting to improve their basic skills in community learning settings, younger learners on Level 1 and 2 courses in further education colleges, and employees in basic skills provision in the workplace. What is distinctive about all three groups is that they have historically failed in, or been failed by, compulsory education. What is interesting is that they are constructed as ‘problem learners’ in learning and skills sector policy documents. We use data from 194 learner interviews, conducted during 2004/5, in 24 learning sites in London and the North East of England, to argue that government policy assumptions about these learners may only be ‘half right’. We argue that such assumptions might be leading to half‐right policy based on incomplete understandings or surface views of learner needs that are more politically constructed than real. We suggest that policy‐makers should focus more on systemic problems in the learning and skills sector and less on problematising groups of learners.

Policy and practice in the learning and skills sector: setting the scene

This paper sets the scene for a collection of papers based on The impact of policy on learning and inclusion in the learning and skills sector, a research project funded from January 2004 until July 2007 by the UK Economic and Social Research Council (ESRC) as part of their Teaching and Learning Research Programme (TLRP). We raise some general issues about researching the impact of policy, and offer a brief description of the learning and skills sector in England, highlighting two important features: its turbulent recent history, and the diversity and divisions within the sector. We then outline the scope of our research and discuss aspects of our methodology, which has sought to engage practitioners and policymakers in a variety of ways throughout the project. Finally we introduce the six other papers produced by members of the project team in the second and third year of the research, and the two commentaries from our external discussants, Mary Hamilton and Phil Hodkinson.

Is the Freedom of Information Act driving records management in further education colleges

This article presents key findings from a JISC‐funded research project “Developing records management in further education: responding to the requirements of the Freedom of Information Act 2000”, considering issues raised in a study of 15 colleges in northern England in 2003. It highlights difficulties of raising awareness of records management in this context; the value of the “Model action plan for achieving compliance with the Lord Chancellor’s Code of Practice on the management of records in higher and further education institutions”; and barriers to be overcome in institutions where the appointment of a professional records manager is not a possibility. It considers whether preparations for FoI have had an impact on records management in this sector, and whether this is likely to continue or increase in future, after the Act comes into force in England, Wales and Northern Ireland in January 2005.