The national qualifications system: a rich ecosystem or an impenetrable jungle

1
The national qualifications system a rich
ecosystem or an impenetrable jungle?

• Tim Oates
• Group Director
• Assessment, Research Development
• Cambridge Assessment

2
An autobiographical excursion into system
revision the case of GNVQs
3
The rationale behind the development of GNVQs

• Failure to develop third route high status
  technical schools in wake of 1944 Act
• Breakdown of apprenticeship
• Development of NTI as a response to system
  failure
• Desperation of NTI-2 in the face of rising youth
  unemployment
• Insistence on short term training to minimum
  competence
• Growing instability in market segmentation
  amongst awarding bodies
• Failure to assert distinctive certification in
  TVEI
• Youth Certification Board emphasis on short
  duration, outcomes-based qualifications
• Breakdown of CPVE

Did this constitute comprehensive legitimation
for the introduction of a state-led revisionist
qualification?
4
An analytic framework for transnational
comparisonKey control factors associated with
compulsory schooling

• (national) curriculum content
• assessment and qualifications
• national framework for qualifications
• inspection
• pedagogy
• professional development
• institutional development
• allied social measures
• funding
• governance (autonomy versus direct control)
• accountability arrangements
• labour market/professional licensing
• allied market regulation (eg health and safety
  legislation insurance regulation)

5
it is the interaction of (these) factors which
determines the precise character of regulation in
each national setting and the relative weight of
specific mechanisms of regulationthese might
best be characterised as control factors which
public policy may or may not choose to make use
of. (Oates T, 2005).
6
But
The identification of control factors is
insufficient to explain the reasons why
particular blocks of public policy focus on
specific control factors rather than others.
7

• German reaction to PISA
• Australian development of federal tests
• Oscillating state-federal relations in the USA

8
Need to focus on the why of development trends
as well as the what

• Key driving concepts
• In England coherence has been a key driving
  concept of qualifications regulation and reform

9
Coherence
This notion of coherence has never been
articulated in such a way that it could be
subject to public scrutiny. It has been defined
operationally by virtue of the strategies and
policy measures put in place in its name. At the
heart of the concept is a simple notion that
there are too many qualifications in the English
system, and that locating qualifications into a
national framework of 8 levels will aid
transparency and progression. These assumptions
require scrutiny.
10
GCE Advanced level number of qualifications
Advanced level 1951 32 First year 1997
104 Pre C2K 2006 80 (A-level) 91 (A/AS
level) GCSE 1997 165 2006 89
11
GCE subjects at Advanced level available in 1951

• Pure Mathematics
• Mathematics Pure
• Mathematics Applied
• Physics
• Chemistry
• Botany
• Zoology
• Biology
• Geology
• Art
• Music
• Domestic Subjects
• Geometrical and machine drawing
• Woodwork
• Handicraft (woodwork metal work combined)
• TOTAL 32

• English Literature
• Geography
• History
• Ancient History
• English Economic History
• British Constitution
• Economics
• Elementary Statistical Method and Accounting
• Religious Knowledge
• Latin
• Greek
• French
• German
• Spanish
• Italian
• Russian
• Any other approved language

12
GCE, AVCE, subjects available or in development
2002
13
A level entry 1951 and 1999(excluding AS)

• 19511
• 104,000 subject entries 37,000 candidates total
  18yr olds 546,710 6.8 entered
• nb England Wales
• 19992
• 586,428 subject entries 192,282 candidates total
  18 yr olds 613,500 31.3 entered
• nb England only
• 1Higginson Report 1988
• 2DfES

14
1938 regulations for London Higher School
Certificate

• candidates have to satisfy the examiners in one
  of five groups of subjects
• Group A Classics
• Group B modern languages (French, German,
  Spanish, Italian or Russian), English,
  history, geography, music, economics, art and
  religious studies
• Group C mathematics (pure and applied)
• Group D sciences and geography
• Group E modern languages (French, German,
  Spanish, Italian or Russian), mathematics,
  humanities

15
Grading in the Higher School Certificate

• There were no grades as such successes were
  reported in terms of marks. The certificates
  recorded only main passes (40 of the marks or
  more) and main passes with distinction (75 or
  more). There was also a subsidiary level pass
  awarded in most subject groups to those who
  obtained 30 to 39 of the marks. In groups A, B,
  D and E candidates had to pass a minimum of three
  main subjects, and in group C two main and two
  subsidiary subjects at the same examination, to
  be awarded their certificate and obtain inter
  exemption. Three main subject passes, or two
  main and two subsid passes became the norm.

16
The myth of 20,000
Curnock Cook will need to be as hard-hearted as a
parent weeding out old toys for the charity shop
that the kids haven't played with for years but
which they tearfully protest must stay. She
says she is not just talking about a reviewing
and slimming down exercise. "I have in mind
something a little more radical than that -
tinkering with the system is not enough."
.This much she is adamant about, although she
readily admits that she is still reading her way
into the job and trying to find out about the
squirming multitude of vocational qualifications.
One thing her new colleagues at the QCA haven't
been able to tell her is how many there are of
these. Some pundits say there are 16,000, others
25,000. The latest edition of British Vocational
Qualifications, published by Kogan Page, stops
counting at 3,500. What Curnock Cook has been
told is that there are more than 100 accrediting
bodies, and she can no doubt work out for herself
that this promises a bumpy ride. Look out, ye
honourable forkbenders Guardian Tuesday October
28, 2003
17
The myth of 20,000
The figure of 20,000 has entered public
discourse and has stuck in peoples minds. This
figure in fact derives from a request by Sir
William Stubbs (then Chief Executive of FEFC) to
the FEFC data unit, prior to the formation of QCA
in 1997. It is a highly problematic figure, and
was simply the total number of qualifications
known to FEFC. Crucially, it did NOT exclude
duplicate entries on the database (errors) the
same qualification offered by a different
awarding body old versions of revised
qualifications and completely redundant
qualifications. It should not be used as a
system reference. The English, NI and Welsh
baseline for accredited qualifications is
provided by the National Database of Accredited
Qualifications (NDAQ) http//www.accreditedqualifi
cations.org.uk/ and this yields a number of 5850
at May 2007. Oates T 2007
18
Memorandum submitted by the Federation of
Awarding Bodies (FAB) January 2007
the often quoted figure of 5,000 accredited
qualifications is misleading, both in terms of
the strategic policy view on reform, and in terms
of presenting the qualifications framework to
employers and the public. Many individually
listed qualifications differ from each other only
by one or two units. They are in effect optional
routes within the same qualification and would be
better shown as such. Linked qualifications
across levels of the framework similarly appear
as discrete and unrelated.
19
Memorandum submitted by the Federation of
Awarding Bodies (FAB) January 2007

• Cont
• One example of such anomalies in counting is
  that there are 17 distinct Key Basic skills
  qualification titles available for learners but
  these are counted as 442 separate titles on
  OpenQuals, the qualification regulators database.
  
• A better organisation of the presentation and
  reporting of the framework would probably show
  the bulk of its content as occurring in a few
  dozen linked qualification suites.

20
The reality of numbers of qualifications in state
systems England and Germany
Advanced level study
In Germany the Abitur essentially refers to the
final exams only. These generally consist of sets
of written examinations and oral examinations.
The Abitur usually requires specialisation in
four subject areas. The subjects covered in these
examinations vary according to the specialisation
chosen by the pupil during the last 2-3 years at
a Gymnasium (grammar school equivalent). It is
essential to note that individual German states
have a measure of independence in the design of
its educational systems with respect to federal
laws. The Abitur differs in different
states. Hauptschulabschluss and the
Realschulabschluss are lower level school leaving
certificates which do not allow matriculation in
HE.
21
Advanced qualifications summary comparison
While the A level and Abitur are very different
in form, the degree of variation within each of
the two systems is comparable. It cannot be
claimed that one is more coherent than the other
certainly, the German system is not startlingly
more coherent.
22
The reality of numbers of qualifications in state
systems England and Germany
Vocational qualifications There are 5850
qualifications on the QCA database, of which 938
are mainstream general academic qualifications.
The bulk of the remainder are vocationally-oriente
d or miscellaneous in type. This give an
approximate figure of 4800 vocational
qualifications and other qualifications. This
is comparable to the 4,070 in the German system
150 FT State-specific qualifications 420
vocational qualifications in the Dual System of
Apprenticeship (3yr employment-based programmes
in which around 50 of the 16-19 cohort
participate) 3,000 chamber of commerce
qualifications 500 continuing education
qualifications
23
The reality of numbers of qualifications in state
systems England and Germany
Cont Vocational qualifications summary
comparison Despite Germany being perceived as a
highly ordered and coherent system and England
being putatively incoherent, numbers are
broadly in line between the two
systems. Industry and other qualifications Qualif
ications outside the approved list of
QCA-accredited qualifications take many forms
HE qualifications industry-specific awards
relating to occupational competence
international qualifications local awards etc.
These also exist in Germany
24
Trends in Germany
General education Convergence on national
standards for Abitur assessment in the wake of
PISA 2000 results implementation of uniform
standards of education for sixth form students
throughout Germany (years 12 to 13) in
2010. Weigel TM 2004 Loick A 2008 Vocational
education and training Increasing adaptation of
national training standards to employer
requirements, introduction of Lernfeld Theorie
Steedman H 2002 Fuhrmann N 2008
25
Most common combinations of A level subjects 2005
2005
Source Cambridge Assessment A level Choice
Report 2007
26
A level choice
Importance of reasons for choosing AS or A2
subjects proportion of times each reason was
rated as Very important
These data were triangulated by reverse
questions Source Cambridge Assessment A level
Choice Report 2007
27
Policy oscillation between inclusivity and
exclusivity
First statement of NVQ framework inclusive The
NVQ framework (RVQ 1986) originally was an
inclusive framework. With pressure to fill up the
framework rapidly, NCVQ use provisional
accreditation to admit existing, popular
qualifications. Second statement of NVQ
framework exclusive By 1988, the criteria for
NVQs had been tightened considerably, with
qualifications having to assume a strict form in
order to be recognised they had to be
unit-based, use a specific method for
development, and correspond to a strict set of
linguistic principles.
28
Policy oscillation between inclusivity and
exclusivity
Cont Third statement of NVQ framework
inclusive By 1995, it was clear that little
further growth in the number of NVQ would be
achieved particularly at higher levels if
qualifications admitted to the framework had to
follow very strictly the NVQ criteria. The focus
shifted from highly convergent and restrictive
criteria which in any case had begun to drift
in order to allow continued accreditation of
qualifications across different areas of the
framework - to a position which allowed
qualifications of different form into the
framework but only if they were based on agreed
national occupational standards. Dearing
proposals exclusive The original model for the
NQF was based on GCSE, GCE, GNVQ and NVQs as the
mainstays of the system, but with a wider variety
of qualifications to be admitted at level 1, in
order to meet the diverse needs of the entry
level group(s).
29
Policy oscillation between inclusivity and
exclusivity
Cont The NQF inclusive Despite the Dearing
Reviews emphasis on GCSE, GCE, GNVQ and NVQs, it
became clear that education and training
providers would continue to use a wide range of
qualifications outside this group of
nationally-preferred qualifications. Given
this, using the framework as a quality assurance
mechanism (through accreditation tied to approval
for public funding) would provide greater public
accountability in the system, and greater
potential for long term convergence. NQF
rationalisation exclusive In 2003, QCA
launches on a drive to reduce the number of
qualifications and increase coherence in the
education and training system, re-iterating the
suggestion that, by contrast with other nations,
England has a jungle of qualifications.
30
Policy oscillation between inclusivity and
exclusivity
Cont Tomlinson Report exclusive The 2004
Tomlinson report advises Government on the
adoption of Diplomas as a means of introducing a
unified education and training system, the
Diplomas to replace all mainstream
Government-funded 14-19 provision in both
academic and vocational tracks. PM
announcements inclusive The same night as the
launch event of the Tomlinson Report, the then PM
Tony Blair announces the continued commitment to
GCSE and A level. Later announcements promote an
entitlement to the International Baccalaureate in
all LEAs Foster Report inclusive The 2005
Foster Report results in recommendations in the
2006 White Paper, giving awarding powers to
individual FE colleges
31
Policy oscillation between inclusivity and
exclusivity
Cont First statements of Diploma policy
inclusive Diplomas designed as niche
qualifications in vocational pathway. Second
statement of Diploma policy exclusive 2007
Initial policy statements on Diplomas suggest
that they would replace all preceding
Government-funded qualifications in the 14-19
system Third statement of Phase 1-4 Diploma
policy inclusive 2008 Retention of existing
qualifications alongside Diplomas, with final
policy subject to the findings of review in the
second decade of this century. Awarding powers
given to industrial training providers and FE, in
line with Foster report recommendations
32
Two explanations for oscillation
centralising tendency (trend towards
exclusivity) associated with judgement that
sufficient control sense of threat (trend
towards inclusivity) The precise attitude to
inclusivity (letting many diverse things in)
versus exclusivity (letting only a few things in
on the basis that they meet very tightly
specified quality criteria) has been moderated by
the extent to which policy makers feel that
non-framework qualifications will persist outside
the framework. Where it appears that the status
and credibility of the framework may be
threatened by the continued existence of
qualifications outside the framework, then we
have seen relaxation of the criteria and a
expansion of the scope of the framework, to allow
more ready inclusion of such qualifications
33
Emergence of new policy instruments
A significant swing in policy makers
interpretation of the way in which a national
framework and national qualifications criteria
can be used to secure greater control/public
accountability and convergence. Attention has
switched from the national development of
qualifications (eg NVQs) to the integration of
qualifications from diverse sources into a
national framework.
34
QCA web based guidance on the National
Qualifications Framework
Last updated 03 Mar 2006 The National
Qualifications Framework (NQF) sets out the
levels against which a qualification can be
recognised in England, Wales and Northern
Ireland. It helps learners make informed
decisions about the qualifications they want to
pursue, by comparing the levels of different
qualifications and identifying different
progression routes. The accreditation of
qualifications makes sure they are of a high
quality and that they meet the needs of learners
and employers. http//www.qca.org.uk/qca_12949.as
px accessed 16 04 08
35
The deeper sources of incoherence and poor
participation

• System management and development factors
• (national) curriculum content
• assessment and qualifications
• national framework for qualifications
• inspection
• pedagogy
• professional development
• institutional development
• allied social measures
• funding
• governance (autonomy versus direct control)
• accountability arrangements
• labour market/professional licensing
• allied market regulation (eg health and safety
  legislation insurance regulation)

36
What does restriction achieve?
What public goods can it deliver? to whom?
by what mechanisms? and with what unintended
consequences? Consumer protection Securing
goods not secured by other mechanisms
37
Diverse forms of restriction
NQF Credit Qualifications criteria Number of
qualifications Diplomas
38
Primary goods of education and training high
level
Maximum motivation and engagement (participation
at micro and macro level) Highest levels of
learning matched to the needs of individuals
society and the economy
39
Primary goods detail level
Retention of necessary minority qualifications
Assessment which supports learning Rational
provision in segments coherent adjacent
qualifications and optimised linkages to
progression routes Applying restriction to
achieve these goods is a matter of complex
judgement and therefore a sound evidence base and
high accountability is vital
40
Evidence of an inadequate number of
routes/qualifications
Ancient history 21st C science Growth of
interdisciplinary areas Maths - internal
conflict in QCA - representations of subject
associations - 2001 AS awarding problems -
reducing participation - standards over time
studies - discussion re maths unit for
Engineering Diploma Contradictions of
participation versus high attainment for
specialist 1st cycle HE