16:00 - The House divided: - Ayes: 239 / Noes: 308 - Question accordingly negatived.
Stephen Twigg
The hon. Gentleman is absolutely right and that is part of the reason we have said that English and maths should continue beyond 16, right up to 18. As an advanced industrialised country we are unusual in not requiring learners to continue with both mathematics and the home language, and we have put forward that positive reform precisely to meet the concern raised. I see nothing in the Government’s proposals for EBCs that will address that bad situation, and a real risk that it will make it even worse.
When the Secretary of State set out his proposals last September he had no plans to include vocational education. A few weeks later, the Labour party set out its proposals, including for a technical baccalaureate. How did the Secretary of State respond? The Conservatives put out a press release stating that the certificates would “make young people unemployable.” That is what they said in September. Two months later the Under-Secretary of State for Skills, the hon. Member for West Suffolk (Matthew Hancock), who is not in the Chamber today, supported Labour’s Tech Bac. We have seen from the Secretary of State that vocational education is, at very best, an afterthought, and in reality his policy on vocational education is a total shambles. I believe that education is crucial.
The Secretary of State for Education (Michael Gove)
The hon. Gentleman’s predecessor as shadow Secretary of State, the right hon. Member for Leigh (Andy Burnham), welcomed in full the Wolf report on vocational education, which preceded consultation on academic subjects. Does he welcome it in full, or has he changed Labour’s position?
Stephen Twigg
I certainly welcome the Wolf recommendations in full—absolutely in full. They provide an important guide for the work we are doing to develop vocational education. However, the Secretary of State may want to return to the Dispatch Box to explain why the Conservatives dismiss the technical baccalaureate—will he take this opportunity to support it?
Michael Gove
I am delighted to take this position again. I do not want to turn this into a conversation, but it is striking that before I asked my question the hon. Gentleman said our plans for vocational education were a shambles and he now says that the report, which we have implemented in full, was absolutely right. I am therefore in two minds about what the shadow Secretary of State’s position is on vocational education. On the one hand he endorses the Wolf report, which we have implemented, and on the other hand he says that our proposals for vocational education are a shambles.
Stephen Twigg
The reality, as a number of colleagues on my side were shouting, is that the Secretary of State has not implemented fully the Wolf report. We will support him in doing so. We will work with the Government to develop a technical baccalaureate if they are serious about it. However, if the Government were really focused on these issues, they would not have done what they did to the engineering diploma.
Stephen Twigg
The Secretary of State is keen to intervene and I will take his intervention. Why did it take the intervention of the Chancellor of the Exchequer to reassemble the engineering diploma?
Michael Gove
Which parts of the Wolf report implementation have we not fulfilled that the shadow Secretary of State would like us to fulfil?
Stephen Twigg
The full implementation of English and maths right through to 18 is in the Wolf report and the Government have not said that that is one of their plans. We believe, for the reason given by the hon. Member for Henley (John Howell) on the Government Benches, that English and maths to 18 is vital to our future. The technical baccalaureate is a proposal that we have made and the Secretary of State’s junior Minister has backed it. We want to see movement forward. It is not just about the Wolf report; it is about moving forward to a system where we have vocational qualifications that are fit for purpose and where English and maths sit alongside those good, vocational qualifications.
Michael Gove
The hon. Gentleman says that there is one thing in the Wolf report that we have not implemented—English and maths to 18. I would contest that. Is that the only thing that he can think of? Have we implemented everything else? I should point out that there is no reference to the technical baccalaureate in the report.
Stephen Twigg
I am sorry that the Secretary of State seems to regard young people continuing with English and maths to 18 as a trivial proposal in the Wolf report—it is a central, important proposal. If he moves to implement it now he will have our full support, because it is vital to the future of this country. If vocational education really was at the heart of the Government’s proposals, why was he silent about it when he made his announcement in September? Why was the focus of the announcement in September on the EBacc subjects and anything else an afterthought: EBacc certificates for English, maths and science, EBacc certificates later for the other EBacc subjects, and then some vague possibility that Ofqual would devise other certificates for other subjects? If vocational education in creative and other academic subjects were really being given the seriousness that the Secretary of State claims, we should have a set of reforms that apply across the entire curriculum, not the narrowing of the curriculum that the Government have proposed through their English baccalaureate certificates.
Michael Gove
I would just like to repeat my question. Are there any other recommendations in the Wolf report that we have not implemented?
Stephen Twigg
The Secretary of State should stop digging. I welcome the Wolf report. It was published, as he pointed out, when my predecessor was in this position. I have been in this position for 15 months. The Wolf report is important, but the world is moving on. It took us to propose a technical baccalaureate. I am delighted that, albeit belatedly and half-heartedly, the Government seem to be supporting that, but my central point is that he set out proposals last September that were silent on the technical and practical subjects that are so vital to vocational education. I look forward to the day when I answer the right hon. Gentleman’s questions from the Government side of the House, but he seems very keen to question me today. I will of course take his final intervention.
Michael Gove
I am sure we are all grateful that this will be the final one. First of all, the hon. Gentleman says that we have moved on from the Wolf report, so having welcomed it he now believes it is obsolete—that is interesting. [Interruption.] Well, if it is not obsolete, can he tell us which aspects of the Wolf report—not the one that he has mentioned; we will return to that—we have not implemented? Are there any others at all? I am all ears.
Stephen Twigg
I reaffirm that we welcome the Wolf report in full. We are in favour of English and maths to 18. As the right hon. Gentleman acknowledged, the Government did not come forward with proposals for that. When and if they do so, we will give them our support. The Wolf report is very important. It is not obsolete; it is an important piece of work that needs to be fully implemented. We will support full implementation, but we need then to move to build on that. The technical baccalaureate is a proposal to achieve that. English baccalaureate certificates that will not be in crucial creative, technical and practical subjects risk undermining the progress that the Wolf report has given us. If he says that we are going to have a new—I think he has used the term “golden standard”—qualification called the English baccalaureate certificate that will apply only to certain subjects and will be given a high status in the accountability framework, that is bound to lead to an acceleration of the trend that I have already described, where fewer schools are doing design technology, fewer schools are doing art and fewer schools are doing drama. That is surely something that all sides of the House can be very concerned about.
The Minister for Schools (Mr David Laws)
We warmly welcome today’s debate on what is an incredibly important topic. It has already been surprisingly interesting because of some of the shadow Secretary of State’s comments on his party’s developing policy. I praise him for the candour with which he has approached the debate.
I thought I heard the hon. Gentleman acknowledge that the qualifications framework and examination system that we inherited from the previous Government were seriously flawed and ripe for reform. I think I heard him acknowledge that there were problems with the system of modularisation. I think I heard him welcome the radical and dramatic reforms—many of which seek to deal with problems that emerged under the last Government—pioneered by Alison Wolf as a consequence of her report. I thought I even heard him acknowledge, under cross-questioning by my hon. Friend the Member for Bognor Regis and Littlehampton (Mr Gibb), that the last Government were wrong to deny state schools the ability to use IGCSE qualifications, which are now used widely in the system.
Partly as a consequence of the hon. Gentleman’s candour, therefore, and partly because of the forensic cross-questioning he received from those on the Government Benches, we have made a lot of progress in establishing that the existing examination and qualification system is deeply flawed and that we are right to be pioneering change.
Stephen Twigg
May I tempt the right hon. Gentleman to match my candour? I mentioned the engineering diploma, which was one of the qualifications downgraded by the Secretary of State. The industry responded and the Chancellor of the Exchequer had to reassemble a version of the engineering diploma. Does the right hon. Gentleman acknowledge, with matching candour, that the way in which that was handled was a disaster for that crucial area of industry?
Chris Skidmore
Given that we are having these confessional moments, will the right hon. Gentleman also welcome the fact that the shadow Secretary of State has endorsed in full the Wolf report, which stated that under the last Government more than 400,000 teenagers were taking vocational qualifications that were essentially a waste of time?
Kevin Brennan
I am sure the Minister is grateful to his right hon. Friend. Does the Minister recognise these words?
“There has been a breathtaking rise in performance in education since 1997. Inner London was a basket case pre-97; ninety per cent of students were failing to get decent grades at 16 back then. The improvement’s been astonishing, dramatic, unbelievable.”
They were his words in February 2010.
Mr Laws
I will make a little progress before I take other interventions.
In spite of the rather political exchanges we have heard from the Opposition Front-Bench team, I want to say that, as Lord Adonis has recently written, education should not be a political football. We are talking today—this is why the shadow Secretary of State was right to table the motion—about designing a new qualifications system for millions of young people in this country. They and their parents expect us to take the right decisions for the right reasons. That is why my right hon. Friend the Secretary of State and I both want to hear from Members from all parties today. The coalition Government have strong views on this issue, but we always listen to those who have sensible and constructive contributions to make.
I should also confirm that, with your permission, Mr Speaker, and as the hon. Member for Cardiff West (Kevin Brennan) mentioned a second ago, my right hon. Friend the Secretary of State will be replying to the debate rather than opening it for the Government. That enables me, with your permission, Mr Speaker, to be absent for a short period to fulfil an existing commitment, for which I apologise to the House.
Before I turn in detail to the points raised by the shadow Secretary of State, I would like to step back and consider briefly what the Government are seeking to deliver. Our ambition, quite simply, is to raise standards for all young people. We believe that the majority of young people are capable of leaving education with a wide range of good qualifications at good grades. We are also determined to close the wholly unacceptable gap between outcomes for the most disadvantaged pupils and the rest, which is why we have introduced the pupil premium and many other reforms. Of course, however, improving results and closing the gap are ambitions shared across the House, and I have never been shy in acknowledging some of the progress made under the last Labour Government, including in places such as inner London, where we have important lessons to learn.
If we are to realise this ambition for the schools system, however, we also need to ensure that our education system is delivering in at least three key areas. First, we need to know that the improvements in exam results are real and do not simply reflect grade inflation and falling standards. Secondly, we need to ensure that young people are choosing subjects because of their quality and relevance, not simply in order to meet league table and accountability targets, as I fear was the case for a period under the last Government. Finally, but crucially, we need to ensure that the content and stretch of qualifications are appropriate for the highly competitive environment—the shadow Secretary of State talked about this—that we will face in this century. We should be setting standards of stretch and rigour in our qualifications, not just to ensure the credibility of domestic standards over time, but to guarantee that the educational aspirations and outcomes for English children match the very best in the world.
Angela Smith (Penistone and Stocksbridge) (Lab)
Jonathan Ive, the designer behind the iPhone, has said of the EBacc:
“It will fail to provide students with the skills that UK employers need and its impact on the UK’s economy will be catastrophic.”
He said that the EBacc
“will starve our world leading creative sector of its future pioneers.”
What does the Minister say to that?
Mr Laws
I do not agree with that suggestion; otherwise I would not support the reforms. Indeed, I believe that they will have exactly the opposite effect in delivering higher standards and the ambitions I have just set out.
To be blunt, most people consider that, in the three areas I have just set out—as key ambitions for our qualifications and examination system—the last Labour Government failed to deliver. They failed to maintain standards, and confidence in standards, over time, as I think the shadow Secretary of State acknowledged; they failed to ensure that children were always choosing qualifications for the right reasons, and I would be surprised if the hon. Gentleman did not acknowledge that serious criticism; and in their commendable ambition that all should succeed, they failed to ensure that the rigour and stretch of our qualifications kept pace with the best in the world. Therefore, the qualification reforms that we are debating today have two objectives: first, we want to restore confidence in standards, and secondly we want to ensure that the quality of our qualifications matches the best in the world.
Bill Esterson (Sefton Central) (Lab)
I want to ask the Minister about the best way of preparing young people for life and the world of work. Does he honestly think that a three-hour exam at the end of two years does anything other than test a theoretical knowledge, and that the ability to demonstrate a good theoretical knowledge does not translate into skills for life or work? He must accept that and there must be some balance between the theoretical knowledge demonstrated in an exam and other demonstrations of ability, as far as employers and life skills are concerned.
Mr Laws
Of course, there are some subjects for which practical skills have to be able to be assessed properly, but in fairness the hon. Gentleman should also acknowledge the serious concerns about coursework and the credibility of assessment. It is sensible to address those concerns in our reforms, and I believe that for many subjects it is possible to do that without compromising high-quality accountability in the qualifications system.
Stephen Twigg
I gave three examples in my speech of areas of practical coursework—in geography, science and English. Does the Minister disagree with me about any of those?
Mr Laws
I am not going to pre-empt the outcome of the consultation. I am happy to look at the areas the hon. Gentleman suggests, although so far I am not personally persuaded that I have heard clinching arguments for some of the subjects. Far more obviously we potentially need a different system of assessment in subjects such as art and music, but I am not sure that he has so far made a convincing case for some of the areas he has mentioned.
Mr Laws
I want to make a little progress, then I will take some other interventions, but I am conscious of the fact that a large number of people want to speak.
Our reforms combine rigour with a commitment to fairness and social mobility. They will raise the bar, but they will not shut the door on any young people. The shadow Secretary of State asked whether we would have a system in which a defined proportion of students would be able to get particular grades. I can assure him that we are absolutely not going down that route. We launched a consultation on 17 September setting out our proposals for reform. That consultation closed on 10 December. The Secretary of State and I and other Ministers are now taking the time to consider all the responses carefully before we make final decisions.
Before I turn to some of the more detailed points, let me say a little more about the case for change. GCSEs were a bold and radical development in education policy. They introduced the idea that all children, whatever their background or ability, could sit a single exam in all academic subjects and receive a grade recognising their progress. GCSEs replaced a system that was fundamentally unfair, in that it divided children into winners and losers at an early age and helped only a minority of students to prepare for further study and decent jobs. The crucial principle of universality is one that we as a coalition Government are determined to retain. Contrary to what the shadow Secretary of State said, our reforms look forwards. They do not look backwards. There will be no return to the divisive, two-tier system of the past. The reforms also look outwards, to learn from the best-performing systems in the world today—systems that deliver rigorous qualifications, accessible to all children. However, 25 years on, the GCSE is now ready for change. Students and teachers are working harder than ever, but not all are achieving qualifications that properly reflect their ability and support them to progress successfully.
Sammy Wilson (East Antrim) (DUP)
By and large, many of the reforms that have been proposed would have my support and that of my party. The Minister talks about consultation, but given that there are exam boards in those parts of the United Kingdom where education has been devolved and where students will be applying to universities in England, for example, and given the need, therefore, for comparability of results in the different countries that make up the United Kingdom, what consultation has he had—or does he plan to have—with Ministers responsible for education and exam boards in parts of the United Kingdom other than England?
Mr Laws
I am grateful to the hon. Gentleman for his broad support for some of the proposals we are debating today. I believe in devolution in the United Kingdom, as does he. Where individual Administrations and Governments decide that they want to go down a different route, it is right that it should be open to them to do so. Indeed, I believe we can learn in the United Kingdom about different solutions that people choose and then work out over time which are seen to succeed. However, I will talk to my right hon. Friend the Secretary of State about the point the hon. Gentleman makes. If there is anything we can do to assist with some of his concerns, I am certainly willing to contemplate that.
Mr Graham Stuart (Beverley and Holderness) (Con)
The right hon. Gentleman has explained the need for change at GCSE and provided an analysis—an accurate one for the most part—of the legacy from the Labour party. Can he explain why abolition of one suite of GCSEs is the right response, rather than simply introducing the measures and changes he has itemised for GCSEs as they stand?
Mr Laws
I am grateful to the hon. Gentleman for his points and the work that the Select Committee on Education has done on this and associated areas. I believe that in some of the core subjects where we are making these changes there is value in signalling the extent to which they will be improved and varied from the existing GCSE qualifications. There is some merit in underlining—through a change in how we describe these qualifications—how fundamental the changes could be. That will also be relevant for people when they assess the suite of qualifications and their future value in the labour market.
Mr Stuart
I am grateful to the Minister for giving way; he is being most generous. He is right about signalling. Is there not a risk from the Government’s saying officially that GCSEs as a brand are broken and irrecoverable of sending the signal that the remaining GCSEs—most subjects—for which children will spend an awful lot of time studying are also broken? Surely he must either have plans to abolish GCSEs altogether or recognise that such signalling has risks as well as benefits?
Mr Laws
The hon. Gentleman makes an important point, and that is exactly why we say in paragraph 4.7 of the consultation paper that to
“ensure the benefits of this more rigorous approach to the English Baccalaureate subjects are felt across the whole curriculum, we will ask Ofqual to consider how these new higher standards can be used as a template for judging and accrediting a new suite of qualifications, beyond these subjects at 16, to replace GCSEs”.
I promise him—I will come to this later—that we have no intention of allowing the status of the other subjects, which are not at present in the core English baccalaureate certificate, to be downgraded. We place huge value on those subjects, and I will set out later how we will take the matter forward.
Angie Bray (Ealing Central and Acton) (Con)
Is not the most important signal that we must send on behalf of young people to tell future employers that they have been rigorously tested in a way that will make them suitable for work? That is the way we will take our economy forward in future too.
Mr Laws
My hon. Friend is exactly right. Whatever policy solutions different employer groups favour, there is an absolute consensus that the problems we are setting out to address are real ones in the system which all the employer groups want us to address.
As I have said, I believe there has been a real improvement in education over the last two decades, but it is now widely accepted in all parts of the House that there has also been grade inflation. Until summer 2012, GCSE pass rates had increased every year since they were first introduced, but when we compare that achievement with our performance in international tests—where there is no incentive for achievement to be inflated—we see a different story. Between 2006 and 2009, the proportion of students achieving a C grade or higher in English and mathematics at GCSE increased by 8%, but England’s ranking in the OECD’s highly respected programme for international student assessment—or PISA—league tables stagnated over the same period. Universities and colleges complain of the need to provide remedial classes for apparently well qualified new students. That is why the shadow Secretary of State for Education has said:
“Sensible, thought-through and evidence-based measures to increase rigour and tackle grade inflation will have the…support of the Opposition”.—[Official Report, 26 June 2012; Vol. 547, c. 175.]
Significant evidence of grade inflation is available in a range of academic reports, and I am pleased that that is now common ground among many of us.
The coalition Government have already acted to address some of the problems that emerged under the last Labour Government, including those that have caused the recent problems in marking GCSE qualifications—problems that have their origin under the previous Government and not, in fairness, under this Government or this Secretary of State. We have started to address the weaknesses of the current GCSEs, which privilege bite-size learning over deep understanding. Ofqual, the independent exams regulator, has already acted to make the GCSE more rigorous—for example, by tackling the re-sit culture and restoring marks for spelling, punctuation and grammar. We have introduced the English baccalaureate, which has powerfully incentivised more pupils to study key academic subjects. We did not hear from the shadow Secretary of State about the enormous increase in uptake in areas such as modern languages since the English baccalaureate was introduced, which I would have thought most Members would welcome.
However, we need to go further. We believe in the professionalism of teachers and those who set exams. They want to do what is best for students—rigorous teaching and rigorous assessment—but the system they are currently working in is flawed. The combination of competition between exam boards and a high-stakes accountability mechanism in the form of league tables has led to a race to the bottom by exam boards. We must address that. In our consultation, we proposed introducing single exam boards for each subject, with franchises given to the winning exam board after a competitive process. In a letter to the Secretary of State on 26 September last year, the shadow Secretary of State made it clear that he supported that proposal. Others have raised delivery issues and risks in relation to the proposal, and we will look carefully at all those points. We will also shortly be publishing a consultation on how we will reform the accountability system for schools.
Stephen Twigg
The Minister referred to “others” expressing their concern. I assume that among them was Ofqual, which wrote to the Secretary of State in November to express its concern about the timetable for change. Will the Government consider adopting a different timetable so that, if changes are to be introduced, they can be implemented with care?
Mr Laws
All those issues are, of course, part of our consideration following the consultation. We have already made the decision, at the time that we made the announcement on the EBCs, to move back the start date so that they will not start being taught until September 2015. We will ensure that the timetable for delivery is achievable.
As part of the accountability consultation, we will consider floor standards and incentives to take high-value qualifications. We will also consider appropriate incentives for schools to teach all their students well, rather than focusing only on students near the C/D borderline.
Let me now turn to some of the specific issues that have been raised during the consultation. The Secretary of State and I are determined that these new, more rigorous qualifications will meet the needs of the vast majority of students who are currently served by the GCSE. The reforms and improvements to education that we are making will enable more students to operate at a higher level—that is exactly their point—and, as exams become more rigorous, we will equip students to clear that higher bar. So there is absolutely no reason to believe that there will be a substantial change in the proportion of students achieving a good pass. Indeed, our clear aim is that, over time, a higher proportion of children will secure a good pass.
The consultation has shown that there is an understandable concern that we should continue to give strong support to many subjects that are not part of the EBC core subjects of English, maths, science, history, geography and languages. The Chairman of the Select Committee has raised that point today. I want to make it absolutely clear to all Members that the Department for Education remains fully committed to ensuring that pupils receive a well-rounded education, with high-quality music, art and design, drama and dance all playing an important part.
Andrew Percy (Brigg and Goole) (Con)
The Minister has referred to the uptake of foreign language studies on a number of occasions. The reality is that most schools have been ditching the subjects that children might have wanted to study, simply to comply with the Ebacc requirements. Where is he going to find room in the school timetable, after the Ebacc subjects have been accommodated, for the teaching of all those subjects that he has just mentioned?
Mr Laws
First, we have made a deliberate decision to keep up to 30% of the school timetable available for the teaching of non-EBC subjects. Secondly, I think my hon. Friend is being rather generous about the reasons for the massive decline in the study of subjects such as modern languages. That happened because schools and others had an incentive to encourage students to go for the qualifications that were easier to pass, even if they were not right for their education and future progression. That is exactly why we are addressing those issues in our reforms.
Mr Laws
I am going to have to make some progress, I am afraid.
Parents want to see their children secure a strong grasp of the core academic subjects, but they also want them to have a fully rounded education, with opportunities in the other areas that I have mentioned. We are determined to ensure that those opportunities will be available. We are committed to ensuring that pupils will be able to take good-quality qualifications in all subjects at the end of key stage 4 that are fair, rigorous and rewarding. Indeed, we said in our consultation that we would ask Ofqual to consider how the higher standards that we are proposing for core EBCs could be used as a template for judging and accrediting a new suite of qualifications at age 16 to replace current GCSEs. We acknowledge that there are subjects for which 100% reliance on formal written examinations is not the best form of assessment, and we will be working with Ofqual, the Arts Council and others to review qualifications outside the core EBacc subjects. We will make an announcement, including on a proposed timetable for reform, in due course.
Mr Graham Stuart
May I probe my right hon. Friend a little further on the subject of tiering? The GCSE was tiered in certain subjects, and I understand that, with the introduction of the EBCs, that will be abolished. Will he tell us what share of children took tiered GCSEs last year? What are the positive and negative implications of the loss of the tiering that was found to be necessary to provide an appropriate assessment of a child’s level of attainment?
Mr Laws
My hon. Friend is quite right to raise that issue. We are looking at it closely as part of the consultation. I think he would acknowledge that the principle behind our reform is absolutely right. We will look at individual subjects to ensure that the reform is deliverable and that it has the intended consequences.
Stephen Twigg
May I reinforce the point made by the Chair of the Select Committee? Ofqual’s letter to the Secretary of State in November states:
“Our first concern is that the aims for EBCs may exceed what is realistically achievable through a single assessment…Our advice is that there are no precedents that show that a single assessment could successfully fulfil all of these purposes.”
What is the Minister’s response to that?
Mr Laws
These are the issues that we are taking account of as part of the consultation. As I have said, we will reflect carefully on all the responses and make our announcement shortly.
Turning to vocational qualifications, I also want to make it clear that this Government fully support high-quality vocational study. We believe that all students benefit from having a strong academic core of qualifications, particularly up to age 16, but good quality vocational education will remain an option, both pre-16 and post-16. We have already committed to improving the quality of vocational education so that those 14 to 16-year-olds who are better suited to vocational qualifications can be confident that those qualifications will be comparable with the best academic qualifications in terms of content, assessment and opportunities to progress. In the past, too many vocational qualifications simply did not measure up.
Mr Laws
I must make progress, I am afraid.
This coalition Government have rightly sought to address the major challenges about the future of our qualifications system. Securing the right qualifications and examination system for young people in this country is one of the most important tasks for our Department, so it is absolutely right that we should take time carefully to consider all the contributions and views before we make our final decisions. What is clear is that the current system cannot continue as it is. I welcome the support of the shadow Secretary of State for that view, and I am only sorry that more Labour Members do not recognise the necessity for some of the detailed proposals that we are making.
We have a shared aspiration in this House for much better performance by all our young people, and that is welcome, but if we are truly to serve the interests of all young people, including the most disadvantaged, we have to be prepared as a country to face the other challenges. We must have an examination system that commands public confidence and in which changes in results truly reflect changes in real standards and performance. We must have a qualifications system that supports students to make the right subject choices that will lead to progression and success. We must have a qualifications system that matches the best of any country in the world, and that challenges and prepares our young people to reach world-class standards. Those are challenges that some others might wish to duck, but this coalition Government are united in their determination to take the right decisions for this country, and for its young people in particular.
Bill Esterson
Yes, and of course Lord Baker was one of the architects of the GCSE system. He recognised the need for change, so he is in a strong position on this matter. He has credibility and a track record, and the Government should certainly listen closely to what he has to say.
Standards in English and maths are crucial. We can all agree on that and we all do, but the question is how those standards are measured. I do not believe that we measure them effectively, either for young people or for the economy, purely through the use of a linear exam system.
In my business career I worked with many young people in telephone call centres, among other places. Call centre managers often bemoaned the lack of basic literacy of the younger recruits. Often those with GCSEs in English of grade C or better were unable to write properly and struggled when talking to customers on the phone. There is clearly a problem, but the solution we found was to help young trainees with practical skills. They included literacy skills, because they had not picked them up at school. The key was to make training practical—to make it relevant to their jobs and to their lives outside of work. Because the training took place at work, it was in context and they understood for that reason. The students were motivated to learn and to do well at work. How do we replicate that within the education system before students go to work? I do not see how it can be done in the artificial environment of a linear exam process.
To make learning practical and real is a simple concept, and we should be able to do it in school. In short, we should be able to design a system where young people learn what they need for life, in a way that motivates them and helps businesses to flourish. However, to make sure young people are ready for life, they need to learn skills that they can use and which are of use to employers.
Michael Gove
I am listening with great interest to the hon. Gentleman. He has made a number of interesting and worthwhile points, and has outlined some of the weaknesses that he sees with existing and proposed qualifications. Are there are any qualifications that he thinks hit the nail on the head and do the job that he has described?
Bill Esterson
I am certainly familiar with some work qualifications. If the Secretary of State is looking for ideas, I hope he will look at them as examples and consider how they could be introduced, with good work experience, into the education system.
To ensure that young people are ready for life, they need to learn skills they can use and which are of use to employers. Someone who has a qualification that shows they can already do a job is of much greater interest. Perhaps the answer I gave to the Secretary of State demonstrates a way of doing just that.
Kevin Brennan (Cardiff West) (Lab)
We have had a high-quality debate this afternoon with contributions from my hon. Friend the Member for North West Durham (Pat Glass), the hon. Member for Beverley and Holderness (Mr Stuart), my hon. Friend the Member for Gateshead (Ian Mearns), the hon. Member for Bognor Regis and Littlehampton (Mr Gibb), my hon. Friend the Member for Slough (Fiona Mactaggart), the hon. Member for Brigg and Goole (Andrew Percy), my hon. Friend the Member for Croydon North (Steve Reed), the hon. Member for North Cornwall (Dan Rogerson), my hon. Friend the Member for Scunthorpe (Nic Dakin) and the hon. Member for Kingswood (Chris Skidmore). We found out from him that at 6 am in the morning, he is checking Lord Knight’s Twitter feed—not something the rest of us would necessarily do at that time. We also heard contributions from my hon. Friend the Member for Sefton Central (Bill Esterson) and the hon. Members for East Hampshire (Damian Hinds) and for Stroud (Neil Carmichael). The hon. Member for Kingswood was obviously only half awake because he seemed to think that Lord Knight’s Twitter feed said that he supported the proposals, which is certainly not the case.
It is more and more clear that the Government’s proposed EBacc certificate is the wrong reform on the wrong timetable. What is more, the Secretary of State has got it the wrong way round. In one sense, I am certain that he agrees that it is the wrong reform, because we know that it is not the reform that he wanted. He announced the reform that he wanted using the now traditional method for making important Department for Education announcements—via a leak to the The Mail on Sunday. He was celebrating his great news triumph when word got through to the Deputy Prime Minister in his hotel room in Rio, presumably wearing his onesie—[Interruption.] That is true; it might be too hot in Rio for a onesie.
The Deputy Prime Minister was so furious with the Education Secretary that he not only made him withdraw his plans and modify them into the incoherent mess that we have been hearing about today, but made him sack his trusted lieutenant, the former schools Minister, and replace him with the current part-time schools Minister, who I think is off in the Cabinet Office doing his other job—a Lib Dem incubus in the Secretary of State’s lair. [Interruption.] He has now come to the Chamber. A bit like horsemeat in a burger, it can be swallowed but it is not very palatable. Even the Secretary of State thinks that it is the wrong reform, because he has had to drop the overtly two-tier approach that he favoured for the covert one that we have heard about today. Everyone else knows that it is the wrong reform, because it does not address, as we have heard overwhelmingly from Members on both sides of the House, the real issues and challenges for education at 16.
First, the reform is anti-creativity. Many people are asking: what do the Secretary of State and the Government have against creativity? As we saw in a debate on the EBacc certificate in another place on Monday, he calls his new qualification a gold standard, but how can a qualification on which the Secretary of State places such a valedictory appellation have no place for the arts? As the former Education Secretary Baroness Morris of Yardley in another place said:
“How can an assessment that marks the end of the national curriculum not recognise achievement in music, dance, drama, art, design and craft?”—[Official Report, House of Lords, 14 January 2013; Vol. 742, c. 547.]
The EBacc is also the wrong reform because it does not seriously examine the purpose and relevance of high-stakes public examinations at 16 when the participation age has been raised to 18. That topic is causing a veritable buzz in the world of education. The Secretary of State needs to listen not just to his closest advisers and cronies and his own soliloquies. We need a proper debate and consensus around reform, which addresses the key issues that the Chair of the Education Committee has often cited, as he did again today—in particular the long tail of underachievement. Perhaps we should rename the EBacc certificate the GOVE—general opposition to vocational education—because the Secretary of State has nothing to say on how we can have a gold standard in vocational education. That is why we have had to take the initiative in developing the Tech Bacc, in which he seems so uninterested.
Another reason the EBacc certificate is the wrong reform is its rigid and mystifying insistence that it should be assessed by final essay-based examination only. The Secretary of State was rightly asked earlier whether it is his role to decide that anyway, and perhaps we will get an answer in his speech, but essay-based exams measure only a narrow range of skills and knowledge. I have been trying to understand what makes the Secretary of State so against controlled assessment and practical exams and why he thinks the only valid way of testing anything is a three-hour written examination at the end of a course. What traumatic event in his past could have led him to have this seemingly inexplicable aversion to the appropriate use of controlled assessment and his insistence that only written exams should count? Then I remembered—
Kevin Brennan
He is ahead of me—he is very quick. The driving test is administered on a basis of a written test combined with a practical controlled assessment, and the Secretary of State failed his driving test on six occasions. And this is the man who does not believe in re-sits!
Had the driving test consisted of a course in the theory of driving followed by a three-hour written test, the Secretary of State would no doubt have passed first time, with flying colours. He might have achieved a merit, perhaps even a distinction, maybe an A* for demonstrating his in-depth understanding of the intricacies of the highway code. But would that have made him a better driver, and would the public have been safe with him behind the wheel? Possibly not.
This is the wrong reform, and it is also being carried out according to the wrong timetable. It is not just the foot-draggers, the naysayers and the vested interests who are saying that. It is being said by Glenys Stacey, the head of Ofqual and the Secretary of State’s guardian of exam standards, who has written to him expressing her concerns—incidentally, we know about her letter only as a result of dogged forensic questioning of the Secretary of State by the Education Committee—and it is not being said just by Ofqual either. In response to a recent survey, more than 80% of teachers said that the changes were being rushed, adding to the huge majority of heads who said that the changes would not be an improvement, and reinforcing the call from the CBI—about which we have already heard today—for a pause in the Government’s timetable.
I am old enough to have taken O-levels—I also have a CSE in woodwork, a grade 1—and A-levels, and I taught for O-level, GCSE and A-level. One thing that I do know is that it is impossible to introduce successful examination reform without being clear about the curriculum, without consensus, and without proper piloting of new qualifications. GCSE reform was kicked off by Shirley Williams, and brought in by Keith Joseph after many years of development. It is necessary to aim for that breadth of consensus at the start if lasting reform is to achieved. However, the English baccalaureate certificate proposal is not a product of consensus based on evidence; it is being rushed through to meet a political, not an educational, timetable. That is the wrong recipe for reform, and the right recipe for chaos.
The Secretary of State’s reform is being introduced for the wrong reasons, the wrong way round. The Secretary of State says it is about rigour, but rigour is achieved through engaging, imaginative, high-quality and creative teaching, not through dispiriting learning by rote that is based only on facts. That is not a recipe for rigour; it is a recipe for rigor mortis in the classroom—the stiff dead hand of Gradgrindian misery about which we heard earlier.
In a recent television interview, Lord Baker reminded us of the welcome contrast between the current CBI report on education and that of one of its predecessor bodies, which states that all that was, or should be, required of the curriculum was that it should teach “literacy, numeracy and obedience”. Sometimes, listening to what is said by members of the Government, I wonder whether that is what they believe now. As Lord Baker also said, if that is all we think is required today, God help us, because that is the attitude that has created
“the long tail of underachievement”,
demotivated generations of young people, and wasted the talents of so many.
It is, however, the background noise that hisses around the Secretary of State’s approach to this reform. The proposal is the wrong way around. It puts the cart before the horse, the exams before the course, and the outcomes before the aims.
Here are some possible aims of a curriculum for the Secretary of State. It should produce
“a confident person who has a strong sense of right and wrong, is adaptable and resilient, knows himself, is discerning in judgment, thinks independently and critically, and communicates effectively; a self-directed learner who takes responsibility for his own learning, who questions, reflects and perseveres in the pursuit of learning; an active contributor who is able to work effectively in teams, exercises initiative, takes calculated risks, is innovative and strives for excellence; and, a concerned citizen who is rooted”
in his country,
“has a strong civic consciousness, is informed, and takes an active role in bettering the lives of others”.
The Secretary of State may think that that is wishy-washy. It is, in fact, a list of the aims of the curriculum in Singapore, and perhaps he ought to take a look at it before he starts to design a new exam system. How can this style of examination achieve those aims? It cannot, which is why Singapore has been reforming its education in our direction.
This is a case of wrong reform, wrong timetable, wrong way round: wrong, wrong, wrong. The new three Rs are all spelt with a W, standing not for “reading, writing and arithmetic” but for “wrong, wrong, and”—as the Secretary of State might say—“thrice wrong”.
The Secretary of State for Education (Michael Gove)
First, may I congratulate the shadow Secretary of State, the hon. Member for Liverpool, West Derby (Stephen Twigg), on securing this debate? It has been advantageous to the House and of benefit to me to be able to hear a range of views about how we might reform our examination system, and I am grateful to all Members who spoke in what felt at times almost more like a seminar than a parliamentary debate. As well as speaking with passion from the heart, many Members had specific experience. The hon. Member for Croydon North (Steve Reed) was a distinguished leader of a successful Labour council, and the hon. Members for Gateshead (Ian Mearns) and for North West Durham (Pat Glass) have both had council responsibility for children’s services, and under their stewardship standards for their children were high. [Interruption.] Forgive me: the hon. Member for North West Durham has a range of past experience that qualifies her to speak on these subjects, but, sadly, she was never a councillor.
All the contributions have given me an opportunity to reflect on what we should assess and on how we should assess achievement at the age of 16. One of the important consequences of the process of consultation we have initiated is that a vigorous debate has been taking place, not only in schools and among teachers, but also, as the hon. Member for Slough (Fiona Mactaggart) pointed out, among people in the creative and cultural worlds. As the shadow Secretary of State pointed out, business organisations and associations have also engaged in that debate.
There was, perhaps, consensus among Members that the current situation is unsatisfactory. The shadow Secretary of State quoted the CBI liberally in his speech. The CBI is no friend of the situation that prevailed under Labour for 13 years, however. This is what the CBI report on education says about the situation we inherited from Labour:
“This approach represents a triumph for relativism, with pupils either taught to the test while developing no real mastery of the subject being studied or left to fester in study of subjects where they will do least harm to the school’s overall results and league table position. In truth, however, this cult of relativism has blighted every stage of their educational journey.”
Those are strong words and, as my hon. Friend the Member for Kingswood (Chris Skidmore) pointed out, they reflect a broad consensus in the business sector that we need to change our examination system.
Understandably, the CBI and others have questioned the purpose of assessment at 16. As my hon. Friend the Member for Bognor Regis and Littlehampton (Mr Gibb) pointed out in a brilliant speech, it is important that we have rigorous, summative assessment at that stage. The Labour party has questioned the appropriateness of that. If Labour believes we should get rid of proper, rigorous assessment at the age of 16, it should say so. If, as the shadow Secretary of State hinted in an interview in The Guardian, Labour believes we should go back to the 14 to 19 Tomlinson diploma approach, it should say so. Disappointingly, although the critiques mounted from the Opposition Benches had much to recommend them in terms of forensic detail and passion, precious few positive alternatives were offered.
We were accused of having neglected the vital importance of a rounded education in two specific areas: cultural subjects and vocational subjects. I want to say a little about each. There was an exchange—I was tempted to call it a dramatic monologue, or soliloquy, punctuated by noises off—between the shadow Secretary of State and myself on the Wolf report, but putting that to one side, I am pleased that there seems to be consensus about the Wolf report and its recommendations. The shadow Secretary of State says it is important that English and mathematics are taught to the age of 18. We should bear in mind that Professor Wolf says people who have not secured a good GCSE pass or equivalent in English or maths at the age of 16 should carry the subject on, and that is Government policy. We would only contend, however, that people who secure a good pass in English and maths at 16 but who wish to specialise in other, perhaps creative or vocational, areas should not be forced to carry those subjects on. We should develop courses for such people who want to move beyond GCSEs. Someone may not want to pursue A-level mathematics, but may believe that a mathematical course would be appropriate, and we have worked with Cambridge university and Professor Tim Gowers on that area.
The care we have taken to implement every detail of Professor Wolf’s report reinforces the fact that before we said how we were going to reform academic qualifications, we said how we were going to reform vocational qualifications. We have heard a lot about carts and horses, and about priorities, in this debate. We put vocational qualifications ahead of academic qualifications in our desire to reform. I am not just talking about the Wolf report; the Richard report on apprenticeships, which my right hon. Friend the Secretary of State for Business, Innovation and Skills rightly welcomed recently, as I have done, sets a path for the reform of the most trusted brand in vocational education—the apprenticeship. The Richard report was welcomed yesterday by Lord Adonis and it points out the steps we have been taking to change apprenticeships so that they are no longer a theoretical driving test, such as that described by the hon. Member for Cardiff West (Kevin Brennan). They are no longer the inadequate, poor qualification that, sadly, used to exist in some cases. An apprenticeship will now be conferred on somebody only where they not only secure English and maths to an acceptable standard, but have an occupationally specific qualification which guarantees or confers mastery in a specific area and can be graded on more than simply a pass-or-fail basis. The fact that this reform was so carefully designed and has been so widely supported underlines our support for improving vocational education.
Stephen Twigg
May I bring the Secretary of State to the subject of today’s debate? In my opening speech, I asked him about the issue about which Ofqual has raised real concern: the preparedness of the system to be implemented in the way that he says. Is there any possibility that he will change the time scale in response to the real concern that hon. Members on both sides of the House have reflected today?
Michael Gove
I was grateful that a number of concerns were raised about different parts of implementation, and they have been raised during the consultation. It is important that I look seriously, as I am doing, at all the points raised in the consultation. Following on from the very good speech made by the Chairman of the Select Committee, it is important that we respond having reflected on all the points that were made and that our response is not simply yes to this and no to that in a piecemeal and cherry-picking way. We should present a sustained and coherent response to what has been an informed and helpful consultation.
I wish briefly to discuss creative subjects, because, in a brilliant speech, the hon. Member for Slough (Fiona Mactaggart) both paid me a compliment and set me a challenge. One thing I would say is that there is ample time in a well-constructed curriculum for creative subjects, as was pointed out by my hon. Friend the Member for East Hampshire (Damian Hinds) and a number of other hon. Members. The idea that this Government have not been taking creative and cultural education seriously is belied by the facts. First, we ensured that we had a national plan for music education, following on from Darren Henley’s report, that has seen not just sustained investment in new music hubs that provide high-quality music education and increased access to instrumental tuition, but our expanding of the In Harmony orchestra initiative, which was borrowed from the El Sistema idea in Chavez’s Venezuela. We have also commissioned a report on cultural education from Darren Henley, which has led us to implement a variety of changes, including having a cultural passport for every child to record their cultural and creative engagement during their time at school. We have provided extended access to Saturday schools for those able and capable in art and design. In addition, a Conservative Government—not a Labour Government—have for the first time introduced a national youth dance company for talented and gifted individuals who want to and should make a success in dance. So the future Akram Khans and Michael Clarks will have that opportunity as a result of our changes.
Michael Gove
We have only two minutes left and there are still a number of points to cover—
Michael Gove
In a speech that was significantly longer. In the time available, I wish to deal with one or two of the other points that were raised, particularly the one discussed by the Chairman of the Select Committee. He asked whether qualification reform is the key driver of change and improvement in education. The answer, which I wanted to underline, was given by my hon. Friend the Member for Bognor Regis and Littlehampton: it is a key driver. The hon. Member for Cardiff West pointed out that nothing matters more than the quality of teaching, and that is right. But the qualification reforms that we have put forward will ensure that there is more time for teaching. If we remove controlled assessment, which teachers tell us takes between six and eight weeks of what could be teaching time, we allow more high quality teaching to be made available to the students who need it. So there is a link between the style of assessment and the capacity to improve a child’s education.
Let me take this opportunity to point out that we do not need to change, nor is it the case simply that we can make requests of Ofqual. Ofqual can consider them and has in the past made wise judgments. I should say that the shadow Secretary of State has consistently questioned the judgment of Ofqual. We have been clear that it is an independent regulator and we back it.
In the course of the debate, a number of misconceptions were repeated. It is the case that we believe that a move away from modular towards linear assessment reduces the chance of gaming and frees time for teaching, but it is important to say that we do not think that every subject should have three-hour exams. Nowhere in our consultation have we said that three, six, nine or 12-hour exams are appropriate. We believe that rigorous examination in academic subjects requires the deployment of end-of-course linear assessment, but there are a variety of subjects, many of them creative, which, as the Arts Council recognised, should be assessed in other ways.
I note that it is 4 o’clock. I hope this conversation can continue. I thank you, Mr Deputy Speaker, and the House for your indulgence and, in particular, I thank the Members who contributed to the debate for the brilliant speeches that I so much enjoyed the opportunity to listen to this afternoon.
Question put.
Mr Deputy Speaker (Mr Nigel Evans)
I now have to announce the result of the deferred Division on the question relating to the draft Charging Orders (Orders for Sale: Financial Thresholds) Regulations 2012. The Ayes were 279 and the Noes were 214, so the Ayes have it.
[The Division list is published at the end of today’s debates.]