Skills and Post-16 Education Bill [HL]

Lord Storey Excerpts

Report stage
Thursday 21st October 2021 Lords Chamber

Moved by

[Lord Storey]

36: Before Clause 14, insert the following new Clause—
“Personal Education and Skills Account
(1) A Personal Education and Skills Account (“PESA”) is an account—(a) held by an eligible adult (an “account holder”); and(b) which satisfies the requirements of this section.(2) An eligible adult is a person who—(a) is aged 18 or over; and(b) is ordinarily resident in England.(3) A PESA may be held only with a person (an “account provider”) who has been approved by the Secretary of State in accordance with regulations.(4) The Secretary of State may by regulations establish a body to administer the operation of the PESA scheme.(5) In the case of each person who is eligible under subsection (2), the body established under subsection (4) must open a PESA for that person.(6) If a person does not wish to hold a PESA, they must inform the body under subsection (4) in writing in accordance with regulations.(7) The Secretary of State must pay into each PESA a deposit of £4,000 during the year in which each account holder attains the age of 25 and a deposit of £3,000 during the year in which each account holder attains—(a) the age of 40; and(b) the age of 55.(8) Further contributions may be made to a PESA by—(a) an account holder;(b) employers; or (c) any other person as may be prescribed by regulations by the Secretary of State.(9) At any time after an account holder has attained the age of 25, they may transfer funding from their PESA to an approved institution for their chosen education or training course.(10) For the purposes of subsection (9) an “approved institution” is—(a) a “relevant provider” under section 18;(b) such other education or training providers as may be approved by the Office for Students.(11) Prior to an account holder making an initial funding transfer, the National Careers Service must offer a careers guidance consultation to that account holder.”Member’s explanatory statement
This amendment provides for individual “skills wallets” which may be used by a person to pay for education and training courses throughout their lifetime. The Government will make a payment of £4,000 when an individual turns 25 and then two further payments of £3,000 when an individual turns 40 and 55.

[Lord Storey (LD)]

Amendment 36 provides for the introduction of personal education and skills accounts, commonly known as skills wallets. As stressed by many of your Lordships during the passage of the Bill, there is growing discontent about the way in which post-16 education and training are provided and the reality of the skills needed for our population.

We know that in future the average British worker will do several different jobs throughout their lifetime; almost half will retrain completely during the course of their career. Meanwhile, the number of adult learners has fallen dramatically, almost halving between 2004 and 2016. With technology advancing and the world of work always rapidly changing, skills learned at 18 or 21 will not last a lifetime. It has never been more important for people to continually develop new skills. Yet our higher education and student finance systems are still tailored mainly to people taking their first degree or beginning an apprenticeship around the age of 18. Meanwhile, there is a desperate shortage of funding in the FE sector. The current system limits the opportunities, and people do not get the chance to make the most of their talents. Do we not want to empower people to develop new skills, so that they can thrive in the technologies and industries that are key to Britain’s economic future? Championing flexible lifelong learning will give people the power to follow the path that best suits their ability. A skills wallet would be open to every adult over the age of 18 and resident in the UK.

I remind the House of the quite important words of the previous Secretary of State for Education when introducing the lifetime skills guarantee:

“What we are determined to do, and what we must do, is give people the opportunity to retrain and upskill, so that if one door closes, they will have the key to open others.”


He went on to say that the Government

“stand for empowering everyone in this country, wherever they live. We stand for the forgotten 50% who do not go to university.”

The measures that he wanted to see

“will embed greater flexibility in the technical and vocational system to support not just young people but adults who need to retrain and upskill at any point in their working lives.”—[Official Report, Commons, 1/10/20; col. 541.]

Those comments justify the need for this amendment. I beg to move.

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The Bill makes explicit provision for supporting the introduction of the lifelong loan entitlement. The funding of modules of courses will help create a more flexible system of provision across higher and further education. As I have said, much of this work is subject to the consultation on the lifelong loan entitlement, which we will be launching in due course. As such, I would hope that noble Lords will feel able not to move their amendments when they are called.

[Lord Storey (LD)]

I thank the Minister for all her comments. I beg leave to withdraw Amendment 36.

Amendment 36 withdrawn.

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Amendment 46 is also carefully drawn. It would require special needs awareness training that is relevant to students of ITT FE courses within an institution. It may be said that, in contrast to ITT provision for schoolteachers, the content, assessment and delivery of teacher training in FE is very different and that such a degree of prescription is inappropriate and much is already being done. In other areas, such as funding, governance, qualifications and many more, there is no such hesitation. In this particular field, the need for a strong lead from government and the investment it requires are, I think, fully recognised by Ministers, officials and the sector. I sincerely hope that the Government will be open to accepting these amendments.

[Lord Storey (LD)]

My Lords, these are really important amendments from my noble friend Lord Addington, and I hope that the Minister will take note. Again, I would ask her, “Why not?” It is hugely important that in our education system, whether it be in nursery or in university, we are able to identify where there are special needs requirements. Teachers and support staff need that training, because when they are able to identify, they can provide the support that is needed.

I remember as a young teacher going on a very simple course—dare I say it, it was like a couple-of-hours course—on being able to identify children who suffer from dyslexia, but it taught me that if you could identify children who were dyslexic you could then give them all sorts of support. For example, if you handed out worksheets that were in a certain colour—and please correct me if I am wrong—those children could prepare, understand and read in a better way. That is why the amendment is important.

One would hope that children with educational needs would be picked up at an early stage in our education system, but that is not to say that it always happens. It is a very simple amendment. It says that all teachers should have that simple, basic training, and let us hear why not, and that the support needs to be there.

The other amendment also says something that we have been saying for a long time; certainly, my noble friend Lord Addington has been doing so. Why not have this as a definite component in our teacher training that all teachers should be exposed to—that they should learn about identifying special educational needs? Whether they are trained on the intensive Teach First programme, doing a SCITT programme or doing a postgraduate education course, everybody should have a component involving being able to identify individual children who may have special educational needs and understanding their requirements.

I hope the Minister will respond positively.

[Baroness Wilcox of Newport (Lab)]

These amendments would place a duty on the Secretary of State to ensure that there is sufficient SEN training for teachers in further education so that there is support for students with special educational needs or disabilities that is of an equivalent standard to that for those with similar needs in higher education. The amendments would also ensure that there is sufficient SEN training for those involved in initial teacher training.

FE colleges, sixth-form colleges, 16-19 academies and independent specialist colleges approved under Section 41 of the Children and Families Act 2014 have specific statutory duties which include the duty to co-operate with the local authority on arrangements for children and young people with SEN, the duty to admit a young person if the institution is named in an education, health and care plan, and the duty to use their best endeavours to secure the special educational provision that the young person needs. These duties require extra training and support, which is key to their successful implementation. We fully support the amendments in the name of the noble Lord, Lord Addington. His specialist knowledge and understanding of this subject have identified clear gaps in the current provision that need to be plugged by these amendments to the Bill.

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I know that the Minister is acutely aware of these issues and look for reassurance that the Government are equally aware and, more importantly, committed to finding further new and creative ways to maximise incentives for those wishing to acquire new skills and take up high-quality, stable jobs and who currently rely on universal credit for all or the majority of their income.

[Lord Storey (LD)]

I will speak on Amendments 62 and 63, and thank the noble Lords, Lord Blunkett, Lord Aberdare and Lord Bird, for putting their names to them. I was taken by a comment in an earlier debate when the Minister used the phrase

“no matter where they live or their background”.—[Official Report, 19/7/21; col. 90.]

That phrase is quite key, and another phrase came in a Statement from the Commons Minister:

“Talent exists everywhere in this country. We have to ensure that we give it every opportunity to flourish, wherever people come from.”—[Official Report, Commons, 1/10/20; col. 541.]


But for people on universal credit, those fine sentiments and words do not ring true.

The right reverend Prelate was absolutely right that universal credit, as well as being a financial support, is a barrier to learning in many cases. He was also right to say that it is incredibly complex. One of the aims at the introduction of universal credit was to remove the 16-hour rule that applied with jobseeker’s allowance, where claimants would lose benefits if they worked or studied more than 16 hours a week. While universities no longer enforce this, time limits have not been discarded. Young people cannot normally claim universal credit if they are studying full-time, which is more than 12 hours. However, they might be able to if they meet certain criteria—for example, if they are responsible for a child, are disabled, are under 21, or are under a non-advanced education course and do not have parental support, for example if they are care leavers. These restrictions might incentivise some young people away from intensive study that would support their chosen career.

If a young person is already claiming universal credit, a decision will be made on whether they can continue to claim that finance while going on a course they have been referred to by a work coach. That seems bizarre. Full-time study is normally allowed where the course lasts a maximum of eight weeks. In April 2021, due to the pandemic, the Government announced that they would extend course length in some scenarios to 12 weeks and 16 weeks on the new skills boot camps for six months. Those receiving universal credit have obligations to prioritise job searches and take available jobs if they are able to, which restricts the opportunity for every unemployed person to receive financial support to study a college course with no impact on their benefit. So we need clarity on these issues. We need to ensure that, to use the Minister’s phrase, whoever you are and wherever you come from, you should be able to access learning.

If we look at Kickstart, again, universal credit is a barrier. We talk about Kickstart as being available for 16 year-olds, but you can apply to go on a Kickstart scheme only if you are receiving universal credit. Can the Minister explain the thinking behind that? Why are the Government advertising Kickstart for 16 year-olds when 16 year-olds are not entitled to universal credit and are therefore unable to go on a Kickstart scheme?

I now turn to the amendment on Kickstart. Kickstart has generally been perceived as a good scheme, with real possibilities to help young people, and I am delighted that the Government announced an extension of the programme—but there have been problems. I understand that any new scheme will have teething issues and will need to be embedded and sorted, but let us look at some of the problems that have existed. These are not my words; they come from employers.

First, they say “Actually, do you know what? We don’t just want a six-month scheme. If we’re really going to develop the career opportunities of those young people, it should be a 12-month experience.” In many cases, companies have not found the experience as easy as they thought it might be: they have found it, at times, very frustrating, waiting months for approval and then with a further delay for roles to go online on the system; referrals that are totally unsuitable for the job specification coming to their business, suggesting that the role-matching automation is deeply flawed; lack of support for any queries, with weeks to receive a reply, and never from the same person; payments incorrect; and late or no record of the young person, despite all the procedures being followed. Small firms—and this is perhaps why so few small businesses have got involved—do not have the resources or time to manage these processes. We need to get those issues right, because it is a good scheme that has the potential to really help the issue of youth unemployment.

I will make just one more statement. We talk about youth unemployment and give an overall figure of, I think, 12.4% now—but of course that is the headline figure. We should look deeper at the figures. For example, among black people aged 16 to 24, the figure was 41.6% unemployed.

So the message is: let people not be debarred from learning because they are on universal credit; and Kickstart is a good scheme—sort it out and let it continue. Be inventive about it: perhaps it could be linked to apprenticeships. The sky is the limit. We are talking about young people’s livelihoods and opportunities—so, Minister, go for it.

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I thank the noble Baroness, Lady Chisholm, and the Government for tabling this amendment. I hope that the House will support it—I certainly will.

[Lord Storey (LD)]

My Lords, I rise to speak on the issue of essay mills and contract cheating. I thank the Minister for tabling this amendment. There have been four Private Members’ Bills, three of them from me. The first time, I drew number 2, and then there was then a general election. I then drew number 50, which never got debated, and then I drew number 3—and we have the Private Member’s Bill up and running. I thank Chris Skidmore for putting one in the Commons as well.

More than 45 vice-chancellors and heads of UK higher education organisations wrote to the Secretary of State in 2018. The support and briefings of the Quality Assurance Agency for Higher Education have been fantastic. I also pay tribute to two professors who started this whole thing off before I got involved: Professor Newton and Professor Draper at Swansea University.

When I looked at a particular independent college in Greenwich and saw the effects of contract cheating and essay mills, I realised that this was a very serious problem that we faced not just in further education but in higher education and, increasingly, in schools as well, although this amendment does not deal with that. Some 15% of our students admit to using contract cheating services. Oxbridge Essays claims that it has produced, for cheating, 70,000 essays. This is not just about students being drawn into this situation—many of them are worried about their well-being, their mental state et cetera—it is also about the academic credibility of our higher education system. If we allowed this cancer to grow, it will affect our universities and colleges.

I pay tribute to the Minister’s legal team, which has nailed this properly. I showed the amendment to a number of people, and, as you can imagine, I got some quite important replies. They said that the proposed strict liability offence—whereby there is no need to prove intent—is really important because it means that essay mills will not be able to rely on disclaimers, although they do have a due diligence defence. Getting strict liability offences through Parliament is extremely rare, but it is absolutely critical to this offence having any impact.

I would also like in passing to congratulate the Minister’s press department or PR department. The Minister very kindly emailed me her intended amendment and it said, “Strictly embargoed for four days”. I thought after the third day I would tip off the Times Higher Education Supplement or FE Weekly so I might get a little bit of credit, and they said “Oh, we got it four days ago”. The Government obviously have an eye on publicity as well.

I thank the Government for this amendment. Students, vice-chancellors and universities up and down the country will be very grateful. This is not the end of it, in the sense that we have to make sure that we look at Wales and Scotland, because that is important, and we will at some stage need to look at secondary education as well. When the Minister winds up, will she consider saying that if breaches occur, we will look at how we can tighten up the situation? I am sure that these essay mills, which form a £1 billion industry, will be looking at ways around this, and we need to see whether we can find ways to stop breaches happening in future. I hope the House does not mind, but I am going to depart.

[Baroness Wolf of Dulwich (Non-Afl)]

My Lords, I, too, strongly welcome the amendments tabled in the names of the noble Baroness, Lady Barran, and the noble Lord, Lord Storey, which seek to address the pernicious effects of essay mills. I must declare an interest as an adviser on skills to the Prime Minister and as an academic employee of King’s College London. That is why I want to take this opportunity to say how important and welcome these amendments are. I pay particular tribute to the noble Lord, Lord Storey, who has been passionate and determined. Without his recognition that this is a major and serious issue which can be tackled, I am sure that these amendments would not have been tabled tonight.

There are a number of reasons why cheating has become a major problem for universities. It is partly to do with the pressure on people to get formal qualifications, the scale of universities and the temptation—you can do things you could not do before. There are two major sources of this. One is plagiarism, where we can fight software with software, and one is essay mills, where we cannot. I am quite sure that there will be a major improvement as a result of these measures: the firms will be unable to operate and students will take much more note of the risks attached to doing something illegal with these measures in place. The noble Lord, Lord Storey, has escaped, so I will send thanks in his direction. I say on behalf teaching academics all over the country that they will be extremely happy to see these amendments to the Bill, because it is almost impossible to know if somebody has used a commissioned essay.

Skills and Post-16 Education Bill [HL]

Lord Storey Excerpts

Thursday 21st October 2021 Lords Chamber

At this the second time of addressing this issue, we must not flunk it; we must actually see that young people are given the opportunity to go to an institution which, if they have a technical bent, is more suitable to them and which will prepare the way for them to go to an apprenticeship. There are number of ways in which we need to address this chronic issue—and we shall come later to issues relating directly to the apprenticeships system, which is still woefully inadequate in this country. One way to do so is to see that young people of school age, particularly at 14, which is when they start developing a greater awareness of the talents that will enable them to succeed in life, have information about, and are able to choose, institutions which are best suited to developing those talents. We cannot have an education system in a first-rate country like ours unless it is able to deliver that objective. That is what is at stake here. I hope that the House will support the amendment in the name of the noble Lord, Lord Baker.

[Lord Storey (LD)]

My Lords, we have come a long way from the days when someone considering their further education or career development would be told, “There’s a cupboard. Go and choose your prospectus”. We now have a situation where there is an academic curriculum for the academic students and the other 50% of students are pushed or cajoled into a sixth form which is clearly not suitable for them. We know why: money counts. To answer the point made by the noble Lord, Lord Adonis, we live in a sort of educational free-market economy where schools compete with one another. When the A-level results come out, all the banners go outside the various secondary schools trying to entice pupils to switch to their sixth forms. But I am not interested at the moment in the academic students; I am interested in those other students for whom a further educational or vocational pathway would be far better.

I want to ask the Minister quite directly why we should not support the amendment in the name of the noble Lord, Lord Baker. It eminently makes sense; why are the Government not supporting it? I have not heard any reason given.

It is shameful that schools behave in this way. You would think that a school would want the best for its pupils. If a young girl or boy is suited to a vocational career, the school should do all in its power to make that happen, but we do not see that happening, which reflects badly on those schools. I have to say, though, that there are many secondary schools that do the opposite and—even before the clause of the noble Lord, Lord Baker—have fairs where different colleges and career representatives come along to show what is on offer. We should not need this clause; it is shameful that we do, but we do. I would be interested to know from the Minister what sanctions we placed on those schools that have not operated the current Baker clause. Is Ofsted, for example, reporting in its inspections when a school has not co-operated with or involved other FE colleges, providers or careers opportunities?

Finally, the Minister quite rightly talks about the Gatsby benchmarks but, again, not all schools have achieved the right level that they should; it is an ongoing process. We very much support this amendment and will do so if it goes to a vote.

[Lord Aberdare (CB)]

My Lords, I will not speak at any length about these two similar amendments, because I agree wholeheartedly with what all three speakers so far have said. Both represent an improvement on the current situation but, as we have heard, Amendment 35A from the noble Lord, Lord Baker, has stronger teeth and would provide for more frequent access—three times during each of the three specified phases, rather than just once. That is much more in line with the requirements of the Gatsby career benchmarks. It would require meetings with a representative range of educational and training providers, including UTCs, rather than just one provider, and it would not rely on any as yet unspecified statutory guidance. For all those reasons, it makes it much more likely that the requirement for pupils to receive these opportunities really takes place. I will certainly support the noble Lord if he puts his Amendment 35A to a vote.

The Minister’s helpful letter to us on Tuesday included a positive section on careers information and guidance, although I continue to regret the absence of a renewed careers strategy to provide an overall context and objectives for the various laudable actions that she set out. She mentions the support given by the Careers & Enterprise Company’s personal guidance fund for activities, including training for careers professionals, and the development of a pipeline of qualified careers professionals for the future. I wonder if she has made any assessment of the numbers of such professionals needing to be trained, what level of qualification they need to be trained to, and whether the funding and other incentives on offer are sufficient to meet those needs—in other words, a sort of workforce development plan for careers professionals. That is one reason why I think it would be helpful to have a strategy that sets out all the elements that are needed to deliver the kind of careers support that we need.

I end by echoing the point made by the noble Lord, Lord Storey: these amendments are important, and it is equally important that we make sure they are in some way enforced and the requirements are met.

Skills and Post-16 Education Bill [HL]

Lord Storey Excerpts

Report stage
Tuesday 12th October 2021 Lords Chamber

At this stage in the Bill’s passage, it would be most helpful if the Minister could indicate how the review of the current trailblazer pilots could be used to inform the Government’s evolving view of how ERBs might best operate, with specific reference to the amendments I have outlined and what future discussions with the right reverend Prelate the Bishop of Durham and other interested Peers might be a fruitful way of following up these issues. We even suggest that the Government might adopt the amendments themselves, since hope is considered one of the virtues on these and, indeed, other Benches.

[Lord Storey (LD)]

My Lords, before speaking to the amendment of the noble Lord, Lord Watson, to which I added my name, I thank the noble Baroness, Lady Berridge, for the work she did on this Bill and wish her well.

The noble Lord, Lord Watson, uses the word “integrated”; I would use “partnership”. What the Government are trying to achieve, which we want to achieve, will fail if we do not get the local skills improvement plan right. To do that, we must have a partnership of people. A key factor in that must be the local combined authorities. It is not just me saying that. Your Lordships may remember when a former Chancellor, George Osborne, set up combined authorities. He said that they were a “devolution revolution” and gave them extra powers involving the provision of skills training, business support and economic development.

Indeed, the powers of the Liverpool City Region Combined Authority, where I live, include apprenticeships, grants for employers, an adult skills budget, post-16 FE and oversight of skills and advisory panels. Combined authorities have a wealth of experience, yet we are pushing them to the side. We are marginalising them. I just do not get it at all. It is not just me saying that, or the combined authorities saying that, or Peers saying that. It is interesting to see that message coming loud and clear from employers themselves. You have only to look at the comments from the Food and Drink Federation, which has again said that it is really important that there is a partnership across all areas.

Interestingly, the Energy & Utility Skills Partnership talks about the need to look not just at local skills but at those skills which are nationwide and at how they will be swept up or dealt with if there is just a local focus. I hope that when she responds the Minister will be positive. I agree with the noble Lord, Lord Lucas, that when this goes to the Commons it will be sensible enough to realise what we have said, and that changes will be made if we are able to give it those changes.

I end by saying how much I support Amendment 19 from the right reverend Prelate the Bishop of Durham. He is right to say that if we are to have these representative employer bodies, they must have a record of showing that they care about diversity, equality and disability and that should be an important hallmark of these bodies. If that amendment is not agreed, I am sure that if the Government saw a body set up that was not equal or concerned about diversity and disability, they would have the sense to step in.

[Lord Aberdare (CB)]

My Lords, I, too, have added my name to Amendment 11, tabled by the noble Lord, Lord Watson, and to the amendment to it, Amendment 12. I shall speak also to my Amendments 14, 18 and 21, which are mainly concerned with the overall coherence and effectiveness of the skills systems of which this Bill will be such a major part. Many aspects of that system lie outside the Bill as drafted, but are essential for it to achieve its aims, so Amendment 11 and my amendments seek to fill some of the more important gaps that need to be addressed in the Bill. Others will no doubt be covered in the forthcoming guidance for employer representative bodies, which I have been no more successful than the noble Lord, Lord Watson, in absorbing since I received it this morning.

The amendment tabled by the noble Lord, Lord Watson, lists a range of bodies whose views rightly need to be taken into account in LSIPs. My Amendment 12 adds two more categories to the list: bodies providing careers information, advice and guidance and independent training providers. I have previously expressed my view that the importance of high-quality careers guidance should be more explicitly covered in the Bill. Every LSIP should surely take account of the status of careers guidance provision in its area through drawing on the views of those responsible for it, including careers hubs and careers leaders in local education institutions. Seeking to ensure that all schools and colleges in its area are meeting the eight Gatsby careers benchmarks and complying fully with the requirements of the Baker clause as, I hope, amended by the Bill.

Given the importance of informing young people about their career choices and options early on, will the Minister tell us how the Government are ensuring that chambers of commerce currently delivering trailblazer LSIPs are engaging with local careers hubs to ensure that careers provision in schools is aligned with local labour market skills needs?

Could she also say whether there are any plans for a new careers strategy, to revive the terrific impetus provided by the previous one in improving the careers situation, and what the Government are doing to ensure that careers hubs will be an established part of the future careers landscape right across England, with sufficient funding to support careers activities in schools and colleges and enough qualified careers professionals to deliver them? Finding those professionals seems an increasing problem for some schools.

My Amendment 12 would also add independent training providers. I will spare noble Lords a repeat of my spiel on independent training providers, but I do believe that no LSIP can afford not to take account of their role in meeting the skills needs of its area.

My Amendments 14 and 18 seek to ensure that LSIPs take account of UK-wide standards developed by national employer groups, picking up on what the noble Lord, Lord Storey, said. Either of the two might meet the need, although the first relates to the actual content of an LSIP, and the second to the characteristics of the employer representative body which develops it. I apologise to your Lordships if this seems like trying to get two amendments for the price of one.

There will be many areas of technology where there is a pressing need for LSIPs to upskill and reskill the existing workforce in their area but there are no associated apprenticeship standards; for example, because they would not support a full year of study. Examples include some of the key green technologies, such as installation of ground source heat pumps or electric car charging points. In the absence of formal standards, LSIPs will need to assure themselves that training provision and assessment is of the right quality and meets agreed industry standards. This assurance could be provided by recognised national not-for-profit employer bodies representing specific sectors, such as the Energy & Utility Skills Partnership, again mentioned by the noble Lord, Lord Storey, for whose briefing I am grateful. I would welcome the Minister’s views on how this need might be met and whether she might consider establishing a reasonably short list of recognised sectoral employer bodies capable of supporting LSIPs in this respect.

Amendment 21 addresses a related issue. The Bill says remarkably little about accountability and reporting requirements of employer representative bodies, apart from developing their LSIPs in a form that the Secretary of State is prepared to approve and publish. Perhaps the Minister could say something about how the subsequent progress and implementation of the plans will be reported and monitored; how information from LSIPs across the country will be aggregated to assess their impact on national skills needs and objectives; and how the Secretary of State will determine whether the new arrangements in specific LSIP areas are working as intended, bearing in mind the point that noble Lord, Lord Adonis, and others have made, that chambers of commerce in England vary considerably in size, scope and capacity, and may not always be the right body to lead ERBs.

Amendment 21 addresses only one specific aspect of this broader issue of reporting accountability and two-way flows of information between local plan areas and the centre. The amendment would ensure that the Institute for Apprenticeships and Technical Education has access, via reports from ERBs, to information on the activities and outcomes of the upskilling and reskilling programmes being pursued through their LSIPs, to inform its own work in identifying and approving needed apprenticeship standards and other technical qualifications for the future.

I do not anticipate pressing any of my amendments to a vote, but if the noble Lord, Lord Watson, decides to seek the opinion of the House on his Amendment 11, I shall gladly support him.

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Moved by

[Lord Storey]

34: After Clause 7, insert the following new Clause—
“Review of apprenticeship levy
The Secretary of State may request a review of the apprenticeship levy to—(a) ensure eligible costs are sufficient to enable apprenticeship standards to fully meet the demands of their occupation in relation to specific industries in the sector; and(b) provide the opportunity for coordinated pre-apprenticeship training and industry experience to broaden diversity and inclusion.”Member’s explanatory statement
The purpose of this amendment is to create flexibility in the eligible use of employers’ apprenticeship levy funds and to ensure there is wider diversity and inclusion in apprenticeships.

[Lord Storey (LD)]

My Lords, apprenticeships have been a really important development, particularly for young people. We saw at the beginning of the development of apprenticeships how young people felt that this was an important way to develop their skills and career prospects. For young people, it meant no student debt and more experience—20% on study and the rest on practical training—but in recent years, we have seen a massive decline in apprenticeships for young people, not just because of Covid. Current rates of employer-funded training for 16 and 17 year-olds are at their lowest levels since the 1980s. Just 3% of young people took up an apprenticeship in 2020 and only 2% of those were employer-funded training: it is almost back to the future.

Obviously, the pandemic and staying in education has had an effect, but the IFS concluded that there are fewer policy reforms or initiatives to arrest that decline in work experience among 16 to 17 year-olds. That is the area that we need to talk about, to look at and to be flexible about. Apprenticeship, like other routes of technical education, suffers from entrenched negative perceptions, biases and stereotypes in comparison to an academic route. Apprenticeship providers of high quality that lead to high earnings and better employment outcomes need to be stressed.

The Government have set a target that all public bodies should take on 250 apprenticeships with no age bracket, but the National Audit Office report found that employers were simply using money on existing professional development courses. Will the Government look again at how those targets might be honed more to young people because there is no age limit on them?

Of course, experienced workers should upskill or retrain, but apprenticeships should be prioritised for young people. The Government should look at employers and at receiving funds from the apprenticeship levy, using a substantial part of it on young people who began apprenticeships at levels 2 and 3, before the age of 25. We now need to refocus on the under 25s. We need to be ambitious, particularly with how we use the levy. The LGA—I declare an interest as a vice-president —has asked for more flexibility, for example by allowing a proportion of levy funds to be used to subsidise apprenticeship wages.

As we have discussed before, any of the apprenticeship that is unused of course goes back to the Treasury. The Energy & Utilities Skills Partnership did a survey of its membership and found that 54% of the levy was unspent and going back to the Treasury. What a waste for the education sector and for skills and vocational education. Why are we allowing that to happen? We could unlock that logjam by ensuring that we use that money in more flexible ways—there are plenty of examples.

My amendment highlights the issue of young people from ethnic minority backgrounds, who, quite frankly, have not been taking up apprenticeship opportunities. We need to understand why, and how we can encourage them to do that. By being flexible, we can perhaps make that happen. I hope that Members will support this amendment.

[Lord Aberdare (CB)]

My Lords, I have added my name to Amendment 34 of the noble Lord, Lord Storey, because of the key role that apprenticeships have to play in meeting the UK’s skills challenges, as pointed out earlier by my noble friend Lord Bird. However, as it stands, the policy is not working as well as it should or could, as pointed out by the noble Lord, Lord Adonis, and indeed the noble Lord, Lord Storey.

I was about to regale your Lordships with the results of a survey carried out by the energy and utilities sector, but that has already been done on my behalf, so noble Lords will be glad to hear that my speech will be even shorter. However, this illustrates that greater flexibility in the use of levy funds could actually increase the use of apprenticeships to deliver competences needed in that sector, for example through supporting pre-apprentice training initiatives in schools to increase the diversity and inclusiveness of new entrants.

Extra flexibility might allow some of the available levy funds to be used for approved high-quality shorter courses—less than one year long—or for apprenticeship-related costs outside the training itself, which might help in the perennial challenge of encouraging smaller firms to offer apprenticeships. This simple amendment merely gives the Secretary of State the power to request a much-needed review of the apprenticeship levy to ensure that it is working effectively in terms of the level of funding available for different apprenticeship standards and the opportunity to link policy on the levy more closely to other aspects of the overall skills programme. Even if the Government do not accept this amendment, I hope the Minister may say something about how they will respond to the widespread perception that the levy as it stands is not playing as effective a part in addressing the skills challenge as it should.

--- Later in debate ---

[Baroness Chisholm of Owlpen (Con)]

I offer many apologies to the noble Lord, Lord Watson. It was so rude of me. I am afraid my tummy overtook my brain, not for the first time.

Apprenticeships are at the heart of the Government’s skills ambition. Given Covid-19’s impact on our economy, apprenticeships are as important as ever in helping businesses to recruit the right people and develop the skills they need.

I want to take a few minutes to outline the principles of the apprenticeship levy and funding as I think that will help to respond to some of the points made. The apprenticeship levy has put apprenticeship funding on a sustainable footing and means that this year £2.5 billion is available to support apprenticeships. The levy has been set at a level to fund apprenticeship training and assessment in all employers—both those who pay the levy and those who do not.

As my noble friend Lady Penn explained in Committee, the funds available to levy- paying employers through their apprenticeship service accounts

“are not the same … as the Department for Education’s … apprenticeships budget.”—[Official Report, 15/7/21; col. 2025.]

This budget also funds additional payments made to employers and providers with apprentices aged 16 to 18. It funds the £3,000 incentive that can be claimed by employers hiring new apprentices. I should like to highlight to noble Lords that these incentives were recently extended by the Chancellor of the Exchequer until the end of January 2022, helping more employers to invest in apprenticeships as we recover from the pandemic.

This is one example showing that the apprenticeships programme is dynamic and responsive to both employers and the wider economic context. In addition, we are delivering a set of improvements and flexibilities that will make apprenticeships work better for employers in all sectors and give employers greater opportunities to make full use of their levy funds. Importantly, we also continue to listen to employers and adapt apprenticeships to better meet their needs. Work is under way to deliver a package of improvements which responds directly to employer feedback so that they can make greater use of the apprenticeship funds.

I think the noble Lord, Lord Storey, will be pleased to hear that, first, we are introducing a new service to make it easier for employers who pay the apprenticeship levy to transfer funds in their accounts to other employers. Large employers are able to pledge funds for transfers and other employers will be able to apply to receive these funds, helping both to benefit from transfers. Secondly, we are helping employers choose more innovative training models, such as front-loaded training and accelerated apprenticeships, which will help apprentices with relevant skills and experience to complete their training more quickly. Finally, we are supporting sectors of the economy which have more flexible working patterns, such as the creative industries. We will shortly launch a £7 million fund to help organisations in England set up and expand new flexi-job apprenticeship schemes.

I should also like to say a little about how we are supporting individuals into apprenticeships. We have introduced accelerated apprenticeships, which will reduce the duration of an apprenticeship for individuals coming from certain T-levels, skills boot camps and occupational traineeships where they have acquired substantial prior learning. This will join up skills opportunities and make them more appealing to both employers and individuals. We are undertaking the largest ever expansion of the traineeship programme for 16 to 24 year-olds, supporting more young people to move into apprenticeships and work. As over 30% of all traineeship starts are by learners from black, Asian and minority ethnic backgrounds, and over 20% of traineeship starts are from learners with learning difficulties or disabilities, our investment will also help to broaden diversity and inclusion. I hope the noble Lord will agree that there are some positive steps we are taking.

The noble Lord, Lord Storey, asked if the programme has shifted from older people. More than half—53%—of all apprenticeship starts continue to be by young people under the age of 25. This compares to 56% in 2015-16, prior to our reforms. As well as supporting young people into employment, it is important to recognise the role apprenticeships play in upskilling and reskilling people throughout their lifetimes. I hope I have made the noble Lord, Lord Storey, happy with what I have said and that he will therefore feel comfortable withdrawing his amendment.

[Lord Storey (LD)]

I think you have made Lord Storey very happy. I felt at one stage like I was in a sort of parallel universe when I was speaking—with people walking past, it was very strange. I reassure the noble Lord, Lord Watson, that I was not proposing that levy funds be used for wages. I was saying that we should be innovative in how we use the levy and that might mean increasing the amount of money we give to apprenticeships.

I was pleased to hear from the Minister about the package of improvements and new models of working. Flexibility is really important. We are all committed to the notion of apprenticeships, but we have to make the wider community and society realise how valuable they are. Maybe we could start in Parliament itself. I wonder how many apprenticeships for 16 to 24 year-olds there are in the House of Lords. Are there any? Perhaps not. Let us say straightaway that we will introduce some apprenticeships in our House. That would be a real start. I beg to withdraw this amendment.

Amendment 34 withdrawn.

Schools: Examination Assessments

Lord Storey Excerpts

Tuesday 12th October 2021 Lords Chamber

[Lord Storey (LD)]

My party would like to welcome the Minister to her new role and wish her well. We also pass on our best regards to her predecessor. My question to the Minister is about summer-born children; she will know that children who are born in the summer could miss a year, 11 months, 10 months or nine months of schooling. Why is no consideration taken of this fact in the guidance regarding assessment?

[Baroness Barran (Con)]

I know that the noble Lord has been a champion of summer-born children, and I understand that he is one himself. As I am a winter-born child, obviously we might not see eye to eye on this. But we have had to take into account multiple elements in thinking about the adaptations for this summer, and we have tried to reach the fairest possible point in both adaptations to the system and in grading.

Looked-after and Adopted Children

Lord Storey Excerpts

Tuesday 28th January 2020 Lords Chamber

[Lord Agnew of Oulton]

My Lords, this has been a particular passion of mine. We have created a unit called Boarding School Partnerships, which is encouraging local authorities to engage far more with boarding schools. We even have an offer by many of the independent schools of a 40% bursary for looked-after children. A study recently carried out by Norfolk showed the longitudinal outcomes of looked-after children or children on the edge of care, and they achieved far greater educational results and indeed often came off the register completely.

[Lord Storey (LD)]

My Lords, as the Minister said, these are the most vulnerable children in our community. They are four times more likely to develop mental health conditions. Surely it is not acceptable that 65% of all looked-after children receive support within local authorities whose services are deemed to fall short of what is expected. Can we have a clear statement from the Minister that this will be tolerated no more?

[Lord Agnew of Oulton]

My Lords, we certainly do not tolerate the failure of children’s services and local authorities. We have made a great deal of progress over the last five or six years. For example, Birmingham was a failing children’s services institution for 10 years but is now out of that. Likewise Doncaster, where we created a trust, is now greatly improved.

Schools: Excluded Children

Lord Storey Excerpts

Monday 27th January 2020 Lords Chamber

[Lord Agnew of Oulton]

My Lords, to put things in perspective, the level of exclusion has remained broadly stable over the last 15 years at 0.1%. However, I take on board the noble Baroness’s comments. More needs to be done in mainstream education, which is why we are announcing and rolling out our behaviour hubs to try to stop children being excluded. The quality of alternative provision also needs to be improved continuously to deal with some of the issues that she raised.

[Lord Storey (LD)]

My Lords, as the Minister knows, the problem is that many excluded pupils go into unregistered alternative provision. In many cases, this does not have simple things such as a register or safeguarding procedures. One of the reasons this happens is because local authorities, which are responsible for this, choose unregistered provision because it is cheaper. They say that they have a quality assurance regime. Will the Minister liaise with Ofsted and the Local Government Association to make sure that this quality assurance regime complies? Finally, where are we up to on a register for all children who go missing?

[Lord Agnew of Oulton]

My Lords, the noble Lord raises a good point on the link-up between the Local Government Association and Ofsted. I certainly recommend that the Local Government Association write to HMCI to outline the issues that the noble Lord has raised. There should be a closer join-up. Essentially, such a school is illegal if it has more than five pupils and is teaching a full curriculum—that is the bottom line of an unregistered setting. If there are failures in the two linking up, that needs to be improved. We have announced a broader review of the whole SEND system, on which we will provide details soon.

Children: Rights and Well-being

Lord Storey Excerpts

Thursday 9th January 2020 Lords Chamber

[Lord Agnew of Oulton]

On the right reverend Prelate’s first question, I will certainly check with officials that the justice system is aware of the provisions that he refers to. Looked-after children is an issue of increasing priority for the Government, as was mentioned in our recent manifesto, and I completely agree that they are one of the most vulnerable groups in our society. One of the initiatives that I have encouraged, for example, is the far greater use of local authorities teaming up with boarding schools which offer 40% bursaries to encourage some of these vulnerable children to join their institutions. We have seen evidence of a dramatic improvement in the life chances of those children.

[Lord Storey (LD)]

My Lords, with a 28% increase in the number of children in care, a 53% increase in the number of children on child protection plans and, as we heard yesterday, a 70% increase in the number of children being excluded from school, are we taking our obligations seriously?

[Lord Agnew of Oulton]

My Lords, we are committed to social care; it is one of our top priorities. In the settlement for 2020-21, we see the largest rise in core spending since 2015; a real-terms increase of 4.3%. On top of that, we are investing £84 million in targeted, evidence-based interventions to improve the support provided to vulnerable children and their families and to enable more children to stay at home, thriving with those families.

Vocational Education and Training

Lord Storey Excerpts

Monday 28th October 2019 Lords Chamber

[Lord Storey (LD)]

My Lords, I start by thanking the noble Viscount, Lord Bridgeman, for initiating this important and timely debate. As we all know, the Queen’s Speech said that “all young people” will,

“have access to an excellent education, unlocking their full potential and preparing them for … work”.

The phrases “all young people” and “preparing them for work” will require a major shift in our schools and our education service if this is to happen.

Currently, about 50% of young people have the capacity to follow an academic curriculum, but the other 50% are caught in a system which is like a straitjacket for their career and vocational aspirations. In schools we have a narrow curriculum, and the introduction of the EBacc is wholly unsuitable for these students. Because of the EBacc, schools have jettisoned other subjects, so we have seen another year in which non-EBacc subjects have dropped further; this time by 11.1%. This of course feeds into our A-levels and a further decline in availability. Design and technology, for example, has reduced by 7.5%.

Can somebody explain this to me? As a country, we have a thriving creative industries sector, which generates 5.5% for the UK economy. There are 2 million jobs in the creative industries, accounting for one in 10 jobs across the UK. By the way, the sector employs 700,000 more people than financial services. However, year by year, as we see this sector grow, creative subjects—music and drama—in our schools are being dropped. One would think we would want to nurture and grow this successful sector by ensuring that young people who have the vocational aspirations to enter it have the opportunity to do so. It is not surprising that school leaders prioritise the EBacc subjects: the other sting in the tail is that 70% of a school’s league table score comes from the results in those subjects. Of course school leaders prioritise these subjects. No wonder Ofsted raised the issue of the narrowing of the school curriculum in a letter to the Public Accounts Committee last year. Its chief inspector said that there is:

“clear evidence of a decline in the quality of education in the narrowing of the curriculum in schools and an endemic pattern of prioritising data and performance results, ahead of the real substance of education”.

For many non-academic young students, a complete focus on end-of-year written examinations is wholly inappropriate. We surely want these students to blossom. Removing most coursework and non-exam assessment and just using end-of-course exams makes those exams extremely high stakes—which, by the way, is a contributing factor to poor mental health among students. Our school system is not vocational education friendly. When a student finishes at 16, schools try to encourage them to stay on in the sixth form—because each student is worth a pot of money—when, in many cases, a vocational course at a college would be more appropriate to their needs. As the House has already heard, the Baker amendment has at least slightly tilted the balance. However, I have heard alarming tales of how schools try to get round the encouragement of vocational courses. Maybe Ofsted needs to look at this.

For the first time in decades we are beginning to see a realisation that if we do not prepare all school students for the world of work, and if we are to provide the skills that our country needs, then the dial needs to be reset. Is it too hopeful to think that we are seeing the beginning, the dawning of a new tomorrow in vocational education? The Secretary of State for Education has talked about vocational education being his top priority and additional resources have gone into the sector. The Augar review set out a vision for England’s higher and further education that, if implemented, will rebalance spending on vocational and technical education. That report also described the disparity between the 50% of young people who do not go to university and those who do. The Augar review was welcomed. Perhaps, when he replies, the Minister will tell the House where we are up to on that and when it will be brought forward.

One of Mr Williamson’s predecessors used to cite other European countries and international tables to bring about changes to education. If we want to see vocational education flourish, we need look no further than Switzerland or Germany or France. I have Swiss relatives and my cousin has two sons who were not academic but have thrived in their education system. Switzerland holds vocational education in equal esteem to academic education. Despite its size, Switzerland is an economic powerhouse. It ranks first in the Global Innovation Index and third in the World Economic Forum’s human capital index. Switzerland’s economy is one of the most inclusive in the world. Switzerland’s vocational and technical education plays a crucial role in preparing young people for the world of work. Two-thirds of young people in Switzerland choose to go down the vocational route, typically at the age of 15 or 16, which involves signing a three or four-year apprenticeship contract. Under Switzerland’s dual system, apprentices typically spend three or four days learning on and off the job at a host company, for which they receive a salary, and one or two days in general education. Pedagogically, the aim is not just to build technical skills but to develop students’ capacities as active citizens.

We obviously cannot just import these ideas, yet there are policy lessons and principles that the UK would do well to consider. I hope that this debate will be the springboard for the renaissance of vocational education that we all hope for.

National School Breakfast Programme

Lord Storey Excerpts

Thursday 5th September 2019 Lords Chamber

[Lord Agnew of Oulton]

My Lords, as I said, any decision to renew the contract for this national school breakfast programme will be part of this year’s spending round, of which headline details were announced yesterday by the Chancellor. My officials are working closely with the contractor on ensuring that breakfast clubs are sustainable. We will announce plans in relation to this shortly. However, I want to ensure that we do not entrench existing suppliers. We must remain alert to other ideas and other methods of delivery.

[Lord Storey (LD)]

My Lords, the Minister will be aware that where breakfast clubs operate it ensures that children’s attendance and punctuality improve, healthy food is eaten, attainment achievement is often improved and socialisation takes place. He will also be aware that 62% of teachers say that increasing numbers of children are coming to school undernourished and wanting food. When this decision on spending takes place, will he put those important issues into consideration so that this programme can not only continue but be extended?

[Lord Agnew of Oulton]

I completely agree with the noble Lord on the importance of a healthy breakfast for children—there is masses of evidence to support the benefits. It improves concentration and provides nutrition, which does not always happen at home. I agree with that. We are reviewing the future of the programme. We had our spending settlement letter and announcement from the Chancellor only yesterday. We want to ensure that we can extend this programme in an effective way. We have targeted it initially in the opportunity areas, which, as noble Lords will know, are some of the areas of greatest deprivation. We want to create a system that is sustainable into the long term.

Education Funding

Lord Storey Excerpts

Tuesday 3rd September 2019 Lords Chamber

[Lord Agnew of Oulton]

I am perhaps more optimistic on rural schools than the right reverend Prelate. Coming from a rural background myself, I know the importance of these schools in communities beyond the simple provision of education. As he quite rightly said, some of the greatest increases in funding will go to these schools over the next two to three years. I am therefore very confident that it will be a huge boost to them.

Early years was not the subject of this announcement. It may be addressed as part of the spending review tomorrow, but it is not in the remit of this announcement.

I hear the right reverend Prelate’s concern on these retakes, but I am afraid I respectfully disagree with him; I think it is incredibly important that they get these base qualifications so that they can progress to their career, but I accept that we need to find better ways of educating. I am particularly interested in edtech, which might bring in ways of teaching that have previously eluded those pupils.

[Lord Storey (LD)]

My Lords, I also welcome the Statement. We are obviously delighted that extra resources are being made available, and I accept the figures that were given. I am concerned about two areas. The first is further education—we heard my noble friend Lady Garden speak eloquently on this subject. While there are extra resources, does the Minister expect that they will increase over the next few years? I have never quite understood—perhaps the Minister could explain this to me—why, if I am a chemistry teacher in an academy or a maintained secondary school, I get considerably more pay than if I am a chemistry teacher in a further education college. Why should this be the case? Secondly, if I am in a sixth form college which is part of an academy chain, there is a VAT exemption. If I am in a stand-alone sixth form college which is not part of an academy chain, the school has to pay VAT. Can that be fair?

My niche question is on behaviour. I was fascinated, interested and delighted to hear about these behaviour hubs and will watch this space with interest. We heard the Secretary of State say, whether it was in the Statement or separately, that he would back schools which permanently excluded pupils from school for bad behaviour. I have always said that teachers have a right to teach and pupils have a right to learn. Schools have to do everything possible to try to ensure that pupils with behavioural problems are supported within the school, but if we move to a system where there is a sort of free rein to exclude pupils, we will see all sorts of difficulties. If we move to that new ethos, will the Minister make available more resources for alternative education? If that is the case, will he ensure that the use of unregistered alternative providers no longer happens? We are seeing young people excluded from school and going into unregistered providers, many of which quite frankly do not deserve to be in education at all. The young people are not even checked in and checked out; they can often roam the streets and get involved in drug and gang culture. That cannot be the case, so what extra resources will there be for alternative education in this announcement?

[Lord Agnew of Oulton]

The noble Lord asks important questions. First, I will try to clarify the difference between FE and the school system, particularly the academy system. FE colleges have a different legal status and a degree of independence which does not relate to the school system. The colleges themselves take the decisions on pay, and one of the anomalies which I must admit I do not really understand is that they tend to prefer to pay all teachers exactly the same rate irrespective of their skills or the particular subjects they are teaching. One of the things that I want to do with this new funding is to find a way of challenging them to be a bit more flexible. As the noble Lord says, if you teach chemistry in an academy and earn X amount, why can you not earn a similar amount in an FE college? I want to get to the bottom of that, to be honest.

Again, VAT status is a quirk of the different legal status of these entities. For example, FE colleges as independent units have the right to borrow, which does not exist in the school system; however, as almost a quid pro quo, they do not have the right to recover VAT. We have offered for sixth form colleges to convert to academisation; quite a lot of them—over half, I think—have done so. Those that have not have reasons for choosing not to, but it is an option that they can consider.

On behaviour, I have just found a note. To answer my noble friend Lord Lexden’s earlier question, the first hubs will open in September next year. In relation to exclusions, I assure the noble Lord and everyone here that we are not for a second suggesting a free-for-all on permanent exclusions. Indeed, in the new Ofsted framework, there will be much more scrutiny of exclusion policies, particularly permanent ones, by schools. So there is no suggestion that we encourage exclusion, but I believe strongly that it is an important tool in the locker of a school where very difficult children disrupt the education of others.

To be clear, an unregistered school is an illegal school. Ofsted has an ongoing programme to track these schools down; when they are located, we close them and take legal action against the proprietors where that is the appropriate course.

[Lord Storey]

I am pleased with the Minister’s answer. In terms of alternative provision, the problem with unregistered schools is that local authorities themselves send the excluded pupils to those institutions. The parents are not deciding that they should go to a particular religious type of unregistered school; local authorities are saying, “Oh, we’ve got this boy or girl, this student, who has been excluded from school. We are going to put them in alternative provision”. They then go for the cheapest option, which is often an unregistered school, with all the problems that that entails. I have asked before whether we can write to local authorities saying that this is not acceptable because they are operating illegally.

[Lord Agnew of Oulton]

The noble Lord is quite right. Sometimes, a local authority may use part-time provision that may be legal but, often, these morph into full-time institutions without the local authority realising. We are in constant dialogue with local authorities on this issue, reminding them that sending a child to an unregistered school on a full-time basis is not on. We are carrying out a consultation of the process of getting schools to take ownership of a pupil once they have excluded them; in other words—this is not agreed yet, but we are consulting on these ideas at the moment—they would be responsible for the ultimate educational results of the child that they had excluded, so they would have to consider the issue much more carefully. We are opening more free school PRUs and APs so that more provision is available. I accept that this is a difficult area, but we are putting a lot of emphasis on it.