Apprenticeships and T-Levels

Melanie Onn Excerpts

Wednesday 20th November 2024 Westminster Hall

[Damian Hinds]

Indeed—the hon. Member is absolutely right. Part of the point of careers advice is knowing which course to take and which qualification to pursue. The panel that I mentioned found that if someone was considering a career in plumbing, for example, there were 33 different qualifications that they might seek to take. It also found that in general the various qualifications were not providing the skills needed; they had become divorced from the occupations they were meant to serve, with no requirement, or only a weak requirement, to meet employers’ needs in those occupations.

The panel’s report, which came out in April 2016, became a blueprint for a major upgrade of technical and vocational education in this country. The panel was determined to address both the productivity gap and very clearly also the social justice gap, whereby some young people were being left behind. I stress that although the report was a blueprint, it was also a “redprint”: the panel was chaired by the noble Lord Sainsbury, the distinguished Labour peer. The report called for “a fundamental shift”, with

“a coherent technical education option…from levels 2…to…5”.

There would be 15 clearly defined sector routes, covering 35 different career pathways. Three of those routes would be available only through an apprenticeship; the other 12 would be available either through an apprenticeship or a college track, and there would be common standards for both. Both the apprenticeship and college-based routes would result in

“the same or equivalent technical knowledge, skills and behaviours”

to take into the workplace. The report said that this path

“needs to be clearly delineated from the academic option, as they are designed for different purposes. But, at the same time, movement between the two must be possible…in either direction”.

The report also recommended expanding the then Institute for Apprenticeships into an Institute for Apprenticeships and Technical Education, so as to cover both apprenticeship and college tracks. It added:

“Specifying the standards…is not a role for officials in central government but for professionals working in…occupations, supported by…education professionals.”

It recommended that there should be improvements to apprenticeships and a new, largely college-based qualification, which would become known as the T-level.

With T-levels, the knowledge, skills content and required behaviours are set not by somebody at the Department of Education but by employers. There is the core technical qualification, but there is also content in English, maths and digital. Crucially, there is a 45-day industrial placement. There are also more college hours than with traditional vocational qualifications and indeed more taught hours per week than for A-levels.

For the upgrade that we needed in our country, in both productivity and opportunities available to all young people, T-levels had to become the principal college-based option—not the only option, but the principal or main college-based vocational qualification. And the T-level could not be grafted on to a market that already had thousands of qualifications; there was an incumbency advantage and even commercial interests attached to some of those. It had to replace a number—a lot—of qualifications. Gordon Brown, the former Prime Minister, has been speaking about this quite recently.

The other thing that was always going to be difficult about T-levels was finding enough industry placements. Lord Sainsbury found that we might need up to 250,000 industry placements for 17-year-olds, and that, of course, is hard to achieve. We could say that it is too hard and give up, but if we did that we would be giving up on advancing our competitiveness.

The alternative is that we change culture in our country and say to companies that if they want to be a great success in their sector, and their sector to be a great success in our country, and our whole country to be a success in the world, we all have to invest both the resource and the time in the next generation.

[Melanie Onn (Great Grimsby and Cleethorpes) (Lab)]

I do not disagree with the right hon. Member on that point; I just wanted to highlight that in my constituency of Great Grimsby and Cleethorpes there is an apprenticeship provider called CATCH. Local businesses have come together to invest in a brand-new welding apprenticeship facility that will deliver 1,000 apprentices over the next few years. Is that the kind of partnership working that he envisages, which works well for local communities, young people and business?

[Damian Hinds]

I am sure it is. I will come to apprenticeships in a moment, but I was just talking about industry placements in T-levels.

From speaking to young people who are doing T-levels, colleagues will know that their most popular feature is probably the fact that young people get to do a real role in a real workplace. The placements are also popular with the employers that provide T-levels: first, the employers are investing in the next generation and helping develop all the things the lack of which they sometimes complain about—soft skills and workplace skills—and secondly, the placements are the most fantastic, longest-ever job interview, when employers get to see the people who may come and work in their company over an extended period. I appeal to Ministers to carry on the great work of shouting about T-levels and talking about these great opportunities and the upgrade they represent.

There were two big changes to apprenticeships. The first ensured that there were minimum standards. Previously, as colleagues will recall, some apprenticeships were so thin and flimsy that the apprentices did not know they were on one. After minimum standards came in, apprenticeships would last at least one year and involve at least 20% of time off the job. As with T-levels, there would be an end-point assessment, which would feature standards set by employers.

The second big change was the introduction of the apprenticeship levy. That has always been controversial with some employers, but it was there to do two things. First, it raises the funds needed to pay for a big upgrade in apprenticeship provision. Secondly, it deals with the free rider problem, with which we will all be familiar: some companies in a sector have always strongly invested in young people, but three years later those young people leave to work for another employer that can offer to pay more but has not made the investment in the first place. The apprenticeship levy deals directly with that free rider problem, as economists call it, so that every sizeable company contributes properly.

The new Government plan to change the scope of the levy and to introduce two new types of apprenticeship, which it is fair to say we do not know a huge amount about: foundation apprenticeships and shorter apprenticeships. There is an argument that we already make the word “apprenticeship” do a lot of work—it covers a wide spectrum. Arguably, there are three types of development of self and training, which have different needs: someone may be a career starter, career developer or career changer, and the specifications of the courses and qualifications are different. For example, a 50-year-old who is changing career does not need to learn as many things about what it is like to enter a workplace for the first time as an 18-year-old does. In truth, only one of those types of training is what a normal member of the public associates with the word “apprentice”: we think typically of people who are young and starting out on their working journey.

It is totally legitimate to look at changing what the levy covers, and it is good to refocus on young people—career starters. It is also reasonable to say that the levy could cover some things that are not apprenticeships, such as management development or traineeships, but there is huge value in maintaining integrity around what we mean by the word “apprenticeship”, and keeping a minimum length and quantity of college or off-work content.

Whatever the Government do with the levy, they need to find a way to deal with the free rider problem. The Government will always be lobbied by companies saying, “We should be able to use the levy for this, that and the other”, but if “this, that and the other” means training that they would have paid for anyway, then the levy will not have achieved its goal. It has to be something that creates a net increase in the amount of training and development available.

That brings me to Skills England. Now, Ministers like shiny new things, and some people will always lobby for things to change. A sweet spot is found in public policy when the two coincide: Ministers get lobbied to do something, and they think they have come up with a shiny new thing that sounds like it will achieve those ends. Skills England is one of those things; I am afraid that, without major design change, it is doomed to failure. I have no doubt that plenty of people who lobbied the Government when they were in opposition said, “We need a different approach to skills. We need to think about them across Government, take the long view, listen to employers, listen to young people and have an integrated approach.” The Government have come up with this thing called Skills England, which they think will do that.

Skills England will be the 13th new skills agency in five decades. If all it took to solve our skills and productivity problem was a change in the machinery of government, do the Government not think that one of the previous 12 might already have managed it? The instinct in difficult circumstances is to break glass and reach for a quango, but Skills England is not even a quango; it is nada—not quasi-autonomous, but a non-accountable departmental agency—and there is no reason to think it will be any better at working across Government, let alone across the economy, in solving these issues.

If the Government were serious about creating something new to join together the Home Office, the Department for Business and Trade, the DFE and everybody else, they would put it in the Treasury or perhaps the Cabinet Office. They would not just make it part of the DFE management structure. Worse than that is the loss of independence compared with the Institute for Apprenticeships and Technical Education.

There is legislation currently going through the other place that ostensibly creates Skills England, but it does no such thing. All it does is abolish the independent institute and move all of its powers into the Department for Education. The Secretary of State will now have responsibility for standards for T-levels. Imagine if that were the case for A-levels. If it is not all right for A-levels, why should it be all right for T-levels?

--- Later in debate ---

[Luke Taylor (Sutton and Cheam) (LD)]

It is a pleasure to serve under your chairmanship, Sir Christopher. I thank the right hon. Member for East Hampshire (Damian Hinds) for securing this debate on such a critical issue for our young people. Today, I want to highlight a major concern among college staff and students: the need for certainty about the potential defunding of BTECs in favour of T-levels.

For years, BTECs have served as a trusted form of level 3 qualification, providing students with practical and theoretical skills in a format that staff are experienced in delivering. I have heard from teachers about the pride and joy they take in teaching BTECs and watching their students thrive as they apply themselves to often very practical subjects. In many cases, it is the first time that those children have ever felt passionate about learning and excited to go further. It gives them the chance to finally start down the path—a path I imagine all of us in the Chamber want young people to take—towards realising their full potential. That is why so many are concerned about the replacement of BTECs with T-levels, and why I hope that the Government address those concerns when they publish the findings of their review of the policy next month.

I have heard from teachers who say they will struggle with the suggested rapid adoption of new course structures and unfamiliar theoretical components across the whole range of non-A-level subjects. Staff at South Thames Colleges Group, which serves many of my local students, have expressed concerns about how those sweeping changes will be implemented effectively. Currently, around 58 courses are at risk of being defunded.

[Melanie Onn]

Is some of the concern coming from colleges not also about the timing of those decisions? Franklin college in my constituency has said that the earlier it knows, the better it can plan. It is already receiving parents and young people in for open days for courses next year.

[Luke Taylor]

The hon. Lady makes a point so good that I will be getting to it shortly—I completely agree.

Staff worry about having to adapt their curricula to align with the new T-levels, which will involve updating course content, revising teaching methods and redesigning assessment strategies to meet the new required standards. There is no way to do that without enormous, time-consuming upheaval, which they will need as much notice as possible to prepare for. Teachers deserve a definitive answer on what will happen next.

It is not just teaching staff; students have been left in the dark, too. Approximately 380 students planning to enrol at a college in the South Thames Colleges Group are affected by the confusion surrounding the implementation of T-levels. Those currently completing GCSEs and planning for their post-16 education face uncertainty about what their courses will look like in September 2025. They fear the removal of the element of choice in the system.

BTECs formerly offered the option of a professional placement, but T-levels are geared specifically to placements. That leaves those who may not be academically suited to A-levels but do not wish to begin a T-level course, 20% of which is effectively a job, with no real support. On a visit to Carshalton college, I was told that there were 120 applicants for a diploma in childcare but only seven for a T-level in childcare. That could create a shortage in qualified staff coming through the system. The impact is felt disproportionately by those with special educational needs and disabilities, many of whom need extra support to explore their options before entering adult life, and for whom entry into the world of work may not be the right option so early in adulthood.

Nobody is denying the merit in reviewing periodically the way we train our young people for the future, but forcing students to choose exclusively between A-levels and T-levels could represent a narrowing of their options. I fear that this is a poorly managed top-down change for teachers to implement, and a gamble with the opportunities of a generation of young people who, let us not forget, have already had their education severely disrupted by the covid pandemic. With September 2025 rapidly approaching, I urge the Government to provide clarity to all those affected so both students and staff can plan for the change ahead. The Government must also think again, and give colleges and students flexibility to choose the appropriate qualifications for them and their communities.