increase in funding. Colleges have been warned to expect even tougher funding settlements in the three years 2011-12 to 2013-14, with possible annual cash reductions of five per cent.


The education minister recently announ-


ced a review of funding of post-16 education. It has the laudable aim of ensuring that as much of WAG funding as possible gets to the education frontline. Consultants will report shortly on ways in which back-office functions in education can become more efficient. Sharing of services such as payroll, management information systems and even personnel functions and student enrolment have been mooted.


But after years of efficiency savings, colleges are pretty lean organisations. What is required is a radical look at costs within the WAG’s Department for Children, Education, Lifelong Learning and Skills (DCELLS). Having fewer top-sliced funds, each with its own expensive and time-consuming audit trail, would help. Ensuring regulation is proportionate to risk would reduce overheads. Colleges need to ensure that staff are deployed effectively. CollegesWales has opened discussions with trade unions to explore a common contract that will ensure that college staff have the flexibility to meet changing external demands. The key challenge will be how best to increase efficiency while maintaining effectiveness and improving quality.


Unhelpful competition


The number of people aged over 16 in Wales is around 2.4 million. They are currently served not only by FE colleges but also by 168 school sixth-forms and around 60 training providers, as well as numerous adult community learning centres. The post-16 sector is overcrowded, increasing the risk of duplication of courses, small class sizes and unnecessary and unhelpful competition. Partnerships between institutions in the public sector are encouraged by the WAG as a way of improving services. Partnerships frequently involve lots of joint meetings. Institutions may share some limited infor- mation. There may be small-scale sharing of courses, staff and students. But for the WAG, this is now seen as not enough. Talking shops don’t make decisions. What is required is collaboration: partnership with knobs on. Collaboration involves a formally structured set of relationships. It means courses of study being rationalised, shared timetables, independent advice to students on the full range of courses available, and colleges and schools delivering courses on each other’s premises. The term ‘partner’ has a more positive ring than ‘collaborator’, which might explain the continued use of the word, as is illustrated below. Two significant reforms are having a dramatic impact on the post-14 and post-16 landscape in Wales. The innocuous-sounding


but radical Learning and Skills (Wales) Measure 2009 requires local education authorities and the WAG to ensure a minimum entitle- ment to learning and support for young people by 2012. A Measure in the National Assembly for Wales is equivalent to an Act of Parliament. Students at the age of 14 will be entitled to choose from at least 30 courses of study at the age of 14 rising to at least 40 at the age of 16. There will be a minimum number of vocational courses available to learners of all abilities, a key plank in reducing the stranglehold of academic subjects in schools. Educational institutions are consequently starting to plan provision, reduce duplication and provide increased choices for young people.


The other significant development is the ‘transformation’ agenda. This term is preferred to ‘reconfiguration’’ or ‘rest- ructuring’. The WAG’s Skills That Work for Wales Action Plan, published in July 2008, saw skills and employment as the ‘foundation of a successful life and ... essential for a more prosperous and more equal Wales’. Colleges were seen as the ‘key driver for skills’. Proposals to transform the provider network raised in the Action Plan were taken forward in Transforming Education and Training Provision, published in September 2008. Post- 16 providers (a horrible term!) and local authorities were encouraged to set up ‘learning partnerships’ (not collaborations!) to come forward with proposals to transform post-14 and post-16 delivery in their areas. The approach taken by the WAG is


interesting. A top-down approach, such as that adopted in Northern Ireland when its FE colleges were merged, was avoided. A ‘one size fits all’ approach was rejected. Rather, examples were given of potential models which each learning partnership might wish to consider. The emphasis was on local proposals that suited local circumstances – let a thousand flowers bloom. But underneath this benevolent veneer was a mailed fist. Maintaining the status quo was not an option. Learning partnerships drew up strategic outline programmes. These were judged by WAG against criteria, such as improvements for learners, employers and the local community; cost effectiveness and long-term sustainability; enhancement of the Welsh language and bilingual provision; and improvements in equality and diversity. Some met these criteria. Those that did not had to resubmit.


The FE sector fully embraced this agenda. Eight colleges, including ColegHarlech/ WEAN and WEA South, are in the process of merging. Two mergers have already taken place. The number of FE colleges and FE institutions is set to fall from 25 in 2008 to 18 in 2012. The average turnover of colleges will increase from £17 million to £22 million with five colleges having turnovers of over £35 million. A number of strategic alliances, between colleges, and between colleges and


universities, have been announced. Colleges are also forming consortia to bid for work- based learning contracts.


A number of local authorities have put


forward proposals for schools to work together to plan post-16 delivery. In five cases, LEAs are consulting on bringing together all post-16 provision in tertiary-type arrangements. Now, many head teachers, some of whom


were initially hostile to change, are respond- ing to demographic trends and recognising the importance of a post-16 sector that provides real choice for its learners. In a few cases, learning partnerships


are dragging their feet. Using its funding muscle, the WAG is likely to take a more interventionist role than hitherto. LEAs that have not tackled surplus school places or engaged in the transformation agenda will find it impossible to obtain capital funding.


Employment opportunities The key focus of WAG policy has been to link investment in education with the need to raise skills and improve employ- ment opportunities. Another consultation document, Investing in Skills, published in October 2009, sets out a policy that gives fee remission to certain groups (16-18 year olds, Level 1 and Level 2 courses, basic skills courses, apprenticeships, unemployed people in receipt of job seeker’s allowance). Individuals and employers will be expected to make a greater contribution towards costs. Colleges will need to decide whether or not to subsidise some courses. The numbers of part- time adult learners is likely to continue to decline as funding for adult learning has been squeezed. Interestingly, the WAG policy to restructure adult and community learning in Wales has been delayed. So what do the next few years hold? There will be fewer post-16 institutions in Wales. Collaboration between existing providers will be expected to bring results. Institutions will have to be run more efficiently. More money is likely to be directed to the frontline with fewer top-sliced funds and, perhaps, fewer initiatives. Education for skills and increasing employer engagement will take funding priority over other forms of adult learning. Adult learning will be targeted at certain dis- advantaged groups. Colleges will be expected to increase the provision they make for Welsh- medium and bilingual teaching. The acid test will be whether, in the light of these reforms and funding restrictions, standards will increase and students, communities, employers and the taxpayer receive more value for money from their post- 14 and post-16 education sector. But colleges are certainly up for the challenge. They are optimists – looking for opportunity in times of difficulty.


John Graystone is Chief Executive of ColegauCymru


APRIL 2010 ADULTS LEARNING 15


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