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MEMORANDUM TO THE BUSINESS, INNOVATION AND SKILLS SELECT COMMITTEE. Post-Legislative Assessment of the Further Education and Training Act PDF
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1 MEMORANDUM TO THE BUSINESS, INNOVATION AND SKILLS SELECT COMMITTEE Post-Legislative Assessment of the Further Education and Training Act 2007 Presented to Parliament by the Secretary of State for Business, Innovation and Skills by Command of Her Majesty November 2012 Cm
2 MEMORANDUM TO THE BUSINESS, INNOVATION AND SKILLS SELECT COMMITTEE Post-Legislative Assessment of the Further Education and Training Act 2007 Presented to Parliament by the Secretary of State for Business, Innovation and Skills by Command of Her Majesty November 2012 Cm
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4 MEMORANDUM TO THE BUSINESS, INNOVATION AND SKILLS SELECT COMMITTEE Post-Legislative Assessment of the Further Education and Training Act 2007 Introduction 1. This memorandum provides a preliminary assessment of the Further Education and Training Act 2007 (FETA) and has been prepared by the Department for Business, Innovation and Skills for submission to the Business, Innovation and Skills Select Committee. It will be published as part of the process set out in the document Post Legislative Scrutiny the Government s Approach (Cm 7320). Background and objectives of the Further Education and Training Act The FETA received Royal Assent on 23 October Its main purpose was to implement proposals contained in the White Paper, Further Education: Raising Skills, Improving Life Chances (Cm 6768, March 2006), which set out proposals for the reform of the further education (FE) sector: reforming FE corporations so that they could effectively equip young people and adults with the skills for productive, sustainable employment in a modern economy; targeting public funding on priority areas, following the needs of learners and employers, and backed by stronger strategic planning at regional and local level; and providing stronger levers to improve quality and tackle failure. 3. The FETA also made provision for the restructuring of the Learning and Skills Council for England (LSC), amending parts of the Learning and Skills Act 2000 (LSA) under which the LSC had been established, so that it could operate more effectively in partnership at the regional level; and providing flexibility to adapt its structure to meet future needs. 4. The FETA also gave the Secretary of State powers to specify areas of England for which new strategy-making bodies would be set up with responsibility for putting in place a strategy that would set out how the LSC should carry out its functions in that area. 5. It also transferred powers of intervention, with modifications, from the Secretary of State to the LSC, enabling it to take remedial action in the case of failing FE corporations, in certain prescribed circumstances, by for example: removing all or any members of the governing body and appointing new members; directing a governing body to collaborate with another institution; and directing a governing body to consider the case for dismissal of a member of staff, where the LSC considered it appropriate to do so. It strengthened the role of FE corporations in providing higher education (HE) by allowing them to award their own foundation degrees, removing their dependency on HE institutions for validation. Structure of the Further Education and Training Act The FETA is divided into four parts: 3
5 Part 1 made provision for the restructuring of the Learning and Skills Council (LSC), and amended or removed a number of legal requirements relating to its membership and committee structure. It also placed new duties on the LSC to promote choice and diversity; consult employers and learners; and carry out its functions in accordance with strategies formed by new strategymaking bodies. Part 2 transferred the power to open (incorporate) and close (dissolve) FE corporations and the powers of intervention (with modifications) from the Secretary of State to the LSC, and placed certain duties and requirements on FE corporations. Part 3 updated the process by which industrial training boards can demonstrate support for training levy proposals. Part 4 contained miscellaneous and general provisions, including clarifying certain powers of higher education corporations and the National Assembly for Wales. 7. FETA extends to England and Wales only with the following exceptions: Section 11 and 12, which relate to the provision of services by the LSC, which extend to Scotland Sections 11 and 13, which relate to the provision of assistance by the LSC, which extend to Northern Ireland Sections 24 and 25, and certain provisions in Schedules 1 and 2, which relate to industrial training levies, which amend enactments extending to Scotland Certain general provisions, which extend to the whole of the UK. Commencement 8. The provisions of FETA were commenced during 2007 and 2008 (see Annex A for the entire implementation timetable). Further to the commencement provisions of section 32 of FETA, the following commencement orders have been made: The Further Education and Training Act 2007 (Commencement No. 1 and Transitional Arrangements) Order 2007 (2007 No. 3505) The Further Education and Training Act 2007 (Commencement No. 1) (Wales) Order 2007 (2007 No. 3565) The Further Education and Training Act 2007 (Commencement No. 1) (England) Order 2008 (2008 No. 313) The Further Education and Training Act 2007 (Commencement No. 2) (Wales) Order 2008 (2008 No. 983) 9. The only sections of FETA that have not been brought into force are: Section 10, which amended an existing power of the Secretary of State to direct the LSC, so that the Secretary of State could direct the LSC in relation to the establishment and dissolution of further education corporations; and Sections 14 to 16, which transferred the powers to establish and dissolve a further education corporation from the Secretary of State to the LSC. 4
6 10. These sections were not commenced because of proposed changes to the funding system set out in the White Paper Raising Expectations: enabling the system to deliver (Cm 7348 March 2008) and were repealed through the Apprenticeships, Skills, Children and Learning Act 2009 (ASCLA), which also abolished the LSC. Content of FETA 11. Set out below is an overview of the main areas of FETA and an assessment of how particular measures have been operating. Part 1: the Learning and Skills Council for England (sections 1 to 13) 12. Sections 1 and 2 reduced the minimum size of the LSC National Council from twelve to ten people; placed a requirement on the LSC to establish regional learning and skills councils for each area of England that the Secretary of State specifies; and allowed the LSC National Council to delegate duties and powers to the regional councils. Section 3 abolished the local learning and skills councils and repealed the associated legislation, including removing the requirement on the LSC National Council to prepare and consult on guidance for the local councils and to approve local plans. 13. Section 4 allowed the Secretary of State to establish bodies (but not for Greater London or part of Greater London) to be responsible for setting strategies for how the LSC should carry out its functions in that area; and required the Secretary of State to establish a body for Greater London to be responsible for setting strategies for how the LSC should carry out its functions in Greater London. The LSC was placed under a duty to carry out those functions. 14. Section 5 removed the requirement for the LSC to establish a young people s learning committee and an adult learning committee. Sections 6 to 8 placed new duties on the LSC to encourage diversity in education and training and to increase opportunities for individuals to exercise choice; to have regard to guidance from the Secretary of State about consulting with learners and employers, and required the LSC to make and publish a plan for each academic year. Section 9 clarified the LSC s power to form or invest in companies. Section 10 allowed the Secretary of State to direct the LSC in relation to the establishment and dissolution of FE corporations. This section was not commenced and was repealed through ASCLA. 15. Section 11 to 13 extended the powers of the LSC to provide services and assistance for persons and bodies involved in education or training and for educational institutions in the devolved administrations. This section enabled the LSC to offer services such as software management systems, management information systems, payroll administration, human resources functions, finance services and procurement services to publicly-funded training providers, FE corporations and others. In Wales, Scotland and Northern Ireland, these services were to be supplied only with the consent of the respective devolved administrations. 16. Although the provisions within the FETA were successful in enabling the LSC to operate more effectively in partnership at the regional level; and provided flexibility to adapt its structure to meet future needs, it was decided that in order to respond more effectively to the education and skills needs of young people, adult learners and employers, more radical changes to the planning and funding structures were required, reflecting the very different needs of young people and adults. As a result, 5
7 the White Paper Raising Expectations: enabling the system to deliver (Cm 7348 March 2008) set out proposals to create an integrated approach to the delivery of all Children s Services from ages 0-19, and these proposals were implemented through the Apprenticeships, Skills, Children and Learning Act 2009 (ASCLA). Consequently, a new non-departmental public body, the Young People s Learning Agency for England, was set up in 2010 to work with local education authorities. For adults, section 82 of ASCLA established a new statutory office holder - the Chief Executive of Skills Funding - responsible through the Skills Funding Agency (an agency established by administrative means) for the management and allocation of funding to colleges and other providers based on demand from adults and employers. 17. Through the ASLCA, sections 1, 2, and 4 to 13 of FETA were repealed. Sections 4, 6, 7, 9, and 11 to 13 were re-enacted, with modifications, in ASCLA. The Education Act 2011 removed the Secretary of State s powers to establish strategy-making bodies (section 4) because under the commitment to deregulate the FE system, we are encouraging strategic bodies like Local Enterprise Partnerships and Local Authorities to develop effective working relationships with the further and higher education sectors - equal partnerships between bodies with a shared interest in transforming the local economy - rather than relationships based on control by one over the others. 18. Further changes to the Skills Funding Agency were announced through a Written Statement in the House of Commons and the House of Lords on 20 December 2011, following a review of the statutory post of Chief Executive of Skills Funding and the Skills Funding Agency which was carried out in November The review reflected the Government s commitment to regularly review its key delivery bodies and the wider Public Bodies Reform Programme which is seeking to radically increase the transparency and accountability of all public services. The purpose of the review was to ensure that the right structure is in place to support a strong and flexible FE and skills system which is driven by the needs of learners and employers. The review, which involved consultation with other departments such as Cabinet Office, HMT and DfE and key stakeholders, concluded that the governance and accountability of the Skills Funding Agency would be significantly strengthened by enabling it to operate as a conventional executive agency, through the powers of the Secretary of State, rather than through a separate statutory post holder. It therefore recommended that the statutory post of Chief Executive of Skills Funding should be removed. We intend to make this change as soon as Parliamentary time allows. Part 2: Further Education Institutions (sections 14 to 23) 19. The Further and Higher Education Act 1992 (FHEA) gave the Secretary of State the power to establish (incorporate) and close (dissolve) FE corporations, and a duty to publish proposals before incorporating or dissolving a FE corporation. Sections 14 to 16 of FETA transferred these powers to the LSC. 20. Section 17 of FETA transferred the power to intervene in FE corporations (with some modifications) from the Secretary of State to the LSC. This enabled the LSC, and then in turn the Chief Executive of Skills Funding, to intervene where there was evidence of failure or poor performance. This power was never used by the LSC or the Chief Executive of Skills Funding and under the Education Act 2011 these powers were transferred, with modifications, back to the Secretary of State. 6
8 21. Section 18 amended the intervention powers for FE corporations in Wales, and required Welsh Ministers to prepare a statement about how they will use these powers. Welsh Ministers have never used this power. 22. Section 21 of FETA enabled FE corporations to form or invest in companies for the purpose of conducting an educational institution. This section also allowed FE corporations to form, participate in forming or otherwise become members of charitable incorporated organisations, a new form of body corporate created by the Charities Act These provisions facilitated collaboration between FE corporations and schools, businesses, universities, and other partners. FE corporations could only use these powers with the consent of the LSC, and later the Chief Executive of Skills Funding. Through the Education Act 2011, we removed the requirement for consent, therefore enabling corporations to decide for themselves with whom and when they form partnerships. Section 26 made similar provisions for Higher Education Institutions, but these institutions do not require prior consent from either the Secretary of State or the Higher Education Funding Council for England. 23. Section 22 placed a duty on FE corporations in England to have regard to guidance about consulting employers and learners; and section 23 enables the Secretary of State to make regulations requiring all college principals to achieve a stipulated leadership qualification before taking up a new post. 24. In November 2010 the Government published Skills for Sustainable Growth (URN 10/1274) which set out the vision for skills and how the FE and skills system would need to reform. The vision brings together the necessity for businesses to continue to invest in training and skills of their workforce while recognising several key areas will continue to need government support. In November 2011, New Challenges New Chances (URN 11/1380) set out the reform programme required to deliver this vision, deregulating the FE system so that it can be more responsive, flexible and better meet the needs of learners and employers. As noted above, the Education Act 2011 made a number of changes to legislation affecting FE corporations. It transferred the powers to dissolve a FE corporation from the Secretary of State to the corporation; removed the requirement for FE corporations to seek consent before forming or investing in education companies; transferred the intervention powers from the Chief Executive of Skills Funding, back to the Secretary of State; and removed the duty around consulting with employers and learners, and constraints on borrowing and forming companies for educational purposes. We have also revoked the regulations that required all new FE corporation principals to undertake specific qualifications. 25. Section 19 of FETA enabled the Privy Council to grant further education institutions in England powers to award their own foundation degrees, subject to certain restrictions. Foundation degree-awarding powers enable institutions to respond more quickly and effectively to employer need, to respond to skills challenges, and to allow those institutions that can meet the appropriate criteria to contribute to overall growth in foundation degree provision. These changes recognise the role that FE corporations play in the delivery of foundation degrees. To date, two successful applicants, New College Durham Corporation and Newcastle College Corporation, have been granted Foundation Degree Awarding Powers. They are shortly to commence their first self-validated foundation degree programmes, with the first student cohort expected to graduate in summer A further three applications are currently under scrutiny. 7
9 26. In response to concerns in Parliament during the passage of the Bill, the government agreed to report to Parliament on this policy within four years after the commencement of section 19 (section 20 of FETA). David Willetts letter of 3 May 2012 to the BIS Select Committee set out the progress to date on foundation degree-awarding powers and explained that because there has been only a limited take up to date of the power to award foundation degrees, we cannot make a wider evaluation of the impact of these powers at this point. A copy of his letter is attached in Annex B of this memorandum. Part 3: Industrial Training Levies 27. Industrial Training Boards (ITBs) bring representatives from industry together to oversee training in its industry, set standards, and provide information, advice and guidance. There are currently three ITBs covering the Construction, Engineering Construction and Film industries. (Note: the Film Industry Training Board is not yet operational). ITBs pay grants to those employers who undertake training, financed through a levy on companies in its industry. Part 3 of FETA introduces provision to make it easier for an ITB to demonstrate support for a levy proposal among employers in the relevant industry. These changes enable ITBs to consult directly with employers, whether or not they are members of representative employer organisations. It also enables proposals for levy orders to cover a three-year period, subject to certain exceptions. Preliminary assessment of FETA 28. Although the legislative changes relating to the LSC streamlined its governance structure, given the later changes made through the ASCLA 2009, these improvements were short term. Similarly many of the changes made in respect of FE corporations through FETA have been removed through or affected by the Education Act 2011, which has deregulated FE corporations so that they can be more locally responsive. The changes made around foundation degree awarding powers and ITBs remain in place and will be further evaluated in due course. 29. In conclusion, our preliminary assessment is that whilst a significant proportion of FETA has been repealed, amended or re-enacted with modifications through the Apprenticeships, Skills, Children and Learning Act 2009 and the Education Act 2011, much of the vision set out through FETA, to ensure that the FE system was shaped to be responsive and flexible to the needs of learners, employers and the local community, remains a priority. This Government is taking forward an FE reform plan to deliver this vision through New Challenges New Chances. 8
10 Annex A: Implementation Timetable Section Implementation Part 1 Current Position Repealed through the SI 2008/313 brought this section 1 Apprenticeships, Skills, Children and into force on 21 February 2008 Learning Act 2009 into force on 31 January 2008 to the extent that it inserted sections Repealed through the 18A(2) to (4) into the Learning 2 Apprenticeships, Skills, Children and and Skills Act 2000; and S1 Learning Act /313 brought the rest of the section into force on 1 September SI 2008/313 brought this section into force on 21 February 2008 This section abolished local LSCs and repealed associated legislation Re-enacted, with modifications, through the Apprenticeships, Skills, SI 2008/313 brought this section 4 Children and Learning Act Reinto force on 21 February 2008 enacted provision repealed by the Education Act SI 2008/313 brought this section into force on 21 February 2008 This section repealed the duty to establish a young people s learning committee and an adult learning committee Repealed through the 6 Apprenticeships, Skills, Children and into force on 23 December 2007 Learning Act 2009 Repealed through the 7 Apprenticeships, Skills, Children and into force on 23 December 2007 Learning Act This section amended section 15 of the Learning and Skills Act 2000, into force on 23 December 2007 which was repealed through the ASCLA 2009 Repealed through the 9 Apprenticeships, Skills, Children and section into force on Royal Assent Learning Act Not brought into force Re-enacted, with modifications, 11 into force on 23 December 2007 through the Apprenticeships, Skills, 9
11 Section Implementation into force on 23 December 2007 into force on 23 December 2007 Part 2 14 Not brought into force 15 Not brought into force 16 Not brought into force into force on 23 December 2007 to the extent that it inserted 17 section 56B into the Further and Higher Education Act 1992, and brought the remainder of the section into force on 18 April 2008 Welsh SI 2007/3565 brought section 18(5) into force on December 2007, and sections 18(1) to (4) into force on 18 April into force on 1 May into force on 1 May 2008 Part 3 Part section into force on Royal Assent into force on 23 December 2007 in relation to England into force on 23 December 2007 in relation to England into force on 2 March 2008 into force on 2 March 2008 section into force on Royal Assent Current Position Children and Learning Act 2009 Re-enacted, with modifications, through the Apprenticeships, Skills, Children and Learning Act 2009 Re-enacted, with modifications, through the Apprenticeships, Skills, Children and Learning Act 2009 Re-enacted, with modifications, through the Apprenticeships, Skills, Children and Learning Act Reenacted provision through the Education Act Powers now reside with Secretary of State Amended by the Education Act 2011, removing the requirement for prior consent Repealed by the Education Act
12 Section Implementation section into force two months after Royal Assent section into force on Royal Assent Current Position 29 See Schedule 1 30 See Schedule Sch. 1 Sch. 2 section into force on Royal Assent section into force on Royal Assent section into force on Royal Assent section into force on Royal Assent SI 2007/3505 brought paragraphs 6, 7, 8, 10, 11 and 13 of this schedule into force on 23 December 2007; paragraphs 12 and 15 into force on 31 January 2008; paragraphs 1 to 5 into force on 2 March 2008; and paragraphs 14 and 16 into force on 21 February 2008 SI 2007/3505 brought into force the repeal of section 15(2) of the Leaning and Skills Act 2000 on 23 December SI 2008/313 brought into force the repeal of section 19 to 24 of, and Schedule 2 to, the same Act, and the repeals in relation to Schedule 3 of that same Act, the repeal of section 209 of the Education Act 2002 and the repeal in relation to section 18 of the Children Act 2004 on 21 February
13 Annex B: The Rt Hon David Willetts MP letter regarding Section 20 of the Further Education and Training Act 2007, 3 May
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