EDUCATION POLICY SUB-COMMITTEE
20TH NOVEMBER 1990
ADULT CONTINUING EDUCATION SERVICE - REVIEW OF MANAGEMENT STRUCTURES
REPORT OF COUNTY EDUCATION OFFICER
Responsible Officer - Andrew Seber
SUMMARY
1 This paper reports on the action which has been taken in
considering the appropriate management arrangements for adult
education institutes in the central, south-east and south-west
divisions, and on the work of the task group charged with
evaluating a Community College proposal in the north-east
division. It concludes that college-based solutions should be
implemented in the Central and South East divisions, while
further work should be carried out in the other two areas on a
possible contractual approach.
BACKGROUND
2 At its meeting on 23rd January 1990 the Sub-Committee
considered a paper on the results of consultations which had
taken place on a proposal that all adult education in Hampshire
should be college-managed.
3 The Education Committee then agreed to the following actions:
(a) That the merger of the West New Forest Institute and
Brockenhurst College be implemented as soon as possible
and made fully effective by 1st September 1990.
(b) That the appropriate Assistant County Education Officers
in respect of the Portsmouth, Totton and Waterside,
Southampton and Central Hampshire Institutes undertake
early consultation about the merger of those Institutes
with appropriate Colleges.
(c) That a Task Group be established to consider in detail the
viability of the proposal to merge the North East
Hampshire Institute and the Deane Institute into a
Community College, with particular attention being paid to
the arguments outlined in paragraph 7 of the report to the
Policy Sub Committee dated 11 July 1989.
ACTION TAKEN IN RESPONSE TO THE RECOMMENDATIONS
4 The merger of the West New Forest Institute and Brockenhurst
College has been completed.
5 The Assistant County Education Officers of the Central, South
East and South West Divisions invited bids to be made by
post-16 establishments for the management of the free-standing
Institutes in their respective areas. Consultation included
meetings at which the Management Committees of the Institutes
received presentations from senior staff of the bidding
establishments, and public meetings.
6 The reports of the Assistant County Education Officers on these
arrangements are attached as appendices 1 to 3. Their
recommendations can be summarised as follows:
i) Central Division: That the Central Hampshire Institute
should be merged with Peter Symonds' Sixth Form College.
ii) South-East Division: That the Portsmouth Institute should
be merged with South Downs College.
iii) South-West Division: That further consideration should be
given to a scheme involving the maintenance of aspects of
the existing Institute structure in order to carry out
strategic functions, with day to day ACE provision being
made by schools and colleges on the basis of contractual
arrangements.
7 Adult Continuing Education in North East Hampshire is provided
by Alton College and by the Deane, and North East Hampshire,
Institutes. In the case of the Institutes, a task group
chaired by the Deputy County Education Officer met to consider
the Community College proposal. The group included the ACEO,
specialist inspectors and officers, representative college
principals and the principals of the North East Hants, and
Deane, Institutes. It became evident at an early stage that
the original proposal developed from the work of the institute
principals would not be viable. At a late stage a fuller and
substantially revised version of the proposal was put forward
and a copy is attached for information: Appendix 4
8. The revised proposal for a Community College has been examined
in detail, and the majority view of the task group is that,
even in its revised form, the proposal describes an
organisation which could be viable but would leave doubts about
its robustness. This results in particular from the level of
resourcing available to the Deane, and North East, Institutes
in the current year and projected into the next financial year
and also from the fact that the formula funding of adult
education, which is due to be implemented with effect from 1
April 1992, can be expected to provide a level of funding no
higher than that currently available and probably at a lower
level. The level of sponsorship, fees and other income would
have to be sustained at least at the amounts proposed in order
to ensure the future of the management, support and delivery
structures.
9. For a Community College to be established as proposed, the
County Council would also have to exercise its discretion under
the Scheme of Delegation for Colleges to include a College with
fewer full time equivalent students than the minimum determined
by the Secretary of State for automatic inclusion in the
Scheme. The minimum number is 200, and the Community College
would fall significantly below this figure.
10. In the course of the task group's work, an alternative proposal
for a management structure was put forward. This would involve
the disbanding of the two institutes and the establishment of a
Divisional Management Panel for ACE charged with ensuring the
coherence, consistency and development of the provision made in
North East Hampshire and the translation of county policy into
practice in a cost-effective manner.
11. The elements of the proposed structure working within a
framework of county policy could be as follows:
Divisional Management Panel
Implementation Group
Providing Institutions (major and sub-contracted)
The management panel could include county councillors,
governors (or their representatives) of the major providing
institutions, district and borough representatives and user
groups. It would be serviced by the Assistant County Education
Officer and members of his staff.
12. The broad policy directions laid down by the management panel
would be translated into practice (including the allocation of
resources) by the Implementation Group. This would include
representatives of the providing institutions, together with
the ACEO. The group would not provide the ACE service but
rather ensure that it was provided in such a way as to conform
with the policies of the management panel. Particular
attention would be paid to training, identification of need,
the development of ACE in the area and to enabling ACE students
to progress to wider educational opportunities.
13. It is envisaged that, from the resources made available by the
disbanding of the two institutes, one officer and one inspector
appointment would need to be made by the ACEO to carry out
necessary functions including monitoring, evaluation,
development and administration. There would not be a need for
a management and support structure of the size required to run
a college or institute. The main part of the resources
released would, therefore, be available directly to operate and
develop the service. It would be important to take account of
the position of community schools within this proposed
framework.
14. The relationship between the Implementation Group and the
providing institutions would be that of contractor and
sub-contractor. The ACEO would define what kinds of provision
were required, to include mainstream, continuing activity, and
also developmental and outreach work. In their turn,
institutions could state how they would seek to offer such
provision, and where this met the ACEO's criteria, appropriate
resources would be allocated to be used by the institution
concerned as it saw fit. It is envisaged that a major
institution could further sub-contract elements of the
provision to smaller establishments to ensure, for example,
that local needs were met in a sensitive and comprehensive way.
15. The detailed workings of the scheme have not yet been
considered but a working group of officers and inspectors could
carry out this exercise and report on the outcome to the
Sub-Committee in due course, with no action being taken in the
meantime to reorganise the management structure of adult
education in north-east Hampshire.
CONCLUSIONS
16. The consultations undertaken by the Assistant County Education
Officers in the central, south-east and south-west divisions
have enabled them to make professional assessments of the best
ways forward locally.
17. The task group operating in the North-East division has been
able to examine the Community College proposal and to generate
an alternative managerial structure which appears to have
considerable merit.
18. The recommendations of this report reflect the work done to
date, and support the concept of merging Institutes with Post
16 colleges in two of the four divisions. Local considerations
have given rise to the alternative approaches included in the
reports from the other two divisions. Further detailed work is
necessary to establish firmly their suitability to the
management of Adult Continuing Education in the county.
RECOMMENDATIONS
It is RECOMMENDED that:
1. It be a recommendation to the Education Committee that the
proposals made for the management of adult education in the
central and south east divisions be adopted.
2. The proposal for an alternative management system in the South
West Division be further explored.
3. The proposal for a Community College in the north-east division
be not adopted, but that a working group of officers and
inspectors be asked to examine further the alternative
structure proposed.
Appendix 1
DIVISION
The future Management Arrangements for the Central Hampshire
Community Education Institute
Report of the County Education Officer
Responsible Officer: John Charles, Assistant County Education
Officer (Central)
1. Summary
1.1 There are currently three Institutes in the Central
Division responsible for the provision of adult
continuing education - the college-based Institutes at
Cricklade Tertiary College, Andover and at Eastleigh
College of Further Education and the free-standing
Central Hampshire Community Education Institute,
Winchester. The geographical areas of the Institutes are
indicated on the attached map.
1.2 Following the Committee decision that there should be
consultation on the future management of free-standing
Institutes, proposals to undertake this responsibility
were received from Cricklade College, Eastleigh College
and Peter Symonds' Sixth Form College, Winchester; the
Central Hampshire Institute put forward a proposal to
remain free-standing. These are explained in Section 2.
1.3 Extensive consultations have taken place concerning these
submissions, details of which are given in Section 3.
1.4 The issues that have been raised consistently include:
(a) concern that the quality of service should be
sustained
(b) the extent to which the decision to examine the
management arrangements of free-standing Institutes is
based purely on financial considerations.
(c) the reasons why any departure from existing
arrangements is thought necessary
(d) the need to ensure that Adult Continuing Education
continues to be delivered locally and is sensitive to
local needs
(e) the need to ensure that existing provision in rural
areas is maintained
(f) the importance of cost-effective management in order
to hold down the level of fees and still ensure that an
effective programme is retained.
1.5 Section 4 contains the recommendation of the Assistant
County Education Officer that Peter Symonds' College
should take over responsibility for the management of the
Central Hampshire Institute. Of the College proposals
the Peter Symonds' 'bid' has clearly received the
greatest support, including that of the interim
management group of the Institute and of the professional
staff.
2. The Proposals
2.1 The Cricklade submission emphasises the fact that through
its college-based Institute, operating under further
education regulations, the College has the necessary
background and experience to undertake a wider
responsibility; it also enjoys links with the Romsey and
Winchester areas. Two options have been proposed by
Cricklade:-
(a) a full management partnership between Peter Symonds'
College and Cricklade College, combining a Winchester
base with the full range of tertiary college expertise
OR
(b) a management partnership between Peter Symonds';
College and Cricklade based on a geographical split of
the Institute's work, with Cricklade assuming
responsibility for those parts of the Central Hampshire
Institute falling within the area for which the Test
Valley District Council is responsible.
2.2 Eastleigh, as with Cricklade, emphasises its experience
in operating a college-based Institute and refers in its
proposal to the strong links that already exist within
the Romsey area (for example through TVEI) and in its
role as the further education college for the Winchester
area. Particular stress is placed on the economies of
scale that the College enjoys through its size of
operation.
2.3 Peter Symonds' refers to the close connection that has
existed with the Institute throughout the latter's
existence; the Institute's administrative base is
currently on the Peter Symonds' site (although scheduled
to move one mile away to the former Weeke Infant School
premises) and the College Principal has been Chairman of
the Institute since its beginning in 1982. Great stress
is placed on what the Institute could bring to the
College in terms of ethos, methodology and the positive
contribution of adults, as well as on what the College
might offer the Institute. The College recognises that
issues such as the fact that it operates under Schools
Regulations will need to be addressed in the event of it
becoming responsible for the management of the Institute.
2.4 All three Colleges have appreciated, in making their
proposals the need for appropriate governing body,
committee and consultative structures and procedures to
be established and for there to be genuine liaison with
students and with the local community.
2.5 The Central Hampshire Institute submission, to remain
free-standing, concentrates to a significant extent on
what criteria should be applied in any examination of the
relative strengths and contributions of the Colleges
seeking to take over responsibility for the management of
the Institute. Proper emphasis is placed on the record
of the Institute, although there is open acknowledgement
of the financial constraints and issues which Institutes
are increasingly being forced to address.
3. Consultations
3.1 The submissions referred to in Section 1 above have
received widespread discussion at meetings of:
(a) school/college governors and campus organisations
(b) professional staff of the Central Hampshire Institute
(c) local communities/voluntary bodies and the general
public at meetings that took place at Romsey, Winchester
and Alresford.
3.2 Public Meetings
Details are given below of the major points discussed at the
three public meetings, to an extent referred to in Section 1.3
above:-
(a) Romsey (attendance 32)
(i) the reasons why the Colleges wish to extend their
responsibilities
(ii) the absolute importance of retaining a locally
devolved and accountable service
(iii)whether ACE would be swamped within a College
structure
(iv) the potential impact of formula funding
(v) whether Romsey could take responsibility for its own
ACE
(vi) the need to protect outreach work
(vii)the increased power of governing bodies and how this
affects Institutes.
At the end of the meeting, an informal vote was taken. No one
felt that the existing college-based ACE services were more
likely to deliver a customer-focused service than the existing
arrangements. 18 felt that the Central Hants Institute as
currently structured was doing an effective job.
(b) Winchester (attendance 60)
(i) whether the whole exercise is about finance only
(ii) unit costs and recent increases in fees in the
Central Hampshire Institute area
(iii)whether the fact that Peter Symonds' operates under
Schools rather than Further Education regulations would
cause difficulties
(iv) economies of scale and protection of minority
subjects
(v) the ongoing difficulties of establishing the Budget
position of the Institute in the current financial year
(vi) the need to ensure a locally-based service
(vii)the ability of the Institute to protect its
programme.
The meeting reached the unanimous conclusion that the management
of the Institute should remain in Winchester (whether based on
Peter Symonds' or free-standing); no support was given to the
Cricklade or Eastleigh proposals.
(c) Alresford (attendance 18)
(i) fear of losing smaller classes in rural areas
(ii) concern about the ability of Institutes to support
minority interests
(iii)concern about current high fee levels
(iv) whether economies of scale would really accrue if
the Central Hampshire Institute ceases to be
free-standing
(v) the need to sustain existing levels of ACE provision
in Alresford
(vi) the need to ensure an Institute strong enough to
negotiate effectively with schools and their governors
The only clear consensus to emerge from the meeting was a high
level of satisfaction with the Institute and expressions of
regret that its financial position had been eroded to the point
where it no longer seemed viable.
3.3 The Central Hampshire Institute Management Group
The interim management group considered the responses of
the Institute staff as presented by the Institute
Principal, who expressed the frustration of staff at the
prospect of reorganisation after working so hard for the
service and their belief that if changes have to be made
management by Peter Symonds' College was undoubtedly the
best solution for the Central Hampshire area.
Much of the remainder of the meeting then focused on the
Peter Symonds' submission, regarded as by some way the
most comprehensive and offering a genuine partnership
with the Institute. Issues to be explored, such as what
the concept of a new College means in practice,
appropriate financial arrangements, training/staff
development, staff job security, the future
administrative structure, examination arrangements,
marketing and business links, were identified.
The importance of the College establishing effective
links with the Romsey area was stressed; the question was
raised of the implications for the Institute of the
College at any stage achieving grant-maintained status.
The overall view of the management group, reiterated at a
subsequent meeting, was that no sufficiently strong case
has been made for the Institute to become college-based
but in the event of this happening the link with Peter
Symond's is the preferred way forward.
3.4 Correspondence
The following correspondence has been received:
(i) Notes of the meeting (3 October) of the professional
staff of the Central Hampshire Institute at which the
majority felt that the Peter Symonds' proposals
represented the best way forward for the area should a
college-based Institute be established; however, this
would only be acceptable if assurances were given on
issues such as job security for Institute staff,
together with proper recognition of senior staff and
appropriate authority accorded to any committee of the
Governing Body responsible for the Institute.
(ii) A letter from the Chairman of Governors and Chairman
of Romsey Community School Campus which emphasises the
importance of a quality service that recognises local
needs and reacts to them; concern is expressed that the
Eastleigh or Cricklade Institutes would have a potential
monopoly of provision. Reference is also made to the
success of the Central Hampshire Institute.
(iii)A letter from the headteacher of Perins School which
gives, on behalf of the School and Governors, emphatic
support to the Peter Symonds' option and expresses
strong reservations about the other three proposals.
(iv) A letter from the Mountbatten School Campus
organisation, Romsey, indicating confidence in the
Central Hampshire Institute and stressing the importance
of local provision in the area.
(v) Four letters from individuals, two of which firmly
support the current arrangement, a third which favours
the Eastleigh option, particularly on grounds of
financial effectiveness, and a fourth supporting the
Peter Symonds' proposal.
4. Recommendations of the Assistant County Education Officer
The consultations have produced no united view on the most
appropriate future management arrangement for the Central
Hampshire Institute. Proper recognition has been given to the
successes of the Institute, but there has also been an
appreciation of the vulnerability of free-standing Institutes
operating in the context of continuing financial constraint and
formula funding and of the levels of efficiency and expertise
that will be required in order to safeguard the service. Little
support has been forthcoming for the Cricklade proposals, which
have not been the subject of discussion with Peter Symonds'
College, nor for the Eastleigh option. Without question the
submission by Peter Symonds' has met with the most favourable
response of all the college options, particularly at the
Winchester public meeting and in responses from Perins School,
Alresford, from professional Institute staff and from the
Institute management group; at the same time a number of key
issues have been identified that would require satisfactory
resolution if the College is to undertake the management of the
Central Hampshire Institute. The considered view of the
Assistant County Education Officer is that these points are
capable of resolution and that the link with Peter Symonds'
would strengthen both the Institute and the College, ensure a
locally based service and build on the undoubted successes of
the Institute; it would establish the framework for future
viability and safeguard the quality and extent of the provision
achieved by the Institute; no such future can be forecast with
any degree of certainty for the Institute if it remains
free-standing.
RECOMMENDATION
The recommendation of the Assistant County Education Officer is that
Peter Symonds' College should be given responsibility for the
management of the Central Hampshire Community Education Institute.
Appendix 2
SOUTH EAST DIVISION
Adult Continuing Education Service in the South East Division
Arrangements
Report of the County Education Officer
Responsible Officer : George Heller (Assistant County Education
Officer, South East)
1. SUMMARY
This report by the Assistant County Education Officer for the
South East Division describes the consultations carried out
during the summer term 1990 with regard to the future management
arrangements of the Portsmouth Institute of Adult Continuing
Education. The report highlights the consultation process,
outlines the principal aspects of the proposals submitted by
three post-16 colleges, assesses the bid of the Portsmouth
Institute to remain free-standing and recommends that the
Institute be merged with a college and that, on balance, the
most appropriate college would be South Downs College of Further
Education.
2. SETTING THE SCENE
2.1 Following concerns expressed by Portsmouth County
Councillors and the Institute Management Committee about
the Education Committee's decisions concerning mergers
with post 16 colleges, clarification was given to the
effect that it would be appropriate for the Policy
Sub-Committee to consider other proposals or
possibilities with regard to the Portsmouth Institute's
future. The County Chief Executive made clear to the
Chairman of the Portsmouth Institute Management Committee
that, although the Committee had accepted the principle
of a merger between Institutes and colleges, no
individual decision had been made with regard to
Portsmouth and a further period of consultation was then
in progress. A report on the consultations would be made
to the Education Policy Sub-Committee in the autumn. The
County Education Officer later made clear that Members
would expect to consider all options that might be raised
during consultation including those which did not involve
merger with a post-16 college.
3. CONSULTATION AND TIMESCALE
3.1 On 30th April 1990 the ACEO for the South East Division
invited Principals of all the Division's post-16
establishments to offer proposals for the future
management of the Portsmouth Institute by 8th June if
they so wished. Bids submitted would be passed to the
Institute Management Committee in order to have an
opportunity to give consideration to the bids and, in
addition, to make comment in the context of presenting a
case for the Institute to remain free-standing. The
Management Committee was given a deadline of 6th July.
3.2 In writing to college Principals and the Institute, the
ACEO emphasised the importance of delivering Adult
Continuing Education as a quality service, whatever
future arrangements might be brought into operation.
Reference was made to ACE as being an integral part of
the Hampshire education service. The documentation
included reference to those aspects of ACE which denote
quality, its distinctiveness and the organisational
implications for colleges of managing the Portsmouth
Institute. Other pertinent issues highlighted in the
documentation were the future management of ACE with
particular reference to the scheme of delegation for
Further Education, demography, curriculum change,
information technology requirements, LMS/LMC and
community use, three year development plans and
management structures. In submitting their proposals,
college principals were asked to pay close attention to a
document prepared by the Portsmouth Institute describing
its current management, structure, staffing and premises.
4. SUBMISSION OF BIDS
4.1 Three colleges submitted proposals for a merger with the
Portsmouth Institute: Portsmouth College of Art, Design
and Further Education, South Downs College of Further
Education and Highbury College of Technology. A special
meeting of the Institute Management Committee was held on
the 19th June to evaluate the colleges' proposals and
also to determine the style and content of its own
submission to remain free-standing. The Management
committee divided into small groups in order to discuss
the colleges' proposals and to evaluate them against the
criteria outlined by the ACEO:
the adult learner
curriculum
the part-time dimension
staff development
finance
management networks
4.2 It became clear at the 19th June meeting that further
clarification would have to be sought from the college
principals themselves. A further meeting was, therefore,
convened on the 2nd July at which Management Committee
members had an opportunity to discuss specific issues
with each of the college principals. Each principal,
therefore, was able to outline the major highlights of
the proposal and Committee members had their opportunity
to pursue their own particular lines of enquiry.
4.3 On 16th July the Institute Management Committee decided
that comments on the proposals should be expressed in the
context of their unanimous view that the Institute should
remain free-standing. The case for retaining
free-standing status was submitted separately to the ACEO
to whom the Chairman of the Management Committee sent a
letter from which the following is a quotation:
"There is no doubt of the sincerity and commitment of
each college in their bid and their desire to adapt their
services to extend further into the community. In many
ways their expression of interest and intent, coupled
with acknowledgement of the scope and effectiveness of
the Committee, inadvertently supports the Institute's own
case."
The Management Committee declined to state any order of
preference in the college bids.
5. SOUTH DOWNS COLLEGE BID
5.1 The college presents a cogent case for integration of the
Portsmouth Institute with clarity of goals and of
systems.
5.2 In curriculum terms, South Downs already has a strong ACE
track record with a commitment to the integration of ACE
within the college's curriculum structures, outreach and
community work. The governing body has an ACE committee.
The college proposal highlights its experience with
mature learners and their needs; also its
client-centredness, the offer of curriculum flexibility
and progression accompanied by appropriate guidance and
counselling. There is a student services unit. There is
a strong focus on special educational needs, ABE (adult
basic education) and open learning. The college points
to opportunities for adult learners to progress to NVQ
(national vocational qualifications). ACE is firmly
established in the college development plan which shares
with the Institute's development plan a focus on the
needs of the individual learner and on the distinctive
qualities of ACE.
5.3 The college proposals highlight the part-time dimension
as this affects not only part-time students but staff as
well. Emphasis is placed on the importance of networks,
with resources placed at the point of local delivery with
currently 70 venues in operation in South East Hampshire.
Accessibility is promoted with a local advisory forum
established for each centre in the proposed new college
area. This centre-based work would fit into a clear
system with effective communication between the centres
and the main structure at South Downs college. Community
need would be served by strengthening already established
links with Health, Social Services and other groupings.
5.4 The college points to clear management and budgetary
responsibility with strong support teams linked to
college management information systems networks. The
potential economies of scale are highlighted. The
college's management information system would be
extendable to all cost centres with appropriate financial
monitoring and a value for money approach. All this
would link with appropriate monitoring and evaluation.
The college emphasises its commitment to effective
liaison with schools as far as LMS and community
contracts are concerned.
6. HIGHBURY COLLEGE OF TECHNOLOGY
6.1 If there were a merger between the Portsmouth Institute
and Highbury College, the Institute would operate as a
discrete department within the college structure.
Significant opportunities would thereby be offered to the
customers of the Portsmouth Institute or new department
to progress to the college's substantial vocational
provision.
6.2 The college highlights its experience with adults within
its Department of Continuing Education with its provision
of flexi-study, modular programmes and open learning.
Priority is given to client-centredness and
target-setting. Adult learners would have improved
opportunities for access to substantial college
resources, guidance and counselling services. There
would also be opportunities for recruitment to training
and re-training.
6.3 With the Portsmouth Institute offered the status of a
college department, the principal would be a member of
the management team. There could be a governing body
sub-committee or the incorporation of the current
Management Committee. There would certainly be
representation on the Academic Board for ACE work and on
the College Management Committee.
6.4 Highbury offers to the Portsmouth Institute a secure
financial future with its own delegated budget as a cost
centre. There would be appropriate access to
sophisticated support systems in what is one of the
largest colleges in the country.
6.5 Merger with the Portsmouth Institute offers Highbury an
opportunity to develop closer links with the Portsmouth
community. Highbury's main Cosham site and its Unicorn
Training Centre are offered as adult education centres.
The facilities at Cosham and the UTC could be extended
into evening and weekend sessions with the whole range of
college facilities made available. The UTC is also
offered as a headquarters for ACE work. Such a merger
would give Highbury the opportunity to capitalise on the
well-developed network built up by the Portsmouth
Institute.
7. PORTSMOUTH COLLEGE OF ART, DESIGN AND FURTHER EDUCATION
7.1 In its proposal PCADFE projects itself as very much a
curriculum-led and client-centred institution. It has a
strong record of course-work assessment, commitment to
equal opportunities and multi-cultural work in the city
centre community. PCADFE points to its innovative
approaches with flexible curriculum delivery and
appropriate progression. It has a strong track record on
the special needs curriculum.
7.2 PCADFE's management is based not so much on systems and
structure but rather on a corporate approach based on
course and project teams. There is no hierarchical
structure as is the case with other colleges and there
are no departments or faculties. There is, therefore, a
non-traditional management structure with what the
college points to as being closer management contact with
students and tutors. The college emphasises its strength
as being based on individual staff commitment,
imagination and enthusiasm.
8. PORTSMOUTH INSTITUTE OF ADULT CONTINUING EDUCATION
8.1 Members should be aware that there was almost unanimous
opposition to a college merger in the earlier consultation
in 1989, PCADFE being the college suggested. That
opposition pointed to a very high degree of satisfaction
with the service provided by the Portsmouth Institute
amongst part-time students and staff. The Institute has a
powerful constituency of support within the city of
Portsmouth. Staff have worked hard to improve the quality
and quantity of educational opportunities. The submission
of the Portsmouth Institute to remain free-standing
points, for example, to a 44% increase in the number of
courses on offer and to an extension of 46% in the range
of subjects on offer. There is a good vocational
programme; ABE provision is strong and well-managed. The
Institute is well known for its innovative approaches.
There is an extensive network of local contacts with other
providers and agencies. The Institute can point to a good
track record of budget control prior to this financial
year's cutbacks.
8.2 The Portsmouth Institute presented its comments on the
proposals made by the three colleges at a meeting of its
Management Committee on 16th July; these are included in
Appendix A of this divisional report. However, the
Institute's assumption is that it can continue to survive
as a free-standing establishment notwithstanding the
changes that are to take place over the next three years.
Formula funding is not likely to strengthen the
Institute's resource base. It has a very large
hierarchical infra-structure and a very high proportion
of the funding is spent on staff who are not directly
involved in delivering the curriculum. A free-standing
Institute would have a smaller resource base than it
currently enjoys. Full financial delegation together
with formula funding would result in a considerable
reduction in the Institute's resources. The staffing
structure proposed by the Institute could not be afforded
within the existing budget let alone a reduced one.
9. CONCLUSION
All evidence points to the virtual impossibility of
free-standing Institutes being able to survive in the harsh new
world of formula funding. The best way forward is for the
Institute to merge with a college. The recommendation in this
report is that the Portsmouth Institute should merge with South
Downs College.
Appendix 3
SOUTH WEST DIVISION
Report of consultations about the future management of Adult
Continuing Education (ACE) in the South West Division
Report of the County Education Officer
Responsible Officer : Roy Jones, Assistant County Education Officer,
South West Division
Summary
1. This paper outlines the alternative proposals put forward for
managing A.C.E. in the South West and comments on the responses
to consultation. There is strong support from the users of
adult education for the retention of a locally managed and
determined service, but sixth form, technical and tertiary
colleges all offer safeguards for the future funding of a
formula determined budget. A recommendation is put forward to
combine the best elements of the alternative proposals by
retaining strategic functions on a divisional basis, operated
through structures derived from existing free standing
institutes, with local delivery and management contracted out to
colleges and other providers.
Present Position
2. Adult education in the South West division is delivered through:
a) Brockenhurst College for Central and West New Forest.
b) A "free standing Institute" for Totton and Waterside.
c) A "free standing Institute" for Southampton.
This paper is concerned with (b) and (c) above. There are no
proposals to change the the structure in Central and West New
Forest;
Brockenhurst College took management control of the previous
free standing institute in West New Forest in April 1990.
Consultation Process
3. Following the education committee's decision earlier this year
to review the management of A.C.E., all of those with a
potential interest in the South West were invited to submit
proposals; this included both existing Institutes, the three
sixth form colleges, Southampton Technical College and
Brockenhurst Tertiary College. Discussions were held with the
relevant principals and briefs prepared. Details of the
alternatives put forward were circulated to staff and relevant
management committees; to appropriate voluntary bodies with an
interest in adult education; and copies were made available to
students. Over six hundred copies of the consultation document
were circulated. Two public meetings were advertised through
the consultation document.
Proposals and Consultation Comments
4. Free Standing Institutes:
Both Southampton and Totton and Waterside Institutes put forward
strong arguments for a retention of free standing institutes,
working closely together through a consortium of A.C.E. agencies
as an Open College Network.
5. In this way the Institutes argue that A.C.E. would be managed by
organisations which have, as their primary function, meeting the
needs of adult learners. Such an organisation would recognise
the spare time nature of much adult learning and teaching and
the requirements for specialised forms of management and staff
development.
6. An Open College Network would enable good practice to be shared,
minimise wasteful competition, increase access to learning
through the development of networks and enable flexible
groupings of providers to be more effective and efficient.
7. The proposal is based upon the management of A.C.E. in units no
smaller than Southampton and Totton/Waterside. The network of
local delivery points would be maintained and as resources
allow, developed. The management of the Institutes would be
consolidated by the establishment of governing bodies.
8. Both institutes have sound records of service direct to the
adult community. They have evolved and changed since their
creation and remain the only organisations in their areas which
see the adult as their prime client. Despite some management
and financial pressures they have adapted themselves to take
account of changing roles and legislative environments.
9. Changing patterns of life and demands have led to wide ranging
curricula, from basic literacy to GCSE and other exam subjects.
The Institutes have kept pace with both curriculum and IT
developments. As "primary providers" they have an important
role in liaising and working with voluntary and other community
agencies.
10. Itchen College
This sixth form college is the centre for much Adult Institute
work in East Southampton, with nearly 60 adult classes held on
the premises each week, and community outreach work. A
partnership exists between college staff and Institute workers,
limited by the problems of dual management. The college sees
three major reasons for getting involved in A.C.E. management:
a) a responsibility to take a wider community role and to
stimulate the cultural, intellectual, social and
recreational life of those who associate with it.
b) a way of solving some of the administrative and financial
complications arising from LMS, sharing premises and
community bookings, and leading to a more intensive use
of "twighlight" hours.
c) a means of releasing initiatives and energies to make the
maximum opportunity of working as a unitary institution
managing post 16 and adult continuing education.
11. The college therefore proposes that ACE in east Southampton
should be managed through a Department of Adult and Continuing
Education. The new structure would have the Principal
responsible to the college governors for the Department, with
the Head of Department answerable to the Principal through an
Advisory Committee. This would include student and local
council representatives, and possibly representation from the
other areas of the City to help coordinate city wide
initiatives.
12. Innovative approaches to meeting the needs of adult learners
would be encouraged. Flexible packages would be made available
for those adults looking for re-training or requiring an
educational provision different from that offered in a
traditional school environment. Thus open learning
opportunities combined with proper support - both personal and
through information technology and computer assisted learning -
would be an attractive offering to students.
13. Itchen can offer excellent learning and recreational facilities.
A new information centre provides an excellent resource area,
and the proposed building programme will enhance both the social
centre and ACE administrative offices. The current
administrative offices of the adult institute in East
Southampton are in the "old" Sholing Middle School which is
earmarked in the Division's capital development programme as a
potential site for extensions to Sholing Girls School. The
college would aim to provide a bright and stimulating
environment, unlike the "mythology of some evening classes".
The Department of A.C.E. would maintain close relationships with
satellite schools and the Centre at Bitterne Park.
14. The Principal and Governors are concerned to have responsibility
for activities taking place within the college, and would not
want this to be in the hands of any other college. They see
considerable merit in the operation of a federal system whose
management and budgetary control is exercised by the college,
but the Institute retains the functions of training, developing
a city wide strategy, publicity and quality control.
15. Tauntons College
The senior management team and governors have carefully
considered a role for this sixth form college in managing adult
continuing education in parts of Southampton. The college is
undergoing extensive building work and is currently operating on
two sites pending transfer to a single site in Hill Lane.
Because of this the college feels that now is not the time to
develop further adult education within a college management
structure. However, the governors are firmly committed to the
concept of serving their total community and would wish to
consider developing adult provision at some future point.
Therefore any structure for managing ACE in the South West
Division should bear these aspirations in mind.
16. Southampton Technical College
This further education college believes that the main
requirement is for a strong unified service across Southampton
in order to safeguard the needs of adults and effectively
utilise the resources. A service broken up into different City
districts would be divisive and wasteful; indeed the college
believes there is an argument to consider extending the unitary
area to include Totton and parts of the Waterside. If the
college was to manage A.C.E. it would retain much of the present
staffing and organisational arrangements but add to them firm
resourcing systems and management support.
17. The college has developed substantial provision for the
education and training of adults. At the moment, more than a
quarter of all students are over 25. The college also has a
major commitment to providing for the needs of unemployed adults
as an approved managing agent for employment training. The
"Statement of Educational Character" agreed by college governors
incorporates a firm commitment to adult education and the
removal of barriers which make it difficult for some students to
take advantage of the opportunities offered.
18. The traditional distinction between the work of the college as
mainly career and employment related, and the adult institutes
as primarily non-vocational, is argued as being out-dated and
unhelpful. SOTEC feels that if adult education is part of its
responsibility there would be the opportunity for the needs of
individual adults to be the prime focus of attention and for the
most appropriate study opportunities to be provided however they
might be categorised.
19. The college believes it is in a strong position to meet the
criteria set out by the ACEO for managing A.C.E. Experience of
F.E. formula funding, current multi-site operations and existing
close working with adults could all be used to strengthen A.C.E.
in the City. A.C.E. would become part of the college
development plan, much of which will underpin adult provision.
20. A critical examination of the college management structure has
been undertaken, with new arrangements now being introduced. An
A.C.E. "manager" would become a member of the senior management
team, and would be responsible for day to day management through
a central A.C.E. unit in the college. The manager would work
closely with college directors and secretary in relation to
cross college services and would have line management
responsibility for work in the various A.C.E. centres. The
college is currently developing new approaches for the support
of part-time staff.
21. A consultative/liaison committee would be established providing
a direct link with the college governors, and including
representatives of staff, students an the community. Special
care would be taken to include the views of minority groups.
22. The college suggests that it could offer a strong unified
continuing education service to Southampton, underpinned
by existing college departments and computerised administrative
systems. Economies of scale would be apparent and the
flexibility of formula funding fully utilised to protect
important but expensive courses. Performance indicators would
be established to assist in the management of A.C.E.
23. Totton College
There already exists a well established relationship between
Totton Sixth Form College and the Totton and Waterside Adult
Education Institute. The college questions the need to change
the existing structure of free standing institutes, but suggests
that if a decision to have college based management is
introduced, Totton would be in the best position to provide it.
The college would develop existing strengths of adult provision,
within a sound financial framework in order to integrate all
aspects of post 16 provision in the area, with policy created
and delivered through a joint management.
24. The college argues that both organisations need to modify and
improve themselves to serve the adult population better. A
priority for the college would be curriculum development and a
modification of college structures to encourage access by
adults. The Institute will need to become increasingly
entrepreneurial to maximise the strengths of well trained
part-time tutors, voluntary attendance by students and breadth
of subject choice.
25. The college is developing a good record of involvement with
adult work; a social services creche operates weekly to enable
adults to join college classes.
26. The college would maintain the existing A.C.E. base as a
management centre and encourage satellites based in a number of
schools in the area. The manager of A.C.E. would become a
member of the college senior management team.
27. Brockenhurst College
This tertiary college has recently (April 1990) taken over the
management of the West New Forest Adult Institute, and for five
years has managed Central New Forest. It has therefore already
established a sound track record as a college provider of
continuing education. The college believes that this experience
can be built on to enhance opportunities for adults, with
economies of scale within a clearly defined local authority area
(New Forest District Council).
28. The college governors have established an advisory committee to
deal with A.C.E. and this, together with local fora, could be
widened to take account of extended responsibilities. The
faculty structure in the college has been developed to encourage
professional staff to develop programmes of work closely matched
to student need. Thus the Faculty of Community and Continuing
Education organises a wide range of adult provision as well as
undertaking the specialist work with adults which falls more
naturally to it than subject based departments.
29. The college has particularly sought to integrate services and
remove institutional barriers by moving some full-time areas of
work into the Adult Faculty and by appointing staff in each
faculty to have responsibility for developing adult work in
conjunction with professional adult staff. The integration of
adult education within the college is providing opportunities to
plan and deliver flexible and comprehensive programmes to the
community.
30. For organisational, administrative and delivery purposes, A.C.E.
would be divided into manageable groups of communities based on
major population centres. A.C.E. coordinators would be
responsible for local management and programme delivery with
three staff having institution wide curriculum responsibility.
This team approach would strive to overcome the potential
isolation of community education workers. Prime use
accommodation and ownership of F.E. space in schools would be
negotiated in order to overcome the limitations of current
host/tenant arrangements.
31. Staff/Tutor Views
Written and oral comments have been received from staff groups
as well as individual tutors working for the existing
institutes. There is concern, both in Totton and in
Southampton, to retain a local service not only in provision but
in management. It is argued that it is only in this way that
flexibility can be retained to reflect local needs. Concern has
also been expressed about the ambiguities and doubts of the
effects of formula funding. Staff at both institutes prefer to
retain the present free standing structure, but with the
developments outlined above. If there is a decision to manage
A.C.E. through colleges the unanimous staff view in Totton and
Waterside is for this to be done through Totton College.
32. Secondary Heads
Comments have been received from the two secondary heads in the
Division, representing the South West on the County Executive of
the Secondary Heads Conference. These comments suggest that a
way of strengthening management structures within a locally
determined system should be explored; in other words taking the
best from all the proposals. This should be simple and
straightforward, and should fit in with a clear County statement
of A.C.E. policy. The basis of the structure would be
divisional led strategic functions with contracted out provision
to institutions; it has much in common with the federal
structure put forward by Itchen College.
33. Students
A number of students have replied to the consultation in
writing. Many have stressed how they feel part not only of a
local student body but also close to the decision making
process. There is little support for college based management.
Recommendations
34. The essence of the Institute proposals is that they serve and
are accountable to their local community and that for them the
needs of adult students are paramount. The colleges offer sound
management structures, potential financial stability and
planning across the full post statutory sector. College
managements are substantial, mature structures into which adult
learning could fit with little additional administration.
35. There is concern in Southampton at the break up of the existing
Institute boundaries, despite the clear advantages of Itchen
College developing a full community role in East Southampton.
There is a unanimous view from Totton and Brockenhurst Colleges.
There is also a clear view that any college based management in
this area should be through Totton College.
36. During the consultations an alternative proposal has begun to be
explored. This would split the strategic functions of adult
education policy from the provision and management of local
classes. It would retain local consultative committees in the
planning of provision and the determination of policy but would
contract out to colleges, schools and others the actual delivery
of the service. The authority would retain the responsibility
for monitoring and evaluating the service through the Assistant
County Education Officer.
37. Thus, the existing structure of two "institutes" would be
retained for the following purposes:
- strategic policy making
- needs identification and overall programme planning
- staff training
- promotion and publicity
- quality control
38. This work, led by senior adult education officers for both areas
(Southampton and Totton/Waterside) would be guided by local
advisory groups. The budget would be held by the adult officers
on behalf of the ACEO. Institutions would be contracted to
manage a specific part of provision on behalf of the adult
"area". An A.C.E. inspector would be appointed from within the
budget to ensure quality control, but the level of
administrative and premises overheads would be reduced where
possible. Institutions would be responsible for appointing
staff to deliver the contract.
39. It is recommended that this option is explored in detail with
potential providers in order to form the basis for a new method
of service delivery with effect from April 1991.
Appendix 4
NORTH EAST DIVISION
Revised proposal for a Community College in the North East
This proposal was considered by the Task Group
PLANNING FOR QUALITY
BUSINESS & OPERATING PLAN
A Forward
In the document "Planning for Quality" the proposal for a Community
College derives from the wish of the Deane, and North East Hampshire,
Institutes to merge in order that collectively they may better serve
the continuing education needs of the whole area.
The staff of both institutions acknowledge that to be successful the
college will need to be perceived by its prospective students as
being:-
Appropriate - in their continuing education needs as they see them.
Attractive - in style and approach and to be able to compete on
equal terms with other demands of their time and
money.
Localised - located at places and at times that are convenient to
them. Suitable - designed for "people like me".
Flexible - capable of responding quickly in light of newly
expressed needs.
The programmes on offer by the Community College will be ones of
quality. Quality is understood to mean anticipating and negotiating
adult learners' requirements and ensuring effective programme
delivery. Quality will be assured by way of:-
Effective Management
Curriculum Development
Market Research
Staff Development
Cost Effectiveness
Continuous Assessment/Evaluation.
The Community College will be involved primarily in the initial
education and training needs of adults covering mainly pre-vocational
programmes. The Community College will use its established networks
and local knowledge to serve the needs of adults who wish to develop
their confidence and competences. Effective deployment of these
networks and knowledge will enable the Community College to establish
successful partnerships with local businesses and individuals
requiring retraining, to better address skills shortages in North
East Hampshire.
The Community College will not work in isolation from other providers
of further and higher education but will endeavour to encourage
students to progress to more formal and advanced education and
training provision.
The proposal also provides the elected members of Hampshire County
Council with the possibility of establishing a leaner and more cost
effective service, supported and managed locally with the aim of
developing and expanding its current operation by more efficient and
economical use of current resources.
PLANNING FOR QUALITY
BUSINESS AND OPERATION PLAN
B CONTENTS
Section
Foreword A
Contents B
Business Environment C
Marketing Plan D
Human Resources E
Working with Voluntary and F
Statutory Bodies
Finance G
Information and Control H
Systems and Plans
Committee Structure I
APPENDIX (A) Community College Aim Objectives
(B) Student Forecast Projection
(C) Examples of current practice and progression
(D) Distinctive Features of Adult Learning
C BUSINESS ENVIRONMENT
The current institutes have been in existence since l982/83. The
service was initially provided through ll centres offering a
traditional programme of adult education to a limited client base.
During the last eight years by moving to a more client led service
the pattern of provision has changed, increasing the number of
outlets to 60, broadening the range of programmes and increasing the
client base.
RESPONDING TO THE CHALLENGE OF CHANGE
Demographic, economic and legislative changes have radically altered
the education 'map' for the l990's. The revised agenda for
post-school education demands a more effectively managed service
which places less strenuous demands on the public purse and
resources development through an expanded programme of full cost
provision.
Provision must be cognisant of the needs of local industry and
commerce, assisting adult returners to retrain and develop their
skills for employment and providing flexible training packages,
competitively priced, which target the small business (ie those
who cannot afford to lose revenue sending valuable staff on lengthy
and expensive courses).
North East Hampshire Institute is already active in all these areas,
striving to enhance progression routes from 'traditional' Adult
Continuing Education provision and developing innovative
partnerships with industry and commerce. As a market leader in
quality courses for women seeking part-time learning opportunities,
North East Hampshire Institute has an established track record in
encouraging women to achieve (eg in craft skills, commerce, art
etc) thus establishing a sound foundation for returning to work.
Currently we are looking at ways of modifying the style, content and
delivery of the 'traditional' Adult Continuing Education curriculum
and in l990-91 will offer a greater range of modular and credit
courses. These will build on our current areas of expertise, but
will be more precisely tailored to the expressed demands of local
employers, returners, and those wishing to develop
employment-related skills.
For examples of current practice and progression Appendix (C)
THE COMPETITION
Existing competitors:
Surrey and Berkshire Adult Education Service
Commercial training agencies.
Potential competitors (post ERA):
Some schools through use of allied voluntary organisations
The Community College will analyse its strengths and weaknesses
against these competitors and respond accordingly.
FUNDING
The funding will be based on the agreed adult continuing education
formula with additional revenue from full cost provision,
partnership with public, private and voluntary sector bodies and
sponsorship.
D MARKETING PLAN
Aim
To improve the quality and range of programmes offered. To encourage
greater access of opportunities to potential students. To ensure
that staff are aware of students needs. To ensure that staff respond
to the needs of adults.
The Market
The market consists of the adult population of North East Hampshire.
This includes the Basingstoke, Blackwater and Guildford travel to
work areas. The north east Hampshire area has a total population
of 320,000. The two institutes currently attract 10.4% of the
total population of the area to their programme. There is capacity
within the revised establishment to increase this % take-up by
widening the range of programmes on offer.
Product
The main business of the Community College is the provision of
localised quality learning opportunities for individuals, groups and
organisations.
Programmes offered by the Community College will not duplicate
existing Colleges of Further Education or Sixth Form Colleges
provision as programmes of the individual establishments should be
seen as constituents of an overall divisional plan.
The current Institute's programmes consist of vocational and
non-vocational programmes. Many of the non-vocational programmes
are perceived as being vocational in nature and thus a stepping
stone to further qualifications, (possibly through Colleges of
Further Education) skills to enter the job market or job
enhancement. Progression links with other educational
establishments and employers will be clearly defined as part of the
Community College's operational plan. (See Appendix (C) for
examples of the product.)
Product Research
The Community College will continue the process already started by
the Institutes of researching the education needs of target groups
and geographical areas using questionnaires, interviews both formal
and informal, profiling and surveys and statistical analysis.
Customer Profile
The Community College recognises that the adult learner participates
in its programmes eg basic skills, special educational needs,
education and training opportunities in a voluntary capacity. This
encourages the adult learner to comment directly on the programme of
their choice. It also means that adult learners may leave the
programme when they so choose, having reached the desired level of
attainment.
The Community College would be the market leaders in this range of
programmes in North East Hampshire. Over the past 5 years the
Institutes have built up an expanding and loyal customer base.
Place
The service is delivered through locally generated area programmes
by negotiation with the local communities and businesses. These
programmes are delivered through existing Local Education Authority
establishments, village halls, private homes and commercial venues.
The programmes are planned to reflect a balance of opportunities
across the Community College area and are delivered at a place and
time appropriate to the customer.
Process
In consultation with small local employers the Community College is
promoting a range of programmes which address the acknowledged skill
shortages in the North East Hampshire area. These programmes
recognise the existence of higher level programmes promoted by other
colleges in the area, and attempt to establish access routes for
students seeking to progress to FE College.
With the development of Flexible Learning projects, tutorial centres
and improved access to courses, we strive to ensure that the
programmes are offered to the customers in the most effective and
appropriate way.
The evaluation and review of programmes cycle will involve
consultation with staff and students to ensure continued quality and
customer satisfaction.
Through strengthening the collaboration with other educational
establishments the Community College will ensure a path of
progression for adult learners in the Division thus ensuring
adequate education and training opportunities of benefit both to the
individual and the employer.
Pricing
A new pricing policy will be agreed with the new Governing Body
taking into account both the Scheme of Delegation and market forces.
This pricing policy will reflect the current emphasis on vocational
education and training and reduce the subsidy on those courses which
have no vocational intent.
The current pricing arrangements are within the policy laid down by
the Institute Management Committees.
The current voucher and access grant awards scheme will continue to
enable students on benefit to have access to all college programmes.
Promotion
The Community College's programmes and services will be promoted
through a Community College brochure publicised throughout the year
and distributed in North East Hampshire and across the Surrey and
Berkshire border. The brochure will be promoted by the media -
special offers - sponsorship - word of mouth - and local incentive
schemes. Locally produced area publicity will further promote
services and programmes to specially targeted customer groups.
Governors of schools may also wish to use these established
marketing channels to promote the activities of their individual
schools.
Enrolment of students is via postal enrolments, credit card bookings
and specially promoted enrolment sessions. Pre course information
and educational guidance will be increased to ensure a better
support and information network for students.
The Community College will produce an annual report for staff,
students and interested parties.
The promotion of Community College programmes and services will
ensure:-
- that information on programmes and courses is widely circulated
throughout the area.
- that selected geographical areas and certain groups are
specifically targeted.
- that the corporate image of the Community College will be
maintained and enhanced.
E HUMAN RESOURCE
The Community College's most valuable and significant resource is
its staff.
To ensure the College remains a client-led service the new staffing
structure will require all staff to have direct customer direct.
In addition the structure will ensure a cost effective, efficient
quality service, through the selling and monitoring of performance
related targets and an effective Management Information System.
A key objective in designing this management structure is to make it
as lean as possible not only to minimise overhead costs but to
facilitate effective and quick communications. The new flexibility
offered in the revised salary scales and conditions of service for
some key staff will further assist.
--------------------
The Community College will continue the existing Institute's good
record of:-
(i) an excellent staff commitment and retention. (ii) a
pro-active staff development programme.
--------------------
The Management of the College will require all staff to work to:-
* the work standard required of them.
* the business and educational values of the college.
* performance targets set for each individual and each area of work.
F WORKING WITH VOLUNTARY AND STATUTORY BODIES
In the past both Institutes have had close working relationships
with the Workers' Educational Association.
In the light of recent events involving the changes in the structure
of that Association and the more directive role being taken by the
Local Authority in the distribution of Education support grants to
assist their work, the Community College will:-
a Work closely with the new Workers Education Association
structure in North East Hampshire.
b Ensure that there is no duplication of provision.
c Accept that the Association has much expertise especially in
certain developmental work and controversial learning situation
d Apply to the Authority for some assistance from the
Educational Support Grant to fund a part-time worker who
could address certain subject areas not covered by the
existing programme.
e Use the networks of Workers' Educational Association branches in
the north east area to enhance the Adult Continuing Education
programme in the division.
f Apply for project money from a National Organisation to
research the continuing education needs of certain groups
in North East Hampshire who do not as yet use the programme
currently on offer.
Although the Community College wishes to work closely with the WEA,
it is acknowledged that it is only one agency. The college would
still wish to work closely and collaborate with other providers such
as the Universities, University of the Third Age, Women's Institute
Education, The Open College, The Open University and commercial
Agencies.
The Community College will continue to work effectively with other
statutory agencies and their partners.
Existing partners are - School Governing Bodies
- District, Borough and Parish Councils
- District Health Authorities
- Training Agencies
- Police Authority.
The Community College will be involved in the development of the
Training and Enterprise Council in Hampshire.
G FINANCE PAPERS
Present situation
For the past two years the Institute has followed the principles of
a cash limited budget working towards a baseline figure. Our
estimated revenue will be generated from vocational fees and the
non-vocational fee income as agreed by the Institute Management
Committee. It is our intention that in the financial year l990/91
systems are introduced which ease the transition into formula
funding and local management of school agreements. An example of
this is the setting of targets of our September l990 adult programme
and the allocation of area budgets linked to performance indicators.
COMMUNITY COLLEGE 1991/92
Accounting
The accounting policies will be consistent with the procedures
followed by the County Council and the approved Department of
Education and Science scheme of delegation. Under this scheme the
Community College Governing Body will be responsible for the
delegated budget. (Refer to Section I.)
Management Costs
These costs relate to the salaries of the small senior management
team, accommodation, administration, central supplies and service.
Revenue
Revenue will be generated from our student fees, full cost courses,
sponsorship and a Local Education Authority grant and external
funding partners. The revised fee structure l99l/92 will be
competitive, reflect the priorities of the Adult Continuing
Education Service, increase the revenue base thus reducing the
Community College overall costings to the Authority.
Resourcing
Human resources will be effectively used with every member of the
establishment becoming involved in generating business output within
their given hours of work.
Planned expenditure over the past two years has resulted in each
area plus our management control centre being equipped with the
hardware, software and training necessary for an efficient and
effective Management Information System.
Formula Funding
The Community College will need to be funded through formula in line
with other colleges. This formula will need to take account of the
distinctive features of the Adult Continuing Education Service (see
Appendix D for statement of distinctive features). A formula for
the Adult Continuing Education Service has yet to be published by
the Authority. Initial calculations for planning of the Community
College have been based on the existing Further Education College
formulae which has proved the establishment of a Community College
to be viable using Non-Advanced Further Education criteria.
Planning l99l/92
The Institute's planning cycle will be implemented in November l990
so that the necessary preparation can be made for the Community
College's Adult Programme for l99l/92 and submitted to the County in
line with the Further Education College timetable for approval for
resources from the Adult Continuing Education quantum.
Performance Indicators
The Community College is currently working through its involvement
in regional and national initiatives on a full range of qualitative
and quantitative indicators for Adult Continuing Education.
Scheme of Delegation
The Community College in line with County Policy will need to be
given its own scheme of delegation. The County's Scheme of
Delegation for FE Colleges states: "A College or Institute not
satisfying the qualifying requirement may be brought within the
purview of the scheme where the County Council, having received a
report considers it appropriate for the College or Institute to be
subject to the scheme." This in turn agrees with Section 139 of the
Education Reform Act l988.
Local Management of Schools
The Community College will give financial assistance to those
governing bodies who make a significant contribution to the area
adult continuing education programme by means of an agreed service
plan.
Initial negotiations have already commenced with a view to
implementation of an Adult Continuing Education Service contract
April l99l with a majority of the Secondary Schools in the area.
NORTH EAST HAMPSHIRE COMMUNITY COLLEGE
Budget Forecast 1991/92
Income Estimated Estimated
Revenue Costs
Fees 764400
Lettings 8000
Full cost/Sponsorship 15000
Staffing
Principal 38933
Senior Ops Manager 32971
Senior Curriculum Manager 32971
College Secretary 19442
ABE/Sp. Needs Co-ordinator 26600
3 ACE Area Organisers 75564
3 ACE Field Workers 46878
Part-time ACE Links 30000
Community Wardens 73500
Tutors - ABE, ESOL, SN 121500
- Other Subjects 607500
Caretakers/Cleaners 15000
Admin/Clerical 95000
Services & Supplies
Consumables 170800
NEHCC County Grant l990/91 609680
TOTAL 1397080 1386659
Estimated saving on NEHCC County Grant 1990/91 : 10421
H INFORMATION & CONTROL SYSTEMS (M.I.S.)
The Community College will use a combination of manual and
computerised systems to analyse variance against plans in terms
of finance, sales/distribution, market standing, physical and
human resources. The control and information systems will take
place at two levels within the organisation corporate/strategic
and operational. Operational control will require more
detailed information and will be dealt with by line managers,
strategic control will consist of more global issues and
measures to be dealt with by key senior management staff.
A detailed information plan has been produced based on
operational functions and the data information required for each
component part of the Community College service.
I COMMITTEE STRUCTURE
The Community College Governing Body
The governing body of the Community College is the executive board
with delegated powers under the scheme of delegation and will be
made up of individuals who represent the college clients, sponsors,
funding partners and the political spectrum. It will be a small
effective board designed to manage the specific interests of the
Adult Continuing Education Service in North East Hampshire.
Governance
A structure and composition was given in the document "Planning for
Quality". It is further recommended:-
A That the college should be included as a separate Free
standing establishment within the LEA scheme for planning
and funding as permitted under Section 139(4) of the
Education Reform Act and the Education (Adult Education
Centres financing schemes) Regulations.
B The LEA should grant to the college delegated budgetary
powers, Articles of Government and a Governing Body whose
composition reflects the need for local involvement of users
and potential users of the service as permitted in paragraph
8 DES Circular l9/89.
Adult Continuing Education Policy Committee
The Assistant County Education Officer has indicated that a Policy
Committee could prove a useful vehicle in ensuring that the division
develops a cohesive plan for Adult/Continuing Education.
Such a committee although perhaps only advisory in nature will prove
useful in ensuring that there is little duplication of course
provision, identify gaps in the market and map progression routes
for students.
By examining current examples of good practice the Policy Committee
could clearly indicate what the division recognises as a quality
Adult Continuing Education Service.
Suggestions on the remit of this group and a proposal on its
composition is currently being prepared for the Assistant County
Education Officer.
Local Planning Groups
Area forums will be maintained as the local channel for the needs of
clients and as a co-ordinating body for the Assistant County
Education Officer in the process of apportioning the Community
subsidy.
APPENDIX A
AIMS OF THE NORTH EAST HAMPSHIRE COMMUNITY COLLEGE
To provide a free standing educational structure which develops
local based learning opportunities for adults.
EDUCATIONAL OBJECTIVES
To maintain a locally based, delivered, planned and managed service.
To ensure a flexible and responsive service to meet the needs of
individuals, local communities and business.
To recognise the distinctive features of adult learning.
To provide a unique customer-led quality service which is responsive
to expressed local demand.
To maintain close contact and work with voluntary organisations and
community groups in a non formal way.
To encourage students to gain confidence and develop their potential
opportunities and to progress to more formal and advanced education
and training provision.
To allow individuals to exercise choice, encouraging a higher
standard of service since no institution has a monopoly on learning.
To negotiate with industry and provide initial tailor-made
programmes for individuals and groups.
STRUCTURAL OBJECTIVES
Offers the division the opportunity to formulate a cohesive plan for
Adult/Continuing Education within the Community College. Recruiting
and progressing students to other further and higher educational
establishments. Those colleges thus obtain students with the
necessary foundation skills to complete a higher level course
successfully.
Offers a divisional agency which can assist the Assistant County
Education Officer in the allocation of the community subsidies to
schools.
Ensures liaison with the parallel divisional structures of the
County Youth Services.
Provides a degree of independence which is not unduly constrained by
the needs of a larger institution with differing priorities.
Provides the Hampshire County Council with their own service
regulator in order to allow them to monitor performance and results
of other providers of Adult Continuing Education.
Ensures that management decisions are taken by a small, effective
Governing Body.
Ensure effective use of a small team of dedicated specialised staff,
both full and part-time.
Offers the opportunity to establish an Information Guidance and
Counselling Service based on existing networks.
Provides a management structure which allows the college to respond
positively to the new National Curricula Developments.
Ensures a community generated curricula delivered at a local level
within its priorities, policies and resources.
FINANCIAL OBJECTIVES
Offers the students and the Authority a value for money service.
Achieves savings by effective, economical and efficient use of
current resources.
Achieves further savings by expanding and developing the Adult
Continuing Education programme.
Uses existing computerised management information systems to control
accurately the use of resources.
Offers a people-based rather than a building-based service, ensuring
that high overhead costs are kept to a minimum.
Operates in schools in partnership with school governors, offering a
positive financial return.
Operates in rural communities providing local opportunities and
makes a positive financial contribution to the upkeep of
village/parish halls.
Maximises the resources obtained from other agencies to enhance
specific areas of work, eg programmes for those with special
educational needs.
Works in partnership with Borough and District Councils, Local
Health Authority and other statutory bodies to ensure effective
local planning and encourages joint use of resources.
Attracts sponsorship to finance and promote new and existing
programmes in the Adult Continuing Education Service.
Maintains the effective competitive unit costs as outlined in the
Chartered Institute of Public Finances and Administration Report
l987/88 (M. Hunt).
Provides the Hampshire County Council with their own service
regulator in order to allow them to monitor performance and results
of other providers who may be providers of an Adult Continuing
Education Service through contractual arrangements.
APPENDIX D
THE DISTINCTIVE QUALITIES OF ADULT LEARNING
THE DISTINCTIVE FEATURES OF ADULT LEARNING
While there are no simple, sharp distinguishing lines between 'adult
learning' and initial education, there are a number of key ways in
which adults' involvement in education and training differs from
most of what is provided for children and young people. An
understanding of those must underpin any development work designed
to help institutions and agencies to adapt to the growth of adult
demand for, and participation in education. Five factors are
particularly important:
l Previous Experience - adults bring to education a greater
volume and range of experience than do young people. This
gives them potentially greater resources to draw on, and a set
of external criteria against which they will measure the value
of the educational experience. Some also bring distinctly
negative experience of previous encounters with education, which
may make it necessary to adopt different approaches.
2 Voluntary participation - most adults participate in education
because they choose to do so, albeit sometimes under pressure
from employers of government agencies. This gives them greater
power to reject what they are offered if it fails to convince
them of its relevance.
3 Complexity of objectives - adults usually have more complex
motivation and objectives in engaging in learning than do young
people. They seek to build on existing skills and experience
to pursue very individual aims, which often match poorly with
the structures offered by traditional formal education.
4 Discontinuous participation - adults continue learning
throughout life, but their involvement in formal courses is
usually intermittent. They move in and out of the system,
using at different times, different agencies and kinds of
opportunity. At least as much learning takes place outside
educational institutions as within them, and each individual
constructs a unique learning career. It is therefore
inappropriate to see the process in terms of the offerings of
a single institution, and for many purposes one must seek a
'system wide' view.
5 Financial complexity - most education for adults involves a
complex range of fees, grants, benefits, and employer support
(unlike initial education, where most individuals are required
to make no direct financial contribution before the age of l8).
This raises significant barriers to participation for many
adults, who have to meet tuition fees and the cost of their own
maintenance during study.
Extract from a U.D.A.C.E. internal discussion document
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