Archived decisions

Contact: Lionel Paris, Head of Adult and Community Learning, ext. 6848

1. Summary

1.1 This report:

· explains the background to the requirement for an Adult Learning Plan (ALP) and sets out the context for the delivery of adult and community learning during the education year 2003/2004

· describes the funding being made available to support delivery of the County Council's provision for adult and community learning

· summarises the planned developments and key actions proposed to further the County Council's strategic objectives for adult and community learning

· invites the Education Policy Review Committee to comment to the Executive Member for Education on the proposals before a detailed ALP is presented to the County Council for approval.

1.2 Copies of the draft ALP have been placed in the Members' Room.

1 Background

1.1 Responsibility and funding for securing adult and community learning were transferred from local education authorities (LEAs) to the Learning and Skills Council (LSC) in April 2001. The Secretary of State guaranteed that LEAs would continue to receive funding for a period of two years, subject to LEAs maintaining support for adult and community learning (ACL) and producing satisfactory plans showing how the money would be spent. The County Council's Adult Learning Plans for 2001/2002 and 2002/2003 were accepted without condition by the LSC for Hampshire and the Isle of Wight (local LSC).

1.2 The level of guaranteed funding for each LEA is based on historical spending. The value of Hampshire's allocation relative to the size of the population has been recognised as one of the lowest in the south-east region. The period of guaranteed funding ends in July 2003. The LSC was planning to introduce a national funding formula for ACL from August 2003. The County Council could expect to receive a significant increase from any formula over time, given the low base level. As a consequence, the main purpose of the Adult Learning Plans has been to maintain support for the existing network of ACL providers during the period of transition, and to position the service so that increased funding can be claimed from August 2003 onwards.

1.3 Unfortunately, increased expectations by both the LSC and the Adult Learning Inspectorate (ALI) has resulted in considerable additional work for ACL providers, particularly in terms of data collection and quality assurance. Although extra LSC funding was received in both years, it was targeted by the LSC at specific areas of activity such as family learning. It has not always been possible to increase the funding allocated throughout the network of providers in line with the additional work required. However, there was a general acceptance that the situation would start to improve with the introduction of a funding formula in 2003/2004. The successful implementation of the ALPs has depended upon a measure of goodwill from providers and exceptional commitment from the small staff team in the County Council's Adult and Community Learning Unit. It will be difficult to sustain this in the long term.

1.4 The funding relationships carried over from the former Further Education Funding Council (FEFC) are complex:

· The County Council currently contracts with colleges, schools and community organisations to deliver mainly non-vocational programmes using LSC funding.


· Colleges receive funding directly from the LSC for further education, but also receive some direct funding for both vocational and non-vocational ACL.


· Some colleges have entered into franchise agreements through which they fund schools to deliver mainly vocational ACL.


· Both colleges and the LEA receive funding for family learning and seek to deliver courses on school sites.


· Four schools in the Fareham and Gosport area were funded by the FEFC as "external institutions" for vocational courses and by the LEA for non-vocational courses. These separate funding streams have been continued by the LSC.


The pro-rata value of the LSC's funding for ACL is considerably higher for colleges than the funding received by the LEA. The funding arrangements perpetuate competition in some areas, rather than encouraging collaboration. Some providers have two or three different funding streams for ACL. Inevitably this results in increased bureaucracy with different application procedures, different systems for collecting data and different reporting systems for quality assurance.

1.5 The LSC is requiring all LEAs to set up a computerised management information system (MIS) capable of collecting an individual learner record (ILR) for every adult learner participating in courses funded by the LSC through LEAs. The MIS is expected to be operational from August 2003 with the first census date for the collection of the ILR in November. This presents a major challenge to the County Council and its network of large and small providers, not least because the final specification of the data required to be collected is still under development. Additional funding of £140,000 has been provided to help establish the MIS and train staff in its use, but no additional revenue support will be made towards the operational costs. In different ways, data will need to be entered for every single learner (currently about 42,000). Future funding will be totally dependent upon the quality of the data submitted to the LSC through the ILR. The data will drive the formula which will produce differentiated levels of funding based on learner numbers. Put quite simply, no ILR - no funding.

1.6 In summary, the planning for the next educational year 2003/2004 has to respond to the following pressures:

· low levels of funding available to support providers in the delivery of the core curriculum in ACL

· increasing expectations on providers in terms of data collection and quality assurance

· continuing bureaucratic funding relationships resulting in an inevitable duplication of effort

· major changes for staff at all levels of the provider network as a consequence of the introduction of the MIS and ILR, with considerable but as yet unknown resource implications

· increasing pressure on the limited capacity of the ACL Unit to give adequate local support to providers.

1.7 Most regrettably, the LSC has been unable to develop the national funding formula for the expected introduction in 2003/2004. This has been postponed for at least one, and possibly two years. The hoped-for improvements in the level of base funding for the County Council has also been deferred, although the LSC has agreed to continue funding LEAs beyond the period of the Secretary of State's guarantee. The County Council's present arrangements for delivering ACL are not sustainable through another period of transitional funding. The planning for 2003/2004 seeks to introduce changes which will increase the support given to providers and deliver a higher level of funding.

2 Adult Learning Plan 2003/2004

2.1 Once the funding formula and the ILR have been introduced, the LSC has given notice that LEAs will be expected to produce a three year development plan, in line with other post-16 providers such as colleges. The requirement for an annual adult learning plan will change. Transitional arrangements have been requested for 2003/2004. The County Council has been asked to provide an ALP consisting of four sections, as follows:

1. A Review of the current ALP's delivery to date and plans for 2003/2004 which informs -

2. A Business Plan for 2003/2004 using spreadsheets to show the detail of how LSC funding will be spent and the planned outcomes. Indicative learner numbers and funding allocations are included for those providers who have submitted funding applications to date.

3. A Self-Assessment Report (SAR) - focussing mainly on performance in 2001/2002. This identifies strengths and areas for improvement in the ACL provision funded through the County Council. The findings of the SAR inform -

4. A Quality Improvement Plan setting out changes and developments planned for 2003/2004. This plan will be funded by a Standards Fund grant, although the amount available to the County Council has yet to be confirmed.

2.2 These four documents together make up the ALP for 2003/2004. The LSC's original deadline for submission of the draft plan was 31 March 2003. The process of creating new planning documents, consulting providers and others on the proposed changes and managing the delivery of the 2002/2003 ALP at the same time, has proved difficult to complete. Furthermore, the local LSC undertook to manage a formal consultation with college principals about the proposals affecting colleges. The changes are critical to the preferred strategies for next year. Most colleges have confirmed their support, although a few have yet to reply. A draft ALP has been submitted to the local LSC for comment. The final ALP will be presented to the County Council for approval during the summer term.

3 LSC funding 2003/2004

3.1 The local LSC's main allocation (core funding) for August 2003 to July 2004 amounts to £1,218,015, a reduction of 0.4% on the current year. However, there have been very significant increases in funding for family learning, family literacy/language and family numeracy. A new grant for supporting ethnic minority achievement has been allocated, amounting to approximately £20,000. There has also been an overall increase in the capital funding made available for supporting compliance with the Disabilities Discrimination Act (DDA) and for minor works and equipment. The ACL Unit successfully bid for other funding during 2002/2003 in support of quality and curriculum development. Part of this will be available for expenditure in 2003/2004. Similarly, a Standards Fund grant of £50,000 was made to support the LEA's quality improvement plan in 2002/2003. A similar amount is anticipated for next year.

3.2 All the allocations are indicative. Accessing the actual funding is dependent upon successful applications, performance against targets, meeting criteria etc. The funding offered in support of ACL in 2003/2004 is as follows:

The continuing funding from the County Council's Education budget is used to support various community-based projects contributing to the widening participation agenda.

3.3 The LSC's capital funding is allocated for expenditure during the financial year commencing 1 April 2003.

Providers were encouraged to complete a self-assessment access audit during 2002/2003, using a questionnaire developed in partnership with the County Council's Property Services team. The use of the DDA funding is being targeted on priority needs as revealed by the audit. Priority for the minor works funding is being given to health and safety improvements and projects which support increased provision for adult learners, particularly day-time accommodation.

3.4 The increased support for specific programmes addressing LSC priorities is particularly welcomed and will enable the County Council to develop further the already successful provision in these areas, in partnership with schools and other providers. However, the increases do not entirely compensate for the under-funding in the core budget allocation.

4 Proposed response

4.1 Without additional funding for the core ACL provision, the only way of increasing the value of the financial support for individual learners and providers, is to reduce the number of learners and providers being supported. This will result in fewer learners being funded by the LEA, but give the remaining providers a larger share of the available resource. The capacity of the ACL Unit to offer support to a reduced provider base will also improve.

4.2 The local LSC has announced an intention to review during 2003/2004 the funding of colleges through LEA contracts. It seems likely that colleges will receive all their future funding directly from the LSC, thus reducing the bureaucracy resulting from different funding streams.

4.3 With this in mind, it is proposed that the County Council should cease funding ACL in college-managed programmes in 2003/2004, rather than waiting until a probable national decision in 2004/2005. The local LSC has agreed to maintain the same level of funding to the County Council in 2003/2004 and to provide additional funding for colleges in support of the learners transferring from the LEA. The funding currently allocated to colleges by the LEA will be available for the LEA to redirect to its providers in 2003/2004. Thus, the County Council's funding allocations will remain as already notified, but there will be fewer providers and learners to support.

4.4 The positive outcomes of these proposals are

· the ACL Unit will be able to concentrate on working with schools, community-based organisations, internal departments of the County Council such as Social Services and Recreation and Heritage and other agencies such as the Probation Service.

· the number of providers will reduce from 104 to 87, which will improve the capacity of the ACL Unit to give local support.

· responsibility for approximately 40% of the existing 42,000 learners will transfer from the LEA's programme to colleges. It is intended that there will be absolutely no change as far as individuals are concerned. Learners will still attend the same courses with the same tutors in the same venues. The only change will be in the route through which college managed provision is funded by the LSC.

· the design of the MIS will be simplified as the specification will not require data to be imported from existing college systems. The change will also avoid wasteful expenditure on software and training for college staff in a system which may only be required for one year anyway, pending a national decision for 2004/2005.

· crucially, the core funding available to the County Council for allocation to the reduced provider network is estimated to increase by about 30% from £932,000 to £1,225,000. This additional funding will be well received by schools and community organisations and should help them to cope better with the LSC's agenda for change.

4.5 The change to the network of core ACL providers is anticipated to be as follows (accepting that some applications are still under negotiation):

4.6 The County Council and the LSC are requiring a commitment from the colleges to contribute to the overall ACL planning framework so that relative levels of resource and the development of provision can continue to be analysed, taking account of all adult learning provision available to meet local needs. This will support the ACL Unit's strategic planning function. The Unit has also indicated to colleges an interest in collaborative working on specific projects supporting the family learning and basic skills agendas. To date, three colleges have expressed an interest in developing such a relationship. Colleges will still be invited to send representatives to meetings of the Adult Learning Forum organised by the ACL Unit and to participate in the staff development programme although they may be charged for this in the new arrangements.

5 Other planned developments

5.1 The 2002/2003 ALP introduced six strategic objectives for the development of ACL in Hampshire. The planning documents for 2003/2004 will continue to work towards these objectives. The extra LSC funding for specific programmes, together with the funding made available for providers as a result of the proposed changes to the funding relationship with colleges, will be used to resource developments in support of all six objectives, as follows:

5.2 "Further develop basic skills provision":

· A member of staff in the ACL Unit has been on secondment to the Basic Skills Agency throughout 2002/2003. On her return in April 2003, her role has been changed to "Basic Skills Development Officer" and she has been given a remit to support schools and voluntary organisations in building capacity and to position existing provision so that it better qualifies for LSC funding with the introduction of the funding formula.

· The ACL Unit has been working with the Library Service and the Basic Skills Support Unit on a LSC funded project, designed to raise awareness of basic skills resources available in libraries and to promote use of libraries by families. The Unit will take over the funding of the project as part of the ALP in 2003/2004 and further develop the provision.

5.3 "Increase provision for family learning":

· There has been a 50% increase in family learning during 2002/2003. A further increase is planned, but the focus will be on achieving sustainability for groups already started and in improving routes for progression for new learners.

· Experience has shown that the most successful family learning occurs where the provision is integrated within a school's wider strategy for working with and communicating with parents. Such good practice will be extended.

· The ACL Unit will work in partnership and help to coordinate provision made by the Early Education and Childcare Unit and the Inclusion Branch.

· As well as libraries, family learning will be delivered at museums, arts centres, the County Records Office and other Recreation and Heritage outlets.

· The ACL Unit will take over funding the successful Andover Family Learning Project when the initial LSC funding runs out in 2003/2004. The project staff will be helped to continue to offer family learning programmes and to build capacity in local communities through training and advice.

5.4 "Extend adult participation in learning":

· Some of the additional funding will be used to create three new Learning Development Officers based in the following areas:

- Andover and Basingstoke

- Gosport and Fareham

- Havant

The officers will focus on family learning, literacy/languages and numeracy. The postholders will deliver courses as well as provide training and support to centre staff.

· The Recreation and Heritage Committee is sponsoring a new post to develop further adult learning opportunities at libraries and other sites. The postholder will be attached to the ACL Unit and will be funded by the County Council.

· The increase in core funding for providers itself should lead to increased provision and extended participation.

5.5 "Increased levels of retention and achievement":

· The award of an "Investors in Quality" licence to the ACL Unit by the NCFE National Awarding Body (Northern Council For Education) enables the Unit to offer accreditation within family learning programmes.

· the Unit will develop formal learning programmes in partnership with providers which will lead to qualifications equivalent to NVQs using NCFE certification.

· the introduction of the MIS and ILR will deliver more reliable data for the monitoring of retention and achievement rates which will inform realistic targets for improvement.

· A European Social Fund/Local Initiative Fund grant awarded by the LSC enabled the ACL Unit to appoint two Quality and Curriculum Development Officers in 2002/2003. They have been giving one-to-one support to providers, supporting actions plans for improvements and delivering staff development. Their support has been much appreciated by providers and the funding of the work will be continued through the 2003/2004 ALP.

5.6 "Support schools in becoming centres of learning in their communities":

· The ACL Unit is planning a comprehensive management training programme for ACL organisers/managers. This will use a module approach to deliver a portfolio of training opportunities arranged in response to careful needs-analysis.

· The four LEAs in the local LSC area have combined to sponsor a locally delivered course for ACL managers offered through the Learning and Skills Development Agency - "Managing Better". The programme is aimed at LEA officers and ACL managers and 10 places have been secured for Hampshire staff.

· The ACL Unit will contribute to the development of an "extended schools" strategy for the County Council. A good practice document highlighting the many achievements of Hampshire's community schools is under development. This case study material will be used to raise awareness and encourage further development at other schools.

· The Quality and Curriculum Development Officers and the three new Learning Development Officers will build capacity in schools by delivering programmes, supporting a needs-led curriculum, encouraging provider collaboration to widen participation and share good practice.

5.7 "Improve the performance of the service and the quality of the provision":

· The quality assurance framework recognised by the NCFE's "Investing in Quality" licence will be further developed.

· There will be a significant investment in a county-wide staff development programme made possible by successful applications for LSC and Standards Fund grants. Tutors will be paid to attend training in order to ensure a high attendance on courses regarded as mandatory.

· The increased capacity of the ACL Unit will enable more support visits to providers throughout the network.

· The ACL Unit will develop a more "needs-based" quality assurance system for smaller providers and voluntary organisations, many of whom have experienced difficulties in applying the existing framework. There will be more one-to-one support, with Unit staff visiting to obtain information through tutor observation and interviews with learners/organisers, rather than requiring providers to submit detailed management information.

· The quality assurance process depends upon individual providers carrying out "self-assessment reviews" and formulating "development plans" for improvement. The ACL Unit will continue to offer training and support in this important activity. There was a significant improvement in the numbers of providers completing the process in 2002/2003. Further improvements are planned in both the quality of the reports produced and the number of providers engaging in the process.

6 Consultations

6.1 The strategies outlined in this report have been developed after consultation and in partnership with the ACL provider network. The proposals have been discussed at meetings of the Adult Learning Forum, the Family Learning Forum, the Community Managers Group, the Headteachers' Standing Committee in the Lifelong Learning Branch and the County Council's Corporate Strategy Group. In addition, the local LSC has managed a consultation with FE colleges with regard to the proposed changes to the funding relationships.

6.2 There has been widespread approval of two main priorities within the 2003/2004 ALP - increasing the funding made available throughout the provider network and increasing the ACL Unit's capacity to give more support. Providers have also welcomed the more detailed developments outlined in this report.

6.3 A large majority of the colleges have welcomed the realignment of the funding for ACL, although some have expressed regret at ending the funding relationship with the County Council.

6.4 The draft documents comprising the ALP have been forwarded to the local LSC for comment, before submission to the County Council for formal approval.

Recommendation

To provide the Executive Member for Education and the County Council with appropriate comments before the Adult Learning Plan for August 2003 to July 2004 is finalised and submitted for approval.

SC\2003\MAR062LPgg