with respect to the activities of the Department of Higher and Further Education, Training and Employment

Introduction

We welcome the opportunity to comment on the Department of Education's consultation document, issued in October 1999. We take cognisance of the changed, and changing, political context which has seen a new, Northern Ireland Minister for Education and a new Minister for Further and Higher Education, Training and Employment. We recognise that Learning for Tomorrow may be superseded by these events, but we offer the following in order to inform the debate on the strategy for education in Northern Ireland.

Overall approach; themes

We find that while it is commendable to identify the philosophical underpinning for the strategy, "Learning for To-morrow's World" demonstrates some cluttered thinking. (See comments below as to whom education is for.) We support a holistic view of education that incorporates and values both formal and informal education provision.

We realise that the whole nature of education is changing - including the traditional role of the teacher, but would caution against the type of automatic shifts suggested in relation to the growth of ICT. (4.1.1). We endorse and commend the work done by CCEA in the development of the NI Curriculum 21st Century. We would like to see those issues that were discussed in Key Messages for the Curriculum 21 Conference.

The key themes outlined are appropriate. (4.1.4)

We agree that an integrated planning process is very important.

This document obviously reflects the old structure of NI Departments (i.e. the old DENI). Under the new dispensation we need to integrate and mainstream policy and targets for the FECs alongside training centres, New Deal etc. schemes and the T&EA as a whole.

The 1996 Mission Statement could be updated to take account of the changed political environment. Education has a powerful role to play in reconciliation and the strategy should consider what its contribution could be to this process.

We are broadly in agreement with the statements in the section (pp. 24 ff.) on Higher and Further Education with respect to "Principles" and "Themes".

Comments on lack of specificity; lack of clarity

Unfortunately, however, much of this discussion is couched in a relatively unspecific and unquantified form. There is a danger of "motherhood and apple pie". Certainly, come 2006 it will often be difficult to test whether objectives have actually been achieved because in some (many?) cases those objectives/targets have not been specified in a tight and/or quantitative manner. (In this context we found it significant that the discussion in Appendix 1 was rarely laid out in the form of "objective set in 1996… indicators of extent of realisation of the objective…outcome as of late 1998/is the objective being achieved?".)

It would have been useful to have more detail on the developments in policy and provision since 1996. For instance, have measures to reduce class sizes in the lower primary school been successful? How effective are the measures for promoting a culture of tolerance in NI including EMU? In our view leadership could be shown by much greater support for integrated schools. The encouragement for example of 'entrepreneurial skills' without an agreed understanding of what does that really means is a gap in our view.

It refers to the expansion in Integrated Education as if this was due to a government initiative. This is not so and indeed DENI has to date rejected funding to many Integrated schools and has made no provision for the many parents and children who wish to go to integrated schools.

It offers little to Travelling Children or children from Ethnic minorities.

The document recognises sympathetically that under a 'global capitalism' system, the really hard-working individual can 'make it'. We take issue with the underlying political ideology implicit in this statement. We foresee industry and wealth production dominated by the few as it is at the moment, with the gap between the rich and poor widening as present trends indicate. We challenge the notion that an education system and service should be so geared into the premise of that particular ideology.

Participation, Access, Equality of Opportunity

Focusing on just two of the themes, participation and the "low level of basic skills in Northern Ireland", we believe the document needs to be much more specific.

Some or all of the following would be appropriate:

Participation (i.e. equality of opportunity)

Benchmark the current position in terms of the composition of the HE/FE student body with respect to male/female, catholic/protestant, 18-21 years old/"mature" and socio-economic class. Where appropriate providing comparisons to GB or other parts of the EU/USA.

Where there are obvious imbalances, a timetable for change along with indications of the appropriate policy response should be provided. At this stage, we would point to the following data:

Male/female - amongst undergraduate students now a majority of women; 60:40 (this may reflect the underperformance of boys at the schools level).

Catholic/protestant - at QUB 58% catholic and at UU
56%.

Mature students - NI, like GB and ROI, probably has a relatively small number compared to other European economies.

Social class - the two NI universities do relatively well in this regard (from the lower income social classes 28% of QUB students and 40 % at UU compared to roughly one-in-five across the UK) though there may still be room for wider access in social terms; there is evidence that protestant, male working class are especially under-represented. It should be noted that NI with its selective system of 11-18 education has a relatively more meritocratic higher education than England after two decades of comprehensives.

We agree that underachievement has fallen but share with DENI the concern that there still seems to be a core of young people leaving school with poor or no qualifications. We do not compare well with our European counterparts.

While the Strategy Document refers to the higher and increasing up-take of Further and Higher Education places we are very concerned about student funding which seems to contradict the need for life long learning as well at tertiary level for early employment.

In our view the document pays lip service to social inclusion with references to the measures designed to promote a culture of tolerance - including a stronger emphasis on Education for Mutual Understanding. While giving no evidence that social disadvantage plays a serious part in holding back education achievement we see little evidence for dealing with the root causes of social deprivation. (MMcW)

We welcome the fact that the "Learning for To-morrow's World" acknowledges that the education service should have a stronger role in 'promoting pluralism and helping to redress the effects of a divided society' but we find little evidence of this in the Strategic Plan. It does not address the cultural, religious and class segregation that exists in the NI Education system. Has the department considered the legal obligations from the NI Children's Order, the 1998 Education Order or the Belfast Agreement in respect of equality and inclusion?

We feel that in relation to Access a number of supporting mechanisms need to be put in place to make further and higher education more accessible to otherwise excluded groups. These groups include mature people, both men and women, with families. Childcare provision in Further Education is woefully inadequate and without it we lose women and men usually between the ages of 20 to 40 years whose child caring responsibilities often interfere with their studies or return to education.

Improving basic skills

We are concerned that numeracy and literacy levels in NI are still very low across the population. This needs to be addressed.

Once again, there is a need for benchmarking (including, where appropriate, comparisons to GB, the ROI, other parts of the EU, USA and Japan etc.). The stock of skills in the Northern Ireland labour force would be enumerated. First of all, for some year in the relatively recent past (e.g. the early 1990s, corresponding to the situation at the start of operation by the T and EA), the current situation (say, 1998) and then timetables, targets and policies for the future.

I agree that the nature of all Western societies is rapidly changing and that NI's traditional industries and wealth producing areas are fast declining. We recognise that a new wealth creation base must be developed and the education service must be orientated to anticipate that change. We approach this with some care. We hold a key philosophical principle that human beings are not cogs in the wheels of industry and are not to be seen as 'brain fodder' or to be educated solely to serve the needs of the world of work. Of course education has a role in preparing for industry's needs, but in addition has a much broader purpose: the enhancement of individuals in their own lives so that they are not only participating citizens, but self-determining, creative, problem solvers, intellectually and emotionally equipped to critique their environment. We therefore see an important place for culture, the arts and sports in developing all members of community - older and younger.

Appendix 1 lists the objects of the FECs e.g. community education, adult literacy, economic development and University for Industry. All of these are very worthy but has there been over-stretch? Have the FECs wandered away from their original core competences?

Education Forum

Should there be an Education Forum? Consultative and advisory bodies usually sound like being good things. However, we are concerned about duplication. This document was written before devolution, the transfer of power and the formation of this Committee. We already have a Further Education Consultative Council, the Northern Ireland Higher Education Council and the prospect of a Civic Forum.

In principle an education forum involving all education partners at strategic level would be useful. Are there any plans to explore the possibility of strategic planning on a cross-border level, particularly for consideration of rural schools in the border counties?

Children, Young People and Students

I locate children, young people and students at the heart of any Education Service. We recognise there are other stakeholders in the service, but believe that when setting education priorities in any community we must not lose sight of the student, whatever their age may be. We place particular emphasis on the needs and best interests and the willing participation of the child. This position is informed by our founding principles of Equality, Inclusion and Human Rights.

Learning for Tomorrow displays a fundamental confusion as to whom education services are provided for. The document initially refers to 'ultimate' and 'key' 'customers' as the business community, then the statutory agencies. Later there is a reluctant acceptance that the 'pupils themselves are to be seen as customers.' I challenge the notion underpinning the presentation that children are somehow the 'purchasers' of their education service. We believe that education is a right, not a privilege to be paid for or won. And any education strategy needs to be clear as to who is its priority in terms of providing education. We believe the interests of students should come first - the strategy should focus on the purpose of their education.

Chapter 1: Introduction

We welcome the acknowledgement that children themselves are seen as prime users of the education service, and believe that this accord with the UN Convention on the Rights of the Child. We reject, as set out above, the concept of children being customers of their own education, but feel the issue of the definition of the primary user should be clarified. How are the views of children being canvassed for vision and hopes for their education for 2000-2006?

Schools

We would like to see greater funding and integration into mainstream based on need and the child's best interest in relation to children with Special Educational Needs.

We welcome the increase in non-grammar school pupil achievements from 28% to 31% but draw attention to the gap between grammar school results (95%) and those of the secondary sectors. We view with concern this gap and believe it is not only due to the ability of the pupils in the different types of schools but other factors like enhanced environment, more facilities, home backgrounds, perceived status and not least disparity of funding in relation to the two sectors. It is because of this gap that we believe that the division between grammar and secondary sectors must be addressed. Recent research shows that well funded and resourced comprehensive schools can produce equally high achievements.

We are concerned that numeracy and literacy levels in NI are still very low across the population. This needs to be addressed.

The Youth Sector

We would encourage the Department to expand on their understanding of the role played by the Youth Sector in:

Engaging with young people, particularly those outside traditional opportunities
Targeting social need
Tackling social exclusion
Capacity building at community level
Promotion active citizenship
Supporting skills for life and work.

Pre-school provision

We believe that the continued expansion of pre-school nursery education is another priority. We recognise the benefit for children and society in general when a child has had the advantages of good, well-provisioned nursery education with appropriately qualified staff. By this we clearly mean professionally trained nursery teachers.

Diversity and segregation

However we are concerned that with expansion and primary schools competing for numbers that this sector is becoming segregated like the primary and secondary sectors. This is a worrying trend that a sector which was naturally integrated is now becoming segregated. We are also concerned that there would be a dilution of the role of the professionally trained nursery teacher. We believe that nursery education must be in the hands of highly skilled well-qualified teachers with appropriate classroom assistant support. We support greater funding for community initiatives providing pre-school child development with qualified experienced staff.

As the Party that had the promotion of Integrated Education included in the Belfast Agreement we wish to see integrated education promoted and supported financially. We absolutely endorse the creation of a culture of tolerance and good citizenship. We believe that the Education Service can contribute to reducing division in society through promoting core values that support pluralism, human rights and full participation in society for everyone

We were disappointed that Education for Diversity seemed to change the original brief set out by the minister, looking to the Belfast Agreement, which advocated the promotion of integrated education. We hope that the concept of integrated education proves to enhance tolerance and inclusivity and does not water down the original notion of integration. We do not believe that the real ethos of integration can be taught nor can it be communicated by schools not committed to it as a founding principle. We are worried that the pressure on schools to maintain rolls and the fierce competition for funding has undermined true integration. We want to see more support, promotion and funding for integrated schools as we wholeheartedly believe that it offers the only real mechanism for achieving a culture of tolerance and reducing the divisions in NI society in a reasonable time period. . (4.1.5, creating a culture of tolerance and good citizenship)

We are dismayed to note that area of teacher training remains segregated. It is anomalous that in the 21st century tertiary education for teachers should be conducted in two separate university colleges on the grounds of religion. It is not only educationally narrow and introspective and exclusive but it is an expensive over-provision which narrows teachers professional development. If we are to promote pluralism, tolerance and full participation then it is crucial that at this level at least the real meaning of education should be experienced. It is crucial that our professional educators be integrated - when other areas of further and higher education are fully integrated. Integration at this level should not in any way interfere with the individual teacher's preferred religious affiliation. It is unacceptable that this crucial area should be so far behind the times. (Consultation questions, Chapter 4.1.)

Language Learning

We believe that the issue of languages should be considered in greater depth than "Learning for To-morrow's World" sets out. (4.1.5, 'wider horizons' and language skills.

Chapter 4.2: Further and Higher Education

(See also comments on access and participation, above.)

We fully endorse the proposed vision statement for the F&HE sector.

We are happy with the underlying principles but feel that in relation to Access a number of supporting mechanisms need to be put in place to make further and higher education more accessible to otherwise excluded groups. These groups include mature people, both men and women, with families. Childcare provision in Further Education is woefully inadequate and without it we lose women and men usually between the ages of 20 to 40 years whose child caring responsibilities often interfere with their studies or return to education.

The themes and issues highlighted are appropriate and should if implemented serve the needs of the community in the early 21st century. In particular we support the plan to implement a coherent framework of national qualifications at all levels. We consider that national boundaries are too narrow to provide such a framework. It seems important that qualifications at all levels should be recognisable and transferable especially throughout the European Union.

In addition, there may be merit in introducing other internationally recognised awards and qualification. While we support accreditation for prior experience and learning and credit accumulation we would not want to see any dilution of standards in any vocational or academic field in the drive to accreditation for all learning experience.

Chapter 4.3 Libraries, Culture, Sport and the Creative Industries

We agree with the fundamental principles and key objectives.

We believe that this is an expanding area and much more focus should be given to the wealth producing potential of sport, the arts and the creative industries. Entertainment and leisure are the fastest growing economic areas. Perhaps these should also get more focus in the school curriculum so that children and young people have some experience in the fields but also are encouraged to think of these areas as career possibilities

General Comments

My general sense is that "Learning for To-morrow's World" re-presents the ongoing Departmental programme. The opportunity to take account of new issues, such as teacher stress, and the retention of teachers in the profession, was not utilised to optimum effect. Additionally, where the growth of ICT is mentioned, there is an assumption that there will be a '[shift] in emphasis of the teacher's role to that of guide and facilitator.' Our view is that this requires a great deal more consideration. What is the teacher's role to be in relation to new technologies? Are they to teach, or to guide or facilitate?

Conclusions

While much has been made of how effective the NI education system is, in reality we have a small number of 'high achievers' according to the 'A' levels results. And there is no room for complacency. We lose so much potential by conducting selection at 11. Statistics show that we do not compare favourably with our European counterparts, not to mention countries further afield, like Japan.

It seems to us that "Learning for To-morrow's World" is merely a starting point in the process of setting out a strategy of what the education services should be providing for pupils, their parents and the wider social and economic fabric of our community in years to come. We look forward to viewing the final agreed Strategy for Learning for Tomorrow's World.

Esmond Birnie

Dr Esmond Birnie
Chairman
8 February 2000

Meeting Minutes of the 8th February 2000