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RES/03
COMMITTEE FOR HIGHER AND FURTHER EDUCATION, TRAINING AND
EMPLOYMENT: SUBMISSION TO COMMITTEE FOR FINANCE AND PERSONNEL, ON THE EXECUTIVE'S
DRAFT PROGRAMME FOR GOVERNMENT (OCTOBER 2000) AND PUBLIC EXPENDITURE PLANS 2001/02
PART 1: PROGRAMME FOR GOVERNMENT
1. Introductory Remarks
1.1 This Committee welcomes the Executive's commitment to work co-operatively
(i.e. "joined up government") across Departmental boundaries as well
as with organisations outside central Government, and commends the Executive
on producing a forward looking, comprehensive first draft Programme for Government.
1.2 We also welcome, and look forward to the development of, Public Service
Agreements (PSAs) for all Departments. These should enable Ministers and the
Executive to be accountable to the Assembly, and thus to the Northern Ireland
public, for achievement of agreed outcomes against programme priorities and
budget allocation. We would wish to scrutinise the formulation of PSAs at the
earliest possible opportunity.
1.3 We fully support the detailed approach to actions to support equality and
human rights and the important recognition given to the needs of victims.
2. Accountability
2.1 The draft Programme for Government represents a significant stride towards
improved explanation of both programmes and performance to the Northern Ireland
Assembly, and to the Northern Ireland public. It provides a bridge which ensures
that Government becomes more transparent and more intelligible to the lay person.
2.2 In this context, the Committee considers that more clarity needs to be given,
within the draft Programme, on monitoring, evaluation and accountability arrangements.
The Northern Ireland Assembly, in its plenary activities, has an important scrutiny
and consultative role regarding legislation and policy development. The Assembly
Committees have explicit legal powers with respect to policy development, consultation
and scrutiny. The Committee is therefore concerned to note that, while paragraph
7.2 of the Programme sets out the Executive's commitments to openness and accessibility
to the public, the scrutiny role of the Assembly Committees, and the role of
debate within the Assembly itself, is not mentioned with respect to consultation
and the development of policies, nor is it fully clarified with respect to accountability.
2.3 This Committee believes that the arrangements for devolved government in
Northern Ireland require the systematic involvement of the Assembly and of the
Statutory Committees, in both a more coherent planning process, leading to and
consistent with the allocation of resources, and in the validation of performance
measures, and their reporting and evaluation. They suggest that paragraph 7.1
should make it clear that the Northern Ireland Assembly has a key role to play
in ensuring "accountability to the people of Northern Ireland", which
is referred to in the last sentence of that paragraph.
2.4 We also consider that the role of the Assembly needs to be made far more
explicit in the overview section of this chapter at 7.1.1 - there is no reference
at all to the Assembly and its Committees. Finally, section 7.2, perhaps at
the last paragraph on page 62, needs to acknowledge the scrutiny role of the
Assembly Committees, and the role of the Assembly as a whole, thereby providing
for the wider consultation which the Civic Forum will complement. We are all
agreed that there needs to be an increased emphasis on the importance of the
Assembly and its Statutory Committees.
2.5 Again, at paragraph 7.4, the reference "…different structures
will be required under devolution. The Executive is committed to greater accountability
than in the past at regional level, and will expect greater accountability for
all services through a more efficient and effective structure of administration
at local level," needs to be linked in some way to the role of elected
representatives in delivering this scrutiny, at central government level. Thus
again a more explicit reference to the role of the Assembly and its Statutory
Committees, as regards accountability of the Executive, is desirable.
2.6 The above are merely examples of how the draft Programme for Government
appears to overlook or minimise the role of the Assembly and its Committees
in terms of validation of Programme for Government objectives, and scrutiny
of their delivery. We believe that this was not the intention of either the
Executive nor of the drafters of the Programme. We therefore hope that these
proposals are constructive and can be taken into account in preparing the final
Programme document. As with all good programmes and plans, we would expect the
introductory remarks on page 7 to include a paragraph on monitoring, evaluation
and accountability arrangements. We would also suggest that, under actions proposed
at paragraph 7.4, there should be a supporting reference to the monitoring of
PSA performance.
2.7 At page 66, paragraph 7.6, we are concerned that the role of the Comptroller
and Auditor General, as an officer of the Assembly with specific duties in relation
to supply, propriety and safeguarding against fraud, and ensuring effectiveness
and efficiency, is not mentioned. We would suggest an additional bullet point
under paragraph 7.6, which refers to the work of the C & AG as an officer
of the Assembly. We consider that the C&AG should be specifically appointed
as auditor of all NDPBs, and that his role should be acknowledged fully in the
Programme for Government.
3. Equality
3.1 The Committee welcomes the explicit references to equality which run through
the draft Programme for Government, and the clear commitment to monitoring and
evaluation of equality actions. Some concerns have however been expressed that
the equality aspects of education and training have been under-represented in
areas of the draft. For example, at paragraph 1.7 of Annex B, we consider that
it is not entirely appropriate to brigade investing in education and skills,
together with securing a competitive economy. Whilst this would be appropriate
in a context such as economic development strategy, there are specific equality
aspects of education and skills which require to be separately addressed. We
suggest that a separate reference to education and training, along the following
lines, would be more appropriate: "The priority of investing in Education
and Skills helps to address important dilemmas in securing equality of opportunity.
Close correlation between under-achievement, and socio-economic deprivation
and social exclusion, means that the actions under this priority are powerful
means of ensuring greater equality of opportunity."
3.2 We are also concerned that there should be a more specific reference to
the education and training actions required in local communities, to underpin
equality of opportunity in this aspect of the Programme. In particular, we propose
that there should be specific actions included at paragraph 2.4.2, relating
to education and training in local communities, and that Annex B, paragraph
3.6 (pages 75/76) should also include training and employment measures.
4. Quality and Excellence
4.1 As a Committee we recognise that quality is often assumed to be a standard
which applies across the range of education and training. Whilst therefore quality
and excellence may be implicit throughout much of the Programme for Government,
we consider that this needs to be made explicit. In critical areas, particularly
as regards provision of education and training, we are concerned that there
is a lack of specific reference to quality. Examples of this include the following:
- at paragraph 4.1.2, which provides an overview of the priority for investing
in education and skills, we would wish to see references to quality built in
to text around the end of page 37. We would refer to the good foundations which
our education system provides, and the opportunity to build on this foundation
to maintain the positive aspects of quests of excellence and pursuit of quality,
and moving into new technology and skills.
4.2 We would like to see resonances at areas such as 5.3.2, where we would again
see a reference to the possibility to build on the existing strengths of our
education and training systems.
4.3 We noted that, in chapter 5, we would also like to see the reference to
excellence in terms of, for example, 5.1.2, second paragraph: "The promotion
of enterprise, excellence and innovation and creativity are vital if local industry
is to compete and prosper in the global economy."
5. Transparency and Consistency
5.1 We offer some comments on use of technical terms throughout the document.
While it may be clear to many of those involved in a particular area what specific
references mean in the context, we consider that the Programme could benefit
from some further, succinct explanation of technical terms eg:
- Page 45 - line 1, "good practice treatments".
- Page 43 - last paragraph, "Creating the right conditions for growth also
includes developing the legal framework in relation to matters such as property
rights and inheritance. It is affected by fiscal policy and the institutional
and legal framework within which finance is available. It requires more positive
attitudes to risk." (We also feel there may be a rather unhappy co-location
of concepts such as risk, together with property rights and inheritance!)
- Page 41, second paragraph - In this context, what does "consistent with
the enhancement of opportunities for life-long learning" mean?
- Page 43, first paragraph. What are the "deficiencies in the roads, public
transport, energy, telecommunications and water and sewerage infrastructure?
For many years, for example, Northern Ireland was promoted as ahead in terms
of telecommunications, because of the STAR network.
- Page 48, paragraph 3.1, final paragraph - What does the reference to "skills
availability" mean in this context?
- References in particular priorities should, where possible, be cross referenced
to supporting priorities eg "Leapfrog to the Information Age" appears
at the bottom of page 48, yet there is no cross reference in chapter 4.
- Paragraph 3.3.3 - Development of training deserves a mention.
- We noted some use of tentative terminology, where targets are diluted by prefacing
comments such as "We aim to …", "to help to …".
6. Concluding Remarks
6.1 We hope that the above are taken in the spirit in which they are intended
- as a positive contribution to a document which we see as an important milestone
towards increasing the effectiveness of the devolved Northern Ireland Government
and its institutions. We look forward as a Statutory Committee to playing a
full role in the planning, including development of targets and their monitoring
and evaluation, which will support this Programme for Government. Detailed views
on chapter 4 of the Programme on "Investing in Education and Skills,"
which is of most relevance to the powers of this Committee are included at Annex
1.
PART 2: BUDGET 2001/2002
1. In relation to the Executive's Public Expenditure Plans for Budget 2001/02
presented to the Assembly by the Minister of Finance and Personnel on Tuesday,
17 October 2000, the Committee has the following comments in relation to the
proposed settlement for the Department of Higher and Further Education, Training
and Employment.
2. The Minister briefed the Committee on 26 October 2000, and the Committee
shares his view that, in the light of competing priorities, the budget settlement
for the current year is fair. The Committee recognises the many positive aspects
of the settlement - it enables the Minister to sustain existing levels of activity
in many areas, it enables a much-needed increase in employment programmes, it
provides for a very necessary increased rate of capital investment, and additional
places in Higher Education. It fulfils the commitment of Government to the enhanced
SPUR programme for University research and development, and it enables the Department
to carry out its statutory duties in relation to tribunal cases.
3. However, the Committee is acutely disappointed in respect of the resource
constraints which continue to prevent the Minister from taking forward key aspects
of departmental activity. The small allocation to Adult Basic Education, particularly
in reference to Northern Ireland's well documented problems of adult literacy
and numeracy, enables little more than the piloting of a few projects. While
the new PEACE 2 (and possibly also the Executive Programme Funds) can be expected
to assist new and innovative developments in this area, the Committee has a
particular concern that the Executive should quickly progress its key concern
to prevent social exclusion from becoming embedded within Northern Ireland society.
4. Again, the Committee notes that there is some scope for additional capacity
in terms of funding which will enable 200 additional Higher Education places.
This is far short of the Committee's identified target, and short of the number
of places needed if we are to stem the flow of some 35% of the age cohort which
leaves Northern Ireland at the school leaving stage, to undertake university
study elsewhere. The Committee is also concerned that only half of the additional
FE places required (500 extra places, in place of the 1,000 which the Minister
had sought) can be provided within resources allocated.
5. The Committee notes that funding is available to continue the existing student
support and loans schemes, but is concerned that additional funding for student
support has not yet been agreed for the academic year 2001/02. This is an area
closely linked to the crucial need to provide 2,000-4,000 additional places,
(over and above those already announced for 1999-2004) which the Committee identified
as key to stemming the 35% outflow of young students, and to support our future
economic and social prosperity. We urge the Executive to give high priority
to the funding of these additional places, and accompanying student support
arrangements which will widen access.
6. We advised the Minister that we were concerned at the lack of funding for
disabled access at education and training establishments. This is a moral as
well as a statutory imperative, and inseparable from any action plan for education
and training for disabled people (which is a priority action specified in the
Programme for Government).
7. The Committee has asked the Minister for a full explanation of the terms
of the transfer of responsibility for the Welfare to Work Programme. We were
surprised and in some ways pleased to learn of the transfer of responsibility
to the Executive, particularly as the Committee has taken evidence on, and contributed
most actively through debate in plenary, and dialogue and correspondence with
the Minister, to developing New Deal policies best fitted to Northern Ireland's
needs. We wish to know (and perhaps this is an issue for the Minister of Finance
and Personnel) how the ringfencing arrangements translate within the transferred
arrangements; how carryover applies; the amounts granted for next year and successive
years; and any technical problems which have been encountered.
8. We expect the Statutory Committees of the Assembly to have a key role as
regards public scrutiny and accountability, although has yet these processes
are evolving. We expect to take an active role in monitoring delivery of outcomes
against targets set in the Programme for Government. As we have said in our
commentary on the Programme for Government, we look to the Public Service Agreement
to clarify some of the Programme's objectives and targets. For example, the
question has been raised whether the targets for higher and further education
and vocational training are ambitious enough, given the changing state of the
market for skilled people. In our scrutiny of the delivery of the Programme
for Government, in the future, we will wish to return to this point. At this
stage we examine the rationale for the targets. We will also wish to examine
how and whether they have been met, and whether, given the benefit of hindsight,
they were set at the right level. We will wish to find out what has been "bought"
for the £12m investment this year, £19.6m in 2001/02, in Further
Education capital; and how a year on year increase of over £4m in spending
on central administration and miscellaneous services has helped deliver DHFETE's
priorities in the Programme for Government.
9. We also seek assurance on how we may engage our powers and duties in relation
to the 5 Executive Funds, to which the draft Programme proposes to allocate
an increasing proportion of the resources under its command - reaching £200m
by 2003/04. What are the specific arrangements for Assembly involvement in the
development and scrutiny of these Funds, which, by their very nature, will not
fall within the remit of just one Department?
Concluding Remarks
We hope that, together with our views on the Programme for Government which
accompany our comments and queries on the Executive's budget proposals for 2001/02,
this submission will help produce an agreed budget statement. We look forward
to clarification of the issues raised, which we will use to assist us in our
policy development and scrutiny role.
ANNEX 1
SUBMISSION FROM COMMITTEE FOR HIGHER AND FURTHER
EDUCATION, TRAINING AND EMPLOYMENT COMMITTEE:
THE EXECUTIVE'S DRAFT PROGRAMME FOR GOVERNMENT
"OCTOBER 2000" - CHAPTER 4, INVESTING IN EDUCATION AND
SKILLS.
1. This short annex provides a sequential commentary on chapter 4 of the draft
Programme for Government published by the Northern Ireland Executive in October
2000.
2. It should be read in conjunction with the Committee's general report on the
Programme for Government and Public Expenditure Plans 2001/02, submitted in November
2000 to the Northern Ireland Assembly Committee for Finance and Personnel
.
3. Commentary on Chapter 4.
3.1 We support the important points made in this paragraph, concerning the individual
and societal role of education and training. We would like to see more emphasis,
since this chapter is set in the context of the overall Programme for Government,
on the strength of the people resource within our society. We propose an insertion
along the following lines:
"People are the most valuable resource within our society. Their energy
and skills will build a new society and a new economy. We believe in the right
of everyone in our society to high-quality, relevant education and training,
appropriate to their needs and abilities, which will equip them to play a full
role in society and the economy. We believe education opens new opportunities
for the individual, and that each individual has a basic right to expect high-quality
education and training. It is essential that we equip our people, and particularly
our young people who will build the society of the future, with the confidence,
abilities and values to live their lives to the full and create a stronger, peaceful
society. Education and training have a central role to play in our Programme
for Government."
3.2 We recommend that, in the highlighted box section, you include a supporting
reference to the role of education and training as a motor of the economy - as
a separate bullet point.
3.3 As we mentioned in the main response, we would wish to see references to
quality and excellence included in the contextual overview, and running as a
strand consistently throughout the priorities and actions identified.
3.4 We note that a number of the actions at paragraph 4.2 do not have specific
targets attached. We look forward to seeing these in the supporting PSA.
3.5 It is perhaps a minor point, but the conjunction of libraries and agricultural
colleges may be potentially confusing. We believe that libraries are an important
resource in promoting social inclusion and access to education and training resources.
3.6 It might be helpful at paragraph 4.3 to insert a cross reference to the explanation
of the "digital divide" (page 81 of the draft).
3.7 Again the Committee looks forward to seeing the sometimes non-specific actions
outlined under 4.3, iterated into a clearer set of targets, by means of the PSA.
These should be specific, measurable, achievable, realistic and time bounded.
3.8 The last bullet point on page 39 - we would like to see this as "Take
early decisions to help students in the light of the outcome of the Student Support
Review."
3.9 First bullet point, page 40 - investment in FE staff per se will not necessarily
have a direct and immediate impact on examination performance. The target itself
is perhaps ambiguous in interpretation - does it refer to increasing numbers
of students, or increasing pass rates within consistent numbers?
3.10 The second last bullet point at 4.3 appears to overlook corporate innovation.
Perhaps there is a need to explain what is intended here.
3.11 Paragraph 4.4 - We considered that the introductory reference to life-long
learning needed to be discursive, in order to draw out all the aspects of individual
and societal development which are implied.
3.12 The actions under 4.4 are somewhat non-specific. For example, the first
bullet point does not specify to what standard libraries' technology will be
developed. However, we note that the second bullet point is very specific and
reads well.
3.13 We considered that it would be appropriate to include, either at paragraph
4.3 or at paragraph 4.4, references to the desirability of a leapfrog advance
in IT, and the possibility of learning from the Republic of Ireland/RTC experience.
3.14 On the 4th bullet point under paragraph 4.4 on the development of a system
of lecturer exchange between universities in Northern Ireland and the Republic
of Ireland, we would like to see this broadened to include the rest of the United
Kingdom, and indeed, internationally, as appropriate.
3.15 Again, we look forward to the specific targets which will be set in the
Programme for Government, which will enable us to scrutinise the progress in
advancing the actions set out at paragraph 4.5.
Esmond Birnie
Dr Esmond Birnie
Chairman of Committee
9 November 2000
Minutes of 9 November 2000, section 5 para1
Minutes of 16 November 2000, section 1, para
1.
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