Are Functional Skills Qualifications killing apprenticeship completions?

The Annual Apprenticeship Conference hosted over 1,700 delegates this week, with many topics high on the agenda. One that jumped out was the challenge in delivering Functional Skills. Providers highlighted falling pass rates, a lack of contextualisation and insufficient funding as their main causes for concern.

Prior to the conference, we know the Ofqual review of English and maths FSQs also stimulated debate across the sector.

2019 reforms and pass rates

So, what’s going on? The sector is raising concern about the performance of the FSQ suite since the qualifications were reformed in 2019, and the ‘bedding in’ phase that followed against the backdrop of a global pandemic. Ofqual’s stance, in their review, is that “the level of demand in the reformed assessments appears to be appropriate” but many providers have noted challenges maintaining their pre-reform pass rates, particularly in maths.

Most FSQ awarding organisations report their results statistics publicly.  We’ve collected the data for four of them and we can see that pass rates on maths are behind English in the data reported for 2022/23, with an average of 45% pass rate in maths and 63% for English.  

Guided learning hours, content and funding

Prior to the 2019 reform, FSQs were 45 guided learning hours.  In 2019, Government increased this to 55 hours, but that was not matched by a proportionate increase in funding. Conference delegates were quick to note that funding had not materially increased for 10 years.

Despite Government providing a funding increase of 54% from £471 to £724 for all new starters in January 2024, many at the conference say it’s not enough and still doesn’t cover the cost of delivery.

The 2019 reform also broadened subject content for maths with elements of the original level 2 content reclassified and moved to the level 1 specification; including pie charts and probability. Providers at the conference referenced that in comparison to the legacy qualification, the new maths assessment felt particularly more challenging. One delegate highlighted the lack of meaningful contexts for their apprentices, while employers suggested functional skills could be more usefully integrated into the apprenticeship standard itself.

Impact of the pandemic on learning and outcomes

The reformed FSQs launched in September 2019, so providers will have led some apprentices through the new assessments before lockdown in March 2020.

During academic year 2019/2020, FSQs were awarded ‘Centre Assessed Grades’ (CAGs) as part of the alternative arrangements approved by Ofqual, to enable learners to be assessed by their tutors, quality assured by the awarding organisation, and therefore progress into the next stages of their learning. At the same time, awarding organisations were investigating the possibility of remote invigilation – the FSQs presented a perfect opportunity to explore this, with many awarding organisations already delivering FSQs using onscreen assessment.

The regulator welcomed moves to support learners to access assessment which opened the door for remote invigilation of FSQs.  8/10 awarding organisations went on to implement this approach at the time.

In academic year 2020/2021, public health guidance changed and stated that remote assessment could now take place. Given the shorter ‘on-demand’ assessment of FSQs, this meant Teacher Assessed Grades (TAGs) could now only apply in exceptional circumstances.

During this time, alternative assessment arrangements at GCSE-level caused an increase in learners achieving the required grade 3 on their GCSE English and maths. On the one hand, this meant fewer learners moved onto the FSQs or needed to resit GCSE (a condition of funding requirement to achieve at level 2). On the other, it was less able learners who were entering onto the FSQs, which for a time appeared to explain the lower overall pass rates.

Why have pass rates not improved post-pandemic?

The pandemic may have masked the impact of the reformed FSQs, with more learners achieving level 2 due to the alternative arrangements that were in place. But what’s being shared loud and clear from providers at the Annual Apprenticeship Conference is that reformed FSQs are too hard, too abstract, and too underfunded to make any impact. Delegates noted that many apprentices will have spent more than 11 years in education without achieving the level 2. In their view, expectations for such learners to achieve are just too high and only stop learners from completing their apprenticeships and moving on.

What can be done?

It’s clear that apprentices and providers need more support, and that funding plays an important role in making a difference.  What is also clear from the event is that there are opportunities for awarding organisations to engage with learners, apprentices and providers on their experiences and the potential for more support. Primarily this could be to reconsider the contexts used in assessment and diagnostics to build learner confidence through their learning and apprenticeship journey. Employers insist that level 2 literacy and numeracy are critical for their apprentices. That’s why it’s vital that the whole sector finds a way forward to avoid more apprentices being held back by these assessments. This starts by working with providers to ensure assessments feel connected to the occupational standard or the apprenticeship experience.

MH&A supports awarding organisations to grow; leveraging deep expertise and experience in the sector and a commitment to exceptional outcomes for clients.

Timeline

2006 - In 2006, Government set out a programme of skills reforms, including the development of functional skills qualifications in English, mathematics and ICT. These new qualifications were to replace the existing key and basic skills qualifications and were also made part of apprenticeships and the new diplomas.

2007-10 – FSQs launch through pilot phases.

2014 – Condition of funding introduced, requiring learners who achieved a grade D to resit the GCSE, and for those who had not achieved a grade D to be enrolled on an approved English or maths qualification.

2015 - Thematic review of FS, research showed less than half of employers recognised FS.

2015 - Decision by Government to reform Functional Skills.

2017 - Consultation on reform of Functional Skills.

2018 - DfE created new subject content in published March 2018.

2019 – FE News reports English and maths GCSE resit policy success in light of condition of funding rules.

2019 – Reformed FSQs launch.

2020 – Centre Assessment Grades (CAGs) were permitted for FSQs.

2021 – FSQs were considered as short courses, that could be assessed on demand and in line with public health guidance, therefore Teacher Assessed Grades (TAGs) offered only in exceptional circumstances where testing could not safely take place.

2021 – ‘More than half a million FSQs taken despite pandemic’ with 6000 ‘TAGs’ awarded.

2021 – DfE removes the English and maths exit requirement from T Levels, citing the reason for the move as it “may have presented a barrier for some students”.

2022 – AOC English and maths survey: ‘Many colleges highlight concerns regarding reformed Functional Skills and whether Level 1 and Level 2 maths in particular are fit for purpose’.

2022 – Ofqual evaluates the reforms of FSQs.

2024 – Ofqual releases their Review of the assessment of FSQs.

2024 – AELP release research and recommendations for FSQs.