Adult learning and the UK election: (2) the Labour Party

At the time of writing, the Labour Party looks set to come second in the election. If so, it will form the main opposition to the government, where its thinking on lifelong learning will inevitably have an impact on public debate, and will continue to develop in opposition. And Labour is still a major force in local and regional government, as well as forming the largest single party in Wales. So its ideas on lifelong learning matter.

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I’ve already summarised and criticised the Conservatives’ ideas on adult learning in a previous post. I’ll turn my attention to the Liberal Democrats and Greens in the next few days; UKIP can safely be ignored, as its manifesto says nothing about post-school education other than to call for lower student numbers in higher education and to propose a German-style (ironically) of dual system for apprentice training.

Like the Conservatives, Labour is using the manifesto to set out its broad industrial strategy. Labour’s manifesto says little directly about the role of skills in industrial strategy, other than proposing that public sector procurement should be used to leverage high employment standards, including providing training. Rightly, in my view, their industrial strategy focuses on growing the number of high value jobs, and thus increasing the demand for skills.

Skills supply is dealt with mainly in the context of Labour’s proposals for a National Education Service. What exactly is ‘National’ about it is unclear; Labour evidently intends not to remove education from the devolved administrations, but the manifesto underplays the fact that this would be a ‘National (English) Education Service’.

While this Service will somehow be ‘unified’, the manifesto does not suggest abolishing university autonomy or reducing the role of local government, and it does suggest devolving skills budgets to city regions, so at the moment it is completely unclear to me how and in what sense this will be a ‘National’ service, comparable to the NHS.

Labour’s plans for an NES have huge financial implications: the Service, it says, will ‘move towards cradle-to-grave learning that is free at the point of use’, incorporating ‘all forms of education, from early years through to adult education’.

Over two pages are devoted to a chapter on Skills. On further education, the manifesto calls for an end to constant structural change in the sector, and proposes investing in the sector through such measures as rebalancing the funding allocations between colleges and schools sixth forms, restoring Educational Maintenance Allowances, replacing tuition fees with a direct grant, and requiring all FE teaching staff to have a teaching qualification. It also proposes to restore cuts to UnionLearn, and to establish a Commission on Lifelong Learning tasked with integrating further and higher education.

On the whole this sounds like an attractive package, but there are several unanswered questions. Leaving aside the lack of clarity over the cost of these proposals, it is unclear who might be covered by the requirement to have a teaching qualification (what about part-time staff, for example?), and the rather general idea of ‘integrating further and higher education’ could mean anything from encouragement for local collaborative arrangements through to a fully-fledged tertiary system.

Most of the proposals for apprenticeships seem eminently sensible, and indeed are not a million miles away from Conservative thinking. Shifting the emphasis from recruitment targets to achievement at Level 3 is consistent with the aim of a high skills workforce. The idea of targets for ‘people with disabilities, care-leavers and veterans’ is worthwhile, though they will raise concerns about box-ticking and bureaucracy. And some will explode with fury over the very idea of incentives for large employers to over-train numbers of apprentices to fill skills gaps in the supply chain and the wider sector.

So far as higher education specifically is concerned, the manifesto limits itself to proposing free tuition and the reintroduction of maintenance grants. While this may be electorally popular, particularly among the better educated young voters, free tuition in particularly is highly socially regressive, especially as in England fees are not paid up front, and their repayment is means-tested. Nor is it clear how these measures will apply to part-time and distance students.

As the Learning and Work Institute rightly points out, the absence of any discussion of work insertion programmes for unemployed people is a massive gap, even allowing for the manifesto’s emphasis on the creation of good work: strikingly, neither the word ‘unemployed’ or ‘unemployment’ appear even once.

Nevertheless, this manifesto suggests that someone in Labour’s inner circles has been thinking hard about further education and adult learning. As the Party is likely to spend at least another five years in opposition, there is much to build on in a manifesto that offers plenty of encouragement for those of us involved in adult learning.

The Times are Out of Joint: Chrononormativity and the normal age of learning

The word ‘chrononormativity’ refers to the way in which our experiences follow patterns over time in conformity with normative frameworks. Some of these patterns are pretty obvious: for example, there are age-defined periods of compulsory education, and the right to vote or marry, as well as responsibility for one’s own crimes, are defined by age. So, if it is that obvious, why bother to call it ‘chrononormativity’?
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Apprentices at Hornsey Rail Depot, by Lynne Featherstone

I’ve been thinking about this question since reading a new paper on older workers in the apprenticeship system. It’s a great paper which uses the idea of chrononormativity to show how oft-unexamined assumptions about age shape the everyday experiences and understandings of older workers, their trainers, and their managers, in ways that are not always helpful for the intended goals of the training programme.
The authors conclude that the concept of chrononromativity helped reveal the complex ways in which the age-training relationship works out, with older apprentices having to take the initiative in disrupting normalising assumptions, in order to negotiate relationships with (younger) peers and trainers. This is a familiar idea to those who have studied the lives of mature students in higher education, or in other age-bound educational settings such as schools. But if the idea is familiar, the word itself is relatively new.
The authors of the paper on older apprentices acknowledge its origins in queer theory, where Elizabeth Freeman used it in a 2010 book to explore the noncontinuously gendered life narratives of transsexuals. For Freeman, though, the term also has a wider relevance: people are controlled through the regulation of time. She defines chrononormativity as ‘the use of time to organize human bodies toward maximum productivity’. More broadly, ‘chronobiopolitics’ underpins various forms of social solidarity: ‘people are bound to one another, engrouped, made to feel coherently collective, through particular orchestrations of time’.
And this is where I think the concept might be helpful in understanding adult learning. It doesn’t point to anything particularly novel, as we have known for many years that most people see learning in adult life as a deviation from the norm: that is why advocates constantly remind people that learning isn’t just for the young. But it does draw attention to the way that our ideas of the ‘normal right time’ for things is patterned, and is tied in to other socio-cultural (and economic) patterns.
Less attractive, to me at any rate, is the way that Freeman uses the passive voice to describe chrononormativity and its effects. She talks about the way in which ‘people are made to feel’ something – and thus rules out the idea of anyone actually doing the making. The talks about ‘the use of time’ to enforce productivity – and not about who is doing the using, and in whose interests. This is also connected, I believe, to a tendency to ignore or underplay the agency of those involved – yet plenty of people do kick against the constraints of chrononormativity, adult learners included.
Stripped of these limitations, I see this idea as potentially relevant for our understanding of what it means to be ‘learning out of joint with the times’. When three of us wrote a paper drawing on our study of learning biographies, we found it useful to distinguish three representations in people’s accounts of time: chronological time, narrative time, and generational time.
I can see with hindsight that, athough the idea of chrononormativity was present in some of what we were saying, an explicit focus on the norms and practices associated with the concept might have sharpened our discussion of all three representations. Or perhaps it would have annoyed readers without adding anything new.
Potentially, I think the concept is worth exploring as we try to understand people’s experiences of learning ‘out of joint’, as well as improving the ways in which learning and its provision are managed. Whether it brings any novel insights, or simply underlines and helps clarify what we already know, remains to be seen.

Brexit and lifelong learning after the European Structural Funds

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Withdrawal from the European Union is going to be complicated, not least for the future of adult learning. I’ve written previously about the relationship between Brexit and adult learning, but so far I’ve not really given much thought to the role of the Structural Funds, and in particular the European Social Fund, which provides considerable financial support for adult learning across the UK.

For the period 2014-2020, the UK was allocated €3.5 billion. While it is co-ordinated by the Department of Work and Pensions, much of it is handed over to other bodies for allocation; these include the Skills Funding Agency, the Big Lottery Fund, and the Scottish Government. And while ESF funding is allocated to all regions of the UK, it is worth noting that it is disproportionately sizeable and important in Wales.

The UK’s operational plan for ESF spending between 2014 and 2020 is available online here. Its priority areas explicitly include “activities to inspire and encourage lifelong learning and the consequentbenefits of learning”, with a particular focus on funding provision that promotes employability but does not duplicate existing provision or substitute for private funding.

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From the DWP’s Operational Programme for ESF 2014-2020

The activities supported by the ESF in the UK are remarkably broad, encompassing the Learning and Work Institute’s Festival of Learning, a range of programmes for women workers, and the governmment’s traineeship and apprenticeship programmes. And, above all, ESF helps to fund literacy, numeracy and English learning.

As for the future, the current funding round doesn’t expire until 2020, so there is time to prepare. In thinking ahead to whatever succeeds the Structural Funds, we need to make certain that adult learning is not forgotten. Ideally, the successor programe(s) in Britain will be more flexible and more learner centred, and less bureaucratically cumbersome, than the ESF and ERDF.

As for the future of the Stuctural Funds without the UK, my best guess is that the design work for the 2021-2028 programme has already started in outline. The real work of developing a draft will therefore take place with no UK contribution; and it will finally be negotiated by a European Commission and European Parliament that will look very different in political complexion and priorities to the bodies that agreed the 2014-2020 programme. I’m inclined to doubt whether the post-2020 programme will, then, just be ‘more of the same’.

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Advertising learning: some German images

I spotted this bike walking to a craft ale bar after work one day. The bright red saddle cover is promoting the VHS (Volkshochschule, or local adult education service). Cycling is extremely popular in Cologne, as in most German cities, and is often supported by public transport companies as well as employers (for instance, I have access to a university bike for work). So a branded saddle cover is something that people are highly likely to use, though I wonder how much thought was given to the part of the anatomy that gets closest to the VHS message.

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Start now!

 

Here’s a bit of ‘knocking copy’ in a campaign recruiting apprentices. The poster, on a wall in the Bohemian suburb of Ehrenfeld, pokes fun at the way university graduates have to wait until their late 20s before they are earning, and hints that being a craftworker is a better option. Average study time in German higher education is long, with pupils on the academic track leaving school at 19, then spending at least four years studying for a Bachelor’s degree and at least two more working for a Master’s.

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“First salary at 29? I’ve got something better in mind”

 

I like this postcard, which I picked up when I went to see Eddie the Eagle. It was in a multiplex, with foreign language films dubbed into German (including Eddie), showing mss market movies. The card is published by the Federal Ministry of Education and Science, and while it provides plenty of space to write on, contact details are listed on the back.

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“You can’t choose your family. You can your continuing education”.

 

Next up, a punning key-ring. The reverse side says simply VHS, followed by the web-site.

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“My door-opener”

And last, a mini pack of gummi bears, a give-away for one of the many private university chains in Germany. Fresenius is one of the older private chains, and it now has outlets in eight German cities, including Cologne, and an outpost in New York City. I thought this pack of sweets (since eaten by my grand-daughter) was quite clever, as it manages to combine a light touch seriousness with a bit of fun.

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Nerve nourishment

 

The striking success of the German dual system

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An apprentice addressing strikers in Cologne

There’s a Warnstreik on today, and Cologne is full of striking Kindergarten teachers, social workers, firefighters, health workers and tram drivers. It’s all part of the regular round of negotiations over pay and conditions in the public services, with the union Verdi and the employers engaging in what may or may not be a tactical stand-off.

With the tram service cancelled, I’ve been working at home. At half past eleven, I thought I’d pop along to Heumarkt to buy an espresso and take a look at the union rally, which was large and good-natured. There was a small police presence down by the Rhein, with none of the forcible ‘kettling’ that you tend to see in Britain.

While most of the strikers were clearly people who had spent some time in their jobs, I was struck by the number of apprentices who were there, one of whom was invited to speak from the platform. He described the strike as important for Azubis (Auszubildende) not simply in terms of their pay but also the quality of their training, which he claimed was jeopardized by the employers’ refusal to negotiate.

I’ve a couple of comments to make on this. First, the union doesn’t just recruit apprentices but went out of its way to ensure that their voice was heard. Second, apprentices clearly feel themselves to be a part of their workforce, and they identify strongly with the service that they provide. Both of these factors – as well as their legal status as employees – help to shape their identity as members of an occupational group, in it for the long term.

Vocational education on parade: a microcosm of German’s dual system

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I’m currently living in Cologne, where I’m fortunate enough to have a visiting post at the university. My blog in the coming months will likely contain more pieces on German education than usual.

This time I want to write about Karneval, supposedly a way of marking the onset of Lent, but actually a massive celebration of everything Kölsch. The central features of Karneval are that five days of fancy dress, drinking, and parades. The parades range from local neighbourhood activities through to the four-hour march and ride by members of the Karneval associations (many of whom dress in eighteenth century military uniforms). In the middle comes the Schulzöch, or schools parade, involving secondary pupils and members of various local clubs, wearing home-made fancy dress.

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Among the 49 schools who paraded this year were the staff and pupils of Berufskolleg Ehrenfeld. The Berufskollege in the Land of Nordrhein-Westfalen are secondary level institutions who accept young people who have completed their ten years of compulsory education, most of whom will have an apprenticeship contract with a local employer, and leads to a formal examination and certificate on completion.

This represents a highly structured pathway into skilled employment. Pupils can expect a combination of college-based and work-based learning, with a mixture of vocational and general education. On conclusion they can, if they wish, move on to higher education, through a Fachhochschul (broadly, a technical university).

Let me take the role of baker, a trade which requires three years of workplace experience, combined with college instruction in work organisation, production techniques, and sales, as well as politics, social science, German, sport and health, communications, and religious studies. In short, the aim remains that of a well-trained baker with a rounded skillset.

From a UK perspective, two things stand out about this pattern. The first is the specialist nature of the Berufskolleg, which is defined as a school with a specific purpose; to our eyes, it would look like a form of streaming, in which kids are placed rigidly at age 16 on different pathways. Second, the highly structured combination of academic and workplace learning over three years, including continuing experiences of general education, is a long way from the mishmash of programmes of different lengths and types that are branded as apprenticeships in the UK.

The German system has its critics, but it is generally held to be a gold standard against which other European transitions are judged. Naturally I can’t speak for the quality of the training and education at the Berufskolleg Ehrenfeld. What I can say is that the bread in Ehrenfeld is, as almost everywhere in Germany, wonderful.

Is Germany’s dual system faltering?

German apprenticeships have long served as a global model for vocational training systems. The German system has an enviable reputation for combining quality with volume, and for balancing a continued academic education with systematic on-the-job learning. It remains a source of pride nationally, and continues to attract a steady flow of foreign visitors in search of a solution to their own skills problems.

Of course, no vocational training system is perfect, particularly when seen from close up. At different times the system has been criticised for embedding gender divisions, and its rigidity is often seen as incompatible with the shift towards more flexible regimes of labour. Some have cautiously expressed concerns over reported variations between standards in the different Länder.

What is causing particular concern within Germany at the moment is that apprenticeships appear to be losing their attraction to school-leavers. In 2014, German employers signed on 522,200 new apprentices – the lowest figure since unification in 1990, representing a fall of over 40,000 young people. And while some of this may be caused by demographic changes, this is not the only explanation.bibb

What many foreign observers often miss, or ignore, is that well-qualified school leavers in Germany often entered an apprenticeship in the past, but now prefer to enter higher education. . As I’ve said before, the point at which the number of undergraduates overtakes the number of apprentices is bound to have symbolic significance in a country that has made its apprenticeship system a gold standard.

Adapting the dual system is complex and can be slow. One of the system’s great strengths is that it is supported actively and well understood by a range of stakeholders – employers and their associations, different levels of government, trade unions, parents and the wider public. But involving all these stakeholders in reform is unlikely to produce quick and easy solutions, and so it has proven.

Several measures have nonetheless been agreed. Part-time pathways were opened up in 2005, but ten years on they still have the temporary-sounding status of a project. Apprentices are being recruited in other EU member states, particularly those with high youth unemployment like Portugal and Spain. Selected school-leavers can combine work-based-learning with a higher education qualification, a pattern known as “duales Studium”. The government is urging employers to lower the entry qualifications for apprenticeship contracts, and is funding coaching to help make up the gap.

There are also discussions over opening the scheme up to refugees, though this is likely to prove politically controversial. And so far the question of adult entry into apprenticeships remains off the agenda – in contrast to the UK, of course.

I dounbt whether the measures taken so far are enough to stem what has been a steady and long-term process of erosion. The remorseless rise in higher education participation rates is a global phenomenon, and its effects on the German apprenticeship system are unlikely to diminish any time soon.