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Evaluation of Increased Flexibility for 14 to 16 Year Olds Programme: Outcomes for the Second Cohort (2006)

A report by Golden, S., O'Donnell, L., Benton, T. and Rudd, P., National Foundation for Educational Research, commissioned by the Department for Education and Skills: Research Report no. 786

This report follows from the evaluation of the first cohort who participated in the Increased Flexibility for 14 to 16 Year Olds Programme (IFP), introduced in 2002 by the UK Department for Education and Skills (DfES) to 'create enhanced vocational and work-related learning opportunities for 14-16 year olds of all abilities who can benefit most', in response to the 2002 Green Paper: 14-19: extending opportunities, raising standards.  The first evaluation found that the IFP had met its objectives and that students who took NVQs and GNVQs gained more points than expected. The programme had enabled schools to establish better partnerships with institutions and external providers, leading to more frequent contact and formal mechanisms for sharing information.

The evaluation of the second cohort uses similar research methods to the first study: surveys of 14,500 students in 496 schools and 100 IFP partnerships. Details of pupils' achievements and post-16 destinations were obtained from schools and the National Pupil Database, allowing for comparison with non-participating students. Information was available about the destinations of 3789 individuals, taken to be a representative sample. Multi-level modelling techniques enabled a range of variables to be controlled for, although some affecting factors could not be accounted for, such as student motivation.

Findings on attainment were similar to those of the first cohort:

• The majority of IFP students achieved their qualifications and gained more points (three points more) overall than non-participating students, though again they scored less (four points fewer) on their eight highest grades. The Qualifications and Curriculum Authority points system is used (for example, a vocational GCSE at A* is worth 116 points, while a full intermediate GNVQ at distinction level is valued at 220 points). A possible reason for the difference in points gained is that IFP students had to complete a greater number of qualifications in their curricular time (10 or 11 GCSE equivalents, compared with an average of 9 GCSEs for students not participating in IFP). Attainment was associated with prior (Key Stage 3- KS3) attainment and results differed according to qualification type. Compared to similar students in schools not participating in IFP, students gained 43 points more for NVQs, 42 more for GNVQ (compared with 24 more points in the first cohort evaluation), 16 points fewer for other qualifications and 3 points fewer for vocational GCSEs. Once again, students with lower KS3 attainment gained more from their IFP participation. Unlike the first cohort, IFP students studying for GCSEs in vocational subjects achieved less well than non-IFP students taking similar qualifications.
• Female students, and those of Black heritage, who undertook GCSEs in vocational subjects through IFP gained significantly more points than similar students who were male, or were White (28 more points for both). The analysis also revealed that attainment in KS3 mathematics and science was associated with achievement of NVQs, while attainment in KS3 English was more strongly associated with vocational GCSEs and GNVQs, suggesting that somewhat different skills are being assessed for different qualifications.
• Discontinuation of the programme was noted as a specific concern in this evaluation- 15% of GNVQ and vocational GCSE pupils appeared to have discontinued their programme involvement before the end of Year 11, leading to lower KS4 attainment. Such students were shown to be more likely to have lower attainment, eligibility for free school meals or recognition for action on the register of Special Educational Needs and the authors recommend special consideration of the needs of this group, such as identifying them early in the programme and providing additional, targeted support.
• Also of particular note is evidence that IFP students studying qualifications other than NVQs, GVNQs or new GCSEs, such as BTEC courses, are less likely to continue their education after Year 11, also gaining 16 fewer points than similar students in the same school but not taking part in IFP. The authors suggest that this could be a signal for those involved in examination entry and curriculum provision for 14 to 16s to take extra care that students are entered for the appropriate course, as KS3 attainment was shown to be a less effective predictor of achievement in 'other' qualifications than in NVQs, GNVQs and GCSEs.
• The evaluation examines the proportion of students attaining the level 2 benchmark of 5 GCSEs at A*-C or equivalent. Of note, however, is that a significant proportion of IFP participants were taking level 1 (32%) or entry-level (6%) qualifications that could not contribute to the level 2 benchmark, and that, accounting for prior attainment, IFP students were slightly less likely from the outset to achieve the benchmark than the national average. Overall, 32% of IFP participants achieved level 2 compared to 57% of non-participating students. 21% of IFP participants achieved five A* to C passes at GCSE including English and mathematics, compared to 44% of non-participants. The authors suggest exploration of the link between IFP participation and lower level 2 attainment, particularly regarding English and mathematics, such as ensuring IFP participation does not take up time necessary in teaching or giving extra support in the core subjects.

The first cohort evaluation noted that shared teaching partnerships led to improved student outcomes. Although data on this was not available for the second evaluation, the findings suggested that teaching location was not a significant factor affecting attainment, which may reflect development of the programme following the lessons of the first cohort.  Similarly to the first cohort figure (90%), 87% of second cohort students progressed to further education or training, although students taking qualifications other than NVQs, GNVQs or GCSEs were shown to have a lower probability of progressing into post-16 learning than students taking these. However, the authors point out that it is not possible to be sure what these students would have opted for had it not been for their IFP participation and further research on the extent to which post-16 transitions are sustained is recommended.

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