Communities and Culture Committee Inquiry: - Funding of the Voluntary Sector - Response to the call for evidence
NIACE Dysgu Cymru

Richard Spear, Director

National Institute of Adult Continuing Education (NIACE) Dysgu Cymru

NIACE Dysgu Cymru
3rd Floor
35 Cathedral Road
Cardiff
CF11 9HB

Tel: +44 (0)29 20370900
Fax: +44 (0)29 20370909
Email: cerys.furlong@niacedc.org.uk

Introduction

About NIACE

1.  The National Institute of Adult Continuing Education (NIACE) is the national, independent organisation for adult learning in England and Wales.  As a registered charity, founded in 1921, NIACE both represents and advances the interests of all adult learners and potential learners - especially those who have benefited least from education and training. NIACE aims to improve opportunities for adult learners across all sectors with a particular focus on those adults who have not had successful access to learning in their initial education.  

2.  NIACE Dysgu Cymru (NDC) conducts work in Wales under the umbrella of NIACE supported by a Management Group, which is elected by NIACE members in Wales. The membership of NDC comprises almost all further education colleges, all Local Authorities, most higher education institutions, individuals, Careers Wales, TUC, UfI and other representatives of a range of organisations whose focus is specifically on responding to the needs of adult learners. NDC works closely with partners across the voluntary sector.

General Comments:

3.  While NDC represents the interests of adult learners across all sectors, in this response we concentrate in the main, on issues affecting providers and learners in adult and community learning, as this forms the majority of the voluntary sectors’ involvement in the education of adults. While we use ACL to illustrate the issues affecting provision in the voluntary sector, many of the points we make are also applicable across the wider voluntary sector.

4.  As part of its review of adult and community learning in Wales, the Welsh Assembly Government (WAG) recently commissioned NIACE Dysgu Cymru to host a consultation event for practitioner partners within the Adult and Community Learning (ACL) sector which included a number of participants from the voluntary sector. In addition, NIACE Dysgu Cymru consulted with its Learners’ Network and facilitated a dialogue with users of its website. Many of the recommendations in this response have been informed by that process.

Complying with constraints or conditions placed on funding.

5.  Adult and Community Learning (ACL) contributes to the delivery of a wide range of WAG strategies and priorities across such departments as health, social services and culture as well as education. Whilst this demonstrates the broad and positive impact of ACL, it has led to a position whereby approaches risk fragmentation and the consequences of under-coordination.  As a result, ACL providers, including those in the voluntary sector, perceive unnecessary bureaucracy and duplication of processes, and have difficulty in their strategic planning. Providers within the ACL sector receiving funding from the WAG highlighted different:

• funding application processes (with different criteria);
• conditions of funding;
• monitoring arrangements and data collection systems; and
• funding periods.

6.  In addition to the perceived bureaucracy overload, differing funding criteria and periods make it particularly challenging for providers to develop and implement long-term strategies. In order to secure funding, which may seldom be available beyond an annual cycle, providers often have to stretch their mission statements to accommodate the latest initiative. It has also been reported that initiatives are developed on a cumulative basis, with new ones being added to old ones rather than replacing them, leading to 'initiative overload’.

7.  Many providers believe that individual funders are rarely cognisant of the broader impact of ACL, leading to a risk that decisions are made without a full understanding of the consequences. For example, a small cut in funding from one particular department, such as DCELLS, might make provision unviable and lead to negative and disproportionate consequences in terms of health or social regeneration outcomes.

8.  Furthermore, the benefits that accrue from ACL in terms of better health more vibrant and tolerant communities, and a rich and diverse culture, point towards more cross-departmental working.  We welcome the aims set out in Making the Connections and individual initiatives such as Connect4Cymru as well the development of cross departmental working such as the Strategy for Older People.  We believe however, that many WAG policies and strategies remain firmly located inside departmental 'silos’, and thus loses the value-added benefits which would lead from a cross-departmental and inter-departmental approach.

9.  Many providers, including in particular those in the voluntary sector, would welcome a review of funding arrangements in order to better recognise the informal elements of provision and the true costs associated with engaging hard-to-reach learners. It is well recognised that the voluntary sector often works in the most innovative ways, engaging the most excluded individuals in society. The importance of engaging non learners in first steps back into learning should not be underestimated, and the voluntary sector is well placed to deliver this activity. In relation adult education in particular, it is perceived that the WAG’s National Planning and Funding System (NPFS) had not been designed to accommodate easily the kind of small 'bite-sized’ learning activities characteristic of the informal learning provided by many voluntary sector organisations. In particular, it is believed that the time taken to set up community venues and the small class sizes are not well reflected in the Subject Area Weights applicable to ACL provision.

10.  Furthermore, there is a perception that many adult and community learning programmes attract insufficient Credit Equivalent Units (CEUs) due to the application of the CEU moderator to informal learning programmes. This has a significant effect on voluntary sector providers, some of whom are concerned that funding levels might be so low as to jeopardise employers’ ability to ensure the safety and security of staff working in challenging environments. Although it is acknowledged that the deprivation factor within the NPFS is meant to reflect some of the additional costs faced by ACL, it is felt that this factor:

• only contributes to shortfalls in 'core’ levels of funding;
• is often unfunded in reality as providers exceed their funded level of CEUs; and
• does not always deliver resources to the areas it is intended to reach.

11.  Finally in relation to funding available to individual learners, the Individual Learning Account (ILA) Programme is a potentially useful source of support. However, it is felt that the administrative arrangements should be reviewed to ensure they do not exclude ACL providers (including those in the voluntary sector) and their learners. More often than not, the first contact voluntary sector providers have with learners is on the day the course or activity begins. As such those who wish to take advantage of learning opportunities in the voluntary sector may not be able to secure funding (which they are entitled to) as they are required to apply for this up to six weeks before their course or activity starts.

12.  WAG’s emphasis on models of collaboration are widely supported by voluntary sector providers and learners.  However, partnership relationships take a significant amount of time and effort to establish and to maintain. Voluntary sector organisations also often lack the staff capacity to engage as fully or as effectively as they would like, not least because a large proportion of staff are part time. It is felt that the WAG should be more proactive in supporting and funding the development of collaborative activities and the sharing of good practice, and support the continuous professional development of staff in the voluntary sector.

13.  Furthermore, as providers across the voluntary and statutory sector increasingly move towards a regional planning model, it will be necessary to consider changes to the planning model which both encourage collaboration and fund the planned activity.

14.  It is also recognised that a universal fees policy would not be appropriate, as some providers have greater scope to charge fees than others. NIACE in England and Wales has long argued for a mixed economy in adult learning, as a fees policy that relies only on the public purse will never be sufficient. We favour a high-fee economy (as this will secure a higher volume of provision) but also a generous policy of fee remission for people unable to afford fees. Providers feel that there is a policy vacuum in this area and it was reported that the WAG needs to consider more fully the impact of fees on widening participation and collaboration.

Issues relating to the duration and timing of funding

15.  In addition to the above, and as previously outlined, differing funding criteria and periods make it particularly challenging for providers to develop and implement long-term strategies. Funding is seldom available beyond an annual cycle, and delays in securing funding (from year to year) can have a number of knock on effects, not least the leakage of experienced practitioners and other staff away from the voluntary sector.  

Other issues

16.  Significant learning provision for adults in the voluntary sector is underpinned by European Social Fund (ESF) funding, particularly in the area of widening participation and combating economic inactivity. NDC’s recent consultation with the ACL sector uncovered fears that the funding concerns described above may be compounded in future due to a perceived greater emphasis of the Convergence Programmes on employment-specific skills. The ESF in particular has been an important source of funding within the ACL sector for a number of years, underpinning much provision for adults. Although the importance of ACL to economic growth is recognised by the European Commission, there is significant concern across the sector that ACL related projects will be squeezed out of the ESF Convergence Programme. This concern is based on a widely held perception that WEFO will favour projects delivering vocationally-related qualifications. This is despite compelling evidence on the wider benefits of all types of learning (see www.learningbenefits.net).

17.  Furthermore, there is concern that too narrow an understanding of the learning needs of the most excluded and marginalised in society will lead to a devaluation of the type of ACL provided in the voluntary sector, despite its catalytic role in stimulating demand for all kinds of learning amongst such groups. If these perceptions are not addressed promptly, there is a danger that many ACL providers will wind-down their operations leading to a loss of expertise and capacity within the sector which might undermine the implementation of the WAG’s forthcoming strategy.

18.  Generally, NDC believes that the role of the voluntary sector could be more explicit across WAG department’s various strategies and operational plans. The voluntary sector plays an extremely important role, particularly in terms of recognising gaps in provision, (whether due to geographical location or lack of funding). It would also be helpful to outline clearly a position statement for the voluntary sector to assist with officials making the connectivity across departments to ensure consistency of delivery.

Recommendations:

NIACE Dysgu Cymru recommends that the inquiry highlights the important role of the voluntary sector, particularly in terms of recognising gaps in provision and its flexibility in responding to these.

NIACE Dysgu Cymru recommends that the inquiry outline clearly a position statement for the voluntary sector to assist officials with making the connectivity across departments to ensure consistency of delivery.

NIACE Dysgu Cymru recommends that the inquiry works with DCELLS to review the application of the NPFS to adult and community learning provision and introduces three-year indicative funding to promote more effective planning by providers, including those in the voluntary sector. Further work needs to be undertaken to increase understanding of the NPFS.

NIACE Dysgu Cymru recommends that the inquiry reviews the appropriateness of current learner support arrangements to provision in the voluntary sector.

NIACE Dysgu Cymru recommends that the inquiry works with all WAG departments to review the funding and planning arrangements improve coherence, efficiency and effectiveness.

NIACE Dysgu Cymru recommends that the inquiry encourages all WAG departments to recognise the full cost of delivery of activity, particularly activity based in the community.