While the pandemic and its impact on education has raised various conversations about the future of GCSEs, another important debate is rumbling on in the world of further education - the future of the whole range of level 2 (and below) qualifications. With the government proposing reforms for a “simpler” more streamlined system, the call for evidence for post-16 study at level 2 and below closed last weekend - but the debate is not over.

Certainly, the Department for Education’s proposal to streamline and simplify the FE system and create more parity with the academic system is a sensible one. Currently, not all of the level 2 and below qualifications are high quality; there is a baffling array of very similar qualifications available that mean there are often no recognisable quality “brands” available, and many have such low take-up, they are close to obsolete.

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But as much as change is needed, unless this is done properly, and with the full collaboration of those in the FE sector - who understand the qualifications, and the people and businesses they serve - we could well be throwing the baby out with the bathwater. That’s why we’ve published a new report considering the impact of a government review of level 2 and below qualifications for which we interviewed key stakeholders from the further education sector to get their opinion on the proposed changes, ensuring their voices can be clearly heard in this debate.

A lifeline for vulnerable young people

One key finding of our report is that the review of level 2 and below qualifications fails to consider the full value of these qualifications in helping to create a level playing field for those who leave full-time education without basic GCSE qualifications.

Whether due to serious life challenges such as illness or disability, having caring responsibilities, struggling with the school environment or other circumstances that prevent people from achieving at school, many young people leave without GCSE or equivalent qualifications.

In fact, in 2019 more than a third of school leavers did not achieve a “pass grade” 4 (equivalent to C grade) in their GCSE English and maths. As a consequence, despite young people now spending more time in education, thousands still leave school without the essential qualifications that would give them access to meaningful jobs and careers.

And for these individuals, level 2 qualifications are especially valuable for unlocking access to employment.

Indeed, for many decades, level 2 and below qualifications have provided people with basic workplace skills as well as critical core skills such as literacy, numeracy and digital skills, and have formed an essential springboard to further education such as level 3 or degree courses.

Crucially, level 2 and entry-level qualifications have provided many people with the opportunity to specialise in particular industries - such as construction, transport, childcare, hospitality and catering - where core knowledge at level 2 is essential to starting a career. In these cases, level 2 acts as a passport to participation, providing people with the bedrock industry-specific skills needed for careers in areas as diverse as rail and hairdressing. And it’s not just younger learners who benefit from these introductory courses; they’re also a key stepping stone for adult learners who are looking to switch careers and start afresh.

With certain groups of people and industries reliant on these entry-level qualifications, it’s crucial that those who understand the issues at hand are consulted. If not, the proposed revisions to level 2 and below qualifications could risk kicking away the ladder from large groups of people in society - including some of the most vulnerable.

Not only could this impact chances for social mobility, and stymie industries’ talent pipelines as they see skills deficits form at entry level, but if alternative options at level 2 were taken away, we could also see a worrying increase in young people dropping out of full-time education - and a resulting rise in numbers of young people not in education, employment or training (Neet).

In addition, with the current review of level 2 qualifications putting more of an emphasis on full-time courses, there is also a risk that this could exclude adult learners - who may struggle to commit to a full-time course due to other responsibilities, such as caregiving. This is particularly problematic in the current environment, as redundancies soar and reskilling will be critical for many adults looking to move into a new career.

To ensure that the eventual reforms to post-16 education don’t harm the chances of the many learners who depend on these qualifications, we’ve outlined a series of recommendations in our report. As well as calling for these qualifications to be quality checked, consolidated and made to be better quality, we’re asking government to ensure that any approach to rewriting post-16 education is more nuanced, providing opportunities for people to progress, retrain or get a “second chance” at all ages and stages of their lives.

Ultimately, however, while we may need our system to be simple, people’s lives are not so straightforward. To ensure that we are inclusive and give everyone the chance to gain valuable skills and access meaningful jobs, we must consider the realities of the lives of learners of all ages and create more flexible, part-time and digital learning solutions that will help to support all learners - period.

While debate over the future of level 2 and below qualifications continues, we need to keep on talking, and listen to those who understand the people and businesses whose futures hang in the balance.

David Phillips is managing director of City & Guilds and ILM