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National Review of Assessment: Identification of the Learning and Support Needs of Young People

Chapter 1: Introduction

This report summarises research conducted on behalf of the Scottish Executive which aimed to review assessment tools and their use as part of the process of making provision for young people with learning and support needs as they move out of compulsory education. The research was conducted around Scotland and involved consultation with key agencies, including further education (FE) colleges, careers service companies, training providers, voluntary organisations, the Employment Service, and other relevant organisations with a Scottish-wide remit.

This chapter outlines the context for the research, discusses the definition of assessment, and describes the research methods. Chapter 2 describes the survey of Scottish FE colleges, and presents the questionnaire results in detail. Chapter 3 details the findings from an interview-based survey of careers service companies. Chapter 4 contains a summary of aspects of "good practice" identified both by practitioners in a range of agencies in three different areas of Scotland and from the research as a whole. Finally, Chapter 5 includes discussion of various issues raised by the research, as well as listing the research team's recommendations.

Background

The need for the research was identified in the Beattie Report ¹ which highlighted the major issue in assessment as being: '…how to promote action across all the agencies to address the factors that contribute to an effective process; and how to ensure that assessment leads to matching provision.'

The Beattie Committee took the view that effective assessment was the key to understanding the young person's learning and support needs at a time of transition.

'The needs may be tangible and quantifiable, such as literacy or numeracy or the need for a specific aid; or related to personal and social skills such as motivation, positive attitude and ability to work with others. These 2 types of learning need are now often described as "hard" and "soft" skills. Some level of competence and capability in both types of skills is necessary to enable young people to gain maximum benefit from learning. Indeed, for many young people, particularly those who have become disengaged from conventional education, it will only be through the development of the "soft" skills that they will begin to make progress in vocational and academic skills.' (Paragraph 7.2)

The Committee reviewed evidence from previous studies of assessment and identified a number of problems:

• 'Variations in practice between agencies, and even within agencies;
• Assessments which do not seek to identify all the potential barriers to learning e.g. social or financial problems, housing or health, inadequate personal or life skills;
• Lack of information from school to post-school providers i.e. career service companies, further education colleges, training providers; and lack of formal arrangements for transmission of information between agencies;
• Over-assessment i.e. young people are assessed and are re-assessed (for the same skills) by a series of agencies without sufficient recognition of progress;
• All agencies who could contribute to assessment are not involved (and vital information could be omitted);
• Lack of regular review and monitoring.' (Paragraph 7.3)

Three key issues 'to be addressed in developing an assessment framework' were identified as: ownership, information flow and confidentiality. The Beattie Committee recommended that participation and ownership by the young person should underpin assessment. However, the Committee also proposed that assessment should be realistic and conducted in a way that encouraged the young person to acknowledge difficulties. Bland assessment reports were described as 'unhelpful and potentially damaging' and over-optimistic reports could lead to failure and disillusion. Realistic assessment could be achieved by a combination of openness, collaboration between the young person and worker, and the use of both self-assessment and "objective" assessment by professionals. The Progress File, a development of the National Record of Achievement, was regarded as having the potential to encourage a participative approach to assessment but the Committee noted the need for staff training and encouragement for employers to see its value.

The Beattie Committee commented on the 'variable content and quality of information from school to post school providers.' A common approach was called for.

'We, therefore, recommend that there should be a Transition Form for all young people which contains up-to-date and accurate information (as far as possible) about achievements, goals and learning and support needs. The key elements should be:

• A common approach across all schools to recording and reporting of information and the use of a standard form containing core or minimum set of information;
• The information gathering should be part of an ongoing process, not a one-off exercise. It should link to, and draw on, information available within the Progress File;
• Strengths and achievements should be recorded as well as learning and support needs;
• The guidelines accompanying the form should contain guidance on confidentiality;
• There should be training for staff in the use of the recording and reporting system.' (Paragraph 7.25)

The Committee found evidence that concerns for confidentiality could be used as a barrier to the effective flow of information between agencies. There were legitimate concerns for safeguarding rights to privacy but access to relevant information about a young person's achievements, health and personal circumstances is required in order to provide appropriate support. The Committee suggested that involvement of young people in the process of assessment would help to 'develop confidence in the process' and recommended that: '…protocols for the transfer of information which set out specific arrangements for confidentiality' should be agreed by Area Strategy Groups.

Defining Assessment

The Beattie Committee defined the purpose of assessment as:

'To identify the type and level of learning and support needs, the abilities and the aspirations of the young person; to communicate assessment to the appropriate provider(s); and to draw up an action plan and set goals.' (Chapter 7, Appendix 1)

Implicit within this definition are certain assumptions, which require some elaboration. Firstly, assessment is a process and should not be confused with the use of any one particular assessment instrument. The process of assessment might logically include a range of methods of gathering relevant information, including tests, profiles, case conferences, reports and interviews. Secondly, assessment involves the sharing of sensitive information about a young person amongst those who have an interest in providing future support, training or employment. Thirdly, assessment is only relevant where the aim is to establish current competence, skill gaps and support needs, and there is a commitment to monitor, review and communicate progress.

According to the Assessment Matters website:

?Assessment has the potential to be a powerful positive force, helping to motivate individuals, raise self-esteem and increase confidence. The evidence gained from the assessment process can be used to persuade employers, colleges, etc. that an individual has the potential to do a particular job or to undertake training. Conversely assessment can be a stressful and demoralising experience if the process is not managed and delivered with a high level of professional skill ².'

The recent history of assessment of young people with learning and support needs in transition from school dates from the Further and Higher Education (Scotland) Act 1992, which placed certain obligations on further education colleges to co-operate in the future needs assessment (FNA) of young people with Records of Need in their last year of school and to make provision for the additional support of students with disabilities and learning difficulties. ³ The then Scottish Office Education Department (SOED) provided guidance to further education college principals in a series of circulars, including Circular FE 1/94, which specifically addressed the procedures for assessing needs and for drawing up student support plans. The close link between provision for special needs and effective guidance was highlighted. Colleges were expected to:

'Gather, generate and record information from the student and other sources and to make judgements based on that information through discussion with the student and other professionals. These judgements should also be recorded in a clear statement of educational goals and of individual support measures. These statements should be agreed with the student and recorded in a Personal Learning and Support Plan.' (Paragraph 3.2)

SOED Circular FE 3/93 also drew attention to the need to avoid repetition of assessment procedures and the need for collaboration between agencies.

A further issue which arises in relation to defining assessment, is the relationship between assessment of support requirements and the use of assessment in the context of education and training. The Beattie Committee, whist generally endorsing '…an output based system geared towards the achievement of a qualification…,' warns against a inflexible system of funding based on achievement of awards. Referring to the Skillseekers' programme they note that:

'A significant number of those who are "endorsed" Skillseekers need support to improve their literacy and numeracy skills and their personal skills e.g. self-confidence, motivation and reliability, before they can pursue a vocational qualification or meet the requirements of an employer. The probability is that some of these young people will also need help with housing, health issues (possibly drug or alcohol problems), social, emotional and behavioural problems. They are also likely to have financial difficulties.' (Paragraph 10.4)

Finally, where assessment involves the use of assessment instruments or tests, numerous issues are raised. These include the suitability of individual instruments, the distinction between commercially published tests and locally-devised materials, the use of the results, competence and training of testers and the confidence of young people and their families in the procedures and outcomes.

The issues referred to in this brief account of the context of assessment both influenced the design of the study and featured in the responses to the surveys and in the interviews with key practitioners.

The context

The research identified a number of changes in progress, or expected, that made the identification of the learning and support needs of young people a very relevant issue.

• Firstly, Careers Service Companies (CSCs) had been asked to take the lead in drawing together local partners in a bid for funds as part of the inclusiveness strategy. This had involved considering the role and nature of assessment, particularly with respect to those with the most needs. Approaches to assessment in inclusiveness proposals would be affected in many areas by the conclusions of this research and by the contents of the digest of assessment tools (a separate document to this).
• Secondly, the Enterprise Networks were working on a new Special Training Needs (STN) strategy for supporting young people and providers. At the time of writing this is still under active consideration.
• Further Education colleges in Scotland and the SFEU had formed a working party to develop standardised documentation for Personal Learning and Support Plans for students.
• Educational psychologists were considering ways in which they might respond to the extension of the age range of their clients.
• The Employment Service was developing new approaches to assessment and new initial assessment tools for basic skills to match changes in provision.
• Lastly, the planning for the launch of Careers Scotland in April 2002 was underway. What would be the priorities for the new organisation? How would those priorities be identified? The accurate and systematic identification of need, across the full range of potential clients, would be necessary.

The Present Study

The research described here was carried out across Scotland between March and June 2001. The work involved two distinct aspects: firstly, the compilation of a digest of assessment tools; and secondly a field study of assessment practice in agencies.

The research for the digest involved mainly desk-based activity, though there was also significant consultation with test publishers and users. Tests were identified from catalogues of instruments, review reports and publications, and also from discussions with agencies, from members of the project advisory committee and from the field work itself. The specific focus was on the assessment of "soft" skills and employability. However, the search for assessment instruments was relatively broadly based and also included tests of core skills, independent living skills, career development needs, personal planning and profiling, and the identification of support needs.

The digest, available as a separate document, is intended as a resource for practitioners, and includes details of widely available tools which focus on the assessment of employability skills and "soft" skills. It includes a description of the tool, identifying what it measures, which clients it should be used with, the conditions in which it can be administered, the form that the evidence takes, the training required to administer it, and details of costs and equipment requirements.

The field study included separate, detailed surveys of practice and the views of practitioners in further education colleges and careers service companies. Representatives of the Employment Service, the voluntary sector and other organisations at a Scottish level were contacted. The research also involved detailed case studies of three separate geographical locations in which the researchers examined assessment practice within and across the key agencies. In each locality, the research team sought information about assessment practices within and between agencies. This work involved the study of documentation and case records, and a comprehensive programme of interviewing with a range of key practitioners and a small sample of young people. The research ensured that the views of young people themselves were clearly identified through a further two case studies which focused primarily on young people's perceptions and experiences of assessment.

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