Theological Training in
England and the impact of
the Equivalent and Lower
Qualifications Policy
(ELQ)
B74/09
Agenda item 16
2 July 2009
Issue
1.
An extension to the temporary postponement of the implementation of the policy on
equivalent and lower qualifications (ELQs) policy in theology training for the ministry in order
to allow for a robust and sustainable solution to be found.
Recommendation(s)
2.
The Board is invited to:
a.
Note the emerging recommendations of the consultants’ report commissioned by
HEFCE which maps current academic and funding relationships between theological
colleges and higher education institutions (HEIs).
b.
Note the work of Foundation Degree Forward (FDF) in supporting the sector in
bringing forward Foundation Degrees in theology.
c.
Note the range of successful employer co-funded awards made in this area of
provision.
d.
Agree a further one year postponement for the withdrawal of funding for those
students who are following an ELQ in theology to train for the ministry. This
postponement would not apply to those providers which have in the course of the year
taken forward co-funded or foundation degree awards in this area of provision.
Timing of Decision
3.
Decisions are required at this meeting to enable officers to approach the recently
formed Department for Business Innovation and Skills to request it to confirm its agreement to
the further one year postponement of the withdrawal of funds for those ELQ learners studying
theology to train for the ministry. Any grant changes resulting from the postponement will be
reflected in the October 2009 run.
Further Information
4.
From John Selby (0117 931 7416, [email protected]) , Yvonne Perry (0117 931
7343, [email protected]) or Fiona MacMillan (0117 931 7039, [email protected]).
Background
5.
Following the September 2007 instruction from the then Department for Innovation,
Universities and Skills (DIUS) to phase out funding that HEFCE currently provides to Higher
Education Institutions (HEIs) and Further Education Colleges (FECs) to teach students for a
qualification that is equivalent to, or lower than a qualification they have already received,
HEFCE entered into discussion with the Church of England regarding the impact of the policy
on training in theology for the ministry. A jointly signed report from HEFCE and the Bishop of
Norwich, Chairman of the Ministry Division Archbishops’ Council, was issued in March 2008 to
the then Minister of State for Lifelong Learning, Further and Higher Education which noted
that approximately 75 per cent of those in training for the ministry (ordinands) do so as
previous graduates, hence the impact of the ELQ policy was considerable. The report
represented the views not only of the Church of England but also its Ecumenical partners –
that is the United Reformed Church, the Baptist Church and the Methodist Church.
6.
The report raised concern at the potential increased costs for the training of ordinands
given the ELQ policy, and requested a postponement to the withdrawal of ELQ funding by one
year to allow time to explore ways of mitigating the impact of the ELQ policy on ministerial
education with the main stakeholders, that is HEFCE, the Ministry Training Division and the
ministerial training institutions. Further, the report recommended that during that year’s
postponement, discussions should be held with the stakeholder groups around the
development of an appropriate curriculum for foundation degrees and employer co-funded
awards for future ministerial development. In April 2008, DIUS, as it was then, exceptionally
granted a one year postponement to the withdrawal of funding for ELQ students studying
theology for the ministry. The Board confirmed the postponement in December 2008 by noting
the actions under delegated authority in B08/116e but also noted that this postponement
should only apply to the initial implementation of the policy but not delay the final completion
of the application of the policy to this area of work.
Discussion
7.
Following the announcement of the one year postponement, HEFCE commissioned
consultants to conduct a detailed analysis of the current academic and funding relationships
which exist between theological colleges and HEIs in England. We also commissioned
Foundation Degree Forward (FDF) to provide support for the development of foundation
degrees which would be a key component of the sustainable solution, since they are exempt
from the ELQ policy.
The work of the consultants
8.
The consultants’ analysis was conducted in three phases. During the first phase the
consultants undertook a series of visits to a range of theological colleges to begin to help
shape the content of a questionnaire to both providers and validating HEIs. The
questionnaires formed the second phase of the project and covered a range of points
including data requests on the number of learners, the levels and mode of provision and
sought to clarify where if Foundation Degrees were not part of the current offer, what plans
existed to develop provision in this area. The third phase comprised analysis of these data.
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9.
A steering group comprising the Ministry Training Division, HEFCE, Foundation Degree
Forward (FDF), and representatives from the training institutions and HEIs was formed to
direct the work of the consultants and to receive their final report. The steering group first met
in November 2008, and has met twice subsequently. The steering group is expecting to
receive the consultants’ final report towards the end of June.
10. The report will make a number of recommendations to HEFCE around providing
support for the development of foundation degrees and employer co-funded awards and
indeed requesting a further one year postponement to the withdrawal of funds for ELQ
learners. The report will also raise emerging points for consideration by the Ministry Training
Division as it takes forward its thinking in the development of ministerial training.
11. The report indicates that of the 25 institutions which responded five already operate
foundation degree programmes in this area. Of those responding which do not currently offer
a foundation degree, 10 noted that they intended to do so in the future with others having
already done some considerable work towards developing such programmes.
12. Taking forward the development of foundation degrees is a vital component in a
sustainable and robust solution to the impact of the ELQ policy in ministerial training and it is
for this reason that a further one year postponement to the withdrawal of ELQ funds be
granted in order for this area of work to be fully explored and a sustainable solution
developed.
Recommendation: The Board is invited to note the emerging recommendations of the
consultants’ report commissioned by HEFCE which maps current academic and
funding relationships between theological colleges and higher education institutions
(HEIs).
The role of Foundation Degree Forward (FDF)
13. In February 2009, FDF held a consultation event in London to which theological training
institutions and HEIs were invited. The event provided an opportunity for the representatives
of the theological colleges and their validating partners to hear more about the ELQ policy and
what it means for theological training for the ministry, to find out more about foundation
degrees and their role in addressing the impact of the policy, and to share experiences in
developing foundation degrees in theology.
14. The main outcome of the event was the identification of the need to establish a
mechanism for effectively supporting those course providers and HEIs that are either in the
process of reconfiguring programmes to introduce foundation degree programmes to form
part of the range of provision for ministry training in England.
15. To this end, FDF will provide support for this work and proposes the establishment of a
range of support mechanisms, including:
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a.
A JISC mail forum and discussion group to enable course providers and HEIs to
exchange information, pose and respond to questions, see and offer advice and
guidance
b.
Access to regionally based FdF staff, further foundation degree workshops, either
locally, regionally or nationally depending on demand
c.
A single point of contact for all participants and access to regionally based FdF
staff
Recommendation: The Board is invited to note the work of Foundation Degree Forward
(FDF) in supporting the sector in bringing forward Foundation Degrees in theology.
The development of co-funded awards
16. A second vital component to arriving at a sustainable and robust solution to the impact
of the ELQ ruling is the development of co-funded awards. There have been a number of
successful awards made to HEIs in the course of recent months where employer contributions
have been secured. These awards have been made to the University of Chichester, the
University of Gloucestershire, the University of Kent, the University of Cambridge and finally
the University of Leeds. The awards represent a total co-funded award of some 360 FTE from
2008-2012.
17. Given that the above awards have been made, and that the co-funded awards are
exempt from the ELQ policy, these institutions will no longer require the special exemption as
the general exemption applies.
Recommendation: The Board is invited to note the range of successful employer cofunded awards made in this area of provision.
18. A number of other HEIs are currently developing foundation degree or employer cofunded proposals, where for the most part the employer is the Church of England, and will be
wishing to make approaches to HEFCE. More time is required to allow these proposals to be
shaped. Granting a further one year postponement for the withdrawal of funding for those
institutions which have not yet developed a sustainable solution is therefore required.
Recommendation: The Board is invited to agree to a further one year postponement
for the withdrawal of funding for those students who are following an ELQ in theology
to train for the ministry. This postponement would not apply to those providers which
have in the course of the year taken forward co-funded or foundation degree awards
in this area of provision.
Financial implications
19. In October 2008 the Board confirmed the postponement of the implementation of the
ELQ policy for those students training for the ministry and we would expect that a further
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year's deferral to have financial implications of the same order. Given this, a further one year
postponement would result in increases in transitional funding for ELQs estimated to be in the
order of £50k for 2009-10, with more HEIs being affected in future years where the change to
transitional funding for ELQs is estimated to be approximately £390k for 2010-11, £390k for
2011-12, £300k for 2012-13 and £265k for 2013-14. These figures are based on 2005-06 data
and assume a one year deferral for all relevant institutions who have not been awarded cofunded ministry training places for 2009-10.
Risk implications
20. The ELQ policy represents a significant challenge to theological training for the ministry
in England as 75 per cent of ordinands already have first degree. A solution needs to be
found which is both sustainable and robust which meets the training need for the ministry
within the limitations of budget.
Sector impact assessment
21. A sector impact assessment has not been carried out for this specific area of work but
has been carried out for the full ELQ policy of which this is a part.
Public presentation
22. There is clear and considerable interest from both the sector and the Church in the
outcome of the request for a further postponement of the implementation of the ELQ policy in
this area of provision. A negative outcome would present serious and immediate issues for
ministerial training in England. It is intended that the outcome will be shared with the sector
through the issue of a HEFCE circular letter.
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