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This asks what a fair education system would look like and argues for important reforms needed to narrow the gaps in educational attainment and opportunity between different social groups in the UK. Drawing on original research into public attitudes this is part of the Fabian Society’s research programme Fighting Poverty and Inequality in an Age of Affluence, in association with the Webb Memorial Trust.
Citation preview
The Fabian SocietyThe Fabian Society is Britain’s leading left of centre think tank and politicalsociety, committed to creating the political ideas and policy debates whichcan shape the future of progressive politics.
With over 300 Fabian MPs, MEPs, Peers, MSPs and AMs, the Society playsan unparalleled role in linking the ability to influence policy debates at thehighest level with vigorous grassroots debate among our growingmembership of over 7000 people, 70 local branches meeting regularlythroughout Britain, an active Fabian Women’s Network, and a vibrantYoung Fabian section organising its own activities. Fabian publications,events and ideas therefore reach and influence a wider audience thanthose of any comparable think tank. The Society is unique among thinktanks in being a thriving, democratically-constituted membershiporganisation, affiliated to the Labour Party but organisationally andeditorially independent.
For over 120 years Fabians have been central to every important renewaland revision of left of centre thinking. The Fabian commitment to open andparticipatory debate is as important today as ever before as we explore theideas, politics and policies which will define the next generation ofprogressive politics in Britain, Europe and around the world. Find out moreat www.fabian-society.org.uk
Fabian Society11 Dartmouth StreetLondon SW1H 9BNwww.fabian-society.org.uk
Fabian Freethinking
First published September 2010
This paper, like all publications of the Fabian Society, represents not thecollective views of the Society but only the views of the author. Thispublication may not be reproduced without express permission of theFabian Society.
British Library Cataloguing in Publication data.A catalogue record for this book is available from the British Library.
iv
About the authorsLouise Bamfield was Senior Research Fellow at the Fabian Societyfrom 2004-2009. She was the lead researcher on the FabianCommission on Life Chances and Child Poverty, which investigatedsome of the many ways in which poverty and disadvantage impact onchildren’s life chances, and co-authored the Commission’s finalreport, Narrowing the Gap (Fabian Society, 2006). She has adoctorate from the University of Cambridge in the philosophy ofeducation.
Tim Horton is Research Director at the Fabian Society, Britain’sleading left of centre think tank and political society, a position hehas held since 2006. His areas of research expertise include socialpolicy, economic and fiscal policy, political parties and democraticreform, public attitudes and political philosophy. Prior to working atthe Fabian Society, Tim was a Special Adviser at the Department ofTrade and Industry, and before that a policy analyst in HM Treasury.
v
AcknowledgementsThe research for this report was conducted by Louise Bamfield(during 2008-2009) while she was Senior Research Fellow at theFabian Society, and by Fabian Society Research Director Tim Horton(during 2009-2010).
This report is published as part of the Fabian Society’s researchprogramme Fighting Poverty and Inequality in an Age of Affluence, inassociation with the Webb Memorial Trust. The Fabian Society wouldlike to thank the Webb Memorial Trust for their kind support of thisresearch programme, including this report.
The authors would like to thank the National Youth Agency for theirsupport of this research project and its work in earlier stages on therole of non-formal education. The authors would also like to thankSerco for their support of this research project. Earlier stages of theFabian Society’s research on educational inequality were supportedby the Dartmouth Street Trust.
vi
This report is one of a series from the Fabian Society’s research
programme Fighting Poverty and Inequality in an Age of Affluence,
in association with the Webb Memorial Trust. The research
programme commemorates the centenary of a landmark contribution
to social justice: Beatrice Webb’s Minority Report to the Poor Law
Reform Commission.
The Minority Report first set out the vision, arguments and values of
social justice that were to become the foundations of the modern welfare
state. It challenged the dominant assumption that the poor were solely
to blame for their own poverty, demonstrating that the causes of
poverty are structural as well as individual, and argued that society has
a collective responsibility to prevent poverty, not merely alleviate it.
The programme seeks to influence the ideas, policies and arguments
of government and the major political parties through a series of publi-
cations, lectures and seminars. In the spirit of Beatrice Webb's central
concern with winning public support for change, the research also
explores public attitudes towards measures to tackle poverty and
inequality, to investigate what must be done to build a public consensus
for making a socially just society a reality.
Thanks to members of the programme advisory group. The views
contained in this report are those of the authors only.
Rushanara Ali Young Foundation; Mike Brewer Institute for Fiscal
Studies; Kate Green Child Poverty Action Group; Lisa Harker Daycare
Trust/ IPPR; Peter Kellner YouGov; Peter Kenway New Policy Institute;
Barry Knight (chair) Webb Memorial Trust; Jane Lewis LSE; Seema
Malhotra Price Waterhouse Coopers; Audrey Mullender Ruskin
College, Oxford; Jane Roberts Parenting UK; Karen Rowlingson
University of Birmingham; Shamit Saggar University of Sussex;
Nicholas Timmins FT; Polly Toynbee Guardian; Stuart White Jesus
College, Oxford.
vii
For more information about Fighting Poverty and Inequality in an
Age of Affluence, visit the Fabian Society’s website at:
www.fabians.org.uk/research
Earlier reports in this programme included:
• From the Workhouse to Welfare (ed. Ed Wallis, Feb 2009)
• In the Mix (James Gregory, Apr 2009)
• The Solidarity Society (Tim Horton & James Gregory, Dec 2009)
ContentsExecutive Summary
1 Mind the gap: educational inequality in Britain today
2 What’s fair? The principles of a fair education system
3 Who cares? What the public thinks is fair
4 Learning the lessons for politics and policy
5 Conclusion: Building a public consensus for more fundamental reform
Endnotes
1
11
37
49
85
91
i
Executive Summary
Educational inequality is the popular crusade that never was.
Thousands have marched in protest against important issues like
the hunting ban, airport expansions or the price of fuel. But there
has been no angry mob of citizens descending on Downing Street to
demand action to close the education gap. Perhaps the closest we have
come to popular protests about educational inequality has been student
demonstrations against the introduction of university tuition fees. But
even here, the broader case for tackling inequality has not been made.
It is true that the gap in children’s life chances has been rising up the
political and policy agenda over the last few years. In the last
Parliament, the previous Labour Government demonstrated a fresh
wave of interest and concern about the size of the class gaps in oppor-
tunity and outcomes.
But, in the main, there is no widespread sense of moral outrage
against the scale and durability of educational inequality. When alarm
bells ring about the state of education in Britain today, it is generally a
different set of issues which attract most attention. While there is
frequent coverage of concerns around alleged falling standards, failing
schools, failing pupils and a ‘dumbed-down’ curriculum, stories about
the routine, systematic transmission of educational advantage and
disadvantage do not generate headlines in the same way.
i
What’s fair? Applying the fairness test to education
ii
Mind the gapThis lack of public concern exists despite a powerful body of evidence
detailing the scale and extent of educational inequality, and some of this
evidence is set out in Chapter 1. Research studies show a clear class gap
in children and young people’s attainment, which emerges early and
then widens by the end of primary school. It gets stronger still as pupils
progress through secondary school, leading to clear class differences in
the pathways into further and higher education and beyond that into
employment. Analysis demonstrates that the gaps in attainment and
qualifications by the ages of 16 and 18 are so important because of what
they mean for children’s future life chances. Prior attainment is the
single biggest factor predicting future outcomes.
But the attainment gap is only half the story. There is also an oppor-
tunity gap: inequalities continue to exist in children’s access to enriching
and stimulating learning activities, both inside and outside the home.
These are the kinds of stimulating experiences that, in addition to devel-
oping core cognitive skills, foster confidence and independence, and
promote social interaction. As we shall see, the gap in children’s
learning opportunities early in life is compounded by inequalities in
their learning experiences at school and beyond, which then translate
into unequal outcomes in formal tests of attainment as well as in later
life outcomes.
What’s fair?To what extent are these differences in educational opportunities and
outcomes unfair? After all, clearly not all differences in how pupils are
treated, or in the resources allocated for their education, constitute an
injustice. Part of the task in deciding what is fair in education, then, is
deciding how to balance ‘equality’ with ‘difference’, that is, deciding
when fairness demands equal treatment and when is it fair to treat indi-
viduals differently.
Executive Summary
iii
So what would a fair system look like? It may seem naïve even to pose
the question. Arguably it is more useful to find out ‘what works’, rather
than to envisage what would be ideally fair, under conditions that we
cannot possibly hope to replicate. But a ‘what works’ approach only
raises the question of what the objectives of education policy are – and
to what extent concerns about inequality should weigh in our decision-
making when reforming the system.
To explore the principles of fairness that should guide educational
reform, Chapter 2 considers three possible models of a fair education
system, each based on a distinct philosophy: a meritocratic system, a
comprehensive system and a choice-based system. By drawing out the
core principles and assumptions that underpin each model, the analysis
asks whether or not such a model would be fair and examines a number
of common objections.
As we argue, fairness does not consist in any single one of these
idealised models. There are elements of each that it will be important to
try to capture. The challenge is how to extract what is intuitively persua-
sive and powerful about each model, whilst avoiding the accompanying
disadvantages and distortions.
We conclude this chapter by drawing on the analysis to identify some
‘fairness tests’ for the education system, against which the credentials of
any new proposal can be assessed:
• First, policy proposals should pass a basic test of closing
gaps in attainment and participation between those from
more and less advantaged backgrounds. Far more needs to
be done to break the link between family background and
educational attainment. This demands that resources are
used to promote the life chances of all children, whilst
boosting the attainment of children from the most disad-
vantaged backgrounds, to ensure that the gaps in attain-
ment and participation start to narrow.
What’s fair? Applying the fairness test to education
iv
• Second, at an institutional and classroom level, fairness
demands enough diversity of provision to ensure diverse
needs are met, but, crucially, without systematically sepa-
rating, labelling or stigmatising pupils. This is essential to
honour the principles of equal citizenship and equal status
on which our education system must be based.
• Third, educational structures and processes must be able to
show that they are able to create proper incentives to moti-
vate and inspire learners, as well as rewarding effort and
achievement – without allowing the system to be distorted
in favour of the most privileged.
• Fourth, fairness also demands a more extensive form of
choice – to give every person more choice and control over
when and how they learn throughout their lives, not just
limited to compulsory schooling.
• Fifth, a fairer education system would do much more to promote
greater engagement and interaction between people from different
social backgrounds. Diversity of provision and choice must not
come at the expense of social inclusion and integration.
Who cares?And yet, despite the wealth of data on the gaps in education, making the case for
tackling educational inequality poses a considerable challenge. The bare facts
about inequality do not always speak for themselves, lacking the element of
surprise – the ‘wow’ factor needed to really grab people’s attention. When focus
groups conducted for this project spelled out the class gaps in education to
members of the public, what is most apparent is how unremarkable they found
them and how unsurprised people were to hear that children from more advan-
taged backgrounds end up in more advantaged positions.
Executive Summary
v
Have we as a society become immune to inequality? Perhaps, in
today’s unequal society, the pattern of unequal chances has become so
familiar that it fosters a sense of indifference rather than indignation.
In fact, our research finds that people do have views about fairness in
education: they are neither oblivious to the current pattern of educa-
tional chances, nor indifferent. But their views are also ambivalent,
because they view the issues concerned through different ‘lenses’ – as
citizens, parents and workers – and bring different principles with them
in each case.
Chapter 3 briefly reports on attitudes research conducted for the
project, which explores people’s judgements about fairness in education
and the factors that underpin these judgements.
Learning the lessons for politics and policyIn Chapter 4, building on the analysis of previous chapters, we
identify a number of reforms to the education system that would
help to narrow the gaps in educational outcomes and experi-
ences, focussing on four different stages of the education system:
the early years; compulsory schooling; transitions to adulthood,
including tertiary education; and training during working life.
We also evaluate a number of reforms currently being
proposed. The new Coalition Government has said it will place
fairness and social justice at the heart of its agenda for govern-
ment. And the Secretary of State for Education, Michael Gove,
has unveiled a series of reforms with the express intention of
helping improve outcomes for disadvantaged groups. In this
chapter, we apply the fairness tests set out in Chapter 2 to assess
the new Government’s headline education policies. To what
extent do the proposals – the new Pupil Premium, the expansion
of the Academies programme and the introduction of new ‘free
schools’, alongside the ‘refocusing’ of Sure Start children’s
centres – pass the most basic of fairness tests, to narrow the gaps
in pupil attainment and participation?
What’s fair? Applying the fairness test to education
vi
Briefly, we conclude that:
• The new Government’s emphasis on promoting children’s develop-
ment in the early years of life is welcome. But in ‘refocusing’ provi-
sion in Sure Start Children’s Centres, the risk is that services will be
withdrawn from low-income families living in less deprived areas,
that some of those in the most vulnerable groups will continue to be
missed, and that the gains from a popular universal service will be
undermined. There are compelling reasons to uphold a universal
service – not only to provide important assistance to middle-income
families, but also because a non-stigmatising service is likely to be
more effective at bringing in the neediest families; and because the
broader social mix in children’s centres means that children from
more disadvantaged families are able to benefit from social interac-
tion with a wider cross section of their peers.
• The proposal to create a ‘pupil premium’ – giving schools extra
funding for more disadvantaged pupils – is a laudable move to
ensure more resources are directed towards the most disadvantaged
pupils. The priority for the short term is to recognise that some
schools will need further support to ensure that they make use of
additional resources in the fairest and most effective way. Without
this, the risk is that some schools may not use the extra resources in
an optimum way and the attainment gaps will not be closed. It is also
important to ensure there are mechanisms in place to ensure that
schools are accountable for spending the extra resources effectively.
• Regarding the expansion of the Academies programme, the proposal
to fast-track schools rated as ‘outstanding’ will be bound to benefit a
far greater proportion of less disadvantaged schools, since only a
small proportion of schools recently judged as outstanding can be
categorised as having a disadvantaged intake.
• Given the very different capabilities and resources that parents
Executive Summary
vii
and pupils have to take advantage of choice and diversity within
education, the proposal to create a new generation of ‘free schools’
risks introducing a dynamic into our already-divided schools
system that could increase and entrench segregation between
different social groups.
ConclusionFinally, in the Conclusion, we consider the challenge of winning some
of the political arguments for education reform.
In particular, the politics of a more mixed and inclusive education
system are difficult, to say the least. That is why the approach envisaged
in this report is deliberately a long-term one, motivated by consensus-
building. Imposing changes across the whole system in a ‘top-down’
way is bound to be politically unsustainable if they are not seen as fair
and generate anxiety for many. Entrenching change is only possible by
gaining public support for reforms and establishing consensus within
communities about the underlying objectives of mix and equality.
We shouldn’t be pessimistic about the prospect of achieving such a
consensus, but doing so requires a long-term and subtle strategy to
address the causes of parental anxiety about education. Importantly,
simply regurgitating the data about the class gaps in education is not
enough to win the political argument for removing inequalities within
the system. While egalitarians may of course be convinced of the case
for action, simply having a ‘say it louder’ version of traditional egali-
tarian arguments for reform won’t achieve this.
We suggest three priorities here:
• The first task for campaigners is to overcome people’s sense of
fatalism and inevitability by showing that inequalities in educa-
tion are not fixed or immutable. International evidence can be a
powerful resource here, as can the most inspiring examples of
local success.
What’s fair? Applying the fairness test to education
viii
• Second, we need to tackle the underlying fear and anxiety among
‘middle-class’ parents of more socially-mixed schools. A large part
of this is about the narrative we use in education. Discussions
about ‘standards’ and ‘educational failure’, which speak to legiti-
mate concerns about the quality of education, are in practice often
elided with a more visceral set of concerns about the state of
Britain, crime, ‘feral children’ and a range of other moral panics.
As a result, something very toxic has happened in the public poli-
tics of education, where very large social groups, like ‘low-income
households’ or those from ‘disadvantaged areas’, are often
conflated with very small social groups with extreme behaviours,
such as ‘chaotic families’ or those engaged in anti-social behaviour.
So we need a new kind of narrative about educational inequality –
one that reduces the social distance between disadvantaged pupils
and everyone else, rather than increasing it – and this must go
hand in hand with measures to promote more mixed communities
outside the school gates.
• A strong driving force that maintains divisions and inequalities
within our education system is a belief on the part of many politi-
cians, decision-makers and practitioners that such divisions and
inequalities are inevitable. Politicians often say there’s a problem
with ‘poverty of aspiration’ in Britain. Well there is: a profound
lack of ambition among too many of our political class for disad-
vantaged kids. Only when we stop thinking about the education
system in ways that anticipate division and failure, and only when
we stop expecting children from different backgrounds to follow
different pathways, will we really be able to get to grips with some
of the long-entrenched inequalities in our education system.
1 | Mind the gap: educationalinequality in Britain today
The facts about educational inequality at key stages of the life
course are well established. In its last term in office, Labour’s
education policy focused more explicitly than ever before on
narrowing the gaps in pupil attainment between children from more
and less disadvantaged backgrounds. Analysis of attainment gaps by
the (then) Department of Children, Schools and Families (DCSF) was
bolstered by authoritative independent reviews of the research evidence
on inequality and disadvantage.1 These studies, focusing on the drivers
of intergenerational disadvantage, social, educational and health
inequalities and stalled social mobility, tell a compelling story about the
state of educational disadvantage and inequality in the UK today.
The research evidence shows that the social class gap in attainment –
as measured by pupil eligibility for free school meals (FSM)2 – emerges
early and then widens by the end of primary school. It gets stronger still
as pupils progress through secondary school, leading to clear class
differences in the pathways into further and higher education and
beyond that into employment.3 Analysis demonstrates that the gaps in
attainment and qualifications by the ages of 16 and 18 are so important
because of what they mean for children’s future life chances.4 Prior
attainment is the single biggest factor predicting future outcomes.5
1
But the attainment gap is only half the story. There is also the oppor-
tunity gap: inequalities continue to exist in children’s access to enriching
and stimulating learning activities, both inside and outside the home.
These are the kinds of experiences that, in addition to developing core
cognitive skills, foster confidence and independence, and promote
social interaction. As we shall see, the gap in children’s learning oppor-
tunities early in life is compounded by inequalities in their learning
experiences at school and beyond, which then translate into unequal
outcomes both in formal tests of attainment as well as later life
outcomes.
Analysing the gapsThe gap in attainment emerges early and then widensChildren from different socio-economic backgrounds tend to display
different levels of language ability, communication and social develop-
ment. As evidence from Millennium Cohort Study reveals, a class gap in
children’s development has emerged by the time children are just two
years old. By the age of three, some children from more deprived fami-
lies are lagging a full year behind their more advantaged peers in terms
of cognitive and social development.6 And by the time they start school,
children display quite marked differences in terms of their attainment in
key outcomes:
• As analysis by DCSF shows, during the foundation stage, the odds
of a non-FSM pupil achieving at least 6 points in tests of commu-
nication, language and literacy are 2.5 times that of a FSM pupil.
The attainment gap then widens by the end of Key Stage 1 and is
maintained during Key Stage 2. By the end of Key Stage 1, the
odds of pupils who receive free school meals achieving good
outcomes (defined as level 2 in reading, writing and maths) are
three times less than non-FSM pupils.
2
What’s fair? Applying the fairness test to education
Mind the gap
3
• The gap widens further during secondary school. In national tests
of attainment at age 11 (Key Stage 2), the odds of FSM pupils
reaching the expected standard are three times less than their
peers, widening slightly during secondary school to 3.5 times less
at ages 14 and 16 (Key Stages 3 and 4).
• This ‘odds ratio’ is still three-to-one on entry to university.7
Why the gaps matterThese class gaps in educational attainment are so important because
childhood deprivation and disadvantage have a significant impact on
later outcomes in adulthood.
Inequalities in educational outcomes have important impacts on
people’s health and well-being, quality of life, as well as future income,
employment and living standards. The Marmot Review highlights the
strong relationship between inequalities in education outcomes and the
social gradient in physical and mental health.8 And as analysis for the
Joseph Rowntree Foundation has shown, there is a very clear pathway
from childhood disadvantage to reduced employment opportunities,
with earnings estimated to be reduced by between 15 and 28 per cent
and the probability of being in employment at age 34 reduced by
between 4 and 7 per cent.9
Why do the gaps exist?1) There is a gap in access to stimulating learningexperiences in the early years of lifeThe class gap in learning and development begins early in life, even
before children enter the classroom. However, as Leon Feinstein’s well-
known analysis of the cohort of children born in 1970 demonstrates,
these class differences are not innate but acquired. Feinstein’s analysis
4
What’s fair? Applying the fairness test to education
1970 co
hort
Age (months)Low Social class bottom quarterLow Social class top quarter
100908070605040302010022 42 62 82 102 122
High Social class bottom quarterHigh Social class top quarter
GR
AP
H: C
og
nitiv
e test scores b
y ag
e and
social class, fo
r the co
ho
rt of ch
ildren
bo
rn in
1970 (adap
ted fro
m
the N
ation
al Eq
uality
Pan
el repo
rt, 2010). As can
be seen
, low
er social class ch
ildren
wh
o w
ere initially
assessed in
the to
p q
uarter o
f ability
are grad
ually
ov
ertaken
by
hig
her so
cial class child
ren w
ho
were
initially
assessed in
the b
otto
m q
uarter.
5
Mind the gap
reveals that initially high-attaining children from disadvantaged back-
grounds (who performed well in early tests of cognitive development at
22 months) on average tend to fall behind children from more advan-
taged backgrounds, who initially performed less well.10 This is illus-
trated in the graph on the left.
So, for the 1970 cohort, initial gains in children’s early cognitive
development were soon outweighed by the impact of family factors and
parents’ socio-economic status. Worryingly, the effect of social class
appears to be just as strong today: the data for the cohort of children
born in 2000 indicates the same pattern of outcomes in their early years
development as that of earlier cohorts.11
So what has happened to affect the chances of children from more
deprived backgrounds so dramatically by the age of five? And why do
these gaps widen as children progress through the school system?
Below we look at several contributing factors.
Beginning in the early years of a child’s life, parents with greater
assets and resources – both educational and financial – are generally
able to provide more stimulating and enriching activities within the
home.12 As the Marmot Review of health inequalities reports, parents
are the most important ‘educators’ of their children for both cognitive
and non-cognitive skills.13 Literacy and language difficulties in primary
school are often a symptom of early disadvantage, as well as being a
cause of later educational inequality.
Children’s development is also importantly affected by the emotional
support and encouragement they receive, particularly from their family
and close personal relationships. Recent analysis of the Millennium
Cohort Study demonstrates that parents’ capacity to provide a warm
and nurturing environment, together with an engaged and structured
parenting style, has important effects on children’s social, emotional
and personal development by age five.14 More widely, children’s devel-
opment is affected by the understandings, ways of behaving, and atti-
tudes of parents and significant others – commonly understood as
forms of social and cultural capital.15
What’s fair? Applying the fairness test to education
6
The focus of this report is on the education system itself, so
proposals to improve the stimulus and support that children receive
within the home environment will be beyond the scope of later chap-
ters. But it is worth noting here that this agenda will clearly be a
hugely important component of any strategy to narrow the gaps in
educational attainment.
These differences in the home environment are often compounded by
unequal access to enriching learning experiences outside the home,
particularly those provided by high-quality early years education in
formal settings such as Sure Start children’s centres. While good early
years provision is good for all children, it is particularly important for
children from deprived backgrounds, since it has a disproportionately
positive impact on their development.16 In practice, gaps in access to
high quality early years provision result in a double disadvantage, since
those who would most benefit from stimulating early learning activities
are those least likely to access them.17
2) There is a gap in access to well-resourced, high-performing schools Marked differences also exist in children’s access to well-resourced and
high-performing schools. Where children live strongly affects the range
and (perceived) quality of schools available to them; and crucially,
where children live and go to school is strongly shaped by their parents’
level of resources.18 As research demonstrates, whereas parents on
higher incomes can afford to move to areas with the most popular and
highly performing schools, parents on the lowest incomes are not so
fortunate.19
Analysis of school performance, distance travelled to school and
family income shows that as the performance of the local school
becomes lower, children from affluent families are less likely to go there.
Focusing on schools in the bottom quarter of the national league table,
a pupil eligible for free school meals is 30 per cent more likely to attend
their low-scoring local school than an otherwise-identical pupil from a
7
Mind the gap
better-off family.20 Of course, here it is important to emphasise that
‘school quality’ as measured by placing in standard league tables is not
a full or accurate reflection of the actual quality of a school, which can
be better demonstrated through more sophisticated measures of
performance (for example, their ‘value added’ score).
There is a strong correlation between levels of deprivation in an area
and the number of schools that inspectors have placed in ‘special meas-
ures’ because they are judged not to supply an acceptable level of
education. In 2006, over thirty per cent of schools in the poorest local
authority areas (the bottom ten per cent on an index of multiple depri-
vation) were in special measures, as compared to less than five per cent
in the richest three deciles. The consequence is that children living in
areas of higher deprivation are far more likely to attend schools that
perform less well.
Again, it is important to stress that many schools located in more
deprived areas demonstrate good or outstanding levels of teaching
and pupil performance, as measured by Ofsted inspections and value-
added scores. (Later on we discuss the damaging effect of unwar-
ranted generalisations about schools in disadvantaged areas,
including the tendency to describe such schools or the pupils who
attend them as ‘failing’.) But the general pattern remains that children
from more disadvantaged backgrounds are least likely to access the
schools judged to be outstanding.
Analysis of data from every secondary school in England provides
clear evidence of a strong underlying relationship between their GCSE
performance and their social mix of pupils.21 Children from middle-
class families are over-represented at the most successful and highest
status schools, while children from more disadvantaged backgrounds
are vastly over-represented at the lowest ranking, lowest status
schools. Research by the Sutton Trust backs this up, showing that the
vast majority of the top 100 state schools in England have low propor-
tions of children on free school meals compared with both local and
national levels.22
What’s fair? Applying the fairness test to education
8
Unequal access to well-resourced schools matters because research
shows the difference that schools can make to pupils’ learning and
outcomes. Of course, schooling is only one of a number of factors that influ-
ence outcomes. Arguably, other factors, such as the stimulus provided in
the home environment, are just as influential, if not more. But schooling is
clearly important. Assessing the intergenerational transmission of educa-
tional success, Feinstein and colleagues investigated the role of the school
and concluded that there is strong and robust evidence to suggest that
schools are independently important for children’s outcomes. And as the
2009 DCSF review of education and deprivation concludes, there is also
evidence to suggest that some schools are more effective than others.23
Crucially, in terms of their effectiveness, some schools are much better
resourced than others, not just in terms of funding, but in terms of the
quality of teaching and facilities, as well as being ‘better resourced’ in terms
of peer group influences and social networks. And unequal access to the
highest-ranking, most popular schools translates into unequal access to the
range of resources in those schools – of which teaching quality is a critical
component.24
Importantly, research shows that pupils from deprived backgrounds are
typically less likely to experience good quality teaching.25 Research also
shows that teacher turnover tends to be higher in schools with above
average eligibility for free school meals,26 a consequence of the “higher
workload and stress involved in teaching children from deprived back-
grounds for whom behavioural problems are more common.”27 So pupils
from lower-income families are not only more likely to attend the lowest-
ranking, least popular schools, they are also more likely to experience lower
quality teaching, more teacher shortages and higher teacher turnover.
Finally, a significant gap also exists in the kinds of learning activities
and experiences that children are able to access outside of school.
Research shows differences in the level and type of young people’s leisure
activity by household income and age group. In the National Foundation
for Educational Research’s assessment of learning activities outside the
classroom, secondary school pupils in areas of high deprivation and in
9
Mind the gap
schools with higher proportions of pupils with special educational needs
were less likely to be offered opportunities for such experiences than
other pupils.28 Similarly, research also demonstrates that more affluent
young people were more likely to attend organised activities after school,
while those on free school meals were generally more reliant on provision
within school. Differences were found for older age groups in this regard:
in Year 9 (age 14-15), the range of organised activities available for young
people on free school meals was more limited than for the younger cohort
in Year 6 (age 11-12).29
3) There are gaps in participation in higher educationStudents from lower income families are far less likely to go on to univer-
sity. Only 13 per cent of free school meal pupils go on to higher education,
compared to 32 per cent of those not receiving them.30
There seem to be various factors involved here. First, participation in
higher education is very closely linked to prior attainment at GCSE.31 So
inequalities in the latter feed into inequalities in the former.
But there is a further dimension here beyond prior attainment. As the
2010 National Equality Panel Report details, free school meals students
with results at the top of the range are less likely to go on to higher educa-
tion than non-free school meals students with the same results – by more
than 10 percentage points for the highest achievers. It appears that students
from lower-income families face additional hurdles and barriers to partici-
pation. Here, cost may be an important factor: after the introduction of
tuition fees in 1998, the participation gap between students from higher and
lower socio-economic backgrounds widened from 28 percentage points in
1998 to 31 percentage points in 2001.
It should also be noted that there are class gaps in the type of institu-
tion students attend. Stephen Machin and colleagues found that of
students completing higher education in 2002-03, more than 40 per cent
of those with professional parents went to Russell Group universities,
compared to less than a quarter of those with manual, semi-skilled or
unskilled parents.32
What’s fair? Applying the fairness test to education
10
4) There are gaps in adults’ access to learning and trainingThere are various inequalities in adults’ access to learning and training, of
which perhaps the most significant is access to training in the workplace.
Again, prior attainment is a strong predictor of access to training at work,
with lower qualified workers facing by far the greatest barriers in
accessing training.
According to data from the Labour Force Survey, just 9 per cent of
employees without a qualification are offered regular training (a figure
that has remained relatively static over the last decade). This compares
with 24 per cent of those with a Level 2 qualification (GCSEs); 27 per cent
of those with a Level 3 qualification (A levels); and 38 per cent of those
with a degree.33
So graduate employees are four times more likely to be offered training
by their employer than those without any qualifications are.
Another factor highlighted by the recent National Equality Panel report
is the inequality in access to training between those in full-time and part-
time jobs; as the report argues, the lack of opportunities for training and
progression in many part-time jobs is symptomatic of a broader failure to
value part-time work sufficiently.
Another recent report by the TUC summarises the situation well: despite
improvements in the provision available to employees over the last decade,
“access to workplace training remains a pipedream for many employees
and especially those in greatest need of improving their skills”. In this way,
inequalities in access to training in adult life compound the socioeconomic
inequalities examined in previous sections.
* * *
Having looked at a range of inequalities in attainment, experiences and
opportunities within the education system, we turn in the next chapter to
ask what a fair education system might look like in practice, and how we
might use different ideas about fairness to think about policy reform.
To what extent are differences in educational opportunities and
outcomes unfair? After all, clearly not all differences in how
pupils are treated, or in the resources allocated for their educa-
tion, constitute an injustice. Fairness is not synonymous with equality,
in the sense of treating children in a strictly equal or identical way; in
many cases, fairness demands differential treatment in order to take
account of people’s diverse and non-identical needs. Part of the task in
deciding what is fair in education, then, is deciding how to balance
‘equality’ with ‘difference’, that is, deciding when fairness demands
equal treatment and when is it fair to treat individuals differently.
To explore the principles of fairness that should guide educational
reform, in this chapter we consider three possible models of a fair
education system: a meritocratic system, a comprehensive system and a
choice-based system. As we set out below, each model is based on a
distinct philosophy – a particular set of principles, values and distribu-
tive norms, as well as a distinct account of the purpose of education. By
drawing out the core principles and assumptions that underpin each
model, the analysis asks whether or not such a model would be fair and
examines a number of common objections.35
As we argue here, fairness does not consist in any single one of these
idealised models. There are elements of each that it will be important to
try to capture. The challenge then is how to extract what is intuitively
2 | What’s fair? The principles of afair education system
12
persuasive and powerful about each model, whilst avoiding the accom-
panying disadvantages and distortions.
We conclude by drawing on this analysis to identify some ‘fairness
tests’ for the education system, against which the credentials of any new
proposal can be assessed.
Deciding what’s fair: distributive norms andprinciplesJennifer Hochschild, in her classic work What's Fair: American Beliefs
about Distributive Justice (1981), distinguishes between different princi-
ples and norms of distributive justice, which embody different starting
assumptions about the claim people can legitimately make on resources.
In some cases, judgements about fairness and justice will begin from a
principle of equality, based on a core assumption that all people may
legitimately make the same claims on social resources, regardless of
differences in gender, ethnicity, class or other individual characteristics.
In its simplest form, it means giving every person exactly the same
resources; in a more complex form, differences in treatment can be justi-
fied providing that they respect the fundamental equality of persons
(for example, in some contexts where different levels of resources are
allocated to meet different needs).
In other cases, people’s judgements about fairness begin from a prin-
ciple of differentiation, based on a core assumption that people are
inevitably different in ways that usually call for unequal allocations of
resources. In its simplest form, one of ‘ascription’, this principle means
that individuals with different innate characteristics (such as gender,
ethnicity, class and so on) can legitimately make different claims on
social resources. In a more complex form, differences of treatment may
be justified according to differences in individuals’ behaviour or results.
In these latter cases, fairness is often linked with personal responsibility,
according to which some people can justly have more than others by
virtue of their differential efforts, abilities or contributions.
What’s fair? Applying the fairness test to education
13
What’s fair?
Thus, different distributive norms can be thought of as lying along a
continuum from ‘sameness’ to ‘differentiating’, ranging at one end
from egalitarian norms of identical treatment and need, through
norms of investment, effort and results, to norms of pure ascription at
the other end. Cutting across this continuum are other values such as
freedom of choice and concern for efficiency.
Deciding what is fair in education is so often difficult and controver-
sial because any decision about educational resources is likely to entail
trade-offs between different norms and values. Thus, for example,
people may agree that individuals with greater educational needs
deserve additional resources – but disagree either about the definition
of ‘need’, or about the amount of additional resource that can reason-
ably be justified on the grounds of cost and efficiency.
In addition to distributive norms, people also draw on procedural
norms in making judgements about a fair way of allocating goods and
resources. Some procedures, such as lotteries, assume equality of
persons; others, such as market mechanisms, are based on differences
(such as differences in demand or purchasing power). Often, the appro-
priateness of a procedure will depend upon the good in question: for
example, a process of fair and open competition would be appropriate
to use in making decisions between candidates applying for the same
job, but would not generally be considered appropriate in making deci-
sions about which patient should receive a limited medical resource
such as an organ transplant.
It is important to note that people tend to draw on different norms
and values in different ‘spheres’ or domains of life: the socialising
domain of ‘everyday’ life, in which, for example, parents make deci-
sions relating to their own children’s well-being; the political domain,
in which decisions are made about the overall distribution of
resources; and the economic domain, which addresses issues of
earning a living, competing for jobs, and finding one’s place in
society. Hochschild’s research suggests that people tend to use egali-
tarian norms (of identical treatment or need) in the socialising and
14
political domains, and differentiating norms (results-based or ascrip-
tive norms) in the economic domain.
Where does education fit in? Educational decisions fall under
different, overlapping domains, and different distributive and proce-
dural norms are perceived to be appropriate at different levels and in
different phases of education. For example, a different set of norms may
be called upon in making decisions about the most appropriate arrange-
ments for the education of younger children as compared to that of
older students and adult learners. Furthermore, this analytic framework
helps explain ambivalence in people’s own views of fairness in educa-
tion: when education is viewed as an economic matter, people tend to
argue from a principle of differentiation (such as the principle of
personal responsibility), drawing on distributive norms which may
have disequalising effects; when it is viewed as a political matter, people
tend to argue from a principle of equal citizenship or equal concern,
drawing on egalitarian norms which are more likely to have redistribu-
tive effects. Importantly, part of what makes political debates about fair-
ness in education so contested is that what for some people is a political
question is for other people an individual or economic question.
As we argue below, this explains why different political discourses
around education can be hugely significant in how they affect people’s
judgements about fairness, by encouraging them to draw on the norms
of a particular domain. So, for example, the political narrative around
‘choice’ tends to bring educational issues into the (private) domain of
market consumption, with significant consequences for the norms and
values people then apply.
Exploring principles of fairness: three competingmodels of a fair education systemIn this section we consider three possible notions of a fair education
system: a meritocratic system, a comprehensive system and a choice-
based system. As we set out below, each model is based on a distinct
philosophy – a particular set of principles, values and distributive
What’s fair? Applying the fairness test to education
15
What’s fair?
norms, as well as a distinct account of the purpose of education. These
are, if you want, ‘ideal types’ (though they also loosely relate to different
waves of education reform set out in the box further below); in practice,
elements of different models can and do co-exist within the same
system. In addition, each model also embodies different assumptions
about the drivers of human behaviour, and also the consequences of
different kinds of social interaction. By drawing out the core principles
and assumptions that underpin each model, the analysis then asks
whether or not such a model would be fair and examines a number of
common objections.
(i) A meritocratic education systemThe principle of meritocracyThe defining feature of a meritocratic system is that positions of trust
and responsibility should be earned rather than inherited. Although
originally intended as a warning by its inventor, Michael Young, the
idea of meritocracy has a wide resonance because it accords with many
people’s innate sense of fairness, based around a belief in personal
responsibility – the belief that people should be rewarded for the efforts
and contribution they make and the capacities they possess. For many,
‘meritocratic’ is treated as synonymous with ‘fair’. And indeed,
compared to some of the alternatives – aristocracy, nepotism, plutocracy
or cronyism – a meritocratic model offers distinct advantages. A merito-
cratic method of recruiting and promoting individuals in the workplace,
for example, which recognises and rewards people’s effort and ability, is
more obviously fair than granting (or withholding) access to jobs on the
basis of birth, family connections, wealth or social influence.37
Features of a meritocratic systemApplied to education, a meritocratic system would ensure that individ-
uals were rewarded for their efforts and abilities, rather than on the
basis of educationally irrelevant factors such as family background,
What’s fair? Applying the fairness test to education
16
parental income or social status. Arguably, it would also ensure that
children had the same chances of developing their capacities.
In practice, the meritocratic principle could be realised through a
variety of institutional structures and teaching arrangements at school
level and beyond. The key question is to decide when or at what stage
of education it is fair to decide places on the basis of open competition,
for example through a test or examination designed to identify relevant
abilities. One option would be for a test of academic selection to be
made at the transition to secondary school, at age eleven. Another
option would be to delay selecting individuals by academic ability until
they have reached a higher level of education, for example at transition
to university or further education.
Advantages of a meritocratic systemThe meritocratic principle is a powerful one in education, which
accords with a basic, intuitive belief that people should be rewarded for
their efforts and contribution. As set out in the box below, the idea that
educational places and opportunities should be decided on the basis of
ability and talent, not wealth and status, has underpinned successive
waves of educational reform in the post-war period. From an economic
perspective, allocating educational resources and rewards on the basis
of ‘merit’ or demonstrated ability has the advantage of being more effi-
cient than alternatives.
A fully meritocratic system of education would therefore have the
considerable advantage of being both ambition-sensitive and endow-
ment-insensitive. It would be sensitive to people’s ambitions, by recog-
nising the contribution they make, and providing the incentives to
develop and strive to succeed. And it would be insensitive to people’s
family background, parental income or social status – in contrast to an
elite private school system, based on parents’ ability to pay.
Objections to a meritocratic systemDespite the attractions of a fully meritocratic system in theory, a
17
What’s fair?
number of strong objections are voiced against attempts to establish a
meritocratic system in practice. In the British education system, the
idea of meritocracy has traditionally been associated with an academi-
cally selective school system, based on an examination to assess ability
at age eleven.
Critics of academic selection argue that while open competition
may be the fairest way to choose between candidates for, say, jobs in
the labour market, it does not follow that it is a fair basis for the
school system.
One important set of objections here challenges the whole idea that
children can be assessed and assigned into different categories of
learner or types of intelligence, which call for different types of school
or educational setting. In particular, such an idea may mistakenly
assume that ability is naturally fixed or immutable. One concern here is
that separating pupils into different institutions of varying status,
according to the individual characteristics of pupils, has detrimental
effects on pupils’ learning and negative effects on their self-esteem.38
Similarly, some would argue that if pupils are systematically divided
into different teaching sets or streams at the year-group or classroom
level, this risks creating negative ‘labelling’ effects. After all, if students
are systematically organised into groups for a significant part of their day,
the make up of these groups will also influence approaches to teaching
style and curriculum, the allocation of learning support resources to
different pupils, the nature of learning peer groups, and also very
possibly the formation of friendship groups outside the classroom.39
Another, more practical point – and in our view a convincing one – is
that it is not obvious that an academically selective school system is
actually a meritocratic one at all. In practice, it may be impossible to
separate children’s demonstrated ability from the markedly different
array of resources that parents have at their disposal to promote their
children’s learning and development. Where children are sorted, for
example, at age eleven on the basis of demonstrated ability, it could be
argued that what is actually being assessed is not their ‘true’ ability at
What’s fair? Applying the fairness test to education
18
all (even if there is such a thing), but rather something that signifi-
cantly reflects the influence of different parental resources and
different home environments.
Related to this, it may appear especially unfair to separate pupils
into different types of school at too early an age, because it risks
closing off options for the future. And selection by ability at an early
age also appears unmeritocratic, because the relationship between
family background and educational outcomes is particularly strong
for younger children.
Situations such as these actually offend against the core premise of
meritocracy, which is to break the link with family background and so
ensure that rewards are earned rather than inherited. It follows that an
elite selective school system is only superficially meritocratic, because it
reproduces the link between family background and educational
outcome. In other words, it fails on its own terms - namely, that rewards
should be earned rather than inherited.
By contrast, a genuinely meritocratic school system would do far
more to break the link between family background and educational
opportunities and outcomes, by targeting resources more effectively at
disadvantaged students to allow students to be evaluated on a level
playing field. A genuinely meritocratic system would also aim to delay
selection by ability until students are older.
ConclusionThe meritocratic principle is a powerful one in education: a fully meri-
tocratic system of education would offer the considerable advantage of
being both sensitive to individuals’ talents, efforts and ambitions and
insensitive to their inherited wealth or parents’ social position. But
despite its widespread appeal, the problem with educational practices
designed along supposedly meritocratic lines is that too often in prac-
tice they actually mask the extent to which family background factors
still predominate. While the intention may be to widen access, the effect
has often been to grant or withhold access to powerful and prestigious
19
What’s fair?
institutions on the basis of birth, family connections, parental income or
social influence. In such cases, we are left with the worst of all worlds: a
system that poses as meritocratic, whilst systematically reproducing
social advantage and disadvantage.
(ii) A comprehensive education systemPrinciples behind the comprehensive idealBy contrast to the principle of meritocracy, a comprehensive model of
education is guided by the principle of equal citizenship, and draws
primarily on egalitarian norms of identical treatment and norms of
need. At the heart of the comprehensive ideal is a belief that all people
are worthy of equal respect and so deserve equal status. A comprehen-
sive school system therefore embodies the values of social equality and
citizenship, giving equal status to each school and every child. By
insisting upon equality of institutions and an open system of admis-
sions, without selection by ability, comprehensive schools and colleges
aim to avoid both academic and social segregation.
A comprehensive system also aims to forge a particular kind of
outlook: a ‘communal’ culture in which people from all social groups
interact freely and engage with one another as social equals, despite
their material inequalities; and in which future lawyers and senior
managers learn alongside future hairdressers and mechanics.40 As such,
comprehensive education is based explicitly on a particular vision of a
good society: one which is more open and less hierarchical, more cohe-
sive and less socially divisive; and in which the school is at the centre of
strong local communities.41
Features of a comprehensive systemThe equal entitlement of all individuals to primary and secondary
education is something which is now universally recognised as a basic
right of citizenship. The comprehensive ideal goes much further than
this simple notion of equality, however, by stipulating that the values of
20
What’s fair? Applying the fairness test to education
social equality and citizenship should be embedded in the institutional
structure of the school system.
For younger children, the comprehensive ideal would be realised
through socially integrated and educationally inclusive nurseries and
primary schools. For older children and young adults, it would be
implemented through a network of community schools and colleges,
with open, non-selective admissions processes and inclusive pedagog-
ical and curricular practice. At the classroom level, the comprehensive
ideal leans towards mixed-ability and whole-class teaching rather than
sorting pupils into streams or sets, while favouring a common
curriculum, to give all learners access to the same knowledge.
In place of the institutional diversity and social division associated
with a hierarchical selective system, a comprehensive system would
therefore be both relatively homogeneous in terms of its institutional
structure, and relatively heterogeneous with respect to schools’ pupil
intake on the basis of ability, religion, ethnicity, gender and social class.
Of course, in practice comprehensive systems will not be purely
heterogenous with respect to pupil intake, since this is to some extent
constrained by geography: pupils will attend nearby schools, whether
in their neighbourhood or within reasonable travelling distance. School
intake will therefore reflect the different make-up of different commu-
nities, and the degree of social mix within communities will be an
important constraint on the ambitions of the comprehensive ideal.
Advantages of a comprehensive systemA comprehensive system of education therefore aspires to be socially
and educationally inclusive, and to achieve equality in educational
experiences for children from different social backgrounds.
Were such a system to be realised, it would offer a number of distinct
advantages, notably a less hierarchical society and also enhanced social
relations and cohesion stemming from more integrated schooling. In
theory, this could have widespread beneficial consequences both for
21
What’s fair?
individuals’ general well-being and for improved societal outcomes
(such as reduced social tensions, crime and anti-social behaviour).
Importantly, a comprehensive school system would also help to avoid
the damaging and stigmatising effects that can arise from ranking and
sorting individuals into different institutional tiers or curriculum streams.
Objections to a comprehensive systemFor its critics, a comprehensive system is associated with drab unifor-
mity and with the neglect of individual differences. There are a number
of specific complaints. One is that a comprehensive system is unfair to
pupils because it fails to cater for the full range of needs and abilities. A
second, related, objection is that a comprehensive system is detrimental
to students’ educational interests because it fails to provide the motiva-
tion and competitive environment needed for students to strive and
excel and fails to reward individuals for the efforts that they make and
the results they achieve.
What, then, of the claim that comprehensive schooling treats children
unfairly by treating them all alike? Defenders of a more variegated
system ask how any single institution or teaching model, such as mixed-
ability teaching, can cater for the whole ability range. At one end of the
ability range, comprehensive schools are accused of holding back the
most able pupils and of failing to provide sufficient incentives for
students to strive and excel. In this sense, a comprehensive system is
said to be both unfair in failing to provide adequate rewards for
students’ different efforts and results, and inefficient in failing to
provide the dynamic competitive environment needed to stimulate
pupils to progress. At the other end of the range, a comprehensive
system is charged with failing to provide adequately for pupils with
learning difficulties, who demand more intensive and individualised
forms of learning support.
Thus, far from respecting the equal moral worth of every citizen,
critics argue that the uniformity of a comprehensive system actually
discriminates against some students, particularly those at either end of
What’s fair? Applying the fairness test to education
22
the ability range, by failing to cater adequately for the full range of
educational needs.
This criticism is a serious one. But, in truth, it arises from a misreading
of the comprehensive ideal. Although the comprehensive ideal makes
strong claims about the value and importance of common institutions
and curricular pathways, it does not adhere solely to a norm of strict
equality or identical treatment, and does not insist on equality of
resources in a narrow sense. Within a broadly homogenous institutional
framework and a common curriculum, there is much scope for differ-
entiation according to individuals’ particular learning needs.
However, although the blanket criticism may not be valid, there is still
an empirical question of the extent to which pupils with the full range
of learning needs can be taught in the same institution. Similarly, within
institutions, it is important to clarify how much differentiation is
possible within a common curricular and pedagogical approach, and at
what point in individuals’ educational development it may become
necessary to allow differentiated institutional and curricular pathways.
In practice, of course, it is possible to combine broadly homogenous
institutions with a wide range of provision within the school, catering
for a diverse range of learning needs. Certainly, at primary level, the
vast majority of children already attend a local school which caters for
a broad range of ability. The arguments for separate or specialist
provision may become stronger for older students, though it is still
possible to combine differentiated teaching with a common
curriculum and institutions.
At the top end of the ability range, it may well be justified to offer
specialist provision to cater for pupils of exceptionally high ability. The
argument for specialist institutions is perhaps strongest, however, in the
case of pupils and students with more severe learning difficulties and
special educational needs, since it may be the case that certain types of
learning support and specialist provision are best provided outside
mainstream institutions. From the point of view of a purist comprehen-
sive ideal, this is problematic, since the aspiration is to be genuinely
23
What’s fair?
inclusive of all pupils, regardless of ‘disability, inability, difficult or
different behaviour’. The worry is that separating children with the
most severe learning needs leads to wider forms of social and educa-
tional exclusion, which have a detrimental effect on children’s psycho-
logical well-being as well as their educational development. But while it
is important to be aware of these detrimental effects, it would clearly
also be wrong to disallow any alternative or specialist provision to be
made outside mainstream institutions. In all cases, the onus should be
on mainstream and specialist providers to demonstrate the educational
need for separate provision and to explain what steps are being taken to
minimise the detrimental effects of being separated from other pupils.
ConclusionThe comprehensive model therefore reminds us of the importance of
having inclusive institutions, curricular and pedagogical practices,
which embody the equal status of citizens, and which avoid the system-
atic separation of different schools and learners (and the stigmatisation
that could result).
However, as critics of a comprehensive model also remind us, educa-
tional structures and processes must be able to show that they are able
to cater fully for different needs and create proper incentives to motivate
and inspire learners. In practice, it is necessary to determine the degree
of differentiation that is necessary to meet diverse needs and the extent
to which this is possible to achieve within a common institutional and
curricular framework.
(iii) A choice-based education systemThe principle of parental choiceA further common objection to both a comprehensive and an academi-
cally selective system is that both types of system treat parents and
pupils unfairly by denying them a choice of school. The case for a
choice-based system begins with the idea that parents and pupils have
What’s fair? Applying the fairness test to education
24
a right to choose in education and schooling, as well as reflecting a
broad belief in the value of cultural pluralism and institutional diversity.
As well as supporting a right to choose, many advocates of choice
adhere to a belief that parents are better placed to judge what type of
school is appropriate for their child than education professionals or
local authority officials.
Features of a choice-based systemApplied to the secondary school system, the principle of ‘choice’
requires both a parent-led admissions process and a range of institu-
tions for parents to choose between. Although choice is not synonymous
with institutional diversity, in practice, it is difficult to see how school
choice can exist without some distinctive differences between the
schools on offer.
If meaningfuk choice presupposes a sufficient level of diversity, in
what ways could schools offer distinctive choices? Arguably greater
choice could be offered by allowing for much greater variety in the
content of the curriculum and in teaching methods; by opening up the
market to a wide range of providers; or by enabling greater cultural and
educational pluralism in the outlook and ethos of schools – which could,
for example, extend beyond faith schools to encompass humanist
schools, or schools which embody a distinctive set of ethical principles
(such as environmental sustainability).
While much of the debate here is around choice of secondary school,
we should remember that ‘choice’ could operate at all phases of educa-
tion, from choice of childcare and primary school, to choice of further
education college or university. In each case, the nature of that choice
would depend on the admissions policy operated by each institution, as
well as flexibility in the supply of places.
Advantages of choice-based systemsProponents of a choice-based system highlight a number of instru-
mental reasons for widening choice in education, as well as upholding
25
What’s fair?
the intrinsic value of giving individual learners and families greater
choice over where they access education.
The business case for extending parental choice in schooling rests on
the alleged advantages of a market mechanism – namely, the competi-
tive pressures which incentivise organisations to become more efficient
and to improve their services in order to attract customers.
Another key advantage is held to be that of promoting greater equity:
proponents of a choice-based school admissions process assert that
deciding places on the basis of parental choice or preference is a fairer
way than allocating on the basis of on neighbourhood or residence (as
in community schools) or one based on ability (as in a selective system).
Indeed, proponents of parental choice often assert that a choice-based
system would actually reduce the ‘sorting’ or segregation of students as
compared to other systems.
Objections to choice-based systemsCritics question the extent to which a choice-based mechanism in
education is able to promote efficiency and greater social equity
in practice.
One common set of criticisms of choice-based systems is on grounds
of inefficiency. For choice to be meaningful, it presupposes more than
one available option – and, in practice, surplus capacity. Without the
necessary capacity, ‘choice’ often ends up simply meaning the opportu-
nity to express a preference about which services to use; it does not
necessarily follow that users will actually get the option that they prefer.
Providing meaningful choice therefore requires considerable extra
spending on service capacity. In these contexts, there will clearly be a
trade-off between the degree of choice and the efficiency of service
provision.
Some of the strongest criticisms of a choice-based school system are
made on the grounds of inequality. The argument goes that consumer-
led provision is problematic because different people have radically
different capabilities to make informed choices and because the
What’s fair? Applying the fairness test to education
26
system brings with it the chance for those with greater resources (both
financial and non-financial) to ’play the system’ for the benefit of their
own children.44
There are particular concerns that such systems may exacerbate
inequality if starting from a point where the underlying conditions in
society are already highly unequal. Concerns are heightened because
choice and institutional diversity are combined with status differences:
in reality, parents are not choosing between a variety of institutions of
equal status, but a ranked hierarchy of institutions of higher and lower
status.45 What is objectionable therefore is not the diversity of institu-
tional type per se, but the differences in status and ranking between
those institutions.
There would be much stronger arguments in favour of choice if a suit-
ably regulated market could supply educational pluralism without
creating a class-based hierarchy of schools.46 However, although in
theory this is possible, in practice it is much harder to realise the mantra
of ‘different but equal’. It could even be argued that the market mecha-
nism itself will actually encourage a hierarchy of status among schools.
Is it possible to retain the potential advantages of the market mecha-
nism (such as the competitive pressure to improve school performance)
without the disadvantages of unfair inequalities in market power (espe-
cially those associated with ‘middle class capture’)? Some have argued
that a way to do this could be through an ‘egalitarian voucher scheme’,
which would offer equal resources devoted to each child, so that private
schools are obliged to compete for pupils. In contrast to other voucher
schemes, an egalitarian version would preclude any top-up fees being
imposed, and would insist on oversubscribed schools selecting
randomly from those who apply.47 As such, an egalitarian scheme
would be significantly more equitable than classical private provision,
since in theory it would prevent the most popular or prestigious schools
from filtering the more able students.
27
What’s fair?
ConclusionThe problems with choice-based systems, then, do not necessarily stem
from problems with the concept of choice per se, but rather with the
way in which it is implemented in practice. In particular, there are
concerns that such systems may exacerbate inequality if starting from a
point where the underlying conditions in society are already highly
unequal.
Beyond these observations, it is also worth questioning the current
fixation with one particular type of choice – the choice of secondary
school – when so many other important aspects of education are
unchosen. If choice is something to be valued, shouldn’t the role of
choice be more genuine and far-reaching? More radical reform would
focus on extending personal choice to give individuals far more
freedom over the timing of their education, as well as the setting in
which they learn. This kind of transformation would be extremely
demanding: it would require much more flexible relations between
work and education, a move towards learning organisations attached to
the workplace and in other spheres of life, and significantly increased
funding for continuing education and adult education. In short, it
would mean taking lifelong education seriously as a citizenship right,
just like social security or pensions.
Conclusion: some fairness principles to guide reformIn conclusion, fairness does not reside in any single one of the models
or principles of education examined here. The challenge we face is to
find ways of retaining what is most compelling about each model,
whilst avoiding their accompanying disadvantages and distortions.
Thus, from the meritocratic model, we need to uphold the concern to
create proper incentives to motivate and inspire learners, as well as the
basic fairness of rewarding effort and achievement, without allowing
the system to be distorted in favour of the most privileged. From a
choice-based system, we need to find ways of giving better expression
to the value of individual choice in education throughout people’s lives,
What’s fair? Applying the fairness test to education
28
without becoming fixated by just one type of choice – the choice of a
place in secondary school. And, drawing on the comprehensive model,
we must take steps to ensure that educational institutions are genuinely
inclusive, allowing for a wider social and educational mix to honour the
principle of equal status and to broaden young people’s horizons,
without imposing changes in a uniform or ‘top-down’ way.
Competing interpretations and changing norms of fairness are
evident in different waves of reform in the development of British
education since the late nineteenth century, as set out in the box below.
Box: A brief history of class in education: changing views of
fairness over time
The English education system has long been structured
along class and gender lines.49
With the rise of mass
schooling for the working classes in the late nineteenth
century, girls and boys from different social classes were
effectively assigned or sorted into their future social, occu-
pational and domestic roles through the institutions of
formal education.50
Schooling for ‘the masses’ consisted of
basic instruction in day schools, church schools, Sunday
schools and elementary schools for future labourers and
their wives. At the top of the social hierarchy, the eminent
public schools prepared the sons of an elite social class for
future leadership. In between ‘the elite’ and ‘the masses’
were a multitude of lesser schools, catering for the children
of the emerging middle classes. Intended to confirm rather
than transcend existing social divisions, the rise of mass
schooling embedded a differentiating function into the
education system, based on a norm of ascription (the belief
29
What’s fair?
that people’s natural differences made them suitable for
different positions).51
As a result, higher education and even
secondary education (in the form of an elite, liberal educa-
tion) remained an upper-middle-class and predominantly
male domain until well into the twentieth century.52
Education reform post-1944: from social predestination to
individual merit
By contrast, education policies ushered in after the Second
World War set out deliberately to break down social barriers.
This ‘second wave’ of education reform, as Philip Brown
describes it, involved an ideological shift ‘from the provision
of education based upon what Dewey called the “feudal
dogma of social predestination” to one organised on the
basis of individual merit and achievement’.53
The first step
was to increase participation in secondary education from
low pre-war levels to achieve a ‘secondary education for all’
– a core tenet of the 1944 Education Act. Under the terms of
the Act, local education authorities were required to provide
state-funded secondary education for all pupils, up to age
15.54
The Act made explicit reference to the differential abili-
ties of pupils: schools were required to provide education
that incorporated “instruction and training as may be desir-
able in view of their different ages, abilities and aptitudes”.
In practice, local authorities focused rather more on
providing sufficient schools than on meeting the differenti-
ated needs of individual pupils. While the Act itself did not
define the types of secondary school to be provided, the
Ministry of Education issued firm guidance stipulating a
tripartite system of grammar, technical and secondary
modern schools – though the system that actually emerged
What’s fair? Applying the fairness test to education
30
was largely bipartite, since few technical schools were estab-
lished at the time, and had widely disappeared by the
1960s. 55
The dominant system in the post-war era was
therefore bipartite and selective, with grammar schools
for those who passed the 11-plus exams (proportions
varied, but averaged about 30 per cent), and secondary
moderns for the rest.
Underpinning selection to different types of school lay
a series of assumptions about differential ability and the
appropriate form of education for different ‘types’ of
learners – a notion of intelligence based on the premise
that there was a limited pool of highly able individuals in
society who needed to be selected and promoted through
the education system. Thus, despite the aspiration to
break down social class barriers to education, the 1944
Education Act was far from fully inclusive or comprehen-
sive. In fact, the 1944 Act brought in a system of classi-
fying pupils which led to a significant minority being
deemed ‘uneducable’. About half of children designated
with special education needs were excluded from main-
stream schooling for the next thirty years, until the
Warnock Report and the 1981 Education Act introduced
multi-agency assessment of children’s learning needs.
Although formal selection at age 11 is now a minority
experience, the underpinning assumptions of a selective
system have had a long legacy: to this day, there is still a
pronounced tendency for students to follow socially deter-
mined tracks that conform to and confirm an existing
‘type’ of learner. It was precisely these assumptions that
were challenged by critics of selection, who argued for a
less rigidly differentiating system of education.
31
What’s fair?
Comprehensives: embodying the principle of equality
If the tripartite system enacted after 1944 embodied a prin-
ciple of differentiation, the comprehensive system that
replaced it in many parts of the country embodied a prin-
ciple of equality or equal concern. In the post-war period,
there was increasing dissatisfaction with formal academic
selection at age 11. Crucially, objections to the 11-plus exam
came from parents of all backgrounds – including middle-
class parents, whose objections were ultimately to prove
most politically influential. Beginning in the early 1950s,
comprehensive schooling began to replace the selective
system, with a more rapid expansion led by Labour
Education Minister Anthony Crosland in the mid-1960s,
often through the amalgamation of secondary modern
schools and grammar schools. In contrast to selective
schooling, the comprehensive system was premised on an
explicit goal to promote educational inclusion and promote
social integration between pupils from more and less disad-
vantaged backgrounds.
The rise of a new ‘parentocracy’: school choice and school
standards
By the 1970s, however, criticism of the comprehensive
system was growing, amidst claims that pupil performance
or school ‘standards’ were on the wane. Although
supporting evidence for these assertions was often lacking, a
series of influential papers set out the need to defend ‘merit’
and ‘excellence’ against a ‘creeping mediocrity’ that had
allegedly been allowed to infiltrate schools in the name of
social justice.56
Under Conservative education ministers in
What’s fair? Applying the fairness test to education
32
the 1980s and early 1990s, the new dominant themes were
school ‘standards’ and school ‘choice’.57
This led to a series
of market or quasi-market reforms designed to improve
performance by generating competition between institutions
and to allow for a greater expression of parental choice.
This agenda gave rise to a curious mixture of centralised
control and devolved power to schools, more or less explic-
itly designed to erode the power of local authorities. These
market reforms combined a liberal impulse to broaden
competition, extend consumer choice and break up state
monopoly of provision (through measures such as the intro-
duction of ‘local management of schools’, which by-passed
local authorities by devolving power for resource manage-
ment to the school level), with a more authoritarian attempt
to extend government control over the organisation and
content of schooling (most notably through the introduction
of a centrally prescribed national curriculum, and the intro-
duction of a national programme of assessment at key
stages).
As Philip Brown describes it, what was distinctive about this
wave of education reform was a shift from ‘the ideology of meritoc-
racy’ to the ‘ideology of parentocracy’: in practice, this meant a
move towards a system whereby the wishes (and wealth) of
parents was a more important factor shaping children’s learning
experiences and outcomes than the abilities and efforts of pupils.
Practising a form of ‘selective minimalism’, central government
assumed greater control over the content of education, but without
having to take responsibility for the consequences of market compe-
tition. Instead, this responsibility was devolved to parents, who
were then expected to exert pressure on schools to improve their
performance, through the exercise of consumer choice in the
school marketplace.
33
What’s fair?
Meeting the challenges set out above requires a more demanding assess-
ment of fairness than is often applied in education policymaking. Here
we abstract five key principles from the preceding analysis, against
which we can test existing policies and design future reforms.
First, fairness demands that policy proposals pass a simple, basic test
of closing gaps in attainment and participation between those from
more and less advantaged backgrounds. The common lesson from both
meritocratic-selective and choice-based school systems is that far more
needs to be done to break the link between family background and
educational attainment. According to its own logic, an elite meritocratic
system is not fair because it does not do enough to break the link
between family background and educational opportunity. While the
intention is to widen access, too often the effect is to grant or withhold
access to powerful and prestigious institutions on the basis of birth,
family connections, parental income or social influence.
From an egalitarian perspective, the very least that could be required
of a fair education system is that it does no harm, in the sense that it
does not allow gaps to widen – a test which the education system at
present does not manage to pass. To achieve the more ambitious goal of
closing gaps demands that resources are used to promote the life
chances of all children, whilst boosting the attainment of children from
the most disadvantaged backgrounds, to ensure that the gaps in attain-
ment and participation start to narrow. This will involve a significant
element of need-based allocation of education funding.
Second, at an institutional and classroom level, fairness demands
enough diversity of provision to ensure diverse needs are met, but,
crucially, without systematically separating, labelling or stigmatising
pupils. This is essential to honour the principles of equal citizenship and
equal status on which our education system must be based. There may
be a strong case for separate institutions in the case of the most severe
learning difficulties, where specialist treatment may be thought to be
preferable. But where specialist provision is made, the onus should be
on providers to minimise the detrimental effects of being separated
What’s fair? Applying the fairness test to education
34
from other pupils. At the classroom level, while groups may need to be
sufficiently differentiated to cater for the full range of needs, it is impor-
tant that whatever grouping strategies are used do not undermine equal
status and respect. And while differentiation is an essential part of class-
room practice, a fair system must avoid ‘sorting’ children into separate
institutional ranks at early ages, which can then act to close down
options and possibilities for their future education.
Third, educational structures and processes must be able to show that
they are able to create proper incentives to motivate and inspire
learners, as well as rewarding effort and achievement – without
allowing the system to be distorted in favour of the most privileged. As
we have seen, the meritocratic principle is a powerful one in education:
the idea that places and opportunities should be decided on the basis of
ability and talent, not wealth and status, has underpinned successive
waves of educational reform in the post-war period. But despite its
widespread appeal, the problem with educational practices designed on
supposedly meritocratic lines is that too often in practice they actually
mask the extent to which family background factors still predominate.
We need then to show that educational structures and processes create
proper incentives for all learners, and expose the disincentives within
the system that too often hold back children and young people from
disadvantaged backgrounds.
Fourth, fairness also demands a more extensive form of choice – to
give every person more choice and control over when and how they
learn throughout their lives, not just limited to compulsory schooling.
The current system is fixated on one particular choice – the transition to
secondary school – at the expense of others. A variety of reforms and
new institutional structures would be needed to give individuals more
choice and control over when and how they learn, including more flex-
ibility around tertiary education and a dramatic expansion of the oppor-
tunities for continuing education.
Fifth, a fairer education system would do much more to promote
greater engagement and interaction between people from different
What’s fair?
35
social backgrounds. Holding government to account on this score is
crucial: we know that children’s peer groups and families’ wider social
networks are an important influence, shaping children’s performance
and aspiration. Diversity of provision and choice must therefore not
come at the expense of social inclusion and integration.
* * *
In this chapter, we have asked what a fair education system might look
like and on what principles and values it would be based. We have then
used this analysis to formulate some principles of a fair education
system, against which we can test existing policies and design future
reforms. Before turning to these tasks in later chapters, however, we first
briefly look at public attitudes towards fairness in education – to see
what we can learn here for approaches to reform.
3 | Who cares? What the publicthinks is fair
How do the principles and competing interpretations of fairness
set out so far relate to public views about fairness in educa-
tion? In this chapter, we consider what the public thinks is fair,
drawing on original public attitudes research based on deliberative
focus groups and survey data. Importantly, rather than just a superficial
snapshot of opinion, we draw on the research to explore the underlying
drivers of people’s beliefs and the distributive norms they use in
different circumstances when making judgements about fairness.
As we shall see, while our analysis of public attitudes indicates a
general and widespread willingness to compensate for disadvantage,
people tend to be rather more cautious about changes that would mean
taking advantages away from those who have them. Thus, there is
much greater consensus about the fairness of allocating additional
resources to disadvantaged pupils than there is around proposals for
changing admissions processes in the school system.
Of course, whilst a study of public attitudes is relevant and highly
salient to questions of fairness and how we think about them, in no way
do we wish to suggest that what the public currently thinks is fair
38
What’s fair? Applying the fairness test to education
should somehow set the limits of what is possible or desirable in educa-
tion policy. It is also important to consider the wider political discourses
that influence and shape people’s views, by encouraging them to draw
on particular norms or by making certain values appear more appro-
priate in particular circumstances. Indeed, as we argue later, a key part
of the challenge in building a political consensus for more fundamental
educational reform lies in changing the political discourses that influ-
ence and shape what the public thinks is fair.
Awareness of the class gaps in educationThe links between children’s family circumstances and parental
resources, on the one hand, and their chances in education, on the other
hand, are widely recognised. Survey evidence shows that not only are
people aware of the difference that parents’ income makes to children’s
life chances, but that nearly seven in ten think that parents’ income
plays too big a part in shaping children’s chances.59
In deliberative research conducted by the Fabian Society in 2008 and
2009, we wanted to explore the extent to which people are aware of the
social class gaps in education, to what extent it is regarded as a problem
and also how people respond to evidence of social inequalities in educa-
tional attainment and other outcomes. The research comprised five
deliberative focus groups (with eight participants each) and three full-
day deliberative workshops (with 16 participants each), carried out in
four cities across the UK: London, Bristol, Sheffield and Glasgow. The
participants for all these groups were aged between 25 and 65, and
drawn from the full range of socio-economic positions, with a broad
range of political affiliation or party identification. (For more detail, see
Bamfield, L. and Horton, T. (2009) Understanding attitudes towards
tackling economic inequality, York, Joseph Rowntree Foundation.)
Importantly, children’s family background is seen to make a differ-
ence in education in part because of the educational advantages that
money can buy. In the discussion groups, participants acknowledged
39
Who cares?
the difference that money makes in education, especially in terms of a
“wider choice of schools”, and access to private education, which was
seen as offering “better teachers”, “smaller class sizes”, and “better
behaviour” in the classroom. There was a perception that it is easier for
more affluent parents to encourage their children’s talent because they
have the financial means to do so. As participants put it, “money gives
you more choices” and “more options”, as well as providing the right
“contacts” and opportunities for “social networking”.
The impact of unequal resources is perceived to fall both on the oppor-
tunities that children have available and the outcomes they are likely to
achieve. As one participant said, if you have two children who are
equally talented but from different economic backgrounds then it will
be much easier for the child from a wealthier background to be
“nurtured” and therefore “progress”.
But while money is associated with greater advantages in education,
not all the differences in opportunity are perceived to be financial.
Perhaps the strongest determinant of children’s success, both in educa-
tion and in life more generally, was seen as the unequal nature of
parental support, time and engagement in their children’s education. In
the discussion groups, attitudes tended to vary between more judge-
mental comments, which blamed parents in low socio-economic groups
for not making time to support their children, to more empathetic
views, which recognised the greater pressures facing families on lower
income that might then detract from parents’ time and ability to support
their children.
Concern about barriers and disadvantages ineducationThere was also concern about the barriers that lack of money can
create in education and awareness of the educational disadvantages
faced by pupils and schools in more deprived areas. Participants
referred to problems such as more challenging pupil behaviour and
What’s fair? Applying the fairness test to education
40
poor discipline, as well as greater difficulties in recruiting and
retraining experienced teachers. Evidence presented to the groups on
the higher rates of teacher turnover in more deprived areas accorded
with their personal experience.
Lack of money was seen to be a particular disadvantage when it
comes to higher education. The costs of university, both tuition fees and
living costs, were seen as preventing young people from lower-income
families from continuing in education. There was also awareness, espe-
cially amongst participants who were themselves from more disadvan-
taged backgrounds, of the ‘opportunity costs’ of continuing in full-time
education for lower-income students, as these young people were seen
as facing greater pressure to enter employment rather than pursue
further training or education.
Public support for addressing the gap in resourcesIn general, there was a broad consensus across our discussion groups
about differences in educational experiences and opportunities in
Britain today.
With regard to the fair distribution of school funding, there was a clear
sense across all the discussion groups that school resources should be
distributed in part according to need, with greater resources targeted at
more deprived areas. Importantly, attitudes towards progressive
spending went further than merely general expressions of support:
evidence from both the discussion groups and our own survey suggest
that people are willing to see extra resources allocated to disadvantaged
children, even if it means fewer resources being available for ‘people
like themselves’.
Asked how the money should be divided between three imaginary
schools, many participants initially reached instinctively for norms of
equality, calling for identical treatment for all schools and pupils:
Shouldn’t it all be standardised? They should all get the same
money. They’re all the same as they walk through the door.
41
Who cares?
(Male, Bristol)
I think it’s got to be the same for all. I mean, teachers are
paid the same whatever school they’re in. (Female, Bristol)
You see initially I thought that, they should all get the same
money. (Female, Glasgow).
As the discussions progressed however, there was recognition and
general agreement that the local area, capacities, and intake of the
school should be taken into account when distributing resources.
Thus, an instinctive view of fairness expressed in terms of strict
equality or identical treatment developed into the idea that fairness
would require additional spending for some pupils, based on educa-
tional need:
I think every school should have the same straightforward
budget, and then, you look at the factors, and add on
modules, responding to those factors (Male, Bristol).
Yes, yes (Male and female, Bristol).
This basic formula, consisting of a standard amount of money for every
pupil, with extra funding for schools in more difficult circumstances on
the basis of need, was consistently seen as fair across each of the discus-
sion groups. This conclusion was also backed up by our polling,
conducted in 2009: 50 per cent of poll respondents supported “offering
higher pay to more experienced teachers to work in the most chal-
lenging and difficult schools” (with 28 per cent opposed), even when it
meant that ‘less money is available for schools in less deprived areas’.
To explore the depth of this commitment further, participants were
also asked about the fair allocation of resources within a school and
which pupils should receive additional learning support. Asked who
‘deserved’ the extra support, participants generally thought that any
What’s fair? Applying the fairness test to education
42
additional resources should be spent helping those who need it the most
rather than awarding it to the most talented. As participants expressed
it, additional spending on learning support should “go towards those of
lower ability to bring them up to the level” and to “help those who are
less fortunate”. Some participants described this as a moral decision, “a
gut reaction, morally”.
A few participants expressed concern that teachers’ time and attention
can be concentrated on disruptive pupils at the expense of others in the
class. But for the most part participants recognised the benefits for all
pupils, including their own children, if dedicated support was given to
pupils with behavioural problems.
Many participants thought that ‘bright’ children “should be alright on
their own”, so did not require special resources, though there was also
a sense from some participants that “it would be nice to nurture ones
who could be high flyers”. Among participants from lower socio-
economic groups in particular, there was also recognition of the barriers
that might prevent children from more disadvantaged backgrounds
from being ‘high flyers’.
Our poll data shows that this support for needs-based spending, with
greater resources targeted at more deprived areas, extends to public
spending on the early years. Some 47 per cent supported the idea of
providing ‘intensive support and advice to the most disadvantaged new
parents, with home visits by specially trained nurses’ (with 25 per cent
opposed), even when it meant ‘fewer health visitors are available for
other families’. (This support increased to 60 per cent, with 15 per cent
opposed, when evidence from the US on the effectiveness of such inter-
ventions was mentioned prior to the question.) People are convinced
not only by the ‘business’ case for early intervention – the argument that
‘prevention is better than cure’ – but also by the moral argument for
early intervention.
It seems, then, that people do care about disadvantage and unequal
chances in education, not just in a general or abstract way, but to the
extent of being willing to see more public money and resources going to
43
Who cares?
support children and infants from less advantaged backgrounds, even
when it means fewer resources for ‘people like them’.
More ambivalent attitudes about fair processesand structuresWhile people are quite happy with allocating educational budgets with
reference to pupil needs, public attitudes are more ambivalent when it
comes to allocating places at schools and universities.
In the first instance, when asked about fair access to the most popular
schools, there is a clear and widespread view that current arrangements
are skewed unfairly in favour of more affluent or capable families. In the
discussion groups, many aspects of existing admissions systems were
seen as unfairly benefiting parents “who shout the loudest” or have
greatest resources. Allocating school places according to geographical
location was seen as benefiting those who can afford to live in the most
sought after areas, while participants spontaneously brought up exam-
ples of parents who “play” or “cheat” the admissions system, for
example by moving house or lying about their address on applications.
At the same time, however, participants were generally unwilling to
condemn parents, even when they go to such lengths to secure a place
at their preferred school. Some participants excused behaviour such as
lying about information on application forms on the grounds that “it’s
up to you, if you want to do that much for your child” (Female,
Glasgow). Across the groups, there was a strong theme that parents who
seek out educational advantages for their children are “just doing the
best for their kids”. As one participant expressed it: “basically you do
whatever’s best for your kids, don’t you, I suppose” (Male, Bristol).
Thus, while aspects of the system are seen as unfair in creating
different opportunities and outcomes, the individuals concerned are not
felt to be to blame for taking advantage of those opportunities where
they exist.
What’s fair? Applying the fairness test to education
44
In the main, although people are dissatisfied with the existing system,
they are yet to be convinced by the case for alternative ways of allo-
cating places, which are seen as creating different problems and disad-
vantages. Survey data provides some evidence of public support for the
principle of ‘fair access’ – and a preference for ‘fair access’ over
‘maximum choice’ or ‘institutional diversity’. But beyond this, specific
proposals on changing the admissions system are strongly contested –
as demonstrated by the hostile reaction of many local parents to the
introduction of lottery allocation procedures in areas such as Brighton
and Hove. This ambivalence was evidence in the discussion groups,
where although there was general support for tightening the school
admissions code, even here there was controversy around how far local
authorities should actively police the rules around fair admissions.
Views on the fairness of selective schoolingParticipants in the discussion groups were divided in their views of
selective schooling. Some participants were firmly opposed to academic
selection at age eleven, pointing to the negative consequences for chil-
dren on the receiving end, and the “feelings of worthlessness” such
systems can engender. Other participants defended selection, arguing
that “some sort of system such as the 11-plus” may be suitable for
”sorting out gifted people”.
Survey data confirms this mixed picture: surveys reveal that roughly
half of the public support a mixed comprehensive and grammar school
system, with a slightly higher preference expressed by people in social
classes ABC1 (54 per cent) than C2DE (43 per cent). As we might expect,
greater divergence exists amongst people of different political persua-
sions: almost three-quarters (71 per cent) of Conservatives compared to
just one third of Labour supporters (30 per cent to 39 per cent) are in
favour of admissions via formal selection.
What lies behind these views? One theoary is that the level of support
for grammar schools seems to accord with people’s appraisal of the
45
Who cares?
benefits of such a system for their own families: roughly the same
proportion of respondents support a grammar school system (49 per
cent) as think that a mixed comprehensive and grammar school system
is best for school children in families like their own (48 per cent). If
correct, then given that a much smaller proportion (usually one fifth) of
children are actually admitted to grammar schools in practice, this
suggests that those in favour of a grammar system tend to overestimate
their own child’s chances of being selected – and raises the question as
to whether people would be less supportive if they knew what the
actual chances were.
Nevertheless, it would be a mistake to assume that people’s views are
motivated solely or even predominantly by self-interest. Public support
may also reflect a commonly held view that grammar schools work to the
benefit of children from poorer backgrounds. In the discussion groups,
some participants defended academic selection on these grounds, saying
that processes such as the eleven plus were a potentially useful way of
locating and helping students from poorer backgrounds who have the
potential to be ‘high flyers’. In this regard, some participants expressed a
classic meritocratic position, viewing academic selection as preferable to
systems based on private education, since it is seen as fairer to allocate
places according to merit than according to wealth.
In the case of university places, however, many people regard a
results-based admissions process, based on interviews and exam
performance, as the fairest way of determining places. Even though
there is wide recognition that individuals from more affluent back-
grounds have more advantages in education than others, people do not
generally think that family background should be taken into account in
university admissions processes. Not all subscribe to this view: some
people think that it is fair to take account of early educational experi-
ences. But in the main, the dominant view is that students who achieve
the best results deserve a place at the top institutions, because they have
demonstrated their suitability for those places.
What’s fair? Applying the fairness test to education
46
Summary: support for compensation butambivalence about reform of admissions In summary, we have seen that people’s views about fairness in educa-
tion are characterised by a degree of ambivalence: although people are
often uneasy about aspects of the system, they may still be inclined to
defend it or be resistant to change. Thus, while our analysis of public
attitudes has indicated a general and widespread willingness to
compensate for disadvantage, we have also seen that people are gener-
ally cautious about changes which would mean taking advantages
away from those who have them.
Importantly, it would be wrong to dismiss resistance to reform as
simply self-interested. We need to understand why so many individuals
and groups who are disadvantaged by the current system are still
willing to uphold it and why changes in the interest of pursuing greater
equality are often seen as more unfair than the status quo.
Drivers of public attitudes: belief in the availabilityof opportunity In some cases, people display a degree of fatalism or inevitability,
expressing a belief that the system is impervious to change. In other
cases, they are aware of problems with the current system but are
unpersuaded by any of the possible alternatives.
Above all, however, resistance to reform often stems from a belief that
even if opportunities are not strictly equal, there is enough opportunity
available in the current system to make it justifiable. As we have argued
elsewhere, an important driver of public attitudes towards fairness in
the allocation of welfare and public services is a belief in the ready avail-
ability of opportunity – not a belief that opportunities are strictly equal,
but that there is enough opportunity for individuals to get on in life if
they really want to.60
Partly this is because people have a strong
tendency to avoid comparing themselves with those in more advan-
taged positions. As Lane’s classic 1959 study of attitudes to equality
47
Who cares?
observes, ‘A person who can improve his position one rung does not
resent the man who starts on a different ladder half way up’.61
As we argue further in the final chapter below, these findings have
implications for the political arguments that are likely to be persuasive
in making the case for educational reform. While egalitarians may be
convinced of the case for action, simply having a ‘say it louder’ version
of traditional egalitarian arguments won’t achieve this.
49
The new Coalition Government has said it will place fairness and
social justice at the heart of its agenda for government. The
Secretary of State for Education, Michael Gove, has unveiled a
series of reforms with the express intention of helping improve
outcomes for disadvantaged groups. But to what extent do the headline
policy proposals – the new Pupil Premium, the expansion of the
Academies programme and the introduction of new ‘free schools’,
alongside the ‘refocusing’ of Sure Start children’s centres – pass the most
basic of fairness tests, to narrow the gaps in pupil attainment and partic-
ipation?
In this chapter, we apply the fairness tests set out earlier to assess the
new Government’s headline education policies. We also look more
widely at some important reforms for narrowing the gap in both expe-
riences and attainment at different stages of the education system,
drawing on the analysis of previous chapters.
The priority for progressive campaigners in coming months will be to
defend and protect public funding for key areas of education policy in
the upcoming spending review. To name just one example, recent cuts
4 | Learning the lessons for politicsand policy
50
What’s fair? Applying the fairness test to education
to the Building Schools for the Future programme are a particular
concern, since ensuring high-quality facilities for all is a central element
in reducing inequalities in educational experiences and in improving
the social image of all schools.
But while we need to be realistic about what can be achieved in the
short- to medium-term, it is also crucial to keep a sense of what is
needed beyond the immediate constraints of the current fiscal climate.
Looking ahead, we need to think more ambitiously and imaginatively
about what can be achieved in tackling educational inequality. An
agenda for change is needed for the next thirty years, not just for the
five-year period of this Parliament.
An uneasy relationship between ‘standards’, inclusion,
diversity and choice: Labour’s education policy 1997 to 2010
Whereas Tony Blair famously declared back in 1996 that
Labour’s top three priorities in office would be “Education,
Education, Education”, in the event, the focus of Labour’s
education policy was predominantly on “Standards,
Standards, Standards”.
In Labour’s first term, the standards agenda was pursued
most assiduously in relation to primary schools, with new
initiatives to improve the quality of teaching and learning in
literacy and numeracy and to reduce class sizes for children
up to age seven.62
Drawing on the recommendations of
Michael Barber’s Literacy Task Force,63
the Labour govern-
ment introduced the daily literacy hour in 1998, part of a
new National Literacy Strategy.64
After a significant increase
in central government control of the curriculum under the
previous Conservative government, the new national strate-
gies for literacy and numeracy signalled that greater control
was now to be exerted not just over what was taught in the
51
Learning the lessons for politics and policy
classroom, but also how it was to be taught.65
In addition to the national strategies, the Government
sought to improve levels of pupil attainment and school
performance by extending the national system of assess-
ment, with increased testing of pupils at key stages one and
two. In accordance with previous policy, public comparisons
of school performance, through devices such as league
tables, were intended to improve ‘standards’ by providing
schools with an incentive to better their positions.
Labour’s second term in office from 2001 saw the re-emer-
gence of the ‘choice and diversity’ agenda previously initi-
ated under the Conservatives in the early 1990s, which
encouraged schools ‘to differentiate themselves according to
their individual ethos, special character and areas of
specialist expertise’.66
The emphasis on diversity led to a
whole raft of new school types – various Specialist schools,
Foundation schools and Beacon schools, along with
Academies and Trust schools – all intended to increase the
institutional choice available to parents and pupils.
School diversification was encouraged and promoted by
much greater investment in school renovation and capital
building projects through the Building Schools for the
Future programme, as well as overall increases in levels of
school funding. To promote the efficient and effective use of
resources, central government deployed a raft of perform-
ance measures, targets and indicators, as well as utilising the
system of inspection and regulation, and, as a last resort,
intervention in ‘failing’ services.
Labour’s schools policy therefore relied on two main
mechanisms to promote schools’ performance and to incen-
tivise improvements in educational attainment: first, the
continued use of market (or quasi-market) mechanisms
What’s fair? Applying the fairness test to education
52
designed to promote parental choice and school competi-
tion and so raise ‘standards’; and, second, the more exten-
sive use of ‘top-down performance management’ as a tool
for monitoring and directing education practice.
Both types of approach were subject to significant levels
of criticism. First, critics on the left reiterated long-
standing concerns about the stratifying and segregating
effects of choice- and competition-based policies. In their
view, an inherent contradiction exists between ‘choice’ and
‘equality of opportunity’, since greater market forces in
education result in schools choosing pupils rather than
pupils choosing schools. Second, critics warned that the
increased use of centrally-imposed performance measures
and targets creates perverse incentives and distorting and
unintended effects on school practice
In the event, both types of criticism were born out by
empirical evidence. For example, case studies and quanti-
tative research demonstrates that school choice policies,
combined with league table competition, have placed
special needs pupils, pupils from ethnic minorities and
those from lower-income backgrounds at a disadvantage
as compared to their peers.67
These concerns came to a head following the publication
of the 2005 Schools White Paper: ‘Higher Standards, Better
Schools for all’ and during the passage of the 2006
Education and Inspections Act, which set out plans for the
introduction of new Trust Schools, to be awarded greater
independence from local authorities and powers to exer-
cise greater autonomy over the curriculum. These debates
are instructive for our purposes, because they foreshadow
debates that are likely to accompany the passage of new
53
Learning the lessons for politics and policy
legislation under the Coalition Government to usher in a
new generation of ‘free schools’.
The ‘standards’ agenda, based on improving school and
pupil performance, which had been such a strong feature of
Conservative education policy between 1979 and 1997,
continued to dominate Labour’s education policy from 1997
to 2010. And yet, under Labour there were also more
concerted attempts to marry the drive to improve ‘stan-
dards’ with new efforts to promote social and educational
inclusion.
From the outset, while the principal focus was on raising
general levels of attainment, Labour’s education policy also
included measures aimed at narrowing the education gaps,
by tackling the low levels of attainment concentrated in the
most deprived areas and schools, including large increases
in disadvantage-related funding. As part of its ‘social exclu-
sion’ agenda, Labour’s first term saw a flurry of activity,
with a range of programmes – such as Education Action
Zones and the Excellence in Cities programme – targeting
specific areas with additional funding. These programmes
aimed to encourage the inclusion of pupils in schemes such
as breakfast and homework clubs, in order to motivate
pupils and improve attitudes to school activities and
learning. Evaluations reported an observed decrease in
permanent exclusions in the respective schools, but little or
no effect on the levels of attendance overall. Improved stan-
dards in test scores were observed at Key Stage 1 but little
improvement was seen at Key Stage 2 and Key Stage 3. In
general, the programmes went some way to encouraging
inclusion but made only small improvements to standards
as a whole.
What’s fair? Applying the fairness test to education
54
While these area-based initiatives contributed to a slight
narrowing of the attainment gap by 2001, research showed
that there was still a significant disparity in the performance
of pupils from ‘high’ and ‘low’ income schools (defined
according to the percentage of pupils who qualified for free
school meals). In 2001, pupils from higher socio-economic
backgrounds were still more than twice as likely to achieve
five or more A-C grades as pupils from routine occupation
backgrounds. As a group, pupils eligible for free school
meals were still performing notably worse than other pupils
at Key Stage 3, and were far more likely to leave school
without any GCSE passes. So despite some good progress,
Labour needed to be far more ambitious.
Perhaps the most distinctive aspect of Labour’s inclusion
agenda was its vision for early years education and child-
care, based on a network of children’s centres, offering a
safe, enriching and nurturing environment for children to
play in and interact socially, combined with a wide range of
services and support for families. In practice, although the
vision of a universal early years service was widely
supported by the children’s sector and by experts in early
years development,68
the promise has yet to be fully
realised.
There was also increased support for the most disadvan-
taged groups of children and young people, for example
through the Ethnic Minority Achievement Grant, and inten-
sive courses for children of asylum-seekers and refugees,
while the Children’s Fund was created to help prevent chil-
dren from falling into drug abuse, truancy, exclusion, unem-
ployment and crime, by paying for services such as
mentoring programmes, parenting education and support,
counselling and advice.
55
Learning the lessons for politics and policy
However, despite the additional resources directed at
schools and children’s services in deprived areas, it also
became apparent that additional funding was not reaching
disadvantaged schools and pupils in full – in part because
local authorities continued to allocate resources on a
historical basis rather than on the basis of need.
A broader and more inclusive education: making every
child matter
A more significant departure from the ‘standards’ agenda
came half way through Labour’s second term, with the
emphasis on general well-being and a broader and more
inclusive education in the 2003 Green Paper: ‘Every Child
Matters’. This stressed the importance for every child,
whatever their background or their circumstances, to have
the support they need to be healthy and safe, achieve and
make a positive contribution. A priority was made to iden-
tify children and young people at risk of social exclusion
or harm at an early stage and to make sure they receive
the help and support they need to achieve their potential.
The ‘Youth Matters’ 2005 Green paper developed this
approach and extended the Every Child Matters agenda
up the age range. ‘Youth Matters’ set a new target for all
young people to ‘have access to a variety of activities
beyond the school day’ by 2010. The aims were to provide
access to sporting and other constructive activities in
clubs, youth groups and classes, and to provide children
with opportunities to make a positive contribution to their
community through volunteer work. Further plans were
outlined to establish local youth support teams, focused
on preventative work and early intervention with targeted
individuals, and to introduce a system of ‘lead profes-
What’s fair? Applying the fairness test to education
56
sionals’ to ensure that every young person who needs
support has someone to ‘take care’ of their interests.
Despite these efforts, there was little sign that the links
between family background and educational attainment
were closing by the end of Labour’s second term in office.
Research showed that by 2005 there was an even stronger
correlation between income and educational attainment,
with children from higher-income families experiencing
greater increases in attainment relative to children from
lower-income families.
Narrowing the gaps: a more explicit focus on breaking the
links between family background and pupil outcomes
Labour’s third term brought more explicit recognition of the
need to narrow education gaps between advantaged and
disadvantaged pupils, first by Education Secretary Alan
Johnson, and then by the Secretary of State for Children,
Schools and Families, Ed Balls. Importantly, the introduction
of new ‘gap’ targets in education signalled Labour’s recogni-
tion that the existing ‘floor’ targets had had unintended
effects in practice. Alongside the new targets for narrowing
the gaps in pupil attainment between children eligible for
Free School Meals (FSM) and their peers, the Labour
Government set out a range of measures designed to
‘narrow the gap’ in educational outcomes through targeting
resources more effectively towards disadvantaged students,
including: better tracking of pupils’ progress in the early
years foundation stage; intensive learning support for chil-
dren who start to fall behind; and efforts to widen participa-
tion, especially through raising the participation age to 18 by
2015. These efforts also included extra support through
57
Learning the lessons for politics and policy
information, advice and promoting positive role models.69
Alongside policies to narrow the gaps in formal qualifica-
tions, there was also a welcome and important focus on
narrowing the gap in educational experiences and opportu-
nities, through extended school services, broadening the
curriculum, and improving non-formal learning in a range
of settings.70
Finally, Labour also set out new plans to increase partici-
pation in education beyond the age of 16, building on the
Educational Maintenance Allowance. By setting out plans
for the Raising of Participation Age to 18, Labour Ministers
were finally realising the original intention of Rab Butler,
architect of the 1944 Education Act, to create an entitlement
to all young people to continue in education and training
until age 18.
1. A fair start? Transforming learningopportunities in the early yearsWhere now for the early years agenda? Under the previous govern-
ment, investment in the early years was a major plank of Labour policy,
heralded as the new ”frontier of the welfare state” by successive minis-
ters.71
At a time when some commentators on the right of the political
spectrum are clamouring to dismantle the welfare state, what is the
prognosis for early years education and childcare – is it a case of last in,
first out?
Importantly, the new Coalition Government seems convinced of the
case for providing the right support for children and families during the
critical first few years of life. Just as Labour ministers were persuaded
by the wealth of research evidence about the importance of public
investment in early years provision, new ministers also now subscribe
What’s fair? Applying the fairness test to education
58
to the importance of early intervention as the fairest and most effective
way of helping improve the outcomes of children, especially those from
more disadvantaged backgrounds.72
However, some in the Coalition Government have hitherto been less
firmly attached to a model of formal, centre-based early years learning
and childcare than the previous government were. Under the terms of
the Coalition Agreement, the new Government is committed to taking
Sure Start ‘back to its original purpose of early intervention and increase
its focus on the neediest families’ and has pledged to shift funding from
Sure Start peripatetic outreach services to pay for extra Health Visitors.73
Reaching the most disadvantaged groups Labour’s efforts whilst in government had started to transform provi-
sion for early years education and childcare. At the outset, the develop-
ment of new Sure Start Children’s Centres was concentrated in areas of
greatest deprivation, with the first centres originally opening in the
most deprived 88 wards in the country. Since then, the service has
expanded to achieve the goal of having a centre in every community in
the country: by the time the Labour Government left office in May 2010,
over 3,500 Children’s Centres had been opened nationally. So important
steps had been taken to achieve Labour’s vision of a universal early
years service – one which is widely supported by the children’s sector
and by experts in early years development.74
What is precisely meant by the new Coalition Government’s pledge to
‘refocus’ Sure Start back to its original purpose is unclear. From the
outset, Sure Start centres have been committed to welcoming all fami-
lies, while providing additional help for those with the highest needs
and practitioners show a high commitment to this aim.75
In addition,
evidence from the national evaluation indicates that all groups are
represented equally in the first phase of centres, located in the most
disadvantaged areas, and that all groups are benefiting equally from the
59
Learning the lessons for politics and policy
services available.76
Therefore, it is not the case that Sure Start centres
have been dominated by middle class families, as has been claimed.77
But there is certainly more to do to improve outreach to the most
disadvantaged families. As recent reviews of provision undertaken by
Ofsted, the Audit Commission and the Select Committee for Children,
Schools and Families have highlighted, children’s centres continue to
face challenges in engaging the most vulnerable groups, such as teenage
parents and parents with a substance abuse problem.78
Here, there is a danger that taking funding away from outreach serv-
ices to pay for new health visitors, as the Government had formally
pledged, will mean that health visitors carry all the burdens of coordi-
nating outreach activities with other sectors. This would be a mistake,
since evaluations to date have highlighted the need to ensure that chil-
dren’s centres are properly linked with all sectors: housing, social serv-
ices and adult specialist services in health and employment, as well as
primary schools and parent support advisors. Cutting the outreach
function from children’s centres would carry the risk that health visitors
would quickly become overburdened – and means that centres could
become even less able to reach the neediest families than at present.
There is a broader concern that the pledge to ‘refocus’ Sure Start
either means scaling back the services on offer (for example, by
reducing the Core Offer) or a restriction in the number of centres that
are open (see for example the recent Children, Schools and Families
Select Committee’s report on Sure Start Children’s Centres). On the
one hand, a more targeted service could help ensure that more
resources are focused on the most disadvantaged families; on the
other, it is important to recognise that although the neediest families
tend to be spatially concentrated – with half of ’multiple exclusion’
families living in the 20 per cent most deprived areas – this still leaves
a significant proportion of disadvantaged families located in areas of
lower deprivation. What is more, there are compelling reasons to
uphold a universal service – not only to provide important assistance
What’s fair? Applying the fairness test to education
60
to middle-income families, but also because a non-stigmatising service
is likely to be more effective at bringing in the neediest families; and
because the broader social mix in children’s centres means that chil-
dren from more disadvantaged families are able to benefit from social
interaction with a wider cross section of their peers.79
In conclusion, a network of children’s centres should be retained at
the heart of the early years strategy, based on a vision of achieving a
truly universal service with benefits for children and adults alike. In
terms of the priorities for early years policy over the short, medium- and
longer-term, we make the following points:
• Cutting funding for Sure Start Children’s Centres, or shifting
financial support to more informal provision, would risk harming
outcomes for children from lower socio-economic groups, who
research demonstrates have most to gain from the cognitive effects
of high quality early years education. In the current financial
climate, the most immediate priority will therefore be simply to
protect existing funding for early years education at the next
spending review, and in particular to protect funding for outreach
services in their own right.
• In the future, the priority will be to embed good practice and
ensure that the full value of investment is realised. Parts of the
sector are still relatively new and inexperienced, and need further
support to develop capacity to plan, measure and improve their
impact for families with high needs. Ultimately, achieving high
quality provision for all children and a service that promotes
employment will require investment in both a highly-trained,
professional workforce and a service that is free or heavily
subsidised at the point of use, available and accessible to all. This
requires a change to simplify the funding arrangements, which are
overly complex and confusing. One option would be to make
61
Learning the lessons for politics and policy
funding go to children’s centres rather than qualifying parents, to
achieve more stability in places (and so reduce the ‘churn’ that
comes from demand-side funding).
• Furthermore, having recognised the importance and persuasive-
ness of ‘invest to save’ arguments, the government now needs to
learn a second key lesson about what is essential for sustaining
progress over time. Investing in the 0-3 age group is certainly vital,
and helps make up for decades of neglect and under-investment in
early years provision. But without following up this focus during
primary schooling, the evidence shows that those important initial
gains in cognitive development will be lost. A high quality service
needs to be fully integrated within wider children’s services, with
early years educators working closely with their counterparts in
family services, health and social services and local primary
schools. In addition, centres must be properly integrated with
adult services, so that parents and other family members,
including grandparents, can access a full range of support, infor-
mation and advice services via children’s centres.
• Over the longer term, giving every child the best start in life means
investing in improving the pay, training and experience of the
early years workforce. Achieving the goal of a universal early
years service will require a higher proportion of government
funding for the under-fives to subsidise costs. Under Labour,
expenditure on early years and childcare more than doubled to
approximately 0.7 per cent of GDP, but this is still far below the
one per cent of GDP that the OECD sets as a benchmark for the
minimum level of public funding needed on early childhood
education and care. Although the current fiscal climate may well
preclude any immediate expansion of the early years service, there
is no reason to abandon the goal of a universal early years service.
What’s fair? Applying the fairness test to education
62
In the coming years, it will be crucial to reach the level of one per
cent of GDP as soon as economically viable.
2. Preventing the gaps widening in compulsoryeducationAs set out above, in its last term in office the Labour Government set out
a range of measures designed to ‘narrow the gap’ in educational
outcomes not only through targeting resources more effectively towards
disadvantaged students (for example, with intensive learning support
for children who start to fall behind) but also through information,
advice and promoting positive role models.80
Alongside policies to
narrow gaps in formal qualifications, there was also a welcome and
important focus on narrowing the gap in educational experiences and
opportunities, through extended school services, broadening the
curriculum, improving non-formal learning in a range of settings, and
plans for raising the Participation Age to age 18 in the coming years.
These policies represent important steps towards achieving fairer
outcomes for all, by helping to compensate for early disadvantage and
by redistributing resources towards children from deprived areas and
disadvantaged backgrounds. Over coming months, it will be important
that the Coalition Government does not lose momentum in these areas,
especially given pressures to cut spending. But it is also important to
recognise the slow progress that is being made in closing gaps in attain-
ment and participation, and the need to go further. In the future, a more
ambitious and far-reaching strategy is needed to address long-standing
inequalities, and to ensure that the system of schooling passes the most
basic of fairness tests – to prevent gaps widening during compulsory
education.
How well, then, do the new Coalition Government’s headline educa-
tion policies measure up? Here we look at some of their proposals that
pass the ‘fairness test’ and others that clearly fail.
63
Learning the lessons for politics and policy
The Pupil Premium and investment in teacher qualityProminent amongst the new proposals is the introduction of a Pupil
Premium. Building on large increases in disadvantage-related school
funding under the previous Labour Government, this will provide addi-
tional funding specially targeted at disadvantaged pupils, paid direct to
schools, with the express purpose of boosting their attainment and so
helping to narrow the sizeable gaps that remain.
At a time of considerable fiscal constraint, this commitment to secure
additional funding for disadvantaged pupils is therefore extremely
welcome. It should help to create a more responsive system, providing
incentives for schools to recruit pupils from disadvantaged areas. And
paying the premium directly to schools may help in correcting the
‘glitch’ in the system that tends to prevent local authorities from passing
on all deprivation funding to schools – especially due to measures intro-
duced after the school funding “crisis” in 2003/04 (like the Minimum
Funding Guarantee, by which local authorities were required to adhere
to historical funding levels for schools).81
Importantly, increasing funding for disadvantaged pupils is also in
tune with public beliefs about fairness in education: as we saw in the
previous chapter, there is strong public support for a progressive use of
resources in schools to meet the additional learning needs of children
from deprived backgrounds.
• However, the question remains as to how these additional school
resources can best be deployed. Under current plans, it will be for
schools to decide how best to use the funding for the benefit of
their deprived pupils – part of the new administration’s intention
to cut central prescription and increase freedom and flexibility for
local providers. But there is no guarantee that every school will
know how best to use these additional resources – or that they will
reach the most disadvantaged pupils. So the Government should
instead undertake to provide schools with the right support and
What’s fair? Applying the fairness test to education
64
guidance to ensure that additional resources are used effectively.
An immediate priority for the Coalition Government is therefore
to conduct a review of the most effective ‘gap narrowing’ activities
for schools, both to prevent underachievement from the outset,
and to ensure that initial gains already achieved through early
years learning are sustained. Without this, the risk is that some
schools will not use extra resources in an optimum way and the
attainment gaps will not be closed. It is also important to ensure
there are mechanisms in place to ensure that schools are account-
able for spending the extra resources effectively.
The Coalition Government has also pledged to “improve the quality of
the teaching profession by supporting Teach First and creating Teach
Now; and reform national pay and conditions rules to give schools
greater freedoms to pay good teachers more and deal with poor
performance”. Again, this is a welcome priority, since research demon-
strates that nothing is more important for determining pupil outcomes
than the quality of teaching. A key part of ensuring a fair funding
system is ensuring that schools with a challenging pupil intake are able
to provide incentives (including higher salaries) to recruit and retain the
most talented, energetic and committed teachers.
In particular, it is significant that the Teach First mission statement is
‘to close the achievement gap by helping top graduates become excel-
lent teachers in challenged schools, committed to leading in their
classrooms and overcoming the obstacles of deprivation in order to
increase access, achievement and aspirations for the thousands of
young people that lack the opportunities that many others take for
granted’.83
An expansion of the current programme, which recruits
and trains 500-600 of the best graduates each year, as well as the
creation of an equivalent programme for established professionals
looking to make a career change into teaching, therefore promises
important benefits for many disadvantaged young people.
65
Learning the lessons for politics and policy
• Support for these programmes, though very welcome, is not suffi-
cient, however. First, it also matters how teachers are deployed both
between and within schools. So in taking forward the commitments
in the Coalition Agreement, the Government therefore needs to
commit to addressing the deployment of teachers more generally.
Studies of successful schools also demonstrate the importance of
stable staffing.85
Yet, as we saw in Chapter 1, staff turnover is typi-
cally higher in more challenging schools. Measures are therefore
needed not only to attract and recruit excellent new teaching staff,
but also to provide the necessary support for classroom teachers to
ensure they retain that commitment and enthusiasm.
The hidden costs of educationOther Government proposals, however, do not fare so well in evalu-
ating how they will impact on educational inequality.
Children speaking first hand about their experiences of schooling
point to four main areas where lack of income creates material disad-
vantage and deprivation: (i) having difficulty affording essential items
for school such as books or course materials (as well as desirable addi-
tional items such as revision guides); (ii) being unable to afford the
school uniform; (iii) being unable to afford additional learning activities
such as school trips; and (iv) the ‘embarrassment of receiving free school
meals’ (Ridge 2009, p. 40).86
Here, there is a concern that, at the same
time as allocating additional funding via the pupil premium, the
Coalition Government is also considering actions that will exacerbate
rather than reduce the ‘hidden’ costs of education.87
• As with early years policy, there is a real risk that programmes of
particular importance for disadvantaged children will suffer from
spending cuts or retrenchment. A prime candidate here is the
extended schools programme, which seeks to broaden the
curriculum and wider learning opportunities of children and
66
young people, especially those from the most disadvantaged back-
grounds. Given the importance of extra-curricular activity for
developing a wider set of skills and capacities, fostering confi-
dence and independence, and promoting social interaction, it is
therefore vital for government to protect funding in this area.
Failure to do so risks widening inequalities in access to enriching
learning activities.
• Action is also needed to stop schools (often unwittingly)
contributing to children’s feelings of embarrassment through the
administration of free school meals. The most beneficial way to
remove this burden would be to extend the entitlement to free
school meals to all children, building on pilots in England and the
commitment to extend free school meals in Scotland. It is therefore
disappointing that the Coalition Government has already reversed
the planned extension of free school meals to families on the full
entitlement of tax credits. Not only would this have removed
stigma sometimes attached to receiving free school meals, and in
turn promote higher take-up, but it would also have addressed the
work disincentives for parents moving from out-of-work benefits
into work, who then lose their entitlement to free school meals.88
The extension of the entitlement to free school meals might not
necessarily be the top priority for new spending in the current
fiscal climate. But given the triple benefits of universal free school
meals – for children’s health, reducing stigma and removing disin-
centives for parents to move into work – this remains an important
goal for a better education system, as well as an important part of
a strategy for tackling wider economic inequalities in society.
School meals are one aspect of the ‘hidden costs’ of education,
reminding us of the ways in which education policy must be sensi-
tive to broader problems of income poverty and inequality.
What’s fair? Applying the fairness test to education
67
Learning the lessons for politics and policy
A divided system? Assessing plans for school reformAlongside the pupil premium, other central planks of the new
Government’s education policy include the expansion of the Academies
programme and the introduction of new ‘free schools’. Both reforms are
explicitly intended to create a more diversified schools system, based
around the themes of greater school autonomy, freedom from local
authority control and measures to increase the supply of places to allow
for more choice and diversity in provision.
As summarised earlier, the re-emergence of the ‘choice and diversity’
agenda under Labour led to a whole raft of new school types –
including various Specialist schools, Foundation schools and Beacon
schools, along with Academies and Trust schools – all intended to
increase the institutional choice available to parents and pupils. In this
sense, the Conservatives have positioned themselves as being the ‘heir
to Blair’ – recalling their decision to side with the former Labour prime
minister in the heated and contested debates around the 2005 Schools
White Paper and the passage of the 2006 Education Act. More broadly,
proposals for an expansion of the Academies programme and creation
of new ‘free schools’ signal a return to the ‘parentocracy’ ideal of the
early nineties.89
However, as discussed in Chapter 2, critics of the ‘choice and diver-
sity’ agenda express concerns about the divisive effects of such policies
– especially regarding the differential capabilities parents and pupils
have to take advantage of such systems, and the consequences of this for
their opportunities to access the most successful schools.
Before turning to the policies themselves, we would note a couple of
points:
First, the new Government’s rhetoric around ‘setting schools free’
does not necessarily match the reality. Looking at the percentage of deci-
sions taken at local and school level, England has the second most
devolved system amongst OECD countries after Finland, while English
schools actually enjoy greater autonomy than in any other OECD
What’s fair? Applying the fairness test to education
68
country apart from the Netherlands.90
It is therefore misleading to
describe English schools as being encumbered by bureaucratic ‘red tape’
and local authority control.
Second, it is impossible to ignore a contradiction at the heart of the
Coalition Government’s position, which is to want less government
control and allow greater local discretion and autonomy, on the one
hand, and yet at the same time to want a return to a more restricted
version of teaching in the classroom and more prescribed behaviour
management in schools, on the other. As Fraser Nelson of the Spectator
recently observed, this inherent inconsistency creates a ‘paradox’ for
David Cameron: “if they [schools] were independent, as he proposes,
they would be listening to parents, not the likes of him”.
This contradiction raises a deeper question about the Government’s
reform agenda: what are these principles of independence, diversity
and choice actually for? Are they driven by valuing principles like
‘choice’ as an end in themselves, or are they motivated by the conse-
quences that the application of such principles are assumed to have?
As argued above, it is important to have an open mind about such
policies. Whether or not one subscribes to the intrinsic value of choice,
there could be instrumental reasons for proposing a system based on
choice and institutional diversity that deserve proper scrutiny and
consideration – for example, seeing competition as an efficient way to
improve standards.
However, unless the motivation of this approach is purely ideological
– which its proponents insist it is not – then the Government must be
prepared to review the impact of these changes on issues such as fair-
ness and equality, and to constrain their reforms if they would impact
adversely here. So the key question is what the effect of the proposals
will actually be.
Who will benefit most from the Government’s intention to broaden
the Academies programme to allow all maintained schools to apply –
and, for the first time, to allow primary schools and special schools to
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Learning the lessons for politics and policy
be included in the programme? While the Government’s insistence
that new Academies must follow “an inclusive admissions policy” is
clearly important, it is doubtful that it will primarily benefit disad-
vantaged groups.
Certainly, the 200 or so existing Academies serve some of the most
deprived communities in the country: NFER research shows that
existing Academies admit higher proportions of pupils eligible for FSM
and pupils with Special Educational Needs compared to the propor-
tions living locally, and lower proportions of pupils with higher KS2
ability compared to the proportion living locally.
But the proposal to fast-track schools rated as outstanding will be
bound to benefit a far greater proportion of less disadvantaged schools
– those with below-average FSM intake. According to Ofsted, of 588
maintained primary schools judged outstanding in at least their last two
inspections by July 2008, less than a quarter were relatively challenged
by having a proportion of children eligible for free school meals above
the national average of 16.6 per cent.91
(And even fewer could be cate-
gorised as having a disadvantaged intake according to a more
demanding range of indicators.) So it seems that the first wave of new
Academies will be concentrated in less deprived areas, serving less
deprived families and children.
There is also real concern about the other aspect of the new
Government’s reform agenda, namely, plans to encourage a new gener-
ation of ‘free schools’. Under the rubric of creating more choice for
parents and ‘freeing schools from local bureaucracy’, the Conservative
manifesto set out plans to create hundreds of new schools based on
“Swedish-style” academies, arguing that this should become the norm
in secondary education.92
However, there is emerging evidence from Sweden that the introduc-
tion of such schools since the mid-1990s has generated increasing
inequality and segregation, whilst also coinciding with a decline in stan-
dards in key subjects. According to a recent report on the effects of these
What’s fair? Applying the fairness test to education
70
reforms by the Swedish National Agency for Schools (Skolverket), “In
addition to average grades having worsened in certain regards, the
spread of grade point averages has widened over time…The variation
in results between schools and between various groups of pupils has
become more pronounced. The analyses have also pointed to increasing
differences in grades attained by various groups of pupils (differenti-
ated by social background, gender, and ethnicity), but most particularly
between groups differentiated by parents’ educational background.”93
So the system has served to strengthen the link between parental back-
ground and future child outcomes, not loosen it. Another recent report
by the same organisation, found that over two-fifths of municipal heads
of education thought that setting up these schools had increased segre-
gation within their area, and heads from areas with a high proportion of
pupils in such independent schools were more likely to think this.94
Importantly, it does not seem as if this increased inequality and segre-
gation has been offset by rising standards; in fact, these reports also
show that overall standards in key subject areas have declined in
Sweden since the reforms were introduced – particularly in maths and
science, but also in some reading skills too.95
Given the very different capabilities and resources that parents and
pupils have to take advantage of such policies, the concern is that intro-
ducing a dynamic like this into our already-divided schools system
risks harming the life chances of disadvantaged children over the long
run by increasing and entrenching segregation between different social
groups.
Achieving a greater social and educational mixIn terms of the priorities for school reform in the longer term, then,
we need to recognise that increased funding for disadvantaged
pupils, though welcome, is not enough in itself to deal with some of
the really deep-seated problems of division and segregation within
our school system.
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Learning the lessons for politics and policy
We contend that it is not good enough just to accept this segregation
and seek to compensate those on the rough end of the deal with more
funding – to be happy to try and improve education for disadvantaged
kids provided they don’t mix with your own. And it is unlikely that
serious progress to narrow the gaps in attainment will be made if poli-
cymakers are simply prepared to accept a significant element of segre-
gation within the system. Certainly, evidence from the OECD’s 2008
Programme for International Student Assessment (PISA) demonstrates
the advantages of social and educational mix, as lower performing chil-
dren benefit from learning alongside their higher performing peers:
international comparisons point to the lower variance between and
within schools in less socially divided school systems. (Incidentally, this
is not to say that grouping strategies such as setting and streaming, or
making separate provision for those with the most severe learning diffi-
culties, are necessarily a problem; indeed, they are often an essential
part of educational practice. But, as set out in Chapter 2, where such
strategies are used, the onus is on schools to ensure they do not under-
mine a sense of equal treatment and status, and to minimise any detri-
mental effects of differentiation, such as stigmatisation.)
So the underlying vision has to be one of greater social and educa-
tional mix. And this means dealing with the aspects of our system that
tend to encourage and maintain this segregation, as well as promoting
more mixed communities outside of the school gates. From a policy
perspective, ‘success’ shouldn’t just be about ‘compensation’ for the
poorest students – through ‘pupil premiums’ and the like – within a
fundamentally unequal system; it has to also involve breaking down
social barriers.
Needless to say, taking action to achieve a greater social mix is far
from easy. One possible response would be to regulate admissions more
tightly or to reduce institutional diversity. But any such proposals
would be politically very challenging: admissions policies remain
extremely contentious, and any changes proposed in a local area, such
What’s fair? Applying the fairness test to education
72
as the use of banding or lotteries to allocate places, or changes to catch-
ment areas, are likely to be strongly contested.97
Imposing sweeping reforms across the whole system in a ‘top-down’
way would be the wrong approach: it would generate huge public
anxiety and would simply not be sustainable if many regard the
outcomes as unfair. Ultimately, we need politically sustainable solutions
to this problem, and this will require building a public consensus
around reforms to create greater social mix in education.
In the conclusion of this report, we briefly outline a longer-term
strategy for building such a public consensus. But in the first instance, it
is worth noting a variety of policy steps that should be taken to achieve
greater mix and produce a fairer system.
The first step is to enforce a fair admissions policy in all schools –
comprehensive, selective, faith-based, and independent alike. This does
not mean that all schools must be forced to adopt the same process of
admission. Nor would re-establishing the neighbourhood school prin-
ciple in admissions guarantee that the social divide would lessen; on the
contrary, such a move might have the unintended effect of accelerating
the migration of more well-off families from local areas with a mixed
intake. (As one recent study puts it, “In a situation where the differences
have grown too big, making the choice of school more difficult might
aggravate the differentiation of areas”.98
)
In fact, the new Government’s pledge to ensure a fair admissions
policy for all new Academies shows what can be done. By insisting on
a fair admission process from the outset, and committing to policing it
thoroughly, ministers appear to have learned lessons from the political
division generated by the 2005 Schools White Paper and subsequent
legislation, when the Tony Blair was forced to concede on the issue of
fair admissions as the price needed to prevent a backbench rebellion
against his plans for school reform.
Measures to ensure a fair admissions policy for schools also need to
go hand in hand with an agenda of creating more genuinely mixed
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Learning the lessons for politics and policy
communities – with income mix as well as tenure mix – to break down
social divisions outside schools. More integration between early years
and primary education could also be an important step here, since there
is far greater social mix in the former than the latter (Children’s Centres,
in particular, have often been a site of real social mix). And, of course,
heavy investment to improve the most disadvantaged schools will also
help over time, by making them more attractive to all parents. Again,
the vision needs to be not one of improving schools in disadvantaged
areas simply to benefit the poorest children, but to ensure that these
schools become not just for the poorest children.
And, finally, while we have said that a politically sustainable solution
here requires a long-term and multi-faceted strategy, what we can also
say is that reforms should be avoided that might further increase insti-
tutional segregation. It is for this reason that we would urge the
Government to rethink some of their recent reform proposals.
3. Helping young people negotiate stable andsuccessful transitions to adulthoodEarlier chapters noted the difference in educational pathways and
trajectories that tend to be followed by young people from more and
less advantaged backgrounds. Comparisons of the 1958 and 1970
cohorts demonstrate a growing polarisation between slow and fast tran-
sitions from adolescence to adulthood – that is, differences in the length
of time that individuals take to ‘progress’ into stable employment,
family formation and living independently. Some young people face life
events which force them to grow up very quickly; others are more
protected, able to enjoy a longer and smoother transition.
Of particular concern for policy-makers has been the association
between ‘fast’ transitions and a range of poor outcomes in adulthood:
young people who leave education early are more likely to have no or
What’s fair? Applying the fairness test to education
74
low qualifications, become parents early, have poor health and labour
market outcomes, and be at higher risk of experiencing poverty.
Under the previous Labour Government, a wide range of policy
initiatives over the last decade sought to increase participation in educa-
tion and support young people in the transition to adulthood, including
the ‘NEET’ strategy, the introduction of the Connexions Service,
Education Maintenance Allowances (EMAs), Activity Agreements and
Care 2 Learn (for teenage mothers), the partial redesign of the 14-19
curriculum and phased introduction of the new diplomas, and the
raising of the Education Participation Age to 18 in 2015. As a result of
these efforts, there has been some success in raising participation in
upper secondary education (particularly through the use of financial
incentives via EMAs), though less evidence of success in raising attain-
ment or closing the gap in soft skills.
But poor rates of participation and high rates of attrition by disad-
vantaged groups remain.99
In particular, various revisions of the NEET
strategy failed to reduce the proportion of young people who are not in
education, employment and training. This failure is particularly
worrying, given the long-term repercussions of youth unemployment,
which is a substantial driver of poor outcomes in adulthood (and the
subsequent transmission of poor life chances to children).100
Labour
clearly needed to be more ambitious here.
Although the individual components of the NEET strategy were valid
– early identification and tracking; personalised support and guidance;
a flexible mix of learning; and incentives to re-engage – what was
missing from the strategy was a comprehensive focus on prevention. If
the young person’s experience of schooling is already affected by earlier
negative experiences, then early identification will not address the
fundamental problem. To prevent the problem of early school leaving
and non-participation in education or training, we need to start by
changing those aspects of the mainstream education system which
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Learning the lessons for politics and policy
cause young people to become disengaged from learning in the first
place.
• Young people do not have a ‘blank canvass’ for making decisions
about their future. Individuals make decisions within ‘horizons for
action’, which are shaped both by their life histories and interac-
tions with other people, and their emerging social identity as a
learner, which in turn is shaped by earlier experiences of learning
in different educational settings.101
In this context, the framework
of assessment and performance targets is a notable influence; at
the moment it is a significant source of division and disengage-
ment within the school system. As Hinett observes, “The psycho-
logical literature illustrates the potential for assessment systems to
induce negative emotional responses to tasks that debilitate devel-
opment”.102
So there is a need to remove the features of this system
which can cause disengagement.
• In terms of assessment, this will mean greater
emphasis on formative functions of assessment (to
support pupils’ learning), along with the use of a
wider range of assessment tools than formal written
tests alone, including the greater use of teachers’
professional judgement.
• Additionally, the system of performance targets still
focuses on a very narrow view of what counts in
education, failing to recognise the clear evidence that
a wider range of generic skills are just as important for
cognitive development as traditional subject knowl-
edge. Targets are needed which embody a broader
view of education, recognising that soft skills can
matter just as much for children’s development and
future outcomes as ‘hard’ skills.
What’s fair? Applying the fairness test to education
76
• Another crucial priority must be to make the learning of ‘soft
skills’ more mainstream, including building children’s confidence
as learners, and developing the characteristics that help young
people cope with pressures and challenges. There is a large and
growing body of evidence that suggests that functional reasoning,
and social and self-management skills are fundamental to adoles-
cent development, yet malleable – so that inequalities that emerge
in childhood can be addressed in adolescence.103
Unfortunately,
there is currently a false divide in policy: people tend to think in
terms of ‘mainstream’ policies and the ‘standards agenda’, on the
one hand, and then about additional ‘positive activities’ as a desir-
able extra, on the other. Of course, no-one would deny the impor-
tance of good GCSE attainment for young people; but a more
complex interaction between ‘soft’ and ‘hard’ skills means that
schools should not be governed by accountability frameworks that
privilege the acquisition of formal learning to the detriment of
wider forms of learning which can help develop soft skills. So
much greater emphasis needs to be placed on developing these
skills, including informal and non-formal learning through partic-
ipation in a range of activities and volunteering. This is an area
where the Government should also draw on the expertise of youth
workers and practitioners, not just to promote re-engagement with
learning but also to prevent disengagement in the first place.
• An important additional goal must be to promote clearer path-
ways through further and higher education, whilst ensuring and
enhancing flexibility. There are currently a plethora of curricular
options, which may sometimes make it more difficult for young
people to understand what is on offer, and more difficult for
schools, colleges and training providers to offer effective informa-
tion, advice and guidance services.104
Several reforms are impor-
tant here:
• The new Government should reduce curricular
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Learning the lessons for politics and policy
complexity by moving towards a more unified quali-
fication framework for upper secondary education,
one that would be more readily understood by
students, colleges, employers and higher education
institutions;
• The Government should continue to strengthen provi-
sion for vocational education. Advanced
Apprenticeships have a crucial role to play by
providing a highly valued and widely recognised
alternative to higher education, one which offers
rewarding rates of return for individuals, employers
and government.
• The Government should extend the Connexions
service to offer young people aged 16 to 25 a more
comprehensive body of support and guidance, in
place of the more limited service provided by the
Adult Career Advancement Agency;
• The Government must ensure that taking up voca-
tional options does not preclude a route back into
higher education or retraining at a later stage. More
transparent entrance requirements and procedures are
needed to make it possible for young people who have
followed unconventional pathways to access places at
higher education, including the top universities. The
need for transparency and greater recognition particu-
larly applies to vocational qualifications, which are
not always recognised as entry requirements.105
Narrowing the gap in participation in higher educationChapter 1 highlighted the class gaps in participation in higher educa-
tion: young people from less advantaged backgrounds with school
results near the top of the range are nevertheless less likely to go to
university than their more advantaged peers. And there is a strong
What’s fair? Applying the fairness test to education
78
gradient by social class for those attending more prestigious ‘Russell
Group’ universities. What are the issues involved here for reformers to
address?
• One is disparities in the patterns of application to university.
Young people with the same school results nevertheless tend to
apply to different institutions depending on their social back-
ground. Addressing this could make an important contribution to
narrowing the gap. One often-made point here is the importance
of ensuring that all schoolchildren have access to decent careers
advice in the first place, especially as regards university applica-
tions, and of course this is important. But a more radical approach
here might be to look afresh at the responsibility of HE institutions
themselves for attracting bigger volumes of applications from
particular social groups. Currently, all HE institutions have to have
an ‘access agreement’, approved by the Office of Fair Access
(OFFA), which, as well as setting out financial support for students
from low-income households, also typically sets out planned
outreach activities to under-represented groups. Often these agree-
ments include universities’ own self-imposed targets for
addressing under-representation, though these are usually
couched in terms of achieving certain proportions of intake from
particular social groups. An important development here,
however, which could ultimately be more effective at driving
forward progress, would be for OFFA to ask HE institutions to set
targets specifically for the volume of applications they should aim
to attract from under-represented groups.106
Asking universities to
take more responsibility for shaping their own demand would
enable Russell Group universities to lead the way in attracting the
brightest pupils from all backgrounds.
• Related to applications, of course, is the funding of higher educa-
tion. Notably, the increase in participation amongst disadvantaged
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Learning the lessons for politics and policy
youngsters continued after the introduction of variable tuition fees
in 2006 – in part, testament to the work of OFFA. It is crucial that
OFFA is maintained and its remit is promoted by government. But
we should be doing better. And there are still concerns that up-
front fees could be a disincentive to participation for some groups
– even taking into account the fact that most students do not pay
until after they have finished studying (they get an inflation-
linked loan that does not start to be repaid until earnings are over
£15,000). One issue is that you are asking students to take on debt,
without the guarantee of future success. A related point is that
individual contributions are not related to the subsequent benefits
obtained. It has become increasingly accepted that students should
make some contribution to the cost of higher education, with even
the National Union of Students now calling reform of the prin-
ciple, rather than reversal.107
But we should move away from the
system of up-front fees to a system of retrospective income-related
payment, such as a graduate tax.
• Another issue, of course, is that of HE admissions. As autonomous
institutions, it is right that universities should control their own
admissions procedures. But that doesn’t mean that their approach
to admissions can’t be scrutinised and challenged. Our view is that
applicants should be admitted on merit, rather than applying
quotas or affirmative action. But the key point is that educational
potential needs to be taken into account more strongly when
judging merit (for example, through better use of teacher refer-
ences), rather than simply using demonstrated ability. As part of
the Widening Participation Strategic Assessments, the previous
Labour Government asked HE institutions to publish their admis-
sions policies and illustrate how they contribute to their widening
participation strategies. As part of this and future rounds of
Strategic Assessments, the Higher Education Funding Council for
England (HEFCE) should ask HE institutions to indicate how they
What’s fair? Applying the fairness test to education
80
assess factors like educational potential and what role these factors
play in admissions policy.
Winning the political argument on access to higher educa-
tion
Attempts to widen access to higher education through
reforming the admissions system will always be a magnet
for dissent. The issue is of course difficult because it means
that some, more ‘advantaged’, young people may not get a
place at their preferred institution. Whenever the debate
crops up, newspapers abound with stories of exceptionally
bright young people from advantaged backgrounds being
denied places at the best universities.
There are differences in public attitudes here according to
social class and previous level of education. In particular,
there is a strong belief among some groups in the legitimacy
of the ‘educational market place’, with outcomes assumed to
be fair rewards for effort. Interestingly, it is those who are
less familiar with the education system who tend to believe
in it most, that is, who have greatest faith in this ‘legiti-
mating’ role that education system itself plays, and who are
the least willing to intervene.
Winning the political argument means understanding
people’s intuitive conceptions of fairness here: as discussed
in the previous chapter, this is one of rewarding effort and
results. In particular, it is crucial that reforms do not look as
if they are ‘imposing’ fairness at the expense of a ‘deserving’
group (hence concerns about ‘affirmative action’, which
looks like discriminating against certain groups). University
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Learning the lessons for politics and policy
admissions policies that appear to deny young people places
at university on the grounds of family background are
regarded as unfair because, although some children start
with greater advantages, the outcomes that they achieve
have still been worked for, so are seen as deserved.
Of course, many progressives may be convinced of the
case for taking disadvantage into account, since young
people from disadvantaged backgrounds may have to work
harder than others to achieve good interim results. But the
key is not to dwell on these ‘backward-looking’ arguments
about the disadvantage that young people have experienced,
since these make it seem as if those concerned are being
admitted on the basis of this disadvantage.
Instead, the focus must be on the fairness of giving indi-
viduals from disadvantaged backgrounds the chance to
demonstrate that they can go on to achieve the highest
results – emphasising that they will be judged on effort and
results as they progress. Indeed, this would have the addi-
tional advantage of incentivising universities to do more
than simply grant places to students from disadvantaged
backgrounds; they also need to ensure that the necessary
support is in place to see them through and reduce attrition
rates.
4. Guarantee lifetime opportunities for learning,training and further study for allThere are significant inequalities in access to training and further educa-
tion through people’s lives. Your opportunities for accessing training
differ depending on your position in the labour market and existing
skill level. As highlighted in Chapter 1, employees without any qualifi-
cations are four times less likely to be offered training by their employer
What’s fair? Applying the fairness test to education
82
compared to graduate employees, and the TUC estimates that 44 per
cent of the workforce – some 10 million employees – were not offered
any training at all by their employer last year.
Recent policies on adult education and lifelong learning have not yet
made sufficient inroads into these inequalities. On basic skills, the Skills
for Life programme has given two and half million adults a first quali-
fication in literacy, language or numeracy; the Train-to-Gain programme
has expanded opportunities and provision for intermediate skills; and
the introduction of union learning reps has also been an important step
in improving access to training. Nevertheless, those in the lowest-skilled
jobs continue to be least able to access these opportunities.
• In policy terms, the ultimate goal must be to guarantee access to
learning, training and further study to all citizens and all parts of the
workforce across the life course, including the increasing number of
people who are expected to become self-employed over the next
decade, and also for older people who may need particular support in
gaining ICT skills to assist their learning. There is also a need for
government to consider how it can enable the development of soft
skills, because relatively few employers are engaging in this area.
• Here, protecting and building on government investment in skills
is crucial, particularly in the current fiscal climate. While it is right
that employers must bear some of the costs of skills provision, it is
also incumbent upon the Government to share a significant
proportion of the costs. This is not only because of the wider social
and economic benefits of improving skills, but also because
employer-led interest in skills development will always be
constrained in focus. In particular, the Government should
urgently reconsider planned cuts to skills provision, such as that
provided through the Train to Gain scheme, ahead of the spending
review this autumn.
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Learning the lessons for politics and policy
• Working with employers is of course essential in adult skills, since
they not only have an important stake in the skills of the work-
force, but are also a central provider of opportunities for training.
But it is important to recognise the drawback of a purely
employer-led system: opportunities for accessing training depend
on employers’ willingness to support it. Here, one might question
the appropriateness of employers being able to act as a ‘gate-
keeper’ to learning on grounds of both principle and practice.
Some (for example, many in routine manual occupations) might
face particular obstacles in accessing opportunities for training if
their employers do not consider the skills in question (for example,
computing skills) as necessary to their job. And an employer-led
system clearly will not address the needs of all, since many adult
learners undertake further study in order to move away from their
current job.108
For these reasons, working with employers and
business representatives, we need to move further towards giving
employees rights to access learning. The right-to-request time to
train introduced in April 2010 is an important step here, and
government will need to monitor its uptake and success carefully,
looking in particular at reasonable grounds for refusal. Ultimately,
however, we would argue for a flexibly structured ‘right to
training’, with employers having the ability to decide how this
would be organised around work in each individual case.
• Projecting forward over the next decade, a fair and effective life-
long learning strategy needs to ensure flexibility in terms of where
and when people can learn, and in particular to offer far greater
opportunities for adult learners to engage in learning and training
at convenient times and in ‘bite-sized’ chunks that can be incorpo-
rated within their other commitments. As previously discussed,
the rhetoric of choice in education has been heavily focussed
around choice of secondary school, without a wider consideration
What’s fair? Applying the fairness test to education
84
of how the value of choice might be applied in other contexts,
especially around opportunities for learning throughout life. For
example, the current system generally assumes that higher educa-
tion students will be recent school leavers wishing to study full-
time, having followed the traditional academic pathway from
A-levels into university. As such, there is a shortage of choices for
people who follow less conventional routes and pathways into
further and higher education, including those who wish to study
part-time and combine learning with employment or caring
responsibilities. One solution here would be to develop a widely
recognised credit-based system to allow people to complete
component parts of a qualification in different stages.
* * *
In this chapter, we have assessed some of the new Government’s
education policies against the ‘fairness tests’ set out in earlier chapters,
and discussed a range of possible reforms at different stages of the
education system, with the objective of narrowing the class gap in
attainment and experiences. In the final chapter, we conclude by
discussing briefly some controversial issues in the politics of educa-
tion reform, and the changes of mindset that will be needed to make
deeper progress in narrowing the gaps and working towards a fairer
system for all.
In this report we have argued for some radical reforms at various
stages of the education system, in order to shift us over the long
term towards a fairer, more inclusive and less segregated system,
where every child would genuinely have the chance to achieve his or
her potential.
The politics of a more mixed and inclusive education system is diffi-
cult, to say the least. That is why the approach we envisage here is
deliberately a long-term one, motivated by consensus-building.
Imposing changes across the whole system in a ‘top-down’ way is
bound to be politically unsustainable if they are not seen as fair and
generate anxiety for many parents.
Entrenching change will only be possible by gaining public support
for reforms and establishing consensus within communities about the
underlying objectives of mix and equality.
We shouldn’t be pessimistic about the prospect of achieving such a
consensus, but doing so requires a long-term and subtle strategy to
overcome fatalism about reform and address the causes of parental
anxiety. Importantly, simply regurgitating the data about the class gaps
in education is not enough to win the political argument for removing
85
5 | Conclusion: Building a publicconsensus for more fundamentalreform
86
inequalities within the system. While egalitarians may of course be
convinced of the case for action, simply having a ‘say it louder’ version
of traditional egalitarian arguments for reform won’t achieve this.
So what are the political arguments that can help build political
consensus around reforms to achieve a fairer education system with
greater social and educational mix? We think three strategies are partic-
ularly important.
Overcoming a sense of fatalism and inevitability The first task for campaigners is to overcome people’s sense of fatalism
and inevitability by showing that inequalities in education are not fixed
or immutable. International evidence can be powerful here: compar-
isons provide useful and persuasive evidence to show that in many
countries the link between family background and children’s outcomes
is far less pronounced. Importantly, recent OECD evidence also shows
that the situation in the UK is not fixed either: trends over time show
that the relationship between parents’ socio-economic position and chil-
dren’s outcomes has become less strong.
Overcoming fear and anxietySecond, to make a compelling political argument for reform, we need to
understand how the general pattern of educational chances conceals the
reality of the system for many families, whatever their socio-economic
status, which is one of struggle and insecurity. The unifying message
from parents is that the current system creates a high degree of stress
and anxiety. Even for ‘winners’ from the system, there is lots of anxiety
from the process involved. The point is that problems with the existing
system affect everyone. And while public opinion is divided on possible
solutions, all can unite around the need to remove anxiety from the
system, especially around the choice of school at age 11. The offer to
parents needs to be that the objective of reform is that they would be
able to send their child to any school in the country.
What’s fair? Applying the fairness test to education
87
Conclusion
A related point is that for many parents, even though they may recog-
nise the unfairness of various parts of the system, being under enor-
mous pressure to do what is best for their own children, they often feel
they have no choice but to try and ‘play’ the system, regardless of the
impact on other children. Ultimately, we need to move away from a
system that pulls parents in opposite directions, forcing them to choose
between their social values and perceptions about what they need to do
for their own children.
Where does this parental anxiety come from? The reality is that
choices around schools often aren’t about positive choices relating to
school quality and competitive advantage, but rather negative ones
about avoiding the ‘wrong sort of school’. And there is no point
avoiding what this means in practice for many parents: avoiding
schools with the ‘wrong sort of children’, who would be considered a
bad influence.
To achieve lasting change, therefore, we need to start by tackling the
underlying fears among ‘middle-class’ parents of more socially-mixed
schools. While there are many challenges here, a large part of this is
about the narrative we use in education.
Debates about education in the UK have long been characterised by
what Stephen Ball has called ‘discourses of division’. Discussions about
‘standards’ and ‘educational failure’, which speak to legitimate
concerns about the quality of education, are in practice often elided with
a more visceral set of concerns about the state of Britain, crime, ‘feral
children’ and a range of other moral panics. An important consequence
of this elision is that very large social groups, like ‘low-income house-
holds’ or those from ‘disadvantaged areas’, are often conflated in the
public mind with very small social groups with extreme behaviours,
such as ‘chaotic families’ or those engaged in anti-social behaviour. The
result is that discourses around educational failure and failing schools
are tied up with an underlying fear of mixing with particular social
groups.
The Conservatives’ narrative on education, in particular, has been
especially focussed around the language of ‘educational failure’, which
is in turn tied to narratives around ‘Broken Britain’. But Labour some-
times fell into this trap too: some of the narratives around the ‘Respect’
agenda were especially guilty of this, even if the underlying concerns
were perfectly valid. Ironically, this prevented the Labour Government
getting public credit for much of the good work they did on tackling
exclusion, since the narratives around policy encouraged a massively
exaggerated view of the scale of the problem in public consciousness.
Changing the terms of the debateOne very important step, then, would be to change the terms of the
debate. We need a new kind of narrative about educational inequality,
one that reduces the social distance between disadvantaged pupils and
everyone else, rather than increasing it. In particular, we need to stop
falling into the trap of conflating ideas like ‘low-income groups’ or those
in ‘disadvantaged areas’ with extreme examples of a small number of
‘chaotic’ families with multiple and intense needs, including behav-
ioural problems that impinge on the wider community. In turn, this
would benefit from moving discussions about schooling and standards
out of the framing of ‘educational failure’.
This needs to happen in parallel with some of the policy solutions
discussed in the previous chapter: we also have to tackle some of the
underlying problems that give rise to these fears. The first step here
needs to be heavy investment in the most disadvantaged schools, not to
shore up a failing system, but to create schools where every parent
would be proud to send their children. Here the vision is not one of
improving schools in disadvantaged areas so as to benefit the poorest
children, but to make it so that they are not just for the poorest children.
Rather than encouraging middle-class families to exit from state serv-
ices, as some on the right have traditionally advocated, we need to
consider positive inducements and incentives to middle class families
not to withdraw from state schools.
88
What’s fair? Applying the fairness test to education
Measures like this also need to go hand in hand with an agenda of
creating more genuinely mixed communities – with income mix as well
as tenure mix – to break down social divisions outside schools. More
integration between early years and primary education could also be an
important step here, since there is far greater social mix in the former
than the latter (Children’s Centres, in particular, have often been a site
of real social mix.)
Only by addressing these underlying anxieties can we pave the way
for greater integration in education.
Ending the real poverty of aspirationFinally, we need a further change of mindset too – this time among our
political elites. For a strong driving force that maintains divisions and
inequalities within our education system is a belief on the part of many
politicians, decision-makers and practitioners that such divisions and
inequalities are inevitable – a belief, for example, that there will always
be particular groups who are somehow just destined to fill low-skilled
and poor quality jobs.
This is perhaps most clearly seen in views towards measures to
encourage extended participation in education, and particularly higher
education. The Conservatives have recently been opposed to measures
such as Educational Maintenance Allowances and raising the
Participation Age to 18 in 2015. And both the Conservatives and Liberal
Democrats have also been opposed to a goal of getting half of young
people into higher education, even though more than half say they want
to go.
Politicians often say there’s a problem with ‘poverty of aspiration’ in
Britain. Well there is: a profound lack of ambition among too many of
our political class for disadvantaged kids. Only when we stop thinking
about the education system in ways that anticipate division and failure,
and only when we stop expecting children from different backgrounds
to follow different pathways, will we really be able to get to grips with
some of the long-entrenched inequalities in our education system.
89
Conclusion
1. National Equality Panel (2010) An Anatomy of Economic Inequality in theUK: Report of the National Equality Panel, London, GovernmentEqualities Office; Marmot Review (2010) Strategic Review of HealthInequalities in England Post 2010, London, The Marmot Review.
2. This is traditionally measured using pupils’ eligibility for receiving freeschool meals – because entitlement to free school meals depends onparents’ eligibility for income-related benefits. However, eligibilityfor FSM is only an approximate measure of disadvantage – andreservations are expressed about its use as a proxy measure.
3. Vastly more is known about the extent of educational inequality than wasthe case just twenty years ago. A wealth of data now exists on pupiland school attainment in England, on national averages of attain-ment (measured across the whole cohort of over 600,000 youngpeople each year), and we also have a more detailed picture of thedifferences and gaps in attainment, measured at the level of localareas and schools, and taking into account ethnicity and socioeco-nomic background. The existence of this dataset owes much to thepriorities of government over the last two decades, First we saw the
91
Endnotes
drive of the Conservative Government in the early 1990s to intro-duce national tests of attainment and make the results publicly avail-able, as a way of making schools more accountable and promotingparental ‘choice’. More recently there has been greater attentionunder the Labour Government to the size of the education gaps andgreater efforts to close them, which has led to more refined data andanalysis.
4. Longitudinal analysis of data from the national cohort studies allows us toexplore the relationship between earlier childhood experiences andoutcomes on the one hand and later life outcomes on the other.
5. Of course, attainment gaps do not in themselves specify the impact of theeducation system as distinct from broader factors and processesoutside the education system. But they can certainly help us predictthe likelihood of children subsequently achieving particularoutcomes. They can also indicate when the educations system isfailing to tackle such inequalities.
6. Hansen, K. and Joshi, H. (eds.) (2008) Millennium Cohort Study thirdsurvey: a user's guide to initial findings.
7. Department of Children, Schools and Families (2009) Deprivation andEducation: The evidence on pupils in England, Foundation Stage toKey Stage 4, London: DCSF.
8. Marmot Review (2010) Strategic Review of Health Inequalities in EnglandPost 2010, London, The Marmot Review.
9. Blanden, J., Hansen, K. and Machin, S. (2008) The GDP cost of the lostearning potential of adults who grew up in poverty, York, JosephRowntree Foundation.
10. Feinstein, L. (2003) ‘Inequality in the early cognitive development ofBritish children in the 1970 cohort’, Economica, 70(1), 2003;
11. Blanden, J. (2008) Analysis of Millennium Cohort Study for the SuttonTrust
12. Hansen, K. and Joshi, H. (eds.) (2008) Millennium Cohort Study thirdsurvey: a user's guide to initial findings.
13. Marmot Review (2010) Strategic Review of Health Inequalities in England
92
What’s fair? Applying the fairness test to education
93
Endnotes
Post 2010, London, The Marmot Review.14. Lexmond, J. and Reeves, J. (2009) Building Character, London: Demos. 15. Ball, S. (2006) Education policy and social class: the selected works of
Stephen J. Ball, London, Routledge.16. Melhuish, E. (2004) A literature review of the impact of early years provi-
sion on young children, London: National Audit Office. Sammons,P., Sylva, K., Melhuish, E. et al. (2007) Effective pre-school andprimary education 3-11 project.
17. Waldfogel, J. and Garnham, A. (2008) Childcare and child poverty, York:Joseph Rowntree Foundation.
18. Ball, S. (2003) Class Strategies and the Education Market: The middleclasses and social advantage, London: Routledge Falmer.
19. Burgess, S., Briggs, A., McConnell, B. and Slater, H. (2006) SchoolChoice in England: Background Facts, Working Paper No. 06/159;Bristol University, Centre for Market and Public Organisation.
20. Burgess et al. (2006), p.10. In this study, ‘school quality’ is measured bythe previous league table score of the school in terms of thepercentage of its pupils awarded at least 5 A* to C grades at GCSE.
21. Evidence for the link between pupil social backgrounds and educationaladvantage was derived from the GCSE results held by DCSF, all ofwhich were linked to background information from the census. Anestimate of the social background of each pupil was calculated asthe proportion of the resident population aged 16 to 74 in the threehighest categories of ‘managerial or professional occupations’ forthe Output Area in which the home was located. (The Output Areais the smallest area for which Census data is available, with around125 dwellings.) In addition to recording the performance and socio-economic characteristic of each pupil, the dataset also records theGCSE performance and social characteristics of the school attended.
22. Sutton Trust (2007) ‘Rates of Eligibility for free school meals at the TopState Schools’There is also evidence that many pupils with specialeducational needs (SEN) have underlying educational needs that arelinked to deprivation. (Of course, this does not imply that depriva-
What’s fair? Applying the fairness test to education
94
tion is the sole factor; the term ‘special educational needs’ encom-passes a wide range of needs, including some which have no partic-ular correlation with deprivation. See Lindsay, G. et al. (2006)‘Special educational needs and ethnicity: issues of over- and under-representation’, Centre for Educational Development, Appraisal andResearch / Institute of Education / University of Warwick.) And in2006, pupils with SEN were more than twice as likely to be eligiblefor free school meals as those without.
23. Department of Children, Schools and Families (2009) Deprivation andEducation: The evidence on pupils in England, Foundation Stage toKey Stage 4, London: DCSF.
24. Evidence from a recent study of primary school teaching practices, forexample, indicates that the overall teaching quality had a strongernet influence on reading and mathematics than some backgroundfactors, including being eligible for FSM. Sammons, J. et al. (2006)Effective Pre-school and Primary Education 3-11 Project (EPPE 3-11)The Influence of School and Teaching Quality on Children’s Progressin Primary School, DCSF Research Report RR028.
25. Sammons, J. et al. (2006) Effective Pre-school and Primary Education 3-11 Project (EPPE 3-11) Summary Report: Variations in Teacher andPupil Behaviours in Year 5 Classes, DfES Research Report 817.
26. DfES (2004) Teacher Turnover, Wastage and Destinations.27. Marshall et al. (2007, p. 67)28. O’Donnell, L. et al. (2006) Education outside the classroom: as assess-
ment of activity and practice in schools and local authorities, DfESResearch Report RR803.
29. Muschamp, Y., Bullock, K., Ridge, T., Wikeley, F., (2009). 'Nothing to do':the impact of poverty on pupils' learning identities within out-of-school activities. British Educational Research Journal, 35 (2), pp.305-321.
30. Department for Children, Schools and Families (2009). Deprivation andEducation: The evidence on pupils in England, Foundation stage toKey Stage 4. London: DCSF.
95
Endnotes
31. According to the recent report of the National Equality Panel, more thanthree-quarters of young men and women who achieved the bestresults (more than 49 points in the GCSE scores used) in 2002-03were in higher education by 2006-07; of pupils with the lowestattainment at 16 (under 33 points), fewer than a fifth went on touniversity.
32. Machin et al. (2009). The Russell Group is an association of 20 majorresearch-intensive universities of the United Kingdom, including theuniversities of Birmingham, Bristol, Cambridge, Cardiff, Edinburgh,Glasgow, Leeds, Liverpool, Manchester, Newcastle, Nottingham,Oxford, Sheffield, Southampton, Warwick, and Imperial CollegeLondon, King’s College London, London School of Economics andPolitical Science, Queen’s University Belfast, and University CollegeLondon.
33. ONS (2009) Education and Training Statistics for the United Kingdom,London: Office for National Statistics.
34. TUC / Unionlearn (2009) Right to training is on the right track, London:TUC.
35. Note that the same principles and distributive norms may not be appro-priate to all phases of education. As we shall see, there may be goodreasons for adopting comprehensive principles in the earliest phasesof education, for example to allocate places at nursery or primaryschool. Conversely, there may be a stronger case for applying ameritocratic or results-based principle to admission to university thanto school.
37. The philosophical objection is that we should reject family background asundeserved, because it is not something for which we are respon-sible.
38. Ridge, T. (2009) Living with Poverty: a review of the literature on children’sand families’ experiences of poverty, London: Child Poverty Unit.
39. For further information see the Hampshire Research with Primary Schools(HARPS) - A multidisciplinary investigation into the impact of schoolcomposition on pupils' experiences and outcomes.
What’s fair? Applying the fairness test to education
96
40. Brighouse, H. (2000) School Choice and Social Justice, Oxford: OUP41. Pedley, R. (1963) The Comprehensive School, Penguin Books; Benn, M.
and Millar, F. (2005) A Comprehensive Future: Quality and Equalityfor all our children.
42. Wragge, E.C. (1993) Education: A Different Vision, London: IPPR.43. Burgess, S., Briggs, A., McConnell, B. and Slater, H. (2006) School
Choice in England: Background Facts, Working Paper No. 06/159;Bristol University, Centre for Market and Public Organisation.
44. This is part of the problem of ‘middle-class capture’, by which themiddle-classes are said to extract greater benefit from public serv-ices such as health and education than people in working class posi-tions, both because of their collective lobbying power and becauseof the aggregate effects of their individual ability to ‘work thesystem’.
45. As critics of a market-based system have long argued, the idea that eachschool can be ‘judged on its specific character and on its merits,rather than as one of a hierarchically arranged series of ‘types’ … isto ignore the history of English education’ (Wragge, 1993).
46. Swift, A. (2004) ‘The Morality of School Choice’, Theory and Research inEducation 2004.
47. Brighouse, H. (2000) School Choice and Social Justice, Oxford: OUP.49. Green, A. (1990) Education and State Formation. The Rise of Education
Systems in England, France and the USA, Macmillan. Arnot, M.,David, M. and Weiner, G. (1999) Closing the Gender Gap: post-wareducation and social change, Cambridge, Polity Press.
50. As historians of education have noted, the primary function of the schoolsystem at this time was a differentiating one, to maintain ‘the stylesof life of different strata and the supply of appropriately socialisedrecruits to them’ (Floud and Halsey 1958, p. 177, cited in Brown1990).
51. Hurt, J (1985) Education and the Working-Classes from the EighteenthCentury to the Twentieth Century.
52. In 1938, only one fifth of all children received a formal education after
97
Endnotes
age 14.53. Brown, P. (1990) ‘The ‘Third Wave’: education and the ideology of paren-
tocracy, British Journal of Sociology of Education, vol. 11, issue 1,pp. 65-86.
54. Its chief architect, Tory President of the Board of Education Rab Butler, setout to achieve the goal of a ‘secondary education for all’, which hadfirst been raised in the inter-war years, with an expectation thatcompulsory education should be provided for all young people, atleast part-time, up to the age of 18. In the event, Butler’s expecta-tion has yet to be realised in the six decades since the Act waspassed. The 1944 Act required local education authorities (LEAs) toprovide state-funded education for pupils, but only up to the age of15, with a subsequent extension bringing the compulsory leavingage up to 16 in 1973. Under current government proposals, Butler’sexpectation for participation up to 18 is finally, and belatedly, due tobe fulfilled in 2015.
55. The failure to establish technical schools was a major disappointment ofthe post-war period, leading to the lack of a coherent model of voca-tional education which could enjoy parity of esteem with theacademic pathway. Despite thirty years of initiatives since the 1970swhich have sought to bolster the vocational system, the idea thatvocational courses are for ‘less able students’ continues to be anenduring feature of the UK’s system today. See McCulloch, G.(1989) The Secondary Technical School: A Usable Past?
56. Cox, C and Boyson, R (eds.) (1977) Black Paper, London: Temple Smith;The Hillgate Group (1986) Whose Schools: A Radical Manifesto,London: Hillgate Group.
57. For many on the right, the issue of ‘standards’ has been as much a moralmatter as an educational one, arising from a perception that tradi-tional authority, leadership and elite culture were under threat, anda desire to reverse a perceived shift from elite to mass culture.
58. Brown, P. (1990) ‘The ‘Third Wave’: education and the ideology of paren-tocracy, British Journal of Sociology of Education, vol. 11, issue 1,
What’s fair? Applying the fairness test to education
98
pp. 65-86.59. Polling by MORI / Sutton Trust, 200860. Bamfield, L. and Horton, T. (2009) Understanding attitudes towards tack-
ling economic inequality, York, Joseph Rowntree Foundation. 61. Lane, R. (1959) ‘Fear of Equality’, American Political Science Review, 59
(1), pp. 35-51.62. Labour sought to prove its commitment to better and fairer standards in
schools, with five eye-catching pledges in its 1997 Manifesto,including promises to cut class sizes to 30 or under for children fromthe ages of five to seven by redirecting funds from the phasing outof the assisted places scheme, and to increase the number ofteachers by 10,000, thereby improving teaching conditions insecondary schools.
63. The Literacy Task Force, led by Michael Barber, was established by theLabour Party whilst still in Opposition, in May 1996. Its purpose wasto develop a strategy for substantially improving attainment inliteracy in primary schools in England over the next decade. Theidea of a daily literacy hour in primary schools was a key recom-mendation in its interim and final reports, though the idea had actu-ally been initiated by the Department of Education and Employmentunder the Conservative Government in 1996.
64. Literacy Task Force (1997a) A Reading Revolution – how can we helpevery child to read well?; Literacy Task Force, (1997b) TheImplementation of the National Literacy Hour.
65. In 2003 the National Literacy and Numeracy Strategies were amalga-mated into the National Primary Strategy.
66. As set out in the 2001 White Paper: ‘Schools – Achieving Success’, diver-sity was trailed as a means of raising education standards atsecondary level. The idea was that encouraging schools to developtheir own distinct ethos and character and encouraging greaterdiversity and flexibility would deliver high minimum standards ineducation and higher standards overall.
http://www.standards.dfes.gov.uk/schooldiversity/what_is_school_diver-
99
Endnotes
sity/?version=167. Burgess, S., Briggs, A., McConnell, B. and Slater, H. (2006) School
Choice in England: Background Facts, Working Paper No. 06/159;Bristol University, Centre for Market and Public Organisation.
68. Daycare Trust (2008) Childcare Futures: Policy Insight Paper 2, London:Daycare Trust. Child Poverty Action Group; Marmot Review (2009)Taskforce on Early Years Education.
69. Department for Children, Schools and Families (2007) The Children’sPlan;, London: The Stationary Office; DCSF (2009) Breaking the Linkbetween disadvantage and low attainment: Everybody’s Business,London: DCSF.
70. Department for Children, Schools and Families (2007) The Children’sPlan, London: The Stationary Office
71. Ed Balls, speech to Daycare Trust, 200972. HM Government (2010) The Coalition: Our programme for government,
available at:http://www.cabinetoffice.gov.uk/media/409088/pfg_coalition.pdf
73. See previous footnote 74. Daycare Trust (2008) Childcare Futures: Policy Insight Paper 2, London:
Daycare Trust. Child Poverty Action Group; Marmot Review (2009)Taskforce on Early Years Education.
75. Ofsted (2009) The impact of integrated services on children and theirfamilies in Sure Start children’s centres.
76. National Evaluation of Sure Start (2007) Changes in the Characteristicsof SSLP Areas between 2000/01 and 2004/05, NESS ResearchReport 201.
77. http://blogs.telegraph.co.uk/news/cristinaodone/100043129/the-joke-is-over-for-middle-class-mums/
78. Ofsted (2009) The Impact of Integrated Services on Children and theirFamilies in Sure Start Chidlren’s Centres; Audit Commission (2010)Giving Children a Healthy Start; Children, Schools and FamiliesSelect Committee (2009-2010) Sure Start Children’s Centres.
79. These issues are discussed further in The Solidarity Society: Why we can
What’s fair? Applying the fairness test to education
100
afford to end poverty, and how to do it with public support (TimHorton and James Gregory, The Fabian Society, 2009).
80. Department for Children, Schools and Families (2007) The Children’sPlan, London: The Stationary Office; DCSF (2009) The Children’sPlan: Two Years On, London: The Stationary Office; DCSF (2009)Breaking the Link
81. Although a number of stability measures aimed at the local authorityfunding process were introduced in 2003 by Charles Clarke, thenEducation Secretary, in response to the alleged “crisis” in schoolfunding, which saw some schools struggling to pay staff, a subse-quent Audit Commission investigation found that the problem laynot with annual revenue funding via local authorities, but with “thelate announcement of changes to major specific grants (particularlythe Standards Fund)”, which left “some schools better off thanexpected and some schools with less funding than anticipated”(Audit Commission (2004) Education Funding: the impact and effec-tiveness of measures to stabilise school funding, p. 2).
82. McKinsey & Company (2007) How the world’s best performing schoolsystems come out on top, available at:http://www.mckinsey.com/App_Media/Reports/SSO/Worlds_School_Systems_Final.pdf
83. http://www.teachfirst.org.uk/what_is_teachfirst/our_mission85. Ofsted (2009) Twelve outstanding secondary schools: excelling against
the odds86. Ridge, T. (2009) Living with Poverty: a review of the literature on children’s
and families’ experiences of poverty, London: Child Poverty Unit.Key studies in this area include Roker, 1998; Ridge 2002; ATDFourth World, 2000; Willow 2001; Crowley and Vulliamy 2007;Horgan, 2007a, 2007b; 2009; Sutton et al, 2007; Wikeley et al,2007.
87. As the Child Poverty Action Group’s ‘2skint4school’ campaign advocates,action is needed in each area to ensure that no child is preventedfrom taking part in fun and rewarding learning activities and expe-
101
Endnotes
riences because her parents are unable to afford the costs.88. In the short term, a potential option would be just to extend free school
meals to children whose parents qualify for working tax credit.89. As detailed in Chapter 2, Labour backbenchers’ protests against meas-
ures to promote ‘choice and diversity’ in the 2005 Schools WhitePaper and 2006 Education Bill forced the Government to make anumber of significant concessions during the passage of the Bill,including plans to monitor Trusts, to ensure an important and effec-tive role for the local authorities, and to take measures to protectagainst unfair admissions by strengthening the then voluntary schooladmissions code.
90. OECD (2007) Programme for International Student Assessment.91. Ofsted (2009) Characteristics of outstanding primary schools in chal-
lenging circumstances. https://ofsted.gov.uk/content/download/.../file/20ops_2_character-istics.pdf
92. “The country that provides the closest model for what we wish to do isSweden. Over the past fifteen years, Sweden has introduced a newsystem that has allowed the creation of many new high quality stateschools that are independent from political control. All parents havethe power to take their child out of a state school and apply to a newindependent state school. The money that went to the failing stateschool is transferred to the new independent school…These are thebasic dynamics we will introduce into the British school system.”(Raising the Bar, Closing the Gap, 2007, Conservative Party)
93. ‘What influences educational achievement in Swedish schools?’,Skolverket, 2010.
94. ‘Independent schools as part of the system: 1991-2004’, Skolverket,2006.
95. On standards within the new independent schools, the Director-Generalof Skolverket recently explained that: “The students in the newschools, they have in general better standards [i.e. outcomes], but ithas to do with their parents, their backgrounds. They come from
What’s fair? Applying the fairness test to education
102
well-educated families.” (Per Thullberg, Newsnight, 8 February2010).
97. Witness parents’ reactions to the decision by Brighton and Hove CityCouncil in 2007 to use a random ballot to allocate places to over-subscribed schools. In this case, parents’ objections to the newsystem – using fixed catchment areas based on postcodes – led to areview of the council’s new admissions policy by an independentschools adjudicator. The adjudicator approved the policy, subject toa review after 12 months, saying it would give more pupils a betterchance of going to popular schools. After initial objections, however,the main source of contention since the operation of the new systemhas not been the use of lotteries so much as the boundaries of thecatchment areas. In 2009, Ed Balls, then Children’s Secretary,entered the debate, arguing that lotteries can be ‘arbitrary’ and‘unfair’, and asked the schools adjudicator to carry out a nationalreview of random allocation systems. Reporting in November 2009,the schools adjudicator, Ian Craig, suggested that lotteries did create‘uncertainty’ among parents, but concluded that current rulesgoverning random allocation systems are ‘appropriate’ and do notneed to change. The schools adjudicator published researchshowing that 29 out of 150 local councils now employ lotteries atone or more schools, if they were oversubscribed. Two councils –Brighton and Hove, and Hertfordshire – used lotteries in a structuredway across a number of schools.
98. Tikka, T. & Suominen, E. (2008, p.44). Education Society 2.0 – Inclusionand Skills for All, Helsinki: Kalevi Sorsa Foundation.
99. Pring, R. et al. (2009) Education for All: The future of education andtraining for 14-19 year olds: Final report of the Nuffield 14-19Review, London: Routledge.
100. Blanden et al. (2006) Accounting for Intergenerational IncomePersistence: Non-cognitive skills, Ability and Education, University ofSurrey: Discussion Paper in Economics.
103
101. Hodkinson, P. et al. (1996). Triumphs and Tears:Young People, Marketsand the Transition from School to Work. London: David Fulton.
102. Hinett, K. (2002, p. 182) ‘Assessing Failure or Failing to Assess?’ inWareham T and Peelo, M(eds) Failing Students in Higher Education.SRHE and Open University Press.
103. In particular, these skills are primary drivers of economic outcomes(such as earnings) and social outcomes (such as risky behaviours).See, for example, the recent PMSU report on adolescence.
104. Pring, R. et al. (2009) Education for All: The future of education andtraining for 14-19 year olds: Final report of the Nuffield 14-19Review, London: Routledge.
105. See previous footnote106. Some higher education institutions are already doing this, for example,
Bath University and Bristol University (OFFA, personal communica-tion)
107. NUS (2009) Broke and Broken: a critique of the higher educationfunding system
108. Even from an economic perspective, one could also question whetheremployers will necessarily make optimum decisions from theperspective of organisational strategy. A variety of evidence suggeststhat poor resource utilisation within the firm is an ongoing cause ofthe productivity gap between the UK and our major internationalcompetitors.
Endnotes
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What’s Fair? Applying the fairness test toeducationLouise Bamfield and Tim Horton
Fabian FreethinkingISBN 978 0 7163 4111 6
£5
‘What’s fair? Applying the fairness test to education’ asks what afair education system would look like and argues for importantreforms needed to narrow the gaps in educational attainment andopportunity between different social groups in the UK. The reportexplores what progress the Labour Government made in tacklingeducational inequality during its time in office and considers whatthe implications of the new Coalition Government’s proposedreforms might be. Outlining original research into public attitudes,‘What’s fair?’ also looks at what the public think is fair in educa-tion, and how the arguments for reforms to tackle educationalinequalities can be won.
This report is published as part of the Fabian Society’s researchprogramme ‘Fighting Poverty and Inequality in an Age ofAffluence’, in association with the Webb Memorial Trust.
FABIAN SOCIETY