A system of higher-level vocational courses can equip young people and adults with the advanced skills that employers are looking for in modern and dynamic labour markets. In England (United Kingdom), these courses are collectively known as Higher Technical Education (HTE), classified at level 5 in the International Standard Classification of Education (ISCED). In recent years, English HTE has struggled with its identity, scope, and esteem, as previous attention brought academic higher education to the masses. This report supports ongoing reform efforts by comparing England's HTE system with successful models in Austria, Canada (Ontario), Denmark, France, and Sweden. It underlines the importance of a coherent educational vision supported by quality governance and strong employer engagement. Flexible and responsive educational programmes delivered by providers with a clear objective on HTE are essential. By learning from these countries, England can create a robust policy framework and foster collaborations to ensure the success of its HTE reforms.
Higher Technical Education in England, United Kingdom
Abstract
Executive Summary
Despite an extensive higher education system with good uptake and learning outcomes, higher technical education (HTE) provided at level 5 of the International Standard Classification of Education (ISCED) remains underutilised in England (United Kingdom, UK). HTE accounted for only 16% of higher education entrants in 2021/22. Various OECD countries have strong HTE systems that represent a much larger share of their higher education student population.
Reforms in 2020 aimed to improve the profile, prestige and uptake of HTE. Central to these was the introduction of new Higher Technical Qualifications. These are independently approved qualifications set against occupational standards to better meet employer skills needs.
To further bring together and co-ordinate central and local government, employers, providers and other partners across the skills system, the Department for Education is introducing a new body, Skills England. This body will work to form a coherent national picture of where skills gaps exist and how they can be addressed, working closely with stakeholder across government to unify the skills landscape and ensure that the workforce is equipped with the skills needed to power economic growth.
This report describes key features of the English HTE system and identifies challenges that may hinder it from reaching its full potential. The report uses examples from HTE in selected other OECD countries [Austria, Canada (Ontario), Denmark, France and Sweden]. Countries were chosen as their systems contain various positive features that can provide inspiration to the ongoing efforts in England.
The report focuses on a set of key design and delivery features of HTE:
Coverage: England's HTE system is fragmented, with a large number of qualifications that can be similar in content. The lack of a coherent strategic vision and weak employer engagement have hindered growth. Austria, Denmark, and Sweden have structured pathways and strong social partner engagement, ensuring HTE meets specific labour market needs. In Denmark and Sweden, labour market analysis steers provision, whereas in England providers have more freedom to determine content. Sweden puts together institutional programme management boards, a labour market council for national strategic advice, and regional stakeholder “competence” groups. Denmark has strategic multi-year agreements with its compact set of educational institutions, a vocational council to offer strategic guidance and a rationing system that focuses on labour market integration of graduates.
Target population: The multitude of provision in England makes it difficult to define a typical HTE student. Meanwhile, whilst Austria also has differentiated provision its strong educational pathways cater specifically to different student needs and enhance HTE participation. Denmark’s system aims to clearly separate students continuing from upper-secondary education and those returning to education whilst in the labour market. A clarity of purpose makes it easier for countries to stimulate demand, whatever their educational set-up.
Providers: The patchwork of providers in England makes it difficult to articulate a clear vision of the HTE landscape for learners. Institutions in England do not specialise in HTE and offer it as part of a wider suite of education. This makes planning for HTE in England more diffuse and harder to thread together. By contrast, Ontario (Canada) has one of the highest HTE rates in the OECD supported by its 24 public colleges specialising almost entirely in HTE. This enables them to carve out a strong identity of employer-focussed qualifications fit for the modern labour market. Another country with very high HTE participation, Austria, does it differently, with institutions offering a range of education from secondary-level up to HTE in the same setting within their specialised field. Austria provides strong pathways between the different vocational educational levels and institutions specialise in particular subject areas. Ontario and Austria have completely different set-ups, but they work because of the strong identity that exists for HTE in each, with institutional set-ups that support this identity and foster transparency.
Work-based learning: Work-based learning in HTE in England is poorly defined and difficult to characterise. A separate focus on apprenticeships as the route towards integration of work-based learning with education has left classroom-based HTE bereft of a strong system for the integration of work-based learning components. By contrast, the countries analysed for this report all have some kind of requirements on the integration of work-based learning in qualifications and try to ensure this is a key component of these qualifications. Sweden requires longer HTE programmes to incorporate mandatory placements at the end, maximising the potential for immediate job offers. France integrates apprenticeship directly into its HTE programmes, as an alternative pathway to the school-based programme, but even the latter have mandatory work placements.
Quality assurance: Institutional set-ups directly influence how quality assurances processes work. For England, despite exemplary enhancement-led quality assurance practices, this means numerous agencies, with different functions. The complex multi-agency set-up brings challenges and some overlap. Other countries manage a more streamlined approach, and a centralised quality system speaking with one voice can add clarity and efficiency. In Sweden, the agency for higher vocational education (MYH) has responsibility for all HTE quality assurance. It combines this with the incorporation of its responsibility to monitor labour market demand for education and the rationing of educational programmes it performs. Equally, the college-owned Ontario College Quality Assurance Service manages quality issues across the HTE sector. Its operational mandate and acute focus mean it brings best-practice quality processes to bear on Ontarian HTE with the sole aim of improving college education provision.
Student and employer support: Measures that support students and employers in engaging with HTE- such as reducing financial barriers and increasing flexibility- help contribute to its growth. Reforms in England to bring HTE student financing on a par with higher education work in this direction. But employer incentives are weaker. France has a suit of financial support instruments for employers and students engaged in the HTE apprenticeship route, many of which are financed through employer levies. Denmark, France and Sweden also have extensive systems for the recognition of prior experience, to provide access and shorten education. This contrasts to England, without a uniform system and subject to provider variation in practices.
England gets a lot right in HTE, but it also suffers from a number of issues that constrain its demand and supply. The examples in this report show that with adjustments to how strategy and planning is joined up and how institutions, students and employers are encouraged, the reforms to HTE in England may be supplemented to help take it to the next level.
