Office of Qualifications and Examinations Regulation (Ofqual) Annual Report 2010/ to Parliament 2011 Office of Qualifications and Examinations Regulation (Ofqual)

Annual Report to Parliament 2010/11 For the period 1st April 2010 to 31st March 2011

Presented to Parliament pursuant to Section 171 of the Apprenticeships, Skills, Children and Learning Act 2009.

Ordered by the House of Commons to be printed on 6th July 2011.

HC 1162 London: The Stationery Office £15:50 4 Annual Report to the Northern Ireland Assembly 2010/11 Printed fibre onpapercontaining75%recycled content minimum. ID PO0243965907/11 Office of HerMajesty’s Stationery Printed Limited onbehalfoftheController intheUKby Office The Stationery ISBN: 9780102974171 BelfastBT16DN Street 6Murray gov.uk andisalsoavailable from ourwebsite atwww.ofqual.gov.uk. This publicationisalsoavailable for downloadatwww.official-documents. 2ndFloor GlendinningHouse 6UB CV5 Coventry Herald Avenue BusinessParkCoventry PlaceSpring Ofqual Any regarding enquiries thisdocument/publicationshouldbesentto usat fromto holdersconcerned. obtainpermission thecopyright Where information we copyright you have willneed identifiedany third party [email protected]. ore-mail: governmentlicence/ To view thislicence, visit http://www.nationalarchives.gov.uk/doc/open- format oftheOpenGovernmentLicence. ormedium,undertheterms You thisinformation (excluding may re-use logos)free ofcharge inany © Crown 2011 copyright have requirements. any specificaccessibility We ourpublication widelyaccessible. usifyou Please wishmake contact Contents

2010/11 key figures 7

Foreword by Sandra Burslem and Glenys Stacey 8

Section 1 Who we are 10

What we do 11

Working with Government 13

Section 2 The year in view 14

Qualification Standards 16

Maintaining Standards 19

Assessment Standards 19

Public Confidence and Awareness 20

Efficiency 23

The Ofqual Team 25

Section 3 Regulation in action 26

Regulatory intervention 34

Section 4 New approaches to regulation 36

Section 5 Research and development 40

The year ahead 43

Appendices Appendix 1 - Statutory objectives in the Apprenticeships, Skills, Children and Learning Act 2009 44

Appendix 2 - Achievements against statutory objectives 45

Appendix 3 - Levels of Attainment, 2010 52

Appendix 4 - Levels of Attainment, 2010 53

Appendix 5 - Performance against our stated levels of service 56

Appendix 6 - Expenditure 2010/11 57

Appendix 7 - Resource management 2010/11 58

5

2010/11 key figures

In England, Wales and Northern Ireland „ 5.8 million GCSEs

„ 2 million AS and A levels

„ 0.9 million Key Skills

„ 6.8 million other qualifications1

„ Achievements2 awarded in 7,750 different qualifications

„ 141 qualifications accounted for over half of the achievements in qualifications other than A level and GCSE in 2009/10.

Examination marking in summer 2010 „ 16 million examination scripts completed by candidates

„ 7 million pieces of coursework.

Awarding organisations „ Over 170 awarding organisations recognised as at September 2010

„ 7 awarding organisations account for 63 per cent of all achievements in ‘other’ qualifications

„ Market in qualifications worth over £900 million annually.

1. ‘other’ qualifications for the purpose of this report are all regulated qualifications except for GCSEs, A levels and Key Skills.

2. An ‘achievement’ is a pass grade for a qualification. This means that all certificates for vocational qualifications are achievements, and for general 7 qualifications all grades that are not U or absent. 8 Annual Report to Parliament 2010/11 regulator isneeded. universities andothersneed, andthatiswhy a andemployers, and credible deserve aslearners qualifications andassessmentsbeingasrobust there are many thingsthatcangetintheway of andcando.applicants andemployees But know employers anduniversities understandwhat achievement, motivate students, andhelp change lives. Attheirbesttheyrecognise real they opendoorsfor ofallagesand socan learners Qualifications andassessmentsare important: a non-ministerial government department. a reality ofouraccountability to Parliament as document, asitmakes month) isanimportant uk/files/2011-06-22-Annual-Report-to-the-Northern-Ireland-Assembly.pdf 3. Ireland Assembly, to(along withtheparallel theNorthern report to Parliament.annual report This report We are delighted to present Ofqual’s first Dame Sandra Chair Burslem DBE, Deputy Sandra BurslemandGlenys Stacey by Foreword Annual Report to the Northern Ireland 2010/11 Assembly totheNorthern Report Annual 3 whichwe publishedlast www.ofqual.gov. and Alevels, begunthe process ofreforming us to explore andadviseonchangesto GCSEs overseas. hasasked Sincethen,theGovernment qualifications inEngland compare withthose a studyinto howthe standards of to undertake ofState down lastsummerbythenewSecretary proposals.policy We accepted thechallengelaid implicationsoftheir wise adviceontheregulatory agendaandprovide understand theMinisterial assessments we regulate, sowe needto on andhelpsshapethequalifications relies independent ofMinisters, educationpolicy and assessmentreform. Althoughwe are withambitiousplansforwas elected qualification significantly theyear. during AnewGovernment changed works withinwhichOfqual The context level insummer2010. overseeing thefirstawards oftheA*grade atA accrediting GCSESciencequalifications, and Languages(ESOL)qualifications, of Other investigating problems withEnglishfor Speakers work herecontinued: we onimportant report Our day to day onqualificationsregulation work good regulation. are committed to theGovernment’s of principles requirements,burden ofourregulatory andwe particular,In we are to determined minimisethe awarding organisations inafairandopenmanner. wefor turn, willaimto with work that.In their qualifications, andholdingthemto account organisations are responsible for of thequality clearthatawardingregulation: making the foundations for ournewapproach to been achallenging butproductive one. We laid Ofqual’sAs setoutinthisreport, firstyear has promote publicconfidence andawareness. Our role isto secure standards andefficiency, and National Curriculum and early years assessments, and set out its ambitions for vocational qualifications to support educational achievement and economic growth. Ofqual also saw changes to its leadership during the year, with the departure of its first Chair and Chief Executive. Both Kathleen Tattersall and Isabel Nisbet made invaluable contributions to the establishment of Ofqual, and we pay tribute to their leadership. They left an established organisation which is ready to face the challenges of the future, having made good progress towards building the skills and capacity which our work as regulator requires. Like all public bodies, we have published information and data about our work on our website (www.ofqual.gov.uk), including information about staffing and our open Board papers, and we are determined that Ofqual will be as efficient as possible. We hope you find this report informative: please contact us via our website if you want to give us feedback or find out more about our work. You can also read the Ofqual Business Plan 2010/114 on the website, setting out our important plans for the coming year, and we look forward to reporting in our second Parliamentary report this time next year on further progress.

Sandra Burslem

Glenys Stacey Glenys Stacey, Chief Executive

4. Ofqual Business Plan 2010/11 www.ofqual.gov.uk/files/11-05-16-Ofqual- 9 Business-Plan-V2.pdf 10 Annual Report to Parliament 2010/11 2008 and 2010, Ofqual existed in interim form as part ofthe QCA. existed2008 and2010, Ofqual form ininterim aspart (QCA).Between Authority outbytheQualifications andCurriculum carried 6. Before 2008theregulation ofexaminationsand assessmentswas 2009:www.legislation.gov.uk/ukpga/2009/22/contents5. ASCLAct ultimately responsible for theregulation of Assembly.Ireland OurBoard isthelegalauthority accountable to Parliament andtheNorthern We are department government anon-ministerial in April2010. 2009(theASCLAct) Act Apprenticeships, Children Skills, andLearning Ireland. We were established underthe of vocational qualifications inNorthern examinations andassessmentsinEngland qualifications (other thandegrees), Regulation (Ofqual) istheregulator of The ofQualifications Office andExaminations Who we are 1 Section 5 andcameinto being 6 appointment, beingapproved byHerMajesty. Council, whichwillgive effect to the become oursecondChair, to theOrder subject in was announcedthatAmandaSpielmanwill members andthechiefexecutive. June2011it In Our Board 11non-executive currently comprises aims, valuesandstandards oftheorganisation. leadership anddirection,settingthestrategic provides qualifications andassessments. It Section 1 11 10 (May 2011): www.ofqual.gov.uk/ being awarded in the last being awarded 8 also requires us to perform us to our also requires 9 Annual Qualifications Market ReportAnnual Market Qualifications 8. files/2011-05-25-annual-qualifications-market-report.pdf 9. ASCL Act 2009 section 129(8) 10. ASCL Act 2009 section 170 functions efficiently and effectively and not to functions and not to efficiently and effectively impose or maintain unnecessary burdens. year for which figures are available in England, in England, available are which figures for year and Northern consulted Having Wales Ireland. the way changing are we extensively last year, expect awarding We regulated. qualifications are the quality be accountable for to organisations of their qualifications and the and standards expectefficiency and we with which they operate, with cooperate be open with us and to them to In work with awarding us. turn, will aim to we and in a fair and open manner, organisations framework a stable and consistent provide to to committed are We work within. to them for principles regulation better the Government’s accountable consistent, targeted, (transparent, and and proportionate) develop in how we The operationalise our regulatory arrangements. ASCL Act 2009 Qualifications are big business, with some 15.5 with some 15.5 big business, Qualifications are million achievements We recognise more than 170 awarding than 170 awarding more recognise We qualifications. regulated award to organisations are of these organisations A small number qualifications the bulk of academic for responsible and both academic Some provide awarded. The majority of awarding qualifications. vocational vocational specific produce organisations portionqualifications or units (the smallest of a qualification that is capable of certification in its own right), often very specialised.

and comparable, and comparable, 7

consistency. 7. Reliability can also be thought of as in education assessment terms, and report on what we have done. and report have on what we purpose and we take action where they are not, takepurpose and we they are action where and assessments so that we know they are fit for knowand assessments so that we fit for they are to have lasting value. We evaluate qualifications evaluate We lasting value. have to criteria are likely to be fit for their purpose and likelycriteria be fit for are to qualifications and assessments that meet these ability to meet the assessment outcomes). Those ability meet the assessment outcomes). to bias (differentiating only on the basis of learners’ only on the basis of learners’ bias (differentiating manageable and, as far as possible, to be free from from be free to as far as possible, manageable and, They also need to be reliable They also need to the skills they need and which employers require. the skills require. they need and which employers supposed to measure and provide learnerswith and provide measure supposed to need to be valid – to measure what they are what they are measure be valid – to need to To be trusted, qualifications and assessments qualifications and assessments be trusted, To may be. may our regulatory monitoring, whatever the findings whatever our regulatory monitoring, open Board papers and minutes and the results of and the results papers and minutes open Board informally on what we do, and we publish our and we do, on what we informally that we work – we consult both formally and and consult both formally work – we that we

to scrutiny. We aim to be transparent in the way in the way be transparent aim to We scrutiny. to is proportionate, based on evidence and open is proportionate, regulator, with a decision-making that process regulator, We aim to be a strategic and risk-based and risk-based be a strategic aim to We detailed in Appendix 1. detailed in Appendix out in the Act. Our statutory out in the Act. objectives are objectives and meeting our duties, as set objectives meeting our duties, and work is aimed at achieving our five statutory our five achieving at is aimed work and duties are set down by Parliament. Our Our Parliament. by set down and duties are As a statutory body, our objectives, powers powers our objectives, As a statutory body, What we do we What At the centre of our qualifications regulatory problems with standards, we take regulatory arrangements are our Recognition Criteria action. and General Conditions of Recognition.11 Once Our regulation of statutory assessments to meet awarding organisations are recognised against our our assessments standards objective is less published criteria, they are required to meet our complex than for qualifications – there are only a general conditions, and we can take regulatory small number of National Assessments (National action against them only when they have not Curriculum and Early Years Foundation Stage done so. We have published our policy on Taking assessments) and only one provider. In February Regulatory Action.12 We will publish our fee- 2011 we published our first statutory Regulatory capping policy separately. Framework for National Assessments: National In order to meet our qualifications standards Curriculum and Early Years Foundation Stage.14 This Annual Report to Parliament 2010/11 Annual Report Parliament to objective, we specify the requirements which sets out our role and responsibilities and how qualifications must meet and check that they have we will meet them, and provides guidance to been met. For some qualifications, notably GCSEs others about their work on statutory assessment and A levels, we set very detailed requirements, arrangements. In order to meet our confidence and awareness objectives, we seek to lead and be an active participant in public debate. We also make available a wide range of information about qualifications including on our website. In October 2010 we launched The Register online. The Register replaced the National Database of Accredited Qualifications and contains details of recognised awarding organisations and regulated and check that proposed qualifications meet qualifications in Northern Ireland, Wales and those requirements (‘accredit’ them) before England. The Register, which is supported by they can be added to The Register of Regulated each of the qualification regulators in England, Qualifications (The Register).13 We require Wales and Northern Ireland, enables people to awarding organisations wishing to award other view the full range of regulated qualifications. qualifications to meet our general conditions; It is accessible through our website, which over the next year we will stop checking every also provides a section on frequently asked qualification before it is added to The Register, questions. A quarterly e-newsletter is sent out to putting the responsibility onto the awarding stakeholders and awarding organisations. organisations themselves where they have proved that they can take responsibility for doing so. All our reports and open letters are also available. As well as this, we have throughout this year We also undertake monitoring activities to look engaged directly with people including schools, at awarding organisations and qualifications in further education colleges, employers, training practice. For example, standards reviews analyse providers, sector skills councils, Government and the nature of the requirements that different awarding organisations. We have ensured at all examinations make on candidates, compare the times that our stakeholders’ views are taken into levels of performance required for a particular consideration in relation to our regulation of grade, and consider how these two elements qualifications, examinations and assessments. relate to each other. Where these reviews identify

11. Regulatory arrangements: www.ofqual.gov.uk/for-awarding- organisations/96-articles/610-regulatory-requirements

12. Taking Regulatory Action: www.ofqual.gov.uk/files/2011-taking- regulatory-action.pdf 14. Regulatory Framework for National Assessments: National Curriculum and 12 Early Years Foundation Stage (February 2011): www.ofqual.gov.uk/files/2011- 13. The Register of Regulated Qualifications register.ofqual.gov.uk regulatory-framework-for-national-assessments.pdf Section 1 Section

To meet our efficiency objective, we are Where appropriate, we will seek to make sure undertaking analyses of the qualifications market, that our regulatory arrangements complement and developing our understanding of the and enable government policy objectives. factors that impact on costs and efficiency. This will inform the development of our regulatory We respond to Parliamentary Questions that arrangements, including (amongst other things) fall within our remit and have provided, where our fee-capping power. appropriate, submissions to Parliamentary Select Committees. We welcome the opportunities to It is in the interests of learners, employers and engage with the Select Committees where we universities that qualifications are comparable have input to make. across different countries. So we work with qualifications regulators in other parts of the UK The new Governement elected last year has set and, where appropriate, put in place regulatory out a number of reforms to qualifications and arrangements that are consistent. We are also assessments, to which we are contributing. In involved with the European Qualifications particular, The Importance of Teaching: Schools Framework (EQF) which is an overarching White Paper15 set out reforms to GCSE and A levels, qualifications framework that links the and the Review of vocational education - The Wolf qualifications of different countries together. This Report16 made some significant proposals relating will help learners and workers who are moving to vocational qualifications. between countries, from job to job and from one education or training institution to another. Ministers want universities and learned bodies We also have a scrutiny programme: scrutinies be more involved in the development of A are in-depth studies of the examination process level requirements, so we and DfE have held and products across a range of GCSEs and A meetings to discuss this with the main university levels offered by different awarding organisations. organisations and learned societies, and we are Scrutinies aim to identify any aspects of the exploring ways of ensuring that recommendations process that appear to limit fair and effective are representative of the whole sector. examinations, and any good practice worthy of encouragement and dissemination. The Government has made clear the importance it attaches to the maintenance of rigorous standards in examinations and assessments, as of course Working with do we. Proposals in the White Paper and now included in the current Education Bill would add Government to our statutory objectives to require us to seek to bring standards of regulated qualifications into Whilst we are an independent regulator, line with those in other countries. Prior to the reporting directly to Parliament and the introduction of this proposed new objective, the Northern Ireland Assembly, we have a duty Secretary of State asked us to look at international to provide on request information and standards. We therefore started work in summer advice about our work to the Secretary of 2010 to compare A levels with equivalent State or the Northern Ireland Department qualifications for 18-year-olds used for university of Employment and Learning, and to have entrance abroad. regard to Government policy. Government policy often has an impact on, or relies upon, Further details of our work with Government can qualifications, and we aim to be a trusted, be found throughout this report. independent and evidence-based source of advice to Ministers on qualifications policy issues. 15. The Importance of Teaching: Schools White Paper www.education.gov. uk/b0068570/the-importance-of-teaching/

16. Review of vocational education - The Wolf Report (March 2011) www. education.gov.uk/publications/eOrderingDownload/The%20Wolf%20 13 Report.pdf Section 2 Annual Report to Parliament 2010/11 Annual Report Parliament to

The year in view

HIGHLIGHTS

2010-11 – our first year of operation – was a „ 20 new awarding organisations busy and eventful year for Ofqual. „ 5222 qualifications entered on the Alongside our work to establish ourselves and Register develop our approach to regulation, we have maintained our crucial day-to-day role of „ regulating, alongside our fellow regulators in 4400 qualifications removed from the Wales and Northern Ireland, more than 15,000 Register qualifications in an industry that we estimate is worth over £900 million a year.17 „ 14 monitoring visit reports published: 13 monitoring visit reports awaiting However, Ofqual’s role is still evolving: the publication Education Bill 2010-1118 currently before Parliament proposes to amend our governance „ 413 complaints and investigations. arrangements and to change one of our standards

17. Annual Qualifications Market Report (March 2010): www.ofqual.gov.uk/ files/2010-03-19-Annual-Market-Report.pdf

14 18. Education Bill 2010-11: http://services.parliament.uk/bills/2010-11/ education.html objectives. skills, understanding and level of achievement at the point of assessment. Over the last year we have laid the foundations for our role as the new statutory regulator, This year we completed a major research project accountable to Parliament and the Northern on the reliability of qualifications.20 Reliability, in Ireland Assembly. We have consulted on and education assessment terms, can also be thought Section 2 Section shaped our regulatory philosophy and approach. of as consistency. A high level of reliability would We have made substantial progress in drawing up mean that broadly the same outcomes would our new qualifications regulatory framework arise were an assessment to take place again – which will play a vital role in securing our the candidate would get the same result if they objectives. took the examination on a different day, had different questions on the paper, or if it was The new regulatory philosophy and approach will marked by a different person. We also began a place the responsibility and accountability for new phase in our international work, with quality and standards of qualifications firmly with research to understand better comparisons of the awarding organisations we regulate. We have qualification standards across borders. set out our plans for a risk-based approach; we will retain a close interest in high-volume, high Publication in February 2011 of our Regulatory stakes qualifications but we will not scrutinise Framework for National Assessments: National each and every qualification. We will assure Curriculum and Early Years Foundation Stage was ourselves through the recognition process that our most significant development of the year for each awarding organisation is capable of the 3–14 age group and followed extensive and awarding high-quality qualifications. Then we will very helpful consultation. This supports our hold them to account for those they offer through second statutory objective, to promote the their compliance with the General Conditions of standards of regulated assessment arrangements. Recognition.19 Our Framework will provide a reference point for To support our new approach, our qualifications the delivery of statutory assessments and the Regulatory Information Technology System (RITS) development of new assessments, such as the was developed and launched in October 2010, on new phonics screening checks for six-year-olds.21 schedule and well under budget. It enables In March 2011 the review of the Early Years awarding organisations to provide information to Foundation Stage led by Dame Clare Tickell22 us electronically and facilitates data sharing recommended a modified approach to between teams in Ofqual, helping us to work assessment. The review of Key Stage 2 testing led more efficiently. Further enhancements to RITS in by Lord Bew23 has also just been published. We the coming year will support our new approach include more information on the National to regulation. Assessment framework in Section 3. We regulate to secure that qualifications are valid, As well as universities, employers, schools and reliable and comparable and are provided colleges, a wide range of public organisations, efficiently. Different versions of the same such as Ofsted and the Skills Funding Agency, qualification provided by different awarding must be able to rely on the standards of regulated organisations must be comparable, in particular qualifications and assessments. And the public so that there is no incentive for centres or learners rightly expects that high-quality qualifications and to choose qualifications they believe are easier or assessments give a reliable picture of the provide higher grades. Schools, colleges, universities and employers need to be able to 20. The Reliability Programme: Final Report (January 2011): www.ofqual.gov. trust that qualifications provide a fair and accurate uk/files/reliability/11-03-16-Ofqual-The-Final-Report.pdf indication and record of a learner’s knowledge, 21. www.education.gov.uk/inthenews/inthenews/a0068426/michael- gove-announces-reading-progress-check-for-all-year-1-pupils

22. The Tickell Review of the Early Years Foundation Stage: www.education. gov.uk/tickellreview

19. General Conditions of Recognition (May 2011): www.ofqual.gov.uk/ 23. Review of Key Stage 2 testing, assessment and accountability: www. 15 files/2011-05-16-general-conditions-of-recognition.pdf education.gov.uk/ks2review 16 Annual Report to Parliament 2010/11 times thenumberwe hadexpected, basedon page explainingthechanges to Alevels were four created to explainthereform. The visitsto the ofourwebsiteletters andaspecialsection was the preparations. We ofopen publishedaseries Peers andthemediawere upto date kept with colleges. We alsomadesure thatthepublic, MPs, behind themthrough their schoolsand thinking informed learners ofdevelopments and the kept therun-uptoapplicants. thechanges, In we the reform anditspotential effect onuniversity there about wasconsiderablepublicconcern examination, Naturally withsuchahighstakes the endofsecondyear ofstudy. oneyear after ofstudy,taken andthefullA level at split itinto ASlevel, astand-alonequalification Alevel 2000reforms sincetheCurriculum stakes wasthebiggestreformcandidates. ofthehigh It thebestperforming between discrimination exceptional achievement andallowfor improved was awarded for thefirsttime, to reward with somegettingthenewA*grade. It A level studentscelebrated theirachievements, On 19thAugust 2010,hundreds ofthousands regulator.first bigtest asastatutory ofOfqual season in2010,whichmany ways was the We oversaw asuccessful summerawarding Summer results Standards Qualification education system. Soourjobisanessentialone. ofindividualsandthewider performance its percentage ofUKstudentsfrom state schools. university’s useoftheA*grade hadhelpedraise colleges,the Cambridge later saidthatthe Dr GeoffParks, thedirector ofadmissionsfor candidates to showtheirpotential. the A*grade would enable thetop state school saidatthetimethatitbelievedof Cambridge the exceptional from theexcellent. The University grade appearsto have distinguishedsuccessfully in England. Ourreport awardingacross organisations thethree unitary grades awarded. We chosesixAlevel subjects indepthatthepapers,we and looked scripts ofourongoingscrutiny programme,As part were notclearenoughfor candidates. instances where therequirements ofquestions organisations. They alsoidentified several publishedinadvancebytheawardingmaterial more demandingthansuggested bythesample insufficiently demandingandothersthatwere found somequestionsthattheyjudged experts demonstrate theirfull ability. However, oursubject at thislevel andthattheyallowstudentsto ofthedemandtheyplaceonstudents terms six qualificationsmonitored are appropriate in Feedback from teachers waspositive. the A-level specifications(iesyllabuses). spread inprevious ofmarks years andchangesto we hadexpected, based onourmodellingofthe achieved an A*grade. This wasinlinewithwhat Overall, justover eightpercentofcandidates previous years. The-new-GCE-A-level-examinations.pdf QualificationsNew in2010 26. 25. www.bbc.co.uk/news/education-13308238 gov.uk/files/2011-03-perceptions-of-a-levels-and-gcse-wave-9.pdf 24. The New GCE A level Examinations: GCEAlevel The New Findings from theMonitoringof Perceptions ofAlevelsandGCSEs:Wave 9 (April 2011):www.ofqual.gov.uk/files/11-04-04-(April 26 concludesthatthe (March 2011):www.ofqual. 24 The new The 25 These issues were specific to the papers looked at. Vocational qualifications are a key part of the It is vital that we monitor qualifications to detect education and training system and the economy. any issues and require awarding organisations to They underpin the skills agenda and can lead make improvements where necessary. the way to better opportunities for individual learners. As well as participating in celebrations

We have now instructed awarding organisations in England, our Chair travelled to Belfast to help 2 Section to take appropriate action to resolve the issues congratulate the finalists for the Northern Ireland identified in the scrutiny programme. VQ Learner of the Year. VQ Day is a real testament to the importance that is placed on vocational Regulating the A level qualification was only qualifications by the learners and those who part of the story in the summer 2010 examining nominated them from further education, training season. Large numbers of qualifications are providers, employers and SSCs. awarded annually and in England, Wales and Northern Ireland in 2009/10 there were:

„ 5.8 million GCSEs The examination season was marred, however, „ 2 million AS and A levels by problems with the management of the online marking system of AQA, one of the three largest „ 0.9 million Key Skills awarding organisations for general qualifications in England. When the problems were uncovered, „ 6.8 million other qualifications.27 the priority was for AQA to resolve the situation for affected students by swiftly completing the Our report on the summer examinations, marking. We monitored AQA’s actions and then Delivery of Summer 2010 Examinations of GCSE, A launched an Inquiry29 to establish what went level, Principal Learning, Project and the Diploma, wrong, the reasons for the failure and what should published in November 2010,28 concluded that be done to avoid a recurrence in future years. The overall, examinations were delivered (set, awarded failings by AQA identified by our inquiry were very and administered) effectively, professionally and disappointing, especially as they led to a small fairly. Sixteen million scripts and seven million number of candidates missing out on their first pieces of coursework were marked and the results choice of university or course. The inquiry also were mostly delivered on time, with the exception made recommendations for the regulators to of some specific problems detailed below. consider. Further detail is on page 34.

VQ Day, a national celebration of vocational qualifications for students, teachers and employers, was held on 23rd June 2010 across England, Scotland, Wales and Northern Ireland.

27. Annual Qualifications Market Report (May 2011): www.ofqual.gov.uk/ files/2011-05-25-annual-qualifications-market-report.pdf

28. Delivery of Summer 2010 Examinations of GCSE, A level, Principal 29. Inquiry into the Failure of Part of AQA’s GCSE, AS and A level Script- Learning, Project and the Diploma (November 2010): www.ofqual.gov.uk/ marking Process in the Summer 2010 Examination Series: Final Inquiry Report files/2010-11-01-10-4781-delivery-of-summer-2010-exams.pdf (February 2011): www.ofqual.gov.uk/files/2011-02-21-aqa-inquiry-report.pdf 17 18 Annual Report to Parliament 2010/11 published donebycandidates. Marchwork 2009we In andthe atassessmentmaterials review looked in2007and2008. science examinationstaken This aqualitative reviewwhen we of undertook This wasfirstidentifiedbyus, Ofqual, asinterim were echoedby thescience community. the assessments. This raised concerns which been adeclineinthestandards ofdemand the firstawards demonstrated that there had separate sciences in2008)andtheresults of 2007 andfor additional science andthe awards ofGCSEScience was, therefore, in firstqualification teaching in2006(The qualifications were revised in2005for first Physics). The criteria and, therefore, and separate sciences (Biology, and Chemistry standard ofGCSE Science, Additional Science We played acrucialrole inprotectingthe Upholding science standards professional organisations aswell asthat received feedbackand incorporated andadvicefrom many raisedintheMarch report account ofconcerns 2009. published inDecember forcriteria GCSEScience qualificationswhichwere We alsosetinhanddevelopment ofrevised existing qualifications. yeartwo groups ofstudentsengagedinthe the improvements given thatthere were at least timeto thatitwould make take acknowledging measures to improve stretch andchallenge, while awarding of organisations aseries to take that gave causefor serious concern. We required these qualificationsandraisedanumberofissues (February 2011): www.ofqual.gov.uk/files/2011-02-21-aqa-inquiry-report.pdf Processmarking Final intheSummer 2010Examination Report Series: Inquiry 31. 01-10-4781-delivery-of-summer-2010-exams.pdf Project andtheDiploma 30. Delivery ofSummer2010Examinations ofGCSE, Alevel,Delivery Principal Learning, Inquiry intotheFailureInquiry ofAQA’s ofPart GCSE, Script- ASandAlevel 30 ourreview ofthefirstassessments (November 2010):www.ofqual.gov.uk/files/2010-11- 31 took These criteria

from September 2011. accredited all36specificationsfor firstteaching accredit mostofthespecifications. We have now took untilMarch 2011beforeIt we were ableto submissions.to theirnext outstanding issuesthathadto beaddressed prior provided to theawarding organisations on revised specifications. feedback Detailed was were therefore unableto accredit any ofthe36 new submissionsdidnotmeetourcriteria. We specifications to usfor accreditation. Again, these 2010 theawarding organisations submitted new GCSE Sciencespecifications. AttheendofApril recommendations whendeveloping theirnew account ofits so theycouldtake We withawarding shared thisreport organisations specifications beingdeveloped for 2011. done onthecurrent specificationsandto thenew recommendations whichappliedto being work understanding andskills. alsomadesix The report to demonstrate theirfullknowledge, not give candidates ofallabilities theopportunity generally match thegrade anddid descriptions summer 2009examinationpapersdidnot concludedthat,disappointingly,Our report the published datafrom thesummer2009awards. inresponse to wasundertaken This report 2009 GCSE Science andGCSEAdditional2009 GCSEScience Science Wales) publisheda July2010we (alongwiththeregulatorIn for 2011. standardsstringent for teaching from September to develop newqualificationsto meetthesemore consultation process. Awarding organisations had 12-weekthrough public thestatutory 2009-gcse-science.pdf Science 32. Review of standards andGCSEAdditional insummer2009GCSEScience Review (July 2010):www.ofqual.gov.uk/files/2010-07-22-review-of-summer- (July Review ofStandards inSummer Review . 32

Maintaining Standards Section 2 Section During change and saw an increase in use of 70% and 50% respectively above our average usage. Summer 2010 saw some important changes. We had the first awards of the new A levels Summer 2011 will see the first full awards since and the new A* grade, the first Diploma GCSEs became almost entirely modular in 2009. awards at level 3 (that is A level standard) To check whether standards are being maintained, as well as larger numbers for the first five we have been carrying out scrutiny monitoring of Diplomas at level 1 and 2 (that is GCSE the new unitised specifications. standard) and five new Diploma subjects. We also saw the first unit awards of new GCSEs in all subjects except English, mathematics, ICT Assessment and the sciences. Maintaining comparable standards is most Standards difficult at times of change. These changes have the potential to impact on the outcomes – the National Assessments results candidates receive in August. The role of the regulators (we work closely with colleagues in The publication of our Regulatory Framework Wales and Northern Ireland) is to make sure those for National Assessments: National Curriculum outcomes are fair – to this year’s candidates, to last and Early Years Foundation Stage in year’s candidates and to next year’s candidates. February 2011 met a key requirement in the Apprenticeships, Skills, Children and Learning Part of our role is to lead the discussion amongst Act, and was a critical step towards meeting the awarding organisations about the most our assessment standards objective. appropriate ways to maintain standards, and to set general principles so all awarding organisations Our framework sets out clear criteria for the take comparable approaches. This is what we did development and implementation of National ahead of the first awards of the new A levels and Assessment arrangements and provides the GCSEs and the new qualifications that form part framework against which we now regulate of the Diploma. In the case of GCSE and A level, standards in those assessments. The framework for example, we agreed a very important principle will be particularly significant in the near future that a candidate who would have achieved, say, a as new National Assessments are developed and grade B on the old syllabus should also achieve a introduced, and existing approaches are modified. grade B on the new syllabus. Its implementation will also need to be kept under active consideration as the review of the National As part of being an open and transparent Curriculum33 itself begins to take shape. regulator, we have had regular dialogue with secondary schools and colleges, Parliamentarians, During the year we also published reports dealing teacher associations and higher education with standards in the 2010 Key Stage 2 tests, representatives, to explain the implications of the reviewing the evidence produced from the pilot changes and how we were planning to maintain of Single Level Tests,34 and on aspects of early standards. We also published detailed information years assessment. on our website on A level and GCSE results days

33. www.education.gov.uk/inthenews/inthenews/a0073152/michael- gove-announces-major-review-of-national-curriculum

34. A review of the Pilot of the Single Level Test Approach: www.ofqual.gov. uk/files/2011-04-13-review-of-pilot-single-level-test-approach.pdf 19 20 Annual Report to Parliament 2010/11 examinations in some subjects willhaveexaminations insomesubjects specific areas.these skill From September 2012, GCSE specific accountofcandidates' abilitiesin take English Languagequalifications whichalready for writing, extended excluding GCSEEnglishand wheresubjects there iscurrently arequirement to address in can betaken theseconcerns addition more immediate In action Curriculum. fromarising therevision oftheNational intoreview accountchanges whichwillalsotake be addressed inallGCSEqualificationsatthenext We have thatthisissuecan advised government course publicconfidenceinqualifications. andhighereducation,of employers, further addressing it,intheinterests ofyoung people, our role andtherole ofqualificationsin intheseskills. performance We have considered accountofcandidates' qualifications cantake for schemes inall ouradviceonhowmark enter theworkplace. hasasked The government grammar whenyoung theywould people expect spelling, andtheaccurate useof punctuation in that young peopledonothave theskills We are thatmany concerned employers complain inform ourplans andprioritiesfor thefuture. debate onthisissuethat will wide-ranging coming year we willinitiate and astructured increases ineducational attainment. Over the over thelasttwo decadesgenuinelyreflects improved inpublicexaminations performance by themediaover theextent to whichthe We publicconcern acknowledge highlighted Public Confidence and Awareness remains muchpublicdebate, andaprevailing standards. However, we recognise thatthere inform thepublicunderstandingofqualifications thematic studiesandspecific evaluationsto help not upto andpublish themark. We undertake qualifications andrejectingthose forsetting benchmarks standards inspecific standards. We dothisinmany ways including We to secure regulate qualification inparticular level. organisation ratherthanindividualqualification that we plannedto regulate atawarding consultationlastautumnwe stated our statutory the QualificationsandCredit Framework (QCF).In qualifications, donotneedto becompliantwith provided theymeetourrequirements for all had already thatvocational clarified qualifications, Alison Wolf’s review ofvocational education,we Prior to thepublicationinMarch 2011ofProfessor and progression andhighereducation. to further aim ofproviding better pathways to employment vocational educationfor young peoplewiththe itsplansto reform isconsidering The Government colleges later thisyear. details willbemadeavailable to schoolsand consistent acrossinvolved. thesubjects Further that theimplementationofthisrequirement is withawarding organisationsbe working to ensure andgooduseofgrammar.punctuation We will to rewardmarks accurate spellingand view, that qualifications standards are not what Single framework they used to be. There are a number of different and interlinked issues behind this issue including The QCF is a way of recognising achievement concerns about the range and worth of through the award of credit for units and qualifications, the nature of examinations, the qualifications - across England, Wales and Northern Ireland. It provides flexible routes to commercial behaviour of some awarding 2 Section organisations and the pass rate or level of learner gaining full qualifications and enables progression achievement. And people mean different things to be achieved in smaller steps through the when they talk about ‘standards’. Given these accumulation of credit. During 2010/11 we concerns we will initiate a structured and undertook a significant volume of activity to informed debate on standards this year to inform recognise awarding organisations to operate in our future plans. accordance with the QCF and to accredit their new qualifications. When we, together with our fellow regulators in Wales and Northern Ireland, published the

regulatory arrangements for the QCF we made a commitment to evaluate the arrangements in Consultations practice. We undertook the evaluation over a two year period. We published an interim report in We have carried out consultations over the year, January 2010 and the final report in June 2011. including on the ways in which we would We highlighted in the report the lessons that regulate awarding organisations and secure should inform future qualification reform standards of regulated qualifications. Twenty programmes and on which we can draw when public meetings and events around the country we develop a single framework to which all have been organised where key members of our regulated qualifications can be referenced. teams have explained our proposals and canvassed opinion. We have also seized Examination disruption opportunities to speak at 33 conferences. During the winter examination series in January Good progress is being made on raising the 2010, disruption was caused by heavy snow. We awareness of independent regulation. The 2010 used this to test and improve the contingency annual survey of public perceptions35 showed a management plan agreed jointly by the three considerable increase in the proportion of regulators and the awarding organisations. We teachers who perceive Ofqual as an effective assured learners that measures were in place to regulator. More than half (53 per cent) said they cope with any disruption and that anyone who saw us as effective compared with less than a was unable to sit their examinations as a result of third (31 per cent) in 2009. But we recognise there the bad weather would be treated fairly and is still some way to go. consistently by the awarding organisations.

35. Perceptions of A levels and GCSEs: Wave 9 (March 2011): www.ofqual. gov.uk/files/2011-03-perceptions-of-a-levels-and-gcse-wave-9.pdf 21 We used this recent experience again in the run- of the qualifications, we continue to receive a up to the summer examination season in 2010 number of allegations of malpractice. Centres, when we took the lead in co-ordinating a that is colleges and training providers, that offer consistent approach across the awarding ESOL qualifications without any sound registration organisations to problems candidates faced as a or assessment methods or both. This can have a result of the suspension of civil aviation over the major impact on people wishing to apply for UK due to ash in the atmosphere from the citizenship or leave to remain, and also puts the erupting volcano in Iceland. A number of integrity of the qualifications in doubt. teachers were stranded abroad, which led to the In response to these concerns we have already closure of some schools at a critical point in the taken a number of actions to help secure the year for examination candidates, and some integrity of these qualifications and protect the candidates were also stranded. Annual Report to Parliament 2010/11 Annual Report Parliament to interests of this group of sometimes vulnerable We used various publicity channels to get learners,36 including the following: information to schools, colleges and candidates „ Where allegations of malpractice have been about the measures that had been put in place to reported we have required the awarding assist those who thought they may be unable to organisation involved to investigate and, if attend examinations. necessary, to apply appropriate sanctions to

Malpractice the centres concerned. In some cases this has included invalidating certificates and moving During 2010/11 we played a leading role in candidates to another centre for exposing some poor English language courses for reassessment. non-English speakers. From 7th April 2010, the Home Office made changes to the requirements „ We hosted an ESOL best practice event in for those applying for indefinite leave to remain or November 2010 for the nine awarding for British citizenship. The Home Office changes organisations offering ESOL qualifications, require those providing courses to be either which was also attended by the UKBA. Home Office accredited or Ofsted approved; without this, English for Speakers of Other „ We wrote two open letters to the awarding Languages (ESOL) qualifications are not accepted organisations requiring each of them to be in support of citizenship applications presented to vigilant and rigorous in the management of the UK Border Agency (UKBA). The Home Office these qualifications and when investigating wished to make the requirements more explicit cases of malpractice. and help ensure the validity and rigour of the system. „ We worked closely with the UKBA and the police over the year where cases of Although the vast majority of organisations malpractice have been identified, acting as a delivering the ESOL qualifications meet the required standard in their delivery and assessment

22 36. Help and advice www.ofqual.gov.uk/help-and-support/166/308 key liaison point between these agencies and check that centres delivering their qualifications the awarding organisations. have integrity, and in particular that they are not dishonestly claiming to have the UKBA „ We took part in the UKBA consultation on the accreditation. proposed legislative changes which were

implemented by UKBA last year, involving 2 Section language requirements for both citizenship Efficiency applications and students migrating to the UK on student visas. Economic regulation „ We launched a comparability study into We have recognised more than 170 awarding assessment methods for ESOL qualifications organisations and achievements were being used by the different awarding awarded in a total of 7,750 qualifications. organisations, to determine if the different Whilst there were over 15,000 qualifications assessment methods indicate a consistent on The Register, relatively few qualifications level of attainment. are used in very high volumes.

„ The number of achievements in regulated qualifications has increased year on year for the last five years, from 13.2 million in 2005/6 to 15.5 million in 2009/10. Just 141 qualifications accounted for over half these achievements. The Preparation for Life and Work sector/subject area accounted for over one fifth of the qualification achievements in 2009/10. For the last few years, the number of A level qualifications achieved has been fairly consistent. There has been a small decline in GCSE „ We worked closely with the Home Office, the achievements, which may be linked to the UKBA and awarding organisations to identify broadening of the school curriculum and the weak provision and we published information increase in the number of non-GCSE qualifications on our website to advise students on how to and achievements in schools. identify legitimate colleges and courses, in order to help them protect themselves. Spending by state secondary schools in England on examinations and assessments has risen from The marketing of ESOL qualifications is also being £154 million in 2002/3 to £303 million in 2009/10, addressed following cases of misleading according to the Department for Education.37 advertising by some ESOL centres. Where we come across such advertising, we contact the The efficiency of provision and the price charged awarding organisation which has approved the for examinations is clearly an area in which the centre, and require them to instruct the centre to regulator has an important role to protect the change the website. consumer. The total cost of examinations has been rising in recent years as a result of several When an application is rejected by the UKBA on factors including the impact of the opportunity the grounds that the ESOL qualification has not for resits arising from modular examinations and been taken at a suitably accredited centre, it the increase in the number of qualifications taken causes hardship and distress to the candidate. So in particular vocational qualifications. while it is not for awarding organisations to do the UKBA’s work, they do have a responsibility to Data are not currently collected that would

37. Annual outturn summary, Department for Education: (i.e. figures including inflation) www.education.gov.uk/schools/adminandfinance/ financialmanagement/schoolsrevenuefunding/section251/archive/ 23 b0068383/section-251-data-archive 24 Annual Report to Parliament 2010/11 files/11-04-08-Analysis-of-consultation-responses-for-Ofqual.pdf 39. for-economic-regulation how-we-regulate/138-economic-regulation/325-developing-a-framework- 38. March 2011. oftheresponses waspublishedin summary powers. A economic regulation andfee-capping outamajorconsultation onourplansforcarried ofourroleaspects asaneconomicregulator, and onthree studiesthatwe publishedon promoting efficiency. Buildingontheseprinciples downstandardsbehaviours driving while Regulation mustprotect againstcommercial standards andpublicconfidence. into to accounttheneedfor secure themarket value for money, sure we willmake thatwe take maintained. As we and seekto secure efficiency healthy ifstandards andpublicconfidenceare as canonlybedescribed qualifications market(s) discourage moves againstthepublicinterest. The regulation, to drivedesirable behaviours andto upby backed include incentives, ifnecessary andconsumerchoice. Healthyefficiency markets innovation, drive Healthy competitive markets sector. butisunusualinthisparticular services, model for public theprovision oflarge-scale provided through amarket. This isacommon regulatesThe qualificationsthatOfqual are is over £900million. the basisofpublishedinformation, we estimate it However,value ofthequalificationsmarket. on enable usto provide aprecise figure for thetotal decisions bycustomers. measures to promote more intelligent purchasing ofFairOffice Trading oncompetitionissuesand secure withthe efficiency, includingworking to potentially more interventions proportionate evidence ofinefficiency, there are alternative, and Ofqual’s power to cap fees, althoughifthere is Analysis of consultationAnalysis responses Developing aframeworkDeveloping foreconomic regulation 39 Many oftheresponses focused on (February 2011): www.ofqual.gov.uk/ : www.ofqual.gov.uk/ 38 we we education.gov.uk/b0068570/the-importance-of-teaching 41. 40. information provided to learners, purchasers and of andtheclarity increase transparency price 2011. May They alsoincludenewmeasures to the recognition conditionswe publishedon16 effective purchasing decisions. of These were part purchasers more ofqualificationsto make encourage schoolsandcollegesother organisations to provide information thatwill efficiency, we imposedrequirements onawarding ofouroverall approach toAs securing part to awarding risks organisations.market We willalsolookto understandany including risks for schools, collegesandothertrainingproviders. onthecostsofexaminations the possibleimpact to understandthechangesand also beseeking ofthiswe will Aselsewhere part inthisreport. landscapeare setout of thisdeveloping policy aspects to adviseandimplementtheregulatory The ways withGovernment thatwe are working Alison Wolf’s review publishedin March 2011. education andemployment,following Professor progression andhigher supports to further education for 14-to 19-year-olds sothatitbetter Government intends to reform vocational introduction oftheEnglishBaccalaureate, the on whichqualificationsare chosen.Alongsidethe uses regulated qualifications, andmay well impact Baccalaureate isnotaqualification initself, butit academic oravocational route. The English 16, whetherornotstudentsthengodownan to studentsuptoacademic subjects theageof encourage schoolsto offer abroad setof introduced theEnglish Baccalaureate to More immediately, theGovernmenthas from, andoutpace, theworld’s best. andqualificationsto allowusto learn curriculum and outlinedadirectionoftravel onthe reform ofeducationinEngland,whole-system Paper 2010 and last year’s strategies, to changeanddevelop significantly inEngland. In landscape We theeducational policy canexpect The Importance ofTeaching:The Importance Paper White The Schools 2010 Skills forSustainable GrowthSkills The Importance ofTeaching: TheImportance White TheSchools , 41 Ministers setouttheirplansfor Ministers Skills forSustainableGrowthSkills : www.bis.gov.uk/skillsforgrowth : www. 40 other users of qualifications about the On 1st March 2011 Glenys Stacey, previously the qualifications and associated products and Chief Executive of Standards for England, joined as services offered by awarding organisations. The our new Chief Executive. Dame Sandra Burslem, conditions also require awarding organisations to the Deputy Chair, stepped in to provide continuity manage any conflict of interest arising from their whilst the new Chair was appointed. wider business activities or as a result of other 2 Section The Government announced its intention to work undertaken by their employees. Awarding combine the roles of Chief Executive and Chief organisations must have a clear rationale for Regulator, and provisions to achieve this are where qualifications are sold together with other included in the current Education Bill. products and services. We are in the process of scoping a research Capability and capacity project working closely with other stakeholders, During our first year we have invested significantly as required, to allow us to understand better the in establishing and building our regulatory skills drivers of a healthy market for qualifications to see and competence, whilst delivering our role of if any additional regulatory measures are required. regulating qualifications, examinations and In 2010/11, we set in hand work to build our assessments. Those members of staff working understanding of the economics of the directly on regulation received intensive training qualifications market. We intend to consult on and support, and all staff had the opportunity and whether it is appropriate to develop pricing were encouraged to learn more about regulation, principles including on cost reflectivity to set and to learn from other regulators and from our parameters for the market. own growing experience of regulation in practice. We will continue to invest in training and development. We are also building contacts and networks with regulators in other sectors. The Ofqual Team Appendix 7 details our staff profile. It will be a challenge for us to meet our objectives Leadership role and the expectations of Ofqual within the resources we have available, which – as with all Our first year as a statutory body has seen public sector organisations – will be reducing significant leadership changes and the substantially over the coming years as a result of recruitment of fresh talent. A new Board was the Comprehensive Spending Review. As noted appointed at the start of the year through the above, Ministers are seeking to use the Education public appointments process, including a Bill to broaden our standards objective to member for Northern Ireland. incorporate an international dimension. One of the first actions the Board took was to We strengthened our own capacity in relevant establish three committees: a Regulation of areas (for example research) by taking on some Vocational Qualifications in Northern Ireland staff from the closing Qualifications and Committee, an Audit and Risk Committee and a Curriculum Development Agency (QCDA) whose Human Resources and Remuneration Committee. valuable experience matched our needs as we Kathleen Tattersall, the first Chair and Chief expanded our existing areas of work. Regulator, stepped down in July 2010. At the end of February 2011 Isabel Nisbet, Ofqual’s first Chief Executive, left for a new position.

25 Section 3 Annual Report to Parliament 2010/11 Annual Report Parliament to

Regulation in action HIGHLIGHTS „ More than 15 million regulated qualifications awarded

„ First awards of A* grade at A level Qualifications in England, Wales and „ First awards of units for new GCSE Northern Ireland are awarded by awarding specifications organisations a mixture of limited companies, charities, learned bodies, craft and industry „ 4,000 Diplomas awarded associations and employers. „ Inquiry into A level and GCSE marking This system offers variety, choice and room for errors innovation. However, with qualifications, learners do not have the same protection as they do when „ Intervention and advice on ESOL purchasing most consumer goods; they cannot send their qualifications back if they do not do „ Investigation into Chemistry A level in what the provider promised. Northern Ireland

The market alone does not provide the incentives „ Maintaining the standard of science to maintain standards and secure value for money. GCSEs.

26 Section 3 27 A level gradeA level %)Grade A (cumulative %)Grade E (cumulative 25.9 26.7 97.2 2008 97.5 27.0* 2009 2010 97.6 have to rely on a single set of specimen papers set of specimen on a single rely to have past tried access to and tested having rather than senior examiners It for difficult papers. is also more maketo the quality judgements about of work Senior examiners produced. have that candidates one examination scripts for candidates’ compare If the years. previous scripts from with archive year that comparisonstyle is changes, of assessment difficult. made more the new four- of the first award Summer 2010 saw of the introduction in most subjects, unit A levels the first and challenge at A2, and stretch greater in all at A level of the new A* grade award the of units for subjects. Itfirst award the also saw teaching for new GCSE specifications introduced 2009 (in all subjects English, from except ICTmathematics, the sciences). and discussion with the awarding Following prioritise decided to we organisations, mean that, by which we outcomes’, ‘comparable of the achievements all other things being equal, at subject on the new candidates level of those specifications should be similar to This is specifications. on the previous candidates not unfairlyso that learners advantaged or are sit new to disadvantaged by being the first specifications. aspect this given have organisations The awarding a considerable amount of attention of grading in closely monitoring their awarding are and we The table below shows the summer 2010. proportions A and E of students achieving grades between The differences in 2008, 2009 and 2010. much smaller that the 2009 and 2010 are will We between 2008 and 2009. differences prioritisecontinue to in comparable outcomes and GCSE. A level for summer 2011 awarding, * includes A* grade Qualifications provisional for Joint Council (Source: all subjects) data for

consistent standards between years between years standards consistent awarding across standards consistent not advantaged or learners who are interveneto are if necessary results before

assessments and in the first instance they will resources to help them prepare for the new for help them prepare to resources different. Teachers and students may have fewer fewer have and students may Teachers different. change and question papers may look verychange and question papers may specifications change. Assessment structures Assessment specifications change. Maintaining standards is most difficult when Maintaining standards „ „ „ the same qualification offering organisations disadvantaged by sitting new syllabuses issued. „ that standards are maintained. To do this we need: we do this To maintained. are that standards candidates get the results their work merits and get the results candidates necessary intervene, make that all to sure oversee delivery oversee and where and grading the queries and appeals processes. Our role is to to is Our role the queries and appeals processes. grading of assessments, the delivery of assessments, and grading of results individual question papers to the markingindividual question papers to and by awarding organisations and the preparation of of and the preparation organisations by awarding process, from the development of specifications the development from process, Delivery and lengthy of examinations is a complex practice, to help meet these important help meet practice, to objectives. examinations Summer 2010 we set out some of the things we have done in have the things we set out some of we regulation is importantregulation In in principle. this section organisations are maintaining standards. So standards. maintaining are organisations their value over time and check that the awarding the awarding and check that time over their value regulated qualifications are valuable and keep valuable and are qualifications regulated learners, provide the public with assurance that with assurance the public provide learners, Regulation is therefore necessary protect to is therefore Regulation The new A* grade accounted for just over eight In summer 2010 there were: per cent of A level awards to candidates in England, Wales and Northern Ireland according „ 103,632 enquiries questioning the grades to provisional figures from the Joint Council for awarded for GCSE units Qualifications,42 which collates results on behalf of the GCSE and A level awarding organisations. „ 22,220 GCSE grade changes made Further details can be found in Appendix 3. „ 68,088 enquiries questioning the grades In November 2010 we reported publicly on awarded for GCE A and AS level units aspects of the summer examination series, including the first awards of the revised A „ 10,541 AS and A level subject entry grade changes made. Annual Report to Parliament 2010/11 Annual Report Parliament to levels and units of the new unitised GCSEs, and increased numbers of awards of Diploma qualifications. The GCSE grade changes represent 0.40 per cent of the subject entries, up from 0.32 per cent in

Our report concluded that the summer 201043 2009. The A and AS level grade changes represent examinations season series for GCSE, A level, 0.47 per cent of total subject entries, up from 0.41 Principal Learning and Project qualifications was, per cent in 2009. in the main, delivered successfully. This is a very small proportion of the overall The Diploma is made up of Principal Learning, the number of qualifications awarded. However, Project and other constituent qualifications such our Ipsos MORI survey of perceptions of public 44 as Functional Skills. In summer 2010 the Level 3 examinations conducted in 2010 showed that Advanced Diploma that equates to 3.5 A levels more than a third of A level and GCSE teachers (36 was awarded to just over 600 learners. A further per cent) said they had to rely on enquiries about 4,000 learners achieved Higher and Foundation results services to get accurate results for their Diplomas, equating to five A*–C grades and five students. D–G GCSE grades respectively. Appeals After the results are published each summer, schools and colleges are able to challenge the In April 2010 we took over responsibility for grades awarded with the awarding organisations. the Examinations Appeals Board (EAB), the independent body that is the final stage of the enquiries and appeals process for GCSEs, A levels

42. JCQ results data 2010 - www.jcq.org.uk/attachments/published/1297/ JCQ%20GCE%20Results%202010.pdf and

www.jcq.org.uk/attachments/published/1317/JCQ%20Results%20 24%2D08%2D10.pdf

43. Delivery of Summer 2010 Examinations of GCSE, A level, Principal Learning, 28 Project and the Diploma (November 2010): www.ofqual.gov.uk/files/2010-11- 44. Perceptions of A levels and GCSEs: Wave 9 (March 2011): www.ofqual.gov. 01-10-4781-delivery-of-summer-2010-exams.pdf uk/files/2011-03-perceptions-of-a-levels-and-gcse-wave-9.pdf and Diploma Principal Learning. The EAB hears a modularised, so we have given advice on how we small number of appeals each year from schools, might achieve a return to linear assessment. That colleges and candidates about final decisions advice has now been accepted.48 The planned made by the awarding organisations as part of changes will not be achievable immediately, so in their appeal processes. The detail of their work the meantime it is our responsibility to make sure this year is given in Appendix 4 and in the EAB’s that consistent standards are maintained, so that Annual Report.45 learners are not advantaged or disadvantaged by any changes. Our consultation on the future of complaints and appeals46 supported an independent appeals There is conflicting evidence about how mechanism47 for all qualifications. Most of those unitisation affects achievement, other things who responded thought Ofqual should continue being equal. Though learners can improve their to oversee the independent appeals mechanism. marks by resitting, in subjects where knowledge However the detail of the implementation and expertise is built up over time, such as 3 Section requires further work. modern languages or music, there is evidence

Modularisation that learners do better if assessment takes place at the end of a course. Notwithstanding this The overwhelming majority of revised GCSE evidence, we have made it clear over the last year qualifications introduced for first teaching in 2009 to awarding organisations preparing for the first are unitised as opposed to the linear structure awards of modular GCSEs in summer 2011 that used previously, where all the examinations are we expect to see results consistent with previous taken at the end of the two-year course. The years. All other things being equal, we would decision to introduce modular GCSEs was taken expect a learner who would have achieved a by the awarding organisations in preparing their grade B last year to achieve a grade B in the new specifications. The modular approach is popular unitised syllabuses. with many schools and teachers, but there is also widespread concern about the change, in Scrutiny programme particular the impact of resits and the division of learning into small chunks. Ministers have Throughout 2010/11 we carried out in-depth said (section 4.49 in The Importance of Teaching studies of the examination process across a – The Schools White Paper 2010) that they believe sample of qualifications being offered by the that it was a mistake to allow GCSEs to be fully different awarding organisations. The scrutiny programme is an important part of our standards work, allowing us to monitor whether standards are being upheld and providing an evidence base for regulatory action where necessary. 45. EAB Annual Report (2010): www.theeab.org.uk/index. php?option=com_content&view=article&id=60&Itemid=55

46. Consultation on Complaints and Appeals for Regulated Qualifications comment.ofqual.gov.uk/complaints-and-appeals/

47. Analysis of consultation responses (February 2011): www.ofqual.gov.uk/ 29 files/11-04-08-Analysis-of-consultation-responses-for-Ofqual.pdf 48. GCSE reforms www.ofqual.gov.uk/news-and-announcements/83/660 30 Annual Report to Parliament 2010/11 comparability ofoptions.comparability and ofmarking ofthe criteria to thequality other forms ofassessmenttheyrelated primarily requirements schemes. ofthemark For andquality ofquestion of assessmentobjectives, clarity papers related to level ofdemand, coverage the qualificationsmonitored. Issuesfor thewritten issues thesetended notto beevidentfor allof Although we identifiedanumberofgeneral andDesign and Spanish, History Technology. to lookat:EnglishLiterature, Geography, Physics, organisations inEngland. We chose sixsubjects AQA, Edexcel andOCR,thethree Alevel awarding of asamplethenewA2assessmentsoffered by Our scrutiniesin2010-11includedthemonitoring requirements. „ indicatingtheissuesto beaddressed, ifany „ „ „ schemes andmark „ organisations stagesofthe atthevarious examinations process „ who: Each scrutiny involved experts ateam ofsubject

oioe opinewt euaoy monitored compliancewith regulatory to theawardingreported organisation considered arange ofadditionalinformation reviewed asampleofcandidates’ work analysed questionpapers, tasks coursework meetingsheldbytheawarding observed intend to publishourfindingsintheautumn. awarding organisationsand thirteen andwe mathematicsacross five levels skills of functional We alsoinitiated astandards review comparability setting grades. for trainingexaminersandmoderators, andfor andtheirownprocedurescentres andconsortia; schemes;theguidance to papers andmark organisations to improve thedesign ofquestion in anumberofcaseswe have required awarding However, we and found anumberofweaknesses challenging for thefullrangeofcandidates. appropriately, andassessmentswere and varied addressed outcomes thecontent andlearning general, weIn found thesequalifications project qualification. ascrutinyconducted ofthelevel 3extended qualifications across andalso sixlinesoflearning We learning scrutinisedasampleofprincipal We alsoscrutinisedstandards intheDiploma. responses were monitored. to theawardingreported organisations andtheir more orlessdemanding thanappropriate were where questionswereInstances considered to be the professional experts. judgementsofsubject and descriptions the publishedperformance for thegrades theywere awarded, basedon generally inlinewithwhatwould beexpected The samplesofcandidates’ reviewed work were degree ofstretch andchallenge. with suitableprogression from ASandasuitable A level were appropriately demandingatA2, specifications andassessmentsfor therevised generalwe concludedthatthenew In In the year 2010/11 we monitored 23 awarding „ Mineral Products Qualifications Council organisations; we carried out full systems audits looking at systems, controls and processes with „ Institute of Leadership and Management a focus on vocational qualifications. We reported the findings of a scrutiny of Edexcel BTEC National „ Future Awards Certificate in Manufacturing Engineering49 and the related action taken by the awarding organisation „ Lifetime Awards to ensure assessment methods are appropriate and assessment consistent across centres. „ Signature

We also reported the findings of a scrutiny of OCR „ City and Guilds Level 2 Nationals in ICT50 and the subsequent actions taken by the awarding organisation to „ British Institute of Inn-keeping Awarding Body reduce the number of guided learning hours (BIIAB) 3 Section allocated to each of the units, and to remove „ inconsistencies in assessment criteria and the Counselling and Psychotherapy Central comparability of demand across units. Awarding Body „ British Computer Society. Our work in 2010/11 also included, but was not limited to, monitoring the following awarding The results of this monitoring activity have been organisations: published on our website. As part of the work we looked at the development of qualifications that is „ Oxford, Cambridge and RSA Examinations the stages a qualification goes through before it is (OCR) made available to centres. The qualifications varied across the awarding organisations but included: „ National Open College Network „ „ Central YMCA Qualifications Level 1, 2 and 3 in English for speakers of other languages „ 1st4sport „ Level 2 Award in security guarding „ Chartered Management Institute „ Level 2 Certificate/Diploma in Children and „ Ascentis Young People’s Workforce

„ Awarding Body for the Built Environment „ Level 2 Award in Retail Skills

„ Food and Drinks Qualifications „ Level 2 Certificate in Practical Horticulture

„ IMI Awards „ Level 2 Award in Health and Safety in the Workplace „ Royal Horticultural Society „ Level 2 Award in Paediatric First Aid „ Edexcel „ FigureLevel 9:6 Award/Certificate/Diploma in Public INSERTService TEXT Leadership. HERE

49. Edexcel Level 3 BTEC National Certificate in Manufacturing Engineering – findings and actions form the monitoring of the qualification www.ofqual.gov. uk/files/2010-07-05-ofqual-4758-btec-manufacturing-report. pdf?Itemid=145

50. OCR Level 2 Nationals in ICT – findings and actions form the monitoring of the qualifications www.ofqual.gov.uk/files/10-12-01-OCR-Nationals-ICT- 31 public-report.pdf 32 Annual Report to Parliament 2010/11 the next, and of the marking process, through andof the marking the next, standards are maintainedfrom oneyear to of thelevel settingmeetings, through which high. We basedthisjudgement onobservation requirements ofthe2010Code ofPractice was 2011, concludedthatcompliancewiththe Our review ofthe2010tests, publishedinApril schools. 27,000 children in747primary well byjustover asthesamplesciencetests taken by more thanhalfamillion children in2010,as Stage 2tests inEnglishandmathematicstaken oftheKey assessments for 2011andthedelivery development oftheNationalCurriculum theyear underreview weOver the kept assessments National Curriculum endofKey Stage credit-based unitsandqualifications. the QCFhasprovided animproved to write ability by awarding organisations monthsof intheearly experienced trend, curve asthesteep learning hasshownanencouraging More recent activity the QCF. forqualifications were useon beingre-designed numbers ofNationalQualificationFramework requirements oftheQCF, where large particularly meetingthedesign that somehaddifficulty findingsindicated the QCFarrangements. Initial 2010/11,we audited 20organisationsIn against observed. reviewing andsigning offunitsandRoCwere qualifications where lackofprocedures for for of unitsandRulesCombination (RoC) evident inthedevelopment This wasparticularly assessment. requirements for credit-based writing unitsof around resource andknowledge/expertise challenges for awarding organisations, primarily presented arrangements manyof regulatory development timeframeagainstanewset been admitted to theQCF. Suchanintensive organisations and 8500qualificationshave 170awarding aneighteen monthperiod Over awarding organisation (1,347). qualifications (1,352)andapproval to becomean with thetop beingaboutequivalenceof two are innature ofenquiries varied The types days. working per centofemailswithintwo to answer atotal of292calls. We responded to 90 calls onaverage within13.5secondsandwe failed 4,311 callsviathehelpdesk. The helplineanswered teachers, andthegeneralpublictook learners thelastyear wefromOver handled8,539queries accessible information onourwebsite. year wenext intend theprovision to extend of thatiswell regarded,helpline service andover the awareness objective. statutory We provide a andthewiderpublic,learners includinga and guidanceto thosewe regulate, teachers, We have to aresponsibility provide information Helpline organisations’ About Results(EAR) Enquiries the needfor complaintsto exhaustawarding becomes involved inany disputes because of thatOfqual it isnotuntilSeptember orOctober periods. Althoughresults are issuedinAugust general qualificationexaminationandresults last few around years withthepeaksoccurring over predictable the hasbeenfairly This pattern isatAppendix4. our stated levels ofservice of itsresponse timetargets. Performance against 97.9percentof casestheteam metall bodies). In andpublic from departments othergovernment andreferralinto malpractice correspondence (complaints andChiefexecutive correspondence investigations team handled413cases thefinancialyearDuring 2010/11the Investigations all pupils’ responses were appropriately assessed. consistent andover across timeandthat subject development andadministrationofthetests was to ensure thatstandards were appropriate, the helped test scripts. Overall, ourreview activity which thestandards are appliedto eachpupil’s service first. These tend to close around mid-September.

We work steadily on cases at an average of about 35 cases a month. The malpractice cases, although relatively small in number each month (never more than four) are usually complex in nature. Of particular significance this year was a steady stream of complaints relating to English Speakers of Other Languages (ESOL) Skills for Life qualification malpractice; there is more information about our ESOL work in section 1. Also of significance is the growing number of queries surrounding new initiatives such as the 3 Section A* grade, modularisation, controlled assessment and new specifications: all new initiatives will naturally cause an influx of queries and sometimes complaints when they are introduced.

In all cases a thorough and full explanation is given to complainants. If a complainant is not satisfied with our response, they can request an internal review of our investigation. In 2010/11, there were five internal reviews out of the 413 cases handled. The final stage available to a complainant is the Parliamentary Ombudsman. In 2010/11 the Parliamentary Ombudsman did not take any Ofqual cases forward to investigation.

33 34 Annual Report to Parliament 2010/11 us attheendofMarch 2011. Six weeks later we improvements. planwassubmitted to This action address 22recommendations theinquiry’s for We required AQA to produceplanto anaction assessment. andpoorrisk markers system, inadequate trainingforon-screen marking that there hadbeeninsufficientpilotingofthe www.ofqual.gov.uk/files/2011-02-21-aqa-inquiry-report.pdf Processmarking intheSummer 2010Examination Series 52. examiners. on screen by and marked electronically and theimagesdistributed istheprocess are bywhichpaperscripts scanned 51. Onscreen marking management oftheon-screen marking that there hadbeenasystemic problem withthe emerged Ireland, launchedaninquiry. It Northern in withDfES WalesOfqual, working andCCEA in generally. confidence inthequalificationssystem more on thelives ofthesestudents, butitalsoaffected failure byAQA therefore hadasignificant impact system. clearing Two were notplacedatall. This placeorfindplacesthroughuniversity the been forced theirsecondchoice eitherto take the Alevel students, butthat11studentshad placeswerethat university unaffected for mostof at ASlevel and146atAlevel. UCASconfirmed these,a consequence.187were Of atGCSE,289 marks, ofwhom622had received lower grades as total,In 3,353studentswere given thewrong ofexaminationscripts. marking errors ustoand Alevels, inthe serious alerted organisations based inEnglandoffering GCSEs candidates, AQA, oneofthethree awarding Six weeks theresults after hadbeensentoutto Incomplete marking and to promote publicconfidence. 2010/11 inpursuitofourstandards objective We madeseveral in interventions regulatory intervention Regulatory which waspublished some componentsnotbeingmarked. The Inquiry, questions inseparate leadingto answer booklets, Inquiry intotheFailureInquiry ofAQA’s ofPart GCSE, Script- ASandAlevel 52 inFebruary 2011,found (February 2011): 51 of such failures beingrepeated. of to minimisetherisk use thenewarrangements we onhowweAct, have can focused particularly the strengthened powers we have inthe2009 conditions, whichreflect place ournewregulatory failure. puttingin In andworrying was aserious ofthesubject. to demonstrate theirmastery This not give candidates ofallabilitiestheopportunity generally match thegrade anddid descriptions problem, becausetheexaminationpapersdidnot July 2010. We concludedthatthere wasstilla standard GCSE Science –maintainingthe examinations andpublishedourfinalreport review ofthe2009 We outafurther carried grade wastoo lowinmany cases. that candidates were to expected showfor each maintained. andunderstanding The level ofskills showed thatthestandard wasnotbeing examinations for 2007and2008. The review Science andAdditional Sciencespecificationsand publishedareviewOfqual As detailedonpage18,inMarch 2009interim keep underreview.keep be providing planthatwe anupdated will action the progress willalso It ofitson-screen marking. of 2011onwhichAQA willprovide updates on We have agreed ofdates over aseries thesummer results ofwhichwere shared withus. to theissuingoffinalgrades,scripts the assuranceprocessesits quality from thereceipt of revieworganisation of commissionedanexternal addition,theawarding In undertaken. actions additional information abouttheoutcomes ofthe met AQA to review itsprogress andwe sought 2009-gcse-science.pdf Science 54. uk/files/ofqual-09-4148_GCSE_science_2007_2008_report.pdf GCSEsciencenew specifications: 2007to2008 53. Review of standards andGCSEAdditional insummer2009GCSEScience Review GCSEscienceThe new examinations: Findings from themonitoringof (July 2010):www.ofqual.gov.uk/files/2010-07-22-review-of-summer-(July 53 ofthenewGCSE (March 2009):www.ofqual.gov. 54 in Our refusal55 to accredit sub-standard We recommended that, to provide appropriate qualifications sends an important message to opportunities for progression and work awarding organisations and to the wider public experience, awarding organisations should about our intolerance of poor quality: we hope develop a larger two-year qualification, based on that one result will be that the awarding the new Level 3 Diploma for the Children and organisations will improve significantly the quality Young People’s Workforce. Also, the current of their draft specifications in future. qualifications would need to be extended until a more suitable qualification for young learners Childcare Diploma letting down young could be developed. The recommendations have learners all been put into effect. We investigated56 a new childcare qualification proposed by the Children’s Workforce Development Council (CWDC), the responsible Section 3 Section SSC, to replace a range of qualifications currently available for all learners at that level in the sector. Concerns were raised about the new qualification, which differed from the previous ones available. We decided to carry out an investigation to determine whether it was fit for purpose and met the needs of the sector. Chemistry A-levels in Northern Ireland The work involved: In August 2010 the regulatory part of CCEA „ comparison of unit and qualification (which is responsible for the regulation of requirements by sector specialists qualifications other than vocational qualifications in Northern Ireland) identified a problem with the „ use of a questionnaire for centres offering the marking of Chemistry A2 level papers by the qualification awarding part of CCEA, which is the main A level awarding organisation in Northern Ireland. We „ a review of additional evidence supplied by were asked by the then Minister of Education in the awarding organisations Northern Ireland to investigate. The mistake resulted in 151 students in Northern „ employer engagement. Ireland receiving lower grades than they deserved. Our stage one report57 concluded that We found that the Level 3 Diploma for the the error was a result of a combination of Children and Young People’s Workforce is a valid deficiencies in CCEA’s processing system and qualification to confer occupational competence. quality control arrangements. Our later report58 However, we also concluded that the qualification found CCEA’s systems and procedures were was better suited to mature learners with generally fit for purpose but we made nine experience in the sector than to younger and less recommendations for improvements to minimise experienced learners. The qualification provided the possibility of future failure. young learners with insufficient work experience and little opportunity for progression to further or higher education.

57. Investigation into the marking of CCEA A level Chemistry Summer 2010 55. www.ofqual.gov.uk/news-and-announcements/130-news-and- (Stage 1 Report) www.deni.gov.uk/ccea_chemistry_a_level_marking_ announcements-press-releases/311-ofqual-rejects-new-science-gcses investigation_ofqual_stage_one_report.pdf

56. Monitoring report on the Level 3 Diploma for the Children and Young 58. Investigation into the marking of CCEA A level Chemistry Summer 2010 People’s Workforce (November 2010): www.ofqual.gov.uk/files/2010-11-29- (Stage 2 Report): www.deni.gov.uk/ccea_chemistry_a_level_marking_ 35 monitoring-report-l3-diploma-children-and-young-peoples-workforce.pdf investigation_ofqual_stage_two_report.pdf Section 4 Annual Report to Parliament 2010/11 Annual Report Parliament to

New approaches to regulation

The establishment of Ofqual in statutory form HIGHLIGHTS both facilitates and requires a new approach to regulation. In some areas we have already „ Published the Regulatory Framework for transformed the way we regulate and in other National Assessements: National areas we are well on the way to Curriculum and Early Years Foundation transformation. Stage National Curriculum and Early Years assessment „ Published the General Conditions of Recognition In February 2011 we published the new Regulatory Framework for National Assessments: „ Published Taking Regulatory Action National Curriculum and Early Years Foundation 59 Stage. This followed extensive consultation with „ Consulted on Our Single Equality key stakeholders during 2010. Scheme.

59. Regulatory Framework for National Assessments: National Curriculum and 36 Early Years Foundation Stage (February 2011): www.ofqual.gov.uk/files/2011- regulatory-framework-for-national-assessments.pdf Section 4 37 www. , we set out , we prepared by prepared 61 Complaints and Appeals for Regulated Regulated Appeals for and Complaints From Transition Transformation Transition to From Fee-cappingThe Regulation and Economic Analysis of consultation responses for Ofqual responses Analysis 2011): of consultation (February From Transition to Transformation Transition From

YouGov in February 2011 which covered all three all three 2011 which covered in February YouGov consultations. In „ Qualifications. and published an 138 responses received We responses Analysis of consultation In consultations October issued three 2010 we „ „ Process how, in line with the ASCL Act, we will regulate will regulate Act, in line with the ASCL we how, rather than each organisations awarding in will maintain a close interest We qualification. high-stakessuch as qualifications high-volume, a licence to and those providing A levels GCSEs, will not scrutinise each and everypractice, but we strike will a new We qualification. regulated of individual balance between the review organisations, awarding regulating qualifications, and maintaining and driving qualifications extensively last year consulted Having standards. now implementing this approach. are we places the responsibility and Our approach quality of accountability and standards for awarding qualifications firmly with the recognised will monitor We them. which award organisations a qualifications and bring evidence from together variety about risks and concerns of sources putting qualifications, regulated to relating take position to evidence- in a strong ourselves regulatory proportionate and targeted based, action. 61. ofqual.gov.uk/files/11-04-08-Analysis-of-consultation-responses-for-Ofqual. pdf (December 2009): www.ofqual. Regulating for Confidence in Regulating for Confidence Overall, the organisations and the organisations Overall, 60 .

Regulating for Confidence in Standards: Consultation on the regulation of on the regulation Consultation in Standards: Regulating for Confidence

standards.pdf gov.uk/files/2009-12-11-consultation-regulating-for-confidence-in- qualifications, examinations and assessments examinations qualifications,

60. subsequent major consultation exercise. clarification, points that were addressed in our addressed clarification, points that were There were requests for greater detail and detail and greater for requests were There our proposed strategic approach to regulation. regulation. to approach strategic our proposed assessment arrangements, as well as for GCSEs. as for as well assessment arrangements, and establishment of an independent regulator consequences for any related statutory related any consequences for major consultation, partindividuals who took the welcomed attainment is described will inevitably have attainment is described will inevitably have of our first In published the results June 2010 we study between the ages of 5 and 16 and how and examinations Qualifications Standards review and any changes to what pupils must changes to and any review The National Curriculum under as a whole is also the end of Key Stage 2. some changes in the way pupils are assessed at assessed pupils are some changes in the way Bew Panel’s recommendations are likely to lead to likely lead to to are recommendations Bew Panel’s slimming down of the early learning goals. The slimming down of the early learning goals. maintenance of statutorymaintenance assessment at age 5 but Foundation Stage has recommended the Stage has recommended Foundation olds, and the Tickell Review of the Early Years Years Tickell Review of the Early and the olds, introduce a phonics screening check for all 6-year- check for a phonics screening introduce next few years. The Government is planning to The Government is planning to next years. few area likely to see considerable reform over the over likely see considerable reform area to statutory assessments for children aged 3–14, an statutory children for assessments This framework will be a reference point for point for This framework will be a reference

Ofqual. Ofqual. of regulation that is being developed across across that is being developed of regulation Assessment arrangements. It arrangements. Assessment the new style signals change in the way we regulate National National regulate we in the way change This was a significant development as it marks development a a significant This was At the centre of our qualifications regulatory The Equality Act requires us to have regard, when arrangements are our General Conditions of we exercise this power to: Recognition62 which will come into force in July 2011. These conditions set out the requirements „ the need to minimise the extent to which that all awarding organisations must meet if they disabled persons are disadvantaged in are recognised to offer regulated qualifications. attaining the qualification because of their disabilities They sit alongside other regulatory arrangements which together are designed to implement a risk- „ based approach to regulatory investigation and the need to secure that the qualification gives action. Once an awarding organisation is a reliable indication of the knowledge, skills recognised against our published criteria, it is and understanding of a person upon whom it Annual Report to Parliament 2010/11 Annual Report Parliament to required to meet our general conditions, and we has been conferred can only take regulatory action where it has not done so. We have consulted on and published our „ the need to maintain public confidence in 63 policy on Taking Regulatory Action. We will qualifications. publish our fee-capping policy separately.

Diversity and inclusion As the number of qualifications expands and The Equality Act 2010 gives us duties as a public methods of delivery and assessment become body and as an employer. These duties are in more innovative, so decisions about reasonable addition to our duty under the ASCL Act (section adjustments become more complex. At the same 129(2)) to have regard to the reasonable time the range of reasonable adjustments that requirements of learners, including people who can be made - for example to permit the use by have learning difficulties, when we perform our learners of electronic readers - becomes wider. We functions. The Equality Act also gives us, as the aim to publish in autumn 2011 our specification statutorily designated regulator for England, the on the reasonable adjustments that cannot be power to determine whether aspects of certain used. general qualifications should not be subject to In the autumn we set up an External Advisory the duty of an awarding organisation to make Group on promoting equality and inclusion in reasonable adjustments for disabled learners. We qualifications and assessments through have taken a range of views into account as we regulation. The group has met twice and has have considered whether and, if so how, we considered a range of issues incuding a draft of should use this power. Our Single Equality Scheme65 and how we should We are consulting64 on our proposals and seeking use our power relating to general qualifications responses by 15th August 2011. under section 96 of the Equality Act 2010.

62. General Conditions of Recognition (May 2011): www.ofqual.gov.uk/ files/2011-05-16-general-conditions-of-recognition.pdf

63. Taking Regulatory Action: www.ofqual.gov.uk/files/2011-taking- regulatory-action.pdf

38 64. Consultation on Specifications in Relation to the Reasonable Adjustment of 65. Our Single Equality Scheme (draft; February 2011): www.ofqual.gov.uk/ General Qualifications: http://comment.ofqual.gov.uk/section96/ files/2011-single-equality-scheme-consultation.pdf We have recently closed a consultation on a draft of Our Single Equality Scheme. We have set up a programme of work to manage the range of activities we are undertaking to meet our equalities duties and to support our ambition to be an organisation that demonstrates best practice in this area. Section 4 Section

39 Section 5 Annual Report to Parliament 2010/11 Annual Report Parliament to

Research and development

There are some important and challenging issues relating to qualifications and HIGHLIGHTS assessment, about which we as regulator need „ Completed a study on the reliability of to develop our understanding, both to inform the development of our regulatory qualifications. arrangements and to enable us to lead and inform public debate. We therefore have a „ Launched work on international substantial programme of research and comparability of public examinations development, drawing on internal expertise and engaging with academics, awarding „ Engagement with Higher Education organisation experts and others. „ Evaluation of controlled assessments. In 2010-11 we completed a major research programme on factors that affect the reliability of the results of a qualification: how likely it is that a

40 Section 5 41 describing describing the International Comparisons in Senior International Comparisons 67 Secondary Assessment listing the context of the study, and parameters jurisdictionscomparator taking part and outlining approached We date. made to the progress countries with internationally recognised and schools that performuniversities on well international comparison of mathematics, studies subjects A level were Four science and literacy. it is the comparisonwhere – English selected for mathematics history, language, home or teaching The final report will be published and chemistry. in autumn 2011. Parliament The Education Bill going through expand our existing qualifications to proposes include securing objective to that standards comparable with those used qualifications are the learn will be able to from We internationally. will meet how we study in planning for current assuming that it is passed in its this objective, form. current In our first study we are comparingIn demands the are we our first study of pre-university to available qualifications Northern and Wales in England, candidates Ireland available of qualifications against a range similar learnersto in other parts As the world. of a range of from reviewers part of the study, asked analyse a cross- to were backgrounds section of all the qualifications in the study over months. few the following In a progress published 2011 we February report, 67. International Comparisons in Senior Secondary Assessment 2011) www.ofqual.gov.uk/files/2011-02-24-international- (February comparisons-in-senior-secondary-assessment-progress-report.pdf

found that the public has a found 66

A Quantitative Investigation into Public Perceptions of Reliability in Perceptions into Public A Quantitative Investigation

there is much room for improvement. for is much room there with the summer examinations of 2011 show be complacent, though problems experienced be complacent, though problems which we and awarding organisations must not organisations and awarding which we or confusing instructions. This is an area about is an area This or confusing instructions. papers, such as missing diagrams or typing such as missing diagrams errors papers, very on examination errors of human intolerant would respond differently. The public is, however, however, public is, The differently. respond would questions will be different and possibly they questions will be different year as opposed to the previous year, the year, the previous to as opposed year of the notion that if someone sits a paper one of the notion that if someone sits might have expected. There is an understanding There expected. might have more sophisticated view of reliability than we than we view of reliability sophisticated more perceptions-of-reliability.pdf?Itemid=142 Examinations Results in England www.ofqual.gov.uk/files/2010-10-20-public- Examinations

schools. 66. key driver of an improvement in standards in our in standards key driver of an improvement competitors. They looked to qualifications to be a They looked qualifications to to competitors. reached by students in our keyreached economic reached by students in England were below those by students in England were reached Ministers were concerned that the standards concerned that the standards Ministers were sending higher education students to the UK.sending higher education students to international competitors and countries international competitors regularly with those abroad, especially those of our with those abroad, look at how our public examinations compare look at how our public examinations compare State, we started we a new comparabilityState, study to In of the Secretary summer 2010, at the request of Standards at home and internationally at Standards Our consultation reliability. reliability. developing regulatorydeveloping policy on assessment recommendations which we will consider when will consider which we recommendations and academics and led to a series led to and academics and of together a range of awarding organisation experts organisation awarding a range of together that has had little scrutiny in the past. It in the had little scrutiny that has brought the same grade. The inquiry up an area opened grade. the same day and with a different paper would be awarded be awarded would paper a different and with day candidate taking an examination on a different takingcandidate on a different an examination University challenge – extending the Controlled assessment regulations were then role of higher education drawn up for the revised GCSE specifications for first teaching from September 2009 or 2010 for all 68 The White Paper proposes a greater role for GCSE subjects other than maths and science. higher education in determining what is taught and examined for A level. We have been collating information and evidence from a variety of sources on emerging issues We have held workshops with university umbrella resulting from implementing controlled organisations and learned bodies in order to assessments. Teachers have expressed concern identify the areas of most concern to higher about the manageability of controlled assessment education. Working with the Department for and the amount of teaching time being taken up Education we are exploring ways of ensuring that by the assessments.

Annual Report to Parliament 2010/11 Annual Report Parliament to any recommendations are representative of the whole sector. Any new assessment arrangements will necessarily have a bedding-in period, but Feedback from the initial workshops suggests that potentially have an impact on all centres offering universities have concerns that go beyond the GCSEs, and so warrant thorough investigation. We level of a course of study. There is concern about have therefore initiated an evaluation to

the teaching that takes place for A levels, such as determine the exact nature of the concerns and the reduction in practical science experiments. how widespread these concerns are. Also high on the agenda has been the view that students should master study skills, such as essay- The review is being carried out by researchers writing, research and thinking for themselves. Ipsos MORI, and we are managing the review in partnership with our regulatory partners in Wales We are also considering what can be done to and Northern Ireland. We expect to report in strengthen and make more systematic university autumn this year. input into A level design. Controlled assessments in GCSE courses A report by the then qualifications regulators in England, Wales and Northern Ireland published in June 200769 recommended that coursework be replaced in the majority of GCSE subjects with controlled assessment – independent work carried out at school or college under supervision, with three levels of control (limited, medium or high).

68. The Importance of Teaching - The Schools White Paper 2010 www. education.gov.uk/b0068570/the-importance-of-teaching/

42 69. Controlled assessments: www.ofqual.gov.uk/files/qca-07-3208_ controlledassessmentfinal3.pdf The year ahead

As this report demonstrates we have had an actions awarding organisations are taking to eventful and encouraging first year. make sure that as far as possible no candidates are unfairly advantaged or disadvantaged. We The Apprenticeships, Skills, Children and Learning are establishing an inquiry to establish the root Act 2009 provides a detailed statutory framework causes of the errors, and consider how we and the within which we must regulate. To meet our awarding organisations can reduce the chances of objectives and duties under the Act, we focused such problems recurring in future years. during our first year on developing our new regulatory approach. Over the coming year we will A new Government brings with it new policies be implementing this approach: our regulatory and priorities, and we have welcomed the efforts will focus on awarding organisations rather opportunity to provide wise advice to the new than individual qualifications (though we will Government on its ambitions. We expect there regulate at qualification level where we need to), to be a further need for that advice in future, and we will look to each awarding organisation to in particular as the details of the Government’s take responsibility for the quality and standards of ambitions for GCSEs, A levels, vocational its qualifications. qualifications and international comparability are developed. Our ambition is to provide regulatory We regulate in particular in order to secure discipline to the qualifications reform programme: qualification standards. However, there is much to enable Ministers to meet their policy objectives, public debate about qualification standards, whilst remaining an independent and trusted and when we look at this more closely, we find regulator. that people mean different things by 'standards'. In response to public concerns over standards, We recognise we still have challenges to meet in Section 5 Section and with changes to our statutory objectives the coming year and beyond, not least because in prospect, we will initiate a structured and of the budgetary constraints that we, like every informed debate on standards this year. Our aim public sector organisation, will face. All of our will be to share understanding of the key drivers work, including developing and putting into in qualification standards and to confirm those practice our regulatory arrangements, will be matters which deserve regulatory attention and aligned with the Government’s better regulation action. principles. We do not claim that in 12 months we have become everything that we want As well as our ongoing work in the areas of to become. We can report, however, that we economic regulation, international comparability have successfully established Ofqual as a fully and further engagement with the higher functioning, independent statutory body with the education sector, there is the very important systems in place and the regulatory framework work overseeing the delivery and awarding of being developed to fulfil our statutory objectives. qualifications and assessments. In summer 2011, In all that we do, our focus will remain on meeting there was a series of unacceptable errors in GCSE our statutory objectives - securing standards and A level (GCE, AS and A2) examinations. Each and efficiency and promoting confidence awarding organisation is responsible for the and awareness - and on making sure that the quality of its examination papers, and Ofqual is qualifications and assessments we regulate meet holding each of them to account for any errors. the needs of learners, employers, universities and Candidates who have been affected by these the wider public. errors can be assured that we are checking the

43 Appendix 1

Statutory objectives in the Apprenticeships, Skills, Children and Learning Act 2009 Annual Report to Parliament 2010/11 Annual Report Parliament to

1 The qualifications standards objective is to secure that regulated qualifications: a. give a reliable indication of knowledge, skills and understanding, and b. indicate a consistent level of attainment (including over time) between comparable regulated qualifications. (The current Education Bill proposes an amendment to the qualifications standards objective, commencement expected soon after Royal Assent). 2 The assessments standards objective is to promote the development and implementation of regulated assessment arrangements, which: a. give a reliable indication of achievement, and b. indicate a consistent level of attainment (including over time) between comparable assessments. 3 The public confidence objective is to promote public confidence in regulated qualifications and regulated assessment arrangements. 4 The awareness objective is to promote awareness and understanding of: a. the range of regulated qualifications available, b. the benefits of regulated qualifications to learners, employers and institutions within the higher education sector, and c. the benefits to awarding organisations of being recognised. 5 The efficiency objective is to secure that regulated qualifications are provided efficiently and, in particular, that any relevant sums payable to a body in respect of a regulated qualification represent value for money.

44 Appendices 45 We started of work comparing A a major programme We

Our assessment is that this was a successful year for our qualifications standards work. The new The new work. our qualifications standards for Our assessment is that this was a successful year our standards strengthen to and the proposal putting in place, are regulatory we approach do not We work in future. our standards approach how we reconsider us to will require objective, the challenges ahead. underestimate We also worked proactively on the introduction of the new unitised GCSEs. We accredited new, new, accredited We also worked of the new unitised GCSEs. the introduction on proactively We had criticised standards. we the qualifications where replace GCSEs in the sciences to tougher plus in detail at 12 qualifications looked monitoring programme qualifications Our vocational levels. at five functional skills qualifications jurisdictions the world. around with similar qualifications used in different levels There are 15,000 regulated qualifications so we have to target our resources. A major focus this A major focus our resources. target to have qualifications so we 15,000 regulated are There in The difference the first A* grades. of including the award of the new A levels, was the award year grade with those receiving compared A or A* last year of students achieving grade the percentage eight per cent of students. just over to was awarded The new A* grade A in 2009 was very small. looked in detail at six particular monitoring programme Our scrutiny qualifications and A level was introduced. maintained as the new grade were in general that standards found Assessment and validityA key of our regulatory the standards of qualifications arrangements secure focus is to our regulatory been tightening arrangements with the consultations on have this year and we take to position action This will put us in a stronger on standards new criteria and conditions. in future. need to we where Statutory objective a reliable qualifications give that regulated secure objective – to The qualifications standards indication of knowledge, of attainment level skills a consistent and indicate and understanding, qualifications. time) between comparable regulated (including over

our statutory objectives. This is provided in the following tables. in the following is provided This our statutory objectives. We have a statutoryhave met in this report duty have provide an assessment of the extent which we to We to

objectives

Achievements against statutory against Achievements Appendix 2 Appendix Statutory objective The assessment standards objective – to promote the development and implementation of regulated assessment arrangements which give a reliable indication of achievement, and indicate a consistent level of attainment (including over time) between comparable assessments.

Assessment The publication of our Regulatory Framework for National Assessments: National Curriculum and Early Years Foundation Stage in February 2011 met a key requirement in the Apprenticeships, Skills, Children and Learning Act. It was a critical step towards meeting the statutory objective. The

Annual Report to Parliament 2010/11 Annual Report Parliament to framework sets out clear criteria for the development and implementation of National Assessment arrangements and provides the framework against which we will now regulate standards in those assessments. The framework will be particularly significant in the near future as new National Assessments are developed and introduced, and existing approaches are modified. Its implementation will also need to be kept under active consideration as the review of the National Curriculum itself begins to take shape.

During the year we also published reports dealing with standards in the 2010 Key Stage 2 tests, reviewing the evidence produced from the pilot of Single Level Tests70 and on aspects of early years assessments. The evidence from these reports and the publication of the Framework lead us to conclude that we met this objective in 2010-11.

46 70. A review of the Pilot of the Single Level Test Approach: www.ofqual. gov.uk/files/2011-04-13-review-of-pilot-single-level-test-approach.pdf Statutory objective The public confidence objective – to promote public confidence in regulated qualifications and regulated assessment arrangements.

Assessment The public confidence objective is delivered through a communications strategy and business plan. Our annual survey of public perceptions tells us that overall confidence in GCSEs and A levels remain high, but that a significant minority of teachers and of the general public do not have confidence particularly in GCSEs. So we are not complacent and we know that there is still work to do to build full confidence in the examinations system.

Main outputs and key findings include:

„ we conducted specific monitoring of 27 recognised awarding organisations

„ we published 14 monitoring reports on our website and there are 13 reports awaiting publication

„ awarding organisations have produced action plans to address identified compliance issues and these are currently being monitored

„ we published reports on 8 vocational qualifications and carried out come preliminary explorations to ascertain whether vocational qualifications monitoring was required

„ perceptions of the A level system are largely positive among teachers, parents, students and the general public

„ a high level of confidence in A levels has been maintained in 2010, with teachers and students continuing to believe they are important qualifications to obtain (96 per cent and 78 per cent respectively)

„ the majority of teachers (80 per cent) believe that most A level students get the grades they deserve

„ teachers’ confidence in the GCSE system overall remains high (69 per cent) and is unchanged from the previous year Appendices

„ prompted awareness of Ofqual has risen significantly among teachers (73 per cent in 2010 compared with 64 per cent in 2009), but remains low among the general public (14 per cent)

„ there has been a considerable increase in teachers’ perceptions of the effectiveness of Ofqual (53 per cent in 2010 compared with 31 per cent in 2009).

During the year we advised and made public comment on a number of incidents that had the potential to disrupt examinations, notably travel disruption caused by volcanic ash. We were able to provide assurances that learners would be treated fairly and standards secured in the event of disruption that prevented centres from opening or individual learners from attending for a particular examination.

47 We took the lead in publishing information about the first awarding of A* grade at A level, enabling people to understand and have confidence in how the grade would be awarded. During the year the Ofqual Helpdesk responded to 8,539 requests for information. The investigations team handled 413 complaints and investigations, including major investigations into marking failures at AQA and CCEA – the latter at an invitation from the Minister of Education in Northern Ireland. Both investigations were published as part of our commitment to transparency to build confidence in the system. Work is ongoing to eliminate malpractice in high stakes vocational qualifications including ESOL.

We took action in response to concerns raised by schools and colleges in particular that newly Annual Report to Parliament 2010/11 Annual Report Parliament to developed qualifications in childcare were not suitable for younger and/or full-time learners. As a result, qualifications for these learners remained available. Overall, our assessment is that we have done much to promote confidence this year but that public confidence is below the levels we would want. We have started developing plans for a debate on standards, to understand and throw light onto public concerns about qualification standards.

Statutory objective The awareness objective – to promote awareness and understanding of the range of regulated qualifications available, the benefits of regulated qualifications to learners, employers and institutions within the higher education sector, and the benefits of recognition to bodies awarding or authenticating qualifications. .

Assessment The awareness objective is also delivered through the communications strategy and the business plan.

Much of the supporting evidence for progress against this objective can be found in the summary of the findings of the annual perceptions survey above.

Like all public sector organisations, we have been subject to severe restrictions on marketing expenditure since May 2010, which have had a direct impact on activity to support our awareness objective. This is particularly true as a new organisation which would typically see a ‘front loading’ of activity which is then sustained with lower levels of investment in subsequent years.

Ofqual has therefore had to take a targeted approach. It is not surprising therefore that awareness of Ofqual among the general public is low, just 14 per cent, which impacts on our ability to build confidence. However where activity has been targeted, among teachers, some scores (effectiveness) have increased by as much as two-thirds in the last year.

48 Main activities during the year to support the objective have included, but not exhaustively:

„ six consultation exercises

„ hosting 20 public meetings and events

„ contributing speakers to 33 conferences and events

„ hosting public debates on reliability and publishing the annual Chief Regulator’s Report

„ hosting an annual briefing for Parliamentarians

„ meeting with teacher associations, employers and employer organisations

„ undertaking a major research project on reliability

„ taking the lead on qualifications issues during volcanic ash flight suspension.

In October 2010 we launched our new Register of Regulated Qualifications. The Register is accessible through our website and enables people to view the full range of regulated qualifications and to use a variety of search functions.

Our assessment therefore is that we were unable to do as much to promote awareness as we had intended, and that levels of awareness are therefore below what we would want. Appendices

49 50 Annual Report to Parliament 2010/11 anhn nJl oudrtn h rvr n arest noaini h ulfcto to innovation inthequalification launching inJulyto andbarriers understandthedrivers market. other stakeholders. We have setupagroup to adviseonasignificant studythat we willbe butalsothrough individualengagement withawarding meetsquarterly organisations and Group which ourEconomicRegulationAdvisory through inparticular efficiency securing „ andcompetition regulatory given potential competitionissuearises ourcomplementary powers. colleges. We have withtheOFTto understandhowwe together worked can work where a share ofencouraging acommonobjective more intelligent purchasing ofqualifications by moneyissuesinthemarket. We Funding have withtheSkills withwhomwe worked Agency „ where qualificationsare soldtogether withotherproductsandservices. bytheiremployees. otheractions Awarding organisations mustalso have aclearrationalefor ofinterest manageany from orasaresult conflict arising theirwiderbusinessactivities of offered into andservices themarket. The conditionsalsorequire awarding organisations to purchasers andotherusersofqualifications aboutthequalificationsandassociated products ofinformation measures provided to andtheclarity to increase learners, transparency price organisations designed to encouragemore effective purchasing bycentres including „ powers. regulation andfee-capping We willbepublishingourresponses to thisfeedback this summer. economicregulator, outamajorconsultationonourplansfor we carried economic „ promoting efficiency. Regulation mustprotect againstcommercial downstandards behaviours driving whilst standards andpublic confidence. value for money, sure we into to willmake thatwe accounttheneedfor secure take themarket as healthy ifstandards andpublic confidenceare maintained. As we and seekto secure efficiency discourage moves againstthepublicinterest. canonlybedescribed The qualificationsmarket(s) upbyregulation, to backed desirablebehaviours drive andtoinclude incentives, ifnecessary andconsumerchoice. Healthy innovation,efficiency drive markets Healthy competitive markets Assessment sent valuefor money. particular, thatany relevant sumspayable to abodyinrespectofregulated qualificationrepre- –to objective secure thatregulatedThe efficiency qualificationsare provided efficiently, andin objective Statutory

We have ofourapproach been buildingabetter understandingamongstourstakeholders to We andvaluefor to have collaboratively address withotherstakeholders worked efficiency The recognition 2010includednewrequirements conditionspublishedinMay onawarding andthreeBuilding ontheseprinciples studieswe ofourrole publishedinto aspects asan „ We have increased the transparency of information available on the qualifications market through the publication of quarterly statistics on qualification achievements and the publication of Ofqual’s Annual Market Report.

„ We have set up a group to advise on a significant study that will be launching in July 2011 to understand the drivers and barriers to innovation in the qualification market. This study will include Northern Ireland.

„ In our statutory consultation last autumn we stated that we planned to regulate at the level of awarding organisation rather than individual qualification. This approach matches exactly the one advocated by the Wolf report.

Overall, therefore, we do not yet have the evidence to be able to determine whether or not this objective is being met, but we are making good progress towards the point where we are able to do so. Appendices

51 Appendix 3

Levels of Attainment, 2010

GCSE (Full course, all UK) Annual Report to Parliament 2010/11 Annual Report Parliament to Total no. of entries 5,374,490 % A* 7.5 % A 15.1 % C 25.9 Cumulative % A* 7.5 Cumulative % A 22.6 Cumulative % C 69.1

A level and AS (all UK)

AS A Total no. of entries 1,197,490 853,933 % A* N/A 8.1 % A 19.4 18.9 % E 11.9 7.0 AS A Cumulative % A* N/A 8.1 Cumulative % A 19.4 27.0 Cumulative % E 88.2 97.6

Sources: Joint Council for Qualifications, Provisional GCSE (Full Course) Results - June 2010 (All UK candidates) available at www.jcq.org.uk/attachments/published/1317/JCQ%20Results%2024-08-10.pdf Joint Council for Qualifications, Provisional GCE A Level Results - June 2010 (All UK candidates) available at www.jcq.org.uk/attachments/published/1297/JCQ%20GCE%20Results%202010.pdf

52 Appendix 4

Performance against our stated levels of service

Enquiries

Ofqual operates a helpdesk (enquiry handling) service which is available from Monday to Friday, 9am–5pm. More complex enquiries and complaints are handled by the Investigations Team. Both teams work to specific service level targets and in general terms seek to achieve a responsive, professional, consistent and accessible service.

General enquiries Ofqual received 8,539 enquiries during 2010/11. Enquiries received via helpdesk telephone service 65% Enquiries received via email service 35%

Performance standard for general enquiries Standard/Target Achieved Less than 10% lost calls where caller abandons the call 4.7%

Complaints

Our remit in this area is to handle complaints regarding the awarding organisations that we recognise Appendices to offer regulated qualifications. We received 170 complaints in 2010/11. These complaints were about the following areas: „ awarding organisation alleged malpractice, including malpractice by awarding organisation staff (23 cases in 2010/11)

„ awarding organisation customer service procedures, including interactions with centres and candidates

„ awarding organisation complaints procedures, including the handling of complaints by awarding organisations

53 „ awarding organisation quality assurance procedures, including failure by an awarding organisation to regulate centres effectively

„ awarding organisation procedures for inclusion, diversity and equal opportunities, including fair access to assessments for candidates with particular requirements

„ awarding organisation investigation procedures, including awarding organisation investigations into suspected centre or candidate malpractice

„ awarding organisation registration procedures for candidates and centres

„ awarding organisation certification procedures. Annual Report to Parliament 2010/11 Annual Report Parliament to

We acknowledge correspondence within two working days and aim to close with a final response within ten working days. If a case is complex and this is not possible we send a holding response at the ten-day stage and keep the complainant updated as the case progresses.

Performance standard for complaints

Standard/Target Achieved 100% acknowledged within 2 100% working days 90% closed within 10 working days 97.9%

Disputes – The Examinations Appeals Board

The Examinations Appeals Board (the EAB) exists so that in the very few cases where disputes can- not be resolved between centres or private candidates and the awarding organisations, there is a fully independent avenue of appeal. This appeal is to review the correct application of procedures governing the setting, marking and grading of qualifications. It helps to give confidence to candidates, parents, schools and colleges who make use of the examinations system that the grades awarded are fair and accurate.

The EAB receives administrative and financial support from us. The EAB website (www.theeab.org.uk) contains copies of all the information and guidance that the EAB issues. 2010 saw a significant increase in the number of appeals heard in comparison with recent years. In 2010, the EAB heard 16 appeals on 2009 examinations which was an increase from six appeals heard in 2009, although it is not out of line with the average over the last few years. However, there was no significant increase in the number of Stage Two appeals made to awarding organisations in the same period (41 compared with 39 for 2008 examinations). Five further applications to appeal were received. In one case, the chairperson did not accept the application as there had been no prior appeal to the awarding organisation. In two of the cases, the centre withdrew from the appeal after it had been accepted by the EAB. In the remaining two cases the chairperson ruled that the applications were outside the EAB's remit.

54 Despite the extension to the EAB’s remit from 2009, allowing it to hear appeals about Principal Learning and Project components of the Diploma qualification, no appeals of this nature were received. The findings of the EAB are sent to the parties concerned in each case, in a decision letter. The EAB also publishes its conclusions and underlying reasoning within 15 working days of the hearing and issues a press notice on each case when it is closed. The EAB’s detailed decision letters are copied to the Joint Council for Qualifications (JCQ), the regulators and the relevant government departments, so all can become aware of its decisions and recommendations. The EAB publishes a report annually that summaries the work it has done and the issues raised in decisions. Although these issues arise mostly from individual appeals where they could have wider implications the EAB raises these issues directly with the JCQ, the regulators and the Department for Education.

Outcomes of appeals

Appeals A-level GCSE Allowed 2 0 Not allowed 6 8 Appendices

55 56 Annual Report to Parliament 2010/11 expenditure summary 2010/11 expenditure summary andprofessional Consultancy services Appendix 5 nenlAdtPWC Supplier Framework (QCF)units. individual Qualifications&Credit Review andanalyseasampleof levels, GCSEandDiplomas ofPerceptionsAnnual Survey ofA Audit Internal Contract title Alpha Plus andStratagia Ipsos MORI Ipsos Appendix 6

Expenditure 2010/11

£000 Permanent staff 8,457 Personnel overheads 566 Other staff costs 1,769 Accommodation 988 Non-cash items, for example depreciation 441 IT costs 1,396 Operational spend 2,783 Capital spend 2,876 Total expenditure 19,276

Whilst this table is unaudited, these figures are taken from Ofqual's audited Annual Report and Accounts 2010-11.71 Appendices

71. Office of Qualifications and Examinations Regulation (Ofqual) Annual Report and Accounts 2010-11 www.ofqual.gov.uk/2011-07-06-annual-report- 57 accounts-2011 58 Annual Report to Parliament 2010/11 Employed staffinformation (asat 31stMarch 2011) Management. Regulation, theDirector of Standards and theDirector of Strategic Affairs,four theDirector andExternal of Directors: the Director ofInternal are theChiefExecutive and the oftheSeniorCivilService 72. Members Staff recruitment during2010/11(by genderandethnicgroup) Resource management2010/11 Appendix 7 Employed staff information (asat 31stMarch 2011) 7,0–8,9 1 1 3 £75,000–£89,999 £90,000–£99,999 £100,000–£145,000 18 6.9 70 62.6 27 28.3 oftheSeniorCivilService Members 27 Proportion disabled(%) 14 Proportion from (%) ethnicminorities Proportion ofwomen (%) 82 at 31stMarch 2011) Full-time equivalent staff(as 64 11 Number 14 Total Administrative (BandBandC) management(BandDto F) Middle CE) Senior management(BandGand Level tf unvr()13.2 4 (%) Staff turnover part-time Number ofstaffworking contracts Number offixed-term andcasual 72 5 appointed 157.63 250 0 24 Proportion Proportion of women (%) from ethnic Proportion Proportion minorities (%) Published by TSO (The Stationery Office) and available from:

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