IMAGING SERVICES NORTH Boston Spa, Wetherby West Yorkshire, LS23 7BQ www.bl.uk This PDF was created from the British Library’s microfilm copy of the original thesis. As such the images are greyscale and no colour was captured. Due to the scanning process, an area greater than the page area is recorded and extraneous details can be captured. This is the best available copy Mm TH E BRITISH LIBRARY DOCUMENT SUPPLY CENTRE TITLE «€fea<o»*^ - n O f < : sa?«eru<e» ........ — ri 'T^€' ^cui(rw\; o^- ^4'/^.«ttf. I'HSS . V\i>rrrtft.'yf0 fViUiV. CortiA/»/v6-/Va/-/ AUTHOR ‘^rr'vy « P ^ 0 *mT>OA; Pot.vyr£cLHiO(Q and DATE Attention is drawn to the fact that the copyright of this thesis rests with its author. This copy of the thesis has been supplied on condition that anyone who consults it is understood to recognise that its copyright rests with its author and that no information derived from it may be published without the author’s prior written consent. THE BRITISH LIBRARY DOCUMEI>(T SUPn.Y CENTRE — n — n - n 20 cms. Unkad Kki|dofn REDUCTION X . COHTEHTS Page Acknowledgeaeiita ( 11) Abstract ( 111) Abbreviations (iv) PART THE COHTEXT OF THE RESEARCH Chapter 1 - introduction 1 Chapter 2 - Methodology 12 Chapter 3 - Major Post-War Developeenta 20 Affecting Post-16 Provision References to Part I. 31 PART II - THE MAKING OP THE FE TEACHERS' SALARIES STRUCTURE Chapter 4 - Background to the 1950-51 Hegotiations 33 Chapter 5 - FE Salary Negotiations 1950-51 51 Chapter 6 - Issues Highlighted by 1950-51 Burnham (FE) 72 Negotiations References to Part II. 97 PART III 16-19 AND THE MACFARLANE REVIEW Chapter 7 - 16-19 Provision - Values and Incentives Chapter 8 - The Macfarlane Report Chapter 9 - Consultations and Macfarlane Responses Chapter 10 - Evaluation of the Macfarlane Themes. References to Part III. PART IV POLICY AMD VALDES Chapter 11 - Policy-Making Models 198 Chapter 12 - The Human and Contingent in Action 228 Chapter 13 - Conclusions 259 References to Part IV 271 J^ipendix I - The FE Teachers' Salaries Structure (i)-(vi) Appendix II - 'Testing Negativesi Does the (i)-(vii) Burnham (FE) Report Inhibit the Responsiveness of the FE System?' Appendix III - Bibliography (i)-(xx) A. Primary Sources (1) 1 - Archives and Published Material 2 - Interviews and Other Feedback B. Secondary Sources (vi) 1 - Key References 2 - Educational Policy 3 - Policy and Policy-Making 4 - Methodology (i) ACKHOHLBD6 EMEHT8 The completion of this research owes a great deal to a large number of people and organisations. In particular, I would like to express appreciation for the support given by the Association of County Councils to an employee's academic research into areas in which the Association was an active participant and which held a high political profile. I am also grateful to the Association of Metropolitan Authorities for also agreeing that I might have access to documentation on Burnham negotiations. The Education Officers of both Associations at the outset of the research, Gordon Cunningham and Peter Sloman, deserve particular thanks for their continued active support. Dr Rene Saran and Dr Elizabeth McLeay, joint supervisors of the thesis, contributed greatly to the rigour of its final form. In addition to those named above, the generosity of a large number of colleagues, only some of whom are separately identified in Appendix III, should be recorded. Particular thanks go to Sir Edward Britton for a stimulating correspondence on the values of the education system, to Mavis Duran for help on the intricacies of the Burnham (FE) Report, and to Ted Dennis, Michael Watts, Jack Sturgess and John Moody. Finally, the thesis would never have been completed without the intelligent secretarial support of Marian Lindey. (ii) ABSTRACT In the period covered by the thesis (1945-87), teachers' salaries were negotiated between representatives of the local authorities and the teachers' associations in the Burnham Committees. This study explores how far the results of those negotiations, the Burnham Reports, have shaped 16-f education provision by reference to the 1950-51 Further Education negotiations on the one hand and the 1979-80 Macfarlane Review of 16-19 provision on the other. A contribution is made to the debate on the theory of policy-making, based on the observed influence of the values of policy-makers on the final outcomes within those two studies. The thesis is organised into four main parts. Part I introduces the work as a whole; Parts II and III present and analyse original empirical data; Part IV provides the theoretical underpinning. First, the context for the research is outlined. The methodology is described at the outset, since it explains why the two major studies were selected as providing the best sources for the work. The major developments affecting 16-f provision since 1945 are then summarised. The second part sets out the detail of the negotiations leading to the 1951 Burnham (FE) Report, the source of the current FE salary structure, and gives a commentary on their implications. Part III explores the issues raised in the Macfarlane Review. The theoretical section of the study is developed in Part IV, where the new, distinctive contribution of this study to the theory of policy-making is presented. The thesis provides new data on two areas of policy-making of great interest to contemporary education policy-makers. Additionally, in its conclusion it makes a contribution to the theory of policy-making, suggesting that the values of individual policy-makers and contingent factors - including, particularly and principally, the dimension of time - have the greatest impact on policy outcomes. (iii) ABBREVIATIOHS ACC Association of County Councils (see also CCA) AEC Association of Education Committees AMA Association of Metropolitan Authorities (see also AMC) AMC Association of Municipal Corporations (see also AMA) AMMA Assistant Masters and Mistresses Association AP Authorities' Panel (see also MP) ATCDE Association of Teachers in Colleges and Departments of Education ATTI Association of Teachers in Technical Institutions CLEA Council of Local Education Authorities CCA County Councils Association (see also ACC) CEO Chief Education Officer DES Department of Education and Science FE Further Education FT full-time HE Higher Education HMI Her Majesty's Inspectorate ILEA Inner London Education Authority LAA Local Authority Association LEA Local Education Authority LI Lecturer I LII Lecturer II LCC London County Council MP Management Panel (see also AP) NAHT National Association of Head Teachers NAS/UWT National Association of Schoolmasters/Union of Women Teachers NUT National Union of Teachers POP/COW Proportions of Posts/Categories of Work PSR Post of Special Responsibility (see also SRA) PT part-time PL Principal Lecturer RSLA Raising the School Leaving Age SA Senior Assistant SHA Secondary Heads Association SL Senior Lecturer SRA Special Responsibility Allowance (see also PSR) TES Times Educational Supplement THES Times Higher Educational Supplement TP Teachers' Panel WJEC Welsh Joint Education Committee (iv) PABT I - TUB CONTEVr OF THE RESEARCH CHAPTER li INTRODOCTION The issues explored in this research are central to the debate on the policy and values of 16-19 provision that has extended over the last two decades. Indeed, the character of 16-19 provision has been a major public issue since this study commenced in 1979. Policy cannot be explained without reference to the values of the policy-makers and the culture they inhabit. Only by examining the ideas and factors that influence people when they are deciding the framework and shape of provision do the policies become explicable. Fundamental to the debates on where the 16-19 year old should study - in a sixth form at school or in FE, sixth form or tertiary college - is an 'academic skew': by this term I mean the tendency to promote full-time, academic and advanced courses rather than part-time, vocational and non-advanced courses. Academic-Skew and the Burnham Reports The phrases used to describe 'academic-skew' come from the FE culture, the starting point for the research. The late 1970s saw a dramatic rise in unemployment, particularly marked for adolescents. Why did so many young people seem to prefer the dole to further education? Why was the FE system not making more suitable provision? The conventional answer was that the Incentives of the FE system - described later in this 1 Introduction - encouraged those working in FE to concentrate on increasing the provision of the more academic, advanced courses. If that were true, what was the source of those incentives? The answer lay in the FE teachers' salary structure, essentially conceived in the 1950-51 Burnham negotiations. Part II of the thesis describes how - and why - the current FE salary structure came to contain the academically-skewing incentives. Similarly, the 1970s agenda for 16-19 provision led directly to the decision to launch a detailed investigation culminating in the Macfarlane Report. By the late 1970s, there was a general recognition that the numbers of 16+ students in full-time education increased wherever either a sixth form college or, even more markedly, a tertiary college was established in place of school sixth forms. The tertiary college could provide courses that Schools Regulations prevented sixth forms or sixth form colleges from offering. Since the concentration of post-16 education in institutions with no 'lower school' increased the 'age participation rate', and since tertiary colleges could also offer vocational studies in addition to all those available in sixth form colleges, the relative scarcity of sixth form and tertiary colleges, particularly the latter, was intriguing. The conventional explanation, again, was that the incentives of the Schoolteachers' salary structure, as determined by the Burnham (Primary and Secondary) Report, reinforced a presumption that school pupils should be encouraged to pursue post-16 studies in school sixth forms.