GCSE English and maths reform: what are the options?

By Cath Sezen, Director of Education Policy, Association of Colleges

Imagine a world in which every single student who needs to continue to study English and maths in post-16 education achieves to the best of their ability by the age of 19. This may seem unreachable, but the government’s curriculum and assessment review (CAR) offers us a crucial opportunity to think differently about English and maths.

Colleges currently deliver GCSE English and maths (Level 2) and, to a lesser extent, functional skills from entry to Level 2 to thousands of adults and young people. Most also deliver stepping stone qualifications for some students with learning disabilities and, of course, ESOL qualifications for those for whom English is not their first language. To put into context, 53% of all 16 to 18-year-olds in colleges (more than 280,000 students) continue to study English and or maths under the condition of funding (CoF) first introduced in 2014. This requirement is not without its challenges: 72% of those young people who need to work towards Level 2 in these subjects do not achieve that threshold, despite their hard work and that of the colleges where they study. In the decade since the CoF there have been calls from right across the education sector for a rethink of both the curriculum offer and the impact on students and colleges in order to support an increase in successful outcomes.

Colleges are committed to supporting young people and adults to progress in English and maths. We would like to think that the improvements in literacy and numeracy levels over the past ten years for young adults identified in the recent Organisation for Economic Co-operation and Development (OECD) report are in part at least due to the incredible efforts of colleges and students up and down the country. However, there is still a long way to go to reach the standards seen in the likes of Finland. So, what can be done to improve outcomes and the student experience?

Prior to the general election in July, we published a paper on our recommendations for 100% success in English and maths, calling for a review of both pre and post-16 English and maths qualifications as a priority of any further work on qualification and curriculum reform. Here we revisit and develop that recommendation in light of the opportunity offered by CAR, contributing to conversations taking place across the whole education sector about this key aspect of the curriculum.

This is not just a post-16 challenge. English and maths are vital skills for individuals and the country, but too often children and young people are playing ‘keep up’ all the way through their education journey from reception to post-16. Of the 175,000 students with low attainment at the end of key stage 2, just 20% achieve both English and maths at grade 4 or above at the end of key stage 4, slightly less than the 28% who achieve that grade or equivalent between the age of 16 and 19. In summer 2024, just under 30% of 16-year-olds in England did not achieve GCSE English and or maths at grades 4 to 9. In addition to never catching up, students already feel they have failed before they start college. A change to increase achievement and motivation and engagement has to start pre-16.

Since the publication of the curriculum and assessment review we have met with college leaders and heads of English and maths to discuss future options and will continue to do so to get college views.

GCSE English and maths: the curriculum vision

There are two emerging lines of thought.

1. Post-16 English and maths qualifications which are not GCSEs
   This would be a more adult-friendly approach, reflecting the different experience and context of post-16 students and therefore more motivating. This is in line with one of the options proposed by exam board Pearson. However, it would also lead to a two-tier offer, a qualification taken and achieved by the majority at 16 and another qualification post-16. This is possibly why functional skills has not achieved the same currency as GCSEs.
2. New pre and post-16 English and maths
   Another option is to consider a whole new approach to English and maths or literacy and numeracy assessment from KS4 into post 16; one option for all, but with a different emphasis from the current syllabus.

A new approach to GCSE maths

In maths in particular, various models have been proposed. White Rose Education, for example, suggested a stronger focus on maths for life including financial and data literacy. They propose a dual qualification model for GCSE maths, in line with the structure in English, where pupils complete both language and literature GCSEs.

At the age of 16 students would take both GCSE maths applied and GCSE maths theory. GCSE maths theory would focus on traditional mathematical concepts, ranging from algebra to trigonometry, designed to develop abstract thinking and problem-solving skills, divided into three clear stages, allowing students to progress through them at a flexible pace. Each stage would build on the previous one, and by the age of 16, pupils would sit an exam corresponding to the stage they have reached and mastered. GCSE maths applied would emphasise practical, real-world maths, addressing challenges like financial literacy, data analysis, and decision-making.

If we were to take this a step further, students who have not achieved GCSE maths applied by the age of 16 could continue this post-16 with the option of taking maths theory should they wish to for their progression aims.

Alternatively, the National Centre for Excellence in the Teaching of Mathematics (NCTEM) have put forward two options, one of which is similar to the White Rose concept of two GCSEs fundamentals of maths and maths for further study. The second option keeps one GCSE mathematics with four papers focused around three ascending grades each. Students who struggle with maths could take paper one at the age of 16, focusing on mastering fundamental skills before continuing post-16 to achieve their best grade by the age of 18.

A third idea is from OCR who have suggested core and enhanced components for maths which “can be separately certificated and provide flexibility so students can take them when they are ready and which provide, where necessary, the opportunity to continue their GCSE studies post-16".

Rethinking GCSE English

English is perhaps more complex to unravel as it is already split into English language and literature. White Rose argue that the split is a useful basis for discussion. However, the English GCSE may require viewing as a whole in the first instance. What do we want students to explore and produce in literature and language combined?

Perhaps the analysis of literary texts, to be studied by all students until 16, could sit in English literature alone. OCR suggest English should focus on a wider range of writing types including the use of digital modes and writing for business purposes. They also recommend a much greater focus on oracy to better equip students for life and work. The English Association stresses the value of creative writing for example, while acknowledging the importance of communication as a life skill.

Perhaps English language could focus on a wider range of text, as recommended by Pearson in their second option, including social media, providing an opportunity to explore both formal and informal use of language. It could also focus on effective verbal communication (sadly not part of the main grade in the current GCSE) including presentations, debates and effective use of language.

Perhaps it is a reworking of functional skills as a GCSE, or aspects of functional skills could be incorporated into GCSE. This component could be broken down into Level 1 and Level 2 which all students take when they are ready, so it’s about stage not age. You could achieve Level 2 at the age of 14 or 55, as a student, adult learner or apprentice. Clearly some students are working at below Level 1 at the ages of 14, 16 and 55 so stepping stone qualifications would also be needed.

Concerns beyond the curriculum

Of course, it is not just curriculum that makes English and maths such an enduring post-16 conversation point. Scale is key, and we know that delivering GCSE English and maths provision comes with challenges for many colleges.

Around 200,000 young people and adults are enrolled on Level 2 and below English at 218 colleges, and slightly more on maths. On average each college has over 1,000 enrolments in both English and maths, but in reality the picture is more mixed as sixth form colleges and national specialist colleges have smaller numbers, while large general further education colleges often having over 2,000 enrolments. Enrolments in Level 2 and below English and maths account for 33% of 16 to 18 enrolments at general further education and land-based colleges. Most general FE colleges have to close most or all other provision on the five GCSE exam days in the summer (and some too in the November series) to accommodate all the students and utilise all staff to support and invigilate, meaning other courses can’t run. We have long argued that it would be helpful if there were more flexible assessment opportunities.

Supporting students to achieve to the best of their ability is vital, and at exam time this is more important than ever. In 2023 only 23% of students with a disclosed SEND achieved grade 4s in both English and maths at the end of year 11. Many students with SEND progress to college at the age of 16 rather than staying on at school, but details of student exam access arrangements are difficult to obtain from previous providers; a streamlined system for transfer of student information at the age of 16 would undoubtedly help here. Around 27% of 16 to 18-year-olds in colleges declare a learning difficulty or disability. Data from the Individualised Learner Records indicates that for students most likely to be continuing to study English and maths under CoF on a Level 2 programme this is 33.5% and at Level 1 and below it is 47%. We also know that post-pandemic many more students disclose mental health concerns which, in turn, has resulted in many more requests for exam access arrangements. The system is under stress.

Staffing is also a challenge; government workforce data indicates a vacancy rate of just under 5% for English and just over 5% for maths. The £10,000 pay gap between school and college staff makes this an even greater challenge when trying to recruit and retain staff.

How assessment is undertaken, student support and staffing cannot be divorced from the discussion of curriculum; a new offer with the same lack of infrastructure to support it will still present a barrier to success.

As AoC, we would like to see reformed GCSEs in English language and maths, taking into consideration the whole post-14 phase (including adults), more opportunities for children and young people to ‘catch up and keep up’ from primary and experience enjoyment and success in these important subjects, and finally, consideration of how to better support colleges in the work they do post-16, including funding, staff recruitment initiatives, review of assessment opportunities, transfer of information from schools and a comprehensive CPD programme.

What are your thoughts? Get in touch, we would love to hear from you.