Making Mathematics Count

The report of Professor Adrian Smith’s Inquiry

into Post-14 Mathematics Education

February 2004
Printed by The Stationery Office Limited
2/04 937764
 CONTENTS
Page
Foreword V
Executive Summary 1
Purpose of the post-14 mathematics
education inquiry 1
Overview of the report 3
The importance of mathematics 3
Supply of teachers of mathematics 4
Current mathematics pathways 6
Action on current and future pathways 6
Support for the teaching and learning of mathematics 8
National and regional support infrastructure 9
Conclusion 9
Chapter 1 The Importance of Mathematics 11
Mathematics for its own sake 11
Mathematics for the knowledge economy 11
Mathematics for science, technology and engineering 11
Mathematics for the workplace 12
Mathematics for the citizen 13
Increasing mathematical skills 13
This report 14
The special position of mathematics 14
Territorial responsibilities 15
Government departments and agencies 15
The mathematics education community 16
Chapter 2 The Supply of Teachers of Mathematics 19
The need for qualified teachers of mathematics 19
Teacher shortages and their effect on students’ performance 20
The shortfall of specialist mathematics teachers
in secondary schools 22
The shortfall of specialist mathematics teachers in colleges 28
The shortfall of ITT mathematics trainers 28
Teacher vacancies 30
Teacher age-profiles and forecasts of future
supply requirements 32
The decline in post-16 take up of mathematics 34
Teacher recruitment 36

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 Teachers’ Remuneration 49
A summary of additional comments on teacher supply
in Wales, Northern Ireland and Scotland 50
Chapter 3 Current Mathematics Pathways 53
The National Curriculum (pre-16) 53
The curriculum post-16 55
Mathematics qualifications: current progression routes
within mathematics 56
A summary of structures, qualifications and developments
in Wales, Northern Ireland and Scotland 71
Chapter 4 Action on Current and Future Mathematics
Pathways 81
The Working Group on 14-19 Curriculum and
Qualifications Reform 81
Current concerns over GCSE Mathematics in England 82
Concerns over key skills and Application of Number
(AoN): FSMQs and AS Use of Mathematics 87
Concerns relating to GCE Mathematics 92
Concerns with Adult Numeracy 95
Possible Future Pathway Models for Mathematics
14-19 96
Chapter 5 Support for the Teaching and Learning of
Mathematics 105
Continuing Professional Development (CPD) for teachers
of mathematics) 105
The need for subject-specific CPD 107
The ACME report 109
CPD content and delivery 112
Key requirements and tasks of a support infrastructure 120
Chapter 6 National and Regional Support Infrastructure 127
Existing and potential providers, networks and initiatives 127
The role of the Numeracy and Key Stage 3 Strategies 128
The role of Higher Education in supporting Schools
and Colleges 131
The role of Specialist Schools 135
The role of voluntary initiatives 137
Support of teachers of adult numeracy 141
Evaluation and dissemination of research in mathematics
education 141

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 Remit and responsibilities of the national and regional
centres 142
Funding requirements for the NCETM and the RMCs 144
The governance of the NCETM and the RMCs 147
The location and management of the NCETM and
the RMCs 150

Appendix 1 List of Recommendations by Chapter 151

Appendix 2 Background, Terms of Reference and Steering
Group 163
Appendix 3 Glossary 165
Appendix 4 National Qualifications Framework 171

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iv
 FOREWORD

The Rt. Hon. Charles Clarke, MP

Secretary of State for Education and Skills
Sanctuary Building
Great Smith Street
London SW1P 3BT February 2004

I am pleased to present to you the report of the Post-14 Mathematics Inquiry.

I am grateful to have been given the opportunity to lead this Inquiry and would
like to thank the many organisations and individuals who provided me with such
a wealth of invaluable facts, figures, opinions and advice. I would particularly
like to thank the members of my Steering Group for their patient support and
wise counsel; my expert advisers for their tutorial advice, and my secretariat for
their professional support. All have contributed enormously to my report.

In carrying out this UK Inquiry, I have been mindful of the fact that responsibility
for mathematics education is devolved to all three devolved administrations. The
degree of common ground with England varies markedly across the territories
of the UK, as do territorial perceptions of the problems they face regarding
mathematics education. I should therefore make clear that, for the most part,
my analyses and recommendations refer more directly to England than to
Scotland, Northern Ireland and Wales. Nevertheless, I hope that many elements
of the report will be useful to all the devolved administrations.

Mathematics is of central importance to modern society. It provides the language

and analytical tools underpinning much of our scientific and industrial research
and development. Mathematical concepts, models and techniques are also key
to many vital areas of the knowledge economy, including the finance and ICT
industries. Mathematics is crucially important, too, for the employment
opportunities and achievements of individual citizens.

The Inquiry has therefore found it deeply disturbing that so many important
stakeholders believe there to be a crisis in the teaching and learning of
mathematics in England. There are three major areas of concern.

First, we have a curriculum and qualifications framework that fails to meet the
mathematical requirements of learners, fails to meet the needs and expectations
of higher education and employers and fails to motivate and encourage sufficient
numbers of young people to continue with the study of mathematics post-16.
Secondly, we have a serious shortage of specialist mathematics teachers in schools
and colleges and this is having an adverse effect on pupils’ learning experiences.

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 Thirdly, there is a lack of support infrastructure, both at national and local levels,
to provide continuing professional development and resources, including ICT, in
support of excellence in the teaching and learning of mathematics.

My report makes a number of recommendations for addressing these problems.

Some, I believe, can be implemented straightaway and would produce
immediate improvements. Others require more radical, longer-term changes.

So far as the curriculum and qualifications framework is concerned, it is timely

that the publication of the report of this Inquiry follows so closely after the
publication of the Interim Report of the Working Group on 14-19 Curriculum
and Qualifications Reform. The Post-14 Mathematics Inquiry strongly welcomes
and endorses the broad philosophy of the Working Group’s proposals. I believe
that the proposals I make in this report for designing new pathways for
mathematics are fully compatible with the Working Group’s proposals for the
overall 14-19 framework.

So far as support for the teaching and learning of mathematics is concerned,

the Inquiry believes it to be vital that we provide teachers of mathematics in
schools and colleges with greatly enhanced resources and with sustained access
to professional support and development. Specifically, I propose a model of
national and local infrastructure that I believe will enhance the mathematics
teaching environment, nurture and support individual teachers of mathematics
and encourage collectively in mathematics departments in schools and colleges
a renewed sense of confidence and professionalism.

The implementation of the recommendations set out in this report will begin
the process of averting the crisis in mathematics education. I commend these
recommendations to you.

I am also copying this letter to Jane Davidson in Wales, Jane Kennedy in Northern
Ireland and Peter Peacock in Scotland.

Professor Adrian Smith, FRS

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 EXECUTIVE SUMMARY
Purpose of the Inquiry
0.1 At the time of Budget 2001, the Government commissioned a review into
the supply of people with science, technology, engineering and mathematical
skills. In the context of the Government’s strategy for improving the UK’s
productivity and innovation performance, this reflected a concern that the
supply of scientists and engineers should not constrain the UK’s future research
and development and innovation capability. The review was carried out for
the Chancellor of the Exchequer by Sir Gareth Roberts, who published his
report, SET for Success: The supply of people with science, technology, engineering
and mathematical skills, in April, 2002.1

0.2 The Roberts report examined the supply of science and engineering skills in
the UK in the specific contexts of the biological sciences, the physical sciences,
engineering, mathematics and computer science. It presented a number of
findings relating to the difficulties faced by employers in recruiting
appropriately qualified scientists and engineers and raised a number of issues
about the development of science and engineering skills in schools, colleges
and higher education.

0.3 The report noted that although, relative to many other countries, the UK has
a large and growing number of young people studying science and
engineering, this overall growth has masked a decline in the numbers studying
the physical sciences, engineering and mathematics. For example, the report
drew attention to the drop during the 1990s of nearly 10 per cent in the
numbers taking A-level mathematics in England. At the same time, the report
also noted that the demand for graduates and postgraduates in these strongly
mathematically oriented subjects has grown significantly over the past decade,
not only in science and engineering areas, but also in the financial services
and ICT sectors. In addition to the supply problem, the report identified
concerns expressed by employers about the mismatch between skills acquired
during formal education and those required in the workplace.

• The Roberts report concluded that this mismatch of supply and

demand is leading to skills shortages that will adversely affect the
Government’s productivity and innovation strategy. These
shortages will become increasingly serious unless remedial action
is taken. The report raised a number of concerns about the image
and perception of science and engineering among young people.
It concluded that many young people have a poor experience of
science and engineering education. It also concludes that many
have a poorly informed view of career opportunities arising from
the study of science and engineering.

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The large majority of the recommendations were endorsed by Government in Investing in Innovation in July 2002
and significant funding has been committed to both schools and universities in areas such as science laboratories,
equipment, studentships and assistantships.

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0.4 SET for Success was concerned with these generic issues across the range of
science and engineering and its overview and recommendations for the most
part apply to all the relevant individual disciplines.

0.5 However, it has been widely recognised that mathematics occupies a rather
special position. It is a major intellectual discipline in its own right, as well as
providing the underpinning language for the rest of science and engineering
and, increasingly, for other disciplines in the social and medical sciences. It
underpins major sectors of modern business and industry, in particular,
financial services and ICT. It also provides the individual citizen with
empowering skills for the conduct of private and social life and with key skills
required at virtually all levels of employment.

0.6 In addition, many of the generic problems identified across science and
engineering in SET for Success manifest themselves most acutely in the area
of mathematics. For example: there has long been deep concern about the
supply of appropriately qualified mathematics teachers in secondary schools
and colleges; there has also been considerable concern about many young
people’s perception of mathematics as being “boring and irrelevant” and “too
difficult, compared with other subjects”.

0.7 These and other specific concerns about mathematics in its own right led the
Government to conclude that there was a need for a closer examination of
current mathematics education provision. The intention to set up this
independent Inquiry into Post–14 Mathematics Education was announced by
the Chief Secretary to the Treasury, on 23 July 2002. The appointment of the
Chair of the Inquiry was announced on 25 November 2002.

0.8 The Terms of Reference of the Inquiry were announced at the same time.
They were:

To make recommendations on changes to the curriculum, qualifications and

pedagogy for those aged 14 and over in schools, colleges and higher
education institutions to enable those students to acquire the mathematical
knowledge and skills necessary to meet the requirements of employers and
of further and higher education.

0.9 This Inquiry was commissioned by the UK Government and we therefore focus
our recommendations on the UK Government’s areas of responsibilities.
Responsibility for mathematics education is devolved to all three devolved
administrations, but the degree of common ground with England varies
markedly across the territories of the UK as do territorial perceptions of the
nature of the problems they face regarding mathematics education. This has
meant that much of our analysis and many of our recommendation refer more
directly to England than to Wales, Northern Ireland and Scotland. It is hoped,
however, that many elements of this report will be useful to all the devolved
administrations, as well as to the Department for Education and Skills (DfES)
for England.

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Overview of the report
0.10 The Post–14 Mathematics Inquiry has identified three key issues of major
concern:

• the shortage of specialist mathematics teachers, particularly in

England and Wales;

• the failure of the current curriculum, assessment and qualifications

framework in England, Wales and Northern Ireland to meet the
needs of many learners and to satisfy the requirements and
expectations of employers and higher education institutions;

• the lack of resources, infrastructure and a sustained continuing

professional development culture to support and nurture all
teachers of mathematics.

0.11 The main body of the report consists of six chapters:

• Chapter 1 reviews the very special nature and importance of

mathematics and the need for more young people to acquire
greater mathematical skills;

• Chapter 2 reviews problems related to the supply of mathematics

teachers;

• Chapter 3 provides a detailed account of current 14–19

mathematics pathways in the UK;

• Chapter 4 reviews the fitness for purpose of current pathways and

considers possible action on current and future mathematics
pathways;

• Chapter 5 considers the issues of how we could provide better

support for the teaching and learning of mathematics;

• Chapter 6 details possible national and regional support

infrastructure for the teaching and learning of mathematics.

The importance of mathematics (chapter 1)

0.12 The Inquiry regards it as vital that society fully recognises the importance of
mathematics: its importance for its own sake, as an intellectual discipline; for
the knowledge economy; for science, technology and engineering; for the
workplace; and for the individual citizen.

0.13 All this underlines the importance of ensuring a sufficient supply of young
people with appropriate mathematical skills. However, we currently face a
situation of long term decline in the numbers of young people continuing to
study mathematics post–16 in other than Scotland. The Inquiry draws
attention to possible factors underlying this decline.

• the perceived poor quality of the teaching and learning experience;

• the perceived relative difficulty of the subject;

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 • the failure of the curriculum to excite interest and provide
appropriate motivation;

• the lack of awareness of the importance of mathematical skills for

future career options and advancement.

We examine these particular issues in greater detail in later chapters and make
a number of recommendations.

0.14 We believe it to be crucial that the importance of mathematics is more clearly

and visibly recognised within Government and its agencies. We also believe
that the current division of responsibilities in England between the DfES and
the Learning and Skills Council (LSC) for schools and colleges, respectively,
creates an obstacle to providing a coherent strategy for mathematics education
throughout the 14–19 stage. The Inquiry therefore recommends that a high
level post be created in the DfES with dedicated subject specific
responsibility for mathematics and that the DfES and LSC create a high
level joint forum for overseeing a coherent strategy for mathematics
education.

0.15 We are also concerned about the lack of a national body to champion the
cause of mathematics and mathematics education to Government the DfES,
the devolved administrations and others, and to ensure that the potential
contributions of mathematics to the economy and society are appreciated at
the highest levels. The Advisory Committee for Mathematics Education (ACME)
already plays this role to some extent in relation to mathematics education
and we envisage an extended role for ACME in taking forward a number of
this report’s recommendations. However, there is no corresponding body to
speak on behalf of the mathematics community to Government and others
on strategic issues relating to general research and industrial reach-out role of
mathematics in the economy and society. The Inquiry recommends that
ACME be provided with enhanced support in order to play an active role
in helping to take forward the recommendations of this Inquiry and that
a corresponding body be set up to speak on behalf of the mathematics
community on strategic issues relating to research and knowledge transfer
in mathematics.

Supply of teachers of mathematics (chapter 2)

0.16 The shortage of specialist mathematics teachers teaching mathematics is the
most serious problem we face in ensuring the future supply of sufficient young
people with appropriate mathematical skills. We think it likely that there is a
current shortfall of around 3,400 specialist mathematics teachers in maintained
secondary schools in England. We also note a recent survey finding that over
30 per cent of those currently teaching mathematics do not have a post
A-level qualification in mathematics.

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0.17 A further finding from the Inquiry that has concerned us is that there are
apparently very significant numbers of teachers in schools qualified to teach
mathematics who do not teach mathematics. If the figures we have are
accurate, some 25 per cent of teachers in schools in England qualified to teach
mathematics are employed in tasks other than teaching mathematics. This
seems to the Inquiry to raise serious issues about current school level resource
management and to merit at least some further investigation. The Inquiry
recommends that the DfES undertake a review of school level resource
management of qualified mathematics teachers in England and consider,
in particular, whether current career paths and rewards are providing
appropriate incentives for qualified mathematics teachers to continue
teaching mathematics.

0.18 The above recommendation refers to incentives to those already in the system.
In trying to recruit qualified mathematicians into teaching, we are competing
with other employment opportunities for mathematicians that in recent years
have increasingly offered career prospects that are perceived as considerably
more attractive than teaching: the finance industry provide one obvious
example. In this regard, the Inquiry has come to the same conclusion as the
Roberts review: namely, that ultimately market forces will have to be
recognised in setting remuneration levels for teachers in shortage subjects. We
are aware that the Roberts recommendation was not accepted. However, we
do not believe the issue can continue to be ignored. The Inquiry therefore
recommends to the DfES that the issue of enhanced financial incentives
for teachers of mathematics (and subjects with similar recruitment
difficulties) be reconsidered.

0.19 The scale of the problem of the shortfall of specialist teachers is analysed in
detail in Chapter 2 of the report. However, the Inquiry has found it very
frustrating not to be able to arrive at a clear overall picture of current and
future needs for mathematics teachers in schools and colleges due to irregular
and radically incomplete official data collection, particularly in the Further
Education sector. The Inquiry makes recommendations to the DfES and the
LSC about future data collection and its importance for policy. In
particular, in setting appropriate targets for the future recruitment of
mathematics teachers and for monitoring progress towards meeting the
shortfall.

0.20 The serious magnitude of the current problem can be appreciated from the
fact that to solve the problem of the shortfall we would need to attract into
teacher training over 40 per cent of the annual UK output of mathematics
graduates for each of the next several years.

0.21 Such a solution is not, of course, available. However, there are many current
schemes and initiatives in place aimed at boosting the numbers entering
mathematics teacher training. These include enhancement courses, which
enable those without appropriate existing mathematics qualifications to
acquire these as a first step to training as a mathematics teacher. They also
include schemes for encouraging more undergraduates to consider a teaching

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 career. The Inquiry strongly supports all such measures undertaken by the
Teacher Training Agency and supported by the DfES and makes
recommendations for increased funding, where appropriate, to further
encourage the expansion of mathematics teacher training places. The
Inquiry also recommends further support for schemes aimed at fast track
careers for outstanding mathematics teachers.

0.22 We acknowledge the concerns of respondents to the Inquiry that schemes

involving enhancement courses will necessarily be attracting potential entrants
to the teaching profession with very varying levels of mathematical knowledge.
In this connection, we have identified one area where we think a radical re-
think in the approach to the certification of teachers could both help to
increase the supply of those able to teach some part of the mathematics
curriculum and also allay the fears of those who are concerned about the
possible lack of mathematical knowledge of entrants to teaching coming
through this route. The Inquiry recommends that consideration be given
to the introduction of new mathematics teacher certification schemes
which award certification to teach mathematics only up to certain
specified levels, eg Key Stage 3.

Current mathematics pathways (chapter 3)

0.23 These are reviewed in some detail as necessary background to our subsequent
discussion of concerns expressed to the Inquiry about current provision and
the steps that might be taken to improve the situation.

Action on current and future pathways (chapter 4)

0.24 The work of the Post–14 Mathematics Inquiry has proceeded in parallel with
deliberations of the Working Group on 14–19 Curriculum and Qualifications
reform in England and similar initiatives in Wales. The Inquiry has not regarded
itself as constrained by the thinking emerging from the Progress and Interim
Reports of the Working Group, but it has clearly been of interest to the Inquiry
to keep in mind the issue of the compatibility of its own thinking with that
of the Working Group. We do not believe that any of the short-term or long-
term changes we recommend will cause any problems when it comes to
designing detailed pathways in mathematics compatible with the kind of
framework envisaged by the Working Group. More positively, we strongly
support the Working Group’s wish to see a move away from rigid, age-related,
one-size-fits-all arrangements.

0.25 It is clear that the overwhelming majority of respondents to the Inquiry no

longer regard current mathematics curricula, assessment and qualifications as
fit for purpose.

0.26 So far as GCSE is concerned, public perception, in line with school and college
league tables, regards a Grade C as the “success” threshold. However, within
the current three-tier arrangements for mathematics the lower (Foundation)
tier can only lead to at most the attainment of a Grade D. As a result, the
30 per cent of the age cohort entered for this tier are pre-destined to “fail”.

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 The Inquiry believes this to be a perverse arrangement and would wish to see
a new structure in place as soon as possible. A two-tier GCSE is currently
being piloted. The Inquiry recommends that, subject to successful piloting,
we move as soon as possible to a two-tier system for GCSE mathematics
in England, Wales and Northern Ireland.

0.27 Respondents to the Inquiry also report the universal perception among
teachers and pupils that the amount of effort required to obtain the single
GCSE in mathematics is similar to that needed to obtain the two awards in
English or the double award in science. This further reinforces pupils’ view of
mathematics as a disproportionately hard subject and undoubtedly influences
pupils’ subject choices post–16. The Inquiry recommends that immediate
consideration be given to re-designating GCSE mathematics as a double
award.

0.28 There is much concern and debate about the positioning of Statistics and
Data Handling within the current mathematics GCSE, where it occupies some
25 per cent of the timetable allocation. On the one hand, there is widespread
agreement that the Key Stage 4 curriculum is over-crowded and that the
introduction of Statistics and Data Handling may have been at the expense
of time needed for practising and acquiring fluency in core mathematical
manipulations. Many in higher education mathematics and engineering
departments take this view. On the other hand, there is overwhelming
recognition, shared by the Inquiry, of the vital importance of Statistics and
Data Handling skills both for a number of other academic disciplines and in
the workplace. The Inquiry recommends that there be a radical re-look at
this issue and that much of the teaching and learning of Statistics and
Data Handling would be better removed from the mathematics timetable
and integrated with the teaching and learning of other disciplines (eg
biology or geography). The time restored to the mathematics timetable
should be used for acquiring greater mastery of core mathematical
concepts and operations.

0.29 In addition to the anxiety referred to above about the undesirable effects of
the current arrangements for the lower attaining 30 per cent of the age cohort,
respondents to the Inquiry have expressed considerable concern that we do
not sufficiently stretch and motivate the top 10 per cent. The Inquiry agrees
and believes it to be vitally important that we nurture and encourage the very
best mathematical talent. The Inquiry therefore recommends that attention
be given to making special provision in mathematics for these more able
pupils, both at GCSE and GCE levels.

0.30 Towards the more vocational end of the spectrum, respondents to the Inquiry
have expressed considerable concerns regarding mathematics provision and
the delivery of mathematics teaching within and relating to the Government’s
Key Skills agenda. There is a widespread feeling that it would be timely to
consider rationalising the provision available through Application of Number,
Free Standing Mathematics Qualifications, AS Use of Mathematics and Adult
Numeracy qualifications. The Inquiry agrees and recommends that such a
review be undertaken as soon as possible.

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0.31 There is widespread recognition that the Curriculum 2000 reforms which led
to a new post–16 structure based on AS and A2 levels have been a disaster
for mathematics. The original AS/A2 split simply did not work. Students could
not cope with the material within the laid down timetable and in the first
year of operation the pass rate for AS mathematics was only just over 70 per
cent, compared with over 90 per cent in many other subjects. The
consequence was that the image of mathematics has suffered badly again and
entries in the following two years have been some 20 per cent down on
pre–2000 numbers. Given the UK’s long-standing concern about the small
numbers continuing with mathematics post–16, this further serious decline in
the supply chain is very serious indeed. There are also concerns about the
nature and frequency of assessment for AS/A2. The Inquiry supports the
remedial measures that are being put in place to try to mitigate the AS/A2
problems in mathematics and recommends reconsideration of the
frequency and style of assessment. However, the Inquiry regards it as
vitally important that numbers of entries in future years be closely
monitored and, if there is no significant improvement, we recommend
that radical measures – including financial incentives – be considered to
address the issues of increasing post–16 take up of mathematics.

0.32 So far as the longer-term re-design of mathematics 14–19 pathways is

concerned, we explore a number of ideas encapsulating differing suggestions
emanating from the mathematics community. We have set out a number of
principles that we are clear should inform the design of new pathways in
order to avoid the perceived defects of the current arrangements. We do not
believe that a one-size-fits-all model is appropriate. We wish to see a highly
flexible set of interlinking pathways that provide motivation, challenge and
worthwhile attainment across the whole spectrum of abilities and motivations,
but avoid the danger of returning to the O-level/CSE “sheep and goats” divide.
We are clear that the new design should be underpinned and supported by
extensive trialling and piloting and that a wide cross-section of the
mathematics community be given maximum opportunity to participate in and
influence the process of re-design. The Inquiry therefore recommends that
an open bidding process be adopted to identify and commission several
groups to carry out curriculum and assessment development studies as a
preliminary to identifying a preferred pathways model to form part of
the eventual reformed 14–19 structure in England.

Support for the teaching and learning of mathematics

(chapter 5)
0.33 The Inquiry believes that whatever the longer-term prospects of increasing the
supply of specialist mathematics teachers, we must do everything possible to
support and nurture those teachers currently teaching mathematics in schools
and colleges. They need and deserve the very best support we can provide.
Much of this chapter therefore focuses on the need for various forms of
Continuing Professional Development (CPD) for teachers of mathematics and
the need to radically change our culture of expectations in relation to CPD

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 in England, Wales and Northern Ireland. The situation in Scotland is already
changed. The Inquiry recommends that formal responsibility for and
entitlement to fully funded CPD be introduced as soon as possible into
the professional terms and conditions of service of teachers of
mathematics in schools and colleges in England, Wales and Northern
Ireland. The Inquiry further recommends that additional remuneration be
linked to successful completion of accredited CPD activities.

National and regional support infrastructure

(chapter 6)
0.34 We present detailed arguments in favour of delivering CPD and other forms
of support for teachers of mathematics through a national and regional
infrastructure. We believe this provision to be of the utmost importance in
sustaining, nurturing and enhancing current provision of mathematics
teaching. The Inquiry strongly recommends that in England this support
infrastructure take the form of a National Centre for Excellence in
Mathematics Teaching, together with nine Regional Mathematics Centres.
The Inquiry recommends that this infrastructure incorporate existing CPD
provision, including the mathematics strand of the current Key Stage 3
Strategy.

0.35 In addition to supporting the delivery of CPD, the Inquiry believes that such
an infrastructure should provide both strategic co-ordination of and local
support for a wide range of other important networking and resource provision
for the support of the teaching and learning of mathematics. The Inquiry
makes firm recommendations relating to: the provision of an expert
resource for dissemination of educational research and development
findings, including those relating to the use of ICT; networking and
mentoring relationships involving local schools, colleges, higher education
and business; the incorporation of relevant existing mathematics support
activities and initiatives, including the work of the Open University, the
Learning and Teaching Skills Network, the Specialist Schools Network and
the National Research and Development Centre for adult literacy and
numeracy.

Conclusion
0.36 The Inquiry has identified three broad areas of considerable concern:

• the shortage of specialist mathematics teachers;

• the failure of the current curriculum and qualifications framework

to meet the requirements of learners, higher education and
employers, and to ensure that sufficient numbers of young people
continue with mathematics post–16;

• the need to support, sustain and enhance current teachers of

mathematics through CPD and other teaching and learning
resources.

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0.37 The recommendations set out in this report provide a series of practical
measures designed to begin to reverse the problems and concerns we have
identified. The Inquiry believes that implementing these recommendations will
provide a crucial first step towards ensuring a future supply of sufficient young
people in the UK with appropriate mathematical skills.

10
1 THE IMPORTANCE OF MATHEMATICS
Mathematics for its own sake
1.1 Mathematics provides a powerful universal language and intellectual toolkit
for abstraction, generalization and synthesis. It is the language of science and
technology. It enables us to probe the natural universe and to develop new
technologies that have helped us control and master our environment, and
change societal expectations and standards of living. Mathematical skills are
highly valued and sought after. Mathematical training disciplines the mind,
develops logical and critical reasoning, and develops analytical and problem-
solving skills to a high degree.

Mathematics for the knowledge economy

1.2 Mathematics is of central importance to modern society. It provides the vital
underpinning of the knowledge economy. It is essential in the physical
sciences, technology, business, financial services and many areas of ICT. It is
also of growing importance in biology, medicine and many of the social
sciences. Mathematics forms the basis of most scientific and industrial research
and development. Increasingly, many complex systems and structures in the
modern world can only be understood using mathematics and much of the
design and control of high-technology systems depends on mathematical
inputs and outputs.

Mathematics for science, technology and engineering

1.3 Ensuring an adequate supply of people with science, technology, engineering
and mathematics skills is at the heart of the UK Government’s strategy for
innovation and productivity and was the subject of the recent important
Roberts report (April 2002), SET for Success: the supply of people with science,
engineering and mathematics skills.

1.4 The report documents the declining numbers of young people continuing
post-16 with education in subjects with high mathematics content other than
in Scotland, where numbers have increased substantially in recent years as a
result of the introduction of new National Qualifications in 1999, which
provided a wider range of qualifications. The UK is almost alone in Europe
in not making some form of mathematics a compulsory part of the post-16
curriculum. Currently, less than 10 per cent of the age cohort in England
continues with mathematics post-16; and less than 10 per cent of those who
do continue go on to do a mathematics degree.

1.5 Against this background, the Roberts report provides a wealth of data and
analysis in support of the need for greater numbers of trained young people
with appropriate mathematical skills. In particular, it provides evidence from
employment rates, salary levels and surveys of employers’ recruitment

11
 experience that demonstrates that graduates and postgraduates in strongly
mathematical subjects are in increasing demand in the UK economy. The
report concludes that skills shortages in areas requiring high levels of
mathematical knowledge are resulting from the disparity between the
growing demand for such skills and the declining numbers of graduates in
the relevant disciplines. These shortages constitute a threat to the
Government’s innovation and productivity strategy and to the future strength
and success of the UK economy.

Mathematics for the workplace

1.6 Although the role of mathematics in underpinning science, technology and
engineering is reasonably well recognized and acknowledged in the UK, the
fundamental and all-pervasive role of mathematics throughout the rest of the
economy is typically not well understood. To the layman it can appear that
mathematics for the workplace has become less important because
“everything is now done by computers”. The clear message to the Inquiry
from a wide range of leading industries and businesses is that this is absolutely
not the case.

1.7 Major employers in the engineering, construction, pharmaceutical, financial

and retail sectors have all made clear to us their continuing need for people
with appropriate mathematical skills. In particular, employers highlight the
shortage of statisticians. Advanced economies need an increasing number of
people with more than minimum qualifications in mathematics to stay ahead
in international competitiveness and, in particular, to effectively exploit
advances in technology. An adequate supply of young people with mastery
of appropriate mathematical skills at all levels is vital to the future prosperity
of the UK.

1.8 Requirements for mathematical skills in the workplace have been examined
in detail in a recent report, Mathematical Skills in the Workplace (Celia Hoyles,
Alison Wolf, Susan Molyneux-Hodgson and Philip Kent – June 2002, Institute
of Education and STMC). A key finding of the study was that although the
ubiquitous use of information technology in all sectors has changed the nature
of the mathematical skills required, it has not reduced the need for
mathematics. The authors of the report refer to these mathematical skills and
competencies, framed by the work situation and practice and the use of IT
tools, as “mathematical literacy”. The term partly reflects the skills needed by
individuals in relation to business goals, but also reflects the need to
communicate mathematically expressed decisions and judgements to others.
On the basis of detailed case studies, the report concludes that there is an
increasing need for workers at all levels of organisations to possess an
appropriate level of mathematical literacy.

12
Mathematics for the citizen
1.9 The acquisition of at least basic mathematical skills – commonly referred to
as “numeracy” – is vital to the life opportunities and achievements of
individual citizens. Research shows that problems with basic skills have a
continuing adverse effect on people’s lives and that problems with numeracy
lead to the greatest disadvantages for the individual in the labour market and
in terms of general social exclusion. Individuals with limited basic
mathematical skills are less likely to be employed, and if they are employed
are less likely to have been promoted or to have received further training.

Increasing mathematical skills

1.10 From all perspectives, the UK needs more young people with greater mastery
of higher levels of appropriate mathematics skills than is currently the case.
To achieve this, we need three things to happen:

• first, that more young people continue longer with the study of
mathematics;

• secondly, that we have a clear view of what are, at any given level,
the appropriate mathematical skills to be acquired and what
constitutes mastery of these skills;

• thirdly, that, having agreed the latter, the teaching and learning
process and environment effectively encourages and promotes the
mastery of these skills.

1.11 In the current non-compulsory environment, the first requirement in

paragraph 1.10 leads us to consider the issue of the numbers of students
choosing to continue with mathematics post-16. This leads us to consider
the factors that influence student choice post-16 and how these might be
modified. Factors influencing student choice are complex and not well
understood, although certain themes emerge anecdotally from focus groups:

• the influence of the teacher is clearly important; in particular, poor

teaching is likely to turn students off mathematics;

• the perceived difficulty of mathematics relative to other subjects is

also important both to schools (concerned with league tables) and
to individual students (concerned with university entrance);

• separate from perceived difficulty, the content of the course may

be perceived to be boring or irrelevant, or insufficiently stimulating
or challenging;

• lack of awareness of the link between career options and subject

choices may also play a role, both for teachers and students.

1.12 The second requirement leads us to consider issues of curriculum, assessment

and qualifications and whether these are currently fit for purpose.

13
1.13 The third requirement leads us to consider issues relating to learning
pathways, teaching resources and pedagogy (including the use of ICT) and
whether these are currently fit for purpose.

This report
1.14 In this report, we address these issues in the following way.

• Chapter 2 reviews problems related to the supply of specialist

mathematics teachers and makes a number of recommendations;

• Chapter 3 sets the scene for a discussion of curriculum, assessment

and qualifications issues with a detailed account of current 14-19
mathematics pathways in the UK;

• Chapter 4 reviews in detail a number of the concerns expressed

to the Inquiry about the fitness for purpose of current pathways
and makes a number of recommendations for short- and medium-
term improvements and changes;

• Chapter 4 goes on to make a longer-term recommendation about

preparation for a more radical re-think of mathematics pathways
in the context of the kinds of overall changes to the 14-19
landscape that might emerge, for example in England, from the
Working Group on 14-19 curriculum and qualifications reform;

• Chapter 5 considers the issues of how we could better support, in

the very broadest sense, the teaching and learning of mathematics;
in particular, how we could better support those involved in the
teaching of mathematics at all levels through various forms of
Continuing Professional Development;

• Chapter 6 presents a blueprint for a national infrastructure to

oversee and deliver such support for the teaching and learning of
mathematics.

The special position of mathematics

1.15 In considering these issues, the Inquiry has inevitably had to relate the
concerns of mathematics both to other disciplines and to the wider concerns
of schools and the education system. This has led us to become increasingly
concerned that there is insufficient recognition, in many quarters, of the fact
that mathematics is in many respects “special” and that we must be prepared
to consider, particularly in terms of organisation, structures, and investment,
that different approaches and prioritisation may be required for mathematics.

1.16 There are positive senses in which mathematics is special. First, by virtue of
its fundamental nature as a universal abstract language and its underpinning
of the sciences, technology and engineering, mathematics has a claim to an
inherently different status from most other disciplines. Secondly, as we have
set out above, mathematics is fundamentally important in an all-pervasive
way, both for the workplace and for the individual citizen.

14
1.17 But there are also negative senses in which mathematics is special. In
particular, in the UK there is a widespread view, among both parents and
students, that the subject itself is “difficult” and “boring” and presents
disproportionate challenges in the school and college setting, both in terms
of the workload and the achievability of high grades. Another, unfortunate,
negative sense in which mathematics is special derives from the very serious
shortage of specialist mathematics teachers, particularly in maintained
secondary schools and colleges in England and Wales.

Territorial responsibilities
1.18 Within the territories of the UK, there is a varied pattern of devolution of
responsibilities for different aspects of mathematics education. Scotland has
a completely devolved system and all responsibilities lie ultimately with the
Scottish Executive. Northern Ireland also has fully devolved responsibilities,
but its curriculum and qualification structure is very similar to that of England
and Wales and it has historically approached issues of teachers’ pay and
conditions with a view to generally maintaining parity with England and
Wales. Wales no longer has a common curriculum with England, although
the current arrangements are still very similar to the previous joint
arrangements. It has responsibilities for its own targets for teaching training
and for Continuing Professional Development, but responsibility for teachers’
pay and conditions remains with the Department for Education and Skills
(DfES). Engalnd, Wales and Northern Ireland share a common qualifications
system.

Government departments and agencies

1.19 This report makes a number of detailed recommendations. However, we are
necessarily addressing our recommendations to existing government
departments and agencies and have inevitably been led to reflect on whether
these are currently organised and constituted in a manner best suited to
acknowledging and taking forward our very special concerns about
mathematics. We have outlined above the complex division of devolved
responsibilities among the four territories of the UK but restrict our further
discussion of this issue to England.

1.20 In particular, respondents are concerned about what they see as current
obstacles in England to taking forward subject-specific agendas within the
education system. For example, the Inquiry has observed, with considerable
concern, that there is no high-level post in the DfES in England with dedicated
subject-specific responsibility for mathematics. We are also very concerned
that in England the split of responsibilities between secondary schools (DfES)
and Sixth Form and FE Colleges (LSC) presents a potential obstacle to joined-
up thinking and action regarding 14-19 mathematics educational strategy.
This prompts our first recommendation.

15
 Recommendation 1.1

The Inquiry recommends that in England a high-level post be created in the DfES with
dedicated subject-specific responsibility for mathematics. The Inquiry further recommends
that in England a joint forum be created between the DfES and the LSC through which
high-level officers in the DfES and LSC with subject-specific responsibilities for mathematics
are charged with overseeing coherent strategy for 14-19 mathematics education.

The mathematics education community

1.21 It has also become clear during the course of this Inquiry that although almost
everyone can be regarded as an important stakeholder in mathematical
education, there are currently very few forums for effective communication
among major stakeholders. We make some recommendations in Chapters 5 and
6 that attempt to address this issue at a local level, but a broader issue remains.

1.22 The Advisory Committee for Mathematics Education (ACME) is a recently

formed body, empowered by the Royal Society and the mathematics
professional bodies and learned societies that come under the umbrella of
the Joint Mathematics Council to speak on behalf of the mathematics
community on matters in England pertaining to mathematics education. In
any particular case, the involvement of ACME, augmented by professional
representatives from the territories as and when appropriate, could provide
a direct and manageable mechanism for involving a large part of the
professional stakeholder community. We believe this to be an important and
valuable role for ACME to play and have make explicit suggestions for ACME’s
involvement in a number of the Inquiry’s recommendations. However, the
current scale of funding for ACME would not support this expanded role.
This prompts our next recommendation.

Recommendation 1.2

The Inquiry recommends that, in order to enable ACME to play an important extended
role, including taking forward a number of the Inquiry’s recommendations, substantial
Government funding be made available to ACME. We recommend that this be channelled,
as is existing funding, through the Royal Society, in order to enable ACME to retain its
standing as an independent voice acting on behalf of the mathematics education
community.

The wider mathematics community

1.23 However, the Inquiry is aware that ACME is empowered only to represent
the wider mathematics community on matters of mathematics education.
Respondents to the Inquiry have covered a much wider constituency of
stakeholder interests; in particular, those in the mathematics community
primarily concerned with mathematics research and/or the outreach of
mathematics to business and industry.

16
1.24 Many of these respondents to the Inquiry have noted the lack of a single
high-level body – comparable, say, with the Science Council or the
Engineering and Technology Board – that could make representations to the
DfES, or to Ministers when appropriate, on strategic level issues relating to
the discipline of mathematics and its role in the economy and society. The
Inquiry believes that such a body would be invaluable in advising on taking
forward the issues and recommendations presented in this report and in
sustaining subsequent strategic discussions on the future of mathematics in
the UK. This prompts the following recommendation.

Recommendation 1.3

The Inquiry recommends that the UK mathematics learned and professional societies form
an Advisory Committee on Mathematics Research and Industry (ACMRI), which would
be empowered to speak on behalf of the community to Government and others on
strategic level issues concerning the role of mathematics in the economy and society,
complementing ACME’s role in relation to mathematics education. The Inquiry suggests
that it would be valuable to also have a joint Advisory Committee for Mathematics (ACM),
formed from representatives of ACME and ACMRI, to speak on behalf of the community
on general strategic issues concerning mathematics.

17
18
2 THE SUPPLY OF TEACHERS OF
MATHEMATICS
The need for qualified teachers of mathematics
2.1 The Inquiry has sought and received input from a wide range of stakeholders.
Not surprisingly, not everyone agrees on every issue relating to post–14
curriculum, assessment, pedagogy and qualifications. But we have identified
one issue on which all stakeholders agree: the absolute necessity of ensuring
adequate provision of appropriately qualified and supported mathematics
teachers in schools, Sixth Form and FE colleges. This is seen by the
overwhelming majority of respondents to the Inquiry to be the essential
prerequisite for delivering long-term future improvements to post–14
mathematics education. The Inquiry also sees this as the highest priority.

2.2 We recognise in relation to our recommendations in this chapter and in

Chapters 5 and 6 that devolved responsibilities for teacher recruitment,
retention, and employment terms and conditions vary across the four
territories of the UK. Responsibilities for teacher supply, training, employment
terms and conditions and Continuing Professional Development (CPD) are
fully devolved to Northern Ireland and Scotland (although Northern Ireland
has historically approached issues of pay and conditions with a view to
generally maintaining parity with arrangements in England and Wales). Wales
determines its own intake targets for Initial Teacher Training and incentives
paid to student teachers, and has devolved responsibility for CPD, but
responsibility for teachers’ terms and conditions remains with the DfES. In
relation to teacher supply, further summary discussion in relation to Wales,
Northern Ireland and Scotland is given at the end of this chapter.

2.3 It is also clear that the perception of the problem of mathematics teacher
recruitment and retention varies considerably across the four territories of the
UK. In summary, respondents have raised very serious concerns about England
and Wales, significant concerns about some aspects of the situation in
Northern Ireland, but no serious current concerns about Scotland. Much of
our discussion and analysis will therefore be addressed to the situation in
England and Wales (often, for convenience, using larger volume England data
sources), but often we believe with some relevance to Northern Ireland.

2.4 The consensus view of what is an appropriately qualified mathematics teacher

at secondary school and college levels seems well captured by the
categorisations adopted in the 1982 Cockcroft Report, Mathematics Counts,
which are set out in Table 2.1 below. To the categories of those with good
or acceptable qualifications, we would now add those undertaking the new
pre-ITT mathematics enhancement courses (see below paragraphs
2.65–67).

19
Table 2.1: Categories of qualifications of teachers used in the
Cockcroft report
Good Trained graduates, or equivalent, with mathematics as the first, main or only subject
of a degree course.
Bachelors of Education (BEd) with mathematics as a main specialist subject.
Teachers whose general qualifications were of either of these types with
mathematics as a subsidiary subject provided their main specialism was in a related
subject, such as computer studies, physics or engineering.
Acceptable Trained graduates, graduate equivalents, or BEd with mathematics as a second or
subsidiary specialism if their first subject was not related.
Untrained graduates with mathematics as first, main or only subject.
Teachers holding the Certificate in Education, having followed a secondary course in
which mathematics was their first, main or only specialism.
Teachers with no initial mathematical qualifications who had a further qualification
resulting from a course of at least one year in which mathematics was the main
subject.
Weak Teachers holding the Certificate in Education, having followed a secondary course
with mathematics as a second or subsidiary subject, provided their first or main
subject was related.
Teachers holding the Certificate in Education having followed a Junior or Junior
/Secondary course with mathematics as their first or main subject.
Teachers in the immediately preceding category with subsidiary mathematics,
provided their main subject was related.
Graduates in any subject provided their course included a related subject.
Nil Qualified teachers without any recorded mathematics (qualifications) and not
covered by any previous specification.
Teachers holding the Certificate in Education with mathematics subsidiary to an
unrelated subject.
Teachers without any initial qualification possessing a further qualification which did
not lead to graduate status and in which mathematics was not the main subject.

Cockcroft, W.H. (1982) Mathematics Counts. London, HMSO.

2.5 Ensuring adequate numbers of appropriately qualified mathematics teachers

clearly involves both issues of recruitment and retention. This chapter of the
Inquiry report will review the evidence available to us about current numbers,
qualifications and recruitment trends. So far as retention issues are concerned,
respondents to the Inquiry believe that the key issue is that of professional
support, particularly Continuing Professional Development (CPD). We see this
as an important topic in its own right and we will separately discuss
professional support issues in Chapters 5 and 6.

Teacher shortages and their effect on students’

performance
2.6 Despite a recent small decline in advertised teacher vacancies and numbers
of temporary teachers employed, a number of respondents to the Inquiry
have reported that many secondary schools and further education colleges
in England and Wales still have considerable difficulty in recruiting and
retaining specialist mathematics teachers. According to the 2000/1 annual
report (HMI 0–10–291358–7) of Her Majesty’s Chief Inspector of Schools:

“In Mathematics: there are insufficient teachers to match the demands of

the mathematics curriculum in one school in eight, a situation that has
deteriorated from the previous year.”

20
 The Chief Inspector’s report for 2001/2 (HMI 0-10-292032-X) states that:

“Across secondary schools there remain significant difficulties in the

recruitment of specialist teachers, particularly, but not exclusively, in
mathematics … These recruitment difficulties are having an adverse impact
on pupils’ standards of achievement. For example: the quality of
mathematics teaching at Key Stages 3 and 4 suffers in many schools
because the limited amount of specialist teachers’ expertise is deployed
largely on post–16 courses. As a result, non-specialist teachers undertake
a significant minority of the teaching at Key Stage 3, where they find it
difficult to respond effectively to the demands of the Key Stage 3 Strategy.”

2.7 The Inquiry notes with concern the Chief Inspector’s view in 2001/02 that
shortages of specialist teachers in mathematics are having an adverse effect
on pupils’ performance. This is a view echoed by many respondents to the
Inquiry and further supported by data presented in the SET for Success report.
Figure 2.1 below (which reproduces Figure 2.14 of the SET for Success report),
shows the proportion of head teachers in an OECD study who believe that
teacher shortage or inadequacy is hindering the learning of pupils in different
subjects. The Inquiry notes that, according to this survey, the position of
mathematics is strikingly worse in the UK than in other OECD countries.

Figure 2.1: Proportion of schools in which teacher

shortages/inadequacy are adversely affecting pupils
35

30

25

20
Per cent

15

10

0
Science Maths Home language

UK OECD
Source: OECD (PISA)

2.8 This concern about the effect of the shortage of specialist teachers on
students’ learning of mathematics has been echoed by almost all respondents
to the Inquiry. In England, Ofsted, the Teacher Training Agency (TTA),
headteachers and mathematics teaching professionals have all communicated
their concern. The General Teaching Council for Wales (GTCW) has expressed
concern that in Wales secondary school posts in mathematics attract
significantly fewer applicants than for many other subjects. Surveys in
Northern Ireland have shown there to be significant concerns about the
situation in non-grammar schools and even some concern regarding

21
 recruitment to grammar schools The Inquiry shares these concerns. In our
view, the very highest priority in tackling the mathematics problem is to
increase the supply of mathematically qualified, effectively trained specialist
mathematics teachers. There are considerable difficulties in addressing this
supply problem and we can fully understand that those confronting the
problem must sometimes despair and be led to seek other solutions, which
involve the deployment of non-specialist staff. We note, however, the contrast
with the view taken in Scotland, where, since 2000/01, teachers of
mathematics have been required to have studied the subject for three years
at university.

2.9 The Inquiry urges the DfES and the LSC to continue to acknowledge the
importance of specialist teachers in mathematics and to accept that increasing
the supply of specialist teachers of mathematics is an essential component of
any strategy for tackling the mathematics problem in English schools (DfES)
and colleges (LSC). We similarly urge the relevant authorities in Wales and
Northern Ireland to give the issue the very highest priority and to consider,
where appropriate, whether they might wish to implement their own versions
of recommendations made for the English context. The rest of this chapter
of the report focuses on what we perceive to be the scale of the problem of
under-supply in England and ways in which we believe, over time, that supply
can be increased.

The shortfall of specialist mathematics teachers in

secondary schools
2.10 Official estimates of the numbers, age, profile and qualifications of teachers
of mathematics in secondary schools in England are based on the Secondary
Schools Curriculum and Staffing Survey (SSCSS). Until 1996, the Secondary
SSCSS was conducted at four-yearly intervals. However, the Inquiry has noted
with concern that the most recent SSCSS took place after a six-year interval,
with a closing survey date of 21 November 2002. Some preliminary findings
on qualifications and age profile have been released from the 2002 SSCSS
and will inform our attempts to analyse trends. However, these findings are
in the form of percentage breakdowns and we regret that key data on
absolute numbers are not available for inclusion in this report.

2.11 From the 1996 Survey, it was estimated that there were 27,100 full-time and
3,700 part-time teachers in secondary schools with a post A-level qualification
in mathematics. Not all of these were engaged in full-time mathematics
teaching, but of the 25,200 full-time teachers actually teaching mathematics
in years 7–13, 20 per cent had no post A-level qualification in mathematics.
The number of teachers with a post A-level qualification teaching mathematics
was 20,160 in 1996.

2.12 One interesting inference from these figures is that in 1996 there appear to
have been nearly 7,000 teachers in secondary schools with a post A-level
qualification in mathematics who were not teaching mathematics. This is of
the order of 25 per cent of the qualified cohort within schools. Some of these
teachers may, of course, have moved to teach other subjects – for example,

22
 computer studies. However, it seems very unlikely that this accounts for more
than a fraction of the large numbers of qualified teachers no longer teaching
mathematics. This seems to the Inquiry to raise serious issues about current
school level resource management and the incentives for qualified subject
teachers to remain teaching their subject rather than moving into other posts.

Recommendation 2.1

The Inquiry recommends that the DfES undertake a review of school level resource
management of qualified mathematics teachers in England. This review should include
an assessment of whether current career paths and rewards provide appropriate incentives
for qualified mathematics teachers to continue teaching mathematics. The LSC might
wish to consider a similar exercise regarding the deployment of qualified mathematics
teachers in colleges.

2.13 It has been suggested to the Inquiry that, in considering issues of qualified
teacher supply in secondary schools, we should base our analysis solely on
those actually teaching mathematics rather than on the total numbers with
a post A-level qualification, since the latter include many teachers who are
not currently teaching mathematics. This seems to us to ignore two important
points. First, it disregards the potential for increasing the pool of qualified
mathematics teachers actually teaching mathematics within schools by
making suitable changes to school level resource management practices and
incentives for teachers to remain teaching their subject. Secondly, it does not
take on board that if future trends continue to reflect the fact that something
like a quarter of post A-level qualified mathematics teachers eventually end
up not teaching mathematics this needs to be factored into projections and
strategies for mathematics teacher recruitment.

2.14 The 1996, 1992 and 1988 surveys revealed a worrying trend in the number
of teachers qualified in mathematics as shown in Table 2.2. Some of the
decline from 1992 will be due to the transfer of Sixth Form Colleges from
the Schools to the FE Sector during the period after the 1992 survey. However,
even allowing for this, the figures suggest a significant decline over the period
in the number of qualified mathematics teachers in secondary schools. It is
therefore a cause of considerable concern to the Inquiry that up to date
numbers are not available to us from the 2002 SSCSS.

Table 2.2: Survey numbers of qualified mathematics teachers in

maintained secondary schools in England and Wales
Survey Teachers qualified in Mathematics
(full and part-time)

1996 Survey 30,800

1992 Survey 43,900
1988 Survey 46,500

23
2.15 The Inquiry believes that a clear understanding of trends in the provision of
qualified mathematics teachers is a key prerequisite to informed policy making
regarding mathematics teacher recruitment and retention. The Inquiry
therefore has further serious concerns about the low response rates in these
recent surveys. The 1996 survey was based on a sample of 553 secondary
schools and achieved a response rate of 60 per cent. The 2002 survey was
based on a sample of 883 schools and achieved a response rate of 24 per
cent. The DfES response to the Inquiry’s concern regarding these low response
rates has been to argue that they are a direct consequence of the excessive
burdens that such surveys place on schools. The Inquiry notes this argument,
but regards it as defeatist and unhelpful. We are absolutely convinced that
policy making in this area requires good quality data and we urge the DfES
and the LSC to accept and take forward Recommendation 2.2 below.

2.16 In the absence of key numbers from the 2002 survey, the Inquiry has
examined alternative approaches to quantifying the current situation
regarding numbers of qualified mathematics teachers. Estimates supplied to
the Inquiry by the DfES suggest an outflow from maintained secondary
schools in England and Wales in the period 1996 to 2003 of just over 8,900
teachers with a post A-level mathematics qualification actually teaching
mathematics. Over the same period, the total inflow with a post A-level
mathematics qualification has been just over 7,300. As we have seen from
the 1996 figures, we can infer that something like 25 per cent of the teacher
cohort qualified to teach mathematics ends up not actually teaching
mathematics. Applying this to the inflow figure of 7,300 given above, we
would estimate that this corresponds in the steady state to an addition of
around 5,500 to the cohort of qualified mathematics teachers who will
actually be teaching mathematics, The decline over the period of qualified
mathematic teachers actually teaching mathematics is likely therefore to have
been of the order of around 3,400.

2.17 It is not clear how schools have been able to cope with the shortfalls without
an increased use of unqualified teachers. The 2002 Curriculum Survey,
published in April 2003, shows mathematics still being taught to 100 per
cent of pupils in Years 7–11, with no apparent change in the time allocated
to the subject in any of the year groups. We note that the survey does not
provide information on the number of pupils in teaching groups. Overall in
secondary schools, class sizes seem to have remained relatively constant, but
anecdotal evidence to the Inquiry suggests that class sizes in many sixth forms
and FE Colleges have been increasing significantly. There are other changes
that have impacted further upon the numbers of qualified mathematics
teachers in schools and colleges. In particular, respondents to the Inquiry have
estimated that the mathematics strand of the KS3 Strategy has resulted in at
least some 300 experienced secondary mathematics teachers being taken out
of schools since 2001 to support this initiative.

24
2.18 It is clear that the non-occurrence of the SSCSS survey in 2000 and the need
to place continued reliance on the 1996 data has caused considerable concern
to the many stakeholders already worried about the supply of qualified
mathematics teachers. This has led in the interim to several attempts at
unofficial surveys of the position. In 2001, a joint group from The Open
University, King’s College London and the National Association of Mathematics
Advisors (NAMA) carried out a survey1 of all NAMA members in a mix of
metropolitan, unitary and shire counties across England. A total of 228 schools
responded from 22 LEAs, involving a mixture of 1,571 full-time and part-time
teachers of mathematics.

2.19 In addition, Willis (2002)2 surveyed 54 schools involving 364 mathematics

teachers on behalf of the Secondary Headteachers Association (SHA) and
Roper (2002)3, using the same definitions as the NAMA survey, surveyed 158
schools involving 536 mathematics teachers. The Inquiry has significant
reservations about the unofficial and small-scale nature of these surveys. We
also have a concern about response rates, a concern that also applies to the
SSCSS 2002 survey, as noted above. However, to the extent that response
bias in this context is felt by many respondents to be likely to lead to an
understatement of the problem, the surveys may be indicative and we feel,
on balance, that the outcomes are worth reporting. To facilitate comparisons
with earlier studies, the data from the NAMA survey were analysed by the
authors using the same categories as in the Cockcroft report (see Table 2.1).

2.20 The OU/KCL/NAMA report makes clear that it is not the intention of the
authors that the terms ‘good’, ‘acceptable’, ‘weak’ be seen as necessarily
applicable to every individual teacher whose qualifications fall in the relevant
category. The assumption is rather that the overall picture based on this
categorisation provides a meaningful measure of the extent of the shortage
of specialist mathematics teachers. The Inquiry agrees that the measures used
in these surveys do provide a reasonable aggregate basis for quantifying the
shortage of appropriately qualified mathematics teachers.

2.21 Results of the OU/KCL/NAMA survey (see Table 2.3) show that, in the schools
responding, nearly 24 per cent of those teaching mathematics had ‘weak’ or
‘nil’ qualifications in mathematics. The survey also revealed a number of
school mathematics departments with large numbers of part-time teachers
teaching mathematics. Overall, the schools reported that 8 per cent of
mathematics teachers were about to retire. Of the 504 teachers who taught
AS or A-level, 34 (nearly 7 per cent) had A-level as their highest mathematics
qualification and 3 had no higher qualification than GCSE.

1
Shortage of Mathematics Teachers: a report of the survey of secondary mathematics departments carried out in the
academic year 2001–2002: Sue Johnston-Wilder, Barbara Allen The Open University, Gillian Thumpston, Heather Cooke
National Association of Mathematics Advisers, Margaret Brown, Leone Burton King’s College London. In What Progress?
Proceedings of a National Day Conference (Centre for Mathematics Education: The Open University).
2
Willis P (2002) Trained to Teach? London: SHA
3
Roper T (2002) Who is Teaching Secondary Mathematics? In S Johnston-Wilder, Key Stage 3 mathematics teachers: the
current situation, initiatives and visions: Proceedings of a National Day Conference 113-128 Milton Keynes: The Open
University

25
Table 2.3: Qualifications of mathematic teachers
Good 916 58.3 per cent
Acceptable 230 14.6 per cent
Weak 100 6.4 per cent
Nil 275 17.5 per cent
Not reported 51 3.3 per cent

2.22 There are a significant number of part-time teachers of mathematics in

secondary schools. In order, therefore, to get an estimate of how much
teaching is carried out by teachers with ‘weak’ or ‘nil’ initial mathematics
qualifications it is necessary to consider the percentage tuition time rather
than just teacher numbers in each category. This results in the estimates given
in Table 2.4. These estimates suggest that, among the schools responding,
14.6 per cent (one in seven) of secondary mathematics lessons in England
are taught by teachers with ‘weak’ or ‘nil’ mathematics qualifications.

Table 2.4: Qualifications of mathematic teachers by hours of teaching

Good 17570 69.2 per cent
Acceptable 4116 16.2 per cent
Weak 1221 4.8 per cent
Nil 2480 9.8 per cent

2.23 Willis (2002) also estimated that 14 per cent of mathematics lessons (one
in seven) were taught by a teacher not qualified to teach mathematics,
although we note that his definition of “qualified” was not as stringent as
the OU/KCL/NAMA definition. Roper (2002) also estimated that 14 per cent
of mathematics teachers were not properly qualified to teach mathematics.
This latter survey, unlike the other two, also included independent schools.
Assuming a pupil to teacher ratio of 17.0 in maintained secondary schools
in England (the January 2003 figure reported in SFR 23/2003) and assuming
that around 13 per cent of the curriculum is devoted to mathematics, the
OU/KCL/NAMA report calculates that some 25,900 full-time equivalent
mathematics teachers are needed for the secondary school sector. The
OU/KCL/NAMA report concludes, therefore, that just under 3,800
mathematics teachers need to be trained or brought into the system to cover
the posts currently filled by teachers with ‘weak’ or ‘nil’ mathematics
qualifications. Notwithstanding concerns about the unofficial nature of the
surveys, sample sizes and response rates, the Inquiry believes that the analyses
summarised above provide a prima facie case for estimating there to be a
current shortfall of 3,400–3,800 qualified mathematics teachers teaching
mathematics in secondary schools in England.

26
2.24 The OU/KCL/NAMA survey also collected data, Table 2.5 below, on the
experience of schools trying to recruit teachers of mathematics. Respondents
clearly felt that the number of applicants for mathematics teaching posts with
‘good’ or ‘acceptable’ mathematics qualifications continues to decline. Some
schools reported advertising for five or six teachers during a single year. Over
a quarter advertised for three or more mathematics teachers during the year.
Overall, only 37.1 per cent of the appointments made by those schools
responding to the survey were considered to be of teachers with ‘good’
mathematics qualifications.

Table 2.5: Results of advertisements in the year 2001–2002

Good appointment 136 37.1 %
Satisfactory appointment 70 19.1 %
Appointment needing support 40 10.9 %
Unsatisfactory appointment – no choice 39 10.6 %
No appointment made – staff moved 77 21.0 %
Vacancy 5 1.4 %

2.25 The SSCSS also collects data on teacher qualifications. However, the Inquiry
is concerned that current categorisations used in the SSCSS survey do not
permit clear inferences to be drawn. The SSCSS estimated the percentages
of teachers of mathematics who hold no qualifications in mathematics higher
than A-Level to be around 20 per cent in 1996 rising to 26 per cent in 2002.
However, the categorisation used in the survey only indicates the lack of a
mathematics degree. It does not distinguish between other degrees with a
high mathematical content (eg physics) and those with low mathematical
content. This ambiguity is reflected in the Secretary of State’s 25 September,
2003, press statement regarding the 2002 SSCSS:

“A proportion of mathematics teachers are listed in the survey as having

‘no qualification in mathematics’; but this does not mean they are
unqualified. Most of these teachers are likely to be qualified and graduates
in subjects such as physics .... They may only teach one or two periods of
mathematics a week.”

2.26 The Inquiry would be considerably reassured to know that this was the case,
although we might have concerns about these teachers’ knowledge of and
exposure to mathematics pedagogy if their specialist training had been in a
different subject. However, we find it frustrating and unsatisfactory that such
issues are currently matters of speculation rather than being clearly evidence-
based. To achieve the latter, we need clearer categorisation in the survey,
perhaps based on the Cockcroft categorisation, in order to distinguish
qualifications with appropriate mathematics content from those lacking such
content (see Recommendation 2.2 below).

27
The shortfall of specialist mathematics teachers in
colleges
2.27 We also note that the SSCSS relates solely to teachers of mathematics in
maintained secondary schools. However, there are a significant number of
teachers of mathematics in independent schools and Sixth Form and FE
Colleges. In relation to colleges, the Inquiry notes that the LSC currently has
no equivalent of the SSCSS data on numbers and qualifications of teachers
of mathematics. Data in colleges are currently collected in the categories used
for Ofsted inspections, for which mathematics numbers are subsumed within
the science category and are not separately identifiable. We view this absence
of data with some concern in view of a number of developments that are
likely to increase demands on mathematics teaching resources in colleges.
For example, DfES evidence to the Inquiry acknowledges that progress on
the adult numeracy strategy could be undermined by the limited pool of
competent and confident teachers of mathematics and numeracy currently
available in the adult sector. This task of addressing the lack of numeracy
skills among a large section of the adult population will require additional
staff with mathematics qualifications to provide support to trainers, even if
they are not used to deliver the programme. There is also the risk that any
shortage might be met by further leakage from the secondary and FE sectors.
It has also been suggested to the Inquiry that teaching interested adults may
seem more appealing to some current schoolteachers than working with
sceptical adolescents. This might result in further losses of mathematics
teachers from the secondary school sector.

2.28 However, as there appear to be no national targets for lecturer supply and
training in colleges, it is difficult to quantify the effects of these additional
pressures on the demand for mathematics educators. The Inquiry regards it
as extremely unhelpful that in the key area of mathematics teacher supply
there is currently no coherent overall understanding of numbers and
qualifications (see Recommendation 2.2 below).

The shortfall of ITT mathematics trainers

2.29 Respondents to the Inquiry have also expressed anxieties about the future
capacity and availability of suitably qualified mathematics educators in higher
education to deliver quality ITT and provide ongoing CPD. Trainers themselves
clearly need to be appropriately academically qualified and to continue to
update their own knowledge and skills in order to properly train future
teachers. The Inquiry has therefore noted with considerable concern that there
does not seem to be an evidence base relating to the numbers and profile
of those delivering mathematics teacher training.

2.30 The results of an informal survey carried out in May 2002, by the University
Council for the Education of Teachers suggest that there are serious problems
ahead. Higher Education Institutions with ITT provision were asked to return
the numbers and ages of staff working in mathematics education. Of the
trainers covered by these responses, 63 per cent trained primary teachers,

28
 40 per cent trained secondary teachers and 17 per cent trained post–16
teachers (with some overlap). The age profile of those trainers covered by
the providers responding to the survey is shown in Table 2.6. Given the
relatively low response rate (58 per cent) and some problems with
inconsistencies in responses, the Inquiry is not sure how much weight to
attach to these figures. However, if they are at all representative, the Inquiry
has concerns for the future of a system in which 50 per cent of the current
trainers are over 50 years of age.

Table 2.6: Age profile of teacher trainers

Age 26–30 31–35 36–40 41–45 46–50 51–55 56–60 61–65
No. of staff 4 10 9 14 25 40 24 2

The need for up-to-date comprehensive data

2.31 At all levels, the Inquiry has serious concerns about the current evidence base
regarding the numbers and profile of those teaching post–14 mathematics
in schools, Sixth Form Colleges and FE Colleges and providing mathematics
ITT. This evidence base is crucial for understanding current and future supply
needs for teachers of mathematics at all levels and for monitoring progress
towards meeting these needs. This prompts the following recommendation,
expanding on Recommendation 2.1, which we would wish to be taken on
board by relevant bodies, including the National Statistics Strategic Review
of School Workforce Statistics, which we understand is due to report in 2004.

Recommendation 2.2

The Inquiry recommends that the DfES and the LSC work together and with the TTA to
review the frequency and scope of data collection relating to mathematics teacher and
teacher trainer numbers and qualifications. They should seek to agree a data collection
strategy that will provide the evidence base for a coherent policy approach to the supply
of appropriately qualified teachers for the teaching of mathematics across all secondary
schools, sixth form and further education colleges, and of appropriately qualified ITT
mathematics trainers. In particular, the Inquiry recommends that:

(i) a revised form of SSCSS, requiring a mandatory response, should be designed

and undertaken as soon as possible to cover not only secondary schools,
including those in the independent sector, but also sixth form and further
education colleges and providers of mathematics ITT;

(ii) categories of response be redefined, along similar lines to the Cockcroft

categorisation, to provide a clearer indication of teacher qualifications;

(iii) the breakdown of qualifications should be available separately for the those
teaching key skills, KS3, KS4 and post–16;

(iv) in view of the current critical position in regard to provision of teachers of

mathematics and the need for close monitoring of policy initiatives to improve
recruitment and retention, at least the first three new surveys should be
undertaken every two years.

29
Teacher vacancies
2.32 Vacancy rates provide another source of data for assessing the extent to which
there is a shortage of specialist mathematics teachers. Technically, a vacancy
is defined as a post that has been advertised for a full-time permanent
appointment (or appointments of at least one-term’s duration) but has not
been filled. This includes posts that are being filled on a temporary basis of
less than one term. Part-time posts and fixed-term posts that are unfilled are
not counted as vacancies, nor are posts that are filled on a temporary basis
for one term or more, for example by agency staff.

2.33 Despite recent improvements, analysis of data on vacancies as a percentage

of teachers in post confirms that the shortage in teachers of mathematics is
more acute than for many other subjects. Concerns about the supply of
mathematics teachers in the period 1997–2003 are reflected in evidence
provided to the Inquiry by the DfES. Figure 2.2 below illustrates trends in
vacancy rates for mathematics compared with a selection of other subjects,
and with the aggregate over all subjects in maintained secondary schools in
England since 1997. The graph for mathematics reveals an overall rise in the
vacancy rate from a level of just under 0.5 per cent of the 1997 mathematics
teacher stock, to a peak rate of 2.1 per cent in 2001. In 2002, there was a
small decline to 1.9 per cent and in 2003, a further decline to 1.7 per cent.
This recent downward trend is encouraging. However, the Inquiry notes that
the 2003 rate is still the third highest vacancy rate for mathematics teachers
in the past decade and also the second highest for all the other subjects in
2003.

Figure 2.2: Vacancy rates by subject

2.5

2.0

1.5
Rate

1.0

0.5

0.0
1997 1998 1999 2000 2001 2002 2003

Mathematics Sciences Languages

English D&T All

Source: DfES

30
2.34 Reported numbers of vacancies provided by the DfES to the School Teachers
Review Body (STRB) are shown in Figure 2.3. The Inquiry welcomes the recent
downward trend but again notes that the current numbers are still well above
the average of the 1990s, even as a proportion when increased teacher
numbers are taken into account.

Figure 2.3: Reported Vacancies

450
400
350
300
250
200
150
100
50
0
1998 1999 2000 2001 2002 2003
Source: DfES Evidence to STRB + SFR April 2003

2.35 Figure 2.4 shows the number of advertisements for mathematics teachers in
England that have appeared in the Times Educational Supplement (TES) in
the past five years. This prima facie evidence further supports the view that
unfilled teacher vacancies have been reducing in number; certainly, there are
fewer advertisements than two years ago. The Inquiry again welcomes this
trend but remains concerned that the data do not show the extent to which
there is still a latent demand for more qualified mathematics teachers in
schools where a significant proportion of lessons are taken by unqualified
teachers.

31
 Figure 2.4: Number of Advertisements for Mathematics
Teachers in the TES
5000
Number of advertisements each term

4500
4000
3500
3000
2500
2000
1500
1000
500
0
98/99 99/00 00/01 01/02 02/03
Terms of the school year
Autumn Spring Summer

2.36 So far as turnover of staff is concerned, surveys conducted by the National

Employers’ Organisation for School Teachers, with support from the DfES and
the teacher unions, collect information on resignations by teaching subject.
This, combined with information about the number of staff by main teaching
subject from the SSCSS, provides the basis for calculating turnover rates. In
2001, the turnover rate for secondary mathematics teachers in England was
15.3 per cent. The Inquiry notes with concern that this was twice that of
1991 (7.6 per cent) and higher than the 13.5 per cent average turnover
rate for secondary teachers. Provisional data for 2002, supplied to the Inquiry
by the DfES, suggest a small improvement in turnover rate for secondary
mathematics teachers of 13.6 per cent against an average for all subjects of
12.5 per cent.

Teacher age-profiles and forecasts of future supply

requirements
2.37 International comparisons reported in the Roberts report (SET for Success,
paragraph 2.44) suggest that although other countries also experience more
shortages of teachers in science and mathematics than in other subjects, the
shortages in the UK are considerably worse than elsewhere. Furthermore,
teacher shortages in mathematics (as well as physics, chemistry and design
Technology) could well worsen over time, since, as shown in Figure 2.5
(Figure 2.13 of SET for Success), fewer teachers whose main qualification is in
these subjects are under 30 and more are over 50 compared with their
counterparts in other subjects.

32
 Figure 2.5: Teacher Demographics

Biology
Chemistry
Physics
General science
Other science
Mathematics
Information technology
Design & technology
Other technology
Business studies
English
History
Total
0 10 20 30 40 50 60 70 80 90 100

Under 30 Under 30-39 Under 40-49 50 or over

Source: 1996/97 Secondary Schools Curriculum and Staffing Survey

2.38 A further serious problem for the future arises from trends in the age profile
of the mathematics teaching profession. Data from the SSCSS revealed that
the position was already worrying in 1996. However, provisional data released
from the 2002 SSCSS shows a further marked deterioration in the age profile
of mathematics teachers. Of the full-time teachers surveyed in 1996,
63 per cent were over 40 compared with 60 per cent of all secondary
teachers; 20 per cent were over 50, compared with 17 per cent of all
secondary teachers; 15 per cent were under 30 compared to 16 per cent
overall. According to the 2002 SSCSS, 62 per cent were over 40, compared
with 56 per cent of all secondary teachers; 31 per cent were over 50,
compared with 27 per cent of all secondary teachers; 16 per cent were
under 30, compared with 20 per cent overall. Figure 2.6 provides a
comparison of the 1996 and 2002 age profiles.

Figure 2.6: Age Profile of Mathematics Teachers

50
45
40
35
30
25
20
15
10
5
0
Under 30 30-39 40-49 50+

2002 Survey 1996 SCSS

33
2.39 The shift in age profile of the population of full-time mathematics teachers
in secondary schools revealed by the 2002 SSCSS is a cause of major concern
to the Inquiry. In particular, we would like to be reassured that this
demographic shift is being fully taken into account in modelling future
demand and calculating future mathematics teacher training requirements for
the whole system in England. As indicated earlier, we cannot see how
coherent forecasts can be made at present given the apparent lack of age
profile data for those teachers of mathematics working in Sixth Form and FE
Colleges. We are also concerned that even existing surveys only cover the
maintained secondary school sector and do not factor in the numbers of
mathematics teachers required in the independent sector.

Recommendation 2.3

The Inquiry recommends that at the earliest possible opportunity forecasts of future
teacher training number requirements for mathematics teachers be re-examined in the
light of:

• the estimate we have suggested of a current shortfall of at least 3,400 qualified

mathematics teachers in secondary schools;

• the age profile findings from the 2002 SSCSS;

• and taking into account the current position and future needs of independent
schools, Sixth form and FE Colleges, in addition to secondary schools.

The decline in post–16 take up of mathematics

2.40 Perhaps the cause of greatest concern to many respondents to the Inquiry,
and not only in the context of teacher recruitment, has been the dramatic
decline in A-level mathematics entries since the Curriculum 2000 changes
were introduced. This is shown in Table 2.7.

Table 2.7: Total A-level entries (all UK, all ages)

Year Numbers of candidates

2003 55,917
2002 53,940
2001 65,891
2000 65,836
1999 68,502
1998 68,846
1997 68,853
1996 67,022
Source: JCGQ.

34
2.41 The decline in the number of candidates in the period 2000–2003 is of the
order of 15 per cent. Respondents have seen this as having serious potential
consequences for recruitment into mathematics and other degree courses
with high mathematics content, with subsequent problems in two and three
years time for recruitment into mathematics teacher training. However, data
on numbers entering into undergraduate mathematics courses, shown in
Table 2.8 below, present some mixed messages.

Table 2.8: Entry to undergraduate mathematics (all UK)

Year Applicants Acceptances, including
clearing applications

2003 3825 4329

2002 3325 3840
2001 3863 4006
2000 3925 4052
1999 3989 4158
1998 3887 4147
1997 3816 4255
1996 3839 4159

2.42 There was, indeed, a sharp drop in applications in 2002, of around 14 per
cent, which translated into a subsequent 4 per cent drop in numbers entering
mathematics degrees. However, in 2003 the number of applications has
increased back to around the 2001 level and, perhaps surprisingly, the number
of entries to degree courses actually increased significantly to one of the
highest levels for a decade, although we note that this still only represents
a return to the level of the mid–1990s. The figures for 2003 have only become
available as this Inquiry was completing its work. We have therefore had no
opportunity to investigate the rather volatile movements in numbers over the
past couple of years. Some respondents to the Inquiry have suggested that
this sudden increase may be explained by internal funding issues within HEIs
linked to student recruitment problems in some mathematics departments.
This may have led to changed (ie a lowering of) entry requirements in some
institutions. The Inquiry has not been able to follow up on this suggestion,
but we suggest that it would be valuable for someone to investigate further
these patterns of applications and acceptances. We suggest that the
Committee of Heads of Departments of Mathematical Sciences in Higher
Education (HoDMS) might undertake such an investigation, perhaps in
conjunction with the Council for the Mathematical Sciences.

35
Teacher recruitment
2.43 Evidence to the Inquiry from the TTA shows that, in recent years, newly
qualified teachers have made up 45 per cent of the total inflow of all teachers
into the secondary maintained sector. Overall, in secondary schools in 2001
there was a staffing inflow of 9 per cent and an outflow of 8 per cent. This
fine balance between inflow and outflow makes it essential to ensure that a
good supply of newly qualified teachers is maintained and therefore that able
and committed trainees are recruited to fill all allocated training places. We
are aware that the DfES is currently consulting on proposals for reform of ITT
in FE, following a critical review by Ofsted. We urge that careful consideration
is given to ensuring that, where appropriate, the recommendations we make
in this chapter are also implemented in that context.

2.44 Teachers working in maintained schools in England normally hold Qualified

Teacher Status (QTS), which is usually obtained through completing ITT. There
are three main routes for achieving QTS:

• as part of an undergraduate degree BEd, BA or BSc (mostly used

for primary school teachers);

• through a postgraduate training course, often combined with study

for a Postgraduate Certificate in Education (PGCE);

• for trainees via employment in schools on the Graduate Teacher

Programme (GTP) or the Registered Teacher Programme (RTP) (for
those without a first degree but with two years’ study in higher
education).

2.45 Postgraduate trainee teachers in England and Wales on an eligible ITT course
receive a £6000 training bursary as a recruitment incentive. The TTA also
administers a Secondary Subject Shortage Scheme. An additional £4,000 is
available for eligible postgraduates who go on to teach in shortage subjects in
England4, and some further training awards are available to secondary school
teacher trainees in shortage subjects based on financial need5. Some of these
incentives are also available in Wales. The following table (Table 2.9) shows the
kinds of routes and financial provision available to potential mathematics
teachers.

4
An additional £4,000 is available for eligible postgraduates teaching mathematics, science, English, modern languages,
design and technology or ICT in England. It can be claimed by those successfully completing induction within 5 years
of the start of the first academic year after gaining Qualified Teacher Status and, within 12 months of completing
induction, working in a relevant teaching post in the maintained sector.
5
These awards are for secondary school teacher trainees on undergraduate and postgraduate ITT courses studying one
of the following subjects: mathematics, science, modern foreign languages, design and technology, ICT, religious
education, music or geography. The maximum payment in any one year is £7,500. These maximum amounts are only
awarded in exceptional circumstances and there is no automatic entitlement to any level of payment.

36
Table 2.9: A summary of current training routes
Route Time Training bursary
Undergraduate routes
BA with QTS or BSc 1 term – 1 year (QTS)
with QTS
Postgraduate routes
Postgraduate Certificate 1 year full-time. £6,000
in Education (PGCE) Part-time varies
PGCE (flexible) 10 weeks – 2 years £6,000 max
PGCE (2-year) 2 years £6,000 in final year only
Fast track 1 year enhanced PGCE £6,000 + additional
with extended £5,000
development in school
Employment based routes
Graduate Teacher 1 term – 1 year £13,266 salary
Programme (GTP)
Registered Teacher 1 – 2 years £13,266 salary
Programme (RTP)
Overseas Trained Teachers Up to 1 year £13,266 salary
Programme (OTTP)

Undergraduate
Undergraduate routes
routes
2.46 The Inquiry notes that undergraduate teacher training courses are now of
declining importance as a route for training secondary mathematics teachers
(Figure 2.7 below).

Figure 2.7: Number of new undergraduate trainees in

secondary mathematics since 1998/99
250

200
Number of Trainees

150

100

50

0
1998/1999 1999/00 2000/01 2001/02 2002/03 2003/04

Number of Trainees
Source: Data ITT Census.

37
 Postgraduate routes
Mainstream PGCE recruitment
2.47 The mainstream ITT PGCE courses continue to be the most important route,
with improved recruitment in recent years as shown in Figure 2.8. In 2003/04
95 per cent of entrants to secondary mathematics ITT (excluding the
employment-based routes) were postgraduates. The Inquiry very much
welcomes the increased mathematics teacher training enrolment over the past
five years. The postgraduate recruitment in 2002/3 was the highest since
1994/5. However, we are also mindful that the recruitment level is only just
recovering to that of 1996/97 (1,653), which itself represented a significant
decrease compared to the level of the previous year, 1995/96 (1,795).

Figure 2.8: Number of new postgraduate trainees in

secondary mathematics since 1998/99 (including Fast Track)
2000
1800
1600
Number of Trainees

1400
1200
1000
800
600
400
200
0
1998/99 1999/00 2000/01 2001/02 2002/03 2003/04

Number of Trainees
Source Data: ITT Census

Flexible PGCE recruitment

2.48 In addition to the standard, usually one-year and full-time, PGCE course, a
flexible or modular PGCE has been recently introduced, designed to meet
the needs of trainees with commitments that preclude other than a part-time
route. The course can be taken over a period of up to two years but may
be completed in a shorter time (a minimum of six weeks) by trainees with
suitable relevant prior experience. The distinctive feature of courses designated
as flexible is that they have variable start and finish points. Over the last three
years, the number of flexible mathematics ITT places in England has increased
by 23 per cent (from 212 places in 2001/02 to 260 in 2003/04). From
September 2003, there will be around 40 HE providers offering such courses.

38
 Employment-based routes
2.49 Employment-based routes are beginning to make a significant contribution
to the number of people training to teach mathematics (see Figure 2.9). The
Graduate Teacher Programme (GTP) is a programme that allows graduates
to earn a salary while they train to be a teacher. Since September 2003 GTP
has been open to applicants of any age. The GTP enables schools to employ,
as supernumeraries, people who do not yet have QTS and train them through
an individual training programme leading to QTS. Schools are funded to pay
GTP trainees as unqualified teachers, a minimum of £13,266 a year, whilst
they are training. The programme is designed for individuals who want to
change to a teaching career but need to continue earning while they train.
The Registered Teacher Programme (RTP) offers individuals the opportunity
to work as an unqualified teacher in a maintained school in England whilst
completing the final year of a degree and undertaking teacher training.
Individuals who have qualified as a teacher outside the European Economic
Area may gain QTS through the Overseas Trained Teacher Programme (OTTP)
while working as a teacher. While on the OTTP trainees follow an
individualised training programme leading to QTS while working in a school
as an unqualified teacher.

Figure 2.9: Number of new entrants to employment based

routes training programmes in secondary mathematics
since 1997/98
450
400
350
Number of Trainees

300
250
200
150
100
50
0
1997/98 1998/99 1999/00 2000/01 2001/02 2002/03

Number of Trainees
Source: TTA

The GTP is the most significant of the employment-based routes. In response

to the increases in recruitment through this route, Ministers have agreed to
double the size of the GTP by 2005/06. In addition to the GTP numbers, the
RTP has contributed 19 new teachers of mathematics and the OTTP has
contributed 175. The Inquiry very much welcomes this response and would
wish to see further increases if demand for this route continues to grow and
quality is assured.

39
 Overall recruitment
2.50 The total annual number of new mathematics trainees from 1998/99 to
2002/3 is shown in Figure 2.10.

Figure 2.10: Number of new trainees to initial teacher training

in mathematics (including employment based routes)
Since 1998/99
2500

2000
Number of Trainees

1500

1000

500

0
1998/99 1999/00 2000/01 2001/02 2002/03

Number of Trainees
Source: TTA

2.51 Factors that the TTA believes have contributed to the increased interest in
and subsequent rise in postgraduate recruitment numbers in recent years
include:

• the introduction of training bursaries and ‘golden hellos’;

• the penalties imposed for under-recruitment;

• a more vigorous communications and marketing campaign;

• impressing on ITT providers the importance of recruiting to all the

allocated places;

• a wider range of teacher training opportunities.

2.52 The Inquiry welcomes these recent increases in numbers entering teaching
training in mathematics as well as the upward trend in the number of training
places available. However, we note that there remains a considerable shortfall
in recruitment compared with the training places available. Figure 2.11 below
shows the number of mathematics training places available each year from
1990/91 and Figure 2.12 shows the percentage of places filled, the latter
clearly reflecting the effects of the economic cycle. The number of ITT places
for mathematics in 2003/04 is 2,350.

40
 Figure 2.11: Number of places for mathematics ITT courses in
England 1990/91 to 2003/04
3000

Number of Trainees 2500

2000

1500

1000

500

0
1990/91 1991/92 1992/93 1993/94 1994/95 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 2001/02 2002/03 2003/04

Number of Trainees
Source: DfES

Figure 2.12: Number of places filled and unfilled for secondary

mathematics courses
2600
2400
Number of entrants and places

2200
2000
1800
1600
1400
1200
1000
800
600
400
200
0
1990/91 1991/92 1992/93 1993/94 1994/95 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 2001/02 2002/03 2003/04
Year

Places filled Places unfilled

Comparisons with recruitment in other subjects

2.53 Tables 2.10 and 2.11 indicate the considerable difficulties experienced in
recruiting to mathematics teacher training compared with some other
subjects. These recruitment figures exclude fast track trainees.

41
Table 2.10: Places and actual recruitment for Initial Teacher
Training in England, 2002/03
Subject Actual Places Proportion of
recruitment places filled
Mathematics 1,673 1,940 86 per cent
Science 2,701 2,850 95 per cent
Modern Languages 1,732 2,050 84 per cent
English & drama 2,479 2,350 105 per cent
History 985 950 104 per cent

Table 2.11: Places and actual recruitment for Initial Teacher

Training in England, 2003/04
Subject Actual Places Proportion of
recruitment places filled
Mathematics 1,951 2,315 84 per cent
Science 2,854 3,225 88 per cent
Modern Languages 1,815 2,050 89 per cent
English & drama 2,440 2,350 104 per cent
History 994 950 105 per cent
Sources: Recruitment – TTA ITT trainee number census, 2003

2.54 Figure 2.13 below shows trends in the percentage of available teacher training
places filled in secondary mathematics along with those for English, science
and the aggregate over all secondary subjects.

Figure 2.13: Recruitment as a percentage of places in

mathematics, English & Drama and science
140

120

100
Per cent

80

60

40

20

0
1990/91 1991/92 1992/93 1993/94 1994/95 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 2001/02 2002/03 2003/04

All secondary subjects Mathematics

English & Drama Science
Source: DfES places and TTA ITT Census

42
2.55 The Inquiry notes that, according to figures supplied by the DfES, at present
only around 66 per cent of applicants in mathematics make it onto PGCE
courses. This compares, for example, with 98 per cent on design and
technology, 82 per cent on music and 79 per cent on RE courses. Mathematics
has a conversion rate from applicant to trainee that is closer to subjects such
as English (53 per cent), where there is a plentiful supply of applicants. This
raises the question of whether ways could be found to enable more of the
1,000 applicants who are currently turned away, or withdraw their
applications, to become mathematics trainees and eventually teachers. We
suggest that the TTA, together with ITT providers might investigate this
relatively low conversion rate from mathematics PGCE applicant to trainee.

Comparisons with qualifications of trainee teachers in

other subjects
2.56 So far as the academic qualifications of entrants to mathematics teacher
training is concerned, over the period 1996/97 to 2001/02, the proportion
of mathematics trainees with a 2:1 degree or better remained fairly constant
at below 40 per cent, varying between 33 and 38 per cent.

2.57 Figure 2.14 presents comparative data for a range of subjects showing the
proportion of recruits to ITT with a degree class of 2:1 or better over the
period 1996/97 to 2001/02. The proportions are calculated as a percentage
of all first year trainees, including trainees who do not have a UK degree and
for whom degree classification is unknown. For modern foreign languages
(MFL), the proportion of trainees with non-UK degrees is higher and this goes
some way to explain the lower percentage of trainees with a 2:1 or higher
in this category. However, we are not aware of a similar mitigating factor for
mathematics. We therefore note, with considerable concern, that the
proportion of entrants with a 2:1 or higher entrants for mathematics teacher
training is the lowest of all the subjects.

Figure 2.14: Percentage of all first year postgraduate trainees

with a 2:1 or higher degree classification
70

60

50

40
Per cent

30

20

10

0
Mathematics ICT MFL Science PE Geography RE History English

Source: TTA Performance Profiles Note: includes trainees with non-UK degree equivalent qualifications

43
2.58 This clearly suggests that teaching is not as attractive to the pool of students
who could teach mathematics as it is for potential teachers of many other
subjects and that, among entrants to the teaching profession, subject-specific
competence may not be so high in mathematics as in many other subjects.
This suggests that, in general, many teachers of mathematics may be in more
need of subject-specific CPD than teachers in other subjects. We shall return
to this issue in Chapters 5 and 6.

Returners to the profession

2.59 SET for Success drew attention to the small but growing number of returners
to the science teaching profession, as well as the increase in mature entrants
to the profession. Given the relatively small number of graduates in
mathematics, late entrants to the teaching profession in these subjects are
likely to become increasingly important and the Inquiry was interested to
learn of the Government’s “Welcome back bonus” scheme for teachers
returning to the profession that existed between Easter and Christmas 2001.
Teachers returning in a shortage subject such as mathematics received £1,000
shortly after returning, plus £3,000 around a year later. We understand that
there are currently no plans to reintroduce this scheme, but would wish to
encourage this to be reconsidered.

Advanced Skills Teachers and Fast Track Schemes

2.60 The Advanced Skills Teacher (AST) grade was introduced in 1998 and offers
a new career route with an enhanced salary scale for excellent teachers who
do not wish to take up management posts. ASTs continue to work mainly as
classroom teachers but also spend time working with teachers in their own
and other schools to raise teaching and learning standards. To qualify for an
AST post teachers have to pass a rigorous assessment process. Schools receive
a grant jointly funded by the DfES and the Local Education Authority to cover
the additional cost of creating an AST post. The Inquiry believes that a
substantial increase in the number of mathematics ASTs is required, not least
to lead on the CPD agenda which we discuss in detail in Chapters 5 and 6
(see Recommendation 2.4 below).

2.61 The DfES has introduced a Fast Track Scheme aimed at improving career
progression for individuals with the greatest leadership potential. It aims to
identify and develop those teachers who will eventually become an AST, or
part of the senior management team of a school. A total of 340 people joined
the programme in September 2003 either as trainees or existing teachers and
it is planned that numbers will continue to grow to several hundred a year.
The long-term aim is for 5 per cent of the teaching profession to be on (or
to have been through) the Fast Track programme. Teachers on the Fast Track
receive enhanced salaries. New entrants to the programme who come
through Fast Track initial teacher training receive an additional spine point
on the Main Pay Scale and a £5,000 bursary. All Fast Track teachers receive
a Recruitment and Retention allowance (about £2,000) once they have
completed their induction year in a maintained school.

44
2.62 There is a separate fast track scheme for London. Teach First is a general
initiative to attract high quality graduates to teach in London. Teach First has
attracted investment by industry and commerce and in its first year has
attracted a relatively high proportion of mathematics graduates. The Inquiry
encourages the TTA and the DfES to monitor and evaluate this and similar
schemes and to be prepared, if appropriate, to provide resources to help
expand and sustain such initiatives. We would also encourage the LSC to
work with the DfES and TTA on these and other issues relating to teacher
recruitment (see, also, Recommendation 2.1).

Recommendation 2.4

The Inquiry recommends that the DfES give high priority to encouraging and funding a
significant increase in the number of mathematics graduates admitted to the Fast Track
Scheme and, in particular, a significant increase in the number of mathematics ASTs.

Incentives and the rise in PGCE applications in

mathematics
2.63 Respondents to the Inquiry have expressed the view that Golden Hellos and
the introduction of the training bursaries in September 2000 have had a
significant effect on PGCE applications. Cumulative applications for
mathematics PGCE course are shown below in Figure 2.15.

Figure 2.15: Cumulative number of applications to

mathematics PGCE courses in England and Wales since 2000
3000
Cumulative number of applications

2500

2000

1500

1000

500

0
Run 5
Run 7
Run 9
Run 11
Christmas
Run 13
Run 15
Run 17
Run 19
Run 21
Run 23
Run 25
Run 27
Run 29
Run 31
Run 33
Run 35
Run 37
Run 39
Run 41
Run 43
Run 45
Run 47
Run 49

2003/04 2002/03 2001/02 2000/01

Source: Graduate Teacher Training Registry (GTTR)

2.64 The Inquiry welcomes these incentives and believes they are likely to have
contributed to the increased number of people on initial teacher training
courses. However, the financial inducements have now remained at the same
monetary level for three years and need reviewing. We believe it to be
important to ensure that the real value of these incentives is at least
maintained.

45
 The need to look beyond the pool of mathematics
graduates
2.65 The Inquiry has noted with concern the data in Table 2.12 showing that it
would require 40 per cent of the current output of UK mathematics graduates
to fill all the allocated ITT training places in mathematics. With 2,350 allocated
places for mathematics for 2004/05 the pressure to recruit mathematics
graduates is significantly greater than in 2000.

Table 2.12: Percentage of mathematics graduates needed to fill

allocated mathematics ITT places
Academic Number of Number of per cent of graduates
year graduates allocated required to
places meet allocation
2002/03 3,380 1,759 52
2001/02 3,375 1,075 52
2000/01 4,235 1,876 44
1999/00 4,060 1,710 42
1998/99 4,214 2,126 50
Source: TTA

2.66 It is clear to the Inquiry that the supply of mathematics graduates applying
for ITT will be insufficient to meet the demand for trainee teachers for many
years to come. It is important therefore that the TTA and ITT providers work
together to try to identify and attract a wider pool of people to recruit from.
This includes finding ways of enabling people from a wider degree base to
train as teachers of mathematics. Suppose we assume that 40 per cent of
students achieving an A-level mathematics pass progress to higher education.
Even with the current drop to around 55,000 entries, which is likely to
translate to around 40,000 passes, this would imply a future population of
close to 16,000 graduates per year (in practice, the percentage progressing
to higher education may be even higher than this figure) each with at least
an A-level in mathematics. Around 4000 obtain mathematics degrees. There
is therefore a potential pool of around 12,000 without a mathematics degree,
but with an A-level in mathematics. These include many graduates who may
be capable of enhancing their mathematics knowledge to allow them to teach
to at least Key Stage 3. At present, those in this group could gain access to
courses leading to primary teacher training, but would be unlikely to be able
to join a secondary PGCE course in mathematics (see Table 2.1).

2.67 Where a trainee’s previous degree does not cover the spectrum of knowledge
required to teach a particular subject, pre- and in-course study courses and
subject support courses are available with access to help from specialist tutors.
These are currently being evaluated to assess their impact. Some providers
offer two-year PGCE courses that provide more time for trainees to develop
their subject knowledge. The TTA also has plans to pilot a Pre-Initial Teacher
Training Mathematics Enhancement Course from January 2004. This initiative
will target graduates from a wider range of non-mathematics degree
backgrounds, to develop their knowledge and deepen their understanding of
mathematics prior to a PGCE or GTP course. From January 2004, the course

46
 will be piloted in two regions each year, for two consecutive years. Each
course will have 20 allocated places. A working group of ITT providers,
undergraduate course tutors and schoolteachers has developed the course
specification for mathematics. Contracts will be awarded to provide
enhancement courses as a service to all providers of graduate routes to QTS
within the region. Course participants will receive a bursary of £150 a week
for the twenty-six weeks of the course. On successful completion of the course
participants will progress to available QTS bearing courses of their choice
within the region.

2.68 These enhancement courses will be evaluated fully to identify action for DfES,
TTA, enhancement course providers and ITT providers and to inform any
ministerial decisions about national availability of enhancement courses. The
Inquiry believes that the enhancement routes being piloted by the TTA may
be of considerable importance in identifying new sources of students for
recruitment into mathematics teacher training. This prompts the following
recommendation, which we would like to see also taken into account by
those responsible for the supply of mathematics teachers in colleges.

More specific certification of mathematics teachers

Recommendation 2.5

The Inquiry recommends that the current TTA enhancement programmes for graduates
be evaluated carefully and that additional resources be made available to support and
reinforce successful programmes in mathematics. The Inquiry further recommends that
the TTA should consider introducing enhancement programmes that offer non-graduate
career changers opportunities, including bursaries, to complete graduate mathematics
course and secure QTS. The Inquiry recommends that, subject to appropriate quality
assurance, the DfES give high priority to providing any extra resources required by the
TTA in expanding mathematics enhancement programmes.

2.69 In considering the need to provide enhancement to attract non-mathematics

graduates into mathematics teacher training, the Inquiry has been led to
consider whether there should just be a single certification scheme for QTS,
as at present, or whether instead there should be new routes which make it
possible to gain specific certification to teach mathematics up to specific
levels; for example, KS3, KS4 and post–16 levels. We believe this could be
extremely helpful in ensuring the supply of sufficient numbers of mathematics
teachers across all stages of learning and we therefore make the following
recommendation.

Recommendation 2.6

The Inquiry recommends that consideration be given to the introduction of new

mathematics teacher certification schemes, aimed at increasing the overall supply of
teachers appropriately qualified to teach at least some part of the curriculum.

47
 Career Exploration
2.70 The TTA operates a range of programmes to enable prospective applicants
to become more informed about teaching and training to teach:

• The Open Schools programme provides opportunities for people

at an early stage of exploring teaching as a career to spend an
observation day in school;

• The Teaching Advocates programme harnesses the enthusiasm of

serving teachers to support the TTA in various recruitment activities;

• The Taster Courses programme aims to provide an in-depth taste

of teaching and teacher training. The courses last three days and
include one full day in school.

2.71 The Inquiry welcomes the fact that the TTA is now working to ensure that
the provision of these services is focussed on the need to improve recruitment
to priority subjects. Approximately 10 per cent of those making use of the
programmes are people interested in teaching secondary mathematics.
Another scheme managed by the TTA is the Student Associates Scheme. This
is designed for undergraduates currently uncommitted to a teaching career
to enable them to explore the possibility of teaching and give them a taste
of life in school. Universities pay a small bursary to the undergraduates for
the time they spend in schools. The second stage of the Scheme is only open
to those who have the qualifications required for entry into ITT and 40 per
cent of the Scheme is targeted at students from secondary shortage areas. It
is anticipated that 5,000 undergraduates will participate in the Scheme in the
academic year 2003/04. The scheme allows them to build up a portfolio of
evidence towards the standards for QTS, with a view to having that evidence
taken into account either in relation to the overall time spent on a PGCE
course, or in relation to the work required on specific parts of the course.

2.72 Evaluation of the Scheme so far and of the experiences of a sample of 60

students from the academic year 2001/02 has been undertaken. Student
reaction to the Scheme has been very positive overall. There is also evidence
from training providers that students who had experience of the scheme were
better prepared for the PGCE interview process and more confident and better
prepared for their first teaching placement. The Inquiry welcomes the
introduction of this Scheme and is pleased to note that it has recently been
expanded to 5,000 places a year. However, we would like to see more
targeted use of the Scheme for mathematics students.

Recommendation 2.7

The Inquiry recommends that a significant number of places in the Student Associate
Scheme be earmarked for undergraduates on degree courses in mathematics or courses
involving a substantial component of mathematics. We encourage the TTA to work closely
with the Committee of the Heads of Departments of Mathematical Sciences (HoDMS)
and others in higher education to continue to raise the level of awareness of the scheme
among relevant undergraduates.

48
2.73 The TTA Student Associate Scheme also supports the Undergraduate
Ambassadors Scheme pioneered by the writer and broadcaster, Simon Singh.
The scheme operates across all science, technology and engineering areas,
as well as mathematics. This is a further possible route to encouraging
students into teaching, as well as providing additional teaching resource in
schools. The scheme operates through higher education departments creating
an undergraduate module in which undergraduates acquire academic credit
for time spent in schools and for acquiring transferable skills in the context
of their work in the classroom. There are no financial payments. The scheme
began in 2002 with a total of twenty-eight students; this increased to around
one hundred students in 2003 and four hundred in 2004. We provide further
discussion of this and possible related schemes in paragraphs 6.19-21 and in
Recommendations 6.3 and 6.4.

Teachers’ Remuneration
2.74 From 1 September 2002, teachers in maintained secondary schools have been
paid on a new six-point salary scale. Once at the top of the scale, they may
apply to “cross the threshold” and move to a higher, performance-related
pay scale. One of five management allowances may be awarded in addition
to pay scale points to teachers on either of these scales, for example to heads
of department and other teachers with significant specialised management
responsibilities. In addition, any teacher may apply to become an Advanced
Skills Teacher and, if successful, will move to a new higher pay scale.

2.75 Schools in theory have considerable freedom over the pay of their teachers.
Schools are also able to use recruitment and retention allowances to attract
and keep key members of staff. At present, DfES evidence to the Inquiry
suggests that around 3 per cent of all teachers receive such an allowance. In
relation to the use of this flexibility for teachers of mathematics, the 2001/02
Annual Report of Her Majesty’s Chief Inspector of Schools notes that

“Despite the flexibility that schools have to award recruitment and retention
allowances to attract high-quality teachers, many, particularly in the
primary sector, are reluctant to use them as they regard them as divisive
and unfair to existing staff. In secondary schools, use of recruitment and/or
incentive allowances to attract and retain staff, especially subject specialists
in mathematics and science is, however, increasing.”

2.76 SET for Success regarded the issue of teachers’ remuneration as critically
important and recommended that more needs to be done to address pay
and other incentives offered to teachers in shortage subjects. The Inquiry
strongly endorses this view. There is a shortage of mathematically qualified
graduates and schools and colleges are competing with other sectors of the
economy. We therefore echo the recommendation made in SET for Success.

Recommendation 2.8

The Inquiry recommends that more must be done to address the issue of pay and other
incentives to teachers of mathematics and other shortage subjects (see, also,
Recommendation 5.2).

49
2.77 The Government has recently introduced a pilot scheme (from 2002/03 for
three years) under which teachers in shortage subjects will also benefit from
having their student loans written-off for them over a period of time. Current
proposals would further increase the effective salaries of mathematics teachers,
potentially by up to around £1,500 per year for the first ten years. The Inquiry
welcomes this further attempt to provide incentives for the recruitment of
mathematics teachers. However, we are concerned at the rather hit-and-miss
and potentially unfair nature of the incentive, which clearly has no impact
on students who, for whatever reason, did not take out loans (including those
who may, at some personal cost, have worked to support themselves through
university). More fundamentally, we note that the Government’s current HE
Bill, which received its second reading on 4 February 2004, proposes radical
changes to future fee levels in higher education. The Inquiry believes that the
proposed fee changes open up important new opportunities for substantial
incentives through fee waivers and loan write-offs. The Inquiry urges the
Government to consider how to exploit these opportunities to encourage
teacher recruitment in shortage subjects.

A summary of additional comments on teacher supply

in Wales, Northern Ireland and Scotland
Wales
2.78 The 2002 General Teaching Council for Wales (GTCW) survey of teacher
recruitment indicated that secondary mathematics posts attract significantly
fewer applicants than other subjects. In addition the number of applicants
per mathematics post is declining. In Welsh medium schools the situation is
worse. Recruitment is likely to be affected by the limited pool of Welsh
speaking teachers available. Mathematics and English are the posts most
difficult to fill in Welsh secondary maintained schools, despite a low overall
teacher vacancy rate of 0.4 per cent. Over ten per cent of mathematics
teachers at key stage 4 and above do not have a degree in mathematics or
a closely related subject.

2.79 However, there are a number of incentives being provided to both

postgraduate and undergraduate trainee teachers. Encouragingly, the number
of graduates accepted onto PGCE ITT mathematics courses in Wales has risen
by 15 per cent in 2002–03, with a further increase in applicants for courses
starting in September 2003.

Northern Ireland
2.80 Responses to the Inquiry from Northern Ireland have expressed the view that
mathematics teachers in Northern Ireland are more likely to be qualified
mathematicians than their colleagues in England. However, respondents felt
that there is a need to ensure the effective professional development of
mathematics specialists (see Chapters 5 and 6).

50
2.81 A recent recruitment survey of all Northern Ireland post-primary schools was
conducted by some of Northern Ireland’s Education and Library Board
Officers. There was a high response rate of around 89 per cent. So far as
full-time posts were concerned, Grammar schools indicated that mathematics
is for the most part taught by teachers with appropriate training. Posts are
filled on time and without additional inducements. However, around 45 per
cent had experienced some form of difficulty with recruitment. Grammar
schools also highlighted a lack of teachers qualified to cover Additional
Mathematics, AS and A2. Integrated schools met more problems in recruiting
full-time mathematics teachers and enhancements were typically used when
recruiting Heads of Department. Non-grammar schools found it the most
difficult to recruit appropriately qualified mathematics specialists. As a result,
schools often have to appoint under-qualified teachers and despite this some
posts need to be re-advertised. Enhancements are used both to recruit and
to retain teachers. This lack of teachers and appropriate skills are felt to have
a negative impact on students. In terms of substitute teacher recruitment,
most schools had experienced difficulties. Substitute teachers prove even
harder, if not impossible to recruit. Although some schools are able to call
on retired teachers for additional cover, there is a concern that this may result
in out of date teaching. In outlying areas, such teachers are often simply not
available.

Scotland
2.82 In Scotland, since 2000/01 mathematics teachers have been required to have
studied the subject for three years at university. Responses to the Inquiry
indicate that although there is no overall shortage of teachers in Scotland,
mathematics is among the secondary school subjects in which it is hardest
to fill vacancies. The Scottish Executive has developed a three-tier prioritisation
system to ensure an adequate supply in all subjects: mathematics is in the
first category. However, overall, in November 2003 only 35 posts in
mathematics (2 per cent) were vacant and only 10 of those had been vacant
for more than three months.

2.83 The teaching workforce in Scotland is ageing, which necessitates an ongoing

annual increase in the number of new teachers. This may become a problem.
Currently, there are no major shortages, however mathematics is one of the
more difficult areas. Scotland is currently among the handful of European
countries with a reasonable equilibrium between teacher supply and demand.
According to the Scottish Executive national statistics publication Results of
Teacher Workforce Planning for 2003–2004, five per cent of the overall
workforce joined or re-joined the workforce during 2000–2001, and five per
cent left during this time.

2.84 It is the responsibility of Education Authorities and head teachers to deploy

staff as effectively as possible to meet local needs. Scotland currently has no
plans to make use of HE resources, such as using students as teaching
assistants.

51
52
3 CURRENT MATHEMATICS PATHWAYS
The National Curriculum (pre-16)
3.1 Progression through the school system in England and Wales is described in
terms of four Key Stages: Key Stage 1 (pupils 5–7 years); Key Stage 2 (pupils
7–11 years); Key Stage 3 (pupils 11–14 years); Key Stage 4 (pupils 14–16
years). Although the focus of this Inquiry is post–14 mathematics education,
in practice we cannot fully discuss post–14 pathways (Key Stage 4 and
beyond) without a clear overview of mathematics pathways in Key Stages
1–3. Mathematics is a core subject of the National Curriculum (NC) in
England and Wales throughout Key Stages 1–4. The expectation is that every
student is taught some, or all, of the NC until aged 16. The NC was last
revised in 1999, with the new curriculum in place from September 2000.
Until 1999, England and Wales had a common curriculum in mathematics.
Northern Ireland has always had its own curriculum and its own definition
of key stages. The expectation is that every student is taught some, or all,
of the Northern Ireland Curriculum (NIC) until age 16. The structure post–14
is essentially that of GCSE and GCE AS and A-level Mathematics, with some
take up of Application of Number. Scotland has always had its own completely
different structure.

3.2 Overwhelmingly, the concerns of respondents to the Inquiry have related to

the English system. Unless otherwise stated, therefore, details in the text
mainly refer to England. For completeness and comparison, detailed
descriptions of the systems and recent developments in Wales, Northern
Ireland and Scotland are provided at the end of this chapter.

3.3 The new curriculum for Wales is very similar to the previous joint curriculum
for England and Wales, but in England the revisions to the mathematics
curriculum were extensive. The content of the NC was not greatly changed,
but the presentation of topics and the idea of progression was made much
more explicit than before. These changes were made in response to
widespread concerns about growing evidence of many pupils’ poor facility
with the basic processes and calculations of mathematics, concerns which
also led to the approval of adult numeracy and application of number
qualifications for Key Stage 4 and older students. There was also concern
that many pupils exhibited an inability to reason logically in mathematics,
particularly in the areas of algebra and geometry. The curriculum changes
were designed to help teachers emphasise important points in common areas
of difficulty and misconception.

3.4 The full range of mathematics that should be taught in England at key stages
1, 2, 3 and 4 is set out in detail in the Programmes of Study (PoS) for
Mathematics in the National Curriculum. All pupils are taught from a common
curriculum to the end of Key Stage 3. There is a degree of differentiation at
Key Stage 4 with two overlapping Programmes of Study called Key Stage 4
(Foundation) and Key Stage 4 (Higher). The PoS provide the basis for school

53
 planning and individual schools decide how to organise their school
curriculum to include the programmes of study for mathematics. These
decisions have been influenced in recent years by the impact of the National
Numeracy Strategy and the Key Stage 3 Strategy, which have produced
Frameworks for Teaching Mathematics for both the primary phase and for
Key Stage 3, respectively.

3.5 The knowledge, skills and understanding sections in the PoS in England and
Wales identify the main strands of mathematics in which pupils should make
progress (Northern Ireland has its own PoS structure). The strands at each
key stage are shown below. In Wales, an additional MA1 strand, Using and
Applying Mathematics, is taught at each key stage.

Strand Key Stage 1 Key Stage 2 Key Stages 3 & 4

MA2 Number Number Number & algebra
MA3 Shape, space & Shape, space & Shape, space &
measures measures measures
MA4 Handling data Handling data

3.6 Following the curriculum review in England in 1999, the Qualifications and
Curriculum Authority (QCA) has carried forward a major programme of
proactive development work in algebra and geometry with a view to
producing guidance to teachers of mathematics at Key Stages 3 and 4. This
programme is also intended to help inform future changes to the mathematics
curriculum. The PoS describe the intended content of the curriculum and the
learning opportunities that teachers should provide for all pupils. In addition,
there are four Attainment Targets, which set out expected standards of pupil’s
performance:

• AT1 Using and applying mathematics (which pervades all the

strands MA2-MA4);

• AT2 Number and algebra;

• AT3 Shape, space and measures;

• AT4 Handling data.

The Attainment Targets consist of eight level descriptions of increasing

difficulty, plus a description for exceptional performance above level 8. Each
level description indicates the types and ranges of performance that pupils
working at that level should characteristically demonstrate. These level
descriptions remained largely unchanged in the 1999 revision of the National
Curriculum. The level descriptions provide the basis for making judgements
about pupils’ performance in the National Tests at the end of key stages 1,
2 and 3. At Key Stage 1, it is expected that pupils will be working within
the range of levels 1–3; in 2003, 90 per cent reached level 2 or above by
age 7. At Key Stage 2, it is expected that pupils will be working within the
range of levels 2–5; in 2003, 73 per cent reached level 4 or above by age
11. At Key Stage 3, it is expected that pupils will be working within the range
of levels 3–7; in 2003, 70 per cent reached level 5 or above or above by
age 14 and 49 per cent reached level 6 or above.

54
3.7 Evaluation of pupils at the end of Key Stage 4 (14–16) is normally through
the externally assessed General Certificate of Secondary Education (GCSE)
examination. GCSE assessment is the norm for all pupils who have achieved
higher than NC level 3 by the end of Key Stage 3. Those who have not yet
achieved at this level may take Entry Level qualifications, including, in England,
the Certificate in Adult Numeracy.

3.8 GCSE and Entry Level qualifications are suites of qualifications within the
National Qualifications Framework (NQF) for England, Wales and Northern
Ireland. The NQF is managed jointly by three regulatory authorities – QCA
for England, ACCAC for Wales and CCEA for Northern Ireland. These three
regulatory authorities set the criteria for the development of specifications for
GCSE Mathematics and Entry Level qualifications in mathematics. As we have
indicated, Scotland has an altogether different structure. The GCSE
examinations in England, Wales and Northern Ireland are administered by
five awarding bodies, AQA, London Qualifications (Edexcel), OCR, the WJEC
and the CCEA. Performance on GCSE Mathematics is determined, from the
highest to the lowest grade, on an eight grade scale: A*, A, B, C, D, E, F
and G. In the National Qualifications Framework (NQF), GCSE results grades
A*– C are classified as a level 2 qualification, whereas grades D–G are classified
as a level 1 qualification. GCSE therefore encompasses levels 1 and 2. Entry
Level is below level 1. Level 3 mathematics qualifications are above the GCSE
level 2 standard in terms of mathematics content and difficulty. Higher
Education undergraduate degree courses are defined as level 4 and
postgraduate courses as level 5.

The curriculum post–16

3.9 There is no statutory curriculum in England, Northern Ireland and Wales
beyond the age of 16. Qualifications primarily for use post–16 are all externally
assessed on a range of specifications developed to mathematics criteria set
by the three regulatory authorities of England, Wales and Northern Ireland
and all accredited by these authorities. Again, Scotland has a different
structure. Significant changes to the curriculum and qualifications framework
were made in the Curriculum 2000 reforms, which followed the extensive
1997 Qualifying for Success consultation with schools, colleges, universities
and industry on proposals that were originally recommended in Lord
Dearing’s Review of Qualifications for 16–19 Year Olds, published in 1996.
At the time, there was a widespread consensus that change was required.
The traditional programme of full-time study was increasingly seen as a less
than adequate preparation for work or for the increasing number of generalist
courses in Higher Education, which required a broader range of knowledge
and skills than was hitherto the case. In addition, considerable concern was
expressed – in particular, by the mathematics, physics and engineering
communities – about the lack of mathematical fluency of those entering
Higher Education courses requiring more specialist mathematics skills.

55
3.10 The five key elements of Curriculum 2000 were the introduction of:

• AS qualifications;

• New A level specifications;

• Advanced Extension Awards;

• New Vocational A levels;

• Key Skills.

3.11 There were five main principles underlying Curriculum 2000 reform:

• Progression: AS was intended not only to allow for better

progression from GCSE to A-levels but also to have its own internal
coherence;

• Flexibility: The reforms were intended to offer schools and colleges

the opportunity to teach AS alongside A level. In most cases, this
would mean having common teaching programmes;

• Breadth: A key aim of the restructuring was to encourage greater

breadth of study for full-time 16–19 students and to reduce
wastage for those who did not continue to the full A-level after
completing the first year of post–GCSE study. Students would be
encouraged to study four or five subjects at AS in year 12, before
specialising in two or three of these subjects in year 13;

• Better key skills: as one of the new Government’s manifesto

commitments, Curriculum 2000 encouraged the incorporation of
key skills in all post–16 programmes, with the intention of helping
students prepare better for both higher education and
employment. The expectation was that all students be helped to
achieve level 2 in communication, number and computer skills by
age 19 (through a good GCSE or the corresponding key skills
qualification). Those going on to Higher Education or professional
study would be expected to achieve at least one level 3
qualification in these skills;

• Greater Status: Curriculum 2000 aimed to bring vocational

qualifications in line with academic qualifications, by creating parity
of esteem between the qualifications.

Mathematics qualifications: current progression routes

within mathematics
3.12 At present, secondary mathematics qualifications split into two age-related
clusters: 14–16 qualifications (to the end of compulsory schooling) and then
16–19 qualifications in the phase of post-compulsory schooling. There are six
main families of qualifications:

• 14–16 GCSE mathematics and GCSE Statistics (encompassing levels

1 and 2);

56
 • 14–18+ The Certificate in Adult Numeracy (available at Entry level
and levels 1 and 2) and the key skill qualification in Application of
Number (available at levels 1–4);

• 16 –18+ GCE AS and A level Mathematics and related courses (all

at level 3);

• 16 –18+ Free Standing Mathematics Qualifications (separate levels

1, 2 or 3);

• 16 –18+ GCE AS Use of Mathematics (level 3);

• 18+ Advanced Extension Award in Mathematics (level 3).

With the exception of Free Standing Mathematics Qualifications at levels 1

and 2, all the qualifications listed are approved and available for use pre–16
and post–16. FSMQ levels 1 and 2 are currently only approved for use
post–16. In addition, there are mathematical units within a number of
vocational qualifications.

3.13 Progression within mathematics is currently characterised by a potential chain

of courses from the age of 14 onwards, students moving on from one level
to take one or more qualifications in the next level up. Most students enter
the chain from Key Stage 3 working mostly at level 1. Some aim to achieve
a level 2 qualification in mathematics beyond the age of 16, having achieved
a level 1 qualification by age 16. Others who have not achieved a level 1
qualification at age 16 try to reach level I by the age of 17 or 18. We shall
discuss Free Standing Mathematics Qualifications (FSMQs) and AS Use of
Mathematics in more detail later (paragraphs 3.32–38). Most students take
these qualifications within the age ranges specified. A few may take GCSEs
or GCEs at an earlier age than those specified. Some will take them at a later
age than specified, and some will resit qualifications in an attempt to improve
their grade. In the following sections, we provide a brief discussion of each
available mathematics qualification.

3.14 The Inquiry has noted with considerable concern that very few students in
England progress to level 3 qualifications in mathematics. A large proportion
of the age cohort 16–19 in England choose programmes of study post–16
that do not include mathematics. The scale of the problem is typified by the
progression rates of the cohort sitting GCSE in 2001: nearly 564,000 students
(93 per cent of the age cohort) entered GCSE Mathematics, with nearly 51
per cent obtaining grades A* to C, and a 97 per cent overall pass rate; but
in 2002, only just over 41,000 (6.5 per cent of the age cohort) entered for
AS level.

GCSE Mathematics
3.15 The GCSE was introduced in 1986 and the first examination was in 1988. It
replaced the General Certificate of Education Ordinary Level (O-level) and the
Certificate of Secondary Education (CSE), which had run in parallel.

3.16 Originally, GCSEs were graded from A–G. From 1994, the A* grade was
introduced into the examinations to discriminate the very best performance.

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 With one exception, all GCSE Mathematics specifications are now assessed
through a combination of terminal examination and coursework. Northern
Ireland’s GCSE in Additional Mathematics does not have coursework. The
subject criteria for mathematics specify the balance between internal
assessment (which must be externally moderated) and external assessment
to be a ratio of 20:80.

3.17 GCSE Mathematics has had overlapping tiered papers since its first
examination in 1988. Pupils cannot be entered for more than one tier in any
given examination period. From 1998, most major entry subjects, with the
exception of mathematics, have been examined through a Higher Tier
covering grades A*–D and a Foundation Tier covering grades C–G.
Mathematics is the only subject to have retained more than two tiers. A small
number of subjects, including art, music, PE, and history, have one tier. The
intent of the three-tiered papers in mathematics was to cover a range of
GCSE grades, so that candidates can attempt questions that are matched to
their broad ability and enable them to demonstrate positive achievement.

• the Foundation Tier awards grades D, E, F and G;

• the Intermediate Tier awards grades B, C, D, E;

• the Higher Tier awards grades A*, A, B, and C.

3.18 Schools base their decision on which tier to enter pupils for on their Key
Stage 3 results and on their expected level of achievement in the examination.
In the revised National Curriculum, there are two underpinning PoS at Key
Stage 4: Key Stage 4 (Foundation) and Key Stage 4 (Higher). At present, this
two-tier structure of the curriculum in England is not mirrored in the structure
of GCSE assessment. The Foundation PoS is the appropriate course for those
pupils who expect to achieve up to grade C standard GCSE Mathematics,
but not beyond. The appropriate grounding needed for progression to GCE
AS and A level is only covered in the Higher PoS at Key Stage 4. This includes
more abstract and formal mathematics than does the Foundation POS, which
has more emphasis on everyday and more practical examples. The revised
curriculum recommends that all pupils who have obtained a good level 5 or
better in mathematics at the end of Key Stage 3 should be taught the Higher
Key Stage 4 PoS for mathematics.

3.19 Table 3.1 shows the numbers entered for GCSE Mathematics in England for
each of the years 1999–2003, together with the percentage of the age cohort
entered and the percentage of the age cohort attaining grades A*–C. For
example; in 2003, 585,000 students out of a total cohort of 622,165 were
entered for GCSE Mathematics (94 per cent) and 298,600 (48 per cent of
the age cohort, 51 per cent of those entered) attained grades A*–C. A total
of 562,000 attained grades A*–G (96 per cent of those entered). The
percentage of those entered obtaining a pass grade has remained stable at
around 96 per cent for the past few years. The percentage of those entered
attaining grades A*–C has moved from just below to just above 50 per cent
over the five-year period. The total percentage of the age cohort entered has
increased slightly over the past decade from about 95 per cent to 97 per
cent.
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Table 3.1: GCSE entries and A*–C attainment for 15–year-olds in
England, 1999–2003
Year Numbers sitting % of 15–year-olds* % of 15–year-
GCSE Mathematics in schools in olds-cohort
(thousands) England attempting gaining
GCSE Mathematics Grades A*–C
2003 585.0 94 48
2002 568.9 94 49
2001 563.8 93 48
2000 539.9 94 47
1999 536.8 92 45
* Age at 31 August prior to the start of the academic year

Source: DfES Statistical Bulletins.

GCE AS and A-level Mathematics and Further

Mathematics
3.20 General Certificates of Education (GCEs) are single subject qualifications. They
were restructured for first teaching from September 2000 in response to
decisions taken in April 1998 following the Qualifying for Success consultation.
These revised GCEs are part of the Curriculum 2000 reforms. GCE AS and A-
level specifications are based on rules set out in the regulatory authorities’
Common, GCE and subject criteria. The latter may specify some of the
required content. In the case of GCE mathematics, this core of pure
mathematics occupies 50 per cent of current specifications. All GCEs in
Mathematics also contain at least 25 per cent of mechanics, statistics or
discrete mathematics, or some combination of these applications. There are,
nonetheless, significant differences in both the detailed structure and content
of specifications offered by individual awarding bodies or across awarding
bodies, and in the style of their examination questions, to provide an element
of choice for centres.

3.21 Mathematics is unique at GCE level since candidates can obtain more than
one A-level’s worth of the subject. There are also qualifications in GCE AS
and A-level Further Mathematics. These take the subject further than the study
of GCE A-level Mathematics alone. Assuming that teaching resources are
available, very able students will often be entered for both A-level
Mathematics and A-level Further Mathematics. Some may even study and be
examined in more than 12 modules, and so gain more than the equivalent
of two full A-levels in Mathematics (which each correspond to 6 modules).
In recent years, secondary schools have accounted for just below 70 per cent
of A-level entrants in Mathematics, with Sixth Form Colleges providing just
under 20 per cent and the rest being entered from FE/Tertiary Colleges. For
AS levels, secondary schools are providing over 75 per cent of entrants, Sixth
Form Colleges around 15 per cent and the rest are being entered from
FE/Tertiary Colleges (JCGQ Inter-board Statistics).

59
3.22 Lord Dearing’s review of 16–19 qualifications contained many references to
qualifications in pre–16 mathematics, GCE Mathematics and Further
Mathematics. Many of the key features of his remarks and recommendations
for GCSE and GCE Mathematics, and about bridging the gap between them,
were built into the 1999 National Curriculum review to age 16 and the
Curriculum 2000 reforms for the post–16 age group. The Curriculum 2000
reformed GCE A-levels are modular with examinations that can be taken at
various stages during, or at the end of, a two-year course. The qualification
is designed in two parts. A first half – the GCE Advanced Subsidiary (AS) –
that assesses the knowledge, understanding and skills expected of candidates
half way through the course; followed by a second half (A2). AS and A2
together are intended to maintain the standard of the full A-level qualification
prior to Curriculum 2000. The AS may be taken as part of the whole A-level
or as a free-standing qualification. The full A-level normally comprises six
modules, three each in the AS and A2 stages.

3.23 During 2000/01, serious difficulties with AS Mathematics were reported to

the regulatory authorities. The overriding concern of teachers was that AS
Mathematics appeared to be too difficult and was turning many students
away from the subject. The results of the first cohort of candidates appeared
to confirm this. The pass rate among the 17 year-old cohort was 71.8 per
cent, very low compared to other mainstream subjects like English, history,
geography, physics, chemistry and biology. Although in subsequent years, the
AS pass rate in Mathematics had increased, it still remains conspicuously out
of line with other mainstream subjects. Table 3.2 presents comparative figures
for 2001–03. The Inquiry note with concern this considerable disparity and,
in relation to student choice of subjects post–16, the perception problem this
presents for the discipline of mathematics and the subsequent supply chain
for mathematics, science and engineering.

Table 3.2: AS overall percentage pass rates for 17–year-olds in

England, 2001–03
Year
Subject 2001 2002 2003
Mathematics 71.8 75.6 76.3
English 94.1 93.7 94.2
History 93.5 92.1 92.3
Geography 91.0 89.6 90.1
Physics 86.3 83.7 82.5
Chemistry 87.3 85.7 84.8
Biology 84.8 82.3 80.7

3.24 Detailed analysis of the AS Mathematics syllabus and assessment undertaken

by the regulatory authorities in Autumn 2001 showed that in terms of both
the specifications for AS and their associated examination papers the amount
of content and the demand of the new papers was prima facie no greater
than before. However, it was clear that what had worked well prior to
Curriculum 2000 no longer worked.

60
3.25 With a 3 + 3 split of core pure mathematics plus applications for the full A-
level, it was impossible for those teaching the material not to include some
core A2 material in the AS. Retrospectively, it was therefore recognised that
the content of the AS specifications was too great to be taught and mastered
by students in the time available before May/June of their first year of post–16
study. There appears now to be an acceptance that students need time to
mature into a two-year advanced course, and that learning is faster and
material becomes more established in the second year of the course.

3.26 Whilst work was underway to revise the GCE Mathematics criteria, the
regulatory authorities and the three administrations in England, Wales and
Northern Ireland agreed that no changes could be implemented until an
entire GCE cycle was completed and analysed. When the full Curriculum 2000
A-level was examined for the first time, and the AS had been through its
second round, the 2002 summer results showed that:

• the AS pass rate had improved slightly to 75.6 per cent, but still
lagged considerably behind other mainstream A-level subjects (see
Table 3.2 above, which shows the gap between mathematics and
other subjects continuing in 2003);

• there had been around a 10 per cent decline in the entries for the
Mathematics AS level, a decline which persisted in the following
year (see Table 3.3 below);

• the number of entries for the new A-level had reduced by around
20 per cent; (see Table 3.4 below);

• there had been over a 10 per cent decline in the number of entries
for A-level Further Mathematics (see Table 3.5 below).
Table 3.3: AS entries and % pass rates by 17–year-olds in England,
2001–03
Year Number of entries Pass rate
2003 41,556 76.3
2002 41,196 75.6
2001 46,610 71.8

Table 3.4: A-level entries by 18–year-olds in England (Mathematics

and Further Mathematics), 1993–2003
Year Number of entries
2003 42,897
2002 42,439
2001 52,483
2000 51,455
1999 53,827
1998 54,707
1997 53,757
1996 51,601
1995 48,265
1994 48,680
1993 49,575

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Table 3.5: Further Mathematics entries by 18–year-olds in England,
1993–2003
Year Number of entries
2003 4,030
2002 3,927
2001 4,524
2000 4,461
1999 4,607
1998 4,686
1997 4,523
1996 4,413
1995 3,809
1994 3,753
1993 3,988
Source: DfES Statistical Bulletins

3.27 Faced with these serious declines in take up of AS and A-level Mathematics
and Further Mathematics following the Curriculum 2000 reforms, the decision
was made to proceed with the development of new specifications to the
revised criteria for GCE Mathematics. These had been developed during the
year by QCA, ACCAC and CCEA in conjunction with an expert panel of
stakeholders. The revised criteria have now been approved. They retain the
existing core content, but now spread over four units instead of three (2 AS
and 2 A2). This means that:

• there will be no A2 core material in AS; it is hoped that the AS

content will therefore be much more manageable;

• the number of applied units (statistics, mechanics or discrete

mathematics) has been reduced from three to two in any
mathematics A-level;

• awarding bodies still have scope to select a range of approaches

to applications according to their local circumstances and the needs
and preferences of their centres;

• students may still study up to two applications, but if students wish

to study two application units these changes technically may result
in awards of GCE A-level with 4 AS and 2 A2 units;

• the flexibility of AS Further Mathematics has been increased to

include up to three AS units;

• there will be a loss of some of the current titles: the only permissible
ones will be Mathematics, Further Mathematics and Pure
Mathematics; administratively, however, this is viewed as an
improvement on what was allowed before these revisions;

• a qualification in statistics, using units from outside the

mathematics suite, has been submitted to the regulatory authorities
using one common unit from the mathematics suite; the regulatory
authorities have agreed that the title will no longer exist within
the mathematics suite.

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 The revised specifications have been available from autumn 2003, taught from
September 2004, with first AS examinations in 2005 and first A2 examinations
in 2006.

3.28 All GCE AS and A levels are certificated on a scale A to E, with U (unclassified)
and X denoting a fail. A previous grade N, denoting a narrow failure, was
discontinued after 2001. The breakdowns of grades awarded for A-level and
AS level Mathematics for the past four years (A-level) and three years (AS
level) are shown in Tables 3.6 and 3.7, respectively. The Inquiry has noted
with interest the fact that the distributions of grades for mathematics do not
follow the bell-shaped curve typically observed in many other subjects.
Instead, grade A is the most commonly obtained grade. We shall comment
further on this in paragraph 4.37.

Table 3.6 Breakdown of A-levels Mathematics Results (%) for

18–year-olds, 2000–03
Grade
Year A B C D E N U X
2003 39.0 20.9 16.2 12.1 7.7 3.9 0.2
2002 38.7 20.2 16.1 12.1 7.9 4.6 0.2
2001 30.1 18.9 16.2 14.1 10.7 5.6 4.1 0.3
2000 30.7 19.3 16.8 14.0 10.0 5.1 3.8 0.2

Table 3.7 Breakdown of AS level Mathematics Results (%)

18–year-olds, 2001–03
Grade
Year A B C D E N U X
2003 23.1 15.0 14.5 12.6 11.1 22.1 1.6
2002 23.4 14.0 13.9 12.8 11.5 22.6 1.8
2001 19.7 12.9 13.5 13.6 12.2 26.3 1.7

Advanced Extension Award (AEA)

3.29 As part of the Curriculum 2000 reforms, Advanced Extension Awards
(AEAs) were introduced for advanced level students in England, Wales and
Northern Ireland to provide challenge for the most talented students. AEAs,
for which the first examination was in summer 2002, are externally assessed
through written examination. They are awarded at merit and distinction
grades and supersede what were previously called Special Papers. The AEA
in Mathematics was developed and trialled from 2000 to 2001 and is assessed
by a single three-hour paper. All questions are based on the common core
of pure mathematics from the A-level mathematics subject criteria.

3.30 In 2002, nearly 40 per cent of the candidates for A-level Mathematics
obtained a grade A result. The AEA in Mathematics is aimed at the top 10
per cent of the A-level Mathematics candidates nationally, ie. the top one
third of the potential grade A cohort. It aims to enable students to:

• demonstrate their depth of mathematical understanding;

63
 • draw connections from across the subject;

• engage with proof to a much greater extent than is required in

A-level Mathematics.

3.31 Questions on the AEA paper are much longer and less structured than those
in the modular papers. They require a greater level of understanding than
for GCE A-level as well as the ability to think critically at a higher level. The
AEA is not expected to require the teaching of additional content, but requires
exposure to deeper forms of reasoning and rigour, and a less
compartmentalised approach to problem solving. Students are awarded
additional marks for their ability to develop creative, and perhaps unexpected,
solutions to problems. The AEA has proved more accessible than the Special
Paper it replaced. The initial take up of the AEA in Mathematics has been
encouraging, with approximately 1000 candidates in each of the two sessions
to date. Provisional data a combined merit and distinction pass rate of 32
per cent in 2002 and 42 per cent in 2003.

Free-standing Mathematics Qualifications (FSMQs)

3.32 In view of the widespread concerns expressed to us about current post–16
provision, the Inquiry has been particularly interested in the recent
development of Free Standing Mathematics Qualifications, which were
developed by the QCA as a specific response to perceptions of serious gaps
in mathematics provision post–16. Important target groups that were felt to
be overlooked included:

• those repeating GCSE Mathematics (often with little success);

• students on vocational courses;

• A-level students not studying any mathematics to support their

chosen subjects, even though the latter might implicitly require
some mathematics.

3.33 FSMQs were developed at each of levels 1–3. The units were intended to
meet individual student need at a level suited to the student’s current level
of mathematical understanding. Each unit is completely self-contained and
students are directed to titles that complement their other study programmes.
The level 1 FSMQs are designed for students on vocational courses, including
some of those pursuing level 3 qualifications, who do not possess a level 1
qualification in mathematics including a GCSE grade D–G. The level 2 FSMQ
qualifications are designed for those who have achieved GCSE at Foundation
Tier and want to aspire to some mathematics at level 2, but wish to follow
a route different from the GCSE route. The level 3 qualifications are designed
for those wanting some form of focused mathematical study beyond the
upper end of GCSE. In size terms, each unit was conceived as 60 hours of
teacher contact time. FSMQs are intended to provide a different approach
to studying and learning mathematics, designed to fit into the individual
student’s study programme. They aim to increase mathematical competence
and develop transferable mathematical skills by using mathematics in a range
of contexts. The use of ICT is integral to the units and real data is used
wherever possible.

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3.34 As an integral part of the learning and assessment process, students produce
a portfolio of mathematics work, applying mathematics in contexts familiar
from their study programme, work or leisure interests. This is intended to
give the mathematics an immediate relevance and help motivate students to
learn. In addition, FSMQs aim to test process skills more than just content
knowledge. Students are encouraged to think about mathematics and present
clear arguments in their work. They are also encouraged to read mathematical
scenarios, presented in a variety of styles.

3.35 12 FSMQs were developed from 1997 and piloted from 1998–2000; 11 of
these became nationally available qualifications from 2001. The original set
of eleven FSMQs are:

• at level 1 (Foundation): Working in 2 and 3 dimensions; Making

sense of data; Managing money;

• at level 2 (Intermediate): Solving problems in shape and space;

Handling and interpreting data; Making connections in mathematics;
Using algebra, functions and graphs; Calculating finances;

• at level 3 (Advanced): Working with algebraic and graphical

techniques; Using and applying statistics; Modelling with calculus.

3.36 Most of the units deal with generic topics and skills, although some of them
are clearly aimed at specific knowledge and skills needs. For example: Making
connections in mathematics is designed for students who may apply for primary
Initial Teacher Training; Using and applying statistics supports, in particular,
teaching in A-level Psychology or in A-level Geography; Managing money and
calculating finances support vocational business studies courses. The original
units are all assessed through 50 per cent portfolio and 50 per cent written
examination, both assessed externally. FSMQs are graded A–E: A being the
highest pass grade and E the lowest.

3.37 Two further FSMQs have been accredited recently, which differ in format from
the earlier set. Foundations of advanced mathematics is a level 2 qualification
designed to bridge intermediate GCSE Mathematics and AS Mathematics.
Additional mathematics is a level 3 mathematics qualification, not involving
portfolio component, designed for year 11 students who gain GCSE
Mathematics with high grades in year 10 and want to continue mathematics
whilst doing other GCSEs in year 11. Northern Ireland has the distinctive
feature of a GCSE in Additional Mathematics, which is a level 2 rather than
a level 3 award, even though its content goes beyond the Key Stage 4
Programme of Study. (see, also, paragraph 3.63).

3.38 The Inquiry notes that since 2001 the number of candidates taking FSMQs
has grown substantially, from around 2000 in 2001, to around 4,500 in 2002,
to just over 6000 in 2003.

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 AS – Use of Mathematics
3.39 The AS Use of Mathematics qualification was introduced in September 2001.
This qualification is designed for students who achieve at least GCSE Grade
C at the end of compulsory schooling and who wish to continue with a
general mathematics course post–16 without taking a full A-level. It focuses
on developing process skills of application, understanding, reasoning,
explanation and communication of mathematics. Currently, this qualification
is only available at AS level. AS Use of Mathematics has three components
(where (*) indicates that the component is a level 3 FSMQ): two are
mandatory units, Working with algebraic and graphical techniques (*) and
Applying mathematics (the terminal unit); for the remaining component, there
is a choice between Modelling with calculus (*) and Using and applying statistics
(*). The AS Use of Mathematics aims to develop:

• a working understanding of the significance of a range of

mathematical models using algebraic, graphical and numerical
techniques;

• mathematical comprehension, explanation and reasoning;

• mathematical communication.

Learning is assessed through written examination and a coursework portfolio,

with the terminal unit wholly assessed through written examination. This
differs from the assessment of AS Mathematics in that the weighting of
student portfolio work to external written examination is 1:2. AS Use of
Mathematics is the only full proxy for level 3 Application of Number. In 2003,
there were just over 500 entries for this qualification.

Key Skills Qualifications in Application of Number

3.40 Application of Number qualifications, as part of the key skills portfolio, are
available at levels 1–4 in England, Wales and Northern Ireland. In recent years,
there has been a clearly expressed view from employers and others that GCSEs
often do not equip learners with useful number skills, or the ability to use
number in the contexts of other subjects, or the workplace. The call from
employers and others has been for individuals to be enabled to acquire
applied, transferable number skills, which will support them in work and
beyond. These views have informed the design of the Application of Number
qualifications and the development of keys skills teaching and learning
approaches. The Inquiry has noted that in response to these views the
development of the Application of Number strand has taken place completely
separately from the development of mathematics provision for GCSE and
AS/A–levels.

3.41 Current Government policy in England identifies key skills as a range of

essential generic skills that underpin success in education, employment,
lifelong learning and personal development. The recent DfES publication
14–19: opportunity and excellence – volume 1, (DfES 0744/2002) included the
following statement (paragraph 3.8): “To help ensure that all young people are
well equipped in literacy, numeracy and computer skills we will introduce an

66
 entitlement for them to continue studying up to age 19 until they reach the
standard of a good GCSE or the corresponding level 2 key skill qualification. Those
going on to higher education or professional study after 19 should be encouraged
to achieve a level 3 qualification in at least one of these skill areas.” This
expectation in England is supported by the LSC entitlement funding for full-
time learners in schools and colleges. In work-based training, level 1
achievement in number (and communication) is the minimum requirement
for Foundation Modern Apprenticeships (FMA). The requirement for Advanced
Modern Apprenticeships (AMA) is achievement at level 2. The Skills White
Paper (paragraph 5.27e) announced that a level playing field in basic and
key skills funding would be established between the work-based and full-time
FE routes from 2004/05 onwards (although, of course, the work-based route
still relies on employers being willing to release students for appropriate study
periods).

3.42 National standards for the suite of six key skills (then titled “core skills”) were
initially developed in the early 1990s, following joint work by the National
Council for Vocational Qualifications and the Schools Examination and
Assessment Council. The national key skills canon comprises: Application of
Number, Communication, Improving Own Learning and Performance, Information
Technology, Problem Solving, Working with Others. Their development
represented a response to the nationally recognised need for applied and
transferable skills in the global labour market of the late 20th century, and
the case for a common core or entitlement curriculum post–16. They formed
an explicit component of GNVQs (introduced in 1992) and of Modern
Apprenticeship frameworks (introduced in 1995).

3.43 Prior to the introduction of Curriculum 2000, the Application of Number,

Communication and IT key skills qualifications were only available through
Advanced and Intermediate GNVQs, assessed solely through an externally
verified/moderated portfolio of coursework evidence. Candidates had to show
that they could apply the skills in a range of contextual and practical
situations. With the introduction of Curriculum 2000, a short external test
was added to this portfolio component with the intention of providing
corroboration that candidates had genuinely achieved the underpinning skills.
There is no compensation between the two assessment components:
candidates have to pass each component separately to pass the qualification.
There are no grades other than pass or fail. Following the implementation of
the Curriculum 2000 reforms, the provision and acquisition of revised key
skills qualifications for all students became a central goal of Government policy
in the training and development of a numerate, literate and ICT skilled
workforce for a modern economy. Funding incentives were provided to
schools, colleges and other training institutions to promote key skills and
achievement for all post–16 year olds, in line with Government policy. As
recommended in the Cassels Review, all Modern Apprenticeship frameworks
require achievement in communication and number skills, through good
GCSEs or the corresponding key skills qualifications. Additional key skills
requirements are included in frameworks at the discretion of the responsible
sector body.

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3.44 The key skills standards are centrally developed by the QCA, CCEA and ACCAC
and offered as qualifications by 18 awarding bodies (representing the wide
variety of candidates that need to acquire key skills). Student portfolios have
to reflect accurately the specific requirements of each specification. The key
skills qualifications in Application of Number, like those in Communication
and IT, are free-standing qualifications formally available at levels 1–4 of the
NQF. They are intended to serve a number of target audiences: eg those with
good GCSEs who need or wish to develop their applied number skills further
post–16, through the level 3 and 4 qualifications, without specialising in
mathematics; those who have secured less good grades at GCSE and need
or wish to achieve a level 2 qualification in number skills post–16; those who
wish to progress from basic numeracy skills, developed through Entry level
qualifications or the national numeracy tests. The Application of Number
external tests at levels 1 and 2 serve also as the sole tests for Adult Basic
Numeracy qualifications at these same levels. All publicly funded qualifications
in adult basic numeracy are based on the national standards set by the
regulatory authorities. Entry Level achievement can be certificated at each of
the three sub divisions of Entry Level. For Entry Level qualifications, external
assessment contributes a minimum of 50% to the overall award, but at levels
1 and 2, assessment is entirely by the external AoN tests at these levels.

3.45 Proxy qualifications are those qualifications that have been agreed by the
regulatory authorities to assess the same knowledge and skills as aspects of
the key skills qualifications. Candidates can claim exemption from all or part
of particular key skills qualifications for up to three years from the date of
the award of the specific accredited proxy qualification. GCSE mathematics
at grades A*–C acts as a proxy for the external test of AoN at level 2 and a
pass in AS or A-level Mathematics acts as a proxy for the external test of AoN
at level 3. AS Use of Mathematics, comprising two of the FSMQ units together
with one unit unique to the qualification, acts as a full proxy for both the
portfolio work and the external test of AoN at level 3. All nationally accredited
qualifications (including GCSE and GCE) are required to signpost opportunities
for the learning and demonstration of key skills, including Application of
Number. As result of the Skills White Paper in England, QCA have asked
awarding bodies to improve their guidance in this area. For example, each
FSMQ has a detailed map showing exactly how that qualification contributes
to AoN portfolio assessment.

3.46 Students on many level 3 courses are awarded UCAS points for all level 3
qualifications that they pass. Each of the key skills qualifications at level 3
carries a UCAS tariff of 20 points; however, level 3 students also can be
awarded a key skill at level 2 and for each of these they are awarded 10
UCAS points. This is the only instance where a level 2 qualification is awarded
UCAS points. Thus, for example, a student who is awarded Communication
and IT key skills qualifications at level 3 and AoN at level 2 will be awarded
50 UCAS points; a student with all three key skills at level 3 will be awarded
60 UCAS points, the same tariff award as an A grade for GCE AS Mathematics.

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3.47 The external tests for AoN at levels 1 and 2 are available monthly, on-demand
(weekly or higher frequency) and, via selected awarding bodies, on-line.
Calculators are not allowed in these tests. The format of the tests is multiple-
choice and lasts for 11/4 hours. Teachers may at their own discretion extend
the duration of the test by as much as 25 per cent if they feel that their
candidates need extra time. The level 3 test of AoN is available six times a
year. It is a free response and calculator allowed test with six or seven multi-
part questions. This test lasts 2 hours. The pass mark for each test is set jointly
by the awarding bodies. Work is nearing completion on preset pass marks,
which will further support the current high frequency testing opportunities
and speed learner feedback.

3.48 The Statistical First Release covering the period between October 2000 and
September 2002 showed that 296,000 key skills qualifications had been
awarded to 206,300 candidates. Of all the key skills qualifications awarded
in that period, 60 per cent of awards were obtained in FE/Tertiary Colleges,
20 per cent in secondary schools and 12 per cent in Sixth Form Colleges;
90 per cent of awards were to those aged 19 and under. We also note that
46 per cent of qualifications were obtained at level 2, 37 per cent at level 1
and 17 per cent at levels 3 and above. The majority were awarded in England
(88 per cent), with 8 per cent awarded in Wales and 3 per cent in Northern
Ireland. Of the 296,000 qualifications awarded, 25 per cent were for
Application of Number compared with 39 per cent for Communication and
36 per cent for IT. A greater proportion of candidates gaining awards in
Application of Number gained their highest qualification at level 1 compared
to those only gaining level 1 in the other qualifications (46 per cent compared
to 31 per cent in Communication and 38 per cent in IT). A review of the
key skills specifications by the regulatory authorities reported to ministers in
December 2003. The revised specifications for Application of Number and
other key skills are due to take effect from September 2004.

Adult basic numeracy

3.49 Skills for Life, the national strategy for improving adult literacy and numeracy
skills in England was launched by the Government in March, 2001, and aims
to improve the basic skills of 750,000 adults by 2004 and 1.5 million adults
by 2007. The all-age National Basic Skills Strategy for Wales was launched in
2001. It is estimated that 7 million adults (1 in 5) in England cannot read
or write at the level expected of an average 11–year-old. It is estimated that
even more (perhaps 1 in 4 adults) have problems with numbers. Labour
market studies show that having level 1 numeracy skills are associated with
having up to a 4 percentage point higher likelihood of being in employment
than someone without level 1 skills, and that an individual with at least level
1 numeracy skills will earn on average between 6–10 per cent more than an
individual with numeracy skills below level 1.

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3.50 The provision of mathematics education for adults up to level 2 has been a
key component of the Skills for Life strategy. The LSC makes numeracy
provision available free to all adults irrespective of their starting point,
geographical location or learning context or setting.The strategy sets out four
strands to address numeracy deficiencies:

• to boost demand for numeracy skills by employers, providers and

learners;

• to secure the capacity to deliver improved numeracy skills

underpinned by the necessary financial resource;

• to raise standards of provision through high quality teaching and

learning;

• to ensure learner achievement in the full range of numerical skills

that underpin mathematical problem solving.
3.51 The new Adult Numeracy qualifications, which are part of the strategy, are
available at three stages of Entry level and levels 1 and 2, while AoN key
skills qualifications start at level 1. The Adult Numeracy qualifications at levels
1 and 2 are only available by taking the same external tests as those for AoN
at levels 1 and 2, respectively. In contrast, the Adult Numeracy Entry Level
qualifications have more flexible assessment procedures, offering a range of
options for different types of learners. In general, the recent unification of
the different examinations in adult numeracy seems to have been welcomed.

3.52 LSC actions so far to secure improvements in adult numeracy skills in England
include:

• with QCA, publishing national standards for adult numeracy, which

relate closely to both the key skills and the national curriculum
levels in schools;

• in 2001 publishing the national adult core curriculum for numeracy,

developed following wide consultation with key partners, teachers
and managers; it provides, for the first time, consistent
interpretations of the numeracy skills, knowledge and
understanding required in order to achieve the national standards
for adult numeracy;

• delivering a teacher training programme which has so far trained

6,378 numeracy teachers to use the new curriculum; responsibility
for the teacher training contract has now been successfully
transferred to the national LSC;

• developing a new diagnostic assessment tool for numeracy,

together with training for 6,000 teachers, with the aim of
supporting teachers in making accurate diagnostic assessments of
numeracy skills;

• developing new numeracy learning materials mapped to the

national curriculum, together with training in their use;

• setting up a national strategy to encourage volunteering in a range

of roles, include mentoring and classroom support;

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 • setting up a Pathfinder project across the English regions during
2001–2 in order to test out elements of the new teaching and
learning infrastructure.

Family programmes can also play a significant role in improving adult

numeracy skills and in fostering greater involvement between children, their
parents and their communities. The Adult Basic Skills Strategy Unit (ABBSU)
is working with the LSC, who now fund family programmes, to expand and
extend family literacy, language and numeracy provision.

3.53 In addition to the role of ICT in assessment, work has been done with
Ufi/learndirect to support the development of both literacy and numeracy
skills through e-learning. Evaluation of the experiences of adult learners who
have participated in these programmes shows that 92% find the use of ICT
motivating and most feel that ICT enables them to produce a higher standard
of work more quickly. 64 per cent of learners said that ICT helped them to
learn and in particular to concentrate. The ABBSU is continuing to work with
other agencies to develop and disseminate e-learning methods and resources
to support the development of a range of skills including numeracy.

A summary of structures, qualifications and

developments in Wales, Northern Ireland and Scotland
WALES
Lower secondary – age 11–16

Assessment at Key Stage 3 (age 11–14)

3.54 The main aspects of the National Curriculum at Key Stages 3 and 4, the
means of assessment, the structure of the National Curriculum attainment
targets, the attainment level descriptions and the expectations for attainment
by the end of Key Stage 3 are the same in Wales as in England. In the 2002
Key Stage tests, 62 per cent of pupils achieved level 5, or above, in
mathematics. In Wales, the tests, together with guidance on their use and
mark schemes are produced by the Qualifications, Curriculum and Assessment
Authority for Wales (ACCAC), which is also responsible for evaluating the
effectiveness of the assessment arrangements. The tests are marked by
external markers appointed by an external marking agency. ACCAC has also
developed the optional assessment materials (OAMs) to support teacher
assessment in selected subjects at any point during Key Stage 3. The aim of
OAMs is to lead to greater coherence in teacher assessment and provide
comparable information about pupils’ progress.

Assessment at Key Stage 4 (14–16)

3.55 The assessment arrangements in Wales are currently the same as those in
England, but we have noted that the Interim Report of the Daugherty
Assessment Review Group envisages different arrangements for assessment of
11–14 year olds in the future.

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 Assessment 16–19
3.56 The arrangements in Wales are currently the same as those in England.

Developments
3.57 In October 2002, the Welsh Assembly Government published Learning
Country: Learning Pathways 14–19, which set out proposals for 14–19
learning. This was followed by the publication of the Action Plan on 2 April
2003. One of the key proposals is that, subject to the outcome of piloting,
the Welsh Baccalaureate, which has been in pilot post–16 since September,
2003, should become a national award at Foundation, Intermediate and
Advanced levels from September 2007. Initially the Welsh Baccalaureate is
being offered post–16 at levels 2 (Intermediate) and 3 (Advanced) of the
NQF. It is being piloted with three cohorts beginning in successive years
(2003, 2004 and 2005).

3.58 The Welsh Baccalaureate contains three elements: a common Core curriculum,
with a notional time allocation of 4.5 to 5 hours per week, comprising the
six key skills, Wales, Europe and the World (including language modules),
Work-related Education (including work experience and entrepreneurship) and
Personal and Social Education (including an element of community
participation); Optional studies, with an allocation of 18 to 20 hours per
week, comprising the main programme of learning selected from existing
courses leading to qualifications in the NQF (eg GCSE, GCE, NVQ); and the
tutoring/mentoring system that links programme and student.

3.59 The Intermediate Welsh Baccalaureate will require all students to complete
the three core key skills (AoN, Communication and IT) and two of the other
three wider key skills (Improving one’s own learning and performance,
Problem-solving and Working with others, although these have not yet been
accredited to the NQF) at level 2 and obtain 5 GCSE grades A*–C, or the
equivalent. For the Advanced Welsh Baccalaureate, the student must attain
three key skills (including at least one of the core three) at level 3 and the
other three at level 2 and 2 GCE A levels grades A–E or the equivalent. This
means that all those aspiring to the Intermediate Welsh Baccalaureate will
need to have achieved Application of Number at level 2 and all Advanced
Baccalaureate students will need to have achieved it at either level 2 or 3.
Students will also be able to choose mathematics qualifications at the
appropriate levels as part of the ‘options’ component of their programme.

3.60 The Credit and Qualifications Framework (CFQW), which will offer credit for
qualifications in the NQF, will continue to be developed with a view to
progressive rollout from May 2003 until 2006 when the essential building
blocks are expected to be in place. It will be extended to reflect achievement
through prior and informal learning and of voluntary qualifications.

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 NORTHERN IRELAND
Post Primary – 11–16
3.61 The broad structure for the delivery of a statutory curriculum and assessment
arrangements for 11–16 year olds is similar to those in England and Wales
with some differences. We note, however, that schooling in Northern Ireland
starts at the age of 4, with children completing 7 years in primary before
transferring to post primary at the age of 11. Key Stages and years do not
therefore match those for England. In the Northern Ireland system: KS1 is
ages 4–8 and years 1–4; KS2 is ages 8–11 and years 5–7; KS3 is ages 11–14
and years 8–10; KS4 is ages 14–16 and years 11–12. The main strands of
mathematics in which pupils should progress at each key stage are set out
below:

Key Stages 1 and 2 Key Stages 3 and 4

Processes in Mathematics* Processes in Mathematics*
Number Number
Measures Algebra
Shape and Space Space, Shape and Measures
Handling Data Handling Data
*This pervades all other strands

Assessment at Key Stage 3 (11–14)

3.62 At Key Stage 3, statutory assessment of English, Irish (in Irish speaking
schools), mathematics and science takes the form of teacher assessment
(without moderation) and the end of key stage subject tests with parallel
reporting of both the teacher assessment and test outcomes. For mathematics,
for most tiers of entry, there are two written papers and a mental mathematics
test. The written tests, each lasting an hour, are based on the related POS
and address all the attainment targets except Processes in Maths. There are
five tiers, covering Northern Ireland Curriculum levels 3–8, with five written
papers of which two are used for each tier except tier A and two mental
tests, 1 and 2 (ie: Tier A, written paper 1 only, plus mental test 1; Tier B,
written papers 1 and 2, plus mental test 1; Tier C, written papers 2 and 3,
plus mental test 2; Tier D, written papers 3 and 4, plus mental test 2; Tier
E, written papers 4 and 5, plus mental test 2).

Assessment at Key Stage 4 (14–16)

3.63 Revised GCSE specifications, including those for mathematics, were examined
for the first time in summer 2003. Northern Ireland has the distinctive feature
of a GCSE in Additional Mathematics, which is a level 2 rather than a level
3 award, even though its content goes beyond the Key Stage 4 Programme
of Study. This is unusual in having no coursework element and is accredited
by the QCA for use in Northern Ireland only. The take up is mainly from
stronger GCSE candidates, who sit the examinations in year 12 (corresponding
to year 11 in England), sometimes in tandem with standard GCSE
Mathematics, sometimes having taken the latter the year before.

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 Assessment 16–18
3.64 Northern Ireland implemented the Curriculum 2000 reforms alongside
England and Wales. The CCEA worked with the other regulatory authorities
to revise the mathematics specifications in response to early evaluations that
indicated that the overall content of the AS Mathematics was too great.
Northern Ireland will also introduce the revised specifications for first teaching
from September 2004.

Examination Arrangements
3.65 The CCEA is both an awarding body providing, among others, GCSE, GCE
and key skills qualifications and one of the regulatory authorities responsible
for ensuring the continued availability of high quality qualifications that are
fit for purpose, command public confidence and are understood both by
those who take qualifications and those who use them. In order to ensure
that a consistent and uniform approach is taken to regulation, it works closely
with ACCAC and QCA.

Developments
3.66 A fundamental review of the Northern Ireland curriculum has been completed
by CCEA. Proposals would limit the role of statute to specifying only the
minimum entitlement of every pupil. At Key Stage 3, the statutory curriculum
would be specified in terms of: curriculum areas and not individual subjects
(although mathematics remains an area in its own right); and a common
minimum entitlement for every pupil, irrespective of future intentions. Schools
would have the flexibility to extend this entitlement to cater for the needs
of different pupils. At Key Stage 4, the proposals would mean a statutory
curriculum limited to: Skills and Capabilities (including Communication, Using
Mathematics, ICT, Problem-solving, Self Management and Working with
Others); Learning for Life and Work (including PSHE, citizenship and education
for employability); and Physical Education. There would be no requirement
in law for pupils to study any individual subject, but it would be expected
that for most pupils their programme at Key Stage 4 would continue to
consist of a range of GCSE courses, or courses leading to other appropriate
qualifications and that a course in mathematics would be amongst these.
Indeed it is proposed that all qualifications in mathematics offered to pupils
in Key Stage 4 in Northern Ireland should provide all the learning
opportunities identified for Using Mathematics and therefore that the
accreditation criteria should be altered accordingly. Once these provisions are
in place it will be necessary to change the specifications for mathematics
accordingly. This will have the effect of making it no longer necessary for
pupils to undertake additional qualifications such as Key Skills in order to
demonstrate competence in Using Mathematics. (Similar arrangements will
pertain to Communication and English). If accepted, it is likely that phased
implementation of these changes will commence in September 2005.

74
3.67 The review of the statutory curriculum has been accompanied by a review
of the statutory assessment arrangements associated with it. CCEA
recommends that the current tests in English, mathematics and science for
14–year olds be discontinued. End of key stage tests would be replaced by
a system of standardised annual reports. If the proposals are accepted, CCEA
will work with schools to explore more collaborative approaches to the
curriculum beginning with Key Stage 3 and possibly extending into Key Stage
4. Each “subject” will be asked to make relevant links to other areas. In this
scenario the nature of the mathematics being learned could then be applied
to different scenarios across the curriculum.

3.68 Arrangements are being put in place for a single managed service entitled
‘Learning Northern Ireland (LNI)’ covering all aspects of the use of ICT in
schools both for administrative and curricular purposes. One of the items of
work which may contribute to this in the future is a project in computer-
based formative assessment, partly in the area of mathematics. In this project
a facility has been developed that allows for the playback of stages of a pupil’s
work in a way that will help the pupil appreciate the processes involved.

SCOTLAND
3.69 There is no statutory national curriculum in Scotland. However, guidance is
provided by the Scottish Executive Education Department and other national
agencies.

Structure of school education

3.70 School curricula are divided into two phases: 5–14 and National Qualifications.
Following transfer from primary to secondary (at the end of year 7), the
various Scottish Qualifications Authority (SQA) examinations have traditionally
been taken at possible exit points from the school system. These are: Standard
Grade at the end of S4 (year 11), Access, Intermediate 1, Intermediate 2 or
Highers at the end of S5 (year 12), and additional Access, Intermediate 1 or
2, Highers or Advanced Highers (AH) in S6 (year 13). These arrangements
are reflected in Age and Stage Regulations, which determine the age at which
students may be assessed and receive external certification for the National
Units and Courses managed by the SQA. However, schools and other centres,
if they wish, also apply to the SQA for exceptional entry in order to present
the most able students for examination at an earlier age. These arrangements
have and are being revised to introduce more flexibility within the education
system. National Qualifications (NQs) now incorporate Standard Grades and
new National Qualifications (Access, Intermediate, Intermediate 2, Higher and
Advanced Higher), which were introduced through the “Higher Still” reforms.
The Scottish Executive’s response to the National Debate on Education (see
paragraph 3.83) also contains the commitment to consult on the future of
Age and Stage regulations.

75
3.71 National guidelines for the 5–14 curriculum and course arrangements for
Standard Grade and new National Qualifications give guidance on course
content. The new NQ courses offer a measure of choice at each level,
although all courses are based on generic maths until more advanced levels
(Higher and Advanced Higher) where specialisation is possible. University
entrance requirements are normally framed in terms of Higher awards and it
is common for school students during year S6 to gain unconditional entry
to universities on the basis of the Higher awards achieved in S5. Other
students will, during year S6, receive conditional entry to Higher Education.
Conditions usually refer to outstanding Higher awards but also sometimes
refer to Advanced Higher targets. Both schools and colleges may deliver new
National Qualifications at levels ranging from Access 1 to Advanced Higher.

Scottish Credit and Qualifications Framework

3.72 The Scottish Credit and Qualifications Framework (SCQF) provides a structure
that helps to relate qualifications at different levels ranging from Access to
Postgraduate levels. In these ways it assists learners to plan their progress and
to minimise duplication of learning. The SCQF provides a national vocabulary
for:

• describing learning opportunities and making the relationships

between qualifications clearer;

• clarifying entry and exit points, and routes for progression within
and across education and training sectors;

• increasing opportunities for credit transfer.

3.73 In the SCQF, there are 12 levels ranging from Access level 1 (designed for
learners with severe and profound learning difficulties) to level 12 (associated
with postgraduate doctoral studies). The awards and their relationship to
SCQF levels are illustrated in the table.

SCQF level Schools Schools and Colleges and

Colleges Universities
12 Doctorate
11 Masters degree
10 Honours degree
9 Ordinary degree
8 HND
7 Advanced Higher HNC/Certificate
Higher Education
6 Higher
5 Standard Grade– Intermediate 2
Credit
4 Standard Grade– Intermediate 1
General
3 Standard Grade– Access 3
Foundation
2 Access 2
1 Access 1

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 Assessment 14–16
3.74 Most pupils aged 14–16 (S3 and S4) will take a range of Standard Grade
courses. National guidance recommends that mathematics is one of the
courses that pupils study. Each Standard Grade course lasts two years and is
generally taken at the end of S4 (year 11). It has two or three assessable
elements. Assessments can take the form of an examination, coursework or
performance. The mark for each element is aggregated to give the overall
grade. Mathematics has two assessable elements: Knowledge and
Understanding and Reasoning and Enquiry. Both elements are externally
assessed by the SQA through an examination. Awards at Standard Grade are
set at three levels: Credit (grades 1–2), General (grades 3–4) and Foundation
(grades 5–6). Credit is the highest level of achievement

Assessment 16–18

“Higher Still” reforms

3.75 New National Qualifications were introduced as a result of the “Higher Still”
development programme. They are intended to provide a coherent,
progressive educational experience for all students within post–16 education.
Pupils aged 16–18 (S5 and S6) take a range of National Qualifications courses.
The number and subjects to be studied are agreed through a guided process
of negotiation between pupil and school to ensure an appropriate curriculum.
National Qualifications courses are offered at five levels:

• Access (Access 1–3),

• Intermediate 1,

• Intermediate 2,

• Higher, and

• Advanced Higher.

3.76 Advanced Higher is the highest level of achievement and normally studied in
S6. Each course lasts one year although, as courses are unit-based, a longer
period of study is possible. Almost all courses at Intermediate 1, Intermediate
2, Higher and Advanced Higher levels consist of 3 units. An internal
assessment is carried out at the end of each unit (known as a National Unit).
Each unit counts as a qualification in its own right. Pupils must pass internal
assessments in all the relevant units and then, separately, an external
assessment to attain an overall course award. The external assessment, carried
out by SQA, determines the grade (A–C) of the course award.

3.77 National Qualifications courses in mathematics cover a range of knowledge,

skills and understanding appropriate to each level of course. Topics include
problem solving, applied mathematics and algorithms. For mathematics at
Intermediate 1 and 2, students have a choice of the third unit of the course.
The normal unit 3 is designed to allow progression to the next level (so, for
example, a student with units 1, 2, 3 at Intermediate1 could go on to take
Intermediate 2 the following year). Instead of unit 3, the student can take

77
 an applications unit that gives opportunities to apply what has been studied
in suitable contexts and undertake a short project – but this unit does not
articulate with the next level. Not all schools will be able to offer pupils a
choice as each unit requires direct teaching and therefore class composition
and timetabling may also be relevant factors in the decision. At Higher level
there is again a choice of the third unit. A small minority take a statistics unit
instead of the main maths unit 3. At Advanced Higher level, there are two
courses available. Advanced Higher Mathematics consists of three units
covering a range of mathematical skills including algebra, geometry and
calculus. Advanced Higher Applied Mathematics allows students the
opportunity to study specialised areas of applied mathematics to greater
depth. From 2004–05, Advanced Higher Applied Mathematics will consist of
two units covering mechanics, numerical analysis and statistics and a third
unit of broad content drawn from the Advanced Higher Mathematics course.

3.78 The Scottish Executive considers that the end result of the new NQ courses
is that, at each level, schools and students have a wider range of awards
available to them and an appropriate choice of courses, while at the same
time users of the resulting awards can have confidence about the content of
the courses that students will have studied. For mathematics, by far the most
common routes for entry to Higher Education are Higher Maths and then,
for some students additionally Advanced Higher Maths. Lecturers in HE should
not therefore have to contend with a wide range of mathematical background
if their classes consist mainly of school leavers.

Core Skills
3.79 Numeracy is one of five Core Skills within the Scottish Qualifications
Framework: the others are Communication, Problem Solving, Working with
Others and Information Technology. The core skill of numeracy is defined as
follows: “To cope with the demands of everyday life, including work and
study, people need to be comfortable with numbers and at ease with graphs,
symbols, diagrams and calculators. The skills needed are essentially those of
interpreting, processing and communicating quantifiable and spatial
information.” Numeracy is regarded as having two components. The first,
Using Graphical Information, is described in terms of students progressing from
working in familiar, everyday contexts to more abstract contexts where
analysis is needed in order to arrive at decisions and communicate
conclusions. The second, Using Number, involves the ability to apply a range
of numerical and other relevant mathematical and statistical skills in everyday
and more abstract contexts.

3.80 All National Qualifications have been audited against the SQA’s Core Skills
Framework to determine which core skills are embedded within the
assessment arrangements for each unit and course and at what level. Students
achieving unit and course awards are automatically certified for the core skills
covered by those units and courses. Students also have the option of achieving
core skills through dedicated core skills units. These can be achieved in a
number of ways – by following a programme of study leading to assessment,

78
 by developing a portfolio of evidence or by taking specially designed
assessments at an agreed or negotiated time. SQA will be consulting
stakeholders in summer 2004 on the future development of all arrangements
for assessing and certifying core skills.

Pace and Progression

3.81 As indicated in paragraph 3.70, the Scottish Executive is encouraging schools
to think imaginatively and flexibly about how to maximise educational gain
for all students. A circular issued in 2001 noted that new National
Qualifications offer coherent progression routes between qualifications, some
schools may decide to replace some or all Standard Grade provision with
these course if appropriate and in accordance with Age and Stage regulations.
So far, most schools have not taken full advantage of these new opportunities
although some are planning to improve progression routes, for example by
moving to Intermediate in S3/4 to improve chances of progression in S5/S6.
Initiatives tend to be aimed at mathematically weaker pupils with a view to
improving the phasing of work and letting pupils reach a higher level of
attainment than previously, albeit at a relatively slow pace. There is less
interest in accelerating the most able students as Higher in S5 is still seen as
a challenging level for most pupils to reach only a year after Standard Grade
in S4.

Examination Arrangements: Role of SQA

3.82 The SQA is the national body in Scotland responsible for the development,
accreditation, assessment, and certification of qualifications – other than
degrees – and was established under the Education (Scotland) Act 1996, as
amended by the Scottish Qualifications Authority Act 2002.

SQA’s functions are to:

• devise, develop and validate qualifications, and keep them under

review;

• accredit qualifications;

• approve education and training establishments as being suitable

for entering people for these qualifications;

• arrange for, assist in, and carry out, the assessment of people taking
SQA qualifications;

• quality assure education and training establishments which offer

SQA qualifications;

• issue certificates to candidates;

• provide the Scottish Ministers with advice in respect of any matter

to which its functions relate.

SQA is also responsible for developing and distributing 5–14 National Tests
to schools as part of the Government’s 5–14 Programme.

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 Developments
3.83 Overall, evidence to the Inquiry suggests there is thought to be congruence
between stages with the new National Qualification awards in S5/S6 as they
have been designed to articulate well with each other and with Standard
Grade courses in S3/S4. There is thought to be a lack of congruence between
levels A–F within the 5–14 curriculum and Standard Grade/NQs. Level F was
designed to articulate to an extent with Intermediate 2, and early in the life
of 5–14 some ‘mapping’ was done to identify overlaps between 5–14 and
Standard Grade, but this was never completed. Action is underway to address
this. The Scottish Executive issued in 2002 National Statements for Improving
Attainment in Literacy and Numeracy in Schools. Two national Development
Officers have been appointed to support education authorities and schools
in making most effective use of the Statements and working with them to
improve literacy and numeracy. The remit of the new Numeracy Development
Officers includes assisting in the monitoring of good practice in improving
progression routes from S1/S2 mathematics courses through S3/S4 and into
S5/S6.

3.84 A National Debate on Education was held in Scotland in 2002. The Scottish
Executive’s response to the National Debate includes establishing a single set
of principles and a framework for the whole curriculum through pre-school,
primary and post-primary, looking forward to lifetime learning. Other
commitments include consulting on the future of the Age and Stage
regulations, addressing the relationship between Standard Grade and new
National Qualifications and reducing the amount of time spent on external
examinations, including the option of sitting examinations only when leaving
school instead of every year from S4.

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4 ACTION ON CURRENT AND FUTURE
MATHEMATICS PATHWAYS
The Working Group on 14-19 Curriculum and
Qualifications Reform
4.1 The Post-14 Mathematics Inquiry has proceeded in parallel with the work of
the Working Group on 14-19 Curriculum and qualifications reform in England,
chaired by Mike Tomlinson. In its Interim Report in February 2004
(DfES/0013/2004), the Working Group outlined broad proposals for the phase
of 14-19 learning, including the development of a new diploma framework
that would cover the whole of the 14-19 learning programme. The Interim
Report includes proposals to move away from the existing age-related
qualifications to a system offering more opportunities for students to achieve
qualifications in their own time and at their own ability and aptitude level,
while offering coherent pathways of progression. Such a framework should
provide candidates with opportunities to demonstrate and record specific
mastery of skills and topics rather than recording overall levels of success or
failure. A key feature of the Tomlinson proposals is a single 14-19 learning
continuum in place of the current perception of 14-16 and 16-19 as two
distinct phases.

4.2 The Working Group proposals will encourage more students to obtain level
3 qualifications. So far as mathematics is concerned, the proposals incorporate
the possibility of more specialist study of mathematics beyond a mandatory
core of foundational mathematics. Although the Mathematics Inquiry has
proceeded independently from the Working Group on 14-19 Reform, the
Inquiry has found there to be a strong consensus within the mathematics
community in favour of a diploma type of approach to qualifications.

4.3 So far as mathematics is concerned, the Post-14 Mathematics Inquiry agrees

with the 14-19 Working Group’s conclusion that the present qualifications
framework is in need of a radical overhaul. The first part of this chapter will
discuss in detail the concerns expressed to the Inquiry about the current
framework. This will lead us to make specific short- and medium-term
recommendations regarding the current framework. We see these not only
as important steps towards improving the current structure, but also as
contributing to a longer term direction of travel, compatible with the
Tomlinson notion of progressive pathways, each with its own mathematical
components. We see some version of the latter as the key to providing a
structure whereby all students have access to a relevant mathematics pathway
appropriate to their learning needs, and relevant to end destinations in the
workplace, or continuing education, post-19. In the view of the Inquiry,
mathematics should be seen as an integrated whole when designing 14-19
pathways. We begin with a review of concerns with the current structure.

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Current concerns over GCSE Mathematics in England
4.4 The Inquiry has no doubt that, compared with the previous O-level/CSE
structure, GCSE Mathematics has been beneficial to many more students and
has provided them with an adequate background for further study in the
subject. However, respondents to the Inquiry have raised a number of serious
concerns, which the Inquiry believes to be well founded.

4.5 In GCSE Mathematics, only about 50 per cent of the candidature achieves
the iconic ‘pass’ grades A*-C. Many repeat GCSE to try to improve their
grade, having failed to reach at least a C grade first time round at age 16.
There do not appear to be easily accessible data on resit performance, but
respondents to the Inquiry report that a significant number of resit candidates
do not achieve an improved grade. More generally, far too few young people
in England achieve level 2 qualifications in mathematics and England seriously
lags behind its European competitors in this respect.

4.6 Whilst accepting that the decision to have a three-tier arrangement for
mathematics was made with the best of intentions, respondents to the Inquiry
have overwhelmingly expressed grave concern that GCSE mathematics is now
the only GCSE subject where a grade C is not accessible on all the tiers. In
the light of concern expressed about the three-tier structure, the regulatory
bodies have given further consideration to appropriate assessment
mechanisms and is running a pilot of a two tier GCSE examination in
mathematics with OCR.

4.7 The pilot scheme has three examination papers and all candidates sit a
combination of two of these. Candidates studying the Foundation PoS are
entered for Paper 1 (targeting grades E-G) and for Paper 2 (targeting grades
C-D). Those studying the Higher PoS are entered for Paper 2 and for Paper
3 (targeting grades A*-B), but could be entered for Papers 1 and 2 if they
are having difficulty with the course. Every student therefore has access to a
grade C and there will be only one route to each grade. The pilot will run
through two complete cycles. The first examinations took place in June 2003
and there will be a second round in June 2004. Ministers will be notified of
outcomes and advised of any proposed changes in December 2004. Any
modification of the current arrangements in England will require Ministerial
approval.

4.8 The Inquiry has been informed that the QCA would wish to see this two-tier
assessment structure become the standard examination structure for GCSE
Mathematics within a few years. The assessment structure would then mirror
the revised curriculum structure, a correspondence that many respondents
clearly believe to be important. We believe that this was the original intention
at the time of the 1999 revision of the curriculum, but was shelved on the
grounds that such additional change to the system would be have been too
disruptive at that time. The majority of respondents to the Inquiry seem to
believe that most teachers would now welcome the shift to two-tier
examining as fitting in more naturally with their curriculum planning and

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 setting into cohorts for the Key Stage 4 Higher and Foundation Programmes
of Study.

4.9 The three-tier assessment structure does not mirror the two-tier structure of
the revised curriculum. Moreover, the existing three-tier arrangement for
assessing GCSE Mathematics disbars about one third of candidates from
having access to a grade C. Since grade D is the highest grade achievable
on the Foundation Tier papers, respondents report that many students feel
themselves to have been classed as “failures” by their teachers before they
even start the course. The Inquiry shares this concern. Rightly or wrongly,
public opinion – no doubt much influenced by school league tables – has
come to regard a grade C at GCSE as a minimal acceptable level of
attainment. It therefore seems to the Inquiry totally unacceptable to be
entering some 30 per cent of the age cohort into a tier in which “externally
perceived success” (ie grade C) is unattainable whatever the level of
achievement.

4.10 The existing arrangements for assessing GCSE Mathematics allow raise issues
regarding the interpretation of GCSE grade B. This grade can be awarded
both on the Intermediate Tier papers and also on the Higher Tier papers.
However, respondents are clear that the algebraic and geometric content
associated with the Intermediate Tier is significantly less than the algebraic
and geometric content associated with the Higher Tier and that this means
that there cannot be an unambiguous interpretation of GCSE grade B in
mathematics. In particular, there is concern in relation to preparedness for
AS/A-level mathematics. Many clearly feel that, without some form of bridging
course, candidates obtaining a grade B in mathematics on the Intermediate
tier have an inadequate basis for moving on to AS and A2. They have had
too little fluency in algebra and too little routine practice with reasoning about
geometric properties and relations.

4.11 However, it has been put to the Inquiry that the tactical behaviour of schools
and pupils is being influenced by the perception that it is easier to get a
grade B for GCSE mathematics by being entered for the Intermediate Tier.
We have been informed that when grade B was first introduced as a possible
outcome on the Intermediate Tier, entries for the Higher Tier fell from nearly
30 per cent to about 15 per cent of the candidate cohort and have remained
relatively stable since then. The Inquiry finds these consequences of the
current arrangements to be worrying, both in terms of the interpretability of
grades and the perverse incentives it provides for placing pupils on
educationally inappropriate pathways. We suggest that those piloting the two-
tier system take on board these concerns.

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4.12 The GCSE Mathematics examinations in summer 2003 were the first to assess
the revised two-tier curriculum. Anecdotal evidence to the Inquiry indicates
that the new coursework regulations have caused some problems to some
teachers and pupils. It may also be the case that teachers may not have fully
acquainted themselves with the content of the Higher PoS. The Inquiry is not
in a position to properly assess the new two-tier initiative or the two-tier
assessment, but nevertheless believes that serious consideration should be
given to moving to a two-tier structure.

Recommendation 4.1

The Inquiry recommends that, subject to the present pilot being fully and successfully
evaluated, immediate consideration be given by the QCA and its regulatory partners to
moving as soon as is practicable to a two-tier system of overlapping papers for GCSE
Mathematics in England, Wales and Northern Ireland. The Inquiry recommends that the
regulatory authorities try to recruit more schools and colleges to take part in pre-
implementation piloting after summer 2004.

4.13 Many respondents clearly feel that mathematics is not rewarded sufficiently
at level 2 in comparison to English and science and this is also reflected in
responses given in focus groups organised by QCA on behalf of the Inquiry.
It is widely believed by pupils and teachers that the amount of effort required
to achieve a single GCSE award in Mathematics is similar to the amount of
effort required to gain the two awards in English Language and Literature or
to gain a Double Award in Science. There is a widespread concern that this
is adding yet further to the perception of mathematics as a disproportionately
hard subject and may be adversely affecting pupils’ subsequent choices post-
16. The Inquiry believes that this to be a serious issue and supports the view
that serious consideration should be given to making a double award available
for mathematics for the higher tier route (either in the current structure, or
in a revised two-tier structure).

4.14 We acknowledge that consideration needs to be given as to how to do this

so as to ensure that such a double award is on a par with the double award
for GCSE Science. The Inquiry has not had the time or resources to provide
detailed practical recommendations regarding the necessary curriculum
and/or assessment adjustments required (in either the two-tier or three-tier
structures). However, we would wish to make the following clear
recommendation.

Recommendation 4.2

The Inquiry recommends that, at the earliest possible opportunity, consideration should
be given by the QCA and its regulatory partners to re-designating GCSE Mathematics,
appropriately modified if necessary, to merit a double award at level 2. This re-designation
should be considered in tandem with the possible move to a two-tier system (see
Recommendation 4.1).

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4.15 Many respondents have expressed serious doubts about the value of GCSE
mathematics coursework, in particular the data-handling component. There
is concern that current requirements lead to a rather artificial approach to
analysing and interpreting data, rather than encouraging substantive
involvement with “real life” problems. There is also concern over the
comparatively large amount of time spent on GCSE coursework in relation
to the amount of timetabled time for the subject itself. We are aware that
the QCA has amended the coursework marking criteria in response to
perceived teething troubles, but the Inquiry still feels that there is sufficient
concern to merit a review of current requirements. This needs to be
considered alongside Recommendation 4.4.

Recommendation 4.3

The Inquiry recommends that there should be an immediate review by the QCA and its
regulatory partners of the quantity of coursework in GCSE mathematics and, in particular,
the data handling component, with a view to reducing the amount of time spent on
this specific element of the course. (See, also, Recommendation 4.4)

4.16 More generally, there has been considerable disagreement among

respondents regarding the appropriate treatment of the Handling Data strand
of the PoS for Key Stage 4 (Higher). Basic Probability is clearly seen as part
of the mathematics core, but some have argued that Handling Data should
be absorbed into the using and applying mathematics strands in number and
algebra and in shape, space and measures. Others have argued that the roles
of Statistics and Data Handling are so fundamentally important, both in other
disciplines and in the workplace, that, in the long term, these topics need
to be found their own timetable niche – perhaps embedded in the teaching
of other disciplines – rather than taking up a substantial part of the
mathematics timetable that used to be available for practice and
reinforcement of fluency in core mathematics techniques. In addition, the
function of GCSE Statistics is thought by many respondents to be unclear.
The majority view is that it is not sensible for pupils who achieve a good
GCSE Mathematics pass in year 10, or earlier, either to discontinue the study
of mathematics altogether in year 11 or to study GCSE Statistics as an
additional GCSE replacing formal study of mathematics in this year.
Conversely, it is suspected that some pupils are entered for GCSE Statistics
because it is seen as a softer option than GCSE Mathematics itself in terms
of grade attainment, rather than for sound educational reasons.

4.17 The Inquiry strongly believes that knowledge of Statistics and Data Handling
is fundamentally important for all students and would wish to see these topics
continue to be given due emphasis and timetable allocation. However, we
believe it would be timely – in the context of a radical re-think of future 14-
19 mathematics pathways within the general structure that may emerge
following the 14-19 Working Group review – to reconsider the current
positioning of Handling Data within the GCSE mathematics timetable, where

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 it occupies some 25 per cent of the timetable allocation. Many respondents
believe the current mathematics curriculum at Key Stage 4 to be overloaded.
We have no doubt that much of the concern expressed to us about the
perceived decline of fluency with core mathematical operations reflects the
pressure on the mathematics timetable that has resulted from the inclusion
of this significant element of Handling Data.

4.18 We have also received a number of responses arguing that the teaching and
learning of Statistics and Data Handling would be greatly enhanced if they
were more closely integrated with the other disciplines that rely heavily on
these topics, such as biology and geography. We support this view and believe
it to be timely to begin to review this issue in the context of the general
philosophy of the approach to 14-19 learning programmes emerging from
the Tomlinson review. This prompts our next recommendation, which should
also be considered in the context of our longer-term recommendations about
future pathways set out later in this chapter.

Recommendation 4.4

The Inquiry recommends that there should be an immediate review by the QCA and its
regulatory partners of the future role and positioning of Statistics and Data Handling
within the overall 14–19 curriculum. This should be informed by: (i) a recognition of the
need to restore more time to the mathematics curriculum for the reinforcement of core
skills, such as fluency in algebra and reasoning about geometrical properties and (ii) a
recognition of the key importance of Statistics and Data Handling as a topic in its own
right and the desirability of its integration with other subject areas (see, also,
Recommendation 4.11).

4.19 In terms of usable skills, although GCSE grade C is the minimum societal
expectation, evidence to the Inquiry suggests that employers are often less
than happy about the mathematical abilities of recruits with GCSE, even when
the grade obtained is at least a C. The perception of the level of mastery
signified by a grade C has been further damaged by the claim in an article
in the Daily Express in the summer of 2003 that some students were achieving
the grade on the basis of 15 per cent raw marks. More generally, evidence
to the Inquiry and the findings of the report Mathematical Skills in the
Workplace suggest that GCSE Mathematics itself now seems to many
employers to be an inadequate preparation for the growing mathematical
needs of the workplace. The perception is that students are learning most of
their mathematics in a vacuum, with little attention given to any sort of
mathematical modelling, or to a range of problems set in real world contexts
and using real data. In addition, the report Mathematical Skills in the Workplace
makes clear that there is serious concern that students have little exposure
to how ICT can be used to enhance each of these aspects of mathematics,
even though employers today increasingly want a combination of
mathematical skills harnessed to ICT skills. In terms of the appeal of the subject
to students, evidence from focus groups run by the QCA for the Inquiry
reveals that for many students, GCSE Mathematics seems irrelevant and

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 boring and does not encourage them to consider further study of
mathematics. At the same time, many respondents have impressed on us the
dangers of also losing the attention and interest of some of the most able
because of the perceived lack of depth and challenge in the standard
curriculum.

4.20 The Inquiry is acutely aware of the dangers of diluting the essence of the
discipline of mathematics by inappropriate attempts to make everything
immediately “relevant” and by the use of clearly unrealistic versions of “real”
problems. That said, we believe that the time has come for a radical re-look
at longer-term options for 14-16 mathematics provision that do provide
sufficient appropriate pathways for those who need motivating more through
perceived practical relevance. We shall later make recommendations directed
at beginning this process. In the meantime, we believe that there is an
immediate action to be taken in relation to the needs of the most
mathematically able.

4.21 The Inquiry believes that it is vitally important to provide appropriate

challenge for the mathematically more able and motivated. We also accept
the view of the overwhelming majority of respondents to the Inquiry that
current provision is failing in this respect. Some respondents to the Inquiry
have suggested that the more able students should be catered for by
accelerating their exposure to material covered at higher qualification levels.
The overwhelming majority of respondents disagree. The prevailing view is
that what is required is deeper challenge and exposure to more open-ended
problem solving with material from the student’s current qualification stage.
The Inquiry supports this latter view. We have an open mind about whether
such provision should be statutory and whether it should lead to a formal
qualification.

Recommendation 4.5

The Inquiry recommends that the QCA and its regulatory partners should be funded to
develop an extension curriculum and assessment framework for more able pupils at Key
Stages 3 and 4. This extension curriculum should be firmly rooted in the material of the
current Programmes of Study, but pupils should be presented with greater challenges.
These should involve harder problem solving in non-standard situations, a greater
understanding of mathematical inter-connectedness, a greater facility in mathematical
reasoning (including proof) and an ability to engage in multi-step reasoning and more
open-ended problem solving (see, also, Recommendation 4.11).

FSMQs and AS Use of Mathematics: concerns over key

skills and Application of Number (AoN)
4.22 The Inquiry also believes that the action is vital to provide appropriate
challenge and motivation for those who need and want to continue the study
of mathematics post-16, but are primarily motivated by seeing the relevance
of mathematics in the context of a range of real-world applications. In this

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 connection, many respondents have indicated to the Inquiry that there is
insufficient awareness and use of the FSMQs and AS Use of Mathematics
qualifications. In particular, respondents have indicated that there is scope for
more level 2 FSMQs, to cover a wider spectrum of mathematics. In particular,
it is argued that a level 2 Use of Mathematics should be developed along
lines similar to the existing AS Use of Mathematics. The Inquiry has not had
the time or resources to consider this in depth. However, we do believe it
would be timely to conduct a review of all these issues and we suggest a
way forward in Recommendation 4.7.

4.23 Despite the rapidly increasing numbers making use of FSMQs, take up remains
comparatively small. Despite some very positive reports, the Inquiry does not
feel that there is sufficient experience of their use for it to be able to judge
clearly the merits or otherwise of the current portfolio of FSMQs. However,
the Inquiry has become aware of a number of seemingly unnecessary current
obstacles to delivery and further take-up. These include:

• the difficulty of promoting FSMQs in institutions with small class

numbers of students; currently, there is better take up in Colleges
of Further Education and Sixth Form Colleges than in secondary
schools;

• a lack of awareness of FSMQs among some parents, employers and

admissions tutors in higher education institutions;

• the possible difficulty of obtaining funding for teaching; in FE

colleges, it is not possible to claim funding for both Application of
Number and FSMQs; the Inquiry is not able to judge whether
reported shortages of funding for tutorials, key skills and
enrichment reflect local management decisions, or result from
national LSC funding rules.

4.24 The Inquiry accepts that prima facie FSMQs have much to offer, particularly
in the context of a re-design of 14-19 mathematics pathways. It would
therefore clearly be highly desirable to have greater experience of their use
as part of the process of working towards a richer portfolio of 14-19 pathways.
However, we accept that this is unlikely to happen without at the very least
a concerted campaign to raise the profile and acceptance of these
qualifications. More generally, we are concerned that provision of Application
of Number has not been developed within a coherent framework together
with FSMQs and AS Use of Mathematics. We are concerned about this
potentially lack of coherence and believe that it would now be timely to
review this whole portfolio of provision as a prerequisite to the re-design of
more practically oriented pathways within a new 14-19 structure. A specific
way forward is detailed in Recommendations 4.6 and 4.7.

4.25 The Inquiry has received a significant number of responses raising serious
concerns about the implementation of the key skills agenda and particularly
the AoN component. While there are doubtless instances where successful
implementation is taking place, the messages we have received are
overwhelmingly negative. The Inquiry is aware of the danger of being over-

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 influenced by strongly expressed views and is conscious of the fact that it
has had neither the resources nor the expertise to conduct independent
studies or surveys in relation to many of the issues raised. However, the
messages have been consistent enough for us to be convinced that this whole
area requires at the very least a thorough and radical review.

4.26 One key issue around the delivery of AoN has been whether delivery should
be separate or integrated with the students’ other courses, particularly those
of a vocational nature. The Inquiry shares the view of many respondents that
for many students at this stage of their education, particularly those who
have made firm vocational choices, integration of the mathematics with the
vocational subject would be highly desirable. In practice, however, evidence
to the Inquiry makes clear that many teachers on non-mathematical courses
have found it very difficult to provide satisfactory delivery of AoN. Many
teachers of vocational subjects who are not mathematics specialists are not
confident in their understanding of how mathematics can be used to enhance
their own areas of work. They typically have even less confidence in teaching
mathematics to their students, who also work from a very low level of
mathematical understanding. This seems to be especially true of students on
Modern Apprenticeships. Many of these students may need to address
problems with their basic numeracy skills before moving on to AoN. The Skills
White Paper in England announced that the services provided by the Key
Skills Support Programme will continue to be available to practitioners in
schools, colleges and work-based training from 2004-05. The Inquiry
acknowledges the efforts that are being made here, but continues to be
concerned that the issue of the vocational teachers’ actual skills and
confidence levels in mathematics are not being fully addressed.

4.27 We understand from respondents to the Inquiry that, in practice, in most FE

Colleges the delivery of AoN is currently the responsibility of specialist
mathematics staff, many of whom would regard themselves better employed
teaching other aspects of mathematics where their specialist skills are more
crucial. Where this is the case, this has clearly resulted in tensions for local
managers in reconciling teacher preferences and learners’ needs and
effectively deploying specialist teaching resources. Such tensions have often
been difficult to resolve, although in many cases local solutions have been
found. In some cases, mathematics specialists have shared the teaching load
with vocational or other subject specialists. In others, specialist teachers have
provided a resource to support and advise other teachers. Overall, however,
the Inquiry is clear that there is a continuing serious short-term problem with
teaching delivery of AoN. We cannot see an immediate solution. However,
longer-term we believe that effective support for integrated delivery and for
enhancing the mathematical and mathematics teaching skills of specialists in
vocational subjects can and should be provided through the national
infrastructure for the support of teaching of mathematics. (See, Chapters 5
and 6.)

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4.28 Separate from the issue of teaching delivery, many respondents to the Inquiry
are concerned that the mathematical content of AoN is too narrow; in
particular, there is concern about what is seen as the superficial approach to
the component relating to collecting and interpreting data. The narrowness
of the content doubtless reflects the original conception of limiting the
mathematics to core numeracy in order not to burden students with
unnecessary content. However, the concern has been raised that this may
have resulted in the too rigid exclusion of closely related and relevant
mathematics that in many cases would help individual students with their
vocational specialisms and other studies. This, in turn, is seen as an obstacle
to students fully appreciating the relevance of application of number element
of key skills to their interests and course of study. The Inquiry notes this
widespread concern, but has not had the resource or expertise to make a
definitive judgement.

4.29 There has been some concern that some of the requirements of portfolios
have made them difficult to complete. Also, there are concerns that the form
in which evidence is required may often be too structured and inflexible. This
current inflexibility, together with problems of integrated teaching delivery
referred to above, is felt to lead in many cases to poor integration of key
skills and to encourage stand-alone key skills activities. We note, also, that
concern about the external tests for AoN has been voiced by representatives
of those involved in delivering the the work-based route. In particular, it has
been argued that the tests are too academic. The Inquiry notes that the Skills
White Paper measures represent a response to these and other concerns about
the key skills external tests. The measures offer support for key skills teaching
and learning, more accessible assessment and more equitable funding. The
Inquiry notes that the QCA and its regulatory partners have taken these views
into account in their recent review. As a result of the review, the key skills
assessment arrangements will remain unchanged in England, with a
continuing use of both test and portfolio evidence. In Wales, assessment from
September 2004 will be based on a portfolio only model. In Northern Ireland,
an operational pilot of a portfolio model with a task-based external element
will be implemented from September 2004. A further important factor in the
appeal and value of key skills qualifications has been, and will continue to
be, the attitude of universities. The current position is that some 33 per cent
of the total of 45,974 courses on offer in HE for entry in 2003 accepted the
key skills tariff points.

4.30 Another concern communicated to the Inquiry is that the AoN qualifications
lead to a serious distortion of the way in which qualifications are deemed to
be equivalent to each other. AoN can be taken at levels 1-4 in schools, Sixth
Form Colleges and in Colleges of Further Education. Level 3 AoN is only a
small subset of the of the mathematics provision at the level 2 end of GCSE
Mathematics. Similarly, level 2 AoN is only a very small subset of the entirety
of mathematics at the level 1 end of GCSE Mathematics. However, the
impression has been given that level 2 AoN can be thought of as equivalent
to a GCSE ‘pass’ in Mathematics and that a level 3 AoN can be thought of
as mathematical attainment beyond GCSE. Respondents to the Inquiry are

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 clear that GCSE Mathematics and level 2 AoN are not fully equivalent in
mathematical content and should not be thought of as equivalent on this
basis. From the perspective of having an unambiguous understanding of
mathematics qualifications, we therefore accept that there is a problem in
both GCSE and level 2 AoN being defined as level 2 qualifications. In the
same way, level 2 AoN is not nearly as mathematically demanding as a level
2 FSMQ. The fact that AoN demands are not appropriate at their stated level
of the NQF is seen by a number of respondents as potentially bringing the
framework into disrepute. They note that the level 3 AoN qualification
contains no mathematics above the equivalent of grade B GCSE, and only
one item at that level; they also note that the mathematics of the AoN level
3 qualification corresponds to the bottom end of level 2. This leads to
considerable confusion amongst users, who, not unnaturally, assume that all
mathematical qualifications at level 3 include mathematical material at the
same level. Respondents also views with concern the Universities and Colleges
Admissions Services (UCAS) tariff of 20 points for level 3 AoN. This is the
same tariff as for grade A performance on a level 3 FSMQ, which does
represent genuine mathematics achievement at this level. Decisions on the
current allocation of qualifications to levels within the NQF are the statutory
responsibility of the regulatory authorities. This prompts the following
recommendation.

Recommendation 4.6

The Inquiry recommends that QCA and its regulatory partners undertake a comparative
review and make appropriate re-designations as necessary, to ensure that claimed
equivalences of levels of mathematics qualifications are well founded.

4.31 In our increasingly technological and information-rich society, mathematical

skills are becoming more and more important. Rather than decreasing the
need for mathematics, as evidenced in the Mathematical Skills in the Workplace
report, the rise of information technology has increased the range of
mathematics needed to perform competently in the workplace. The majority
of respondents are clear that AoN does not deliver the full range of
mathematical skills and knowledge that this report shows to be essential in
the work-place across many important sectors of the modern economy. The
Inquiry accepts this, but, in fairness to the developers, also recognises that
AoN was not designed to achieve these ends. However, the fact remains that
evidence to the Inquiry from focus groups organised by QCA on behalf of
the Inquiry makes clear that AoN is disliked by many students and by many
provider institutions and that there is a widespread perception – which the
Inquiry reports rather than endorses – that being in possession of an AoN
qualification rarely results in candidates having transferable mathematics skills
of any worth. Some respondents to the Inquiry have been much more positive
about the extent to which FSMQs have the potential to impart worthwhile,
transferable mathematical skills. In view of the limited take up thus far of
FSMQs, we can again only report, rather than endorse, this perception.

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4.32 The Inquiry has also been told that present funding regimes for colleges create
greater incentive to provide AoN at the expense of FSMQs. If this really reflects
national LSC funding rules rather than local management decisions, this would
seem to the Inquiry to be a somewhat perverse incentive. Piecemeal
development has led to patchy provision at levels 1 and 2 and we are
persuaded that it is unhelpful to consider numeracy and AoN to be distinct
from mathematics itself. There is a need for a more coherent and
comprehensive approach. Currently, in FE colleges both the provision of AoN
and the widespread use of GCSE resits stand in the way of such an approach.
Gaps and overlaps in mathematics provision and qualifications at levels 1-3
were reviewed by the QCA in 2002 and the findings made available to the
Inquiry. The Inquiry believes that it would now be timely to ask the QCA and
its regulatory partners to extend this work into a general review of problems
with the delivery, content and assessment of AoN and the availability to
students of FSMQs and AS Use of Mathematics, with a view to feeding into
work on the design of future 14-19 mathematics pathways. This would also
provide an opportunity to explore and promote greater use of ICT in the
delivery of future developments of these courses.

Recommendation 4.7

The Inquiry recommends that the QCA and its regulatory partners undertake an immediate
review of current problems of delivery, content, assessment and availability of courses at
levels 1– 3 provided by FSMQs, AS Use of Mathematics, AoN and Adult Numeracy. The
aim of the review should be to identify scope for improvements in and potential
rationalisation of this provision, including opportunities for more systematic integration
of ICT in teaching and learning, as part of the longer-term design of a new 14–19 pathway
structure for mathematics (see, also, Recommendation 4.11).

Concerns relating to GCE Mathematics

4.33 Although GCE has historically been regarded in some quarters as a gold
standard, there have been a number of serious concerns for some time. The
Dearing Reforms tried to give more rigour to A-level mathematics and tried
to demand prerequisite achievement at the upper end of GCSE Mathematics.
However, respondents to the Inquiry have overwhelmingly reported that some
of the Dearing recommendations, especially those of a more generic nature
reflected in the Curriculum 2000 AS plus A2 model, have had very negative
consequences for mathematics. The Inquiry is convinced that the serious
problems for Mathematics in 2001 and the subsequent two years arose
because the curriculum model imposed for all subjects worked to the detriment
of mathematics. The numbers of students studying A-level Mathematics
decreased within one year by 20 per cent as a direct result of the
implementation of Curriculum 2000 and has stayed at this level the year after.

4.34 In the view of the Inquiry, the seriousness of this cannot be underestimated.
The numbers continuing with GCE mathematics post-16 provide the supply
chains for mathematicians, statisticians, scientists and engineers in higher

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 education, research and employment. This supply chain is key to the strategy
for tackling the problems identified in SET for Success, as well as providing
an increased supply of future qualified mathematics teachers. It is vital that
ways be found to restore the numbers not only to the levels of two years
ago, but to increase them significantly. Far too few achieve level 3
qualifications in mathematics in England and Wales.

4.35 Respondents have also wished to challenge the current arrangement whereby
GCE mathematics attracts the same UCAS tariff as any other GCE at either
AS or A-level. This is seen as unhelpful on two counts. First, there is clear
evidence that mathematics does not present a level playing field in terms of
attaining grades and a clear perception that mathematics is hard. It is argued
that an incentive is needed to counteract this. Secondly, mathematics is
unique in providing the key underpinning of so many other disciplines. It is
argued that this needs to be formally recognised in order to encourage greater
involvement with mathematics post-16. In particular, it is noted that the AEA
in Mathematics currently attracts no UCAS points at all thus providing no
incentive to enter for the qualification other than for love of the subject itself.
We understand that UCAS are currently reviewing this issue.

Recommendation 4.8

The Inquiry recommends that the effects of the introduction of the revised specifications
for GCE be closely monitored by the QCA and its regulatory partners as a matter of high
priority and that funding be made available to support this. If there is no significant
restoration of the numbers entering AS and A2 mathematics within the next two or three
years, the Inquiry believes the implications for the supply of post–16 qualified mathematics
students in England, Wales and Northern Ireland to be so serious that consideration should
be given by the DfES and the relevant devolved authorities to offering incentives for
students to follow these courses. One possible form of incentive could take the form of
financial incentives to HEIs to include AS or A-level mathematics as a prerequisite for
certain degree courses. Another possibility might be to offer financial incentives directly
to students following such course in HEIs, possibly through fee waivers or targeted
bursaries.

4.36 In addition to these considerable concerns about the organisation of the

curriculum and the serious effects of the Curriculum 2000 changes, there are
also serious concerns about the frequency of assessment of material in GCE
AS and A-level Mathematics. This is felt by many respondents to hinder the
development of the learning and understanding of mathematics at this level.
It is the consensus view that far too much time is devoted to examinations
and preparing for examinations – “teaching to the test” – and that this is at
the expense of the understanding of the subject itself. Many identify the
problem as the splitting of the subject matter of A-level mathematics into six
separately examined modules. This is seen as having the effect of splintering
the unity and connectedness of the mathematics to be learned at this level.
It is felt that this fragmented presentation makes it virtually impossible to set
genuinely thought-provoking examination questions that assess the full range
of mathematical skills. It is also felt that the style of short examination papers

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 results in a race against the clock that adversely affects weaker candidates.
We are aware that the criteria for GCE mathematics have just been reviewed
and changed, and we appreciate that there is a natural desire for some
stability in the system. However, we have received such strong representations
on this issue that we nevertheless make the following recommendation.

Recommendation 4.9

The Inquiry recommends that the QCA and its regulatory partners conduct an immediate
review of the frequency and style of current GCE assessment, with a view to reducing
the time spent on external examinations and preparation for examinations.

4.37 In terms of student choices and the general perception of the subject, AS
and A-level Mathematics are the mainstream qualifications available at this
level, but do not attract enough students to study some level 3 mathematics
in post-compulsory education. Many respondents have commented that the
distribution of grades for A-level mathematics presented in Chapter 3 suggests
that the more able students entered for A-level mathematics are insufficiently
challenged and the least able are frequently overstretched. In the majority of
subjects, the distribution of A-level grades is roughly bell-shaped with relatively
few candidates at the extreme grades A or E. However, historically in A-level
mathematics, grade A is the modal grade and the distribution of grades is
virtually a straight line down to the lower grades. In terms of students’ and
teachers’ perception of the subject, many respondents believe that, for other
than the mathematically clearly very able students, there is a tendency for
schools to see choosing mathematics A-level as higher risk in terms of
outcome than many other disciplines. To add to this perception, it is clear
that many weak students do not complete the course in GCE Mathematics
and many of those who do complete are not classified on their examination
performance. At the other end of the scale, A-level Mathematics is felt not
to discriminate sufficiently amongst those awarded the highest grades in the
subject. University mathematics departments have made clear to the Inquiry
that they are often unsure of the real value of a grade A pass at A-level.

4.38 Following the revision of the GCE criteria for Mathematics in response to the
Curriculum 2000 debacle, many respondents are in no doubt that A-level
Mathematics has been made easier for the very best candidates. In terms of
the potentially most able mathematics students, the Inquiry believes that far
too few able candidates are entered for AS or A-level Further Mathematics
because their schools or colleges do not have sufficient resources to provide
these courses. The same appears to be the case for the AEA in Mathematics,
although the original intention of AEAs was that they would not require
additional teaching. There are many students who would benefit from
studying Further Mathematics or the AEA in Mathematics, but who are
currently denied the opportunity. Candidates who have studied Further
Mathematics or the AEA in Mathematics are likely to be much more confident
with the inner workings of the subject. University departments in all subjects
identified as vulnerable in the Roberts SET for Success report would benefit

94
 greatly if more candidates were qualified at this level. Further Mathematics
and the Advanced Extension Award in Mathematics (redesigned if necessary)
are the courses that could and should provide the extra stimulation for the
top fifteen per cent or so of the A-level mathematics cohort of students and
the Inquiry is deeply concerned that the current system is not able to make
adequate provision for this important cohort.

Recommendation 4.10

The Inquiry recommends that there should be an immediate review by the DfES, LSC
and the relevant devolved authorities of measures that could be taken to support and
encourage current GCE course provision for the most able mathematics students. In
particular, we believe there is a need to ensure that there are no funding disincentives
in schools and colleges for providing access to Further Mathematics and the Advanced
Extension Award in Mathematics We also believe that consideration should be given
employing the same incentives as suggested in Recommendation 4.8.

4.39 The higher education sector and the learned and professional societies have
made clear to the Inquiry their serious concerns about the interface and
transition between A-level mathematics and university courses heavily
dependent on mathematics, such as degree courses in mathematics and
statistics, or in physics, electronics, engineering and economics. In the short-
term, the Inquiry believes that Higher Education has little option but to
accommodate to the students emerging from the current GCE process. Many
are, of course, already doing this through, for example, the provision of first
year enhancement courses. Longer term, we would hope that there would
be significant changes resulting from Recommendations 4.5 and 4.10 and
the future re-design of 14-19 pathways. More generally, we would hope that
there would be significant positive consequences of the greater interaction
of HE with schools and colleges proposed in Chapters 5 and 6.

Concerns with Adult Numeracy

4.40 There is some concern that employers are not yet fully recognising the new
Adult Numeracy qualifications. It has also been impressed on the Inquiry that
adults want to learn mathematics for a variety of reasons, often not concerned
with gaining qualifications. Respondents to the Inquiry have expressed some
concern that, at present, test questions tend to reflect traditional “school
mathematics”, in the sense of testing mathematical procedures posed as
contextualised problems with multiple choice answers. It is felt that these
tests do not necessarily fit well with the idea of individual adult learner plans
and properly exploit adult learners’ contexts. It is also felt that the present
tests at levels 1 and 2 disadvantage ESOL learners and those with dyslexia
or dyscalculia, or low levels of literacy. Many respondents feel that:

• numeracy capabilities have generally been undervalued, under-

developed and under-resourced;

• support and learning programmes have been few in number and

poor in quality;

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 • materials and qualifications have been child rather than adult
centred;

• teachers have been inadequately trained and in many cases

specialist numeracy teachers have been replaced by literacy
teachers, often working beyond their own levels of mathematical
competence;

• performance and alignment with GSCE Mathematics and National

Curriculum levels is highlighting inadequacies in the
appropriateness of these programmes to prepare young people for
adult life in general and the workplace in particular.

4.41 Respondents to the Inquiry are clear that the adult numeracy strategy is a
challenging and demanding one for teachers and learners alike. Progress could
easily be undermined by:

• uncertainties surrounding the teaching and assessment of

mathematics in general and in particular the future of GCSE
Mathematics and key skills;

• the limited pool of competent and confident teachers of

mathematics and numeracy;

• the lack of employer engagement in raising the skill base of new

employees.

In Chapter 6, we suggest that the national infrastructure for the support of

the teaching of mathematics include specific support for teachers of adult
numeracy.

Possible Future Pathway Models for Mathematics 14-19

4.42 In conjunction with the Advisory Committee on Mathematics Education
(ACME), the Inquiry ran a series of workshops attended by a wide range of
stakeholders concerned with possible future mathematics 14-19 pathways.
These workshops considered the ways in which mathematics is embedded in
educational pathways in other countries and tried to stimulate initial
constructive thinking about an appropriate future structure for 14-19
mathematics pathways in England.

4.43 As a result of these and other extensive consultations, the Inquiry believes
that the following principles should guide the construction of a future
pathways approach to mathematics provision 14-19 in the UK:

• all learners should be provided with a positive experience of

learning mathematics and should be encouraged to realise their
full potential;

• it should be recognised that not all learners learn in the same

manner, or at the same speed, or respond positively to the same
styles of assessment;

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 • all pathways should include progression up the qualifications
ladder, with each pathway having clearly defined destinations into
training, employment, further or higher education;

• there should be flexibility within the overall structure and maximal

opportunity to make transitions among the pathways; it will be
important to avoid regression to old style O-level versus CSE, or
any other now defunct rigid qualifications divide;

• new approaches to pedagogy and, in particular, the use of ICT

should be adopted to ensure that all students acquire an
appreciation of the power and applicability of mathematics;

• the uses and applications of mathematics, including working with

ICT, should be made central to the mathematics curriculum
wherever appropriate, but without compromising appropriate
levels of abstraction and generalisation.

4.44 In addition to requiring adherence to these principles, respondents to the

Inquiry are clear that in developing pathways it will be essential to be clear
about the positioning in the pathways of the following key mathematical
developments:

• working with the rules of number in a range of contexts, including

use of measures;

• developing multiplicative and proportional reasoning;

• developing the geometry of shape and space and geometrical

reasoning;

• developing and using algebra in a range of contexts, including

2– and 3–dimensional geometry, the use of variables in formulae
and in co-ordinate geometry;

• developing the calculus of functions and the concept of rate of

change, and related applications;

• developing ideas of proof and logic;

• developing the mathematics of uncertainty.

4.45 Subsequent discussion will use ‘pathway’ to describe progression in

mathematics, with the understanding that the mathematics is merely a
component, along with other specialist and optional components, of the
larger curriculum pathways envisaged by the 14–19 Working Group. Each
pathway should be clear in what it offers as a core of mathematics and how
it is applied, and it should also be an adequate preparation for the next stage
of progression. Much work will be needed to develop the Tomlinson proposals
into a coherent curriculum and assessment regime. The Inquiry has had
neither the time nor the resource to attempt to begin to do this for the
mathematics component of such a curriculum and assessment regime.

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4.46 The approach we have adopted is therefore the following. We outline, on
the basis of suggestions made during the consultation process, schematic
versions of some of the different models and approaches put to us for
consideration. These indicate, in broad-brush terms, possible future pathways
that are guided by the principles summarised above and designed to remedy
the perceived defects of the current structure detailed in this chapter. Each
of these models and approaches has its supporters among one or other
significant grouping of the mathematics community.

4.47 It would be inappropriate for the Inquiry to express a clear preference for
one model or approach rather than another, although we are inclined to
believe that Figure 4.2 below will provide something close to the desired
pathway structure for mathematics. We believe that intensive curriculum
development, trialling, feedback and modification will be essential to ensure
that the new structure is workable and better than the system it is designed
to replace. The construction of pathways depends on both curriculum and
assessment considerations and future political imperatives.

4.48 A system based primarily on equity might seek to opt for a single pathway,
at least to age 16 and possibly to age 19. In such a model, all students study
precisely the same mathematics curriculum, but progress at different rates.
Students are then credited for the mastery of the stage they have reached
by the chosen age at which the pathway ends. Sweden has adopted
essentially this approach. In the Swedish model (see Figure 4.1, which we
present schematically, without discussion of the programme content) the
mathematics curriculum can be thought of as blocks A,B,C,D,E fitting end to
end and forming a continuum up to the standard required for entry to study
mathematics at university (D, or D+E). Students learn at different rates, and
are certified as successfully completing one or more of the fixed number of
partitioned subsets A,B,C and D that make up the continuum. Only relatively
few students master the whole curriculum. The majority leave secondary
education having achieved a number of ‘stepping stone’ credits along the
mathematical pathway. We note that support for this approach runs counter
to the support the Inquiry has received for the extension rather than
acceleration approach discussed earlier (see paragraph 4.21 and
Recommendation 4.5).

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 Figure 4.1: The Swedish approach to pathways

Year 3
D+E D C

C
Year 2

C
B

B
B A
Year 1

A A
A

4.49 In contrast to the above schematic, Figure 4.2 presents a more detailed
possible model of 14–19 pathways. This starts from the assumption that the
present Key Stage 3 Programme of Study should form the common basis for
all students, prior to the age of 14. It then maps out a number of possible
routes through 14–19, five potential pathways from age 14, increasing to
seven from age 16. Each pathway varies in content, difficulty and abstraction
and is designed to enable students to follow the one best suited to their
needs. The model emphasises relative speeds of progression and the nature
of the levels of the mathematics components on different pathways. The
model allows for movement between the pathways.

4.50 In Key Stages 4 and post–16, all courses shown in the figure have the title
“Mathematics” followed by a code. The names associated with the codes are
descriptive only. The model emphasises relative speeds of progression and
the nature of the levels of the mathematics components along the different
pathways. Mathematics in levels 1 and 2 of this qualifications framework
would be drawn from the Key Stage 4 PoS, but with not all students expected
to make equal progress. The way the intended curriculum is delivered and
assessed might differ from pathway to pathway, with more emphasis on
applications in some parts and more emphasis on abstract reasoning in others.
In this model, students learn to tackle problems appropriate to their current
level of mathematical understanding and motivation. The pathways are
designed so that individual students would be able to maintain interest in
the subject and to make steady and continuous progress as they move to
age 18 or 19. Each student should be on a pathway that is accessible and
provides meaningful challenges to the student at each stage.

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 Figure 4.2: A possible 14-19 pathways model

(14) (16) (18/19)

Mathematics
Mathematics En
(Numerical Literacy)
Entry Level
Level 1

Mathematics NL Mathematics QL
(Numerical Literacy) (Quantitative Literacy)
Level1 Level 2

Mathematics QL
(Quantitative Literacy)
Level 3 minor

Mathematics QL Mathematics SM
KS3 (Quantitative Literacy) (Statistical Methods)
Level2 Level 3 minor

Mathematics PU
(T) (Public Understanding of Maths)
Level 3 minor

Mathematics ML Mathematics ML
(Mathematical Literacy) (Mathematical Literacy)
Level 2 Level 3 major

(T)
Mathematics E Mathematics E
(Extension) (Extension)
Level 2 Level 3 major plus minor

4.51 At level 3, students would elect to do mathematics as a minor or as a major

subject, and perhaps some additional mathematics beyond that. Mathematical
techniques, applications and mathematical reasoning would be developed
through a continuum which allows some variation in the applications
encountered and the way mathematics is used to model real problems. The
aim would be for an increasing number of students to progress to both levels
2 and 3 by age 19. A small percentage of students might only progress to
level 1.

4.52 The degree of mathematical content, difficulty and abstraction increases as

one moves down the figure and along each pathway from left to right. All
courses from level 1 upwards would develop calculation in a variety of
contexts, and, as appropriate, would introduce aspects of algebra, geometry
and application of mathematics in a varying mix for different student groups.
Entry level would focus mainly on numbers and measures and simple
applications. The Extension courses would be for those who absorb
mathematics easily and seek a greater understanding of the subject. Students
on these courses would study mathematics at greater depth and at greater
levels of abstraction, but based on the same curriculum content at a given
level. Extension courses would concentrate more on reasoning, proof, chains

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 of logical reasoning, multi-step problem solving and a range of harder and
sometimes open-ended problems. An example of an extension curriculum at
level 2 is set out in Making Better Use of Mathematical Talent, published by
the Mathematical Association, 2003.

4.53 Mathematics E at level 3 would be the nearest equivalent to the current GCE
Further Mathematics and the AEA in Mathematics, although it would be a
new hybrid with its own distinctive features. There was a very strong positive
response to the Inquiry in favour of providing mathematics courses at this
level. Mathematical Literacy at levels 2 and 3 would be the nearest equivalent
to the higher tier end of GCSE Mathematics (KS4 Higher) and A-level
Mathematics, respectively. These would concentrate on the study of a wide
range of mathematical ideas, techniques and application, but not developing
rigour or harder problem solving to the same extent as on the extension
pathway. At level 2, both Mathematics ML and Mathematics E would be
worth a double award in the qualifications framework (in line with
Recommendation 4.2). Quantitative Literacy level 2 would be the nearest
equivalent to working at around the current C grade level of GCSE
Mathematics (KS4 Foundation), but with a greatly different emphasis. The
course would also encompass level 1 as a fall back position.

4.54 Application of mathematics (involving number and algebra, measures and

geometry) to analyse substantial real world contexts would be stressed, and
appropriate ICT would be used to analyse realistic data and fit models.
Students would also learn about multiplicative and proportional reasoning.
They would also learn to communicate mathematical ideas to others. QL level
3 would develop this approach further, building on more mathematical
content that goes beyond that currently in the Key Stage 4 Programme of
Study. All QL courses would develop the philosophy and pedagogy pioneered
by Free Standing Mathematics Qualifications and AS Use of Mathematics. It
would be important here to make full use of the power of ICT to analyse
real data using appropriate mathematical models. This is the sort of course
designated as ‘Techno-Mathematics’ by the authors of the report
Mathematical Skills in the Workplace.

4.55 Numerical Literacy courses would only go as far as level 1. They would aim
to provide familiarity with the most basic ideas in number, measures, algebra
and geometry and how these are used in elementary application and in
making geometrical models and patterns. They would play the role of a
stepping-stone to mathematical understanding that might begin to unlock
doors in training or employment, and in further and higher education. At
level 3, a mathematics course is proposed for all students progressing to level
3 from level 2. This would follow the pattern of the French Baccalaureate, in
which there is mathematics provision on all the designated academic routes
(the sciences, the social sciences and the humanities), and also on the
vocational and technological routes. The possible course in Public
Understanding of Mathematics (possibly to include Science and Technology)
could provide a form of continuing exposure to mathematics for those with
academic aspirations that do not include technical use of mathematics, but

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 for whom society would wish – given that many will have influential and
opinion forming roles in their future careers – to understand the role of
mathematical ideas in human culture, the development of science and
technology and as an instrument for social and economic change.

4.56 The level 3 Statistical Methods course would be akin to current AS Statistics
and would be an appropriate pre-requisite for those intending to progress to
courses in HE which are heavily statistical in nature. Many respondents to the
Inquiry have indicated that such a course would fill an existing serious gap
in the qualifications framework. The symbol (T) in figure 4.2 denotes that
some transition material would have to be mastered to make the indicated
transition from one pathway to another. Other transitions might be possible.
Students might wish to make a transition after starting on a particular
pathway, but then would have to realise that there could be a cost to making
such a transition and that extra effort might be required to make the transition
successfully.

4.57 We do not believe it would be desirable to indicate rigidly pre-determined

destinations for each of the pathways. However, in very broad-brush terms,
with considerable cross-over, we would see the following kinds of destinations
as corresponding to the pathways as we move down the figure:

• Low skilled employment, part-time FE (Foundation Modern

Apprentice);

• Moderate to high skilled employment, part-time FE (Advanced

Modern Apprentice);

• High skilled employment; ITT; FE/HE (including for example:

technology, engineering, science, business studies, economics);

• High skilled employment; FE/HE (including for example: biological

and social sciences, business studies);

• High skilled employment; FE/HE (including for example: arts,

humanities, law);

• High skilled employment; HE (including for example: mathematics,

physical sciences, electronics, computer science, engineering,
medicine, economics);

• High skilled employment; HE (all highly mathematical subjects and

research and development in these subjects).

4.58 There are a number of possible variants of the model. One of is shown in
highly simplified schematic form in Figure 4.3, based around two fundamental
courses Mathematics and Use of Mathematics. The key idea is that there is
scope to develop both a level 1 and a level 2 ‘Use of Mathematics’ course
to complement the level 3 AS ‘Use of Mathematics’ that exists at present.
Starting from these, Figure 4.3 then shows the following common pathways:
Mathematics L2 to Mathematics L3 (minor, major and beyond) or to Use of
Mathematics L3; (Use of Mathematics L1 to) Use of Mathematics L2 to Use
of Mathematics L3.

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 Figure 4.3: A simplified model

Use of
Mathematics L1

Mathematics L2

Use of
Mathematics L2

Mathematics L3

Use of
Mathematics L3

4.59 A fourth possibility is to develop two or three distinct pathways from a

notionally accepted common curriculum up to age 14. A version of this fourth
model is shown below in Figure 4.4. This proposes three distinct programmes
from age 14. These are referred to here descriptively as Entry-Vocational (EV),
Vocational-Technical (VT) and Technical-Academic (TA). The shared letters
indicate the desirability of allowing for subsequent movement; they do not
necessarily indicate identical content. All the courses would progress from a
common core of mathematics at Key Stage 3, which would act as an effective
foundation for all students. However, those students who do not complete
the whole of Key Stage 3 by age 14 would not be obliged to continue
repeating the same material until it is mastered.

Figure 4.4: An alternative pathways model

EV (Basic) EV (Basic)

EV (Suppl) (T) EV (Suppl)

VT (Basic) VT (Basic)

VT (Supp) VT (Supp)
(T)

TA (Basic) TA (Basic)

TA (Suppl) TA (Suppl)

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4.60 None of the models or approaches presented here has any current validity
or preferred status for the Inquiry. They are simply intended to show how
actual mathematical pathways could be constructed in line with the principles
enunciated earlier and with the aim of overcoming the perceived deficiencies
of the current structure. We indicated earlier that a great deal of work will
be needed to develop such ideas into a coherent curriculum and assessment
regime that will provide appropriate mathematics pathways within the general
structure that emerges from the work of the 14–19 Working Group. We
understand that the final 14–19 Working Group proposals will be available
in Autumn 2004. The Inquiry therefore does not believe it would make sense
to try to select a preferred set of mathematics pathways and to work out
every detail of the curriculum and assessment for such pathways ahead of
understanding the Government’s response to the 14–19 Working Group
proposals.

4.61 However, whatever emerges as a new 14–19 structure, the Inquiry is clear
that we shall need to develop some or all of the elements and components
of the models discussed above and to begin to address the major deficiencies
identified in the current framework. We believe, therefore, that it is vital to
begin work immediately on detailed further curriculum and assessment
development based around these pathways models. The aim should be to
carry out a cycle of trialling, feedback and modification of two or three
variants of these models in time to inform a future decision on the preferred
way forward for mathematics in the context of the overall 14–19 structure.
We would suggest that this work should be completed by the end of 2007.

4.62 We also firmly believe that in this process of development it will be vitally
important to involve as wide a range of the mathematics community as
possible. We have been struck in the course of this Inquiry by the energy
and commitment of the mathematics community in responding to issues
raised. In particular, the outline models we have presented have emerged
from significant groupings of the community. All this informs the following
major recommendation.

Recommendation 4.11

The Inquiry recommends that funding be provided to the QCA and its regulatory partners
to commission, through an open bidding process, up to three curriculum and assessment
development studies of variants of these pathway models and approaches, including
trialling, feedback and modification and an assessment of the workload implications. These
studies should take on board developments arising from Recommendations 4.4, 4.5 and
4.7. The aim of this exercise will be to inform the selection of a preferred pathway model
to form part of the reformed 14–19 structure in England and possible parallel
developments in Wales and Northern Ireland. Given the importance of ensuring the widest
possible involvement and commitment of the mathematics community to the outcome,
the Inquiry recommends that the regulatory authorities work in partnership with ACME
and mathematics community representatives from Wales and Northern Ireland, and that
the DfES and relevant devolved authorities provide appropriate funding to support this.

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5 SUPPORT FOR THE TEACHING AND
LEARNING OF MATHEMATICS
Continuing Professional Development (CPD) for
teachers of mathematics
5.1 The Government has recognized in setting up this Inquiry that there is an
urgent need to improve the mathematical skills of the general population.
There are concerns about both numbers and quality and, in particular:

• the relatively low numbers of school pupils continuing mathematics

post-16 through to the age of 19 and beyond;

• a declining trend in the number of students obtaining degrees in

Higher Education courses in disciplines with substantial
mathematical content; and

• the under-supply of appropriately qualified teachers of

mathematics, which is exacerbated by the high demand in other
sectors of the economy for the skills of mathematically qualified
graduates.

5.2 In previous chapters of this report, we have examined ways in which the
future supply of appropriately qualified mathematics teachers entering the
profession might be increased and ways in which the numbers of pupils
continuing with mathematics post-16 might be increased.

5.3 We now turn to the issue of support for staff currently teaching mathematics
in schools and colleges. We consider possible forms of support to update and
enhance subject knowledge and pedagogy and to sustain enthusiasm and
commitment. Respondents to the Inquiry have noted with concern that, in
contrast to many other professions, there is not a strong tradition of
Continuing Professional Development (CPD) among teachers in England,
Northern Ireland and Wales.

5.4 The situation is somewhat different in Scotland, where local authorities have
a stronger tradition of delivering CPD for teachers and CPD responsibilities
and entitlements have been incorporated into a formal agreement, A Teaching
Profession for the 21st Century, which followed the report of the McCrone
Inquiry (January 2001) into professional conditions of service for teachers in
Scotland.

5.5 The agreement in Scotland included the following:

• teachers shall have an ongoing commitment to maintain their

professional expertise through an agreed programme of CPD;

105
 • an additional contractual 35 hours of CPD per annum will be
introduced as a maximum for all teachers, which shall consist of
an appropriate balance of personal professional development,
attendance at nationally accredited courses, small scale school
based activities or other CPD activity; this balance will be based
on an assessment of individual need taking account of school, local
and national priorities and shall be carried out at an appropriate
time and place;

• every teacher will have an annual CPD plan agreed with her/his
immediate manager and every teacher will be required to maintain
an individual CPD record;

• it was recognized that a framework for professional development

will take some time to deliver and therefore teachers would work
towards but not be expected to meet the full commitment until
August 2003;

• the aims of the agreement are to enhance opportunities available

to all teachers and minimize teachers undertaking work that is a
not directly related to their key role in teaching and learning; it
was also agreed that CPD should be a condition of service, and
every teacher should have a commitment to it;

• local authorities will undertake to review their provision within the

arrangements for the development of a national register of
approved CPD providers, and consideration should be given to the
role of a national agency such as Learn Direct Scotland in this
regard: not all CPD will necessarily be accredited, but there should
be maximum opportunity for accreditation.

5.6 In view of these recent developments in Scotland, most of what follows in

this chapter – with some exceptions, which we shall clearly flag – should be
taken to refer to the situation in England, Northern Ireland and Wales.

5.7 The clear message to the Inquiry from many sources is that there is a need
for a radical change in culture regarding CPD in the teaching profession in
England, Northern Ireland and Wales. Ideally, it is felt that every teacher
should have a personal professional development plan, to which both teacher
and school commit in writing, placing obligation for ongoing CPD on them
both, as in Scotland. Indeed, the McCrone agreement is seen by many to
be a minimal model to which the rest of the UK should aspire.

5.8 The Inquiry believes that CPD is important for all teachers in all subjects. We
therefore welcome all recent moves in the UK toward a strategy for more
systematic CPD provision. In particular, we welcome the General Teaching
Council’s (GTC) introduction of the Teachers’ Professional Learning Framework
(TPLF) in England, which offers a map of professional development
experiences. Teachers will use the TPLF to plan their individual development
needs. Headteachers, CPD co-coordinators, Local Education Authority (LEA)
advisers and others will use the TPLF to develop CPD policy strategy and

106
 facilitate networks of professional learning. The General Teaching Council for
Wales (GTCW) is considering a similar initiative for teachers in Wales, as is
the recently established General Teaching Council for Northern Ireland
(GTC(NI)).

5.9 In Wales, some funding for CPD is provided directly through the GTCW.
General funding for CPD is included as an element within the “Grants for
Education, Support and Training” (GEST) programme, which is funded 60%
directly by the Assembly and 40% by the Welsh LEAs from funds included
in the overall revenue settlement. It is intended that CPD be explicitly linked
to the newly introduced performance management arrangements in Wales,
which will identify individual teacher’s development needs. Schools will set
their own priorities within the scope of the scheme. Currently, there is no
requirement for subject specific CPD and no money is ring-fenced for
individual subjects. The Inquiry understands that funds could be used for
subject specific CPD, but that the Welsh Assembly Government would not
wish to be centrally prescriptive about priorities.

5.10 In Northern Ireland, statutory responsibility for CPD for teachers lies with the
Education and Library Boards (ELBs). Each ELB has a Curriculum Advisory and
Support Service (CASS), with teams of officers, including those for
mathematics, who provide support to schools in both subject specific and
more thematic whole-school areas. The CCEA also has a role in relation to
the provision of support materials for teachers in Northern Ireland. There is
now in place in Northern Ireland a fully integrated programme of initial
teacher education, induction and early professional development, as well as
the Professional Qualification for Headship programme. Further developments
are under consideration by the GTC(NI).

5.11 We have already noted the different situation regarding CPD entitlement and
provision in Scotland.

The need for subject-specific CPD

5.12 The Inquiry welcomes increasing evidence of greater emphasis on and
commitment to CPD for teachers throughout the UK. However, we note that
most of these developments are not specifically aimed at systematic and
sustained subject specific CPD.

5.13 A teacher’s overall competence involves three separate elements: subject

matter knowledge and confidence, general pedagogical skills and subject
specific pedagogical skills Overwhelmingly, concerns expressed to the Inquiry
about the current overall state of mathematics teaching in schools and
colleges in England have focused on subject matter knowledge and subject
specific pedagogy. The Inquiry shares these concerns.

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5.14 Separate from recent developments in support of generic CPD for teachers,
the Inquiry therefore believes that a large-scale programme of subject specific
CPD for teachers of mathematics in England, Northern Ireland and Wales is
an urgent priority in its own right. This message has been strongly reinforced
in relation to teachers of mathematics in England by the December 2002
report, Continuing Professional Development for Teachers of Mathematics, from
the Advisory Committee on Mathematics Education (ACME PR/01), which we
shall discuss in more detail later in this chapter.

5.15 We have not received the same unequivocal message in relation to the
situation in Northern Ireland and Wales. However, responses to the Inquiry
from Northern Ireland indicate clear needs for both subject matter and
pedagogy CPD. In particular, teachers in Northern Ireland expressed the view
that more mathematics subject specific CPD would be desirable. We have
also been informed of the view of the ACCAC that issues relating to teachers
of mathematics are seen in Wales as the key to raising standards in
mathematics. We believe therefore that much of the following general
discussion of the situation in England will be found to be relevant to Northern
Ireland and Wales.

5.16 The ACME report concluded that the most effective way to provide support
and raise the quality of mathematical provision in schools in England would
be to expand CPD substantially for teachers of mathematics throughout the
system.

5.17 Pre-14, a start on this has already been made in England through the National
Numeracy Strategy in primary schools, and the mathematics strand of the
Key Stage 3 Strategy for 11-14 year olds in secondary schools. Although
formally outside the remit of this Post-14 Inquiry, we shall consider the work
of these strategies later in more detail in paragraphs 6.4-15.

5.18 In Northern Ireland, the Northern Ireland Numeracy Strategy (NINS) has
raised the profile of CPD for teachers of mathematics. The NINS is focusing
on three inter-related strands of support, provided by CASS, for primary and
post-primary teachers of mathematics: leadership and management, learning
and teaching and the use of ICT. It has provided targeted funding for teachers
of mathematics (including all primary school teachers), facilitated closer
working among the five ELBs and sought to provide a consistent message on
the development and support of mathematics across the different phases of
compulsory schooling. All teachers of mathematics are entitled to two days
of professional development, typically supported by in-school development
work. Other elements of the strategy include support for numeracy co-
ordinators and heads of mathematics departments.

5.19 Respondents to the Inquiry overwhelmingly endorse the general analysis set
out in the ACME report and support the report’s conclusions regarding the
fundamental need for a substantial increase in the provision of appropriate
CPD for teachers of mathematics. The Inquiry also strongly supports the broad
thrust of the recommendations set out in the ACME report. Chapter 2 of this

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 Post-14 Mathematics Inquiry report has discussed the urgent need to address
the problem of recruitment of sufficient numbers of suitably qualified
mathematics teachers. The ACME report makes clear that there is also an
urgent need to provide infrastructure to support the retention and
enhancement of existing teachers of mathematics in schools and colleges.

5.20 The ACME report recommendations provide the underpinning of the Inquiry’s
own recommendations later in this chapter for the establishment of a national
support infrastructure for teachers of mathematics. We therefore summarize
the key elements of the ACME report in some detail in the following section.

The ACME report

5.21 The ACME report is clear that programmes of CPD in mathematics should
recognize the need for the broadening and deepening of mathematical
knowledge, as well as of subject specific pedagogy. The report is also clear
that such CPD programmes are needed both for teachers of mathematics
with strong mathematics qualifications and for those with less strong
qualifications, the latter including teachers who have been recruited from
other subjects to teach some mathematics.

5.22 To improve retention in the profession, there is a need to revive and sustain
the enthusiasm of existing qualified teachers of mathematics, as well as a
need to support and develop them throughout their teaching careers. In
addition, it is felt by many that a programme of CPD aimed at qualified
mathematics teachers might encourage currently inactive mathematics
teachers to return to the profession. Overall, in addition to retaining and
attracting greater numbers of mathematics teachers, the belief is that a
successful CPD programme would lead to a more motivated and enthusiastic
teaching force in mathematics, with improved subject matter and subject
related pedagogical expertise. The report is clear that there is a need for CPD
for teachers of mathematics at all stages of their careers, whatever their
knowledge and experience.

5.23 The report recognises and the Inquiry accepts that it is not possible for ITT
to provide future teachers of mathematics with all they should know about
the subject they will teach, how pupils learn it or how to teach it effectively.
There is therefore a need for mathematics specific CPD, which is available
from the beginning of their careers for all Newly Qualified Teachers (NQTs)
of mathematics.

5.24 The technical nature of mathematics and the subtle interconnections of

different elements of the curriculum can pose problems for teachers whose
understanding of the subject is partial and limited. There is therefore a
particular requirement for CPD for those teachers who teach mathematics,
but who are not well-qualified or experienced in terms of mathematics
background. This could relate to both newly qualified mathematics teachers
and to experienced teachers who were not specifically trained as mathematics
teachers.

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5.25 It is seen as equally important for the health of the profession that experienced
and well-qualified mathematics teachers are given the opportunity to refresh
their skills and to renew their enthusiasm for the subject. Teachers of
mathematics need not only to deliver curricula, but also to adapt their
teaching methods and style to the changing needs of pupils. They also have
to engage with new materials and advances in technology, and to learn from
advances in research on pupil learning and on teaching practice in
mathematics.

5.26 School and college mathematics does not remain static. Content, applications
and assessment evolve. In addition, changes in technology impact both on
the subject matter and on possible modes of teaching and learning. The last
30 years have seen major curriculum changes as a result of advances in
technology and pedagogy, as well as an evolving perception of what is
important in the subject. This evolution and change is particularly marked in
the discipline of mathematics. In recent years, this has resulted in the
introduction of significantly more data handling, statistics, and investigational
work. There is therefore also an ongoing need for CPD for more experienced
mathematics teachers. Indeed, many respondents to the Inquiry have
emphasized that a mathematics teacher’s education needs to be seen as a
career-long process.

5.27 However, until now, apart from the work of the Numeracy and Key Stage 3
Strategies in England and the NINS in Northern Ireland, there has been very
little properly resourced support for teachers of mathematics to meet this
need. This is consistent with a culture in which teachers in England and
Northern Ireland have not seen professional development in their subject as
a right or an obligation and, until recently, the employing authorities have
not seen lifelong CPD as a priority.

5.28 The Inquiry believes that teachers of mathematics in schools and colleges in
England, Northern Ireland and Wales should have an expectation and a
responsibility to engage in CPD throughout their working careers, together
with an entitlement to time and resources, including funding, alongside a
system of accountability and rewards. Current provision for teachers of
mathematics in secondary schools and Sixth Form Colleges is clearly
inadequate.

5.29 Respondents to the Inquiry have suggested that provision for teachers of
mathematics in FE Colleges has been even worse. We are encouraged
therefore by the joint work currently being undertaken by the DfES and the
LSC aimed at improving classroom practice and promoting active learning in
mathematics in FE. An important central element of this work is to enable
FE teachers to develop and reflect on their practice with specialist support.

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5.30 The inquiry is convinced of the need for a radical culture change in relation
to subject specific CPD for all teachers of mathematics. It has been suggested
to us that such a culture change is required for all teachers throughout the
educational system. However, this takes us well beyond the remit of this
Inquiry. Given the terms of reference of the Inquiry, the recommendation that
follows therefore refers only to teachers of mathematics. We note, however,
that a similar message is conveyed in Recommendation 2.6 of the SET for
Success report.

Recommendation 5.1

The Inquiry recommends to the DfES and the LSC, and the devolved authority in Northern
Ireland, that formal responsibility for and entitlement to fully funded CPD be introduced
as soon as possible into the professional conditions of service for teachers of mathematics
in schools and colleges in England, Wales and Northern Ireland. In the light of what we
perceive to be far greater problems with the teaching of mathematics in England and
Wales as compared with Scotland, the Inquiry further recommends that the number of
contractual hours of CPD in such formal entitlement in England and Wales be significantly
greater than the provision made in the agreement A Teaching Profession for the 21st
Century in Scotland.

5.31 The ACME report envisages that it may be necessary to encourage teachers
of mathematics to engage in CPD, and to reward in some way those who
do so – for example by salary increments on completion of accredited
components of CPD. The report also suggests that building up a CPD portfolio
should become an important part of career progression, and the key to higher
salaries and promotion. The Inquiry fully endorses this conclusion.

5.32 In relation to the problem of mathematics teacher supply, many respondents

have noted that the obvious economic market solution is to provide higher
salaries and more attractive career paths for teachers in shortage subjects.
The Inquiry is sympathetic to this argument, but some respondents are
concerned about the threats that this might pose to collegial working within
schools and colleges. We remain convinced that the issue of differential salaries
will ultimately have to be faced. However, we see no sign of this happening
in the immediate future and would therefore not wish to pursue this at the
expense of achieving similar practical ends more quickly by other means in
the context of teachers of mathematics. We therefore make the following
recommendation, which echoes Recommendation 2.5 of SET for Success (a
recommendation made in relation to science teachers in general).

Recommendation 5.2

The Inquiry recommends to the DfES and the LSC that additional remuneration be linked
to mathematics teachers’ successful completion of accredited CPD activities and
opportunities, thereby rewarding those teachers of mathematics who make particular
efforts to improve further their subject knowledge and teaching effectiveness.

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CPD content and delivery
5.33 The ACME report and many respondents have provided the Inquiry with a
wealth of detailed analysis of issues relating to the content and delivery of
CPD. We summarize in what follows many of the key issues raised.

5.34 A point emphasized to us over and over again is that it is essential for teachers
of mathematics to have sufficient subject knowledge to challenge and develop
the full range of the pupils they teach. Broadening and deepening
mathematical knowledge and understanding are essential. Teachers should
also be encouraged to have greater awareness of different representations
and links within mathematics, as well as awareness of links to other subjects
where mathematics plays a role.

5.35 For teachers of mathematics, an important part of broadening their

knowledge of subject specific pedagogy is appreciating how pupils learn
mathematics, the role of questioning and response, and the potential
obstacles to learning that students are likely to face. Teachers also need to
become increasingly aware of key ideas and new approaches to promoting
mathematical reasoning in ways appropriate to a diverse range of students
with differing abilities and motivations.

5.36 Teachers should also have the opportunity to reflect upon different approaches
to delivering the mathematics curriculum. This should include how it is
structured in terms of progression within each separate topic, the links
between topics, and the way topics are introduced and revisited in different
contexts. Many have emphasized the need for a shift of emphasis towards
the processes of “doing mathematics” and away from “learning outcomes”.
Experts also cite the importance and value of formative assessment as an aid
to future learning and understanding.

5.37 Professional development needs to be differentiated according to the diverse

needs of teachers of mathematics. Individual teachers have different
combinations of pedagogical skills, mathematical knowledge and experience
of teaching. For this reason, subject specific CPD provision should be
sufficiently flexible to respond to the individual needs of teachers and enable
teachers to identify how these needs can best be met. A range of provision
must therefore be available at different stages of teachers’ careers and at
different points in their mathematical development.

5.38 The ACME report and respondents to the Inquiry have identified distinct
categories of teachers of mathematics with potentially differing CPD needs,
while recognizing that within each of these categories there will, of course,
be considerable variations in individual teachers’ backgrounds, goals and
needs:

• primary school mathematics co-coordinators;

• primary schoolteachers generally;

• secondary school heads of mathematics or aspiring heads of

mathematics;

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 • secondary school specialist mathematics teachers;

• secondary school non-specialist mathematics teachers, defined as

those teaching mathematics whose main subject specialism is not
mathematics or a closely aligned discipline; and

• FE lecturers in mathematics and numeracy skills;

• FE heads of mathematics or curriculum coordinators, or those

aspiring to these roles;

• those involved in teaching adult numeracy.

5.39 In addition, there are other specialized groups of teachers with an involvement
in mathematics teaching, including those working with pupils with special
educational needs and in adult learning.

5.40 The Inquiry would also wish to draw attention to the need for mathematics
CPD for teachers of other subjects – for example, geography, biology and
physics – and for those involved in teaching vocational subjects in FE colleges.
The Inquiry believes that this is crucially important and will become increasingly
important as the 14-19 curriculum and qualifications structure moves towards
greater integration of subjects. It will also be an important prerequisite for
genuinely integrating the teaching and learning of mathematical skills with
vocational subjects – for example, in modern apprenticeships.

5.41 The ACME report reviews the types of training and professional development
that have been available previously. The types of professional development
currently on offer range from day courses, usually relating to national strategic
initiatives, right through to extended programmes leading to higher degrees.
Examples are given below in the panel Types of professional development now
on offer. Current financial support can range from full-cost, mainly for the
day courses, to little or nothing for the extended programmes.

5.42 The clear view of respondents to the Inquiry is that there is now an urgent
need to take stock and interconnect these developments, to plug gaps in
provision, and to seek to identify what is effective for different groups in order
to plan sustained portfolios of subject related CPD that will meet the diverse
needs of teachers of mathematics. The ACME report envisages the following
kinds of provision, some or all of which might include courses leading to
accreditation:

• courses for NQTs;

• courses for those in the first year of holding a co-coordinating/

leading post;

• courses for each group in their second or third year of teaching

or holding a co-coordinating/leading post;

• a more diverse range of focused courses for teachers with more

than 5 years’ experience in their current role.

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 Types of professional development now on offer to teachers of mathematics

1. Award-bearing courses run by Higher Education Institutions. These may lead to

diplomas, MAs or PhDs and may also involve professional associations. The focus varies,
but is likely to include mathematics, statistics, teaching and learning and associated
research. They are often funded by the individual participating teachers and might be
undertaken by either part- or full-time study. The numbers of teachers involved are small.

2. In-school development. Each school should have a policy on CPD and a person
responsible for coordinating and managing mathematics education. There is likely to be
a plan for development in mathematics, which includes use of external courses and in-
school shared development. This may be supported by the materials provided by the
National Numeracy and KS3 Strategies.

3. Courses run by the National Numeracy Strategy at primary level. Consultants in

each LEA run both nationally prescribed and locally developed courses. A key course is
the five-day course, which includes both subject content and pedagogy. Within each LEA,
certain courses are for ‘intensive’ schools (selected by the LEA as being those who would
most benefit from support) while some are for all schools. There are also short courses
run for coordinators.

4. Courses run by the KS3 Strategy (11-14). Consultants in each LEA run both nationally
prescribed and locally developed courses. These have included courses for heads of
department and KS3 coordinators, which include developing skills in leading departments.
A four day course has been run for less experienced teachers of KS3 mathematics, which
includes both subject content and pedagogy. Recent courses include teaching of ratio
and proportion and geometrical reasoning, as well as approaches to lower attaining pupils.
These all provide materials for departmental meetings to support discussion of content
and pedagogy. Within each LEA, certain courses are for ‘intensive’ schools while some
are for all schools.

5. In-school development for numeracy. LEA consultants work in ‘intensive’ schools to

help embed ideas from the courses and to develop skills in teaching and planning. They
may work with individual teachers, pairs of teachers or provide training sessions for all
teachers of mathematics. This work generally embraces subject content and pedagogy,
and action planning.

6. Demonstration lessons by Leading Mathematics Teachers (LMTs). In primary

schools, LMTs are identified within each LEA who will demonstrate lessons in their own
schools to teachers from other schools. A similar scheme has been introduced in
mathematics departments in secondary schools for KS3. Advanced Skills Teachers in both
phases will demonstrate lessons and work with teachers in the ‘learning’ teachers’
classrooms.

7. Courses run by examination boards. These are mainly sources of information

dissemination at KS4 and 16-19 levels. Examination boards usually run courses focused
on changes to specifications or assessment methods. There is a small percentage uptake
of these courses, but they influence an opinion-forming sector of the mathematics
teaching profession.

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 8. Conferences/working seminars run by professional subject associations and LEAs.
These are usually at weekends or in school holidays. There are also regular local meetings
of professional subject associations as well as annual conferences.

9. Other organisations (including private sector). These run courses for mathematics
teachers on topics such as managing the curriculum, assessment, teaching more able or
less able pupils, managing behaviour, etc.

10. Government initiatives. These are often cross-subject developments arising as part
of Government initiatives such as the Gifted and Talented strand of the Excellence in
Cities initiative and the transition work of Education Action Zones. There has also been
significant investment in ICT training for secondary mathematics teachers through the
new opportunities fund.

5.43 Additionally, there is a need for provision concentrating on particular areas

of mathematics, such as statistics and data handling, applications and
modelling, diagnostic and formative assessment, working with gifted pupils
or those with special needs, new initiatives in curricula or in resources, as
well as the integration of ICT. We understand that the KS3 Strategy is currently
intending to focus on increased use of ICT in mathematics and the teaching
of algebra, following on devfelopment work initiated by the QCA.

5.44 Respondents to the Inquiry echo the conclusion of the ACME report that
short courses are most effective when time is subsequently made available
for teachers in schools and colleges to reflect on what has been learnt, to
seek the best ways of implementing ideas and methods in the classroom and
to reflect on these practices in an informed way. The report is also clear that
teachers need opportunities to reflect on curricular materials and methods in
order to encourage the development of professional practice rather than just
the reinforcement of current methods. For this to be achieved, teachers need
support from experts or mentors with a perspective either of mathematics or
of the teaching and learning of mathematics, which is wider than delivery of
immediate curriculum goals.

Key elements of a CPD programme

5.45 The ACME report therefore envisages two elements in a CPD programme:
• part should be personalized, to address individual teachers’ needs
and support them in developing their own versions of the
understanding of mathematics and mathematics teaching.

• part should be generalized, so that teachers can place their theories

and actions within a wider perspective, but also see how they
might influence their own practice in the classroom, school or
college.

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5.46 We have noted that the ACME report stresses the need for professional
development programmes that engage teachers in reflective practice in their
own school and college classrooms, so that their knowledge and practice
continue to grow and evolve. The ACME report envisages that this process
can be encouraged in three ways.

5.47 First, teachers have a great deal to learn from observing colleagues and skilled
practitioners in their own and in other schools and colleges. A system of peer
mentoring would be beneficial, provided there is appropriate time and
support. Peer mentoring should be both supportive and developmental,
enabling lesson observation and discussion of teaching practice to become
more commonplace in schools and colleges and more acceptable to teachers.
To further stimulate discussion and reflection on practice, teachers should also
be strongly encouraged to join a national professional subject association.
Such organizations might be encouraged to develop career structure grades
for mathematics teachers as part of their membership structure.

5.48 Secondly, professional development requires resources. The ACME report

emphasises that the critical resource is time. Teachers need frequent and
regular opportunities to try out ideas and approaches with their pupils and
to discuss their experiences with specialists in mathematics and specialists in
teaching and learning mathematics, as well as with other mathematics
teachers. However, there is currently very little non-contact time in schools
and colleges. The ACME report is clear that key individuals in leadership roles
must be given time to spend working alongside teachers to develop good
practice, as well as managing their departments effectively. The report
therefore suggests that there must be timetabled time for teachers to meet
regularly to discuss the teaching of mathematics.

5.49 Thirdly, the report notes that within schools and colleges there is a shortage
of money for professional development generally and that, in practice, short-
term issues tend to take priority. Outside the earmarked funding for the NN
and KS3 strategies, in England funding for CPD for teachers of mathematics
currently has to compete within schools with other requests. The ACME report
concludes that current levels of resource are woefully inadequate to even
begin to address current concerns relating to mathematics CPD needs.

5.50 The ACME report is therefore clear that the mathematics teaching profession
will not develop a culture of CPD unless sustained and improved funding is
made available. The Inquiry wholeheartedly endorses this conclusion.

5.51 The report also makes the important observation that when teachers
participate in communities of practice that support their CPD, the effects of
CPD can be sustained more easily. Some of this will occur naturally in school
and college communities, but often is more effectively developed in wider
communities based in LEAs, or around Education and Mathematics
departments in Higher Education Institutions (HEIs), or around professional
subject association groups. Respondents to the Inquiry have overwhelmingly
supported this view. They have also pointed out that creating synergies across

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 all these parts of the mathematics community would have the added
advantage of engaging more of the community in facing up to the challenge
of providing support for teachers of mathematics, including the provision of
quality CPD.

5.52 Many have noted, however, that there is a currently a shortage of individuals
with appropriate experience and expertise to offer training, support and
guidance to teachers of mathematics. This concern has also been echoed by
respondents commenting on the situation in Scotland, where there are no
longer local authority Advisers in Mathematics to coordinate the work of
school departments. One possibility put forward in the report, building on
structures already in place in some areas, is to set up a cadre of “expert
teachers”. However, respondents have emphasized the importance of ensuring
that individuals identified as “expert teachers” have the appropriate academic
background to provide support for subject-specific CPD, particularly for
teachers of 14-19 year olds. It is envisaged that “expert teachers” would
remain classroom based, but would also form part of a network of local
resource centres for teachers of mathematics. (See Recommendation 6.14.)
The Inquiry notes with concern that since the transfer of responsibility for FE
to the LSC, teachers of mathematics in FE currently do not have access to
the equivalent of LEA advisers.

5.53 The ACME report sees a key aim of these local centres to be that of bringing
together mathematics teachers, mathematics educators and research
mathematicians. The aim would be to encourage the development in each
locality of a community of mathematics teachers from primary, secondary,
Sixth Form and FE Colleges, and HE, providing local infrastructure to support
provision of resources and information for teachers of mathematics in schools
and colleges. The Inquiry believes this to be an important and long overdue
development.

5.54 In terms of current provision, the ACME report identifies fragmentation, lack
of coherence and gaps in CPD provision for teachers of mathematics. Elements
of CPD do already exist, provided by university education departments,
subject associations, curriculum development bodies and training companies.
Recently, the QCA has also initiated such provision through its six regional
groups developing materials for algebra and geometry for the KS3-4
curriculum. However, the report notes that there is currently no overall
supporting infrastructure to provide strategic direction and coordination.

The need for national and local support infrastructure

5.55 ACME studied models of CPD in operation through such support infrastructure
in France through the IREMs (Instituts de Recherche sur l’Enseignement de
Mathematiques, literally translated as Research Institutes for Mathematics
Teaching), and in Israel through the Weizmann Institute. The conclusion of
the ACME report is that there is a pressing need for such national and local
infrastructure in the UK to provide strategic leadership and coordination of
mathematics CPD. The Inquiry wholeheartedly agrees with this conclusion.

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5.56 The report’s recommendation is that a centre of excellence for mathematics
teaching be established to define strategic objectives for CPD and oversee
their local implementation. On 13 March, 2003, at a conference jointly hosted
by ACME and the DfES to examine best international practice in CPD, the
Secretary of State for Education and Skills announced that he was in broad
agreement with ACME’s proposals to develop CPD for teachers of
mathematics. The Secretary of State also took the opportunity to extend the
remit of the Post-14 Mathematics Inquiry, requesting that the Inquiry examine
possible options for the organization and funding of what he referred to as
a ‘National Centre for Excellence in Mathematics Teaching’ (NCEMT) and
recommend to him, as part of its report, a preferred option.

5.57 The Secretary of State indicated that such a Centre should:

• cover all ages from pre-school, through universities and adult
learning;

• provide teachers with curriculum support, opportunities to explore

different teaching approaches, exciting classroom materials and
access to good quality training and development;

• link with Specialist Schools and through them, with their local
partner schools, and universities to create strong subject specialist
networks;

• work to support the Numeracy Strategy in primary schools and

the mathematics strand of the Key Stage 3 Strategy in secondary
schools.

5.58 The Inquiry endorses the need for a national support infrastructure for
mathematics teaching in the strongest possible terms and welcomes the
support and encouragement of the Secretary of State in taking this forward.

Recommendation 5.3

The Inquiry recommends that there be long-term investment in a national infrastructure

to oversee the provision of subject specific CPD and other forms of support for teachers
of mathematics, tailored to the needs of teachers of mathematics, both specialist and
non-specialist, including leaders in mathematics teaching. A detailed discussion of possible
options for such infrastructure support will follow in paragraphs 6.56-78, together with
the Inquiry’s recommended option.

5.59 In view of the Secretary of State’s clear indication that support should be
provided for teachers of mathematics across the entire age spectrum, the
following sections of the report no longer focus primarily on post-14
mathematics education.

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 The effective delivery of CPD
5.60 There has been considerable debate about the most effective forms in which
to deliver CPD for teachers of mathematics. Respondents to the Inquiry have
drawn our attention to some of most widely quoted research evidence
currently available on the effectiveness of typical forms of CPD provision and
strategies. The Inquiry notes, in particular, the following general criticisms of
in-service education set out in Fullan, 20011:

• one-shot workshops are a widely used format, but are often

ineffective;

• in-service programmes are rarely directed to the individual needs

and concerns of participants;

• follow-up support for ideas and practices introduced during in-

service programmes is rarely provided;

• follow-up evaluation occurs infrequently;

• most programmes involve teachers from a number of different

schools and colleges, but the potential different impact of positive
and negative factors in the individual teacher’s local environment
is typically not factored in to the programme;

• there is an inadequate conceptual basis underlying the planning

and implementation of in-service programmes in order to ensure
their effectiveness.

5.61 Cascade training, in particular, is widely identified as a weak link in CPD

programmes. In particular, the Evaluation Report of the Key Stage 3 Pilot and
Strategy (DfES, 2003) identifies some dissatisfaction with this form of training,
although the training in general was well received. The report notes that:

“Not everyone was positive about the training: over a fifth (21%) of the
teacher survey respondents did not find the training by local education
authority consultants effective, and more than a quarter (27%) felt that it
had not prepared them well for teaching... There was some evidence of
dissatisfaction with two aspects of the training: perceived rigidity of some
of the presentations and reliance on cascade training”.

The criticisms of the cascade approach primarily concerned lack of time and
the opportunity to cascade training adequately in schools. There is also a
view that the effectiveness of the cascade process diminishes as one moves
down the cascade chain.

5.62 Joyce, 19912, makes an important distinction between two key elements of
staff development activities – the workshop and the workplace. The workshop
(the traditional CPD course) is where understanding is developed,
demonstrations are provided of the teaching strategy under consideration and
practice takes place in a non-threatening environment. However, if the skills

1
Fullan, M. (2001). The meaning of Educational Change, New York, Teachers College Press
2
Joyce, B. (1991), Co-operative Learning and Staff Development. Teaching the Method with the Method, Co-operative
Learning 12(2)

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 acquired in the workshop are to be transferred to the workplace – that is,
the classroom and the school – on-the-job support is required. Respondents
have argued that in the context of CPD for teachers of mathematics, there
should be a shift away from reliance on the cascade model towards school-
based team initiatives in which members of a mathematics department work
together in the school context, with an expert mathematics teacher acting
as the leader or facilitator. The latter role is a key one and we return to the
important issue of ensuring an adequate supply of such individuals in
Recommendation 6.13.

5.63 This implies a “diffusion” rather than “delivery” model of CPD and is regarded
by many respondents as a far more effective way of implementing real change
in classroom practice. Such an approach to CPD, placing emphasis on
autonomy and professionalism, is described by some respondents as seeking
to “involve teachers in change” rather than seeking to “change teachers”.
However, as we have noted earlier such an approach requires dedicated time
and input from appropriately skilled and reflective people within the school.
Resources are clearly needed to support such a model.

5.64 The Inquiry accepts that this implies changes to the workplace and the way
in which staff development is organised in schools. In particular, it means
that opportunity must be provided for immediate and sustained practice,
collaboration and peer review and support. Above all, there is the need to
provide time for informed reflection with expert colleagues. One of the
strongest messages from the evaluation of the Key Stage 3 Strategy (DfES,
2003) is the importance of time if meaningful change is to occur. Creating
time for the CPD provided under the Strategy was a problematic issue for
virtually all schools. Almost all of the evaluation survey respondents reported
that it had been difficult to find time to develop practice, 65 per cent of
school strategy managers identifying the key challenge as that of providing
sufficient time for CPD related activities. These difficulties have proved
particularly acute in schools facing overall mathematics teacher recruitment
and retention problems.

5.65 The Inquiry accepts that these changes will be difficult to achieve in the
workplace without, in most cases, quite radical alterations to the way in which
schools are organised. There is a real need for more creative solutions to the
problems of time and timing that beset on-the-job training. This further
emphasizes the need to formalize CPD rights and requirements in contractual
form (Recommendation 5.1).

Key requirements and tasks of a support

infrastructure
5.66 The ACME report recognises the need to create both a national centre and
local centres to support and deliver CPD for mathematics teachers.
Respondents to the Inquiry have overwhelmingly echoed the need for both
national and local support infrastructure. In general, respondents would wish
the role of the national centre to be that of:

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 • identifying and co-coordinating national strategy for the support
of the teaching and learning of mathematics;

• interfacing with Government and its agencies, employer groups,

learned societies and professional bodies to ensure effective delivery
of that strategy;

• working to influence Government, employer and public perception

of the importance and high priority of the study of mathematics
both to the individual and society.

5.67 More specifically, respondents would wish the role of the centre to include
some or all of the following:

• provision of advice, resources and information in support of all

aspects of the teaching of mathematics, including the use of ICT
and distance learning materials;

• coordination of the development, dissemination, delivery and

accreditation of mathematics CPD;

• provision of guidance on emerging research and development in

relation to mathematics teaching and learning.

5.68 We shall consider in detail in Chapter 6 possible options for the remit of a
national network involving local centres. Meanwhile, we note that most
respondents to the Inquiry on this issue have argued strongly for the
establishment of a network of regional centres, in addition to the
establishment of a national centre. In addition, the overwhelming view of
respondents is that the support infrastructure should not be based on a single
institution or agency, however selected, but should be a consortia-based
network with central strategic direction. In particular, those with knowledge
and experience of the work of the pre-14 strategies have argued strongly
that a network of regional centres is essential. Without such a local network,
respondents are agreed that the majority of teachers will feel too remote from
a national centre to become involved in developments.

5.69 In general, respondents see the role of regional centres to be that of

coordinating local support delivery and providing both regional focus and
regional awareness – eg by interfacing with the Regional Development
Agencies (RDAs), employers, education authorities, institutions and training
providers. The Inquiry also believes that links between local education
providers and RDAs will become increasingly important and that this further
strengthens the case for regional as well as national support infrastructure.

5.70 More specifically, respondents would wish the role of regional centres to
include some or all of the following:

• provision of a forum for links and joint working among local

education providers and employers;

• development of formal working relationships with LEAs and

regional directors of the national strategies;

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 • support for local networks of teachers, linking schools, colleges and
higher education;

• support for and coordination of local delivery of CPD and other

support for the teaching and learning of mathematics.

5.71 We shall return later to a consideration of options regarding the role of

regional centres as part of national support infrastructure. However, we note
that whatever form of structure is adopted the following key mathematics
subject specific needs have been identified over and over again in responses
to the Inquiry:

• to raise informed awareness of the wider applications of

mathematics – in science and technology, in society, in everyday
life, in the workplace and in other subjects;

• to extend the base of research-based evidence on teaching and

learning strategies;

• to encourage and facilitate interaction throughout the wider

mathematics community on an ongoing basis;

• to ensure that teachers at all levels are actively engaged in

networking;

• to expose teachers to material on modern developments in

mathematics, the scope of its application and the wide range of
employment possibilities;

• to ensure confidence and security in teachers’ mathematical and

pedagogical knowledge and to encourage the use of a wide range
of teaching styles;

• to ensure that teachers are fully informed about the role and
potential of ICT to enhance the teaching and learning of
mathematics and have access to state-of-the-art hardware and
software;

• to provide scholarships and secondments for teachers to extend

their knowledge and understanding of issues in mathematics
education;

• to provide time for teachers to explore and reflect on mathematics

for its own sake;

• to link with the National College of School Leadership (NCSL) to

provide quality training and advice for experienced, new or aspiring
heads of mathematics departments;

• to provide local management and peer support, through

responsive teams at school and local level, for teacher-centred self-
diagnosis of development needs;

• to integrate CPD with curriculum development and enhancement

activity;

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 • to integrate CPD with classroom/school-based research and
development work at national, regional/local/schools levels;

• to develop an entitlement for each school and each individual

teacher of an allocation of resources for CPD, including time;

• to ensure that CPD is an ongoing experience throughout the

course of each teacher’s career;

• to offer accreditation for CPD courses in a way that will allow

teachers to collect credits in flexible ways;

• To develop kite-marked accreditation systems for CPD.

5.72 In terms of a longer term research and development agenda for the new
infrastructure, respondents have identified the following key areas:

• the development of new 14-19 pathways;

• the development of more critical pedagogies, based on developing

mathematical comprehension, communication and argumentation;

• the development of new approaches to assessment, including

diagnostic and formative assessment;

• the development of new approaches to mathematics teaching and

the curricula to take account of developments in technology and
in usage;

• the development of mathematics teaching for and with other

subjects and as part of vocational programmes, such as modern
appenticeships.

5.73 Continuing professional development in mathematics is currently provided by

the NN and KS3 strategies, by higher education, by LEAs, by schools and
colleges for their own staff and by private providers, particularly in vocational
areas. There are some instances of schools providing professional development
for staff in other schools – for example, Beacon schools, schools with
Advanced Skills Teachers and Leading Mathematics Teachers. However, at
present, there is no national registry of all the continuing professional
development opportunities available. Respondents see a need for an
infrastructure that would set up a database to keep track of and quality access
all externally provided CPD in mathematics. Following on from this, work
could be commissioned in close collaboration with the best providers to
enhance, develop and promote CPD in mathematics. Many respondents
would like to see this lead on to kite-marking of provision.

5.74 As we have indicated, respondents to the Inquiry have overwhelmingly

endorsed the important conclusion of the ACME report that there is a need
for both a national centre and local centres. The national centre is seen as
essential to provide strategic direction and coordination of expertise in all
aspects of the support of the teaching and learning of mathematics, as well
as to provide a focus for close working with national stakeholders.
Respondents have also argued that regional centres are essential to provide

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 accessible delivery of CPD, coordinate local support networks for teachers of
mathematics and provide a focus for close working with RDAs, LEAs and other
existing local networks and stakeholders. The Inquiry wholeheartedly endorses
this conclusion.

5.75 We have considered the option of only creating a new central structure to
oversee all post-14 CPD, with direct delivery through some form of local
consultant network, essentially following the model of the existing strategies.
This would have the attraction of avoiding creating a formal network of
regional centres. However, we believe there to be two major problems with
this approach.

5.76 First, the breadth and range of subject matter and subject specific pedagogy
across the post-14 agenda is considerably greater and more diverse than that
covered by the primary and KS3 strategies. We do not believe it would be
possible to achieve coverage of the entire post-14 agenda – including GCSE,
AS- and A-level, Further Mathematics, and the whole spectrum of vocational
and key and basic skills mathematics courses and qualifications through a
manageable network of local consultants. Furthermore, even if sufficient and
appropriate expertise could be identified, given the scale of the post-14
mathematics agenda, following the model of the existing strategies is likely
to have the undesirable effect of removing a very large number of some of
the best qualified teachers from day-to-day post-14 mathematics teaching in
the school and college setting.

5.77 Secondly, we have been entirely convinced by the argument that we need
to build and sustain local networks of support, bringing together schools,
colleges, HE and other stakeholders, including the RDAs and local employers.
The absence of an integrated network of all relevant stakeholders is a serious
current weakness. As many respondents have impressed on us, this is not just
a prerequisite for culture change in relation to CPD and sustainable on-going
support and mentoring of teachers of mathematics. It is also a prerequisite
for addressing the current lack of involvement of HE and employers with local
mathematics teachers and for raising the profile and awareness of
mathematics. We are currently failing to harness the full range of available
expertise and resource and to share and disseminate knowledge and best
practice. Greater involvement of these important stakeholders would provide
considerable added value, both in terms of additional expertise and resources
and also in raised awareness on all sides – and, in particular, among careers
advisers – of the all-pervasive importance and applicability of mathematics.
The Inquiry is led to conclude that a network of regional centres is essential.

Recommendation 5.4

The Inquiry recommends that the national support infrastructure for the teaching and
learning of mathematics take the form of a national centre providing strategy and
coordination, together with regional centres providing local support and networking.

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5.78 In responses to the Inquiry, there has been an indication of interest from
Northern Ireland and Wales in developing centres that would in part play a
similar role to English regional centres, but would also have a strategic role
in relation to specific local concerns arising in the Northern Ireland and Wales
systems. In the case of Northern Ireland, the NINS Steering Group (which
has representatives from key stakeholders in NI) has informed the Inquiry that
they “would be strongly in favour of a regional mathematics centre”. Scotland
will consider at a later stage whether or how future developments of CPD
for teachers of mathematics in Scotland might relate to or interact with such
an infrastructure in England.

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126
6 NATIONAL AND REGIONAL
SUPPORT INFRASTRUCTURE
Existing and potential providers, networks and
initiatives
6.1 Whilst supporting strongly the need for a national support infrastructure for
the teaching and learning of mathematics, many respondents have been
concerned to point out that such a structure should work with, build on and,
wherever appropriate, incorporate existing provision, networks and initiatives.
In addition, respondents have drawn attention to the need to promote and
encourage greater involvement of key stakeholders who have hitherto not
played a central role in supporting teachers of mathematics. Much of this
echoes the key requirements laid down by the Secretary of State in March,
2003 (see paragraph 5.56).

6.2 In reviewing existing provision and initiatives and in considering possible

models for a national support infrastructure, we have had to consider whether
and to what extent we should recommend that existing provision and
initiatives should be formally incorporated within a national centre or regional
centres. On the one hand, we clearly need greater strategic coordination of
certain key established activities, but on the other hand we are aware of the
need to allow – and indeed encourage – creative, experimental initiatives.
We are also aware that the latter often depend on the energies of committed
individuals or groups who typically value their independence, often
underwritten initially by charity funding. In what follows, in considering
options for the remit of the national and regional centres we shall therefore
adopt two different kinds of recommendation, corresponding to two different
kinds of role for the national and regional centres in relation to existing or
emerging provision and initiatives.

6.3 The first kind of recommendation will identify certain areas as definitely
needing to come directly under the auspices of the national or regional
centres as a prerequisite for overall coherent strategy and coordination of
support for teachers of mathematics. The second will identify areas where,
in our view, the centre should have a more indirect role, not seeking any
immediate direct control but having the role of a provider of development
funding and a monitor and evaluator of the outcomes of initiatives. The aim
here should be to identify activities that might eventually be sustained and
rolled out across the wider school and college sector under the auspices of
the centre.

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The role of the Numeracy and Key Stage 3 Strategies
6.4 We consider first the Secretary of State’s requirement that the new
infrastructure work to support the National Numeracy Strategy in primary
schools and the mathematics strand of the Key Stage 3 Strategy in secondary
schools.

6.5 For primary teachers in England, professional development opportunities in

mathematics have been provided by the National Numeracy Strategy. This
has addressed key areas of the mathematics curriculum and teaching practices
and has produced a wealth of materials and guidance for numeracy
consultants and teachers. These are widely acknowledged to have
strengthened subject knowledge, curriculum provision, planning and
teaching. The Strategy supports some 400 numeracy consultants and much
of the support and training the Strategy provided to schools is delivered
through consultants working in LEAs. The consultants mediate centrally
produced training, which is accredited by some HE Institutions by
acknowledging the successful completion of this training within their award
structures.

6.6 The NNS consultants in each LEA run both nationally provided and locally
developed courses. The key core component is a five-day course, which
includes both subject content and pedagogy. These have provided at least 5
days of out of school training plus a series of personal classroom visits to
more than 100,000 primary teachers. In each LEA, there are further courses
targeted at selected schools deemed by the LEA to be most likely to benefit
from further support. In addition, there are short courses run specifically for
head teachers and school mathematics coordinators. Evidence to the Inquiry,
suggests that around 20,000 primary head teachers and a similar number of
mathematics coordinators have had opportunities out of school to consider
the management of mathematics and the professional support they give their
teachers.

6.7 For teachers of mathematics to 11-14 year olds in secondary schools in

England, professional development opportunities in mathematics have been
provided by the mathematics strand of the KS3 Strategy. This, too, has
produced a wealth of material and guidance for Key Stage 3 consultants and
teachers. The KS3 consultants in each LEA run both nationally prescribed and
locally developed courses that have been delivered to around 4000 teachers
of mathematics in secondary schools. A key core component is a four-day
course for less experienced teachers of mathematics, which includes both
subject content and pedagogy. Another key course is that for heads of
mathematics departments in secondary schools, which includes developing
skills in leading departments. This has been delivered to around 4,000
secondary heads of department. Recent developments include providing
courses on how to organize and stimulate discussion on content and
pedagogy in the within-school context of departmental meetings. All schools
have been offered training and classroom resource materials to support the
development of innovative pedagogic strategies to engage pupils in handling

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 data, ratio and proportion and geometric reasoning. In addition, all schools
have received resources and training to improve the teaching of pupils
working below expected levels.

6.8 Evidence to the Inquiry suggests that, notwithstanding some reservations, the
training provided by the NN and KS3 strategies has generally been well
received and has had positive effects on professional development for many
teachers of mathematics. The Inquiry has also noted that the KS3 Strategy is
currently developing a range of whole-school support initiatives, which are
intended to complement subject specific work. The Inquiry is not competent
to judge whether such whole-school initiatives will contribute to improvements
in mathematics teaching. However, we would be seriously concerned were
there to be any move away from at least current levels of resources for
mathematics CPD for primary teachers and KS3 teachers of mathematics.
Respondents from Northern Ireland have reported that decisions about future
work plans, funding and staffing for the NINS have yet to be taken.

6.9 Although these issues are formally outside the remit of the Inquiry,
respondents have made clear their obvious concern that ongoing
improvements to pre-14 mathematics education are a pre-requisite for future
developments and improvements post-14. Also, whilst respondents have
acknowledged the very real positive impact of the strategies, there is a clear
view that much still remains to be done. For example, respondents have
noted that in a survey in 2001 of teachers of mathematics in the Key Stage
3 pilot schools, it was found that nearly 50 percent of KS3 mathematics
classes were being taught by non-specialists. The Inquiry also notes that the
total of 4000 teachers thus far involved in the KS3 strategy represents an
average of less than one mathematics teacher per secondary school. We shall
discuss the issue of taking forward the work of the strategies later in this
chapter. Meanwhile, we make the following clear recommendation.

Recommendation 6.1

The Inquiry recommends that the work of the National Numeracy Strategy and the
mathematics strand of the KS3 Strategy be continued and built upon, and that resources
for mathematics are ring-fenced for any future form of successor to these strategies for
KS1-3.

6.10 Many with experience of the strategies in England have pointed out to the
Inquiry that the network of local consultants in place to support the strategies
itself already provides an important existing infrastructure for the future
support of primary and KS3 initiatives or their successors. There is a strong
consensus that this should be further strengthened and exploited in
developing the national infrastructure. Respondents to the Inquiry on behalf
of the strategies have themselves also indicated a desire for close working
with any new national infrastructure. The Inquiry has therefore considered
carefully how best this might be done.

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6.11 As indicated in Recommendation 6.1, the Inquiry believes it to be essential
that there be ring-fenced funding for the numeracy and mathematics
components of the primary and Key Stage 3 strategies. Assuming the
continuation of funding, one option would be to continue with the current
stand-alone managerial and organizational arrangements for the strategies.
These seem to have worked well in delivering the strategies to date. However,
a number of respondents have argued that this would be a mistake and a
missed opportunity to begin to get a coherent overall strategy for CPD, linking
mathematics education across all ages.

6.12 We note first that respondents have stressed the need in any case for the
existing strategies themselves to be reviewed and refreshed in the near future
and that it would be timely to undertake such a review in the light of the
post-14 Inquiry report. In particular, it has been pointed out that within a
few years there will almost certainly be significant curriculum changes post-
14 and that these will necessarily have a significant impact on KS3 CPD needs.
Incorporating the KS3 strategy into the new infrastructure is therefore seen
as a prerequisite for developing a coherent approach to providing teachers
with mathematics CPD throughout the secondary school.

6.13 More fundamentally, respondents to the Inquiry have overwhelmingly drawn

attention to what they perceive to be a current lack of a forum for joined
up thinking about school mathematical teaching and learning across the
entire age spectrum – from primary schools through to higher education.
Although outside the formal remit of this Inquiry, we have been very surprised
to learn how little historical local contact and joint working there has been
in relation to mathematics teaching and learning at the primary/secondary
interface and at the secondary/FE/HE interface. Most of the initiatives we have
encountered have only been undertaken in the past couple of years. The
Inquiry is convinced that incorporating the existing strategies into the new
infrastructure would greatly facilitate coherent thinking in relation to
transitions between stages within schools and colleges and from schools and
colleges to higher education.

6.14 Also, in relation to CPD provision for teachers in secondary schools,

respondents have drawn attention to the fact that within schools there is for
the most part no sharp divide between KS3 and post-14 teaching at the
individual teacher level. Indeed, some respondents to the Inquiry have
indicated that changes to teaching and learning in KS3 promoted by the
Strategy have already begun to permeate KS4 and college teaching. Coherent
provision of ongoing CPD for the individual teacher therefore clearly requires
there to be no unnecessary demarcation in the planning and delivery of “pre-
and post-14” CPD.

6.15 The Inquiry believes that, providing care is taken to preserve the good local
working relationships that currently exist, there would be considerable
advantages in incorporating both the existing strategies into the new national
support infrastructure. In the case of the KS3 Strategy, we believe the case
to be overwhelming. For there to be coherent planning and delivery of CPD

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 for mathematics teachers within secondary schools and colleges, we believe
it to be essential that the mathematics strand of the KS3 Strategy be
incorporated into the national support infrastructure.

Recommendation 6.2

The Inquiry recommends that the existing mathematics strand of the KS3 Strategy be
incorporated into the national support infrastructure and that the existing funding for
this strategy be brought under the auspices of the infrastructure. The Inquiry also
recommends that serious consideration be given to similarly incorporating the National
Numeracy Strategy. The Inquiry further recommends that, on incorporation, a review of
the content and delivery of the strategies be carried out under the auspices of the new
infrastructure.

6.16 With respect to Northern Ireland, the Inquiry notes that were there to be a
local component of the national support infrastructure, the relationship with
CASS and the NINS (or any successor strategy) would have to be worked
out locally in Northern Ireland.

The role of Higher Education in supporting Schools

and Colleges
6.17 The acknowledged problem of professional isolation amongst teachers is also
seen as a key issue that must be addressed. An important function of the
constituent consortia is therefore seen to be that of bringing together into
local networks practitioners from different areas of the profession of
mathematics. In particular, respondents from both the schools and FE sectors
have drawn attention to the need to stimulate greater interaction between
HE mathematics and school and college mathematics, in part at least to
encourage students at schools and colleges to become the next generation
of mathematics teachers, graduate students and academics. We therefore next
consider the Secretary of State’s requirement (paragraph 5.56) that the new
infrastructure link schools, colleges and universities to create strong subject
specialist networks.

6.18 Schools of Education in HEIs do, of course, work closely with schools.
However, the Inquiry notes with concern that – with some notable exceptions
– there is relatively little current, systematic interaction between mathematics
departments in HEIs and schools and colleges. There also appears to be little
interaction in some instances between mathematics departments and schools
of education within individual HEIs.

6.19 This state of affairs should not be allowed to continue. The Inquiry believes
that there should be closer working between all HE mathematics departments,
schools of education and their local schools and colleges. The Inquiry believes
that this would open up a number of opportunities for higher education to
provide significant new and sustainable support for local teachers of
mathematics by:

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 • enhancing pupils’ and teachers’ mathematical attainment, through
individual mentoring;

• increasing pupils’ and teachers’ awareness of the extraordinary

range of applications of mathematics and the many career
opportunities opened up by the study of mathematics;

• encouraging pupils to consider the possibility of a mathematics

teaching career.

6.20 Within their own institutions, staff in university mathematics departments, and
in other disciplines with a high mathematical content, are well placed to
contribute by:

• encouraging school student participation in mathematics

enhancement – eg by providing master classes;

• encouraging undergraduates to consider teaching as a valued and

rewarding career, including practical opportunities to obtain some
classroom teaching experience – eg through Ambassadors, Student
Associate and other mentoring schemes (see Chapter 2);

• where appropriate, supporting ITT in partnership with Schools of

Education;

• supporting teachers through mentoring and supervising advanced

degrees;

• ensuring that teachers are well-informed about developments in

mathematics research and applications.

6.21 In addition to the Ambassadors, Student Associate and other mentoring

schemes for those contemplating a teaching career, the Inquiry believes that
the general population of HE students in disciplines with a high mathematical
content provides a potential pool of skilled teaching assistants to support
teachers of mathematics in schools and colleges. The Inquiry would wish
therefore to add support to Recommendation 2.8 of the SET for Success report.

Recommendation 6.3

The Inquiry recommends that a programme be established to pay selected volunteer

undergraduate and postgraduate students in disciplines with high mathematical content
to support teachers of mathematics in schools and colleges. Payment should be on a
competitive basis with other sources of employment open to such students. The precise
nature of the support role should be for schools, colleges and universities to decide locally.
(See also Recommendation 6.14, ninth bullet point.) It will be important to ensure that
those participating have the appropriate skills and training.

6.22 The Inquiry has also noted the potential for greater involvement of the HE
Mathematics, Statistics and Operations Research Network, part of the HE
Learning and Teaching Support Network (LTSN). The primary focus of the
LTSN is teaching innovation and quality in Higher Education throughout the

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 UK, and the LTSN is currently in the process of being incorporated into The
Higher Education Academy, a new body committed to the enhancement of
the quality and status of teaching in HE. University departments involved in
both the Mathematics, Statistics and Operations Research and the Engineering
LTSNs seek to develop effective approaches to mathematics teaching for
mathematics students and students of mathematics in other disciplines, and
to share best practice.

6.23 The work of the LTSNs is primarily directed to teaching and learning within
higher education. However, the Inquiry has noted with considerable interest
that the network also provides significant support materials at the
school/university interface. Current outreach activities of the network at the
school/university interface include involvement with A-level students through
the MEI Further Mathematics Project (see later paragraph 6.44) and
involvement with school-based statistics activities through the Royal Statistical
Society’s Centre for Statistical Education. Through this latter organization, the
network has, for example, created Key Stage 2, Key Stage 4 and A-level
resources for pupils, produced teacher CPD training material and delivered
training through short courses.

6.24 In Scotland, the Network’s Assessment Consultant has played a leading role
in SCHOLAR, an initiative that provides online educational materials and
experiences in the form of a “virtual college” with a strong mathematics
component. Materials include simulations, animations, interactive tutorials and
online discussion groups. SCHOLAR aims to ease the transition from secondary
school to further and higher education and to assist more self-directed
learning.

The role of ICT in support of the teaching and learning

of mathematics
6.25 The Inquiry has noted with great interest that members of the LTSN
Mathematics, Statistics and Operation Research Network also have
considerable experience in the electronic delivery of materials aimed at
enhancing learning and teaching in mathematics and statistics. This is an area
requiring much more detailed consideration in the school and college context.
The Inquiry has not been able to identify any clear audit of the current
availability and use of ICT delivered learning and teaching resources in support
of mathematics teaching.

6.26 However, many respondents to the Inquiry have impressed on us that not all
mathematics classrooms in secondary schools and FE colleges in England have
even the basic resources for handling a significantly greater expansion of the
use of ICT. In particular, we have been informed that many mathematics
departments in secondary schools do not have an interactive whiteboard, or
sufficient access to rooms with sufficient computers and software for whole
class lessons, or an up to date, functioning set of graphical calculators for
the whole class.

6.27 The Inquiry believes that there are important tasks here for the new national

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 infrastructure. First, there is a need to understand the current position with
regard to the availability of ICT resources for mathematics teaching. Secondly,
there is a need to encourage appropriate use of currently available ICT
resources, ranging from better exploitation of videoconferencing facilities,
through to newer developments with the web and interactive and hand-held
technologies. Thirdly, there is a need to identify high quality software.

6.28 In Northern Ireland, there are significant ICT investments being undertaken
under the auspices of the C2K (Classroom 2000) initiative. In relation to
Recommendation 6.4, we therefore note that any local component of the
national support infrastructure in Northern Ireland would need to liaise closely
with existing or future C2K developments.

Recommendation 6.4

The Inquiry recommends that the remit of the new national support infrastructure include
responsibility for auditing existing ICT provision for mathematics in schools and colleges,
assessing the need and potential for future ICT provision in support of the teaching and
learning of mathematics and advising the DfES and the LSC on ICT investment
requirements for mathematics in schools and colleges.

6.29 Within the higher education sector in the UK, there is already considerable
specialist expertise in the LSTNs in relation to videoconferencing activities and
the use of ICT tools for mathematics communication and teaching and
learning. The Inquiry believes that ways should be found of extending and
sharing this expertise, through greater involvement of the LTSN with schools
and colleges. The LTSN Mathematics, Statistics and Operation Research
Network have indicated that they would very much welcome this opportunity,
provided that appropriate resources were made available.

6.30 More generally, the Inquiry believes it to be vital that universities should be
more actively engaged in interacting with and supporting mathematics
teachers in schools and colleges. In particular, they should be actively engaged
with consortia at national and local levels. The national infrastructure should
encourage this and provide pump-priming resources to underpin the
development of cooperative working between schools, colleges and HE
throughout the system.

Recommendation 6.5

The Inquiry recommends that the national support infrastructure provide appropriate
resources to enable the Committee of Heads of Departments of Mathematical Sciences
in HEIs in the UK (HoDoMS) to work together with the LTSN Mathematics, Statistics and
Operations Research Network to seek ways to promote sustainable closer links between
HEI mathematics (and other relevant) departments and mathematics teachers in their
local schools and colleges.

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 The potential role of the Open University (OU)
6.31 Many universities already play a significant role in the provision of CPD,
networking and other forms of reach-out to schools and the wider community
and we greatly welcome this. However, we have not been able to undertake a
survey of all such initiatives and it would therefore be invidious for the Inquiry
to single out specific institutions for special mention. However, we feel it
appropriate to draw attention to the particular role and track record of the OU
as evidence that elements of the structure and roles envisaged for the national
support infrastructure can be made to work effectively. The OU has the
organizational experience of being both a national education provider and also
running its own significant regional and local support infrastructure. The latter
works closely with the local delivery of the NN and KS3 strategies and with a
wide range of schools networks and other partners.

6.32 One of the Secretary of State’s requirements for the new infrastructure is that
it should cover all ages from pre-school, through universities and adult
learning. The Inquiry notes that the OU has experience of provision of
mathematics education across all ages from pre-school, through universities
to adult learning, including specialist postgraduate courses for mathematics
teachers. It has a national presence in the early learning years area through
its Faculty of Education and Language Studies (FELS) and a national presence
throughout the schools curriculum via FELS and its Centre for Mathematics
Education (CME). In addition, it has a considerable track record of
mathematics teaching at a distance for mature undergraduates and adults
who study part-time. Over the past 25 years, some 70,000 students have
passed through the equivalent of a foundation course in mathematics at the
OU and many practising teachers of mathematics have studied for Masters
Degrees.

Recommendation 6.6

The Inquiry recommends that in the detailed planning of the national support
infrastructure for the teaching and learning of mathematics particular attention should
be given to involving the relevant experience and expertise of the Open University.

The role of Specialist Schools

6.33 A recent development in England relating directly to subject matter support
and networking in the school system is the government’s specialist schools
initiative. As part of its general strategy for providing subject matter support
in schools, the Government is committed to creating ‘a new specialist system
where every school has its own specialist ethos and works with others to spread
best practice and raise standards’ (Secretary of State for Education and Skills,
A New Specialist System, 2003). One of the Secretary of State’s requirements
for the new infrastructure for the support of teachers of mathematics is that
it link with specialist schools and through them, with their local partner
schools, and universities to create strong subject specialist networks.

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6.34 There are currently around 80 Mathematics and Computing specialist schools.
Each school applying for specialist status produces a four-year development
plan that addresses the needs of the school, its family of schools and its
community. The plan is framed around objectives which focus on:

• improving standards of attainment in the specialist subjects and

on using the specialism as a lever to achieve whole school
improvement;

• enriching pupils’ learning experiences and provision in the specialist

subjects, through enhanced links with business; supporting
curriculum development and provision of appropriate courses;

• encouraging increased take up in the specialist subjects, especially

post-16.

6.35 A school’s community development plan is based on work with at least five
partner schools (primary and secondary) and the wider local community. This
will include activities planned across the transition from KS2 to KS3 and from
KS4 to post-16 education, for example with Colleges of FE and Sixth Form
Colleges in discussion with the local Learning and Skills Council. A key feature
of specialist schools is their commitment to developing and sharing best
practice through continuing professional development of their own staff and
local colleagues. Developments arising from this initiative are being taken
forward through a network provided by the Specialist Schools Trust. In
support of this network, the Trust runs a programme of conferences, seminars,
workshops and individual visits as part of its core function.

6.36 Many specialist schools have written into their plans the creation of an AST
post in mathematics to support effective teaching and learning strategies. The
Specialist Schools Trust is seeking to coordinate and develop the subject and
subject pedagogy leadership potential of ASTs and Leading Teachers, by
setting up lead practitioner networks to support subject and regional teams.

6.37 The DfES has provided some funding to enable the Trust to establish a series
of regional lead practitioner networks in subject specialisms, including
mathematics. In Spring 2003, the Specialist Schools Trust organised and ran
16 regional workshops for teachers of mathematics in the Trust’s affiliated
schools. Building on the experience of these regional events, the Trust is
establishing a CPD programme for teachers via a network of regional and
local centres, based around a taskforce of lead practitioners and a network
of ASTs in mathematics.

6.38 The Secretary of State referred explicitly to the need for the national support
infrastructure for teachers of mathematics to link with networks arising from
this initiative. The Inquiry has therefore considered carefully how the Special
Schools Trust’s emerging CPD programme and networks should relate to the
national support infrastructure.

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6.39 On the one hand, we are aware that this is a very recent initiative, most of
whose activities are at a very preliminary stage of implementation and trialling.
We are also mindful of the clear view of respondents that the support
infrastructure should be a consortia-based network, rather than based on a
single body or around a single initiative. The Inquiry is therefore clear that it
would be inappropriate at this stage to assign too central a role to these
developments. On the other hand, it would clearly be perverse for the
development of the work of the mathematics support strand of the specialist
schools to proceed outside the national infrastructure framework. The Inquiry
believes that the emerging special schools mathematics networks and the
other work of the Specialist Schools Trust have the potential to provide a
valuable resource and focus for supporting teachers of mathematics in both
secondary schools and colleges.

6.40 We believe therefore that, where appropriate, those involved in the piloting
and development of specific aspects of these initiatives – as with other
initiatives undertaken by other stakeholders – should be able to bid for support
from the national and regional centres (see Recommendation 6.7). However,
given the key role the Government intends the specialist schools to play in
relation to specific subject matter support, the Inquiry is clear that those
aspects of CPD and other developments which are intended to provide an
ongoing core element of the support of teachers of mathematics must be
brought under the overall strategic direction and coordination of the national
and regional centres, and be subject to inputs and guidance from a wide
range of stakeholders.

Recommendation 6.7

The Inquiry recommends that overall strategy for and coordination of the networking
and other CPD developments relating to the mathematics elements of specialist schools
be brought under the auspices of the national support infrastructure for the teaching and
learning of mathematics.

The role of voluntary initiatives

6.41 Outside the framework of large-scale developments imposed across the school
and college system, the UK has a tradition of independent small-scale
voluntary initiatives to support particular aspects of the teaching and learning
of mathematics. The Inquiry has not attempted a survey of all such initiatives
and is certainly not able to judge their relative contributions and impact.
However, in order to indicate how we think their relation with the national
and regional centres might typically be handled, we shall briefly describe six
such initiatives, selected to illustrate six rather different aims and approaches
to improving and enhancing the teaching and learning of mathematics.

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6.42 The UK Mathematics Trust (UKMT) is an independent body established, in its
own words, “to advance the education of children and young people in
mathematics and in particular by organising and running mathematical
competitions.” It runs annual Mathematics Challenges at junior, intermediate
and senior levels and organises the British Mathematical Olympiad, including
selective training and mentoring activities. The UKMT is responsible for
selecting and training the British team for the International Mathematical
Olympiad. Currently, over half a million secondary pupils and most secondary
schools in the UK participate in the Trust’s range of competitions and related
activities.

6.43 The Millennium Mathematics Project (MMP) was set up in 1999 as a joint
project between the Faculties of Mathematics and Education at the University
of Cambridge, bringing together a number of existing outreach activities,
which have since been developed and extended, supported by short-term
funding from a number of sponsors. The broad aim of the project is to help
people of all ages and abilities share in the excitement of mathematics and
understand the enormous range and importance of its applications. This it
attempts to do mainly through a programme of enrichment of the standard
curriculum. The MMP is active in a number of locations across the UK, both
through its web resources and video-conferencing programme and through
school visits and face-to-face teacher training and mentoring. The project has
worked directly with hundreds of schools all over the UK and its web-based
resources are used by thousands more teachers, pupils and parents across the
world, with around 25% of users located in the US and significant numbers
in Australia, New Zealand, South Africa, Hong Kong and Singapore.

6.44 The Mathematics in Education and Industry (MEI) project ‘Enabling Access to
Further Mathematics’ aims to make it possible for all sixth form students to
have access to studying Further Mathematics A-level through distance
learning, where this is unavailable to them through more traditional means
because of lack of resources in their local school or college. The project is in
a pilot phase that began in September, 2000, and is funded by the Gatsby
Charitable Trust. Students are allocated to an experienced distance tutor who
monitors progress and gives individual tutorial support via a combination of
e-mail, fax, telephone, visits and where possible on-line video conferencing,
which is being developed to enable students to have distance tutorials with
tutors at their lead centre. When not tutoring students, the tutors spend some
of their time developing web resources. Module ‘study days’ take place at
lead centres, enabling students to meet each other and the project staff. In
one university involved in the project, second year mathematics
undergraduates act as mentors to local sixth formers studying for Further
Mathematics qualifications through the project.

6.45 MEI is currently embarking on another project, “Upgrading Mathematics

Teachers”. The target group is the very substantial number of non-specialist
mathematics teachers teaching mathematics, who are experienced good
teachers, committed to the profession, but with rather limited knowledge of
the subject. The project – run jointly by MEI and the University of Warwick

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 with funding from the Gatsby Charitable Trust – will provide teachers with a
structured course at the end of which the expectation is that they will have
the mathematical knowledge and confidence to be able to teach mathematics
up to AS and A Level.

6.46 On-line web-based mathematics courses have been pioneered by the Thomas
Telford School as a response to the shortage of specialist mathematics teachers
in many schools and with the particular aim of raising achievement in
mathematics at GCSE. The project is currently funded by the HSBC Education
Trust. The GCSE course is designed in a way that enables it to be taught by
non-specialist mathematics teachers. The course aims to present mathematics
at Key Stage 4 level in a way that motivates and stimulates the learner, by
including a number of different categories, such as sport, travel and careers,
which give students a context to their study of mathematics. To date, 200
schools have used the Thomas Telford on-line programmes.

6.47 The National Education and Business Partnerships Network is the umbrella
organisation and national voice for 138 Education Business Partnerships
working in the UK. Within this framework, Number Partners have developed
a training scheme and operational practice for bringing cohorts of business
volunteers, HE students and community volunteers to work in schools
supporting selected students having difficulties with mathematics. This
currently works through activities such as board games at KS3. The organisers
believe the scheme could easily be extended to encompass activities suitable
for students at KS4 level and above. At present, the scheme operates in 38
locations nationwide, with 140 schools hosting 1036 volunteers supporting
2244 pupils.

6.48 It is not within the competence of the Inquiry to provide a serious evaluation
of the quality or impact of the particular initiatives described above, or of
others we have encountered. However, the Inquiry believes – along with many
respondents to the Inquiry – that, prima facie, these and other initiatives do
have the potential for significantly enhancing the teaching and learning of
mathematics in schools and colleges. Some respondents have argued that we
suffer from having too many, small scale, uncoordinated, independent
initiatives, each competing for limited funding, not systematically evaluated
and rarely leading to any sustained embedding of new practice throughout
the system. It is argued that it would be better if all these initiatives were
now brought together under the auspices of the national and regional centres,
in order to provide coordination and, where appropriate, sustainability. We
do not support this option. We believe there to be an important role for
independent initiatives and believe there to be a danger of stifling creativity
and individual energy by insisting on central bureaucratic control of all
developments, right from the beginning.

6.49 However, we recognise the point that has been made about embedding and
sustainability. We believe, therefore, that we should continue to encourage
and welcome independent initiatives but that a way needs to be found to
systematically evaluate their impact and subsequently to embed and sustain

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 successful practice throughout the system. Here, we see a natural role for the
national and regional centres. The centres should be given responsibility for
keeping a watching brief on such initiatives in order to identify those with
potential for larger scale implementation. Subsequently, in response to bids
for funding from those initiatives seeking to proceed beyond the pilot stage,
the national and regional centres should have the remit to undertake formal
evaluation, with a view to supporting the systematic roll out of successful
initiatives across the school and college system. Large-scale implementation
of successful initiatives will, of course, require the commitment of sustained
funding and appropriate ongoing management and accountability. Again, we
see this as part of the remit of the national and regional centres.

Recommendation 6.8

The Inquiry recommends that the remit of the national infrastructure include responsibility
for encouraging and evaluating independent initiatives in the teaching and learning of
mathematics and for funding and managing dissemination of successful initiatives more
widely across the school and college system. The Inquiry recommends that the overall
resources provided for the national and regional centres include specific funding for this
purpose.

6.50 The Inquiry has some specific concerns about an existing initiative relating
to subject enhancement. SETNET, the Science Engineering and Technology
Mathematics Network, is a high-profile existing initiative involving 86 member
organisations representing Government, industry, the engineering professional
institutions, education and education charities. SETNET aims to stimulate a
flow of well-motivated, high quality students from schools who have an
interest in, and an understanding of, engineering related subjects. The report
SET for Success identified SETNET as the Government’s preferred route for
presenting a coherent message to teachers and industry about the schemes
and initiatives available to enhance and extend the key curriculum subjects
of science, technology and mathematics.

6.51 The Inquiry supports SETNET’s mission to enrich and support the curriculum
in schools. However, we are very concerned about the paucity of provision
of enrichment resources relevant to mathematics that are currently available
nationally through SETNET and the regional delivery SETPOINTS outlets. There
is extremely limited provision in mathematics, particularly at secondary level,
and we believe that this gap should be filled as soon as possible. The Inquiry
also notes that exactly the same problem exists in relation to the provision
of material to inform careers teachers and advisers in schools and colleges
about the all-pervasive applicability of mathematics and the career
opportunities opened up by the study of mathematics. The Inquiry has
received a great deal of worrying comment from respondents about the lack
of availability of informed careers advice in schools and colleges about
mathematics and the study of mathematics. We believe that this issue should
be given high priority.

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 Recommendation 6.9

The Inquiry recommends that the national infrastructure work with SETNET to improve
the provision of mathematics enrichment and careers advice resources provided through
SETNET and that appropriate funding be made available either through SETNET or the
national infrastructure to support this development.

Support of teachers of adult numeracy

6.52 Among the Secretary of State’s requirements for the new infrastructure is that
it should support adult learning. In this connection, respondents to the Inquiry
have indicated that, in the context of the Government’s Skills for Life strategy,
teachers of adult numeracy in adult education institutes and in the workplace
and non-specialist teachers of mathematics and numeracy to adults in further
education would particularly welcome support from the new infrastructure.

6.53 The Inquiry believes that, in order to understand how best to provide this
support, the new infrastructure will need to collaborate with researchers and
practitioners with special experience and expertise in the area of adult
education. The Inquiry believes that the key body will be the DfES funded
National Research and Development Centre for adult literacy and numeracy
(NRDC), which is a consortium of partners led by the University of London
Institute of Education. Adult numeracy is a particular focus of the NRDC’s
work and, in November 2003, it published its first major report, Adult
Numeracy: review of research and related literature.

Recommendation 6.10

The national infrastructure for the support of the teaching and learning of mathematics
should set up formal collaborative links with the NRDC, with a view to exploring how
best to support teachers of adult numeracy.

Evaluation and dissemination of research in

mathematics education
6.54 There is currently considerable research activity in the field of mathematics
education, but there is no national forum charged with systematic evaluation
and dissemination of national and international research findings in order to
provide an appropriate evidence base for policy and practice. The Inquiry
believes that such a forum is required.

6.55 One option would be for this to be a stand-alone entity. However, the Inquiry
has noted the views of respondents that it is essential that the development
of CPD and other support activities for teachers of mathematics should be
appropriately informed by relevant research findings. We therefore see great
merit in including in the remit of the new infrastructure responsibility for
systematic reviews of research and development findings and materials and

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 ensuring that these inform mathematics CPD and other support
developments. The British Society for Research in the Learning of Mathematics
provides one possible partner for the national centre in taking this forward.
The Inquiry has also noted the recent significant investment by the Economic
and Social Research Council in mathematics projects within its Teaching and
Learning Research Programme. The Inquiry believes that the new
infrastructure will wish to work closely with these and other partners in
developing a research and development evaluation and dissemination
capacity.

Recommendation 6.11

The Inquiry recommends that the remit of the national infrastructure for the support of
the teaching and learning of mathematics include the responsibility and resource for
providing a national forum for the evaluation, synthesis and dissemination of research
and development findings in the field of mathematics education in order to provide an
evidence base to inform policy and practice.

Remit and responsibilities of the national and regional

centres
6.56 The Inquiry has considered the option of only establishing a single national
centre, directly working with schools through the LEAs, thus obviating the
need for regional centres. We have rejected this option on two broad grounds.
First, the breadth and depth of the post-16 curriculum far exceed those of
the KS1-3 curricula and we do not believe that a local consultant based CPD
delivery model similar to those of the Numeracy and KS3 strategies would
be appropriate or feasible, given the very wide-ranging CPD needs post-16.
Secondly, we have received overwhelming endorsement from respondents to
the Inquiry of the need to build and sustain local communities and networks.
These should not just be concerned with CPD delivery, but should also serve
to bring together a wide range of stakeholders in support of all aspects of
the teaching and learning of mathematics and also wider issues of profile
raising, awareness and career advice. This led us to Recommendation 5.4,
which we now follow up in more detail.

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Recommendation 6.12

The Inquiry recommends that the national infrastructure for the support of the teaching
and learning of mathematics consist of:

• a National Centre for Excellence in the Teaching of Mathematics (NCETM) to

provide expert advice, resources and information in support of the teaching of
mathematics, and to oversee the funding for the development and dissemination
of mathematics CPD provision at a strategic level and to coordinate its operation
nationally;

• a network of Regional Mathematics Centres (RMCs) to encourage the formation

of local communities of teachers of mathematics and relevant stakeholders across
all phases and to oversee and coordinate local delivery of CPD.

Recommendation 6.13

The Inquiry recommends that the NCETM should:

• provide a forum to bring together all major groups and agencies involved in
mathematics education, including from England the DfES, National Strategies,
QCA, Ofsted, LEAs, HEIs, LSC, SSCs, ACME, ITT providers, together with
equivalent groups and agencies from those territories which choose to be part
of the NCETM;

• work with the GTC, TTA and other appropriate groups, including the relevant
groups from those territories which choose to be part of the NCETM, to ensure
national cohesion in mathematics CPD provision and accreditation;

• incorporate the current CPD work and funding of the NN and KS3 Strategies;

• work closely with the RMCs to provide a centre of expertise for research and
development and the commissioning and dissemination of CPD and learning
and teaching materials, including distance learning materials and materials to
enhance the teaching of mathematics through the use of ICT;

• work closely with the RMCs to ensure an adequate supply of “expert teachers”
to provide mentoring and support to local schools and colleges;

• coordinate and monitor CPD delivery provided by the RMCs;

• provide a national forum for the evaluation, synthesis and dissemination of

research and development findings in the field of mathematics education;

• provide a database and act as an archive for exemplary teaching and learning
and CPD resources and research and development findings;

• support and encourage the further development and dissemination of existing

mathematics enhancement and distance-learning initiatives;

• foster international links and collaborative exchanges in relation to research and

development in mathematics education.

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 Recommendation 6.14

The Inquiry recommends that the RMCs should:

• be located one in each of the 9 English regions as defined by RDAs, with possible
additional national centres in Wales, Northern Ireland and Scotland;

• have formal close working relationships in England with local LEAs and Numeracy
and KS3 Strategy regional directors, and with equivalent bodies and individuals
from those territories which choose to establish a RMC;

• provide a forum for school, college, FE and HE local links and joint working;

• provide a forum for links and joint working among education providers and
teachers, and employers, including RDAs, local LSCs, SETNET, Education and
Business Partnerships and equivalent territorial agencies;

• provide support for local networks within the regional networks, building on
existing local networks, including mathematics teacher associations, mathematics
specialist schools networks, the LTSN for Mathematics, the regional and local
activities of the mathematics professional and learned societies, the OU and other
HEIs;

• work with the NCETM to deliver CPD regionally/locally for teachers of

mathematics (including those teaching other disciplines or vocational subjects)
and those who support mathematics teaching across all age groups;

• work with the NCETM to provide a regional/local CPD research and development
and dissemination capability in mathematics education;

• provide a regional/local source of expert advice and information on all aspects

of the teaching of mathematics;

• provide infrastructure support for quality assured schemes for bringing HE

students into the classroom (see, also, Recommendation 6.3);

• together with the NCETM, develop and promulgate programmes and projects
aimed at raising the profile of mathematics with pupils, teachers, careers advisers,
parents, employers and the public.

Funding requirements for the NCETM and the RMCs

6.57 The Inquiry has been asked by the Secretary of State to give an indication
of the scale of funding required for the national support infrastructure in
England. In terms of the proposed NCETM and RMCs, we shall approach this
by comparison with related existing activities. Throughout, we assume that
if the existing strategies in England are incorporated into the new
infrastructure, existing funding will be made available to the NCETM and
RMCs. The discussion that follows therefore refers only to additional funding
relating to the new (ie not existing strategy) roles of the NCETM and RMCs
in England.

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6.58 We note, for example, that as part of the National Network of Science
Learning Centres, the proposed National Science Learning Centre (funded by
the Wellcome Trust) has a ten year funding horizon, with a total capital
contribution of £10M over the first three and a recurrent contribution of
£15M over the period. The focus is directed primarily towards subject leaders.

6.59 The proposed 9 Regional Science Learning Centres (funded by the DfES) have
a five year funding horizon, with a capital total of £11M over the first three
years and a recurrent contribution of £15M over the period.

6.60 The National Numeracy Strategy (for primary school teachers) has been
funded at the level of around £100M per annum for each of the past four
years. Of this, around £21M has supported consultants and associated
administration costs; £10M has funded a leadership programme; and most
of the rest has funded training and direct school interventions. The current
costing for delivery (not including central costs) is £175 per training day per
teacher. In addition, there is a central team responsible for writing training
materials, briefing the LEA consultants on the materials and overseeing the
local delivery.

6.61 The KS3 Strategy (consisting of 5 subject strands and aimed at teachers of
11-14 year olds) has been funded at the level of £220M per annum. Of this,
as direct expenditure on mathematics one can identify about £14M for subject
specific expert consultants employed by LEAs; about £14M to schools to
access training; and out of the £20M spent on the central management of
the strategy (including development of teaching and learning materials and
monitoring of the delivery) around £3–4M.

6.62 If currently small-scale pilot projects like the Millenium Mathematics Project,
the MEI Further Mathematics project and the Thomas Telford online
mathematics course developments are to achieve significant penetration of
the school population, they would need significant scaling-up (perhaps by
factors of 20). The scaling up of funding would not necessarily be linear, but,
for example, we note that the MEI project has been funded at the level of
£360K over 3 years by the Gatsby Educational Trust and the cost of producing
the on-line GCSE courses by Telford school has been £700K, funded thus far
by the HSBC Education Trust.

6.63 The relevant aspects of these comparisons for the envisaged remit of the
NCETM are those pertaining to initial set-up (refurbishment and ICT
provision), the costs of a central team and overheads and the costs of the
production and dissemination of materials for CPD. In what follows, we
assume throughout that the funding for actual CPD delivery, teacher release,
etc, will be assigned to the budget for the RMCs.

6.64 For the NCETM, in addition to the incorporation of staff from the existing
strategies, we envisage the appointment of a (high profile) director, together
with an executive core of around 8 senior and 4 support staff (comparable
in full time equivalent staff numbers to the Numeracy and KS3 central

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 directing teams). We further envisage that the scale of operation for new
post-14 provision over an initial five-year horizon (with a front loading to the
first three years) will be at least as great as that of the KS3 operation. This
takes into account the greater complexity and diversity of post-14
qualifications and the developing and disseminating of materials to cover all
the needs both for CPD aimed at non-specialists and at specialists. It also
recognises the potential need for more emphasis on distance delivery to
overcome the recognised problem of releasing mathematics teachers from
schools and FE Colleges.

6.65 These comparisons suggest that the start-up funding requirements for the
NCETM (refurbishment of offices, archive/library, meeting and seminar rooms,
ICT, including broad-band and video-conferencing facilities) over and above
requirements arising from the incorporation of the existing strategies are likely
to be similar to those of the regional science centres, but with an additional
premium in recognition of providing a national library/archive; ie around
£2.5M for the first year.

6.66 These comparisons also suggest that the recurrent funding required to achieve
initial comprehensive coverage of the development and dissemination needs
for CPD and the other elements listed above for the remit of the NCETM
over a five year time horizon is likely to be of the order of £4.5M recurrent
for each of the first three years. Thereafter, recurrent funding of £2M might
suffice to sustain a steady-state operation.

6.67 Clearly, these recurrent funding needs can be reduced by extending the time
horizon over which it is aimed to achieve complete coverage of initial CPD
needs and/or by scaling down the remit of the NCETM. However, the Inquiry
believes that this would be unwise. There is considerable urgency in tackling
the teaching skills deficit and we are mindful that the Secretary of State has
indicated that the centre should serve the needs of teachers of mathematics
across the whole spectrum.

Recommendation 6.15

The Inquiry recommends that, in addition to the transfer of funding from the existing
strategies, the funding provision for the first five years of the NCETM should be of the
order of £7M in year 1, £4.5M in years 2, 3 and £2M in years 4, 5, giving a total of
£20M over 5 years.

6.68 For the RMCs, in addition to the staff funded by the existing NN and KS3
strategies, we envisage that each of the nine English RMCs would have a
core full time equivalent staff of the order of 2.5 senior and 4 support staff.
This suggests something of the order of £400K start-up funding
(refurbishment of offices, meeting and seminar rooms, ICT, including broad-
band and video-conferencing facilities), and 300K annual direct running costs
for each RMC.

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6.69 The major expenditure in the RMCs will be on CPD delivery. There are
currently around 25,000 teachers of mathematics in secondary schools. We
have found it impossible to quantify properly the number of teachers of
mathematics in FE because mathematics pervades so many aspects of the
post-16 curriculum. However, respondents have felt that 10–15,000 teachers
of mathematics in FE Colleges is probably a reasonable estimate. In addition,
there is some need for mathematics CPD for those teaching mathematics in
other disciplines and in vocational courses.

6.70 Suppose, therefore, for the purpose of a baseline calculation, we were to take
25,000 as the (conservative) target population for new CPD provision
(assuming that a fraction in secondary schools will continue to receive CPD
under the KS3 strategy funding and that CPD funding currently related to
the current Key Skills agenda will be available for many in FE – although we
understand that currently this funding is not accessed by the majority of
mathematics teachers in FE). Suppose further that we were to aim –
inadequately in the view of many respondents to the Inquiry – to provide
everyone in the cohort with the equivalent of an average of 6 days CPD per
annum (not necessarily provided in out-of-school “6 day course” form and
probably varying from 0 to 12 days in actual individual CPD need).

6.71 Using the guideline figure of £175 per teacher per day provided by the
Numeracy Strategy, this suggests, based on a 6 day per annum assumption,
an annual recurrent cost for training of £26.25M (pro rata, just under £3 M
per RMC). There will also be an element of RMC recurrent cost for support
of other activities within the remit of the RMCs. This is likely to be of the
order of £100K per RMC.

Recommendation 6.16

The Inquiry recommends that, in addition to the transfer of funding from the existing
strategies, the funding provision for the first five years of the RMCs should be at least of
the order of £27M in year 1 and £26.6M in years 2, 3, 4, 5, giving a total of some
£133.4M over 5 years.

The governance of the NCETM and the RMCs

6.72 The Inquiry has sought opinions on appropriate governance arrangements for
the NCETM and the RMCs. We have received the clear message that the
composition of the governing body should reflect the wide range of
stakeholders identified during the Inquiry, but should also have a majority of
members drawn from bodies representing the mathematics and mathematics
teaching communities.

6.73 The Inquiry has identified the following government department and agency
key stakeholders in England (these would need to be augmented by
equivalent bodies for any territories that choose to be part of the NCETM
and choose to establish a RMC):

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 • the DfES will clearly play a key role in funding the new
infrastructure and will necessarily have a role in overseeing the set
up process and subsequent governance of the national and
regional centres;

• the LSC plays a key role in overseeing mathematics teaching in

Sixth Form and FE colleges;

• the QCA currently has the remit to write, develop and keep under
review the national curriculum; its role in assessment, curriculum
and qualifications development also make its work of key interest
to mathematics teachers; QCA has established stakeholder
networks and contacts and has pioneered joint working between
schools, colleges and HE in developing materials in algebra and
geometry;

• Ofsted is charged with inspection and evaluation of the quality of

delivery of teaching in schools and colleges and of ITT provision;

• the GTC has specific responsibility for providing advice to the

Secretary of State for Education and Skills on the training, career
development and performance measurement of teachers;

• the TTA is responsible for the recruitment and retention of teachers,

funds ITT and uses inspection outcomes to determine which ITT
courses are allowed to continue;

• LEAs, through mathematics specialists, play key roles in relation to

local networks and delivery;

• the NN and KS3 strategies play key roles and we have already
made clear (Recommendation 6.2) the Inquiry’s view that the
existing strategies should be incorporated into the new
infrastructure;

• relevant departments of HEIs must also become key stakeholders.

6.74 In addition, there are a number of subject associations in mathematics, whose

members include many of the most active and innovative members of the
teaching and advisory profession in mathematics. These associations are also
key stakeholders. The two main associations for school and college teachers
are the Mathematics Association (MA) and the Association of Teachers of
Mathematics (ATM). The MA individual membership consists almost entirely
of secondary school or college teachers of mathematics. The ATM has a larger
primary membership, but there are still many more secondary members in
ATM than primary teachers. There are also three other associations with
teacher/adviser members: the National Association of Mathematics Advisers
(NAMA), whose members typically work at LEA level as inspectors, advisers
or as consultants for the NN or KS3 strategies; the National Association for
Numeracy and Mathematics in Colleges (NANAMIC) and the Association of
Mathematics Education Teachers (AMET); these associations also have some
members in HEIs.

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6.75 There are also key stakeholders among the professional and learned societies
representing the various sub-areas of the discipline of mathematics: the
London Mathematical Society (LMS), the Institute of Mathematics and its
Applications (IMA) and the Royal Statistical Society (RSS). These bodies
operate on a UK-wide basis and the IMA has strong links with representatives
of engineering interests in HE and national professional bodies. The Presidents
of the four learned and professional bodies together form the Council for
Mathematical Sciences, which serves as a policy discussion forum for issues
of common concern. In addition, Scotland has the Edinburgh Mathematical
Society and the Scottish Mathematics Council. Also, the Education Committee
of the Royal Society (RS) has within its UK-wide remit an interest in
mathematics education.

6.76 These associations are brought together under the umbrella of the Joint
Mathematics Council of the UK (JMC). The Advisory Committee for
Mathematics Education (ACME) is a more recently formed body empowered
by the constituent bodies of the JMC to speak with authority on behalf of
the mathematics community on matters pertaining to mathematics education.
Respondents to the Inquiry have argued strongly that ACME should be closely
involved in the governance of the national support infrastructure. The Inquiry
supports this view and we shall return to this in the context of our detailed
recommendation concerning the national infrastructure and its governance
(Recommendation 6.17).

6.77 Employers are clearly key stakeholders in the new infrastructure. Recently, it
has been decided that the new sector skills council for science, engineering
and manufacturing technologies, SEMTA, is to lead on mathematics on behalf
of the sector skills councils. SEMTA is currently in the process of establishing
a new Mathematics Forum, which will include representatives of relevant
awarding bodies, regulatory authorities and government. The role of the
Forum will be to provide a means through which employers can help shape
future developments of all aspects of the mathematics curriculum, assessment,
standards, qualifications and quality assurance. In addition to the national role
to be played by SEMTA and the Mathematics Forum in representing
employers, at a local level the interests of employers will increasingly be
reflected in the work of the RDAs.

149
 Recommendation 6.17

The Inquiry recommends that, following an appropriate process of consultation, as the

first step towards the establishment of the centres for England the DfES appoint and
provide a secretariat for a council, to be responsible for overall policy and priorities for
the NCETM and RMCs within the remit identified in the Inquiry’s Recommendations 6.13
and 6.14. The Inquiry further recommends that the DfES channel funding for the NCETM
and the RMCs through the council, which should be accountable to the DfES for its use.
The council should represent the wide range of stakeholders we have identified and the
Inquiry recommends that over half of the membership should be appointed on the advice
of ACME.

The location and management of the NCETM and the

RMCs
6.78 The Inquiry has considered carefully the options for selecting the locations
and managements of the centres. As we have indicated on several occasions,
respondents to the Inquiry overwhelmingly favour consortia-based models for
the management of the NCETM and the RMCs. The Inquiry fully supports
this view and believes that the selection of locations and managements of
the centres should be made on the basis of an open bidding process

Recommendation 6.18

The Inquiry recommends that the locations and managements of the NCETM and the
RMCs in England be selected by a process which invites consortia bids to deliver the
agendas set out in Recommendations 6.13 and 6.14 and to provide appropriate
management and administrative infrastructure for the running of the centres. Consortia
will need to incorporate an appropriate range of national and local stakeholders. This
bidding process should be overseen by the DfES, advised by the appointed governing
council for the NCETM and the RMCs.

150
 APPENDIX 1: LIST OF
RECOMMENDATIONS BY CHAPTER
Chapter 1: The importance of mathematics
Recommendation 1.1

The Inquiry recommends that in England a high-level post be created in the DfES with
dedicated subject-specific responsibility for mathematics. The Inquiry further recommends
that in England a joint forum be created between the DfES and the LSC through which
high-level officers in the DfES and LSC with subject-specific responsibilities for mathematics
are charged with overseeing coherent strategy for 14-19 mathematics education.

Recommendation 1.2

The Inquiry recommends that, in order to enable ACME to play an important extended
role, including taking forward a number of the Inquiry’s recommendations, substantial
Government funding be made available to ACME. We recommend that this be channelled,
as is existing funding, through the Royal Society, in order to enable ACME to retain its
standing as an independent voice acting on behalf of the mathematics education
community.

Recommendation 1.3

The Inquiry recommends that the UK mathematics learned and professional societies form
an Advisory Committee on Mathematics Research and Industry (ACMRI), which would
be empowered to speak on behalf of the community to Government and others on
strategic level issues concerning the role of mathematics in the economy and society,
complementing ACME’s role in relation to mathematics education. The Inquiry suggests
that it would be valuable to also have a joint Advisory Committee for Mathematics (ACM),
formed from representatives of ACME and ACMRI, to speak on behalf of the community
on general strategic issues concerning mathematics.

Chapter 2: The supply of teachers of mathematics

Recommendation 2.1

The Inquiry recommends that the DfES undertake a review of school level resource
management of qualified mathematics teachers in England. This review should include
an assessment of whether current career paths and rewards provide appropriate incentives
for qualified mathematics teachers to continue teaching mathematics. The LSC might
wish to consider a similar exercise regarding the deployment of qualified mathematics
teachers in colleges.

151
 Recommendation 2.2

The Inquiry recommends that the DfES and the LSC work together and with the TTA to
review the frequency and scope of data collection relating to mathematics teacher and
teacher trainer numbers and qualifications. They should seek to agree a data collection
strategy that will provide the evidence base for a coherent policy approach to the supply
of appropriately qualified teachers for the teaching of mathematics across all secondary
schools, sixth form and further education colleges, and of appropriately qualified ITT
mathematics trainers. In particular, the Inquiry recommends that:

(i) a revised form of SSCSS, requiring a mandatory response, should be designed

and undertaken as soon as possible to cover not only secondary schools,
including those in the independent sector, but also sixth form and further
education colleges and providers of mathematics ITT;

(ii) categories of response be redefined, along similar lines to the Cockcroft

categorisation, to provide a clearer indication of teacher qualifications;

(iii) the breakdown of qualifications should be available separately for the those
teaching key skills, KS3, KS4 and post–16;

(iv) in view of the current critical position in regard to provision of teachers of

mathematics and the need for close monitoring of policy initiatives to improve
recruitment and retention, at least the first three new surveys should be
undertaken every two years.

Recommendation 2.3

The Inquiry recommends that at the earliest possible opportunity forecasts of future
teacher training number requirements for mathematics teachers be re-examined in the
light of:

• the estimate we have suggested of a current shortfall of at least 3,400 qualified

mathematics teachers in secondary schools;

• the age profile findings from the 2002 SSCSS;

• and taking into account the current position and future needs of independent
schools, Sixth form and FE Colleges, in addition to secondary schools.

Recommendation 2.4

The Inquiry recommends that the DfES give high priority to encouraging and funding a
significant increase in the number of mathematics graduates admitted to the Fast Track
Scheme and, in particular, a significant increase in the number of mathematics ASTs.

152
 Recommendation 2.5

The Inquiry recommends that the current TTA enhancement programmes for graduates
be evaluated carefully and that additional resources be made available to support and
reinforce successful programmes in mathematics. The Inquiry further recommends that
the TTA should consider introducing enhancement programmes that offer non-graduate
career changers opportunities, including bursaries, to complete graduate mathematics
course and secure QTS. The Inquiry recommends that, subject to appropriate quality
assurance, the DfES give high priority to providing any extra resources required by the
TTA in expanding mathematics enhancement programmes.

Recommendation 2.6

The Inquiry recommends that consideration be given to the introduction of new

mathematics teacher certification schemes, aimed at increasing the overall supply of
teachers appropriately qualified to teach at least some part of the curriculum.

Recommendation 2.7

The Inquiry recommends that a significant number of places in the Student Associate
Scheme be earmarked for undergraduates on degree courses in mathematics or courses
involving a substantial component of mathematics. We encourage the TTA to work closely
with the Committee of the Heads of Departments of Mathematical Sciences (HoDMS)
and others in higher education to continue to raise the level of awareness of the scheme
among relevant undergraduates.

Recommendation 2.8

The Inquiry recommends that more must be done to address the issue of pay and other
incentives to teachers of mathematics and other shortage subjects (see, also,
Recommendation 5.2).

Chapter 4: Action on current and future mathematics

pathways

Recommendation 4.1

The Inquiry recommends that, subject to the present pilot being fully and successfully
evaluated, immediate consideration be given by the QCA and its regulatory partners to
moving as soon as is practicable to a two-tier system of overlapping papers for GCSE
Mathematics in England, Wales and Northern Ireland. The Inquiry recommends that the
regulatory authorities try to recruit more schools and colleges to take part in pre-
implementation piloting after summer 2004.

153
 Recommendation 4.2

The Inquiry recommends that, at the earliest possible opportunity, consideration should
be given by the QCA and its regulatory partners to re-designating GCSE Mathematics,
appropriately modified if necessary, to merit a double award at level 2. This re-designation
should be considered in tandem with the possible move to a two-tier system (see
Recommendation 4.1).

Recommendation 4.3

The Inquiry recommends that there should be an immediate review by the QCA and its
regulatory partners of the quantity of coursework in GCSE mathematics and, in particular,
the data handling component, with a view to reducing the amount of time spent on
this specific element of the course. (See, also, Recommendation 4.4)

Recommendation 4.4

The Inquiry recommends that there should be an immediate review by the QCA and its
regulatory partners of the future role and positioning of Statistics and Data Handling
within the overall 14–19 curriculum. This should be informed by: (i) a recognition of the
need to restore more time to the mathematics curriculum for the reinforcement of core
skills, such as fluency in algebra and reasoning about geometrical properties and (ii) a
recognition of the key importance of Statistics and Data Handling as a topic in its own
right and the desirability of its integration with other subject areas (see, also,
Recommendation 4.11).

Recommendation 4.5

The Inquiry recommends that the QCA and its regulatory partners should be funded to
develop an extension curriculum and assessment framework for more able pupils at Key
Stages 3 and 4. This extension curriculum should be firmly rooted in the material of the
current Programmes of Study, but pupils should be presented with greater challenges.
These should involve harder problem solving in non-standard situations, a greater
understanding of mathematical inter-connectedness, a greater facility in mathematical
reasoning (including proof) and an ability to engage in multi-step reasoning and more
open-ended problem solving (see, also, Recommendation 4.11).

Recommendation 4.6

The Inquiry recommends that QCA and its regulatory partners undertake a comparative
review and make appropriate re-designations as necessary, to ensure that claimed
equivalences of levels of mathematics qualifications are well founded.

154
Recommendation 4.7

The Inquiry recommends that the QCA and its regulatory partners undertake an immediate
review of current problems of delivery, content, assessment and availability of courses at
levels 1 – 3 provided by FSMQs, AS Use of Mathematics, AoN and Adult Numeracy. The
aim of the review should be to identify scope for improvements in and potential
rationalisation of this provision, including opportunities for more systematic integration
of ICT in teaching and learning, as part of the longer-term design of a new 14–19 pathway
structure for mathematics (see, also, Recommendation 4.11).

Recommendation 4.8

The Inquiry recommends that the effects of the introduction of the revised specifications
for GCE be closely monitored by the QCA and its regulatory partners as a matter of high
priority and that funding be made available to support this. If there is no significant
restoration of the numbers entering AS and A2 mathematics within the next two or three
years, the Inquiry believes the implications for the supply of post–16 qualified mathematics
students in England, Wales and Northern Ireland to be so serious that consideration should
be given by the DfES and the relevant devolved authorities to offering incentives for
students to follow these courses. One possible form of incentive could take the form of
financial incentives to HEIs to include AS or A-level mathematics as a prerequisite for
certain degree courses. Another possibility might be to offer financial incentives directly
to students following such course in HEIs, possibly through fee waivers or targeted
bursaries.

Recommendation 4.9

The Inquiry recommends that the QCA and its regulatory partners conduct an immediate
review of the frequency and style of current GCE assessment, with a view to reducing
the time spent on external examinations and preparation for examinations.

Recommendation 4.10

The Inquiry recommends that there should be an immediate review by the DfES, LSC
and the relevant devolved authorities of measures that could be taken to support and
encourage current GCE course provision for the most able mathematics students. In
particular, we believe there is a need to ensure that there are no funding disincentives
in schools and colleges for providing access to Further Mathematics and the Advanced
Extension Award in Mathematics We also believe that consideration should be given
employing the same incentives as suggested in Recommendation 4.8.

155
 Recommendation 4.11

The Inquiry recommends that funding be provided to the QCA and its regulatory partners
to commission, through an open bidding process, up to three curriculum and assessment
development studies of variants of these pathway models and approaches, including
trialling, feedback and modification and an assessment of the workload implications. These
studies should take on board developments arising from Recommendations 4.4, 4.5 and
4.7. The aim of this exercise will be to inform the selection of a preferred pathway model
to form part of the reformed 14–19 structure in England and possible parallel
developments in Wales and Northern Ireland. Given the importance of ensuring the widest
possible involvement and commitment of the mathematics community to the outcome,
the Inquiry recommends that the regulatory authorities work in partnership with ACME
and mathematics community representatives from Wales and Northern Ireland, and that
the DfES and relevant devolved authorities provide appropriate funding to support this.

Chapter 5: Support for the teaching and learning of

mathematics

Recommendation 5.1

The Inquiry recommends to the DfES and the LSC, and the devolved authority in Northern
Ireland, that formal responsibility for and entitlement to fully funded CPD be introduced
as soon as possible into the professional conditions of service for teachers of mathematics
in schools and colleges in England, Wales and Northern Ireland. In the light of what we
perceive to be far greater problems with the teaching of mathematics in England and
Wales as compared with Scotland, the Inquiry further recommends that the number of
contractual hours of CPD in such formal entitlement in England and Wales be significantly
greater than the provision made in the agreement A Teaching Profession for the 21st
Century in Scotland.

Recommendation 5.2

The Inquiry recommends to the DfES and the LSC that additional remuneration be linked
to mathematics teachers’ successful completion of accredited CPD activities and
opportunities, thereby rewarding those teachers of mathematics who make particular
efforts to improve further their subject knowledge and teaching effectiveness.

156
 Recommendation 5.3

The Inquiry recommends that there be long-term investment in a national infrastructure

to oversee the provision of subject specific CPD and other forms of support for teachers
of mathematics, tailored to the needs of teachers of mathematics, both specialist and
non-specialist, including leaders in mathematics teaching. A detailed discussion of possible
options for such infrastructure support will follow in paragraphs 6.56-78, together with
the Inquiry’s recommended option.

Recommendation 5.4

The Inquiry recommends that the national support infrastructure for the teaching and
learning of mathematics take the form of a national centre providing strategy and
coordination, together with regional centres providing local support and networking.

Chapter 6: National and regional support

infrastructure

Recommendation 6.1

The Inquiry recommends that the work of the National Numeracy Strategy and the
mathematics strand of the KS3 Strategy be continued and built upon, and that resources
for mathematics are ring-fenced for any future form of successor to these strategies for
KS1-3.

Recommendation 6.2

The Inquiry recommends that the existing mathematics strand of the KS3 Strategy be
incorporated into the national support infrastructure and that the existing funding for
this strategy be brought under the auspices of the infrastructure. The Inquiry also
recommends that serious consideration be given to similarly incorporating the National
Numeracy Strategy. The Inquiry further recommends that, on incorporation, a review of
the content and delivery of the strategies be carried out under the auspices of the new
infrastructure.

157
 Recommendation 6.3

The Inquiry recommends that a programme be established to pay selected volunteer

undergraduate and postgraduate students in disciplines with high mathematical content
to support teachers of mathematics in schools and colleges. Payment should be on a
competitive basis with other sources of employment open to such students. The precise
nature of the support role should be for schools, colleges and universities to decide locally.
(See also Recommendation 6.14, ninth bullet point.) It will be important to ensure that
those participating have the appropriate skills and training.

Recommendation 6.4

The Inquiry recommends that the remit of the new national support infrastructure include
responsibility for auditing existing ICT provision for mathematics in schools and colleges,
assessing the need and potential for future ICT provision in support of the teaching and
learning of mathematics and advising the DfES and the LSC on ICT investment
requirements for mathematics in schools and colleges.

Recommendation 6.5

The Inquiry recommends that the national support infrastructure provide appropriate
resources to enable the Committee of Heads of Departments of Mathematical Sciences
in HEIs in the UK (HoDoMS) to work together with the LTSN Mathematics, Statistics and
Operations Research Network to seek ways to promote sustainable closer links between
HEI mathematics (and other relevant) departments and mathematics teachers in their
local schools and colleges.

Recommendation 6.6

The Inquiry recommends that in the detailed planning of the national support
infrastructure for the teaching and learning of mathematics particular attention should
be given to involving the relevant experience and expertise of the Open University.

Recommendation 6.7

The Inquiry recommends that overall strategy for and coordination of the networking
and other CPD developments relating to the mathematics elements of specialist schools
be brought under the auspices of the national support infrastructure for the teaching and
learning of mathematics.

158
Recommendation 6.8

The Inquiry recommends that the remit of the national infrastructure include responsibility
for encouraging and evaluating independent initiatives in the teaching and learning of
mathematics and for funding and managing dissemination of successful initiatives more
widely across the school and college system. The Inquiry recommends that the overall
resources provided for the national and regional centres include specific funding for this
purpose.

Recommendation 6.9

The Inquiry recommends that the national infrastructure work with SETNET to improve
the provision of mathematics enrichment and careers advice resources provided through
SETNET and that appropriate funding be made available either through SETNET or the
national infrastructure to support this development.

Recommendation 6.10

The national infrastructure for the support of the teaching and learning of mathematics
should set up formal collaborative links with the NRDC, with a view to exploring how
best to support teachers of adult numeracy.

Recommendation 6.11

The Inquiry recommends that the remit of the national infrastructure for the support of
the teaching and learning of mathematics include the responsibility and resource for
providing a national forum for the evaluation, synthesis and dissemination of research
and development findings in the field of mathematics education in order to provide an
evidence base to inform policy and practice.

Recommendation 6.12

The Inquiry recommends that the national infrastructure for the support of the teaching
and learning of mathematics consist of:

• a National Centre for Excellence in the Teaching of Mathematics (NCETM) to

provide expert advice, resources and information in support of the teaching of
mathematics, and to oversee the funding for the development and dissemination
of mathematics CPD provision at a strategic level and to coordinate its operation
nationally;

• a network of Regional Mathematics Centres (RMCs) to encourage the formation

of local communities of teachers of mathematics and relevant stakeholders across
all phases and to oversee and coordinate local delivery of CPD.

159
 Recommendation 6.13

The Inquiry recommends that the NCETM should:

• provide a forum to bring together all major groups and agencies involved in
mathematics education, including from England the DfES, National Strategies,
QCA, Ofsted, LEAs, HEIs, LSC, SSCs, ACME, ITT providers, together with
equivalent groups and agencies from those territories which choose to be part
of the NCETM;

• work with the GTC, TTA and other appropriate groups, including the relevant
groups from those territories which choose to be part of the NCETM, to ensure
national cohesion in mathematics CPD provision and accreditation;

• incorporate the current CPD work and funding of the NN and KS3 Strategies;

• work closely with the RMCs to provide a centre of expertise for research and
development and the commissioning and dissemination of CPD and learning
and teaching materials, including distance learning materials and materials to
enhance the teaching of mathematics through the use of ICT;

• work closely with the RMCs to ensure an adequate supply of “expert teachers”
to provide mentoring and support to local schools and colleges;

• coordinate and monitor CPD delivery provided by the RMCs;

• provide a national forum for the evaluation, synthesis and dissemination of

research and development findings in the field of mathematics education;

• provide a database and act as an archive for exemplary teaching and learning
and CPD resources and research and development findings;

• support and encourage the further development and dissemination of existing

mathematics enhancement and distance-learning initiatives;

• foster international links and collaborative exchanges in relation to research and

development in mathematics education.

160
Recommendation 6.14

The Inquiry recommends that the RMCs should:

• be located one in each of the 9 English regions as defined by RDAs, with possible
additional national centres in Wales, Northern Ireland and Scotland;

• have formal close working relationships in England with local LEAs and Numeracy
and KS3 Strategy regional directors, and with equivalent bodies and individuals
from those territories which choose to establish a RMC;

• provide a forum for school, college, FE and HE local links and joint working;

• provide a forum for links and joint working among education providers and
teachers, and employers, including RDAs, local LSCs, SETNET, Education and
Business Partnerships and equivalent territorial agencies;

• provide support for local networks within the regional networks, building on
existing local networks, including mathematics teacher associations, mathematics
specialist schools networks, the LTSN for Mathematics, the regional and local
activities of the mathematics professional and learned societies, the OU and other
HEIs;

• work with the NCETM to deliver CPD regionally/locally for teachers of

mathematics (including those teaching other disciplines or vocational subjects)
and those who support mathematics teaching across all age groups;

• work with the NCETM to provide a regional/local CPD research and development
and dissemination capability in mathematics education;

• provide a regional/local source of expert advice and information on all aspects

of the teaching of mathematics;

• provide infrastructure support for quality assured schemes for bringing HE

students into the classroom (see, also, Recommendation 6.3);

• together with the NCETM, develop and promulgate programmes and projects
aimed at raising the profile of mathematics with pupils, teachers, careers advisers,
parents, employers and the public.

161
 Recommendation 6.15

The Inquiry recommends that, in addition to the transfer of funding from the existing
strategies, the funding provision for the first five years of the NCETM should be of the
order of £7M in year 1, £4.5M in years 2, 3 and £2M in years 4, 5, giving a total of
£20M over 5 years.

Recommendation 6.16

The Inquiry recommends that, in addition to the transfer of funding from the existing
strategies, the funding provision for the first five years of the RMCs should be at least of
the order of £27M in year 1 and £26.6M in years 2, 3, 4, 5, giving a total of some
£133.4M over 5 years.

Recommendation 6.17

The Inquiry recommends that, following an appropriate process of consultation, as the

first step towards the establishment of the centres for England the DfES appoint and
provide a secretariat for a council, to be responsible for overall policy and priorities for
the NCETM and RMCs within the remit identified in the Inquiry’s Recommendations 6.13
and 6.14. The Inquiry further recommends that the DfES channel funding for the NCETM
and the RMCs through the council, which should be accountable to the DfES for its use.
The council should represent the wide range of stakeholders we have identified and the
Inquiry recommends that over half of the membership should be appointed on the advice
of ACME.

Recommendation 6.18

The Inquiry recommends that the locations and managements of the NCETM and the
RMCs in England be selected by a process which invites consortia bids to deliver the
agendas set out in Recommendations 6.13 and 6.14 and to provide appropriate
management and administrative infrastructure for the running of the centres. Consortia
will need to incorporate an appropriate range of national and local stakeholders. This
bidding process should be overseen by the DfES, advised by the appointed governing
council for the NCETM and the RMCs.

162
APPENDIX 2: BACKGROUND AND
TERMS OF REFERENCE
The Inquiry was announced, by the Chief Secretary of the Treasury, in July
2002, as part of the Government’s response Investing in Innovation to Sir
Gareth Roberts’ UK wide review Set for Success: The supply of people with
science, technology, engineering and mathematics skills.

Professor Adrian Smith FRS, Principal of Queen Mary, University of London,

was appointed as Chair of the Post–14 mathematics Inquiry in November
2002.

The terms of reference of the Inquiry are:

“To make recommendations on changes to the curriculum, qualifications

and pedagogy for those aged 14 and over in schools, colleges and higher
education institutions to enable those students to acquire the mathematical
knowledge and skills necessary to meet the requirements of employers and
of further and higher education.”

The Inquiry has a UK wide remit and has taken evidence from over 300
organisations and 50 individuals in England, Northern Ireland, Scotland and
Wales.

Steering Group
The members of the Inquiry’s Steering Group were:

• Professor Eileen Baker

• Professor Sir Christopher Llewellyn-Smith FRS

• Sir Michael Lickiss

• Dr Gordon Marshall

• Dr Sir Thomas McKillop

• Professor Sir Gareth Roberts FRS

• Susan Singer

• Sir Peter Williams FRS

163
164
 APPENDIX 3: GLOSSARY

This list includes abbreviations and acronyms commonly used throughout this
report, as well as further information about some of the terms used.

A2 From September 2000, the second stage of GCE A level

programme. Cannot be taken as a stand alone
qualification, tied to the AS level

ACCAC Awdurdod Cymwysterau Cwricwlwm ac Asesu Cymru/

Qualifications, Curriculum and Assessment Authority for
Wales – is the body responsible in Wales for regulating
external qualifications and keeping under review all aspects
of the curriculum for compulsory school age pupils in
maintained schools

ACME Advisory Committee on Mathematics Education

AEA Advanced Extension Award introduced for first examination

in 2002 as part of C2K reforms

AoN Application of Number, the numeracy qualification from

the key skills suite, available at levels 1 to 4 in the National
Qualifications Framework

AQA Assessment and Qualifications Alliance, one of three Unitary

Awarding Bodies in England

AS Level Introduced for first teaching from September 2000, GCE

Advanced Subsidiary Level, can be taken as a stand alone
qualification or as the first stage in an A level course

AST Advanced Skills Teacher – teachers who are deemed

‘excellent’ in a range of skills’ in which they train colleagues

BA Bachelor of Arts, first degree

BEd Bachelor of Education, first degree

BSc Bachelor of Science, first degree

C2K Curriculum 2000 – Qualifying for Success reforms

introduced for first teaching in September 2000

CCEA Council for the Curriculum, Examinations and Assessment

is the body responsible in Northern Ireland for advising
Government on what should be taught in schools,
monitoring standards of qualifications and examinations
and awarding qualifications

CPD Continuing Professional Development

165
 DfES Department for Education and Skills

Edexcel London Qualifications Ltd (formerly Edexcel Foundation)

one of three Unitary Awarding Bodies in England

ELB Education and Library Boards (NI only)

FE Further Education

FSMQ Free Standing Mathematics Qualification – suite of

Mathematical Qualifications available at levels 1 to 3 in the
National Qualifications Framework

GEST Grants for Education, Support and Training (CPD

programme in Wales)

GCE General Certificate of Education, comprising AS and A2, is

a key qualification at level 3 of the NQF and primarily taken
post-16

GCSE General Certificate of Secondary Education a key

qualification spanning levels 1 and 2 of the NQF and
primarily taken at the end of Key Stage 4

GNVQ General National Vocational Qualification available at levels

1 and 2 of NQF

GTC General Teaching Council for England

GTCNI General Teaching Council for Northern Ireland

GTCS General Teaching Council for Scotland

GTCW General Teaching Council for Wales

GTP Graduate Teacher Programme – this programme is

designed to allow schools to employ unqualified teachers
who are preparing for QTS assessment, assess them against
the standards for the award of QTS, and devise individual
training plans for them.

GTTR Graduate Teacher Training Registry

HE Higher Education

HEIs Higher Education Institutions – these encompass colleges

of higher education as well as universities.

HoDMS Heads of Departments of Mathematical Sciences

ICT Information and Communication Technology

INSET In-Service Education of Teachers

IT Information Technology

ITT Initial Teacher Training

166
KCL King’s College London (University of London)

JMC Joint Mathematics Council

Key Stages Introduced through the Education Reform Act 1988.

Learning in maintained and special schools is divided into
four periods of learning: key stage 1 covers pupils aged 5
to 7, key stage 2 covers pupils aged 7 to 11, key stage 3
covers pupils aged 11 to 14, key stage 1 covers pupils aged
14 to 16

KS 3 Strategy Key Stage 3 Strategy introduced in 2000 is a multi strand

approach which includes mathematics and is designed to
support teachers, trainee teachers and others working to
improve mathematics at Key Stage 3.

LEA Local Education Authority

LSC Learning and Skills Council

LTSN Learning and Teaching Support Network

MEI Mathematics in Education and Industry

MMP Millennium Mathematics Project based at the Cambridge

Centre for Mathematical Sciences

NAMA National Association of Mathematics Advisers is a

professional association with the aim of ensuring that
inspection, advice and guidance and support make an
effective contribution to mathematics education

NINS Northern Ireland Numeracy Strategy

NNS National Numeracy Strategy introduced in September 1999

to support teachers, trainee teachers and others working
to improve numeracy in primary schools

NQF National Qualifications Framework (see Appendix 4)

NQT Newly Qualified Teacher

OCR Oxford, Cambridge and RSA Examinations, one of three

Unitary Awarding Bodies in England

OECD Organisation for Economic Co-operation and Development

Ofsted Office for Standards in Education (formally Office of Her

Majesty’s Chief Inspector of Schools in England).

OST Office of Science and Technology

OTTP Overseas Trained Teacher Programme

OU The Open University

167
 PGCE Postgraduate Certificate in Education – a one year
postgraduate qualification needed to teach in English state
schools

PISA Programme for International Student Assessment is a

collaborative study among 28 member countries of OECD
and 4 others to assess the knowledge and skills of 15 year
olds in literacy, numeracy and science

POS Programme of study in individual subjects of the National

Curriculum taught during the four key stages

postgraduate A student on a course which normally requires a first

degree as a condition of entry

QCA Qualifications and Curriculum Authority – is the body

responsible in England for regulating external qualifications
and keeping under review all aspects of the curriculum for
compulsory school age pupils in maintained schools

QTS Qualified teacher status required by teachers to work in

maintained schools and special schools in England and
Wales

RTP Registered Teacher Programme – a DfES programme for

people that have completed recognised teacher training
overseas, and who have been accepted onto a UK course
leading to a first degree (or equivalent qualification).
Schools employ RTP trainees, working in partnership with
HEIs, since participants must complete a degree at the
same time as qualifying as a teacher. This programme
requires maths, English and science standards.

SEAs Science and Engineering Ambassadors programme – this is

sponsored by DTI and DfES, and encourages scientists and
engineers to help in schools

SET Science, Engineering and Technology – includes

mathematics for the purposes of this report

SETNET Science Engineering Technology and Mathematics Network

that represents Government, industry, the engineering
professional associations, education and education charities
to ensure that there is a flow of well-motivated, high quality
people from schools to specialise in engineering-related
subjects

SQA Scottish Qualifications Authority is the national body in

Scotland responsible for the development, accreditation,
assessment and certification of qualifications other than
degrees

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TPLF Teachers’ Professional Learning Framework, produced by
the GTC, it outlines the professional development
opportunities that teachers should be entitled to

TTA Teacher Training Agency

UCAS Universities and Colleges Admissions Service

UCEA Universities and Colleges Employers Association

undergraduate Student working towards a first degree, higher education

certificate or diploma or equivalent

VCE Vocational Certificate of Education designed as a

vocationally-related alternative to GCE A level at level 3 of
NQF

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 APPENDIX 4: NATIONAL
QUALIFICATIONS FRAMEWORK
Level of Vocationally
qualification General related Occupational
5 Level 5 NVQ
Higher-level qualifications
4 BTEC Higher Nationals Level 4 NVQ
3 advanced A level Free-standing mathematics Vocational A level Level 3 NVQ
level units level 3 (Advanced GNVQ)
2 intermediate GCSE grade Free-standing mathematics Intermediate GNVQ Level 2 NVQ
level A*–C units level 2
1 foundation GCSE grade Free-standing mathematics Foundation GNVQ Level 1 NVQ
level D–G units level 1
Entry level Entry level certificate

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