The requirement for 16-year-olds in England to retake English and maths GCSEs if they fail to achieve a passing grade is set to be abolished by 2028. The policy shift comes as concerns mount over the impact of compulsory resits on student well-being and future prospects, with approximately one-third of 16-year-olds in England — around 360,000 individuals — failing these core subjects annually.
Introduced by former Education Secretary Michael Gove, the current system mandates that students who do not pass their English and maths GCSEs must resit them to continue with any other post-16 course. Colleges are reportedly refused funding for students who do not take these repeated resits, placing an obstacle to their future education.
However, statistics suggest the current approach has limited success. Only about 17% of students who resit their GCSEs in English and maths ultimately pass. David Hughes, head of the Association of Colleges, has highlighted the inefficiency of the system, noting the significant allocation of teaching hours. Of the far-too-few 16 teaching hours available weekly for students on post-16 study courses, resitters are required to dedicate seven hours to these subjects, which many find arduous. This leaves just nine hours for the vocational courses they have chosen.
Research from University College London (UCL) indicates that the policy can have detrimental effects, leading to a loss of self-confidence among students and an increased likelihood of dropping out altogether. In contrast, Wales and Northern Ireland do not enforce mandatory resits for continuing study.
Labour, having scrutinised the impact of the policy, is moving to dismantle it. Both former Education Secretary Bridget Phillipson and current Secretary Lucy Powell have recognised the damage caused by what has been described as a "Gove-devised torment." The plan is for compulsory resits to conclude in 2028. In their place, students who do not achieve a GCSE pass will have the option to pursue a new "stepping stone" qualification. This qualification is designed to demonstrate adequate literacy and numeracy skills, offering an alternative pathway without the pressure of repeated GCSE attempts.
Despite the broad agreement within Labour regarding the need for reform, an ideological debate reportedly persists among Ms Powell's advisers. Some favour maintaining the requirement for all 16-year-olds to initially attempt the full English and maths GCSE, even if they are likely to fail. This position is based on concerns that an earlier division into GCSE and stepping-stone groups could create a "two-tier discrimination," potentially downgrading students who might have achieved a full GCSE pass. However, critics of this view point to the one million NEETs (Not in Education, Employment, or Training) and argue that the key priority must be making school encouraging, not rejecting.
This internal discussion also intersects with the push for Andy Burnham's Greater Manchester Baccalaureate (MBacc) to be rolled out nationally. The MBacc scheme offers vocational courses tailored to local employers alongside academic subjects, commencing from age 14. Its objective is to maintain student engagement and mitigate the risk of them becoming NEET.
Michael Gove, reflecting on his original policy, has criticised the proposed changes. He has labelled Andy Burnham's approach as "bringing back stupid," describing it as anti-intellectual and hostile to ambition, arguing that it lowers ambition. However, counter-arguments suggest that greater investment in early years education could prevent many 16-year-olds from struggling with these subjects in the first place. New research reported by the Institute for Fiscal Studies (IFS) highlights that entering childcare one year earlier is associated with an average 10% improvement in maths scores by age 14 to 15. This improvement is even more pronounced for children whose mothers do not hold qualifications, showing a 28% higher score.
Labour's renewed emphasis on skills training appears to be gaining traction, evidenced by a significant increase in applications for technical courses. This surge extends beyond the current demographic bulge, while university applications continue to rise by 3%. Alan Milburn's commission, established to address the crisis of one million NEETs, is said to have substantial policy support for advocating more skills-based training.
However, the further education (FE) sector faces significant challenges as it prepares to meet increased demand. Despite recent additional funding for colleges, this provision is reportedly insufficient to cover the full cost of accommodating extra students. An additional 25,000 students are anticipated to enrol this autumn. Colleges are grappling with shortages of space and staff, following what are described as "colossal cuts" during previous Tory administrations. Funding for adult education for over-19s, for example, saw a drastic reduction from £5 billion in 2002 to an estimated £1.5 billion by 2025.
David Hughes noted that recent pay increments for FE staff "only stopped the gap getting wider," pointing out that FE staff are paid approximately £10,500 less than their school counterparts. This pay disparity contributes to staff shortages, especially when construction and engineering roles often offer higher remuneration. He also questioned why colleges are subject to £200 million in VAT costs, while schools receive reimbursement.
Barriers extend beyond funding and staffing. While applications for degree apprenticeships have quadrupled, these highly sought-after programmes, which allow individuals to earn while learning, have seen available places halved. Furthermore, unlike university students who can access maintenance loans, FE students are often denied such support, with Mr Hughes bluntly stating this is "Because too many will never earn enough to pay them back." Perversely, NEETs receiving benefits are also prohibited from enrolling in full-time courses. Practical obstacles, such as driving test waiting times exceeding 21 weeks, further impede access to jobs and apprenticeships where a driving licence is essential, from care work to plumbing.
Andy Burnham's advocacy for valuing "the hard hat as much as the academic cap" has, despite Gove's expressed contempt, reportedly boosted morale within the FE sector. College heads indicate that Labour appears to have a clear understanding of the necessary steps. Nevertheless, overcoming the long-standing societal undervaluing of technical education in Britain is anticipated to require substantial effort to shift public perception and encourage the one-third of 16-year-olds currently facing academic challenges, rather than subjecting them to further distress.
