Qualifications and Assessment Review: consultation analysis

Executive summary

In October 2021, the Scottish Government announced the Independent Review of Qualifications and Assessment. The aim of the Review is to ensure that all Senior Phase learners in Scotland - predominantly learners aged 15-18 - have an enhanced and equal opportunity to demonstrate the width, depth, and relevance of their learning.

The Review is led by Professor Louise Hayward and supported by an Independent Review Group (IRG) which include learners, teachers, employers, universities and colleges. Following the first phase of consultation on vision and principles via schools and colleges and Collaborative Community Groups (CCGs), a second phase began in October 2022, including a public consultation hosted on the Scottish Government's Citizen Space portal between October 2022 and January 2023.

Containing 11 questions, and attracting 708 responses, the consultation allowed learners, parents, teachers and stakeholders to express their views on how the vision and principles established in Phase 1 might be implemented. Questions covered: what information about achievements might be gathered and how; the best balance for a future assessment system; proposals for introducing certification at different stages of learning; the potential role of technology; and ensuring the achievements of all learners are recognised.

Overview

Overall, there is clear support for the reform of Scotland's qualifications and assessment system; however, views about how the system should look in the future varied.

Some themes were mentioned by a large proportion of respondents at multiple questions, often highlighting issues to consider if the proposals were to be implemented. The potential negative impact on teachers' workload was the most common recurring theme, followed by a concern that gathering information on achievements outside school and college could discriminate against those who cannot easily access extra-curricular activities to the same extent as others for reasons including cost, time limitations, parental support, local availability, health issues and caring responsibilities. Other common themes included calls for consistent, standardised approaches to recording achievements to be used across Scotland, and for parity of esteem for academic and vocational or skills-based qualifications.

Options for qualifications and assessment

Just over three-fifths (61%) agreed that information should be gathered across all four capacities of the Curriculum for Excellence: Successful Learners, Confident Individuals, Effective Contributors and Responsible Citizens. Respondents felt that Successful Learners is the easiest capacity to measure, mainly through attainment in qualifications. The other three capacities were seen as more challenging to gather information about due to their subjective nature, but coursework, practical exercises and extra-curricular activities were identified as important sources of evidence.

Many respondents felt that information about participation in out of school or college activities including sports, music, drama, art and youth organisations such as Scouts and Guides should be collected. There were differing opinions as to whether only activity accredited by an official body, such as Duke of Edinburgh Awards, should be included, or if wider, non-certificated, participation should also be included. Some felt this information would provide evidence of learners' skills and achievements and would help strengthen applications for employment or university. However, several respondents warned that gathering information about achievements outside school or college could discriminate against those who may be unable to access extra-curricular activities.

Strong support (75%) was recorded for the proposal to gather information on learners' skills and competencies as part of the Senior Phase. Many respondents felt that skills and competencies should be embedded and evidenced through subject-based qualifications, with meta-skills built into learners' existing classes.

There was a clear preference among many for coursework and continuous assessment to capture evidence of skills and competencies, rather than formal, high-stakes end-of-year exams. However, respondents also identified challenges with this proposal. Several warned there is a lack of time and resources available for teachers if they are expected to support information gathering alongside their already heavy workload, while some identified challenges in collecting this information consistently and objectively across different schools.

Gathering evidence on achievements, awards and qualifications

Respondents were asked what a 'better balanced' assessment system would look like but there was no clear consensus. There was debate over the role of external exams, with many favouring a mixture of continuous assessments or smaller, more regular tests and external exams. Many requested eliminating end-of-year exams entirely, regardless of whether they are internally or externally assessed; however, some others supported the current exam structure. There were also differences in opinion regarding the relative merits of internal and external assessment, with several calling for a combination of the two.

How evidence should best be presented

There was no clear consensus on the proposal to introduce an achievement, award or qualification at the end of the BGE. Several respondents felt this could incentivise more focus among BGE learners and noted this would give every learner evidence of their skills, which could be especially beneficial for those likely to gain fewer academic qualifications.

On the other hand, several respondents pointed to the pressure this proposal could put on teachers to achieve attainment targets in the BGE, particularly if results are compared with other schools. Some also mentioned a lack of time and resources among teachers and the strain that being assessed could put on learners' mental health.

Recognising achievement in the Senior Phase

There was consensus in favour of the proposal to introduce a type of leaving certificate in the Senior Phase. Several respondents said they would welcome a leaving certificate that recognises a broader range of learners' achievements, skills and competencies than are evidenced through the current qualifications and assessment system. Respondents noted a leaving certificate would provide a more holistic record of learners' achievements including classroom achievements, hobbies and extra-curricular activities.

Respondents, however, also noted some disadvantages of this proposal including added time pressure on school staff if they were expected to compile evidence for the certificate. There were also doubts about the value of such a certificate for employers and further education providers unless it was clear that it was providing information which is helpful to them.

Technology and assessment

Overall, respondents were in favour of making better use of digital technologies in Scotland's qualifications and assessment system. Suggested uses of digital technologies included online approaches to exams and assessments, a digital platform to record learners' skills and achievements, and enabling learners to submit coursework online. Some highlighted the potential for technology to make the qualifications and assessment system more efficient. However, there were also concerns, with many highlighting infrastructure constraints such as the availability of suitable IT equipment for schools and learners, and inequalities in access to digital devices.

An approach to benefit all learners

Respondents were strongly in favour of ensuring that a future qualification and assessment system upholds the rights of all learners to demonstrate their achievements. Many suggestions to achieve this were made. Most notably, many respondents felt that flexible teaching and assessment approaches, tailored to individual needs, would better satisfy different learning needs and styles among all learners. Another suggestion was to enable learners to select different forms of assessment based on their preferences. The importance of providing support for learners who need additional support or alternative arrangements, was also highlighted by several respondents.

Beyond Phase 2

The range of views identified in this consultation provides an essential evidence base for the Scottish Government to draw on when planning the future qualifications and assessment system in Scotland. While there is broad support for reform, the nuance in respondents' perspectives means it is unlikely the proposals will fully satisfy all stakeholders. Phase 3 of the Review will therefore help to refine and clarify the finer details of the proposals.