Ruairi Quinn (Dublin South East, Labour) | Oireachtas source

I thank the Chairman for the opportunity to come before the committee and update members on the progress made to date on the implementation of the JCSA. I spoke to both Houses on these reforms shortly after the framework was launched in October 2012. I was very pleased that both Houses unanimously endorsed them. I also explained why I was making changes to junior cycle. Research, and particularly that of the ESRI, underlines the reasons change is necessary.

Under the current model a significant number of first-year students do not make progress, particularly in English and mathematics. A significant number of students in second year become disengaged from the learning process. Sadly, many of them drop out after or even before they reach the junior certificate. These students have, as I have said before, already entered the departure lounge from education.

The evidence also shows that choices made as early as first year of junior cycle, for example to take ordinary level rather than higher level, are almost impossible to reverse. These choices can limit the options open to young people for the leaving certificate for the rest of their lives. This is a particularly important issue for students in lower stream classes and those in disadvantaged areas. In third year the junior certificate examination dominates the experiences of students. The focus of learning narrows and the emphasis is on rote learning specifically for the examinations. By that I mean learning off prepared answers to anticipated questions, not acquiring a knowledge of times tables. For many students the examination does not lead to positive learning experiences and outcomes. Assessment practice at the end of junior cycle in Ireland is out of line with best practice in many countries with high-performing educational systems. In those countries, high-stakes public examinations are confined to the end of the senior cycle while school-based assessment is emphasised throughout the lower secondary cycle.

At the recent teacher conferences, I spoke about how we need to move away from judging students to giving them structured feedback on their own learning. This is known as “assessment for learning” as opposed to “assessment of learning”. We also need to move away from judging teachers based solely on how well their students jump the hurdle of a high stakes examination. Regrettably, the ASTI and the Teachers Union of Ireland, TUI, have both voted in favour of industrial action in opposition to school-based assessment. This action involves non-co-operation with continuing professional development, CPD, and other junior cycle reform planning. Over 90% of all English teachers and nearly 1,200 school leaders have already attended the planned CPD for this school year. The position of the teacher unions will create difficulties and pressures for schools and their students. We are working to resolve the outstanding issues, and to move forward positively. I welcome the positive and constructive engagement of school management bodies, parents and school leaders. They have acknowledged the need for this change, and worked to identify the steps and support necessary to implement it.

There is no need for an examination such as the junior certificate that is so important because it is not a terminal examination for people leaving school at the age of 15. As we do not want people to leave school at 15, it does not have to have the status of the leaving certificate. Over 90% of those who do the junior cycle examination go on to senior cycle and sit the leaving certificate, which is a high-stakes examination. The evidence shows the high-stakes examination is warping the learning experience of junior cycle students. It causes significant stress for students and has a negative effect on the quality of teaching and learning. By way of example of what our teachers can do, I point to the increased take-up of the optional Irish oral exam at junior certificate level. This involves teachers assessing their own students for State certification, and it is already working. While I understand teachers are nervous of change, I have a great belief in their capacity to deliver this change.

Concerns have been raised about maintaining standards in the new system. High-stakes examinations are not the only way to measure or establish standards. There are already safeguards for standards in the existing proposals. For example, for each subject the State Examination Commission, SEC, will set terminal examinations and provide a strict marking scheme. There will be CPD to provide teachers with the confidence to undertake new approaches to assessment. Teacher unions believe the current safeguards are inadequate. I have listened to their concerns and offered to discuss external supports for moderating student work.

In response to concerns from stakeholders, in January of this year I announced a number of changes to the implementation of the JCSA. I also established a national working group, and a number of associated sub-groups, which continue to work with the partners. I have slowed the pace of the proposed roll-out of the new JCSA. The full roll-out of all 21 subjects will not be completed until September 2019. It will be June 2022 before students will finish an entire cycle of the new programme. From the point of view of politicians, it is two general elections away. English is the only subject which will change this September. Short courses will be introduced from September only in schools which want to introduce them; they will not be compulsory. All other subjects remain the same as in the current junior cycle.

We recently issued a circular to schools outlining the limited changes which will occur in September. A full timetable for implementation up to 2019 is included in that circular, a copy of which has been provided to committee members.

In January I also announced additional continuing professional development, in line with requests received from education partners. English teachers will now receive an extra 1.5 days of CPD, which means English teachers will have a minimum of 4.5 days CPD. All other subject teachers will receive a minimum of four days CPD for each subject. On top of that, all schools will have one full day of CPD annually for each year of the roll-out of the JCSA. Schools can close to facilitate this CPD for all teaching staff. This measure has been welcomed by everyone involved in the process. In total, every single teacher of two subjects will now receive a minimum of 16 days of CPD during the roll-out of the JCSA, which represents a very significant investment in teacher education.

I am fully committed to resourcing the new JCSA appropriately. I have ring-fenced €4.8 million in budget 2014 for implementation. This will increase as more subjects are phased in. At the moment, I believe the concentration of new resources should be directed towards continuing professional development.

The subgroups of the national working group are focusing on issues such as the resources that will be needed for assessment, as well as looking at external supports for moderation. I welcome the comprehensive submission that this group has received from school management bodies. I again urge teacher unions to submit a written statement on what resources they think are needed. I think it is a lost opportunity for teachers if their representatives do not put in a comprehensive written statement of what resources teachers believe are necessary.

I again emphasise that these changes are based on the evidence available to us, evidence that tells us the lived experiences of our students. We have a responsibility to act on that evidence. There has been ongoing dialogue on the need to reform junior cycle. Before the reform was introduced, there was particular discussion through the National Council for Curriculum and Assessment. Understandably some time was lost along the way as a result of the unions’ consideration of the Haddington Road agreement, which had nothing to do with education and was about a public sector pay readjustment. However, I believe we have plenty of time left to resolve the outstanding issues.

I look forward to discussing these issues further with this committee and also with all the stakeholders in the education sector.