Can T Levels Solve the Construction Skills Conundrum?

The Department for Education (DfE) is currently taking steps to strengthen the skills supply pipeline into the construction sector. It is looking to build on the commitments of the Skills for Jobs white paper, which sets out reforms to post-16 technical education and training, to support people to develop the skills needed to get good jobs and improve national productivity.

T Levels are a key part of that ambition. These are two-year technical programmes for 16–19-year-olds, designed with employers and aligned to apprenticeship occupational standards. One T Level is equivalent in size to three A Levels, and comprise a mix of practical tasks, projects, and exams. The programme includes a mandatory 45-day industry placement to give students experience applying their theoretical knowledge to practical activities in the workplace. Upon completion, progression options include skilled employment, further study, or a higher apprenticeship (T Levels attract UCAS points in line with A Levels).

T levels are now at a critical juncture, and over the next few years, learner numbers will significantly increase as more T Levels are introduced, and overlapping qualifications are defunded. The Government’s aim is to streamline the complex qualification landscape, by creating clear choices for learners. However, there is a strong view from the construction sector, that the elimination of a variety of learning options, could have a deleterious effect on future skills development routes into the sector.

Furthermore, the exclusion of specialist trade T Level pathways such as roofing, which are currently experiencing significant skills shortage is of particular concern. As is the lack of contextualisation of green and sustainable skills, so that learners can interact with bigger projects in the sector, such as retrofit. Ultimately, this begs the question, are T Levels the appropriate mechanism to address skills shortages within the construction sector?

The construction sector is one of the country’s leading economic drivers, accounting for approximately 6% of GDP, and employing over two-million people, the equivalent of 10% of UK employment. However, the persistent scarcity of a steady and skilled labour supply is stunting the sector’s growth and hindering project delivery times, costs, and quality. If we are to meet the demands for increased housebuilding, upgrading our road and rail infrastructure, and the move to a carbon free economy with all that it entails, we need a long-term solution to the construction skills conundrum.  

Historically, the industry has offset skills shortages with migrant workers. However, Brexit and the ending of free movement has disrupted foreign labour supply networks. While this approach previously provided a stopgap, it has not delivered durable solutions. Importing labour has reduced the pool of money to invest in domestic skills development, perpetuating a cycle of dependency on short-term expediency, that is costlier in the long-term.

Further exacerbating the issue, is the current democratic shifts in the workforce, with a substantial number reaching retirement age, combined with a lack of new entrants to replace them. According to the Office for National Statistics, more than 500,000 UK-born construction workers are expected to retire in the next 10-to-15 years. As baby boomers continue to retire, the trades in general are struggling to find suitable replacements.

Young people, it would seem, are not pursuing careers in the construction industry. Recent research, carried out by market research consultancy Savanta ComRes, and published by consultancy WSP, revealed that over 37% of people over the age of 16, and studying at school, college, or university, have ruled out a career in construction. In seeking to understand why, a survey conducted by UK construction week found that barriers are erected by schools, who place insufficient evidence on employability compared to entry into university. This perpetuates a distorted view of technical education as second class, and second rate, and fuels negative perceptions of careers in construction as undesirable and unambitious.  All these factors have left the sector in need of a major skills influx.

As part of wider efforts to improve productivity and increase growth, Prime Minister Rishi Sunak has proposed a package of educational reforms to raise the prestige of technical education. This includes the establishment of a network of “world-class” technical institutions with strong links to industry, which will offer T Levels and degree-apprenticeships. Indeed, these proposals represent a significant stride towards parity of esteem between technical and academic education. Furthermore, investing in skills, will help build the workforce for the future, especially in terms of green technology and innovation.

CIOB recognise that there are serious inadequacies with the  vocational and technical education landscape, as highlighted by the Sainsbury Review, and we support efforts to address these inadequacies. However, while T Levels may offer an opportunity to transform and ‘level up’ technical education, big questions remain…

On the topic of progression pathways for example, how can more universities, particularly Russel Groups, be encouraged to accept T-Levels for entry? We know that currently many universities are not accepting the qualification. On the other hand, young people undertaking T-Levels are awarded UCAS points, and therefore, expect higher education course opportunities.  The University of Oxford for example, has stated that "T-Levels alone were unlikely to satisfy their requirements for entry, as they are technical qualifications, while all degree courses at Oxford are highly academic". This  further exacerbates the hierarchical, two-tiered higher education system.

Likewise, on industry placements, there are significant concerns amongst employers, about the costs to their organisation in supervising and training a young person. This is certainly a barrier for SME’s. We have long held concerns around the scope and operation of the apprenticeship levy, and we have called for it to be recalibrated, to a broader, more flexible 'Skills Levy'. This would support the Government’s ambitions outlined in the Skills for Jobs white paper, and boost employer skills investment beyond apprenticeships.

In addition, we are concerned about the barriers facing those from disadvantaged backgrounds, in terms affording transport, and the appropriate Personal Protective Equipment for their industry placements. We therefore recommend the DfE consider some form of bursary to guarantee access for those students.

Finally, in the pursuit of increased student numbers and programme variety for T Levels, is it necessary to defund other vocational qualifications, which are widely recognised and valued by employers in the construction industry? It takes time for any qualification to demonstrate its relevance and robustness. Employers are undoubtedly concerned that the T Levels on offer, and being rolled out, may not adequately prepare students to fill current prevailing skills shortages. CIOB believe that a phased approach is therefore essential, to increase awareness of T Levels amongst employers, so that they are adopted by the sector as the new norm.  

In order to guarantee progression pathways to T Levels, we believe that better representation of the built environment is necessary within compulsory education. In 2021, a ‘Built Environment GCSE’ was developed by WJEC, the largest awarding body in Wales, and made available for teaching. The course introduces learners to the built environment, including the trades and roles within it; tools, technologies, and materials used in its construction and maintenance; and the processes involved in its design. 

CIOB strongly supports the intention of the built environment GCSE in strengthening and developing young people’s knowledge of the built environment and exposing them to the various roles and opportunities available. We urge government to follow suit and introduce this vocation in England to support and inspire future generations of talent to meet our infrastructure, housing, and environmental needs. Beyond this, we believe incorporating career-oriented courses into compulsory education could help address the industry image problem. 

Many young people are not aware of the vast array of jobs that come under the umbrella of construction. The industry is currently undergoing fundamental change and there are many innovations driving how the industry operates and indeed why it should be a career choice for many. There is also an ever-increasing demand for green skills, whether that is in the retrofitting industry or in the generation of low-carbon infrastructure - such as nuclear and renewable power. Educating young people about the wealth of opportunities and career paths available will help incentivise them to consider a career in the industry.

Ultimately, we believe that a cultural shift in education is necessary if T levels are ever going to fully reach their potential. Parity of esteem in technical, vocation and non-traditional routes must also be communicated better to students, teachers, and parents to ensure the DfE’s efforts in reshaping the skills system does not go to waste. 

Tallulah Eyres is currently representing CIOB at the DfE, T Level Action Group for Onsite Construction. For further information, please email [email protected]