union learning adding value - an evaluation of unionlearn and the union learning fund

AN EVALUATION OF UNIONLEARN

AND THE UNION LEARNING FUND

UNION LEARNING ADDING VALUE

Summary 4

1. What is union learning? 8

2. Evaluating union learning 9

3. Union learning pays off for learners 11

4. Union learning pays off for employers 14

5. Union learning pays off for unions 18

6. The future development of unionlearn 21

CONTENTS

AcknowledgementsThis summary is based on the evaluation of unionlearnand the ULF (Rounds 8–11) led by Professor Mark Stuartand supported by Jo Cutter, Hugh Cook and ProfessorJonathan Winterton, Centre for Employment RelationsInnovation and Change, University of Leeds. Dr KrisChapman from the sponsoring Department for Business,Innovation and Skills provided valued supportthroughout the process.

The full evaluation report, the follow-on study reportand the case studies are on the unionlearn websitewww.unionlearn.org.uk

Considerable union and government resourceshave been invested in unionlearn’s activities sinceit was launched in 2006 by the TUC to provide arobust framework for union-supported learning.That is why the TUC commissioned the Centre forEmployment Relations Innovation and Change atLeeds University Business School to evaluate itsoutcomes and achievements.

This publication offers an easy-to-read, accessiblesummary of the evaluation, gathering together thefindings into three main sections, showing how unionlearning pays off for individuals, for employers and forunions. It also includes some reflections on the futurework of unionlearn and the Union Learning Fund (ULF).

The evaluation is the most extensive and in-depthassessment of union learning ever. Over the years therehas been much anecdotal evidence on the benefit ofunion learning but this evaluation provides robust analysisthat demonstrates its added value. The evaluationconcludes that “union learning has largely met its statedobjectives and has delivered demonstrable benefits forlearners, employers and unions”.

Recognition of its impact has continued with theelection of the new government. The Secretary of Statefor Business, Innovation and Skills (BIS) describedunionlearn as a “powerful model” for opening learningopportunities to individuals that they never would havehad the chance to take up. After the ComprehensiveSpending Review, BIS announced it would continuefunding unionlearn at the same level in cash terms asthe previous year – testimony to the value of unionlearnas evidenced by the evaluation.

A key component of unionlearn is the Union LearningFund, which has enabled union-led projects to helpindividuals access more than 600,000 learningopportunities since it was established in 1998. Much of the evaluation measured the impact of Rounds 8–11of the ULF (Round 8 starting in 2005/6 and Round 11 in 2008/9), finding that the projects the Fund has

supported have had considerable impact onindividuals, unions and employers.

But there are barriers to maximising the effectiveness of the projects. The biggest hurdle is securing time forlearning from employers or for learners themselves tomake time available. This can be addressed by unionssecuring more formal learning agreements providingpaid time off for employees to study and by employersproviding cover for union learning reps (ULRs) while theycarry out their duties.

There is, however, strong evidence that these positiveoutcomes will be sustained in the future. The findingssuggest that employers have, to some extent, ‘bought’the added value that union learning can offer them. Thechallenge for the future, therefore, is to extend this goodpractice into more workplaces through the continuedgovernment funding for unionlearn and increasedsupport from unions and employers.

The evaluation report made important recommendationson a range of issues: some of these are now beingimplemented, with others being considered in therestructuring of unionlearn.

Tom Wilson, Director, unionlearn

FOREWORDTOM WILSON

unionlearn adding value 3

‘The evaluation is the most extensive and in-depth assessment of union learning ever’

SUMMARY

Union learning activityIn total, £121m has been dispersed over Rounds 1–11 of the ULF, of which £101m was distributed to fundinnovative union projects that help members into learning.

There has also been a reported additional £52m oflevered-in funds. To date, union-led projects havehelped unions to support some 603,775 learningopportunities, sign 1,557 learning agreements withemployers, establish 847 learning centres, and supportsome 22,000 union learning representatives (ULRs),who were trained by TUC Education.

Across Rounds 8–11 specifically, 420,000 learningopportunities were accessed through the union learningroute, a notable increase on previous years. Much of thelearning activity is additional and offers a range ofprogression routes. In addition to specific learningoutputs, the ULF has encouraged unions to developnational learning strategies.

Employer outcomesFour in ten employers involved in union learning thatwere surveyed made a direct funding contribution tolearning. Around three-quarters of continued projectsachieved more than 100 per cent of their target forlevering in funding. All employers made a contributionthrough time off for ULRs. Many, but not all, providedtime for learners and support for workplace learningcommittees with management time.

Employers reported improved take-up of job-relatedtraining (four in ten employers); improved qualificationlevels of employees (just over half); enhanced equalityof access to learning and training (just over half); andfewer skills gaps (just under half). Employers alsomentioned a range of business benefits, mainly in terms of improved operating measures.

Four in ten employers reported that both a learningagreement and a workplace structure such as a jointlearning committee had been developed to oversee thedevelopment of learning. Learning agreements were

4 unionlearn adding value

Jess Hurd/reportdigital.co.uk

consistently associated with higher levels of reportedlearning and business outcomes. Employers and unionsreported a positive impact on union-employer relationson learning and wider union-management relations.

Learner inclusion Union learning has resulted in accredited learningopportunities for learners with few or no formalqualifications. Successive learning activity has led, for a significant minority of learners (around one-third),to an increase in qualification level.

The focus of achievement, in terms of qualification gain orskills uplift, has been targeted at those with lower priorlevels of qualification. ULRs were a key factor in engaginglearners, as was the location of learning at the workplaceto help reduce barriers to access. Union learning wassuccessful in engaging learners from groups traditionallyunder-represented in adult learning, notably older maleworkers, those working in process operative occupationsand those from lower socio-economic groups.

Learners reported improved work skills. Employersrecognise this through the provision of paid time off forlearning, equating to an estimated £193 per learner.

Estimates of the additional economic value generatedby those increasing their qualification levels (GrossValue Added) were £3,113 for those attaining up toLevel 2 and £1,090 for those moving up to Level 3, with relatively low deadweight.

Barriers and challenges in the delivery of learning The main barriers identified by the union project officers(UPOs) working on ULF projects concerned securingtime off for learning from employers, for learnersthemselves to make time available, time pressures onULRs and finding time for learners to undertake training.

There were general constraints reported in terms ofencouraging interest and support from employers and,specifically, related to the signing of formal learningagreements with them.

Union learning aimed to address the barriers thatlearners faced, such as the cost of, time for andconfidence in learning, and there was evidence thatmany projects were successful in addressing theseissues. However, barriers to learning were evidencednotably through increased costs of learning (i.e. areduction in the level of public subsidy available).



AdditionalityOver two-thirds of UPOs appeared to be satisfied with the success of their ULF projects, with 36 per cent stating that their ULF projects had exceeded theobjectives and a further 14 per cent and 18 per centrespectively stating that they had been either fully oradequately met.

In terms of added value, 76 per cent reported that aneeds assessment would not have taken place withoutULF funding.

Almost six in ten UPOs reported that the same learningwould have taken place but with fewer learners, while44 per cent stated the quality of learning would havebeen poorer in the absence of ULF support, and just 12per cent reported that the same level of learning wouldhave taken place.

Union learning did not substitute for employer training,as employers had not previously been offered this typeof training.

Sustainability Those employers that have benefited from the ULF have,to some extent, ‘bought into’ the added value that unionlearning can offer. Nearly nine out of ten employersstated that they would continue to be involved withunion learning activities.

Employers saw union learning as a benefit, with 63 percent stating there was a benefit to the organisation and81 per cent that there was a benefit to individuals takingpart. Nine in ten stated that unions should continue todevelop their role in the learning agenda.

Different models of sustainability were emerging andwere documented as good practice in the case studies,including ULR networks, formal committee structures toembed learning and ongoing employer support forworkplace learning centres.

The propensity to lever in funding is a key factor insustaining learning activity, and almost three-quartersof UPOs in the follow-on survey reported that they hadexceeded their anticipated targets for additionalfunding. Such funding is most likely to be drawn down through partnerships involving unions, employers and providers.

Central to sustainability was not just the necessaryfinancial investment from employers but also the widergoodwill and trust created with regard to management–union relations. Where unions had established learningagreements with employers, this was associated withfewer cutbacks in training.

Unionlearn added value Union learning was seen by stakeholders to have met or exceeded the challenges set in terms of funding forlearner targets. Regional funding partners noted thatunion learning was perceived as being good value formoney as a route to learner and employer engagement.

Stakeholder partners were generally very positive aboutworking with unionlearn. The main benefit was


understood to be in terms of the shared agenda aroundimproving quality and equality of access to learning forworking people.

The delivery of successful union learning projects led toincreased trust and legitimacy between unions and otherpartners in the learning and skills infrastructure. Regionalfunding bodies contracted with unions because theyopened a route to learner and employer engagementand were perceived to offer good value for money.

Unionlearn was seen to have a unique role within the learning and skills infrastructure, inputting into the skills strategy at the national level and at theoperational level through the delivery of learning andworkplace programmes. The governance of the unionlearning agenda was seen to have improved greatly withthe creation of unionlearn, helping to build legitimacywithin the union movement.

Overall, union affiliates were generally very satisfiedwith the support received from unionlearn. Key areas for improvement were coordinating ULR training anddevelopment and improving the coordination betweennational strategy and regional level operations in order

to bring more coherence to support for affiliates. In the follow-up survey, the extent of continued activity in respect of ULR initial and follow-on training seemed to be running above the level of reported demand.

Conclusions The evaluation of the impact of the ULF andunionlearn was positive. Union learning has largely met its stated objectives and delivereddemonstrable benefits for learners, employers and unions.

The evaluation recommended continued support for ULF and unionlearn; the need to embed unionlearning more centrally in the adult learning andskills policy agenda; and that unionlearn developits strategic capacity. It also emphasised the needto implement further improvements in datacollation, monitoring and storage. The evaluationadditionally recommended further consolidation of union learning with employers and withinindividual union structures.

‘Union learning has largely met its statedobjectives and delivered demonstrablebenefits for learners, employers and unions’

Grant Lynch

The previous Labour government saw upskilling the workforce as a “natural partnership” betweenunions and employers. Both government andunions recognised that if unions were to become a key partner then they required a supportiveframework. Over the past decade this has beenbuilt on three key components:■ the Union Learning Fund, created in 1998■ union learning reps, granted statutory rights in 2003■ unionlearn, established in 2006.

These components have continued to be supported by the new government.

Union Learning FundNow in its 14th round, government annual grant to theULF has increased from £2m in Round One to £15.5min Rounds 8–11, and the size and nature of the projectsit has funded have developed as a result.

Early projects tended to be small, typically based in specific workplaces or locally focused, with themaximum award in Round One just £79,000.

More recent projects have tended to support widercapacity-building efforts, engaging a wide range ofemployers and other stakeholders and typicallynationally focused, with the maximum award in Round 11 having a contracted value of over £1 million.

The first 11 rounds of the ULF supported 522 projects,with a contracted ULF budget of more than £121.1million, supporting projects by 57 individual tradeunions as well as TUC-led projects, creating 603,775learning opportunities and training 22,009 ULRs.

Costs per learner have been dramatically reduced;taking a three-year running average, the cost per learnerhas been cut from £580 per annum over Rounds 1–3 to£142 per annum over Rounds 9–11, an impressiveimprovement in terms of return on investment.

Union learning repsULRs have been crucial to the development of unionlearning, spreading the word about the opportunitiesavailable, encouraging their colleagues to take part inworkplace courses and building strong partnershipswith local providers.

Their numbers and their contributions have grownconsiderably since they were granted statutory rights in2003, and at the time of the evaluation TUC Educationhas trained more than 22,000 ULRs.

Under the legislation, ULRs are granted reasonable paid time to train and to undertake their duties, whileemployees also have the right to talk to their ULR.However, ULRs do not have a statutory right either toconsult or to negotiate with their employers.

UnionlearnUnionlearn is the TUC’s learning and skills function hat develops strategic activity linked to national skillsstrategies, using the ULF to steer the direction of unionlearning activity to the changing requirements of thewider economy.

Unionlearn provides a strong central union lead throughits national and regional offices, and passes around 85per cent of its total income (which stood at £28.4m in2008/9) to affiliate unions to deliver learning projects,largely under the ULF.

1.WHAT IS UNION LEARNING?


Following a competitive tendering exercise,unionlearn commissioned the Centre for EmploymentRelations Innovation and Change (CERIC) at LeedsUniversity Business School to evaluate the impact ofunionlearn and Rounds 8–11 of the ULF (coveringthe period from April 2005 to March 2011).

This was the first systematic evaluation of unionlearn’sactivities and the ULF’s operation under its jurisdiction,and it was particularly concerned to address themethodological difficulties and data limitations ofprevious evaluations (York Consulting had evaluatedRounds 1, 2, 3 and 4–7 on behalf of the government).

The evaluation aimed to:■ evaluate the operation of unionlearn in totality in

relation to its strategic plan■ assess the added value of unionlearn and the ULF

in both quantitative and qualitative terms.

The evaluation is the most extensive conducted to dateand draws on a rich variety of data sources to presentthe most detailed picture so far of how union learning is helping employers and employees work together onlearning and skills.

■ It includes an analysis of 11,166 learner records in relation to demographics, learning type andlearning progression to help unions identify whereimprovements to facilitate improved member access to learning could be made.

■ It presents the first detailed analysis of the coverage,scope and content of 281 learning agreements – thelargest analysis to date.

■ It includes 15 detailed case studies (the qualitativecomponent of the evaluation) that explore what worksin practice, identify barriers to participation andinvestigate sustainability.

■ It uses material from original in-depth telephonesurveys of 84 union project officers (UPOs) running ULF projects (86 per cent response rate) and 415employers involved in ULF and other union learningactivity (43 per cent response rate).

■ It offers insights from external sources gleaned fromsemi-structured interviews with 16 stakeholdersincluding unions, partner organisations such as sectorskills councils and the government.

A follow-up survey of UPOs, conducted to measuresustainability as demonstrated in Rounds 8–10 of the ULF projects (all of which have been completed),achieved a high response rate of 81 per cent andreported high levels of ongoing union learning activity.

2.EVALUATING UNION LEARNING


Grant Lynch

Although samples sizes and responses rates were largerthat for previous evaluations, the evaluation did facedifficulties in identifying with precision the populationparameters for some of the data sources, notably thelearner survey, the employer survey and the contentanalysis of learning agreements. The application ofsome of the data to a wide variety of settings needs,therefore, to be treated with caution. However, thedegree of triangulation of data, from many different data sources, permits confident generalisation, in aqualitative and thematic sense, about the activities ofunion learning.

Overview of Rounds 8–11More than 420,000 learning opportunities wereaccessed during Rounds 8–11 (close to the targetfigure) but there were considerable variations within the various programmes (see Table 1 below).

While the numbers of NVQ Level 2 and 3 learnersachieving qualifications overwhelmingly exceeded their targets, the numbers of Level 1 learners achievingqualifications, ULRs trained and learning agreementssigned were much lower than anticipated.

The most common theme projects addressed across allthe rounds was ULR support and development (it wasalso rated the most important by the UPO survey), whileskills for work, including Skills for Life, were alsofrequently addressed.

In Rounds 8 and 9, working with employers onpartnership approaches to learning was a key theme,while progression, professional development andsupporting sector-based union initiatives wereimportant themes of Rounds 10 and 11.


Table 1: ULF projects Rounds 8–11: selected outputsOutputs Profile total Actual total Achieved (%)Number of learners achieving NVQ Level 3* 3,316 5,865 177Number of learners achieving NVQ Level 2* 8,850 12,828 150Existing learning centres enhanced 457 536 117Information, advice and guidance referrals 112,613 111,637 99Learning opportunities accessed 436,381 421,126 97New learning centres opened 426 375 88Written partnership agreements with providers 529 459 87Number of learners achieving NVQ Level 1* 5,053 3,334 66ULRs completing initial training 16,447 8,307 51ULRs completing follow-on training 8,428 4,333 51Formal learning agreements signed with employers 1,413 719 51

Source: ULF database – Round 8 (April 2005–March 2009); Round 9 (April 2006–March 2009); Round 10 (April 2007–March 2010); Round 11 (April 2008–March 2011).

* not Round 11

“I passed maths and English courses

a year ago and now I am doing the

Performing Manufacturing Operations

NVQ: it gives me more confidence in

work and in my non-working life.”

Union learner, Chamberlin plc, Walsall, West Midlands

A key measure of the success of union learning is theextent to which it is encouraging union members totake up learning opportunities, especially those whowould not otherwise have done so.

Union learning has a wide reachGiven that the management information data is from U-Net union learning centres and European Social Fund(ESF) projects and the survey of learners is small andnon-randomly sampled, any generalisations for unionlearners as a whole should be treated with appropriatecaution. Nevertheless, according to the data availableunion learning is successful in engaging learners fromgroups traditionally under-represented in adult learning.For example, learners in the 45–64 age group comprise25 per cent of adult learners as a whole (NIACE AdultLearners Survey), but make up 43 per cent of learnerssupported by ESF projects and 53 per cent of learners in U-Net centres.

In addition, while 29 per cent of the UK workforce hasqualifications below Level 2, that figure rises to 50 percent of ESF project learners and 70 per cent of U-Netlearners (see Table 2 below).

Union learning is also successfully targeting people whohave not recently been involved in education or trainingand are not confident about taking part in courses.While one in ten adult learners as a whole say they arenot confident learners, four in ten union learnersdescribe themselves in those terms and over half havenot taken part in education or training in the previousthree years.

Union-led learning tends to be highly inclusive, with 89 per cent of projects opening their activities to allemployees, not simply union members, and more thantwo in five projects targeting a specific ethnic, minorityor migrant worker group as part of their activities toraise demand for learning.

Union learning is not only attracting people who wouldnot otherwise participate in learning: it is also carryingrelatively low deadweight (i.e. people who would havetaken another route if union learning were not available).While learning and skills public policy programmes carryan estimated average level of 45 per cent deadweight,union learning programmes carry under 25 per cent. Thiswas as low as 12 per cent as reported by UPOs.

Table 2: Qualification levels of union learners (percentage)Previous qualification level U-Net ESF-supported Learner UK workforce office for

learners learners survey National Statistics

Below Level 2 70.4* 50.0* 44.2* 29.0Level 2 13.7 20.6 26.0 20.0Level 3+ 15.9 29.3 39.4 51.0

Source: U-Net MI data 2006–2010, base: 5,898; unionlearn ESF learner data 2008-2010, base: 5,268; learner survey, base: 230; ONS data.

* The difference in proportions of union learners with previous qualification below Level 2 and those below Level 2 in the UK workforce average is significant at 1 per cent level (Chi Squared).


3. UNION LEARNING

PAYS OFF FOR LEARNERS

Workplace partnerships overcome barriers to participationOvercoming initial suspicion of union leaning remains achallenge, especially where personal development andengagement with learning have yet to take root in theworkplace culture.

But joint work between management and unions can beeffective in overcoming barriers rooted in people’s lackof confidence in their own abilities and their fear ofnegative perceptions about taking time off to learn.

“I really enjoyed the course. I am glad I took part andcompleted it: I surprised myself that I got Level 2 –when I started, I wasn’t clear how difficult it was going to be, so I was really chuffed to pass,” says one unionlearner, who continued:

“I got support from the ULRs to get involved and the ULRwas great in helping us with the homework – printing offtest papers and exercises. I also have a good managerwho encouraged me to go so, even though it had beenagreed that we’d get the time off, I didn’t feel bad aboutleaving work early to attend.”

Two-thirds of union learners responding to the learnersurvey were motivated by improving their confidence atwork; over three-quarters were motivated by learningnew skills for a current or future job; and eight in tensaid personal interest and enjoyment was a significantfactor. Fewer than one in ten was motivated by thethreat of redundancy, and increasing earnings potentialwas not a strong motivating factor either.

Union learning also helps people improve their job skillsand employability. Just under two-thirds (63 per cent) ofunion learners say they do their jobs better as a result oftheir learning and the same figure say their learning hasimproved their job prospects.

However, time remains the biggest obstacle preventingindividual participation – it was identified as a large orvery large barrier by over half the respondents to theUPO survey.

Union learning promotes progression Learner progression on to further study is a key indicatorof the effectiveness of union learning.

Nearly nine out of ten ESF project learners haveundertaken more than one ‘learning episode’, with themedian among the 2008–2010 cohort standing at 2.1and the maximum by a single individual as high as 11.

However, while the incidence of multiple learningepisodes shows union learners are often repeatedlyengaged in learning, progression from one type or levelof learning to another is what is more significant – andthe majority of union learners have taken part in morethan one type of learning (including information, adviceand guidance sessions).

Of the one-third of union learners who have progressed,half of them improved on existing qualifications by onelevel, almost half improved by two levels and almostone in ten by three levels.




Making time to learnAt Warburtons Family Bakers in Stockton, the main challenge for the bakers’ union BFAWU waspersuading line managers and team leaders of thebenefits of granting staff time off production to learn.

The learning agreement enables each individual totake 15 hours’ time off annually for Skills for Lifelearning, but common practice had evolved that thecompany would match every hour of their own anindividual committed to learning with an hour ofpaid time to learn.

While most line managers supported requests fortime to learn and coped with staff absence becauseof learning’s positive effect on performance andmotivation, some team leaders argued they couldnot spare individuals off production.

The onsite ULRs overcame this resistance byshowing team leaders what people were achievingand what they could achieve through union learning.

CASE STUDYUnion learners tend to have such positive experiencesof learning that they wish to continue their learningjourneys: more than eight in ten union learners want totake part in more union learning in future – with unionmembers from lower socio-economic groups andworking in caring and service occupations most likely to want to continue.

And union learners are clear about whom to credit fortheir progress: almost all of those increasing theirqualification level credited union learning, and three-quarters of people who have changed their job orboosted their wage levels acknowledge the part unionlearning has played.

Since the skills uplift achieved by moving up to Level 2is equivalent to 15 per cent of salary, and the averageearnings of union learners surveyed who moved up toLevel 2 was £20,757, that means every union learnerwho moves up to Level 2 creates an estimated £3,113Annual Gross Value Added.

“From a performance point of view

the scheme has been invaluable –

we can’t praise it enough.” Bombardier Transportation production director

Union learning initiatives have made a range ofpositive impacts across learning and organisationalpractices, with the greatest impact in workplacescovered by a learning agreement.

Union learning pays off for businessUnion learning has increased equality of access tolearning and training qualifications in 56 per cent ofworkplaces (in 65 per cent of those with a learningagreement); boosted the number of employees attainingqualifications in 55 per cent of workplaces (in 70 percent of those with a learning agreement); and addressedskills gaps in 54 per cent of workplaces (in 68 per cent ofthose with a learning agreement) (see Table 3 below).

Union learning activity is also generating increasedinvestment in learning and training by employers. Fourout of ten employers provide financial contributions tounion learning, with an average investment of £23,000from those that put a figure on that contribution.

Employers are most likely to make in-kind contributions,including: equipment (69 per cent); office space (71 percent); learning centres (52 per cent); ULR time (77 percent); management time (58 per cent); and employeetime (73 per cent).

Taking part in union learning also makes people more likely to participate in employer training andencourages greater take-up by members of lowersocio-economic groups.

Just over four in ten union learners (42 per cent)reported that as a result of their union learningexperience they had taken part in more trainingprovided by their employer that would have otherwisebeen the case. People more likely to increase theirparticipation are members of lower socio-economicgroups and people who hadn’t taken part in training at work in the three years before they started union learning.

Learning has persisted through the downturnEmployers have approached their learning and trainingcommitments in a variety of different ways in responseto the recession, a recession that has reduced sales and led to staff layoffs in four out of ten employer survey respondents.

Table 3: Employer views on impact of union learning (percentage)Indicators Increased No change DecreasedEquality of access to learning/training opportunities 56 (65)* 43 1Number of employees attaining qualifications 55 (70)* 44 1Addressing skills gaps 54 (68)* 42 3Consultation on learning/training issues 46 (59)* 54 0Positively addresses basic skills gaps 46 (58)* 39 16Level of trust between management and unions 42 (53)* 54 4Staff morale 42 (52)* 56 3Take up of job-related training 41 (52)* 59 0

Source: Employers’ survey (figures in brackets relate to where there is a learning agreement)

* significant difference to overall percentage, base: 415 responses.


4. UNION LEARNING PAYSOFF FOR EMPLOYERS

While levels of job-related training have dropped by 11 per cent and spending on training has decreased by 29 per cent, there is also evidence of investment;spending on training has increased at 13 per cent ofworkplaces and job-related training expanded at 19 per cent (see Table 4 above).

In addition, 28 per cent of workplaces have seenincreased employee demand for training, as staff havesought to enhance their employability in an era ofeconomic uncertainty and individual insecurity.

A number of employers clearly believe unions have a role to play in helping organisations prepare foreconomic recovery.

Joint working between management and unions as aresult of the recession is increasing at 30 per cent ofworkplaces (and at 38 per cent covered by a learningagreement), while organisational support for unionlearning activity has increased in more than a quarter of cases (27 per cent).

In addition, unions are logging increased employeedemand for learning, with almost three-quarters ofUPOs noting members are keener to improve andexpand their knowledge and skills (see Table 5 on page 17).

Table 4: Training and the recession – employer views (percentage)Training/organisational issues Increased No change DecreasedJoint working with unions 30 (38) 68 2Employee demand for learning 28 (36) 64 8Organisational support for union learning activity 27 (38) 68 5Job-related training 19 (22) 70 11Spending on training 13 (17) 59 29

Source: Employers’ survey (figures in brackets relate to where there is a learning agreement), base: 415 responses.


Responding to recessionSome employers have been able to use thedowntime created by the economic downturn toboost participation in workplace learning as part of their preparation for better times.

At Chamberlin & Hill, which manufactures small to medium-sized steel castings in the heart of theBlack Country, the impact of the recession wasimmense. “Everything just dropped off a cliff,” says the operations manager, and the companywas forced to reduce production from 5.5 days per week to 3 days per fortnight.

But the foundry used the downtime to encouragemore of its 120 employees through the learningprogrammes available at the on-site learning centre it had opened in partnership with Unite and Dudley College.

Now back to full capacity, the company has securedmajor German automotive clients thanks to itsimproved quality and efficiency.

“Union learning has really helped us come throughthe recession and put us in a better position to move forwards,” says the Chamberlin & Hillmanaging director.

CASE STUDY

Employers back union learningThe employers survey shows that in general employershave recognised the added value union learning canoffer them, so much so that a large minority ofemployers (43 per cent) plans to continue with unionlearning and a large minority forecasts union learningwould continue even without external funding such asthe ULF (see Table 6 opposite). The follow-on survey ofUPOs, however, found that over four in five (84 per cent)felt that any ending in government financial support forunion learning would diminish its sustainability.

But this is more than a matter of pledges and promises:management support has continued to develop afterthe end of projects in Rounds 8–10, with ongoing senior management support and increased levels ofconsultation and negotiation on learning especiallynoteworthy (see Table 7 opposite).

Learning agreements: the key to successLearning agreements are a crucial component of asuccessful workplace learning partnership and theircontent is important (see Table 8 opposite). Contentanalysis of 281 learning agreements (63 per cent privatesector, 33 per cent public sector) shows that:■ a large majority are inclusive (i.e. they cover union

members and non-members)■ over three-quarters establish a learning committee■ over half include commitments to support a

learning centre■ very few specify financial commitment by employers.

Learning agreements tend to endure, according to thefollow-up survey of UPOs. Just under half (48 per cent)of UPOs say all agreements have remained in place afterthe project has been completed, while just over half (52 per cent) report agreements have remained inoperation in the majority of cases. Almost six out of ten projects have established new learning agreementssince completion.

Just as securing time to learn remains a major barrier forindividuals, securing time to carry out their role remainsa problem for many ULRs.

At Warburtons bakery (case study above), while thelearning agreement provided for time off for ULRs toperform their duties, this was limited in practice by theneed to meet production requirements. An agreementgranting ULRs two hours every three days was beingrenegotiated at company level at the time of the survey.


Investing in the futureBombardier Transportation could see the businessbenefits of the union learning project so clearly thatwhen external funding dried up the companystepped in to invest at significantly increased levels.

While the company injected between £25,000 and£30,000 in the first two years of the Confederation ofShipbuilding and Engineering Unions (CSEU) project,once ULF funding ended, it invested around £80,000in 2009.

“The learning centre manager made the role he wasdoing viable, and when the [ULF] funding stopped,the business benefits were so obvious we would bedaft not to continue the work with our own funding,”says the site general manager.

Continuing to invest in the project was linked toextending the learning opportunities on offer toachieve specific business benefits; language classeshave proved invaluable for global communicationwithin the firm, while Pilates classes have helpedreduce repetitive strain injuries and sicknessabsence among the welders who work for long hoursin restrictive conditions.

CASE STUDY

Table 5: Impact of the recession on union learning – union views (percentage)Activity Increased No change DecreasedEmployee demand for learning 74 26 0Joint working with unions 57 39 4Organisational support for union learning 50 37 13

Source: Union project officers’ follow-up survey, base: 53 responses.

Table 6: Sustainability and added value of union learning – employers’ views (percentage)Views of employers involved in union learning Agree Neither agree Disagree

nor disagree

Unions should continue to develop their role in the learning agenda 91 8 1Organisation will continue to be involved with union learning activities 87 10 4Union learning benefited individuals taking part 81 15 4Management very supportive of the union role on learning 79 16 5Union learning of benefit to the organisation 63 18 19Learning activities will take place, even without external funding 43 29 28

Source: Employers’ survey, base: 415 responses.

Table 7: Management support and employee relations on learning issues since end of project (percentage)Activities Increased No change DecreasedLevel of consultation 64 33 4Level of negotiation 62 33 6Union–management partnership activity 58 37 6Openess of management to new union initiatives and projects 58 31 12Senior management support for union-led learning 56 37 8

Source: Union project officers’ follow-up survey ULF Rounds 8–10, base: 52 responses.

Table 8: Proportion of learning agreements including specific selected provisionsProvision PercentageCovers all employees (members and non-members) 85Commitment to partnership 81Includes an equal opportunities statement 80Identification of learning needs 79Establishment of learning committee 76Support for learning centre 57Joint monitoring of agreement 55Paid time off for learning 54ULR role 50Union role 47Employer contribution to cost 17

Source: CERIC Learning Agreement Database, base: 281 learning agreements.


“We have come a long way, with unions

developing national learning strategies,

and key messages about the value of

learning to unions being grasped by most

at regional levels too: the challenge is to

ensure that this is turned into action to

bed ULRs into organising strategies so

they are not a bolt-on project from outside,

but really a part of what we all do.” Union stakeholder

According to the learners’ survey, as many as 85 percent of the respondents see the value of the union’swork on learning and three-quarters now look morefavourably on the work unions do in general as aresult of their union learning experiences.

Learning links with organisingThere is considerable evidence that union learning helpsunions build their organising capacity.

Activities that were established during the majority ofthe projects were ULRs working more effectively withintheir branch; learning becoming more linked to unionorganising; and learning and skills forming part of unionnegotiating (see Table 9 below).

ULF projects have had a positive impact onparticipating unions, according to UPOs. More than nine out ten (91 per cent) believe the ULF hasimproved employee attitudes to the union; nearly eightout of ten (79 per cent) say it has led to membersbecoming more interested in taking union roles; morethan eight out of ten (82 per cent) say it has helpedworkplace reps become more capable; and just underseven out of ten (69 per cent) credit the ULF withincreased union membership.

In many cases, these numbers increase after thecompletion of the projects, with more than two-thirdsreporting increased activity in many areas (see Table 10 opposite).

Learning centres boost outcomesThe presence of learning centres helps to establish aunion learning culture. Overall, 215 learning centreshave been set up in just over half (54 per cent) of theRound 8–10 projects. Just under half of projects (48 percent) reported that of the learning centres establishedall were still in operation, while a similar proportionreported that the majority were operational. Moreover,just over half (56 per cent) reported that new learningcentres had been established following the completionof the project.

In a crucial assessment of the significance of the unioncontribution, many projects recognise that what are now

Table 9: Embedding union-led learning within unions (ULF Rounds 8–11) (percentage)Activity Existed before Established Working Not working

project during project towards towards

ULRs working more effectively within their branch 11 63 24 3Learning more linked to union organising 12 62 16 10Learning/skills forming part of union negotiating 20 50 20 11Union officers having a specific role for learning 41 39 8 24Written learning policy established 30 38 8 24ULR role written into rulebook 27 28 26 19

Source: Union project officers’ survey, base: 84 responses.


5. UNION LEARNING

PAYS OFF FOR UNIONS

successful and extensively used learning centres wouldnever have been opened without the initial injection offunding from the ULF.

“Would the learning in the learning centre havehappened anyway? No I don’t think so, I don’t think itwould have been on my agenda if it had not beenpushed in front of me by those guys [the union reps],”according to the HR manager at Unilever.

“At one point we got stuck around the funding for the PCs, but they sorted it and it has been a reallyimportant part of it, that they’ve taken the lead andsorted things out.”


Table 10: Post-project embedding of learning into union structures and policies (percentage)Union structures and policies Increased No change Decreased Link between learning and wider organising activity 73 21 6Senior officer support for union learning activity 68 29 4Formal union support for wider project work 68 33 0Day-to-day engagement with unionlearn 64 26 10Position of learning/skills in union negotiating agenda 62 35 4Embedding of ULR role in branches 60 37 4

Source: Union project officers’ follow-up survey, base: 53 responses.

Building capacityThe Unite ULF project Learning for Organising Migrant Workers encouraged more than 1,000vulnerable workers in London’s contract cleaningsector into English and computer classes.

“The initiative was built on an organising campaignfor a living wage and involved very focused targetingon highly exploited workers who would benefit mostfrom such activity,” says the union project manager.

Run at weekends because of cleaners’ unsocialworking hours, the free classes not only helped thelearners stand up for their rights, but also improvedunion organisation and contributed to union renewalby encouraging new committed members to join theirlocal branch committee.

CASE STUDY

Paul Carter

Sustainability is crucialIt is important to assess the added value that union learning brings to the workplace. This involvesestimating what activity would not have taken placewithout the projects – demonstrating their additionality.Without ULF funding, according to UPOs, very fewlearning needs assessments would have taken place(see Table 11 below). The quantity and quality oflearning also would not have been as high; with fewerlearners and poorer quality learning provision.

Of key importance to unions are also the factors that aremost likely to influence the ongoing sustainability ofunion learning. The findings of the UPO follow-up surveyunderline the importance of institutionalising union

learning activity at the workplace through establishinglearning agreements, partnerships and learningcommittees (see Table 12 below).

There are some importance differences of opinionbetween employers and UPOs over sustainability:while two in five employers believe union learningwould take place even without external funding, fourout of five UPOs believe that ending governmentsupport for ULF projects would diminish thesustainability of union learning.

Table 12: Factors influencing sustainability of union learning (percentage)Factors Enhances No impact DiminishesA signed learning agreement 81 15 4Partnership approach between management and unions 78 20 2Consultation on learning 74 26 0A learning committee 72 39 0Formal bargaining on learning 68 32 0A learning centre 58 39 4End of government financial support 2 15 84

Source: Union project officers’ follow-up survey ULF Rounds 8–10, base: 54 responses.


Table 11: Additionality in ULF projectsWhat would have happened without ULF funding? Yes (percentage)No learning needs assessment 76Same learning but fewer learners 58Learning would have been of a poorer quality 44No learning at all 35Learning would have occurred later 24Same learning but for less time 17Same learning would have taken place 12

Source: Union project officers’ survey, base: 84 responses.

“You have developed a powerful

model in unionlearn, reaching out to

businesses and giving individuals a

chance they never would have had.” Vince Cable, Secretary of State for Business,Innovation and Skills

Union and government stakeholders believe unionlearning has met or exceeded the challenges set interms of funding for learner targets, and regionalfunding partners say union learning is perceived asbeing good value for money as a route to learnerand employer engagement.

“Volumes have increased and, with better reporting andevidence, union learning is now seen to be better valuefor money” says a partner stakeholder. “It has ratchetedup targets and value – although the union learningtarget group is often ‘hard to reach’, so it is not so easyto compare this with outcomes via other routes.”

Government and regional funding partners rateunionlearn’s contribution to the development oflearning and skills policy (including its specific inputinto national strategies on adult careers guidance, Skills for Life and informal adult learning).

Partners also recognise the value of feedback from unions and ULRs (via unionlearn) on theimplementation of workplace-based learning and skills policy, especially sector skills, English for Speakers of Other Languages (ESOL), Train to Gain and the Skills Pledge.

“The union learning agenda is closely linked to the skillspolicy infrastructure in terms of skills activism, newindustry/new jobs and green skills, and unionlearn hasalso made good contributions to the Skills White Paper,”says a government stakeholder.

Union stakeholders felt that the creation of unionlearn,which brought together trade union rep education andtrade union learning services (for members), has helpedto build ‘legitimacy’ of the union role in learning andskills within the union movement.

Stakeholders believed unionlearn has largely achievedits objective of generating large volumes of learners in order to build a ‘critical mass’ of activity and gainlegitimacy within the union movement and government.

Looking to the future, most partners feel that the focus for the next three to five years should be onconsolidation, building the learning role within unionsand linking this to the wider learning and skillsinfrastructure.

While most partners believe unionlearn providescoherence to union learning, union partners believethat, while progress has been made to achieve greaterconsistency between the work of the national andregional teams, there was more to do to improve joined-up working at the national and regional level.


6. THE FUTURE DEVELOPMENT

OF UNIONLEARN


The findings of the evaluation suggest that, whileembedding union learning remains a challenge, thereseems to be a striking degree of consensus amongunion representatives and employers about thepotential benefits of union learning.

The benefits are evidenced by the impressive set offormal learning outputs delivered by ULF projects.Union learning activity is offering accredited learningopportunities for many learners with few or no formal qualifications and this has led to progressionfor a significant minority. There have also been notablesuccesses in terms of take-up of higher-level skills.Overall, there is clear evidence that progression in learning would not have happened without union intervention.

Learning is also becoming a more ‘mainstreamed’ activityfor unions. They are writing the role of ULRs into theirrulebooks; developing more formal policies aroundlearning; linking learning explicitly to organising;establishing more effective working between ULRs andbranches; and putting learning into the negotiation arena.

This is not to suggest there are no challenges. UPOs inadvancing ULF projects and ULRs in the promotion oflearning at the workplace face considerable barriers in

engaging employers, be it in terms of raising generalinterest and support from employers, establishinglearning agreements or eliciting the appropriate timeneeded for learners to receive advice about or takeadvantage of learning opportunities.

UPOs also face challenges in terms of the recruitmentand training of ULRs: time constraints are an additionalpressure on ULRs.

While noting the challenges that unions face inadvancing learning, the evaluation has highlighted theperceived impacts that union learning is having for bothunions and employers.

For UPOs, union activity is leading to learningopportunities that simply would not have existedwithout the ULF, and employers confirm that the unionrole has led to higher levels of learning.

The employers also appear confident about future andongoing engagement with unions on learning matters,even without external funding, and there is alsostakeholder recognition of the increased capacity forsupporting this work since the establishment ofunionlearn. All these positive messages offer optimismabout the sustainability of union learning.


‘All these positive messages offer optimismabout the sustainability of union learning’


Trades Union Congress, Congress House,Great Russell Street, London WC1B 3LSwww.unionlearn.org.uk

Design: www.design-mill.co.uk

Print: Precision Printing

Cover photo: Mark Thompson

union learning adding value - an evaluation of unionlearn and the union learning fund

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