There was an expectation that the summer spending review would clear up many of the funding issues confronting post-14 education and training. Instead, it has raised more questions than answers.

At first glance, government policy is clearest for 14 to 19-year-olds. Tuition is free for 14 to 16-year-olds in the state schooling system and, from this year, for all 16 to 18-year-olds in full and part-time education and training. On the financial support side, the spending review confirms the national roll-out of education maintenance allowances (EMAs). Meanwhile, training allowances remain available for young people on work-based schemes who do not receive a wage.

Yet, all is not what it seems. For instance, the Department for Education and Skills wants a more flexible curriculum for 14 to 16-year-olds. This is to encourage increasing numbers of pupils to spend one, two or even three days of the school week on vocational programmes provided by colleges, private providers or employers.

Assuming that a large proportion of pupils wish to learn away from school premises, it is fair to conclude that colleges, private providers and employers will want reimbursing for tuition costs. The Treasury will also not want to fund schools for days when pupils are not there.

The DfES Green Paper on 14 to 19s rightly highlights this “double” funding issue. Sadly, the DfES consultation on school funding and wider consultation on local government finance by the Office of the Deputy Prime Minister seem to avoid it.

Another issue in the 14-19 sector concerns youth apprenticeships and EMAs. From now until 2004, at least 28 per cent of 16 to 21-year-olds are expected to enter youth apprenticeships. From September 2004, the national roll-out of EMAs begins. But just as work-based training is set to expand, along come EMAs to entice young people back into education.

Turning to adult education and training, funding policy is as clear as mud. In terms of higher education and training, the spending review confirms the end game, namely that 50 per cent of 18-to 30-year-olds should participate by 2010. Yet, the review of tuition costs and student support continues to be delayed. Hopefully, the delay is a sign that Number 10, the Treasury and the DfES are considering tuition incentives for part-time as well as full-time students. And if higher EMAs are to be piloted, they too should cover part-time and full-time students.

For adult learning and skills outside higher education and training, things are even more complicated. Once again, the spending review provides a DfES target. By 2010, there should be 40 per cent fewer adults without a level 2 (GCSE A-C) qualification. However, the difficulty has been obtaining agreement on policies to achieve this. Hence the announcement of a new “fundamental” review of adult learning.

One approach is to focus on the adult workforce, especially those in employment. The Learning andSkills Council is piloting six projects based on free tuition, replacement funding and the right to paid time off for adults without a level 2. It is also running more than 40 sector-based training pilots, while the DfES pilots small-firm learning accounts.

Another approach is to assist adults to achieve their first level 2 certificate irrespective of their labour market status and whether the qualification relates to their current job or future career.

The adult level 2 saga began with the National Skills Task Force. Then the Performance and Innovation Unit - now called the Strategy Unit - became involved and is to publish an implementation plan on workforce development in the autumn, at which time the DfES takes forward the “fundamental” review.

But the fact remains that the DfES is involved in two fundamental reviews of adult learning - higher education and training, and adult learning and skills. A unique opportunity exists to join up both reviews and consider the funding of adult learning in the round. The most obvious time to start such a debate would be the pre-Budget report this November.

Mark Corney is a director of MC Consultancy