CABINET

REPORT OF HEAD OF TRANSFORMATION ANDREW THOMAS

22 APRIL 2015

SECTION A – MATTER FOR DECISION

WARDS AFFECTED: GWAUN CAE GURWEN AND LOWER BRYNAMAN

STRATEGIC SCHOOL IMPROVEMENT PROGRAMME – PROPOSAL TO CLOSE YGG CWMGORS AND TO PROVIDE WELSH-MEDIUM PRIMARY EDUCATION FOR PUPILS WHO WOULD OTHERWISE ATTEND THERE AT YGG GWAUN CAE GURWEN

Purpose of Report

To obtain Cabinet approval to implement a proposal that makes provision for pupils in the area served by YGG Cwmgors to receive Welsh-medium, primary education at YGG Gwaun Cae Gurwen and to close YGG Cwmgors.

Background

The Council is responsible for promoting high educational standards and for delivering efficient primary and secondary education. Having the right schools in the right place and ensuring that they are fit for the 21st century learner is the challenge facing the Council. Achieving this will involve reviewing the number and type of schools the Council has in its area and assessing whether or not best use is being made of resources and facilities.

Implementing the Strategic School Improvement Programme involves reviewing existing provision and determining the number and type of schools needed to deliver education effectively and efficiently across the County Borough. It will most likely lead to substantial change involving opening new schools, closing existing schools, merging or amalgamating schools, federating schools and promoting new initiatives that support collaborative working between schools.

The Council has decided to review its provision on the basis of: a. educational standards b. the need for places and the accessibility of schools

c. the quality and suitability of school accommodation d. effective financial management.

Following consideration of a report of 11th February 2015, the Council’s Cabinet gave approval to publish by way of statutory notice its proposal to close YGG Cwmgors and to make education provision for the pupils at YGG Gwaun Cae Gurwen.

The Proposal

It is proposed to discontinue YGG Cwmgors and to make provision at YGG Gwaun Cae Gurwen for pupils who would otherwise have attended YGG Cwmgors. Both schools are 3-11, Welsh-medium community schools maintained by Port Talbot County Borough Council.

If approved, the proposal will take effect on the 1st September 2015 with YGG Cwmgors closing on 31st August 2015.

YGG Cwmgors

YGG Cwmgors is a small primary school1. As at January 2015 there were 38 full-time and 9 part-time pupil on roll and projections do not anticipate pupil numbers increasing significantly in the future. The school has the capacity to accommodate 73 full-time pupils.

As at 14 April 2015, there were 38 full-time and 10 part-time pupils on roll.

For the 2014/15 financial year the school had above average per pupil funding of £4,792 which was 37% higher than the average (£3,499) for primary schools in the County Borough. For the 2015/16 financial year, the school’s per pupil funding is £5,069, which is 46% higher than the average (£3,467).

YGG Gwaun Cae Gurwen

As at January 2015 there were 114 full-time and 25 part-time pupils on roll. The school has the capacity to accommodate 178 full-time pupils.

As at 14 April 2015, YGG Gwaun Cae Gurwen had 114 full-time and 26 part- time pupils on roll.

1 90 pupils or fewer

For the 2014/15 financial year the school had slightly above average per pupil funding of £3,638, which was 4% higher than the average (£3,499) for primary schools in the County Borough. For the 2015/16 financial year, the school’s per pupil funding is £3,304, which is 5% lower than the average (£3,467).

YGG Gwaun Cae Gurwen - combined roll The following table shows a 5 year forecast1 in respect of YGG Cwmgors and YGG Gwaun Cae Gurwen.

Table 1 January January January January January 2016 2017 2018 2019 2020 YGG Cwmgors (exc nursery) 41 44 46 49 47 YGG Cwmgors (nursery only) 10 10 10 10 10 YGG Gwaun Cae Gurwen (exc nursery) 119 117 117 120 125 YGG Gwaun Cae Gurwen (nursery only) 26 24 25 25 25 Combined roll 196 195 198 204 207 Combined roll (exc. nursery) 160 161 163 169 172

The impact of the proposal is that YGG Gwaun Cae Gurwen’s notional per pupil funding for 2015/16 would be 9% (£306) lower than the average (£3,467) for primary schools in the County Borough which supports the Council’s effective management of the education budget and the more equitable distribution of funding across local schools.

Admission to the primary school, including nursery pupils transferring to full- time education will be in line with the Council’s Admission Policy. However, full-time pupils currently on roll at YGG Cwmgors will automatically transfer to the roll of YGG Gwaun Cae Gurwen, subject to the wishes of parents and Y6 pupil transfers to secondary education.

The efficiencies and economies of scale that can be achieved at a larger, single school with increased numbers on roll and single governance and leadership structures will enable a wider range of learning and development opportunities for pupils and staff to be delivered. YGG Gwaun Cae Gurwen is an effective school which has secured good levels of learner outcomes in key performance indicators. Children moving from YGG Cwmgors to YGG Gwaun Cae Gurwen will not be disadvantaged educationally, and will find benefit in some aspects of the move, for example having a larger group of friends, wider extra -curriculum provision and greater opportunities for team games and sporting activities.

1 Jan 2016 projections based on Jan 2015 PLASC actuals and assuming transfer to YGG Gwaun Cae Gurwen of all pupils who would otherwise be on the roll at YGG Cwmgors

Both YGG Cwmgors and YGG Gwaun Cae Gurwen are Welsh-medium schools.

Currently, neither YGG Cwmgors nor YGG Gwaun Cae Gurwen school has a specialist unit for children with statements of special educational needs. Both schools support pupils with additional learning needs, including children with statements of special educational needs, in a mainstream setting with appropriate funding for this purpose. Children transferring to YGG Gwaun Cae Gurwen will continue to benefit from this level of support.

YGG Gwaun Cae Gurwen is a medium size school and forecasts suggest that pupil numbers will not increase significantly from within the current catchment area. With a combined roll of 160 full time and 36 part time pupils, there is sufficient capacity at YGG Gwaun Cae Gurwen to accommodate pupils from YGG Cwmgors without the need for additional accommodation or building works. Class sizes and organisation are for the school’s leadership to determine. In addition, there is sufficient flexibility within the existing buildings to expand classroom accommodation if needed. As such, capital build does not form part of this proposal. Building repair and maintenance requirements will be dealt with as part of the Council’s programme for maintaining schools and from the school’s delegated budget responsibilities.

The proposal will remove some £444k1 of backlog maintenance responsibilities and deliver potential revenue savings of £463k over 5 years through per pupil funding and leadership efficiencies.

Statutory Notice

At the Cabinet meeting of the 11th February 2015, the outcome of consultation was considered. Members determined that the case for the proposal remains strong and that comments received during the consultation process were addressed in the relevant Cabinet and Consultation Reports. Comments opposing the proposal did not, on balance, present a convincing argument suggesting its modification or abandonment. As such Members approved the statutory publication of the proposal. To this effect, a statutory notice was published on the 24th February 2015 allowing the required 28 day period for submitting objections which ran until 23rd March 2015. The statutory notice is available using the electronic link in the section on background papers listed below.

1 Updated survey: 2014 assessment. Was £370K: 2009 survey as quoted in Cabinet Report 011014

Objections to the proposal

8 individuals submitted an objection and an on-line petition with 308 names has been submitted.

Copies of the objections are available in the Members’ Library at the Civic Centres at Neath and Port Talbot. The Objection Report is attached to this report as an appendix and is also available using the electronic link in the section on background papers, listed below.

Staffing

Closure of YGG Cwmgors will mean that existing staff contracts will need to be terminated. To support staff, the management of change process will apply. The Council has a proven track record for supporting staff in such situations, working with the teacher associations/trade unions to secure, as needs arise, alternative employment for staff.

Funding

Consolidated Budget Shares for 2015/16 were issued in early March 2015. As the outcome of the proposal to close YGG Cwmgors was not known at that juncture, arrangements for the school’s budget allocation were modified to accommodate this situation. Whereas YGG Cwmgors’s budget share allocation for the full financial year has been calculated, only funding for the period April 2015 to August 2015 has been released. Funding for the period September 2015 to March 2016 has been centrally retained until a decision as to whether or not to implement the proposal has been taken.

Community Impact Assessment

The Community Impact Assessment recognises the importance of YGG Cwmgors in providing a venue for school based events and extra-curricular activity. These activities can be preserved and transferred to YGG Gwaun Cae Gurwen with no loss of amenity to the wider community.

There is no community provision within the school and, as such, there will be no community provision lost and, hence, there are no plans to mitigate loss. The transfer of pupils from YGG Cwmgors is seen as an opportunity to extend the community provision at YGG Gwaun Cae Gurwen to create a Community Focused School for the Amman Valley.

All existing community facilities in Cwmgors and Gwaun Cae Gurwen can be retained and under this proposal there is an opportunity to make better use of those that are underutilised. There is no evidence to suggest an adverse effect upon community provision if YGG Cwmgors was to close.

The full community impact assessment is available using the electronic link in the section on background papers, listed below.

Equality Impact Assessment

An equality impact assessment has been carried out and found that there is no adverse effect on any particular group and the process has checks and monitoring in place. Any potential adverse effect has been evaluated and impact mitigated.

The equality impact assessment is available using the electronic link in the section on background papers, listed below.

Consideration of the objections to the proposal

The objections are summarised in the Objection Report (attached) together with officer responses.

Although the case for maintaining YGG Cwmgors as a village school has been clearly voiced by those opposed to the proposal, it is the opinion of officers that concerns raised by objectors can be mitigated by management and organisational arrangements as set out in the responses to the objections. In addition, comments opposing the proposal do not, on balance, present a convincing argument against implementation.

The case for closure remains strong and Members are recommended to approve implementation of the proposal to make provision for pupils in the area served by YGG Cwmgors to receive primary phase, Welsh-medium education at YGG Gwaun Cae Gurwen as from 1st September 2015 and to close YGG Cwmgors on 31st August 2015.

Formal procedures

The School Standards & Organisation () Act 2013 provides for the local authority to determine whether to implement proposals where there is no requirement for approval by the Welsh Ministers. This proposal requires no such approval and, as such, following consideration of the objections submitted

during the 28 day statutory objection period it falls to Cabinet to determine whether the proposal is to be implemented.

Recommendation

Having given due regard to the EIA in respect of this proposal it is recommended that, in line with Section 53 of the School Standards and Organisation (Wales) Act 2013, Members determine to implement the proposal to close YGG Cwmgors and make arrangements for the pupils who would otherwise attend there to receive their Welsh-medium, primary education at YGG Gwaun Cae Gurwen.

The date of implementation to be 1st September 2015.

Reasons for Proposed Decision

The concerns raised by those objecting to the proposal can be mitigated by management and organisational arrangements as set out in the objection response and the case for closure remains strong. With no requirement for approval by the , the decision to implement the proposal rests with Cabinet. Implementing the proposal will enable the Council to meet its commitment and responsibility to: a. promote high standards and the fulfillment of every child’s potential; b. promote Welsh-medium education; c. meet its duty to secure efficient education in its area; and d. comply with legislative requirements.

List of Background Papers

The objections to the proposal are available for Members to read in the Members’ Library at Neath and Port Talbot Civic Centres. In addition, the following background papers are relevant to this proposal: a. Strategic School Improvement Programme Principles Paper: September 2008 https://democracy.npt.gov.uk/Data/Cabinet/20080924/Agenda/$CAB-240908-REP-EL- KN.doc.pdf b. Cabinet Reports: October 2014 and February 2015 https://democracy.npt.gov.uk/Data/Cabinet/20141001/Agenda/$CAB-011014-REP-EL- AT.docx.pdf https://democracy.npt.gov.uk/documents/s12785/CAB.%20110215%20Cwmgors.pdf c. Statutory notice: Feb 2015 http://www.npt.gov.uk/pdf/STATUTORYNOTICECwmgors.pdf http://www.npt.gov.uk/pdf/WelshSTATUTORYNOTICECwmgors.pdf

d. Objection report http://www.npt.gov.uk/default.aspx?page=6477 e. Consultation Document http://www.npt.gov.uk/docs/CwmgorsConsultationDocument.doc http://www.npt.gov.uk/pdf/CwmgorsConsultationDocumentWELSH.pdf f. Consultation Report http://www.npt.gov.uk/pdf/ConsultationReportCwmgors2.pdf g. Community Impact Assessment: http://www.npt.gov.uk/pdf/YGGCwmgorsCommunityImpactAssessmentOct14.pdf h. Equality Impact Assessment: http://www.npt.gov.uk/pdf/EIA2ReportFormCwmgors.pdf i. Welsh Government - School Organisation Code: July 2013 http://gov.wales/docs/dcells/publications/130719-school-organisation-codes-en.pdf j. School Standards & Organisation (Wales) Act 2013 http://www.legislation.gov.uk/anaw/2013/1/pdfs/anaw_20130001_en.pdf k. Welsh in Education Strategic Plan http://www.npt.gov.uk/pdf/WESP_2014_2017_English_Final.pdf l. Learner Travel (Wales) Measure 2008 & the Learner Travel Statutory Provision and Operational Guidance 2014 http://www.legislation.gov.uk/mwa/2008/2/pdfs/mwa_20080002_en.pdf http://gov.wales/docs/det/publications/140616-ltog-en.pdf m. Formula Funding review, Cabinet Report: June 2011 https://democracy.npt.gov.uk/Data/Cabinet/20110615/Agenda/$CAB-150611-REP- EL.doc.pdf

Officer Contact

Mr Andrew Thomas, Head of Transformation tel: 01639 763791 email: [email protected]

COMPLIANCE STATEMENT

STRATEGIC SCHOOL IMPROVEMENT PROGRAMME – PROPOSAL TO CLOSE YGG CWMGORS AND TO PROVIDE WELSH-MEDIUM PRIMARY EDUCATION FOR PUPILS WHO WOULD OTHERWISE ATTEND THAT SCHOOL AT YGG GWAUN CAE GURWEN

(a) Implementation of Decision

The decision is proposed for implementation after the 3-day call-in period

(b) Sustainability Appraisal

Community Plan Impacts

Economic Prosperity - positive Education, Leisure & Lifelong Learning - positive Better Health & Well Being - positive Environment & Transport - no impact Crime & Disorder - positive

Other Impacts

Welsh Language - positive Sustainable Development - no impact Equalities - positive Social Inclusion - positive

(c) Consultation

Consultation with interested parties has been undertaken during the period 20th October 2014 – 14th December 2014. A statutory notice was published on the 24th February 2015 allowing 28 days for receipt of objections.

Appendix

OBJECTION REPORT

Proposal to close YGG Cwmgors and make arrangements for the pupils to receive their education at YGG Gwaun Cae Gurwen

1. Purpose of the objection report

This report is to inform the outcome of the objection period which commenced on 24th February 2015 and ended on 23rd March 2015. During this period a statutory notice was made available on the Council’s website under the Strategic School Improvement section and sent to all those on the consultee list attached under Appendix A.

2. Summary of objections received

8 individuals submitted an objection and an on-line petition with 308 names has been submitted.

Objector categories are as follows: Parent 3 School staff 1 Governor 2 Other 2

(Elected Members are provided with a copy of all objection e-mails and letters received for their reference. A summary of those objections are set out below)

- I would like you to consider the amalgamation of both schools, YGG GCG and YGG Cwmgors. We have successfully worked well together over the past 2 years and could continue to do so with one Headteacher overseeing both schools. - You state on the risk assessment done on the walk that there are no risks yet on a Friday morning when its refuse collection it is in no way safe for my children to walk that route without having to walk into the road due to all the wheelie bins being scattered across the pavements. Why hasn’t this been taken into account when considering the risk assessment. - In view of the stated Welsh Government key priority of breaking the link between deprivation and attainment how can it be right for a school which is in a recognised deprivation area to be closed. These children do better in a

school with smaller class numbers and their ongoing needs more easily identified and implemented. - Welsh Government advised that school closure and a rebuild would benefit from extra funding why was this advice ignored 3 years ago when closing of both The Glyn and Cwmgors would have seen a new build on the site of Gwaun Cae Gurwen Primary school. The aspiration of officers is to rebuild in 2017 at the Gwaun Cae Gurwen Primary school site why was the aspiration not upheld 3 years ago. Why spend on new electrics, toilets, hung ceilings and a complete new kitchen at an approx. cost of £1,000,000 when the aspiration is to rebuild. - What solution do you have in place for the safe travelling of 3 years to 11 years old. - Financial report shows that GCG school budget for 15/16 has been rejected by full governors while the Cwmgors budget has a small surplus, even with children from Cwmgors there will be a deficit in the GCG budget. How can the authority approve the removal of children to a school with financial difficulties. - Classes will be bigger at YGG Gwaun Cae Gurwen I feel that this will affect my child’s education and won’t be near as good as the one he is receiving now. My son has moved school once this will affect him emotionally and mentally. - YGG Cwmgors currently has a lease that has another 3 years to run, closure would mean an ongoing cost of £4,000 per annum. Cwmgors has a Ti a Fi while GCG are up to capacity with Cylch, what development plans do you have for the area to increase the linguistic progression? The Estyn report of 2010 and the authorities Autumn Core Assessment show Cwmgors to be adequate showing no improvement why was the comparison not taken from the Autumn Core Assessment 2013 used as comparison as this report shows improvement. Pupil projections show the highest number to be 49 but this does not include the fact there are 2 family homes built near the school which are yet to be sold. Why did YGG Cwmgors not receive the same level of support funding to improve as GCG. There are concerns that the increased travel could impact on attendance. Statistics show that 250 pupils are educated cross border at a cost to NPTCBC, over the years this has cost has been £4,500,000. The report shows that GCG pupil funding would be lower than the average for primary schools, how would the school expect to run on a budget as low when they have only managed to operate on an average budget of £540,000 from 2008 to 2013. What additional costs would there be for GCG to accommodate the additional pupils? Why has the risk assessment for the children having to walk to GCG not been made public, it needs detailed review. NPTCBC receive additional funding for 21st Century schools why was the option of building a new school not discussed. There could be potential savings used to merge the two schools together on

neutral ground. The governors, teachers and parents associated to the school would prefer to run the school under the guidance of a hard federation alongside Gwaun Cae Gurwen - UCAC wishes the council to give consideration to the option of federation but if the proposal goes ahead there is a strong argument to add staff to YGG Gwaun Cae Gurwen with the additional pupils attending from the teaching staff of YGG Cwmgors and that there is clear and consistent communication with staff whose posts are under treat together with support under the redeployment process. - Parking is a huge problem at YGG G.C.G as it stands and will worsen significantly if YGG Cwmgors closes. The walk is not safe. I feel my children will have less attention from teaching staff at such a large school as YGG G.C.G

Officer response to objections raised is as follows (responses have been categorised):

Standards at YGG Gwaun Cae Gurwen and YGG Cwmgors At YGG Gwaun Cae Gurwen children attain good outcomes in Foundation Phase and in Key Stage 2. Standards are at least as good as those in YGG Cwmgors and children should not experience any disadvantage from transferring to YGG Gwaun Cae Gurwen because it is a larger school.

The latest Autumn Core visit reports for both schools (Autumn 2014) demonstrate that YGG Cwmgors is placed in the Yellow support category of the national school categorisation system while YGG Gwaun Cae Gurwen is in the Green support category. Schools in the yellow category are deemed to be effective schools which have secured good levels of learner outcomes while schools in the green category are noted to be highly effective schools which have a track record in sustaining a high level of learner outcomes.

Estyn in their response to the consultation have commented that the proposal is likely to maintain the current standards of education and provision in the area and that impact of revised admission arrangements will lead to very little disruption to pupils’ learning.

Many parents believe that small schools can provide 1-1 attention for children because they have smaller classes. However while classes may be smaller because the overall pupil numbers in the school are small, it is often the case that there is a wider age range (and therefore wider ability range) for the class teacher to plan for and it is possible that some children within the class will at times not have the attention they need to make progress. Larger schools make allowances for the fact that they have greater numbers of pupils – work is often

completed in ability groups within the class, sometimes with teacher or teaching assistant support which can be funded due to efficient management of the budget, more easily achieved in a larger school. Larger schools will not always mean larger classes – but it is almost certainly the case that in larger schools classes will not contain more than two different year groups, and the greater numbers of pupils often means that classes can be set to ensure that there is a more equal distribution of children with similar needs within them, thus enabling more opportunities for specific, structured teaching activities to address those particular needs.

Linguistic progression & Ti a Fi provision The impact of the closure of YGG Cwmgors on the Welsh toddler playgroup (Ti a Fi) was addressed in the Community Impact Assessment and the Consultation Reports. In both it is stated that the playgroup helps very young children and their parents to become familiar with the school. This provision complements the wraparound care currently offered at YGG Gwaun Cae Gurwen. The Community Impact Assessment found that there is general acceptance locally that the Ti a Fi could transfer to Gwaun Cae Gurwen Community Centre which has spare capacity. Provision could also be made at YGG Gwaun Cae Gurwen where community space exists, either of which will support linguistic progression.

Small schools -v- large schools YGG Cwmgors is a small primary school1 and forecasted pupil numbers suggest it will remain a small school with high cost of provision and associated difficulties in delivering education in classes with wide age range. There are no housing developments planned for the area that would give rise to significant increases in pupil numbers.

Delivery of education can be more effective in larger schools. The recent Estyn report ‘School Size and Education effectiveness’ December 2013, states ‘Curriculum provision is better in large schools’ – this means larger schools can provide greater opportunities for teaching and learning.’

Schools receive funding based on pupil numbers. The more pupils in a school, the more money will be available for the head teacher and governing body to be able to resource the school both with staff and physical resources. One key factor in improving standards of education in schools is the quality of the teaching that children receive, and with the greater resources available the more opportunities will exist to train and support staff often from within the school itself. Larger schools build teams of staff who can share expertise and good

1 90 pupils or fewer

practice, and who can work in partnership to improve aspects of curriculum delivery to meet the needs of the children in their care. Schools with more than one class in each year group can divide their workload, and shared teaching is possible which means staff can teach to their particular strengths, which can further benefit pupils. As Estyn report: “In large and medium sized primary schools it may be more likely that staff have a wider range of expertise and knowledge of specific themes, topics and subjects that can enrich the curriculum for pupils”.

A new school to replace YGG Cwmgors and YGG Gwaun Cae Gurwen Whereas the Council’s aspiration is for a new build school to replace the existing buildings at YGG Gwaun Cae Gurwen, as a capital scheme this is not a priority. The Council has an ageing school building stock and there are a number of schools where new build development needs first to be addressed. New build schools require significant capital investment for which grant assistance is needed from the Welsh Government’s 21st Century Schools funding programme to match the Council’s 50% contribution to costs. Both these factors limit the extent and scheduling of the Council’s capital build programme. As such, the Council’s intention for a new build at YGG Gwaun Cae Gurwen submission is dependent on the WG’s grant funding programme – currently only projects in the funding allocated in Band A (2014 – 2020) is supported. Band B funding arrangements originally set for 2015-2017 but subsequently deferred, have yet to be announced.

Recognising the strategic importance in maintaining business continuity at YGG Gwaun Cae Gurwen in the interim, the Council has invested significantly in the school’s mechanical and electrical infrastructure, and construction work on demolishing the existing kitchen/dining block and replacing this a new, full production kitchen at a cost of approx. £400k, is now complete and operational.

Financial issues An objection has been raised over the costs of maintaining YGG Cwmgors until its lease expires. There is provision in the lease allowing the Authority to give the landlord notice to terminate. The details of the terms and conditions of the notice will be a matter of negotiation between the landlord and the Council. It is the practice, where school premises are no longer required, to seek alternative usage/users or to sell the property/site. In this case it will be until the site is returned to the landlord. Whilst still the responsibility of the Council, services (gas, electricity, water, etc.) will be shut down and the building made safe to reduce the risk of fire and damage. The work necessary to make the building and site safe will vary in line with circumstances, the exact details of which will be assessed should this situation arise. Experience shows that these costs are

not significant in comparison to the recurring costs of running a small school building/site. They are also short-term costs.

Loss of income through out-of- county placements Separately, the costs to the Council of parents seeking alternative placements for their children at out-of-county schools has been raised, supported by the results of a parental survey. Notwithstanding that some pupils transfer to other schools because of changes to family circumstances, there is good reason to believe that the joint working that has been ongoing between YGG Gwaun Cae Gurwen and YGG Cwmgors will result in the majority of pupils transferring to YGG Gwaun Cae Gurwen. Nevertheless, should YGG Cwmgors close parental choice will determine the school to which pupils will transfer. The Council would wish to see all pupils at its schools, but acknowledges that parents may exercise their right for an alternative placement. The cost of educating pupils out of county is borne by the local authority maintaining the school(s). As such it is neither a cost nor a saving to Neath Port Talbot Council. Notionally, it could result in fewer teachers and support staff being required but given the potential numbers involved, on balance this does not present a strong case against closure.

Per pupil funding The ‘per pupil’ funding figure for YGG Gwaun Cae Gurwen as stated in the Council’s documentation has been challenged. The figure, at £3,038, derives from the school’s budget allocation for 2014/2015. The components of the budget allocation and associated costs are set out in the budget share information that was issued to schools at the beginning of the financial year. This is the information that the governors use to set its budget for the year ahead and which is published by the Welsh Government.

Home to school travel Concerns over travel to school arrangements have been raised again in the form of an objection. In response it is sufficient to restate the response set out in the consultation report and the Cabinet report of 11th Feburary 2015. The schools are in close proximity, approximately 1.3 miles apart, and it is the case that there are parents and pupils from the YGG Cwmgors catchment area who have already determined that travel to YGG Gwaun Cae Gurwen is not a barrier to accessing that school. The majority of the catchment area served by YGG Cwmgors is within 2 miles of YGG Gwaun Cae Gurwen.

A risk statement based on a site visit carried out in November 2014 found that the route between YGG Cwmgors and YGG Gwaun Cae Gurwen has good road width, visibility, dropped crossings, footways and residential property for a significant length on both sides. The route assessed was from YGGD Cwmgors

Primary School on the A474 Heol Y Gors, turning right onto Brynamman Road and then right again onto New Road. It identified minimal risk associated with walking this route and concluded that it is generally safe with only minor footway improvements needed that would not involve work of significant cost. The basis of the assessment was the route between the schools as pupils have already demonstrated the ability for daily travel to the respective schools. The assessment describes the route as having an advisory 20 mph speed limit outside YGG Cwmgors with an adequate footway on the right-hand side of the carriageway and adequate street lighting. The right hand side footway narrows slightly after Abernant Road with evidence of parking on the footways. The speed limit is 30 mph with adequate footways and dropped crossings. Generally there is a good straight road with adequate footways, lighting and visibility. There is some local narrowing of the footway on the right hand side and a poor footway surface at a vehicle dropped crossing. The right hand side footway crosses the single track level crossing using a painted demarcation road marking and then turns right into Brynamman Road with good lighting and visibility at the junction.

Parking issues at YGG Gwaun Cae Gurwen should be no greater as a result of this proposal as the school is within walking distance for pupils.

Redeployment of School staff Concerns over job security of school staff have been raised again in the form of an objection. As stated in the consultation document applies. As with any school closure there will be changes to current staffing arrangements. The proposal will mean changes that impact on school staff employment. If the proposal goes ahead YGG Cwmgors will close on 31st August 2015 and all staff will cease to be employed at that school. However, the Council will be working with YGG Cwmgors and the teacher associations/trade unions to secure the employment of staff. The Council has a proven track record for supporting staff in such situations and staff affected will be fully consulted and supported throughout.

Federation and amalgamation as alternative options This response reviews federation and amalgamation as alternative options to the Council’s proposal. It assesses the financial base of the alternative models. The information is supported, as appropriate, with school accommodation and teaching and learning considerations.

School budget share allocations have been used as the basis for these assessments. The budget share reflects the amount of money a school is allocated and from which it has to meet its expenditure. Grant monies have not been included as these are intended for specific targeted needs and not as a

means of sustaining schools. The assessments rely on the most up-to-date data and, as such, the information will not necessarily directly correspond to that produced in earlier reports and documents. The data sources are identified in the footnotes

As stated in the consultation report published with the Cabinet report of 11th February 2015, currently YGG Cwmgors is managed by an acting head teacher on a part time basis while YGG Gwaun Cae Gurwen has a full time permanent head teacher. The schools have not adopted a formal federated approach and are being managed as two separate primary schools, although some excellent joint working is taking place with pupils from YGG Cwmgors attending YGG Gwaun Cae Gurwen for shared activities.

Federation of YGG Cwmgors and YGG Gwaun Cae Gurwen with both schools remaining at their existing sites. Federation provides for two or more schools to be managed under a single governance arrangement. The schools remain separate legal entities and, as such, are funded as separate establishments receiving individual budget shares allocated in line with the Council’s scheme for funding schools (i.e. formula funding), see table 1 below. For comparative purposes the budget share savings resulting from the Council’s proposal to close YGG Cwmgors and transfer the pupils to YGG Gwaun Cae Gurwen is also shown in this table. These savings represent expenditure savings to the Council and, as such, would be available for reinvestment in the general budget for schools.

Table 1 5 2015/16 2016/17 2017/18 2018/19 2019/20 year 7/12ths Projected Projected Projected Projected total £k £k £k £k £k £k YGG Cwmgors 133 237 242 247 247

YGG Gwaun Cae Gurwen. 245 429 428 432 443

Federated Total 378 666 670 679 690 3,083

Council’s Proposal 319 565 569 578 589 2,620

Potential savings 59 101 101 101 101 463 NB: for 2016/17 onwards the figures in the table above are notional as annual budget allocations are dependent on the Council’s revenue support grant allocation; the amount of money set aside for schools (the individual schools budget); and the formula for allocating that money to individual schools.

In a federation, finance, resources and staffing arrangements will be managed by the single (federated) governing body which will have the responsibility to deploy the pooled resources across the two schools. Under a federated governance (and particularly if this is accompanied by a single leadership structure) there are potential teaching and learning benefits, staff development opportunities and efficiencies that can arise. A federation also provides the opportunity to co-ordinate curriculum provision and to improve school performance and enhance educational experiences.

Although separate budget allocations provide the opportunity for economies in school based expenditure; for example employing 1 x head teacher rather than 2 releases a significant amount of money to be used elsewhere at the schools, such an arrangement does not provide financial savings for the Council for reinvestment into the general budget for schools to the benefit of all schools. In the case of YGG Cwmgors the school would receive a high level of small school protection in its budget allocation. Because of this, federation would not address the significant cost inefficiency in maintaining a small, high per pupil cost school nor, compared to a single school, would it necessarily achieve efficiencies through removing duplication, for example, in a federation both schools would be inspected separately by Estyn and there would be separate expenditure trails to manage and audit.

The federated arrangement in this option requires the delivery of Foundation Phase and Key Stage 2 education at both sites. Whereas there are potential advantages to keeping both sites operational, there are potential disadvantages too, not least in relation to funding inefficiencies that impact upon overall affordability.

Potential advantages  Each school would continue to operate within its locality, so existing school/community interaction could be maintained.  Staff redundancies could be less as each school will need to maintain appropriate staffing levels for safety reasons and to ensure pupil: adult ratios are met – for example teaching assistants and lunchtime supervisors will need to be employed at both sites  Notionally, savings could be made by reducing the current teaching and support staff complement, including the reduction of 1 x head teacher and 1 x deputy head teacher.  A larger school establishment potentially creates greater teaching and learning opportunities, including the sharing of resources  Some of the small school disadvantages for pupils at the YGG Cwmgors site could be mitigated with savings from 1 x head teacher salary to enable pupils

to meet together regularly – for example joint school council meetings, sporting events, etc. Although management of two sites approx. 1.3 miles apart could present an issue, the head teacher salary savings could be used to improve curriculum provision.  To benefit from being part of a federated school staff at both sites would need to come together for training purposes, curriculum planning, assessment and standardisation procedures. Head teacher salary savings could help fund these activities.

Potential disadvantages  While the combined pupil numbers1 for a federated school would be 160 full-time and 36 part-time (nursery), there will be pupils accessing the full range of primary phase education at both sites, with 41 full-time and 10 part- time (nursery) pupils based at YGG Cwmgors and 119 full-time and 26 part- time (nursery) based at YGG Gwaun Cae Gurwen.  For the number of pupils at YGG Cwmgors there would need to be 2 teachers while YGG Gwaun Cae Gurwen would need 5 teachers – a total of 7.  YGG Cwmgors classes would be mixed age, across 4 age groups: N-Y2 and Y3 –Y6, presenting a significant challenge for teachers.  Realising financial savings by employing 1 x head teacher and 1 x deputy head teacher to manage both sites would lead to a considerable increase in workload for these individuals and the staff as a whole who would be called upon to manage situations in their absence.  To respond to management issues across two sites would require either to have a non-teaching deputy head teacher to share management responsibility for both sites or two deputy head teachers, each with a part time teaching commitment. Either of these options would require an extra 1 x full-time teaching post to release either one or both of the deputy head teachers from full-time teaching commitments.

In light of the above, it is the professional view of education officers that to deliver education on both sites a minimum of 1 x head teacher and 7 x teachers (including 2 x deputy head teachers or equivalent responsibility grade posts with part-time teaching commitments and 1 x teacher to cover for the non- contact time of both deputy head teachers) are needed. In this federated option, savings on teaching posts effectively will rely on reducing head teacher posts from 2 to 1.

1 Jan 2016 PLASC projections based on Jan 2015 PLASC actuals

Officer comment The case put forward in the consultation document against federation remains applicable to this option. In comparison to the Council’s proposal the real terms effect of federation would be an annual budget allocation of £666k to enable the school to benefit from 1 x head teacher salary savings.

In terms of capital costs, the inefficiencies of maintaining two schools on separate sites, one of which is a small school, remain. Some £444k1 of backlog maintenance and accessibility responsibilities has been identified by the 2014 building condition assessment for YGG Cwmgors which is categorised as a grade ‘B’. The efficiencies and economies of scale that can be achieved at larger schools with increased numbers on roll provide a more effective use of public money and can deliver a wider range of learning and development opportunities for pupils. Although the case for maintaining YGG Cwmgors as a village school has been clearly voiced by those opposed to the proposal, it is the opinion of officers that this alternative option does not represent an acceptable alternative financial model to the proposal as consulted upon for both schools, particularly as there is capacity at YGG Gwaun Cae Gurwen to accommodate the pupils.

Amalgamation of YGG Cwmgors and YGG Gwaun Cae Gurwen with both schools remaining at their existing sites. An amalgamation or merger effectively replaces two or more schools with one. In the case of this option there would be one school providing education on two sites, i.e. the YGG Cwmgors campus and the YGG Gwaun Cae Gurwen campus. As one establishment it would be supported by a single budget share for a single school, allocated in line with the Council’s approved scheme for funding schools (i.e. formula funding). Additional financial support for single schools on more than one site comes in the form of a split site allowance, applicable in this instance as the schools are 1.3 miles apart.

Under a single governance and leadership structure there are potential teaching and learning benefits, staff development opportunities and efficiencies that can arise from amalgamation even where this is across more than one site. Amalgamation also provides the opportunity to co-ordinate curriculum provision and to improve school performance and enhance educational experiences.

Table 2 below shows a comparison over five years of the budget shares for the status quo position at YGG Cwmgors and YGG Gwaun Cae Gurwen together with that of an amalgamated school delivering the full-range of primary phase

1 Updated survey: 2014 assessment. Was £370K: 2009 survey as quoted in Cabinet Report 011014

education on two sites. The amalgamated school’s budget share includes a split site allowance of £26k, associated increases in salary costs in respect of the head teacher and deputy head teacher1 and premises costs based on the two sites.

Table 2 2015/16 2016/17 2017/18 2018/19 2019/20 5 year 7/12ths actual Projected Projected Projected Projected total £k £k £k £k £k £k YGG Cwmgors 133 237 242 247 247

YGG Gwaun Cae 245 429 428 432 443 Gurwen.

Combined Total 378 666 670 679 690 3,083

Amalgamated School 337 595 600 609 620 2,761

Potential savings 41 71 70 70 70 322 NB: for 2016/17 onwards the figures in the table above are notional as annual budget allocations are dependent on the Council’s revenue support grant allocation; the amount of money set aside for schools (the individual schools budget); and the formula for allocating that money to individual schools.

Compared with the combined budget allocation of both schools funded as separate establishments, the amalgamated school’s budget share shows a real terms reduction of £41k from Sept. ’15 to March ’16, and £71k in the first full financial year, 2016/17, with similar amounts year on year thereafter totalling over £322k in 5 years. These reductions are amounts of money that represent expenditure savings to the Council and not to the amalgamated schools. As such, they would be available to the Council for reinvestment in the general budget for schools to the benefit of all schools.

The split site arrangement in this option requires the delivery of Foundation Phase and Key Stage 2 education at both sites. Whereas there are potential advantages to keeping both sites operational, there are potential disadvantages too, not least in relation to staffing requirements that impact upon affordability within the budget share allocation. These are captured in the response to federation above.

Teaching costs account for approx. 80% of a school’s budget share. Applying the Council’s formula for calculating school budget shares, the amalgamated

1 In line with ISR for the amalgamated school

school budget provides for 1 x head teacher and 6 x teachers (including 1 x deputy head teacher with a full-time teaching commitment).

In light of the above, it is the professional view of education officers that to deliver education on both sites a minimum of 1 x head teacher and 7 x teachers (including 2 x deputy head teachers or equivalent responsibility grade posts with part-time teaching commitments and 1 x classroom teacher to cover for the non-contact time of both deputy head teachers) are needed.

The cost per annum of the additional posts amounts to £103k, see table 2 below. This represents a significant year on year shortfall in the amalgamated school’s budget allocation which would lead to overspend and budget deficit.

Table 3 2015/16 7/12ths 2016/17 2017/18 2018/19 2019/20 £k £k £k £k £k 1 x Deputy Headteacher1 33 56 56 56 56

1 x Teacher 27 47 47 47 47

Total 60 103 103 103 103

Officer comment The case put forward in the consultation document and consultation report against maintaining the status quo position largely applies to this option. The revenue disbenefits of this alternative option have been addressed above as have the capital cost inefficiencies of maintaining two schools on separate sites, one of which is a small school. As with the above response to federation, although the case for maintaining YGG Cwmgors as a village school has been clearly voiced by those opposed to the proposal, it is the opinion of officers that this alternative option does not present optimum opportunities to improve teaching and learning or an acceptable alternative financial model to the proposals as consulted upon for both schools, particularly as there is capacity at YGG Gwaun Cae Gurwen to accommodate the pupils. In addition, the efficiencies and economies of scale that can be achieved at larger schools with increased numbers on roll provide a more effective use of public money and can deliver a wider range of learning and development opportunities for pupils.

1 In line with ISR for the amalgamated school

Appendix A - List of Consultees

Pupils - YGG Cwmgors Parents Prospective nursery parents School Staff Governing Body School Community Groups/users ______Pupils - YGG Gwaun Cae Gurwen Parents School Staff Governing Body School Community Groups/users ______All other NPT schools ______Bordering Authority - Carmathenshire Powys RCT ______Diocese Diocese of Menevia Swansea

CIW - Diocesan Director of Education, Education Office, Vale of Glamorgan. ______Trade Unions - Regional Organisers for: 3 x Non teaching & 6 x Teaching ______NAASH (Secondary Schools Forum) LLAN (Primary Schools Forum) ______MP (for Neath) - Peter Hain ______AM (for Neath) - ______Regional AMs (South Wales West) - Peter Black

Suzy Davies Bethan Jenkins ______NPT Elected Members ______Gwaun Cae Gurwen Community Council ______WG Schools Management Division ______Estyn ______Regional Education Consortium (ERW) ______NPTCBC Integrated Transport Unit ______Police & Crime Commissioner ______Children & YP Partnership ______Communities First Partnership ______NPTCBC as the maintaining authority - NPT Senior Management (Education) NPT Admissions Officer NPT ERW Officer NPT Education Psychologists NPT ALNST NPT Governor Support NPT Human Resources NPT Legal Services NPT Planning NPT Property Management ______