House of Commons Education Committee
Behaviour and Discipline in Schools
First Report of Session 2010–11
Volume II Oral and written evidence
Additional written evidence is contained in Volume III, available on the Committee website at www.parliament.uk/education-committee
Ordered by the House of Commons to be printed 26 January 2011
HC 516-II Published on 3 February 2011 by authority of the House of Commons London: The Stationery Office Limited £18.50
The Education Committee
The Education Committee is appointed by the House of Commons to examine the expenditure, administration and policy of the Department for Education and its associated public bodies.
Membership at time Report agreed: Mr Graham Stuart MP (Conservative, Beverley & Holderness) (Chair) Neil Carmichael MP (Conservative, Stroud) Nic Dakin MP (Labour, Scunthorpe) Bill Esterson MP, (Labour, Sefton Central) Pat Glass MP (Labour, North West Durham) Damian Hinds MP (Conservative, East Hampshire) Charlotte Leslie MP (Conservative, Bristol North West) Ian Mearns MP (Labour, Gateshead) Tessa Munt MP (Liberal Democrat, Wells) Lisa Nandy MP (Labour, Wigan) Craig Whittaker MP (Conservative, Calder Valley)
Powers The Committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the Internet via www.parliament.uk
Publications The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at www.parliament.uk/education-committee
Committee staff The current staff of the Committee are Kenneth Fox (Clerk), Elisabeth Bates (Second Clerk), Emma Gordon (Committee Specialist), Benjamin Nicholls (Committee Specialist), Ameet Chudasama (Senior Committee Assistant), Kathryn Smith (Committee Assistant), Steven Price (Committee Support Assistant), and Brendan Greene (Office Support Assistant)
Contacts All correspondence should be addressed to the Clerk of the Education Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 6181; the Committee’s e-mail address is [email protected]
Witnesses
Wednesday 13 October 2010 Page
Tom Burkard, Visiting Fellow, University of Buckingham; Kate Fallon, General Secretary, Association of Educational Psychologists; Professor Pam Maras, Honorary General Secretary, British Psychological Society and Head of Department of Psychology and Counselling, University of Greenwich; David Moore CBE, Former HMI and Divisional Manager, Ofsted, and Professor Carl Parsons, University of Greenwich Ev 1
Christine Blower, General Secretary, National Union of Teachers; Dr Mary Bousted, General Secretary, Association of Teachers and Lecturers; Dr Patrick Roach, Deputy General Secretary, NASUWT, and Ian Toone, Senior Professional Officer (Education), Voice the Union Ev 9
Wednesday 20 October 2010
Sir Alan Steer, Chair and of the 2005 Practitioners’ Group on School Behaviour and Discipline Ev 20
Sue Bainbridge, Programme Lead for Behaviour and School Partnerships, National Strategies Ev 30
Wednesday 27 October 2010
Gillian Allcroft, Policy Manager, National Governors’ Association; Mike Griffiths, Head of Northampton School for Boys and witness for the Association of School and College Leader; Russell Hobby, General Secretary, National Association of Head Teachers, and Charlie Taylor, Headteacher, Willows Primary Special School and Acting Headteacher of Chantry Secondary Special School, Hillingdon Ev 36
Virginia Beardshaw, Chief Executive, I CAN; John Dickinson-Lilley, Vice-Chair, Special Educational Consortium; Paula Lavis, Policy and Knowledge Manager, YoungMinds, and Jane Vaughan, Director of Education, National Autistic Society Ev 47
Wednesday 17 November 2010
Katharine Birbalsingh, ex-Deputy Head; Daisy Christodoulou, Teach First Ambassador; Sue Cowley, Educational Author, Trainer and Presenter; Paul Dix, Lead Trainer and Director, Pivotal Education, and Tom Trust, Former Elected Member for Secondary Sector, General Teaching Council for England Ev 56
Nick Gibb MP, Minister of State for Schools, Department for Education Ev 66
Wednesday 1 December 2010
Dr John Dunford, Education Consultant; Bill Gribble, Behaviour Management Trainer; Jacquie Nunn, Director of Improvement and Training, Training and Development Agency for Schools, and Andrew Winton, Manager, Voice of Young People, London Borough of Havering Ev 77
List of printed written evidence
1 Tom Burkard Ev 88 2 The Association of Education Psychologists Ev 93 3 The British Psychological Society Ev 97; Ev 104 4 Dr David L Moore CBE Ev 106 5 Carl Parsons, Visiting Professor of Educational and Social Inclusion, Centre for Children, Schools and Families, University of Greenwich Ev 108 6 National Union of Teachers Ev 114 7 Association of Teachers and Lecturers Ev 118 8 NASUWT Ev 122 9 Voice: The Union for Education Professionals Ev 126 10 Sir Alan Steer Ev 129 11 National Strategies Ev 130 12 National Governors’ Association Ev 136 13 Association of School and College Leaders Ev 137 14 National Association of Head Teachers Ev 141 15 I CAN Ev 144; 146 16 Special Educational Consortium Ev 148 17 YoungMinds Ev 152; 155 18 The National Autistic Society Ev 157; 163 19 Sue Cowley Ev 165 20 Department for Education Ev 166 21 Training and Development Agency for Schools Ev 171 22 National Association of Social Workers in Education (NASWE) Ev 174 23 Bill Gribble Ev 178
List of additional written evidence
(Published in Volume III on the Committee’s website www.parliament.uk/education- committee)
1 DEA Ev w1 2 John Bangs Ev w2 3 Zacchaeus Trust 2000 Ev w4 4 Alison Peacock, Cambridge Primary Review and the Wroxham Primary School, Potters Bar, Hertfordshire Ev w8 5 Professor Stephen Gorard Ev w11 6 Demos Ev w14 7 Jeff Hardman, Director, European Education Consultants Ltd Ev w18 8 Incorporated Society of Musicians Ev w19 9 Dr Sue Roffey Ev w19
10 Jackie Deasy Ev w23 11 Dr Simon Gibbs, Senior Lecturer in Educational Psychology, Newcastle University Ev w23 12 The Adolescent and Children’s Trust (TACT) Ev w26 13 Dr Jeremy Swinson, Principal Educational Psychologist, Witherslack Group of Schools Ev w29 14 Dominic Boddington, Respect4us Ev w31 15 John Corrigan, Director, Group 8 Education Ev w34 16 David Wright Ev w37 17 Professor David Foxcroft, Professor of Community Psychology and Public Health, Oxford Brookes University Ev w37 18 Helen Earl, Educational Psychology and Behaviour Support Team Children’s Services, Cumbria County Council Ev w38 19 Dr Richard Crombie, Specialist Senior Educational Psychologist: Social and Emotional Development Ev w40 20 Edison Learning Ev w41 21 Food for Life Partnerships Ev w44 22 Fiona Wallace, Head of Behaviour Support Service, Link Centre Ev w51 23 The National Association of Social Workers in Education (NASWE) Ev w52 24 Office of the Children’s Commissioner for England Ev w56 25 National Children’s Bureau Ev w60 26 Institute of Education, University of London Ev w62 27 Liz Vickerie, Head of Support for Learning, and Kerrigen Marriner, Head of Behaviour Support, London Borough of Tower Hamlets Ev w68 28 SHS Ev w70 29 Cornwall County Council Ev w74 30 Research in Practice Ev w78 31 Youth Justice Board for England and Wales Ev w81 32 Joint Epilepsy Council Ev w83 33 Croydon Department of Children, Young People and Learners Ev w86 34 British Association for Counselling and Psychotherapy Ev w89 35 TreeHouse Ev w90 36 Telford & Wrekin and Shropshire Educational Psychology Service Ev w94 37 The Association of Directors of Children’s Services Ev w97 38 Granada Learning Ev w99 39 Children’s Food Campaign Ev w103 40 Oxfordshire County Council Ev w106 41 The Runnymede Trust Ev w111 42 Marlborough Family Education Service Ev w113 43 School Food Trust Ev w116 44 Teacher Support Network Ev w117 45 Kent County Council Ev w120 46 Centre for Studies on Inclusive Education Ev w122 47 Buckinghamshire County Council Ev w125 48 West Sussex Educational Psychology Service Ev w130 49 Pearson Ev w132
50 Anti-Bullying Alliance Ev w133 51 Children’s Rights Alliance Ev w137 52 Southampton Psychology Service, Southampton City Council Ev w141 53 Barnardo’s Ev w142 54 Advisory Centre for Education Ev w145 55 Paul Bird Ev w149 56 NFER Ev w149 57 Birmingham Educational Psychology Service Ev w154 58 Ofsted Ev w156 59 Dr Heather Geddes, UKCP Reg Educational Psychotherapist, The Caspari Foundation Ev w161 60 Parentline Plus Ev w163 61 Catch22 Ev w164 62 ContinYou Ev w167 63 Youth Sport Trust Ev w169 64 Anita Kerwin-Nye, Director, The Communication Trust Ev w172 65 Incredible Years Wales (IYW) Team, Bangor University Ev w172
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Education Committee: Evidence Ev 1
Oral evidence
Taken before the Education Committee on Wednesday 13 October 2010
Members present: Mr Graham Stuart (Chair)
Nic Dakin Tessa Munt Damian Hinds Lisa Nandy Charlotte Leslie Craig Whittaker ______
Examination of Witnesses
Witnesses: Tom Burkard, Visiting Fellow, University of Buckingham, Kate Fallon, General Secretary, Association of Educational Psychologists, Professor Pam Maras, Honorary General Secretary, British Psychological Society and Head of Department of Psychology and Counselling, University of Greenwich, David Moore, CBE, Former HMI and Divisional Manager, Ofsted and Professor Carl Parsons, University of Greenwich, gave evidence.
Q1 Chair: Good morning. Thank you all very much for far too long is that we are looking at the child and for coming here this morning. I know that some of what is wrong with the child, not looking at what is you travelled down last night, and I appreciate your wrong with the learning environment. I am speaking effort in attending and giving evidence to us today in from the standpoint of someone who has been in this session on behaviour and discipline. The private enterprise for the better part of my life. Committee is holding this inquiry because of the Anyone who ran a business by trying to decide what impact of behaviour and discipline not only on was wrong with their customers rather than what was educational outcomes within our schools, but the wrong with their services would soon be out of general well-being of children within them. Will you business. In short, we have two problems to consider start by telling us why you think behaviour and when looking at behaviour. One is the long-term discipline policies are important and say whether you problem of what to do about the endemic, structural are optimistic or pessimistic about the new faults in our education system. I believe that the Government in terms of where we are moving from Secretary of State and the Schools Minister here? We will refer to you all by your Christian understand the problems quite accurately, but doing names, if you are happy with that. I shall start on my something about them is another matter. We also have right with Professor Parsons—Carl. to look at the current crisis—what we do now. Schools Professor Parsons: Behaviour and discipline should and education do not change overnight. It will take a be linked with relationships. The problem is not just generation to effect the sort of structural and cultural out there with the young people. It is a relationship changes in schools that will make it suitable for all thing. It is about how the adults are trained, and how children to get the education that they need. In the the professionals who teach or deal in other ways with meantime, we have to look at what kind of short-term young people can relate to them. Schools certainly alternatives must be enacted right now and, in that need to think really hard about behaviour and respect, I should like very much to commend the discipline, and the response to it. I conclude by saying Secretary of State for having adopted our suggestion that too often we have escalating discipline policy that Skills Force and organisations train ex-service practices, and if one step does not work, we get more personnel to work in schools. That has an excellent and more severe. We do not have to do that. As record in reducing the rate of NEETs and exclusions. parents, we do not necessarily do that with our They should be given a much more prominent role in children. We work to contain it, and we expect young the running of pupil referral units and mainstream people to develop and grow through some of the schools. problems that they exhibit at certain ages. David Moore: It is important that the Committee Tom Burkard: I must admit that this is the first time remembers that the majority of teachers manage most that I have participated in a consultation when I find children well most of the time. That is a fact. The myself defending the Secretary of State. That is to a number of permanent exclusions averages about large extent because of the fact that the Government 10,000 a year. Out of 8 million schoolchildren, it is have taken on board the essential message. We believe 0.25%. That is the extreme end. There are graduations that it really has to be considered, given the between all of that, but most teachers manage overwhelming problems of school behaviour. We now youngsters well, despite the fact that in initial teacher have a situation when about 400 pupils a day return training, since Kenneth Baker was Secretary of State to school after a temporary exclusion for assaulting for Education, there has been no training in child either a teacher or a fellow pupil. We have a quarter development and child psychology. That is of a million children attending schools when Ofsted extraordinary. If you do a three-year course, you get had judged that the state of their behaviour was four to five hours if you are lucky, and if you are on unsatisfactory. The endemic problem that we have had a PGCE course—on which most teachers now come cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 2 Education Committee: Evidence
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons into the profession—you are lucky if you get between accept that some behaviours are causing huge an hour and two hours on classroom management and concern. We have to look at how we initially prevent behaviour. Marks and Spencer spends more money on those behaviours from occurring, how we prevent training their staff to handle angry customers than we them from occurring later on, and at what treatment actually give teachers, which is extraordinary. The and care need to be given to youngsters displaying the behaviour policies of a school are essential because behaviours that we don’t want to see anywhere. I think they should be the expression of the value system of that behaviour and discipline is something that we the institution and the ways of working that are need to focus on. One of the things we need to do is expected by all. What we do know is that when improve adult skills. Pam and David have talked about behaviour starts to break down, it is often triggered child development in teacher training courses. by the inconsistency of the staff applying what have However, there seems to be a lack of knowledge of been agreed as the mechanisms for the well-being and child development within the whole children’s running of the school. I also think that in terms of in- workforce training, not just in teacher training service training, which is now predominantly in the courses. When I have contributed to training within hands of the schools themselves, too often behaviour local authorities and we have looked at child is not seen as being linked to quality teaching and development for nursery workers or teachers, they are learning. As the quality of teaching and learning the ones that are the most popular and the ones that increases, disruption reduces. The inspection evidence people leave saying, “That was really useful and over time has come up with that and it has been said interesting,” and, “I didn’t know that.” We have had over and over again. Where teaching and learning is that feedback from people, but it is about centring less well organised, the opportunities for buoyancy to approaches to behaviour and discipline within that take place in a classroom increase. whole-child approach of how you nurture and develop Professor Maras: I agree with and echo David’s our young. We have to be honest and say that we comments, especially that teachers manage behaviour actually observe some of the behaviours that we very well and that there is virtually no child observe now in children and young people in older development in any teacher training. Even in the people, too. We see within society less automatic three-year course, it is at a very low level, and for the respect for professionals and elders among all of us British Psychological Society, child development is sitting here, I suspect. I also think that we see crucial in terms of developing this. It is important to behaviours not terribly far from here that might be think about how we define this. The notion that described as low-level disruption, such as people antisocial behaviour is a homogeneous kind of thing talking over one another, interrupting and not showing is problematic, because it talks about disturbance and respect for the other speaker. We can’t say it is just disturbing, and it makes it very difficult for schools children’s behaviour. We have to look at it in the and organisations to deal with it. A lot of the time, it context of the behaviour that we see around us—there is very emotional and schools are dealing with it in is lots of emoting and road rage and so on, and it’s terms of the effects rather than the implications for not children’s fault that those things occur. One of the the young person. It is important that we take account things we have to look at is helping adults to have of the complexity of behaviour—there are different confidence to manage and bring up children. I think reasons why children might have behavioural that a lot of adults now lack that confidence. It is about difficulties—and the different types of behavioural developing not an authoritarian approach to children difficulties, from the one-off incident that occurs in but an authoritative approach that helps them feel school that has to be dealt with straight away, to the secure—that the adults around them are in charge, not low-level disturbance that seems to bother teachers the necessarily in control, and that they will keep them most, especially when it involves groups of children. safe and meet their basic needs. I will leave it there The ways that you deal with that are very different, because I am sure something else will be picked up and that is the problem with these very general later. definitions of behaviour and joining it with the notion Chair: Excellent. Talking about authority is a perfect of discipline. We are going to talk about special prompt to bring in the next question. educational needs later, so I will leave that. Those are my main points at this point. Q2 Nic Dakin: In 2009, Ofsted said that standards of Kate Fallon: I’m Kate Fallon from the Association of behaviour were good or outstanding in 95% of Educational Psychologists. Being fourth, I agree with primary schools and 80% of secondary schools, and quite a lot of what my colleagues have said. The it only identified 1% of primary schools and 1% of question was whether behaviour and discipline is secondary schools where standards of behaviour were important. Yes, it is immensely important, but it has judged to be inadequate. That would seem to pick up to be very closely linked to our overall approach to the the points that David and Pam were making about nurture, care and development of children and young emphasising positive behaviour. Do you agree with people. We can’t have one without the other. Am I that? Sir Alan Steer’s recent conclusion is that pessimistic? I tend to agree with the colleagues to my publicised incidents are unrepresentative and rare. Do left that in many situations inside and outside schools you think that he is exaggerating that too much the you see a lot of children and young people behaving other way? appropriately, responding to adults around them, and Professor Maras: I think that you have just indicated taking responsibility for their own behaviour and that it is not actually supported by the data. It’s an actions in the environment in which they operate. So emotive subject, and it is good news. It is bad news, generally, I don’t think I am pessimistic, although I but good for news. It is my view that it is not cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 3
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons supported by the data. There is a perception among all whether the experiences that are occurring in this of us that there is an increase in antisocial behaviour classroom are appropriate for the children. Praise and generally, and as Kate has just said, that weighs into recognition are not always about saying, “Well done, how people view children. you,” all the time, if that is not appropriate, but recognising sometimes when something is difficult for Q3 Nic Dakin: Does anybody else want to comment somebody and saying, “I know you tried really hard on that? What circumstances do you think need to be there—let’s see how we can learn from that in the present in a classroom or school to encourage future.” On responsibility, are the children made to positive behaviour? feel participative members of the community? Do we David Moore: First of all, the adults have to model try and choose those who are not engaging the behaviours that they want because otherwise how particularly well with tasks of responsibility? Do we does the child learn? Children come from homes engage in their own learning? I could go on, but if where they see a variety of types of parenting and they you go back to those four major needs—love and bring those models with them. It is called received security, new experiences, praise and recognition, and behaviour. The key for a youngster, particularly at responsibility—and unpick those, a lot of teachers and secondary level where you change the adult every 45 adults can start working out themselves how best to to 50 minutes so their expectations may be slightly deliver a good classroom environment. different, is that you have to adapt your behaviour to Tom Burkard: One of the things that has been the new context. If you can’t adapt your behaviour to neglected here is the importance of how children are context, you are in difficulty. There is an increasing taught and what they learn. If you go back to 1998, number of youngsters who find that difficult. The staff there was a rather remarkable article written by then have to decide for their individual school what is Minette Marrin, who is now with The Sunday Times, inappropriate and unacceptable behaviour, so there is but was at that time with the Telegraph. She visited a common agreement about what it means in that Kobi Nazrul primary school in Whitechapel, where school. You then have to explain that to youngsters so 80% of its pupils were of Bangladeshi origin, of that they know what it is rather than simply saying, “I which I think 60% were on free school meals. think that your behaviour is unacceptable.” In that Essentially, it had virtually every disadvantage you case, the child does not know what they have done. could possibly imagine. At that time, it had exactly They are doing what they ordinarily do. The point that 3% of its pupils on the special needs register. The one of my colleagues made is that if you go into any reason why was that the headmistress at that time, shopping area on a Saturday and you watch parents Ruth Miskin, succeeded in teaching every single one interacting with their youngsters, you can see why the of her children to read, which was a remarkable youngsters behave in the way in which they do—they accomplishment. There was a lot of scepticism within model the behaviour of the adults. There is a very big the Tower Hamlets local authority about this. I tested training issue for teachers around how you all follow her pupils independently, when they were up to about agreed procedures and expectations. For example, in year 4, at age 9, and every single one was there— the summer, the NASUWT runs a course on behaviour there were no convenient absences, which you often for newly qualified teachers. I think that the course find on these occasions. It turned out that, on average, runs for about a day or two. I have been in schools its pupils were 22 months ahead of norms in spelling. where those newly qualified young teachers say that I was teaching at that time at a Norwich suburban was some of the best training that they have had to comprehensive—Kobi Nazrul’s spelling ability at year date to help them to move into the classroom. It is left 4 was almost as good as our pupils at year 7. Now the to a particular organisation to do that for its members thing is that that school had no discipline problems. and that is very worthy, but how does it happen for Just two weeks ago, I visited another school that is everyone else? exemplary, which is the Durand Academy in Kate Fallon: You asked about what needs to be in the Stockwell. It has 900 pupils in probably the biggest classroom. I very often used to use a checklist when I primary school in England, of whom 95% are black worked with teachers. This is going back to the model minority ethnic. Yet, in a period of two hours when I of the great paediatrician, Mia Kellmer Pringle, in went through the school—looking at all the “The Needs of Children”. The basic needs are love classrooms and going into all the classrooms—every and security, new experiences, praise and recognition single pupil was very busily at work. Two things are and responsibility. We used to unpick those and say, really striking about Durand’s policy. One, it does not “Are those present in this classroom?” Love and have mixed-ability teaching. In other words, its goals security does not necessarily mean hugging and are academic rather than social, but by achieving its kissing all the time; it is about the children feeling academic goals it manages to achieve its social goals valued and secure. Do they know what is expected of at the same time. The other thing is that Durand them and do they know that the adult is in charge and recruits and trains its own teachers under school- can look after them? So, do they feel secure and centred ITT programmes. This means that it is freed valued in there? The new experiences can relate to from a lot of the nonsense we have got about schools whether the curriculum is appropriate to the levels of being all about social engineering as opposed to the children in the classroom. If a particular child is learning. Once you take care of the learning causing difficulties, have we checked out their dimension, the vast majority of social problems fall cognitive abilities, reading and numerical skills? Have away. This leaves room for the professional services, we checked their hearing and their eyesight? There is which we still need, to devote their attention to the a whole list of things that you go down to check children who have the most severe special needs—the cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 4 Education Committee: Evidence
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons ones that have medical problems, the ones that come with the Territorials as a military instructor, we found from severely abusive homes and this sort of thing. It that once those pupils with marginal literacy and is sheer fantasy to pretend that any of our excellent numeracy skills started succeeding in technical services that work with children who have behavioural subjects such as map reading and signals—which was problems can possibly even begin to touch the what I taught—their whole attitude changed. You magnitude of the problem that we have right now. could see them swelling with pride, because they were David Moore: In the initial survey that we did in 1996 able to sit in a classroom and learn. The point is that on exclusions from schools, two thirds of all the when you have children who are failing all the time, pupils who were in the disciplinary systems of it is hardly surprising that some of them go off the secondary schools had reading ages between 8.5 and deep end and start assaulting both teachers and fellow 10 years. The average readability of textbooks given pupils. Although this does not excuse that behaviour to children in year 7 in maths, science and geography by any means, most children who fail do not do that— had reading ages around 14 years. It is also interesting that is something that we have to recognise. You at the same time that Judge Stephen Tumim’s team, cannot carry on with an education system which is so looking at prisons, found that three quarters of all manifestly failing to meet the needs of so many prisoners on remand had reading ages below 10 years. pupils. Some 17% of our 18-year-olds are NEETs. If you cannot read, you cannot access the curriculum. What does that say about the schooling that they If your vocabulary is not sufficiently developed, you have received? cannot understand what the teachers are saying. And Professor Parsons: There is a hinterground behind if you cannot change your social mode of behaviour not being able to pick up reading between the ages of once every 50 minutes, you really start to get into six and 10, which relates, statistically, to poverty and difficulty. Tom’s right—once those youngsters start to free schools meals. The exclusion statistics year on achieve and to feel they are achieving, their attitudes year show disproportionality, because white and black shift significantly. Caribbean children, those on special needs and those on free school meals are much more likely to be Q4 Damian Hinds: Tom, you have quite rightly excluded. The background that those children bring mentioned that anybody who has worked in business with them to school makes it more difficult for them would say that if you have a business problem, you to engage. On the other side, the schools do not do not blame your customers, you look at changing sufficiently target those at risk of reading failure and your services. However, we also segment our all the other failures that follow it. The fact is that customers to try to understand their different early intervention by a number of means—they are motivations and their different worth in business terms spread around the country, with projects here and and, in those terms, their different behavioural initiatives there—does work with children who come characteristics. If you had to take a class of children to school with the fewest advantages, from workless and predict which ones were going to be more households, disruptive backgrounds and, in many difficult—if you could know everything about their cases, from sheer poverty. Those means can obviate background—what are the key predictors in terms of the later dangers and failures and underperformance socio-economic background, family type, older that often occur. I am in and out of schools that are siblings or younger siblings and birth month within like that. One that I am spending a lot of time in was year? in the press in 2003 as the worst school in England. Tom Burkard: A very interesting American study, It was a secondary school that was almost which was financed by the United States Department unmanageable—it was one of Nic’s 1% of horror of Education, discovered that reading failure was the schools and it is not even in the middle of a city. It only one of all the various indicators which accurately has turned around now and good work can do that. predicted the later incidence of violent antisocial behaviour. That study was conducted in 1974, which Q5 Damian Hinds: Free school meals is such a blunt makes it fairly ancient, but to my knowledge no one instrument when we talk about any statistic. You could has ever disputed its findings. The reason that that be out of work and poor, in work and poor—you get factor was most important is not only the reading all sorts of family structures. Sometimes—I am not failure per se, but the child’s frustration at the saying that you are—as a country we get lazy and we continual and repeated failure to achieve their aims. say that you can predict all these things by who is on In other words, there is this feeling of failure that free school meals. Sadly, that does not tell you what comes with not being able to read. For a number of to do about it. years I was at the sharp end, working with children in Professor Parsons: May I give one quick response? social work programmes, in schools and in the It is a statistical likelihood; it is not that all who have military. It is safe to say that the real MacGuffin when free school meals will go that way. Even when you you are talking about antisocial behaviour—I am not get clever and bring in the index of educational talking about a tiny minority of psychopaths who are deprivation it does not make a lot of difference, it still going to be in trouble anyway—is that these kids have gives you the same message. been so humiliated by their educational experience Professor Maras: We have been counting—we that they have developed a hostility to it. It was always count, we are very good at that in this country. axiomatic in my work with the Suffolk probation In 1988, when Warnock came in, we started to count service that when we were dealing with kids who were and give money in terms of that. Behaviour has been on probation or care orders, you never did anything a major concern for teachers and schools for an awful that reminded them of school. When I was working long time. I absolutely agree with my colleague’s cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 5
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons comments about reading. However, we are really in and family, and a child’s social background, mean that danger of moving down a route where not being able things go wrong and therefore the behaviour goes to read is a predictor of antisocial behaviour. One of wrong. There is a danger that we come up with only the problems is the definition of antisocial behaviour, one really good fix and we cannot do that, because a because there are many reasons why children behave lot of things have got to change. Schools that are well badly in school as well as feeling bad about not being led have low levels of low-level disturbance, but they able to read. That is why early assessment is crucial will still have within them children who need to have in terms of defining what that reason is. What you do some interventions. The two things converge and it is will be different at the individual level. Of course, not straightforward, which is one of the problems with well-led schools have less disruptive behaviour, but the very simple definitions of antisocial behaviour. we have known that for quite a long time. What we David Moore: Can I comment? need to know is how to work with specific children who have specific difficulties, who are really not Q9 Damian Hinds: I think that Kate is waiting learning. It is not just that they are disturbing others; patiently to say something. they are not intellectually gaining anything at all from Kate Fallon: You asked the question: if you knew education. They will go into the prison system or everything about the children in your classroom at other services, so there will be a cost, and they will quite a young age, would you be able to predict which lose out from that. children are likely to be affected? You know there are particular at-risk factors, which have been talked Q6 Chair: Is that about the child or about the about. Boys are more at risk—summer-born boys, institution? Tom’s point that I was picking up on was going to school just as they are turning four, for the sense that when you have the right policies in example. Some summer-born boys have mums with place, children who could be seen in a weaker context low educational achievement, which is another factor, as having a particular problem may turn out not to along with poverty and the stresses and strains that go have a problem. If you run the institution properly with that. Poor attachment with early carers is one of the child gets engaged, their behaviour improves and the most crucial and reliable predictors of poor they learn. behaviour later on, if a child has not had good, strong Professor Maras: I think that it is both. We have done early attachments—not necessarily with mum, but numerous studies, which have all been published, that with a good carer in those early days. You can look at show that if you ask schools the cause of individual all those and say those are risk factors, and you will children’s behaviour, they very rarely say the school. find some children who, despite all that, actually do It is mostly internalised or it is given to the child or okay. Because something happened to address one of given to the parents. It is both. There is a real danger those factors—by the teachers, staff or nursery of moving down the path: we will find one really good workers—resilience has been built, which has intervention and that will work. Carl is absolutely alleviated the possible effects of those others. But if right that the UK system relies on local management we look at those particular factors, we know there are of schools, which means that people have to manage, a number of things you can do at different stages. For within a local area, the behaviour of those schools. example, there has been a well researched project over They buy in really good interventions, but we do not a longitudinal period in Canada—the nurse-family know what it is about those specific interventions that partnership—which highlighted young, single, works. Until we do, we will keep adding on more pregnant girls aged 15 to 17. They started working really good interventions without looking at the needs with them during their pregnancy and getting them of the individual children and the different reasons aware of the fact that they were going to take why they might have behaviour problems. responsibility for a human being—how you build up attachment and love and care for a child. Followed up Q7 Chair: Can I press you on that, Pam? Famously, 25 or 30 years later against a control group, it has the commitment of British Leyland in regard to the shown immense improvement on what you would quality of its car was shown by how many people it expect. I think the nurse-family partnership is being had at the end of the line fixing all the problems. The piloted in a couple of places in Britain at the moment. Japanese approach was of getting it right the first time Clearly, it’s too soon to know what the effects are, and stopping the production line at any point. I would because it is a longitudinal thing, but we have hate to turn children into manufactured cars, but I am concrete research from a very good study in Canada. sure that if you get it right the first time you do not The trouble with a lot of the early years interventions have to have brilliant interventions later. is that some of them are so short-term at the moment, Professor Maras: I absolutely agree with you. you don’t know what the long-term effects are going to be. We’ve had other early years interventions. Q8 Chair: Most children’s behavioural difficulties There are schools with nurture groups, where a head are anticipated and corrected by getting it right the has looked specifically at children who come in with first time rather than having ever more brilliant poor relationships and poor attachments. They are interventions to pick up the cost of failure. occurring all over Britain. If you were to go and look Professor Maras: The two things merge. For some at projects that are taking place, I would urge you to young people and children, an assessment when they look at schools and authorities that have nurture come into school would show that they have some groups and nurturing schools. That is a very difficulties for various reasons. In other situations, educational, school-based short-term intervention that being in school and the interaction between school has been shown to have an immense effect on cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 6 Education Committee: Evidence
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons children’s social behaviour, and also on their has come up in recent years about children at the low achievements and attainments as well. I set up a end of the ability range is that certain children who are couple in Lancashire when I was working there. We quite frequently diagnosed as having attention deficit did a reasonable research project with the University disorder have, in fact, problems with working of Huddersfield. We expected the social and emotional memory. Working memory is the facility we have that behaviours to improve and we expected attainment to holds all the words in a sentence together until we can improve. We didn’t expect quite the significant form them into a meaningful whole. It is the sort of improvement we got in achievements as well. That is thing that enables us to take a lot of related something I would urge you to go and have a look at. information and come up with a meaningful Look at the evaluations that have been done on those. conclusion. If you don’t have this ability and you’re That is when they have come into school and you sitting in a mixed-ability class, which is relying to a haven’t been able to do those things before school, large extent upon your investigations—shall we say— but you can do it with a trained teacher and a trained you are going to find the whole procedure totally and nursery nurse—trained well in child development and utterly meaningless. If you’re lucky, the child will sit knowing how to meet the needs of the children. at the back of the class and do very little; if not, they’re going to act up. I think that one of the things Q10 Damian Hinds: Chairman, I know time marches that we have to take into consideration is that the on—you probably want me to skip on. I had a number whole edifice of modern pedagogy that was installed of things I wanted to ask about the school under the terms of the Gilbert review under new environment, which I suggest we skip and perhaps Labour, almost guarantees that a very large percentage come back to if there is time in the second session. of children are so disengaged from the educational There is one thing I really want to ask while this panel process that this happens. Personalised learning was is here—Tom brought it up. It won’t always be theoretically supposed to engage this problem, but possible, depending on the size of school and so on, unfortunately it is an absolute fantasy to assume that but you were talking specifically about the role of you can take teachers and impose on them the burden mixed ability teaching versus anything else. Nobody of trying to design learning programmes for each and else mentioned it. In every single one of your every child and think that each child is going to get submissions, you’ve talked about the absolute an adequate amount of attention. The more duties you importance of reading, having achievement and being impose on teachers, in terms of— seen to have achievement and so on. I wonder what Chair: Can I cut you off there, Tom? I think that your your comments are on mixed ability. point is clear. David was indicating. Tom Burkard: I’ll start off if you want, because David Moore: This is just an observation from obviously I’m going to have the heterodox view here. inspection. The issue isn’t whether it’s mixed-ability I’d like to quote something from the Teaching or streamed teaching; the issue is whether it works for Battleground blog. It says, “the movement for mixed those children. Does it deliver? Simply saying that ability classes is indistinguishable from the movement mixed ability is good or bad, or streaming is good or against teaching. The mixed ability class teacher is bad, is nonsense. The issue is: does it work? In exactly not a teacher at all. They are, often quite explicitly, a the same way as when— facilitator. They are a person who designs educational activities for children but doesn’t actually tell them Q11 Damian Hinds: So, how is that a different what they need to know. They are a friend to the child, question? You said that it is not a question of whether but not an expert on an academic subject.” This really streaming is good or bad but of whether it works. resonated with me because when I worked for Suffolk David Moore: For example, if you go into a school social services, if you asked kids what they thought that has streaming, and you sit through three lessons about their schools one thing they would always say in the same year group, by ability, does the teaching was, “They didn’t teach you nothing.” That was strategy change for each of those groups or do they something that was repeated, right down to the double get the same? If they’re getting the same, why are negative, with such accuracy that I think we have to they divided up? The thing is based on the outcome listen to it. We also have to think in terms of the study that the children provide, not necessarily the teacher. on truancy that was done by my colleague Professor There is a point on which I agree with Tom. In some Dennis O’Keeffe. He was commissioned by the DFE, of our inner-area schools they use mixed-ability or whatever it was back in 1994, to try to discover teaching but some of those schools have very high what the reasons for truancy were. He took the novel levels of transience. So, at the beginning of the term step of actually interviewing truants to find out why that group might be balanced in ability, but within six they truanted and, lo and behold, it turned out that the to eight weeks it isn’t; it’s a random grouping, because vast majority of truancy was not their not registering when the new children come they just have to be fitted for school, but what he called post-registration into a class. So the planning is thrown by the truancy, when they left because there was a class they transience. didn’t like or a teacher they couldn’t stand. So, when we are looking at these problems we do have to think, Q12 Damian Hinds: With respect, these are different “Why is it that they can’t cope with this?” One of the arguments; they are about the operational simplicity problems here is that if you are dealing with a mixed- and the doability. I think that the issue is more ability class, you are dealing with children who are whether it is done well. Presumably you can do mixed engaged in a lot of group work, project work and ability well and you can do setting well, assuming various independent activities, and a key thing that you’ve got a bright person doing it and doing it quite cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 7
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons well. I appreciate that there are many other arguments high-flying set group, is it because, for example, they and angles to this but today’s subject is discipline— are winding one another up about being too smart? compare and contrast: setting, streaming and mixed Such questions will very clearly be asked within a ability. school’s decision-making management system. David Moore: If the teaching is good and the children are involved and motivated, it really doesn’t make that Q17 Charlotte Leslie: I want to talk about much difference whether it is mixed ability or preventing and managing exclusions, but I will start streaming. That is by and large, but you will always off with prevention. I have carried out some very find exceptions. meagre work on that subject, and I want to run some ideas and thoughts past the panel in order to gain from Q13 Chair: What is the evidence for that? your expertise. First, I have interviewed a young David Moore: If you go back through Ofsted reports, offender who had truanted and had behavioural you will see that they have never come down on one difficulties—I have interviewed quite a few such particular teaching strategy as being either the best or people, and the same thing kept coming out—and, the worst. although one expects the problems to be just about kids, the tragic thing was that this chap said, “I wanted Q14 Damian Hinds: For discipline, specifically, to be an electrician, but every time that I thought I because that is today’s subject. Ofsted is concerned was actually going to do some wiring of a plug or do with lots of angles. some electronics, I was just given a paper on how to David Moore: Looking at discipline as part of that, in do it. I can’t do paper, but I can do stuff.” To what well organised classrooms, irrespective of whether extent does the panel think that our practical and they are mixed ability, streamed or any other technical curriculum—I hesitate to call it vocational, grouping, it is about the quality of the organisation because I don’t quite know what “vocational” and the engagement of the youngsters through the means—has let down children, and to what extent actions of the teacher. does that contribute to behavioural difficulties? Kate Fallon: Most schools actually now have pretty Professor Maras: I have done a lot of work on what good systems for assessing and evaluating both is now commonly known as the year 10 effect, which achievement and behaviour. If a school decides that, is the developmental dip that our young people have in a particular situation, the behaviour of a group is in their attitude to most things that aren’t to do with not as it should be, it will ask itself whether that is other young people, music and stuff like that. That because it is a mixed ability group, whereby the developmental dip happens at a time when young school is not getting the curriculum differentiation people are now making more and more decisions. In right for those children and, therefore, whether they fact, they are making the decisions before the dip should be put into ability or setting groups for that occurs, so all young people become a bit more subject. Conversely, the school may have setting and negative. The options that they have at that time are streaming that isn’t working well, because some of the now so limited. If they are not supported and have children are not getting good models of behaviour some reason for their behavioural difficulties—they from others, and that might be stretching. In some might be inclined to behave badly or have a history situations, mixed ability teaching can work well, and of bad behaviour—that is the time when they are most it can produce a very disciplined and ordered likely to drop out of school. I absolutely agree with environment, and so can streaming and setting. It you that opportunities and choices for young people depends on the particular context that you are looking occur at the time when all young people are most at. Sorry, you would expect that answer from a likely to be a bit more negative about life other than psychologist—it depends. other young people. Charlotte Leslie: The tragedy there was that here was Q15 Damian Hinds: If you were a head teacher or a young man who had something positive that he on a board of governors and you had to make that wanted to do but the system just did not provide it: decision, what contextual differences would you look all it offered was paper. for to help you make that decision? You say that it Professor Maras: May I add one point? The depends on the context, will you explain how? interesting thing is that the alternative curriculum, Kate Fallon: The head teacher and the staff are which is really brilliant in lots of instances, only looking all the time at what they are achieving, on a comes in when you hit a really bad episode. It is not daily basis, on a weekly basis and on a departmental available to young people who have not reached the basis. A school isn’t a static place, is it? A school has situation where the school says, “What are we going to respond to its children. to do now because this is serious?” The problem is that it comes in a little bit too late. The alternative Q16 Damian Hinds: I’m not seeing a decision tree curriculum is probably something he would have emerge from that. taken had he been offered it earlier. Kate Fallon: The decision tree would be created by David Moore: The alternative curriculum has made a sitting down at a management meeting and, after significant difference to a lot of youngsters. The links looking at the data and observing that there seems to between schools and colleges increases at a very fast be an issue with discipline and behaviour within a rate. However, there is an issue around year 9 because group, asking why that is happening. If the discipline the colleges only take youngsters when they are in problem is within a mixed-ability group, is it because year 10 and there is a whole group of youngsters in it is a mixed-ability group? If the problem is within a year 9, and some stretching back to year 8, who are cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 8 Education Committee: Evidence
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons totally switched off by the paper curriculum. Yet some can be movement of children, where things break schools have managed to do things with them and so down, without this quasi-legalistic exclusion process. their engagement is better. Their attendance increases. The incidence of them walking out of classrooms or Q18 Charlotte Leslie: Two things follow on from being difficult decreases and they engage better. Their that. First, the progress through school. I know the attendance, particularly at the colleges, is very high. transition from primary to secondary school is often a It pulls up their school attendance and so makes a rocky time for attendance and behaviour. Has the significant shift for a number of youngsters, but there panel evidence as to how all-through schools perform are some youngsters for whom it makes no difference on behaviour and attendance measures compared to in the end. stand-alone secondary schools? That is, schools that Professor Maras: There is evidence from France and start from junior/primary and go right through to sixth the US that it is a very effective thing to do, but it has form. Has the panel any experience or evidence on a different status there. how they perform, the differences? David Moore: It is breaking it away from the idea that Professor Maras: I think it would be difficult to the naughties get this and that if you are naughty you monitor this to be sure enough. I have done work on go on a practical course. It is about how you make the transitions for children with special educational needs thing open to all youngsters. and I agree that transitions are the most difficult time. Professor Parsons: Can I build on that? It is not just The transitions within secondary are particularly that we suddenly have a solution at year 10. What we difficult, especially when you take account of child don’t do is design a system of education for the client development. I know we keep banging on about that, group that is coming in then. We certainly don’t do it but it is really important, because there is normal and collectively as an educational community locally. It is then there is what is out of the ordinary and what we a single school that gets the input. What we have been should worry about. I would say that they have not recommending to prevent exclusions is to look at it as been around sufficiently long to be able to look at community-based inclusion. A collection of schools them. in an area will sort itself out so that it has the full range of provision necessary to accommodate all of Q19 Charlotte Leslie: When tackling that gulf— those children. Attendance is a huge thing. Don’t let from the nest to the jungle, to put it simply—from them be out of school. Having them in is important. primary to secondary, does the panel think that the It is one of the things that bothers us about exclusion, structural change of putting primary and secondary whether it is fixed term or whether it is permanent schools together for an all-through school might where you wait for 15 days while the governors deal alleviate some behaviour and attendance difficulties? with it and a further 15 days so that it can go to an Professor Maras: I think the transition isn’t just independent appeals panel. If you design locally—this physical; the style of teaching is very different. I can’t is a matter also of adjusting whether you have mixed cite evidence. David might have some. ability, setting or streaming—you have detailed David Moore: No. The point is about the change from information online on individual children and you being with one teacher and a number of other adults know what the needs of individual children are. I was in the room all day, to having to switch to the foibles in a school last week in Cheshire that did without of up to six adults. That is what makes it difficult. PRUs, but in this one school there were three different bases. One was certainly for Key Stage 4 and kids Professor Maras: I have seen some very good work who would not work well in the ordinary classroom. locally in London—in Bromley—on transitions for There was a youth-based input there. These are kids children who would find it particularly difficult. There who struggle to get to bed before 2 am and so on. But are some excellent case studies of transitions between there was provision for them. They were there. They primary and secondary, including following the bus were working with good adults and what I witnessed in a car, all the stuff—the different things—that you there was good. But they had another sort of base for encounter. That was aimed at children who find that those at Key Stage 3. There were practical things. It transition particularly difficult, who will be deemed was a matter of sorting out things from which they likely to have some kind of behaviour difficulties. would learn, to which they would relate and from which they would benefit. There were also good links Q20 Charlotte Leslie: Another thing also interested across the schools so that if things get really tough in me. A while ago I did some rudimentary work on the one school—the behaviour is astonishing and it children who fall out of the system altogether. I had breaks down–then there are systems of in-year fair an estimate of about 7,000 per year who go missing. access where children are moved, although not Do you think the current idea of excluding from necessarily in a compulsory way as it can be mediated school—and in a sense from education—is and there is that agreement with parents and children contributory to that problem of invisible children? that things have broken down here. But the four things How do you think we can solve it, or is it inevitable? we talk about as managing exclusion are broadening Professor Parsons: Can I say it does contribute? The the school in that way so that you have a range of number who disappear from education is much greater other bases. You also have off-site provision, which than those who experience permanent exclusion. It is can include special schools, units and so on. You have easier for a parent just to remove their child, kid the multi-agency provision, which has to work quickly; system that it is home-educating, say, “She’s gone to casework where people are in with difficult children live with her dad in Leicester,” and so on. We need and families and so on, building bridges so that there much better tracking of these children. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 9
13 October 2010 Tom Burkard, Kate Fallon, Professor Pam Maras, David Moore CBE and Professor Carl Parsons
Q21 Charlotte Leslie: Finally, there are two opposed to the school environment. In other words, ideologies—I am always a bit worried about there are 3 or 4% of the children who would have ideologies—zero tolerance and zero exclusion. Is one difficulty no matter how good their educational of those ideologies wrong or can and how should they environment is. work together? Professor Parsons: There are 17 local authorities in Q23 Lisa Nandy: I suppose I am really interested in the country that operate zero exclusion. There are what the solution to that is. I do not think that those clusters of schools that use zero exclusion. There is two things necessarily conflict. It may well be that also zero tolerance of disruptive behaviour. There is both are happening concurrently, but what can be done zero tolerance of neglect of needy individuals. I don’t to deal with that? see the clash. I leave it with a plea: places are doing Kate Fallon: Both are potentially true, depending on it, places are managing, and they are designing their what your approach is. We may have to get away— systems to accommodate all but without the and some would say, controversially—from the term damaging, punitive, rejecting experience of exclusion. special educational needs, and actually start looking Professor Maras: Then we have an overriding at what the individual needs of the individual children ideology of doing the best for young people in their who are coming into our schools are. You are right; school, making sure they are stimulated. The other bit some children with autism are perceived as children is probably a result of that I would imagine. with behavioural difficulties. Having said that, if the Charlotte Leslie: I am going to annoy the Chairman manifestations of their autism are behaviours that are and come in with one final thing. disrupting the learning of others, it is about managing Chair: No, I don’t think you are actually, Charlotte. their behaviour, as well as improving some of their There really isn’t the time. I’m terribly sorry. I am particular skills and teaching them to manage their going to cut you off and bring in Lisa on special behaviour in a classroom situation so that it does not educational needs. affect other children. Boringly, I would go back to those points I was making at the beginning about what Q22 Lisa Nandy: We have received two types of the needs of children are. We can have children who written evidence about children with special have particular inherent difficulties—if you like, some educational need. On the one hand, it seems that SEN cognitive difficulties—or difficulties that they have classifications are being used to cover up schools’ brought into school because of environmental factors. own failings. Some of you have touched on that. On It is about saying, “Okay, here is this child, what are the other hand, we have been told that there are their strengths, challenges and difficulties? How can children with special educational needs—often factors we make sure that the classroom environment, school such as autism—who are overlooked and seen purely environment and wider environment are best suited to as having behavioural problems, rather than the help that child grow, develop and learn within this serious issues they are. Which of those views is setting?” I will stop there, and keep my answer short. correct and what can be done about it? Professor Maras: Schools find it very difficult to Tom Burkard: I think that you have to bear in mind interpret SEN policies in relation to behaviour, that there is a spectrum of problems. I would not, for because, of course, behaviour is also dealt with a moment, doubt that there are some children who, for through disciplinary action and, unless you have a the lack of a better word, are psychopaths and are label of ADHD, or autism, or Asperger’s, or one of extremely difficult to contain, even with the most the spectrums, that is also difficult for parents. I highly skilled professional help. On the other hand, of absolutely agree with what Kate said. There is, the approximately 18 to 20% of children who get however, an issue about the label of SEN and the way labelled as special needs, probably only 3 or 4% of it has been conceptualised. those actually have the problems that are Chair: Thank you all very much indeed for giving predominantly or individually part of the child, as evidence this morning.
Witnesses: Christine Blower, General Secretary, National Union of Teachers, Dr Mary Bousted, General Secretary, Association of Teachers and Lecturers, Dr Patrick Roach, Deputy General Secretary, NASUWT, and Ian Toone, Senior Professional Officer (Education), Voice the Union, gave evidence.
Q24 Chair: Thank you very much for joining us this improving. It is important to bear in mind that 95% morning for this important session on behaviour and of children are reasonably well behaved most of the discipline. I think you were all here and heard the first time. With the number of initiatives to improve panel session. We have limited time, but perhaps each behaviour that we have seen over recent years we of you can start with a brief comment on what you would expect improvement to have been made, have heard. certainly in some settings and in some schools. Ian Toone: Discipline and behaviour are obviously very important in schools, because learning cannot Q25 Chair: But Ian, 75% of your members from that take place without them. We did a survey of our survey obviously do not think that behaviour is members recently and I would not say that it is improving. representative in every way, but I think that it gives Ian Toone: Yes, another 25% believe that there is no us some indications. We found that 25% of members change. Now, it can be difficult to interpret that. who responded actually believed that behaviour was cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 10 Education Committee: Evidence
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone
Q26 Chair: I would have thought it was fairly easy; behavioural needs than perhaps they did five years 75% say that there has not been any improvement, ago, and the nature of the behaviour challenges and only 25% say that there has been. presenting themselves in schools and in classrooms is Ian Toone: 50% think that there is a decline. We need also changing. We are seeing the phenomenon of to put that into a context, because what I suspect is cyber-bullying, for example, in our schools, and we happening—certainly, what I pick up from casework are seeing prejudice-related bullying, which requires with members—is that the persistent low-level different types of approaches. Where Ian, again, is disruption that is the bane of many teachers’ lives is absolutely right is to highlight the issue of low-level an ongoing concern. It is probably not getting any disruption in schools, and that is an issue which is worse, but what is getting worse is more extreme keenly felt by our members in schools. It undermines aggression and violence. Although extreme incidents teachers’ professionalism, and it undermines teacher are still quite rare, they are increasing in number. confidence, but it also contributes to a loss of teaching Also, disability-related behaviour problems—the kind time. A survey that we undertook last year sought to of disabilities that I am thinking about are psychiatric calculate the amount of time that is lost to teaching disorders such as conduct disorder, oppositional as a result of low-level disruption—refusal to obey defiant disorder and attention deficit disorder, instructions, refusal to sit down, refusal to stop particularly where hyperactivity is a feature of the chattering and so on and so forth. We estimate that, attention deficit—are where we see a deterioration in on average, 30 minutes per teacher per day is lost in behaviour, rather than in the general low-level terms of teaching time. That is quite significant and disruption. quite serious. Fundamentally, what we would be pointing to isn’t so much about the quality of the Q27 Chair: Thank you. Patrick. curriculum or about what teachers themselves do in Dr Roach: Good morning. From our point of view classrooms, because, as I say, I think teachers are as NASUWT, largely representing teachers who are doing a fantastic job, but rather the extent to which teaching in classrooms as well as representing school teachers are actually supported in the doing of leaders, our experience shows quite clearly that teaching. That is to say the extent to which parents schools continue to be relative safe havens of calm and carers are actually supporting children and and security. That is backed up by Ofsted, and the ensuring that children and young people attend school previous witnesses have given a high degree of ready to learn, and the extent to which school leaders testimony to that. Teachers are actually doing a and school leadership teams within schools are fantastic job in our schools in terms not only of actually delivering timely support to classroom maintaining good order and discipline, but of practitioners. delivering higher and higher levels of educational standards. They are often working with some children Q29 Chair: That wasn’t the nature of my question, and young people whom perhaps the rest of society Patrick, which you didn’t touch on. You talked about might otherwise seek to avoid. We know from our the incidence and perceptions of problems with own research evidence that the vast majority of behaviour overall, but not specifically about the schools—pretty much every school in the country— policies within schools. Teachers have told us that now have a behaviour management policy. Having a where you have a school with excellent consistent policy and what happens in practice are two very behaviour management policies, teachers feel different things, however. Last year, and indeed for a supported, and it is very different from being in a number of years prior to that, Sir Alan Steer chaired school where they don’t have that. Over time, is it felt an expert group looking at behaviour and attendance by your members that within the institution in which in schools. That confirmed the point about the they work, behaviour and discipline policies are more importance not only of having policy but of consistently applied, and therefore they are better translating it into practice. In other words, how does supported by the leaders within those schools? behaviour policy sit within the context of a school’s Dr Roach: Yes. There are two things about that. First, policy and programme for teaching and learning? in terms of behaviour management policies, while all How is it given life? That is an issue that I want to schools might have them, it is not always the case return to during the course of the session. that teachers are consulted about the design of those behaviour management policies, and therefore Q28 Chair: Do you have any evidence over time of whether indeed the workforce in general takes how satisfied teachers are with behaviour policies ownership of those policies or those policies are within the schools in which they work? imposed on the workforce is a significant issue and Dr Roach: I was just going to come on to that. one that needs to be addressed. The second issue, Despite the fact that across the board behaviour is however, is that where policies do exist and everybody seen as being good or outstanding in schools, there is is familiar with what that policy happens to be, around a perception that behaviour is becoming more half of classroom teachers are actually saying that challenging. When we have asked teachers about their those policies are not being applied consistently, perceptions of behaviour, the feedback has been quite largely by school managements where the judgment stark. According to a recent poll of teachers that we of the classroom teacher isn’t always backed up in undertook as part of the review of special educational terms of leadership and management decisions. needs provision in schools in England, four fifths of Chair: Thank you. Christine. teachers said that behaviour is more challenging than Christine Blower: I agree with much of what my it was, say, five years ago. Two thirds of teachers said colleagues have said so I will try and say something that they now have more pupils with complex new, because it’s quite difficult at this stage of the cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 11
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone morning isn’t it? The NUT starts from the premise because we see this as absolutely critical. Teaching that what we have to have in the education system is can essentially be quite an isolated activity, and it is a continuum of provision to meet a continuum of important that you get out and discuss with people need, and I think that actually sums up much of what how behaviour can be best managed. That isn’t we have been saying this morning. It says that if we something that ends at the end of your initial training; are going to have children who have a wide range of you need to do it and develop that repertoire, and ability, a wide range of background, and a wide range revisit bits of your repertoire throughout your career. of aptitude and readiness to come in and learn, we Chair: Thank you. Mary. have to make sure that in those classrooms, we have Dr Bousted: Well, I’d better put a plug in. All the the personnel, the resources and the situation so that teacher unions do behaviour courses like that. We do all of those children can access the learning. That it for beginning teachers, and actually it is the course means that we have to have, for example, services on that goes most quickly. The brochure goes out in which the school can draw from outside and, September, and the behaviour management courses critically, we have to have behaviour and discipline are full to bursting within a week, so there is a real policies that, as Patrick has said, have been drawn up demand for it. I agree with everything my previous in consultation with the staff. But I must say that the colleague said—I was at the previous session—so I NUT would also say that they should be drawn up would like to take just two things. The first is mixed- in consultation with the children and young people, ability teaching, which you, Damian, were really keen because while I accept what Michael Gove said at the on, and the other is ITT. Before I became general Conservative party conference about stopping treating secretary of the association I was in higher education adults like children and children like adults, this is not in departments of teacher training for 11 years, so I about treating children like adults. It is about saying have a bit of a mixed history. In terms of mixed-ability that they must be engaged in their learning. Therefore, teaching, I will give you a teacher’s tale, which is it is perfectly reasonable for them at least to have a mine. When I became head of English at my high view of how the behaviour and discipline structure school in Harrow, we had about 30% of the pupils works. The point is that colleagues who gave evidence passing GCSE English language and about 25% doing earlier talked about definitions of “inappropriate” and English literature. I instituted mixed-ability teaching “unacceptable”. It frankly isn’t very clever just to say throughout the department to GSCE, and when I left, to a child, “Your behaviour is unacceptable”, if they 80% of the pupils were getting English language, and don’t really know what you mean. So going from first about 85% English literature. So it is not the method principles, it is important that the whole school you choose. I did that for the reason that the behaviour community is involved in making sure that the policy in sets 3 and 4 was appalling. That was because kids is drawn up, implemented on a proper and consistent were looking around and didn’t like themselves basis and, before implementation, drawn up and because they weren’t achieving. I said to the teachers understood by everyone. I want to say one brief thing in my department, “We can do this”. To those who about the colleague earlier who mentioned child didn’t like it, I said, “Do you want to teach set 3 or 4, development. It is absolutely critical that those who because I don’t like them very much at the moment? go into teaching understand what the normal process I don’t like teaching them.” They were largely of child development is. They are not going to be inhabited by boys with poor reading, and it was poor psychologists or child development professionals, but reading and access to spoken and written standard if we are not training our teachers in that basic English that we focused on. We directly taught spoken understanding of how things would develop in, if you and written standard English to a school where 63% like, the most normal of circumstances, it is more of the children spoke a first language other than difficult for them to spot difficulties and decide English. It doesn’t really matter what method you whether they are serious difficulties that might need choose; it is that the method works and you have the referral to an additional and specialist service, or teaching techniques, and you ensure the curriculum whether it is just something that can be easily meets the needs of the pupils. That is what I think was managed in the classroom. The other thing I want to key about the previous session—the importance of the point to is that Lord Elton did a report into behaviour link between curriculum and behaviour. I think that is in schools in 1989. One of the critical things that came essential, and if you don’t get the curriculum right, out of that was that it was, as two colleagues here the incidence of bad behaviour will increase. There is have said, persistent and repeated low level behaviour, no doubt in my mind about that. In terms of ITT, I in particular out-of-seat behaviour and talking out of think there was something misleading said in the turn—oos and toot1—that people talked about all previous session, which was that only about two hours the time. If those things are not well managed in is devoted to behaviour management on ITT courses. classrooms, children have a tendency to see that this That is just simply not true. In a 36-week PGCE is not a well-managed situation. A previous colleague course, 12 weeks will be spent at the university and gave evidence before Patrick arrived and talked about 24 weeks in school. An awful lot of the school-based the NASUWT’s intervention in doing behaviour training will be on issues around behaviour management CPD with their members. I think that is management. In fact, that is the best place to do it. something that all of the teachers unions probably do. You can teach behaviour management in a theoretical Certainly, the NUT has a very big programme, not way. You can touch on it in the course. There are just with beginner teachers, but with other teachers, techniques and things you can learn, but the vast 1 Note by witness: oos is an acronym for ‘out of seat’ and toot majority of that will be done in the school. Remember is an acronym for ‘talking out of turn.’ that initial teacher training is a partnership between cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 12 Education Committee: Evidence
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone schools and universities—it has to be, by law. The to buy into that. It is a difficult job. I do not think that final thing about child psychology is that it is not that you succeed in it by simply having something called teacher trainers decided not to do child psychology. a home-school contract and expecting people to sign That was a political decision. It was a political it. You do it partly by making sure that there is proper decision by Kenneth Baker, through Kenneth Clarke interaction. For example, at the primary level one of etc, and not repealed by new Labour—essentially, that the things that we in the National Union of Teachers beginning teachers did not need to understand how would categorically say is that we must, more often children developed, how the mind developed and how than we sometimes do, communicate with parents their behaviour developed. It was a political decision about the good things, the positive things, the helpful that what was needed in primary was literacy and things and so on that the children are doing in school. numeracy and in secondary it was subject-based If there is an issue when there is a problem, it is not teaching. We have not moved away from that yet. I that the parents feel that they can only get in touch know the Government are announcing a review of when there is something wrong. For everyone, it is initial teacher training and in my view that review work in progress; and it is a shared responsibility. should tackle that question head-on. I believe that However, I think that schools have to go out of their teachers today and teacher trainers, through no fault way to say positive things about children and young of their own, have been stopped by a political decision people, not just to them but to their parents and carers, about doing something that is really important. so that everyone can see that it is a joint endeavour Chair: Thank you very much indeed. Tessa. and that we are trying to make sure that everyone understands everything that is going on for the Q30 Tessa Munt: I am interested in having a look, young person. in the historical context, at the situation perhaps 40 Ian Toone: It is very important to have a positive years ago, the situation 20 years ago and the situation engagement with parents from the time that the child now. The context I would like to place that in is the is admittable—or before the child is admitted—to various statements that I have picked up on this school. What is often lacking is the building up of a morning: that behaviour in schools is in the top three positive dialogue with parents. If the only time we quoted reasons for leaving teaching, the question of contact the parents is to give a negative message, it is what is acceptable behaviour and what is appropriate not the best way of gaining their support. If we are behaviour, and the comments about low-level involved in an ongoing dialogue and sharing disruption. I am interested to know what you think information about the child, we are more likely to about the interaction with parents. Christine said that have the parents on board when we need to say you need to sign children up to what is acceptable something negative. Tessa, you mentioned earlier the behaviour and what is appropriate behaviour. It has to accountability of parents. It is always better to support be a contract between school and pupils. But I would parents rather than punishing them. It is something be interested to know what role you see parents like a parenting contract, a voluntary arrangement as having and whether they are accountable for their long as it is supportive. That could enable the parents children’s behaviour. I do not want to pre-empt your to go on a parenting course to learn some valuable response in any way, but what strikes me is that in the skills. That could work. If the parent refuses to do that, we might want to apply for a parenting order, but context of exclusions, when we say to young people, the objective would be to put support in place to “Okay, now you’re excluded”, they go back, one change the situation rather than just to punish the assumes, to a place where there may not be an parent. understanding of what is acceptable and appropriate behaviour—back to their parents. Chair: Who would like to pick up on that vast range Q31 Tessa Munt: I have a note saying that by August of issues? 2008 no parenting order for behaviour had been Christine Blower: I’ll start if you like, but there is issued. Is that wrong? likely to be, I hope, a reasonable level of agreement Ian Toone: Only for attendance. about this. The rearing and education of children has to be a joint endeavour between the education service Q32 Tessa Munt: Yes. That’s different isn’t? and parents. Teachers are not necessarily the parents Ian Toone: Yes. They are being used in a punitive of the children they teach and the parents are not in way rather than a supportive way. there every day being teachers, so it is important that Dr Roach: I absolutely concur with much of what there is a common understanding between parents and colleagues have said, but the key— teachers as to what is acceptable and what isn’t acceptable. The classic thing is that a child hits Q33 Chair: To what extent do you agree? Would you another child in the playground. The child who has tease that out? been hit goes home and the parent says, “Well, you Dr Roach: I would like to tease out the issue about just hit him back next time”. Of course, that will not, dialogue, which has not had much of an airing in for the most part, be the discipline and behaviour terms of how we ensure that dialogue can take place policy that operates in schools. There are sometimes in a sustained way. very basic misunderstandings or differences of values. The difficulty for us, for teachers, school governors Q34 Tessa Munt: May I ask how it happens? I am and school management, is to make the bridge so that a parent. those parents, who might have values that would be Dr Roach: For example, we tended to talk this at variance with what the school is trying to do, come morning about the role of teachers. It is important that cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 13
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone we do so, in terms of the dialogue between school and understanding of many issues but they are not experts home, but it often cannot be left simply to teachers to in child and adolescent mental health, or do all that on top of everything else that they are being developmental issues and what might be the causes of asked to do. How we model our schools, how we them, nor can they be expected to be expert in the organise them and how we build into the equation the wide range of special educational needs that they will relationship between school and home, as part and come across in the classroom. What they need is the parcel of how we deliver a modern education service, support of experts to inform them about what they is absolutely critical. One of the areas that we could should do. I am talking about low-incident special look at, for example, is the role of parental support educational needs—the sort of issue that you might advisers, who can act almost as interlocutors between come across twice, once or never in your career. It is the school and the home—in other words, setting out that targeted and supported help that teachers need the school’s aspirations and expectations on behaviour more than anything else. The other thing that I should and attendance, trying to identify and explore with like to say about parents is that if you can get the parents some of the issues, what the challenges and engagement with parents right, you will often find that barriers to attendance and non-attendance might be, the parents of the most disturbed and disturbing what the issues are around behaviour and what the children are run ragged themselves. If you can get a needs of the child might be, and playing that back into proper dialogue between those parents and teachers in what actually happens within everyday school life. the school and a joint approach, parents can start to That is really important. When we have seen parental feel supported. If you can get it right, it could be used support advisers in practice, they have had a massive as a vehicle. For example, a child is staying out until impact in terms of transforming parental confidence 2 in the morning. They are not learning at school in what happens in schools. We should not forget that because they are exhausted, so how are we jointly some of the parents that we are talking about may going to deal with this? Parents can stop feeling so have had poor experiences of school. They may isolated and feel that there is some support. We need themselves have been non-attenders at school, and the to get that interaction right. Schools that have prospect of coming back into school and talking to remodelled do that very well. You don’t just have teachers about their child’s behaviour and attendance teachers doing that. Sometimes, parents can find it would simply send them into fits of panic. We need to much easier to talk to a member of support staff who find solutions to that, recognising and building on the is a parent and a member of the local community, and team around the child so that we can begin to bridge can act like an intermediary. Remodelled schools can that gap between home and school. do that job very well. As Patrick says, it doesn’t all have to be teachers. Q35 Craig Whittaker: One quick question. The comments about the joint endeavour between parents Q36 Chair: Children’s centres have a remit and teachers—the interaction—are absolutely spot on. specifically to reach out to the hard to reach, engage It was something that you said, Patrick—that teachers with parents in a supportive and voluntary way and can’t be held responsible for that on top of everything build exactly that relationship and trust with them. else they do. It is good to hear about the parent When children arrive at primary school, are you support offers, but what about the children when there seeing any evidence that that has had a positive effect is no interaction with parents? Who takes ultimate and made parents more likely to engage, thus making responsibility for the small element of children whose parents you cannot break through to at all? Surely, we it easier to create a sense of co-operation? just don’t let them go off into the wilderness. Who Dr Bousted: We did a survey on that very recently. takes responsibility for those children? Our members are finding that Sure Start is beginning Dr Bousted: The school does. We did a survey about to have a real effect in many deprived areas in inner- behaviour in March, and that was one of the things city locations. Evidence shows that one of the reasons that came through most strongly. It is a really key for that is that Sure Start is universal. You’re not being question—what do you do about the most hard to invited to go to a Sure Start centre because you’re a engage parents? Where does the responsibility lie for bad parent; you’re being invited to go there because those children? Actually, in the end it is the school, it’s in the area. I know that those services are being because they come to school. The difficulty that used by the middle-class—perhaps privileged parents teachers have is that their experience of the support who don’t need them so much—but just as the most services, which should be provided to help them successful school has a mixed social intake, part of engage with the most hard to reach, are very varied. Sure Start’s success is that it’s not a stigmatising Frankly, there is not enough of CAMHS—child and service. It’s there for everybody. adolescent mental health services—and it is too slow. We know that there is a rising incidence of mental Q37 Lisa Nandy: You’ve talked a lot about what health problems with children and adolescents. teachers need to be able to deal with behaviour and Getting help for adolescents who display very discipline. One of the things that this Government are disturbed behaviour can be difficult. Local authorities very keen on pursuing is reducing bureaucracy, which are already making significant cuts in central services I would imagine is quite welcome, although I’d and support, and what is coming through very strongly welcome some views on that. One of the possibilities is that teachers are very worried about the most that strikes me, though, is that bureaucracy can difficult children, who display the most disturbed actually protect teachers. A recent example that behaviour. Teachers do a lot and have a good springs to mind is the scrapping of the requirement to cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 14 Education Committee: Evidence
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone record significant incidents of restraint against pupils. should fail; we all want all schools to be successful. Can I ask the panel to express some views on that? However, certainly in the National Union of Teachers, Dr Roach: From our point of view, bureaucracy isn’t we have been robust defenders of local authorities, a dirty word. There’s good bureaucracy and there’s because we believe that it is through that local bad bureaucracy. Stripping away unnecessary democratic structure that you can best provide bureaucracy is certainly something which is a very everything that is needed to ensure that all schools can valuable activity, but in the context of this particular access those kinds of services. Mary mentioned her evidence session, which focuses on behaviour, on professional background. My own professional discipline and indeed on the allied issue around background, before I came to work as Deputy General attendance and non-attendance, we do need to Secretary of the National Union of Teachers, was as understand the problem. I talked earlier in my the member of a behaviour support team, focusing comments to the Committee about the perception that particularly on behaviour in primary schools and, behaviour, or at least the challenge around managing specifically, in order to prevent the likelihood of any behaviour, is getting more difficult, but what is the child getting on to a trajectory on which they might reality in schools? What do the data actually tell us end up being excluded from primary school. We were about the nature of behaviour incidents that are taking very fortunate to have a number of teachers, a play place, the types of incidents and who the victims of therapist and an art therapist. You can very well see behaviour incidents and bullying are within schools? that if a number of schools can draw on that kind of We need to understand that far better. It does worry facility and professional support, if there is a child my union that there may be any moves afoot to roll who risks exclusion, we can usually manage to nip it back on an expectation, or indeed a requirement on in the bud. The more schools there are that leave the schools, to record and report incidents of bullying and local authority, the less there is at the centre in order violent assault—pupil on pupil as well as pupil on to be able to do that. We think that that is clearly a staff—simply because there tends to be, within loss for the schools that remain with the local schools, an under-reporting and an underestimate of authority, but it is also something we don’t think the the extent and scale of those issues, which is the academies will be able to do as effectively. If they reason why so many of our classroom teacher need to buy in services, they will not be doing it on members feel that school leadership is out of touch the same basis as local authorities. My own team was with what is actually happening in terms of the reality centrally funded and the schools didn’t have to pay in classrooms and in delivering the kind of support for the service, because it was important that it could that teachers feel they need. So we do need to have a be accessed immediately without schools having to proper barometer of what is actually happening in worry how they would find the money to pay for it. terms of behaviour and serious incidents within That is really critical. May I say one thing, briefly, schools, but we need to have an approach to that about parenting? If we talk to parents who are having which makes the recording and reporting reasonably difficulty with parenting about wanting to improve manageable for schools themselves. their parenting skills, the chances are that they will Christine Blower: I think the critical point here is that not engage. Schools in the authority in which I this should be a proper dialogue with the profession worked when I was doing that work advertised a through associations. Somebody looking at it from the term’s work, coming to school on Thursday mornings, outside might think it’s bureaucratic, but as Patrick on “Improve your parenting skills.” Nobody came. said, there are some things which the Government The very next term, we advertised exactly the same might decide to do away with that we actually think content as “How can I best help my children to make are very important. Bureaucracy has an entirely the most of school?” Of course, lots of people came. appropriate place, in terms of being able to see what Being able to have someone from outside who can it is that schools are doing, and making sure that the facilitate that is very helpful and, of course, academies whole school community understands why it is we’re won’t be in a position to be able to do that so directly. doing things. That type of reporting would be one Apart from any ideological concern that one might such. have about the academies programme, I think that there are critical problems with what remains by way Q38 Lisa Nandy: Christine, you also touched in your of the local authority. opening session on the support that’s available to Dr Bousted: There are real issues around behaviour teachers to deal with pupils who perhaps have and attendance partnerships. Academies are not underlying problems that cause behavioural required, or are less likely, to be part of those difficulties. Do you have any concerns about the partnerships. There are real issues around admissions academies programme—in particular, the resources policies. The Secretary of State repeatedly says that available at the moment to deal with, for example, academies and free schools have to abide by the pupils with special educational needs or behavioural admissions code, but my question back to him all the difficulties—or do you think that could be managed time is, “Who will enforce it?” If it is not enforced, in another way under the academies programme? schools will play by other rules in order to get an Christine Blower: Those teachers who have found intake that maximises their position in the league themselves in the academies that have existed hitherto tables. No pupil premium will ever be large enough are doing their very best to make sure that they to stop that perverse incentive. We know that manage the behaviour of everyone who comes outstanding schools—the schools Ofsted calls through their door. It’s not in the interests of any of “outstanding”—have hugely disproportionately the unions that any school that chooses that route privileged intakes, in terms of social class and cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 15
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone prosperity, and that feeds directly into very good senior staff is most needed and do teachers receive the outcomes. The potential is for the hardest-to-teach necessary level of support as a rule? children to end up in particular schools, and that is Dr Roach: We have done a lot of research in this area, the greatest indicator of those schools being failed by as I know other unions and associations have as well. Ofsted. I have not yet seen the checks and balances Take the issue, for example, of new and recently in the system that would mean that hard-to-educate qualified teachers. Our research, “Sink or Swim”, children or children with special needs will not end which was undertaken for us by the University of up disproportionately in schools that already have a Leicester and published last year, examined over a disproportionate number of such children. five-year period the experiences of new and recently qualified teachers and the extent to which they were Q39 Nic Dakin: Are you suggesting that changes being supported in terms of their professional such as the taking away of the need to be in a development and growth, and also in terms of dealing behaviour and attendance partnership run the risk of with issues around poor and challenging behaviour letting behaviour per se getting worse in schools? within their classrooms. What that report found quite Dr Bousted: Yes. emphatically was that teachers were very consistently reporting that they were being left to their own Q40 Chair: The number of permanent exclusions has devices. Where senior management were coming in been coming down in recent years. Do you expect that was to monitor and critique the quality of their to be reversed under this new Government? practice within a classroom, not necessarily to offer Dr Bousted: I think the Government have put levers development support, leadership and professional in place. The levers have been put in so that guidance about how to do things differently or how to permanent exclusions go down—not least the school do things better. That is just one piece of research. All being responsible for the pupil’s education on the the research that we have commissioned and that we sixth day. That is another example of how important are familiar with points to the importance of school it is to have a local authority answer, because if it leaders being able to demonstrate the qualities of good is one school being responsible after six days, then classroom practice. The OECD concluded last year in economies of scale are just not there. Neither do you its report on improving school leadership that school have funding for specialist help or tuition. Exclusion leaders need to master new forms of pedagogy. What is the last thing a school wants. Schools work very the OECD was really pointing to was that school hard not to exclude children. All the evidence shows, leaders need to put themselves in touch with the and teachers and school leaders know, what it will do realities of classroom life. That might include having to the child’s life chances if they are excluded, so you a teaching timetable, at least in part, for senior leaders work very hard not to exclude them. Unfortunately, in schools. That might sound as if it’s going a little for some children and young people it is the only thing too far for some school leaders, but it is important to that you can do. But if that child is excluded, it’s not engender confidence among the profession as a whole good enough to just exclude them and then put them and to ensure that leaders understand the modern-day away; they’ve got to have somewhere to go. For that challenges of classroom life. We see the phenomenon you need central planning and provision. It’s very hard of, for example, teachers who might be calling on for individual schools to just do it themselves. leadership for support when there is a behaviour incident in the classroom and that support not being Q41 Craig Whittaker: How many have opted out of available, or where classroom teachers expect to have the behaviour and attendance partnerships? teaching assistant support in their classrooms and at Dr Bousted: We don’t know yet. We’re looking at very short notice that TA support being withdrawn and that. I think the picture is mixed. It’s something then behaviour issues beginning to intensify. we’re pursuing. Dr Roach: Irrespective of the fact that the picture is Q43 Chair: How common is that, Patrick? mixed, the fact of the matter is that there is no Dr Roach: It seems to be quite common. Towards requirement for any school to enter into a behaviour the end of this calendar year, we are going to publish and attendance partnership, and that’s particularly research on SEN in schools, and just over half of regrettable and an extremely retrograde step. teachers reported not only the importance of having support staff in class to aid teaching and learning and Q42 Craig Whittaker: Tom Burkard, who was here the management of behaviour, but that that support earlier, said that Marks and Spencer spend more could not be relied upon consistently within schools. money on teaching their staff about how to deal with It is about how schools organise themselves. angry customers than we do on teaching our new teachers how to deal with behaviour in classrooms. Q44 Chair: What percentage? Being a retailer for 30 years, I can tell you there are Dr Roach: I think the figure was 61%. a lot of angry customers out there. Nevertheless, I Chair: You said earlier that 50% felt that there wasn’t want to touch on what Patrick said earlier about the a consistent— incidence of bullying—or its recording—and school Dr Roach: No. About 61% said that they could not leaders being out of touch with what’s going on out consistently rely on support staff being available in there. Voice has said that it has had reports that many their classrooms to support teaching and learning and of the teachers feel unsupported when they are the management of behaviour. subjected to challenging behaviour by pupils. When Christine Blower: The 2005 Ofsted report, Managing behavioural issues arise, what form of support from Challenging Behaviour, found that where school cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 16 Education Committee: Evidence
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone leaders were supportive of staff, that was the best set properly, so there is something counter-intuitive going of circumstances. I don’t demur at all from what on. It is about school leaders being supportive of their Patrick says. It is critical to us that people who staff and ensuring that when an incident happens, the become school leaders should be qualified teachers. first thing that isn’t asked is, “Why did that happen in Frankly, we see that as obvious. They are the leading your classroom? What was going wrong?” You have professionals in the school and they can’t provide that to deal with the incident. It is about ensuring that both support if they are unaware of the classroom context. pupils and teachers know that when incidents happen, I don’t think it is heretical at all to suggest that heads particularly serious ones, they will be dealt with and deputy heads should have classroom experience, seriously, and that there will be consequences of those and the way that they do that is by having a teaching incidents. I read the ASCL response to this timetable. They won’t then put teaching year 10 to the Committee, which made exactly the same points. bottom of their priority list when they could be out There is recognition, but it is just that some schools doing something else. do it particularly well and others don’t. It is interesting that secondary schools seem to be getting their act Q45 Chair: Aren’t they doing all this commendable together better on behaviour policies than their bureaucracy, so they don’t have the time? primary counterparts. Christine Blower: Members of the leadership group are entitled to dedicated leadership time—it says that Q48 Craig Whittaker: If that support is not there, in the “School Teacher’s Pay and Conditions which seems to be a generic opinion, does that mean Document”—and they have to make sure that they that intervention for behavioural support when needed find time to do that. But in primary schools, for is coming in early enough? example, you would expect to see the head teacher Dr Bousted: No, our members say it is not. They say and the deputy in the playground at playtime. You it takes too long to get the specialist support; it is too would expect them to be there in the morning so that bureaucratic to get it and when you do get it, you they were engaging with parents and you would often don’t get enough. expect them to be there at the end of the day. Even if, in a given week, they don’t manage to do any Q49 Craig Whittaker: Is this one of the instances teaching, you would expect them to engage with the where getting rid of bureaucracy would help? student body. You don’t get that parent interaction in Dr Bousted: Recording the incidence of serious a secondary school, but you would expect them to be instances would help. The issue about getting the help around the building. is whether it is there and whether there is enough of it. Children’s social workers are in very short supply. Q46 Chair: Christine, we all agree with that. We Child and adolescent mental health services are being would have agreed with it 10 or 20 years ago. One run down, and are going to be further decimated. The thing that I am struggling to get a feel for is whether danger is that schools and teachers will be much more longitudinally things are getting better or worse. What isolated in their dealing with and treatment of are the reasons for that? Have mistakes been made? complex cases of very dysfunctional children and Most importantly, are we going in the right direction young people. The level of young people in our in terms of school leadership and support for society who either self-harm or try to commit suicide behaviour and discipline and front-line teachers? I am is far too high. There is rising incidence of severe not clear that we have had an answer from you. mental health issues with children and young people. Christine Blower: I think that the mistakes are that We need those services in order to deal with that, over a period of time, heads have become semi- particularly in an era when the very young people who detached, if not detached, from the classroom practice are likely to have severe mental health issues will be of the people whom they are supposed to be managing looking to a future where they are probably not going and the children whose education is entrusted to them. to achieve. They will be very worried about their I think that is partly a problem of bureaucracy. future—their ability to get a job and their ability to Dr Bousted: We surveyed 1,000 members and there take an adult role in society. If we are looking for are certain things that school leaders need to do if fairness, we need to ensure that the most vulnerable behaviour is going to be good in their schools. First, are not disproportionately on the receiving end of they have to have a behaviour policy. Secondly, they what will not be there for them. have to implement it. Thirdly, they have to implement it consistently. Q50 Tessa Munt: If we take the complex cases out of the frame slightly, I want to go back a little bit to Q47 Craig Whittaker: I get all that, but do teaching what I said earlier. If you go back 20, maybe 40 years, staff, as a rule, receive the necessary support that what is happening is that the background low-level they need? disruption is becoming the norm. We are only looking Dr Bousted: No, they don’t. Actually, our latest at the cases that come off the top of that as being survey was counter-intuitive, because it found that— extreme. The complex cases come out of that. What this is really counter-intuitive—teachers in primary is happening is that we have a general acceptance that schools feel that they get that less than teachers in there will be low-level disruption. It’s there, it’s secondary schools. Our survey recently found that happening. I want to ask you about that. I think that teachers in primary schools are more likely to be what happens is that with less support in the physically hit than teachers in secondary schools, and classroom, as you’re saying, less control—maybe that primary schools are less likely to deal with that that’s the word—less broad discipline and the fact that cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 17
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone we are talking about primary, such as the things Mary the trade and certain tools of the classroom that can was saying about primary problems. be applied. We need to get better at doing that. Chair: Question, please. Christine Blower: They include things such as tactically ignoring; if someone is doing something, Q51 Tessa Munt: How do we actually stop that and they do it because they get your attention every becoming the norm, and therefore setting a problem in time they do so, you just choose not to respond every secondary schools, where we only look at the peaks? time they do it. Christine Blower: There are two things. A lot of the Dr Bousted: Which is the hardest thing, and it is previous witnesses talked about quality of teaching. It really counter-intuitive. You have to be taught how to is obviously critical that you have to have good do it. teaching going on because that way there will be less disruption. The other thing is that behaviour itself is Q52 Chair: We were told earlier in the first session to some extent taught. That has to be made clear about the limited time spent on this, and it was said through the initial teacher training of people coming that most of it goes on in the classroom. Is it your into teaching—we talk all the time about how we have collective view that insufficient communication of the best generation of teachers we’ve ever had— those classroom skills is given to trainee teachers? because unless they understand that, the interactions, Dr Bousted: And beyond. I think there is more we can the relationships that people also talked about, will not do to generate within the system very good behaviour be as good. It is not true that in the vast majority management techniques. The unions are doing it and of our classrooms there is an acceptance of low-level our courses are absolutely sold out, but it needs to be disruption. That isn’t the case. Most classrooms are more systematised within the system. very well ordered and most teachers are developing the techniques for being able to deal with that. In a Q53 Nic Dakin: One of the things that came through sense, what we are doing is looking at these very in the first session was a view that there was a serious incidents because they are very difficult to correlation between literacy, or lack of literacy, and deal with. As Mary was saying, there are some behaviour issues. Do you agree with that, and is it children and young people who present with important for the current provision for one-to-one something that you might only see once or twice in support, and programmes such as reading recovery in your career. You might never have heard of it until a primary and early secondary, to remain in place as child or young person arrives in your classroom with, part of the strategies to deal with behaviour? for example, fragile X. It is critical that we have Dr Bousted: I am an English teacher, and I think that services to provide support for those more serious in the past we have insufficiently targeted and directed difficulties. What is critical in a school is that you resources at literacy, and we continue to do so. There have a good behaviour policy, well implemented, and is no doubt that the biggest regression in year 6 to well understood by everybody. Then the amount of year 7 is children who go from primary, where the low-level disruption will be absolutely minimal. uses of literacy may be more limited, into a subject- Dr Bousted: On ITT and continuing professional based curriculum at secondary maybe taking eight, development, there are techniques you can learn nine or 10 subjects. The thing that bars them in those which will help you, with a good curriculum, to deal subjects is not a lack of interest or of willingness to with low-level disruption. One question I thought 2 do well, but the fact that the uses of literacy in those would be asked was, have Strategies helped in this? subjects are too hard for them, because they have not I don’t think they have. The access to CPD that developed sufficient reading skills. I think that is teachers want includes a key thing. There are certain absolutely key. I was very struck by that. It reminded techniques that, if applied well, can be used to keep me that if you are in prison you are highly likely to very good order in the classroom, such as: if you have have very poor literacy skills. It is a curse that follows a disruptive class or a class that will be difficult, you through life, and whatever happens we have to making sure that when you start the lesson there is keep our eye and focus on literacy skills. The something for them to do when they walk through the approach we have had to literacy, while it has raised door of the classroom; making sure that the standards—apparently, through test scores—I think curriculum is properly differentiated and ensuring that has been a very didactic approach that has not looked they do not shout out over each other. One counter- at the uses of literacy. The focus on literacy in primary intuitive thing is not to repeat the answer that every has been too much about the uses of literacy in the child gives, but actually get them listening to one year 6, Key Stage 2 SATs exam. It has not been about another. If you repeat the answer that every child more general uses of literacy, which is one of the gives all the time, why should they listen to each reasons why those children who find they are other? They will listen to you. Things can be done struggling at Level 3 or just meeting Level 4 in that will help teachers, which could be much more primary fall behind when they go to secondary. We clearly disseminated throughout the system. I went on really have to look again at literacy. If the Government one such course, and it was immensely beneficial. I are going to do a literacy test in year 6, and I think do not think that we want to make a sort of PhD out that is an interesting concept, it has to be a good one. of managing bad behaviour. I think it is complex. It is It has to be not only the narrow uses of literacy, but to do with the curriculum. It is to do with effective whether these children are literate in order that they teaching, and I think much more can be done within will be able to access a wider subject-based CPD and ITT to ensure that there are certain tricks of curriculum at secondary school. If we get more focus 2 Note by witness: The National Stratagies. on reading, rather than literacy—literacy is a very cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Ev 18 Education Committee: Evidence
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone technical term—reading for pleasure, and reading for system. First, how well are they known? When we did different uses, that will be very good. ATL will a survey of teachers in the early part of last year, we certainly be arguing in its submission to the review on found that by and large the majority of teachers were the curriculum that we have to refocus on what we unaware of the extended discipline powers that were mean by literacy, because I think our current focus is available to them or to their schools. That is one of far too narrow. the factors that prompted us to press the Department Christine Blower: I was going to pick up precisely to issue a leaflet to schools, which was widely one of the points that Mary just made. At the National distributed to teachers, setting out what those powers Union of Teachers conference last Easter we passed a to discipline included. Will schools invoke the powers motion on reading for pleasure. Sometimes, there isn’t that are available to them? We can keep adding to the sufficient concentration on the fact that reading is an list of discipline powers, but if individual head enjoyable activity, and on the promotion of reading teachers decide that these are not going to be invoked for its own sake, as opposed to the mechanistic uses in their school, for whatever reason, we have a bit of of literacy. A prison is, I believe, required by statute a problem. Things can be centrally mandated, but it is to have a library but a school is not, which seems down to local implementation. We have to begin to extraordinary. Of course it is important that if people unpick why heads are choosing not to use the powers find themselves in prison they should develop their that are available to them. I would want to point to literacy skills if they have not done so hitherto, but it the way in which the accountability system currently seems extraordinary that a school is not required to operates within schools. That might not actually be have a library. Of course, the premise of your question much of an incentive for schools to be using, for is right, Nic. If children are not able to read at the example, powers available to them. Coupled with appropriate level to access the secondary curriculum, competition between schools, it might lead to a it is a very big problem and we need to address it. But reluctance on the part of some school managements the very mechanistic approach to literacy that has to invoke particular powers, as if somehow using been embedded in primary schools has not always weapons searches, for example, as part and parcel of helped with that, so there is a need to reconsider it. the way in which you organise access to the school building, might be off-putting to future generations of Q54 Nic Dakin: The Government have announced parents when exercising their right to choose a changes to some of the powers of discipline for school place. teachers to use in schools, such as search powers, Dr Bousted: Can I just say something about appeals powers of restraint, the ability to detain people panels? You may be quite surprised by this, but we do without giving 24 hours’ notice and getting rid of not think appeals panels should be abolished. Look appeals panels. Will such changes make behaviour in at the bureaucracies around them and stop perverse schools better, or are they not of value? decisions where a perfectly legitimate decision to Ian Toone: I think the current powers are largely exclude or permanently exclude are overturned on a sufficient. technicality—for example, not enough notice was given—but to exclude a pupil permanently is a very, Q55 Chair: Are they understood? very serious act, and schools should be held Ian Toone: They may not be fully understood but they accountable for those decisions. It is not enough to are sufficient. Certainly Voice would be very cautious say, “Well, schools can just make those decisions”, about abolishing the 24 hours’ notice for detention. It because if you don’t do it through an appeals panel, may be that very few schools would take up that parents will go through the courts. Thinking about option because it can lead to other difficulties. restraint, most teachers will never, or very rarely, have to restrain someone. I have to say that I as a teacher Q56 Chair: Do you welcome it? It is not mandatory, would think very hard about restraining a 15-year-old so if a school feels that it is appropriate they can do 6-foot boy, because I don’t think it would be of much it and if they don’t, they don’t. Are you welcoming it use. I don’t think I’d be very good at it, and I don’t or opposing it? think I would achieve anything, if they were in Ian Toone: We would be very cautious about absolute fury, and they were going to walk out of my introducing it. classroom. Nic Dakin: It doesn’t sound like a welcome to me. Chair: None of you offers martial arts courses. Ian Toone: It’s not an unbridled welcome. Dr Bousted: I don’t think my restraining them is Dr Roach: We broadly welcome the extension of going to stop them, but it might hurt me very much. I discipline powers to schools but we would want to would restrain if need be, or try to, if I saw them go sound a few notes of caution around that. On to hurt somebody else. I think that the powers to detention, I suspect that it will be a power that will restrain are going to be used only in the most exist but it may not be invoked by schools. Many extreme circumstances. schools will use detention during the course of the Christine Blower: The only thing is that when school day. In other words, it is how you manage the teachers, in extremis, have to restrain, it is an issue school day and whether you detain pupils in lunch the teacher needs to be supported through. It is a very times or whenever. No notice is required currently difficult and, I would imagine, a very unpleasant thing within the system, as I understand it. I think schools to have to do. Clearly, school managements have to will look to how they manage that themselves. My deal with that. Of the cases that went to independent real note of caution is this: let’s look at the wealth of appeals panels last year, only 60 pupils were ever discipline powers that currently exist within the returned to the schools, and of 8,110 exclusions, only cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG01 Source: /MILES/PKU/INPUT/006766/006766_EdC 13 Oct 10 Corrected.xml
Education Committee: Evidence Ev 19
13 October 2010 Christine Blower, Dr Mary Bousted, Dr Patrick Roach and Ian Toone
710—one in 11—went anywhere. They were very low about independent appeals panels, but also the role of numbers, and it means that parents won’t have to take governing bodies in terms of reinforcing the discipline recourse to the courts. We think they should stay. code within the school. Dr Roach: One of the key challenges still is about the Chair: That brings us to a close. Thank you all very way in which governing bodies overturn head teacher much. If you have any other points that you want to decisions in the first instance, which leads head make—you might want to explore Ofsted’s role teachers to adopt an extremely cautious approach more—and if anyone wants to make any additional when exercising the right to discipline. It is not just submissions to us, we would be very grateful. cobber Pack: U PL: COE1 [SE] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 20 Education Committee: Evidence
Wednesday 20 October 2010
Members present: Mr Graham Stuart (Chair)
Nic Dakin Ian Mearns Pat Glass Tessa Munt Damian Hinds Craig Whittaker Charlotte Leslie ______
Examination of Witness
Witness: Sir Alan Steer, Chair of the 2005 Practitioners’ Group on School Behaviour and Discipline, gave evidence.
Q57 Chair: Good morning, Sir Alan. Thank you very plank of NAS policy over recent years and I think much for joining us today to give evidence to our that’s true and I stand by it. In some schools, there behaviour and discipline inquiry. Are you happy for are significant problems. In other schools, you have us to call you Alan? problems with some teachers for some periods. We Sir Alan Steer: As you wish. I am entirely happy and need to have that at the front of our minds when we very relaxed. are looking for solutions. One of the big issues that we do not talk sufficiently about in this country’s Q58 Chair: Excellent. In your last report for the education system is the variation. We have superb previous Government for whom you were obviously schools and superb practice. What we have not the “behaviour tsar”— cracked yet is the consistency within and between Sir Alan Steer: I am not quite so happy to be called schools. It is not that we do not have good practice that. and excellent school systems, but we do not sufficiently yet have it everywhere. Q59 Chair: You were a highly distinguished adviser to the last Government. You suggested that, generally Q60 Chair: Yes. You said in your report that no speaking, from a behaviour and discipline point of view, things were getting better. Will you tell us school policy is of any value if it is not understood whether you stick by that and give us evidence for and applied consistently by all staff. That is quite a your decision? stark statement. People tend to talk about good Sir Alan Steer: I think that I do stick by that. I know schools and bad schools or less good schools, and they that the topic is right at the centre of discussion. There tend to talk very much about the institution. If you was a range of conflicting evidence, which I put in read an Ofsted report, it is always talking about “the my report. You will see that in the section on reality, school”. Are you saying that there is insufficient focus etc. My judgment puts a lot of emphasis on Ofsted. on individual practitioners and on ensuring that One has to have very, very strong grounds for consistency in performance is managed, and indeed disregarding Ofsted evidence. If you are going to say perhaps inspected, within institutions? that the national inspection service, which goes into Sir Alan Steer: That is an interesting question. large numbers of school and focuses on this topic has Consistency is an absolutely essential point. There is a got it wrong, you must have good grounds to say danger when one talks about consistency. Sometimes that—and I haven’t got those good grounds. I also when I am doing a conference, to wake the audience think that there is other supporting evidence. I wrote up I will say, “We ought to think of consistency as a in my report about a survey that I think the NUT did sexy word”, because in fact it is a slightly dull word. in 2007 when members reported that circumstances It does not exactly excite, particularly early in the had improved since the last survey in 2001. In an morning. But it is actually very sexy. Consistency is interesting report by Brian Apter in 2008 on primary what makes the difference. We know that. Research education he, too, commented on that. The difficulty indicates, and we know it in our bones and from our when I make those comments is that the audience experience, that particularly with vulnerable children often feels, “Ah, you are saying, Alan, that there is who are finding life difficult, a consistent approach not a problem.” I have never said that. I would hardly have spent five years—much of it on a voluntary over a period of time makes a huge difference. To put basis—working on this topic if I did not think that it crudely, children from my family could cope with there was a problem. I think that our analysis of the a mixed experience. They have very strong parental situation is often poor and, because our analysis is support, interests and all the sort of things that you poor, we then do not hit the bull’s-eye in terms of the would say of your own children, too. Vulnerable actions we want to take. So most schools, as I think children do not have those strengths. Really high Dr Patrick Roach said last week, and you do want to quality classroom experience is, in my book, one of feel that if the NAS, who’ve made a big point about the biggest equal opportunities issues that you could behaviour and discipline are actually saying that in ever find, because those are the children who are the most schools and for most teachers the standards are most vulnerable if they get a weak experience. It is good, that has a weight. It has been quite a major the biggest way in which to raise that standard. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 21
20 October 2010 Sir Alan Steer
Q61 Chair: Do you think that the most vulnerable difficulties with language learning, or whatever the children are more likely to be subjected to poor reasons might be, are much more likely to fall off the classroom practice? Do you have any evidence for achievement ladder. We need to focus on individual that? skills, and ensure that we are the sum of our parts. Sir Alan Steer: That point is worth unpicking. You That is one of the challenges for the schools system. talked last week about setting and how you arrange children. I am a setting man; I am not a streaming Q63 Chair: You didn’t answer my question. I asked man, and you can pick up that point with me later. I whether you had any evidence that the more would have resigned on the spot if there had been a vulnerable children are more likely to receive poorer move to have streaming in my school. I taught at a teaching. You said that it could happen, and if it did school that had streaming in the 1970s and regarded it reflected on the ethos. You didn’t tell us whether it it as an absolute abomination. I am very much a was happening. setting man. The issue with that is that simple Sir Alan Steer: I don’t think that I could say that. I arrangements, as David Moore said last week, can can only speculate. Later on, I would very much like often mask the issue. The question is, does it work to raise with you the issue of alternative provision. and how do you do it? If you are setting with the result that all of your best teachers are teaching the Q64 Chair: We will indeed come to that. You have most able children and all your least experienced no evidence to suggest that more vulnerable children teachers, or the ones who you have just appointed, are are subject to worse teaching? teaching the least able children, the answer to your Sir Alan Steer: No, that would be putting it far too question could be yes. It is a question of how you strongly. approach that and where you devote your resources, which reflects the moral ethos and principles of the Q65 Chair: You were talking about individual school. You asked me just now whether I thought schools and teachers. Ofsted is now saying that it is there was too much of a focus on schools and not going to focus its efforts more on lower performing enough on children. I do think that. schools, which would again suggest an institutional bias—that it is all about the institution, and whether it Q62 Chair: My question was whether there was too is poor—and will not be inspecting higher performing much emphasis on the institution and not enough on schools. You said that one of the issues within schools, the individual practitioners within it. By practitioners even in better or higher performing ones, is that there I meant the teachers. You said that it was about may be practice that needs to be challenged. Is there consistency not only between schools but within a danger that Ofsted’s new lighter touch approach will schools. make it less likely that underperforming teachers or Sir Alan Steer: I come from a position, so that underperforming practice will be challenged? members of the Committee know, of being very Sir Alan Steer: As you may know, I am on the board sympathetic towards schools. You will probably say, of Ofsted, so I probably ought to declare that before I “Well, he would, wouldn’t he?”. I see schools as answer the question. Ofsted acts as it is required to do providing solutions to society’s problems and rarely by government. We need to say that right from the causing them. You will think of some examples in start. I, personally, am a supporter of inspection and I which that would not be true, and I accept that. In any would not be reducing the amount of inspection of organisation, you will find some situations in which schools. We should see inspection far more as an the school causes the problem. That is not usual. agent for change and school improvement than we Schools generally solve society’s problems, and they tend to. Schools—I, too, I probably would have to jolly well ought to; that is what they are there for. We admit—do not leap with joy when a brown envelope should have the highest expectations that they do. My comes through the letterbox saying that they are going feeling, as a head teacher and subsequently, has been to be inspected. But, as a head teacher in the period that schools are not always the sum of their parts. before Ofsted, who witnessed the lack of external In other words, it is not that teachers are lacking in accountability, I have always been a total supporter of motivation, commitment or skills. If you don’t pull Ofsted. We should see the impact of Ofsted as it is— people together into a cohesive unit, it can be very as a major focus for school improvement. The answer frustrating and leave the teacher discontented because to your question is that I would not have gone in the they are not getting the outcomes from their efforts direction that Ofsted has been instructed to take. I that they ought to get. That can also lead to would have maintained much more of an Ofsted ineffectiveness. As a secondary head teacher, I find inspection system for all schools. that that can be particularly true at moments of transition—for instance, the early years of secondary Q66 Chair: Right. That could have an impact on school. Those of us who have children have behaviour as a result. experienced this. A child from a primary school has Sir Alan Steer: I don’t understand how one can judge had one teacher, or not much more than that, and they on day one that a school is outstanding and just does come into a secondary school where they have not need to be inspected. I would argue that, if you perhaps 11. Unless you manage that carefully, and you really buy into the culture of school improvement, that have everyone singing from the same song sheet—or is negative to that. There is no organisation in the whatever language you want to use—it can become a world that is not capable of further improvement and magical mystery tour for children. Those who are less does not need external scrutiny. The danger for motivated because of their home background or schools, and for other organisations that you may be cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 22 Education Committee: Evidence
20 October 2010 Sir Alan Steer familiar with, is that you get enclosed—you begin to Q70 Damian Hinds: Sure. And rudimentary use of feel that what you do is the only way it can be done. names? You need external challenge and, to me, that is Ofsted. Sir Alan Steer: Absolutely. Sometimes it doesn’t Chair: Thank you very much. I hand over to Damian matter about particular things—often they suit the to continue the questioning. circumstances—but classroom management was an obsession of mine as a head teacher. I can give an Q67 Damian Hinds: Everything you say in your ’09 example—I hope I’m not getting off the point— report about the primacy of the quality of teaching, between primary and secondary transition. In my and everything you have said today about the opinion, in the secondary sector we do not put enough variability you can get within a single school, importance on basic issues of classroom management. certainly chimes with me from my childhood. I guess When you visit a primary school and ask a teacher, it would with most people, and intuitively it is correct. “Are the children allowed to sit where they like in the I wanted to ask about other factors, which we have classroom?”, they look at you as though you’re being not heard so much about in our evidence sessions, slightly rude, because of course they’re not. Any although some of them came up once or twice in a primary teacher manages their classroom. In large visit we did yesterday. The first is about what I would numbers of secondary schools, that is dropped at the age of 11, and it’s dropped without thinking. I call standards of behaviour. These are the sort of remember hearing David Reynolds talking two years things that you often hear teachers who have taught, ago. He said that the single most effective thing you or do teach, in very successful schools talking about— can do to improve behaviour standards in secondary the role of uniform, the role of zero tolerance of litter, schools is to have a good classroom seating policy. graffiti or general deterioration, rules on what happens That’s what we did. You then as the leader have to when a teacher walks into a room and how names are follow that through. Why? Just to be awkward? No. used, and how strictly those rules are applied. Could If you don’t, you have sub-climates in the classroom. you comment on that area first? It is really interesting—I hope I’m making it Sir Alan Steer: It is absolutely essential in a school interesting for you. When you see a classroom, you that you have a very clear statement of values and can see it is rowdy or quiet. If you a look a bit deeper, practice. I imagine that you might want to ask me you will find sub-climates. You will find, for instance, about leadership, because in a sense I am heading into that when a class is quiet, a group of children—let us that. One of the key roles of school leaders is to set stereotype and say that it is boys at the back—are not the tone—the ethos—of the school. I see children not participating and they’re being left quietly to amuse as unruly, and all the rest of it; actually, I quite like themselves. They are not going to annoy the teacher them, and I also see schoolchildren as conformist, and the teacher is not going to annoy them. You don’t which they are. The sadness, often, is that children want that, so you arrange your classroom for learning want to be proud of their school; they want all the purposes—you should do everything in the classroom things that we want for them. When it does not for learning purposes—but you are also making a very happen—this really rocks one as a teacher or an clear statement to the children that the teacher is in educational person—the word “disappointment” is charge of that classroom. It’s not to be authoritarian— used. Children should not be disappointed. So, I someone used that expression last week—but to be absolutely agree with you. We had a school uniform— authoritative. There is a huge difference. You exercise we imposed it but I did not send children home, as authority and children respond to it. I am very self- that seemed to be silly. If you imposed it properly, conscious about coming across as simplistic, but it is you took children with you, and you had a school an article of faith that we know what works. The issue uniform that was not silly and did not make them is that we do not do it consistently. Pursuing endless— embarrassed. forgive me—education Bills or new policies or anything else is often an avoidance tactic. We know what works. We just don’t do it. Q68 Damian Hinds: What counts as silly for a school uniform? Q71 Damian Hinds: The second of the three groups Sir Alan Steer: I shouldn’t have said that because I that I want to ask about is what I call school can’t think of an example. Well, I was a creature of community factors, and in particular the difference the ’60s and I had to wear a cap when I was going between schools that have regular assemblies and back and forth on the bus. The girls I knew had to those that don’t. I want to know what happens at wear straw boaters and those silly felt things. I think lunchtime—whether everyone sits down and has they felt very silly and they were very pleased when lunch or whether there is general mayhem. There is they didn’t have to do so. also the size of the school and whether it is possible for teachers to know every pupil and to walk around Q69 Damian Hinds: But, for example, a tie and a without security identification badges. Finally, I want blazer? to touch on something that you mentioned a moment Sir Alan Steer: Absolutely. A tie and a blazer, but ago—streaming versus setting, although I would without it looking like a Henley regatta is what I had frame it slightly differently—in terms of class size and in mind. It should be something that you can buy whether classes stay together. You could stay together reasonably cheaply—schools have to be reasonable as a class either by being streamed or by being a with their parent body—and something that won’t mixed ability class, but not by being setted. Can you stand out like a Belisha beacon. comment on those? cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 23
20 October 2010 Sir Alan Steer
Sir Alan Steer: Tell me if I miss any of those. It is a basis of quite dodgy analysis and evidence and they challenge in a big school—in my school there were never moved. It is also true that streaming does not 1,500. Could I recognise every child? The answer recognise that children will have all sorts of different would probably be no. Would they be able to talents. A setting arrangement allows for different recognise me? The answer would definitely be yes. I abilities in different subjects, which is perfectly keep going back to leadership. It is a key role for possible. A child who is good at maths is in the right school leaders—sorry for the jargon—to walk the set for that, or they might be good in French or walk. For example, for 23 years I and my deputies something else. welcomed children at the school gate. Rain, snow or sunshine, you’re there at the school gate. Part of it Q74 Damian Hinds: But what about from a was discipline originally. You wanted to set the ethos, discipline point of view? I am trying to isolate but it rapidly became less of an issue. It was actually whether the factor of a class staying together or not setting the tone. You’re welcoming kids in. You’re makes a difference. making them laugh about how West Ham got on or Sir Alan Steer: I do not think that that is the issue. I whatever else it might be. School facilities don’t go back to what I said: if you get the learning and the always allow for the sort of things you implied. The learning culture right, the discipline follows, which I image of everyone sitting down at lunchtime is not so, think was shown by the evidence that you received and the same with assemblies. Most schools have to last week. It is so obvious that you feel it is almost work around some system. too simplistic, but it is true: if children are engaged, and if they understand what they are doing and why Q72 Damian Hinds: You can have year group they are doing it, they are far less likely to play up. assemblies. All of us around this table can think back to our own Sir Alan Steer: Quite right. But if you are asking school days, when we either participated in or whether we use those measures as a means of setting witnessed low-level disruption. I would be surprised the school identity, the answer is very much so. if we could not remember instances of that. We know Absolutely so. The eating matter is interesting. I came that, from our own experience, we did not do that with to that quite late in my career, when I realised what a all teachers; we would do it with some and not others. rubbish experience we were providing. It was not that You could probably analyse why that was so. The kids were creating mayhem—that is not always the classroom experience is paramount. But I want to say alternative—but we were not treating the children before I am judged by outsiders—as well as you—as with the respect that we demanded from them. We being too simplistic, that that applies to the majority invested a large sum of money in turning a grotty old of the discipline issues that we have in schools, which canteen into a proper restaurant. We did not allow involve low-level disruption. Low level does not mean children off the school site at lunch time—no child unimportant; it means things like cheek, talking and was allowed off the site. Was that because they were being silly. There are other discipline issues, which creating mayhem? No, but lunch time was part of the are different. As you know, and as Elton said 20-odd school experience. Also, we did not want to expose years ago, this is a highly complex issue. The trouble them to risks. In an okay urban area there are risks in with discussing behaviour is that people sometimes the neighbourhood, such as traffic, and other things. It arrive with a fixed view in their minds and it is more is about imposing a school culture. In all things that complex than that. We must ask, what are we talking we do in schools, we have to recognise that if you about? leave a vacuum, it is filled. The skill is in being Chair: Let Charlotte come in quickly and then we authoritative, not authoritarian—not being the petty will come back to that. despot, which is silly. You want children to grow, to be creative and to explore their own personalities. If Q75 Charlotte Leslie: Thank you very much for you leave a vacuum—in moral terms, or if there is no coming to see us. I was struck by what you said about ethos—it may be filled by things that you do not want. being simplistic. I wonder whether sometimes it is not That is particularly true in difficult, challenging areas. a question of being too simplistic, but that the answer I referred to children as being conformist—they will is quite simple and what is not simple is doing it. It conform to things that we do not like if we do not reminds me of Tolstoy saying that every happy family present alternatives. If your status is about conforming is happy in the same way, and every unhappy family to negative groups outside the school, you will is unhappy in its own unique way. It seems to be the conform. We then have a job in challenging that and same with schools—successful behaviour in every presenting alternative models of behaviour and school is good in the same way. From my amateur conformity. point of view, I think that there are things that always work: kids standing up when you come into the Q73 Damian Hinds: And on classes staying together classroom, and certain forms of teaching. You could versus being split? write a list of things that work. It strikes me that in Sir Alan Steer: I described streaming as an medicine, if an operation is performed in a way that abomination. Perhaps I sometimes get trapped into works, that is the way you do it, and every single using over-the-top language, but I regarded it as such hospital and every single surgeon does it in that way. because children never moved. In the years that I I remain perplexed as to why, if we have a list of worked at that school I could not remember a child things that work, such as ways in which children ever moving stream, so it was a self-fulfilling learn, we are still talking about the abstract methods prophecy. Children were placed in a stream on the of delivery of various things. We are not just saying, cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 24 Education Committee: Evidence
20 October 2010 Sir Alan Steer
“Here is a list of things. Let’s get them right—let’s they have to do it. When the practitioners’ group did just do it.” I know it is simplistic. the first report, back in 2005, we were very keen that Sir Alan Steer: I am not going to agree with all the it was based on what we called core values. We had examples you gave, but I agree with the thrust of what six of them, and I will not read them out again, but you are saying. I think that your comparison with one was related to the word “respect”, which was very medicine is interesting, because I do not think we much the word of the year in 2005. It seemed to come would have said that was true 30 years ago. One thing up in everything. It said that respect had to go two that has happened in health is that there has been more ways, and none of us would disagree with that. What of a challenge about professional individuality. The is interesting is to say, “What does it look like?”, case of the Bristol heart babies is one that comes to which is an expression that we should use constantly mind. I have two sons in the medical profession, so I as policy makers, either as head teachers or as the see it from their point of view too. You gave the Government. When you talk about respect, the example of children standing up when you come into instinctive reaction from the audience is to see it as the classroom. We did not do that, partly because we children being respectful to teachers. What does it would see it as sometimes disruptive. If I were going look like if you are a child? My son’s English into a classroom and the class was engaged in a really homework from his first day at school—it was a good experience with the teacher, I would not actually lovely comprehensive school with good academic want to break that up by everybody leaping to their results, and with a nice white shirt, good uniform and feet. Different examples are appropriate. I absolutely everything else—took two and a half hours, because agree with the thrust of what you are saying. It is not he wanted to do it well, and was marked in the middle that teachers are not committed, or that they do not of November. How is that respect? How is that work hard, but we do not always get the sum of our teaching children anything other than bad behaviour? parts. I am being repetitive. I have brought in one or We need someone to ask, “What does respect look two things that may or may not be of interest to like, and how does it work?” How do we respect Committee members. This booklet is a learning and parents? We command respect from parents, but are teaching policy from my school. Over recent years, we actually respecting parents? I did not agree—I am under both Conservative and Labour Governments, going to be controversial here—with the proposal that schools have been required to have policies on parents were not required to have 24 hours’ notice of everything under the sun. If the head teacher piled detention. I think that is disrespectful. I think that the them up, they would be higher than the level of this requirement that they did have notice came in under desk. I find it amazing that the one thing schools are the previous Conservative Government, in 1996. It is not required to have is a policy on the sole purpose for not an issue—I have never heard anybody complain which they are built, which is learning and teaching. I about the 24 hours’ notice requirement. It is really argued very strongly in here that we should review the Don Quixote politics to me—a problem doesn’t exist, policy requirements for schools because, as I have but you charge at it. Why do it? It is disrespectful. said, if everything is a target nothing is a target. You do not teach good behaviour by behaving badly. You teach good behaviour by people seeing you Q76 Chair: Could you read out the title of the behave well and doing it every moment of the day— document for Hansard? today, tomorrow, next week, next year. When you Sir Alan Steer: I beg your pardon; it is “Learning and don’t, you undermine a huge amount of what you Teaching”. It is the learning and teaching policy, and have achieved. I am happy to give it to you. Chair: Thank you very much. On the subject of leadership, I will come over to Nic. Q77 Chair: From which school? Sir Alan Steer: From my old school, which is Seven Q79 Nic Dakin: You said earlier that we know what Kings high school. works, but that we just don’t do it. You have just said that we want to know what it looks like. On Q78 Charlotte Leslie: Sorry to interrupt, but it leadership, what is good leadership—I think you have strikes me that it all seems terribly morally relative. said a few things on that—and how do we get that People talk about the importance of a school having consistency across the whole of the country? values, but no-one actually says, “These are the values Sir Alan Steer: We mentioned a number of things a school should have and this is how it should be about good leadership: setting a tone, certainly, and delivered.” acting as a whole, so that you get the sum of the parts, Sir Alan Steer: I do not think that schools are like as I was saying, so that you don’t get disparate that. Good schools are absolutely up front with moral experiences, which can so often happen. What does it values. Again, I am going to sound very soft on look like in terms of classroom practice? Do children children, but children are actually very moral. I get understand, when they are working, what they have very cross at the demonisation of youngsters, and for got to do in order to meet teachers’ ambitions? When every child who appears in the media doing something you say that to an audience of perhaps our age range, ghastly we do not think of the hundred who are sole you generally get a nod from people that they didn’t. I carers for their family at home, or those who are doing went through a highly academic direct grant grammar the Princess Diana awards or voluntary activity in school education and spent seven years without their community. So children are highly moral, they anybody ever saying to me, “Alan, if you’d done this need leadership, and they need that expression. differently, you would have got that, not that.” Yet it Schools do not just have to say it—I think most do— is so obvious that it is almost not worth saying. As a cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 25
20 October 2010 Sir Alan Steer young head teacher, you make mistakes. I can to transform our educational system by looking at remember leaping around as a young head master initial teacher training. You can train somebody saying, “Expectations are all.” I would probably still brilliantly, but if they go into an environment that is stick to that, to a degree. But equally, it is a stupid not receptive to their skills, what will their skill level expression. What is the point of having expectations be after three years? If, like me, they have to wait 15 if the recipients do not know how to meet them? years to become a head teacher, it’s not going to be Whether they are adults or children, you need to go transformed quickly. It strikes me as absolute to the next layer down. I have described children nonsense—I know that I have used that expression having a magical mystery tour, which children often already—that somebody like me could be a head do. If we don’t actually clearly explain, so that when teacher for 23 years without any requirement to the work comes back they understand what it was that undergo training. That is not professional. I know we caused them to get grade A, or whatever it may be, have things like NPQH now, but once you become a how are they going to improve in the future? So you head teacher, where is the requirement to maintain engage with children, teach in such a way and have your skill level? It depends on individual desire, and an atmosphere in the school that is orientated towards that is not good enough. children’s progress. We didn’t always have that. The ’70s was not a golden age of educational progress; it Q81 Nic Dakin: May I pick up one other area of was an age when, in fact, there was far too little focus, leadership? You gave the example of the school in my book, on learning and children. There was too restaurant in relation to buildings. Is there any much focus on organisation and control, and very evidence that leadership and building design has an often not very effective control. So I am much more impact on student behaviour? of an optimist about the education system than I ever Sir Alan Steer: There is. I think it is—I’m tempted to am a pessimist. Why I brought that booklet in—you use the word “flaky”. When we did our report in 2005, are welcome to have a copy, if it is of any interest to we were extremely strong on the school environment the Committee—is that it is a “must do” document. and the impact of that. It is one of those things where We identified core things that we said must happen in you know in your heart that it is a truth, and it is all lessons. Now, that can be controversial. People say, depressing when you sometimes visit places where “Alan, you’re challenging individual children are in uninspiring surroundings. We know professionalism.” Yes, I am. I would argue that we ourselves how our behaviour alters according to need to move from individual professionalism to a circumstances. We have only just finished a report, concept of collegiate professionalism, which is much and a piece of work came out of Newcastle university more powerful and much more supportive for which drew a link between children’s progress and teachers. People such as Patrick Roach and others the physical environment. I don’t think there has been rightly get upset when they think that there isn’t a anything like enough research on that connection. If communal support for their members in what they are you ask me what I believe, I absolutely believe that if doing, and that people are left on their own. you put children in pleasant surroundings you get a better response. Q80 Nic Dakin: So do you think that there is not sufficient investment in training teachers in Q82 Nic Dakin: That is a belief rather than evidence. behaviour management? Sir Alan Steer: There is some evidence, but it is not Sir Alan Steer: I didn’t answer your question on that, a topic on which sufficient work has been done. My did I? I put a recommendation in here. I think view is that there is a connection between behaviour teacher training— and the physical environment that children go into. I Chair: Can I push you? think that school organisation follows on from that Sir Alan Steer: To get a move on? line of thought, not just the physical environment, but Chair: Sorry if I’m being unfair. As briefly as you how you use it. can manage. Sir Alan Steer: I put as a recommendation that we Q83 Craig Whittaker: Just a quick question. You should look at initial teacher training and that we said that you had not had any training for 23 years as should always do that. It should never be static. We a head teacher, albeit that there is provision now. In should always be looking at it and tweaking it, but we schools where there are good examples or good must be realistic. We have a got a system where, for leadership teams, how good are they at disseminating secondary-trained teachers—I think I am correct— good practice out to poor performing schools within two thirds of their time is spent in school. So the the community? amount of time in a one-year training course that is Sir Alan Steer: I didn’t say I hadn’t; I said that I actually based in the initial teacher training institution hadn’t been required to—I did undergo training, but it is pretty small. I think in primary it is 50%. In my was off my own bat. It varies, like so much in our opinion, it is the right issue to raise, but it misses the system. You get wonderful examples. I visited a group bull’s-eye. We need to look at training over an initial of schools in east Leeds 18 months ago, where the period of time. You train as your experience develops. most stunning work was being done on a collaborative We need in schools to focus much more on how we basis between schools led by an inspiring head develop people not just over that first year, which teacher. He was the catalyst that got that going. It was generally schools do okay, but over subsequent years. very impressive. One of my concerns about policy Something which you asked me and I did not answer direction is over this issue of getting the autonomy is this: it is absolute nonsense to say that we are going balance right. I need to be quick here before I’m cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 26 Education Committee: Evidence
20 October 2010 Sir Alan Steer judged as a conservative in this respect. I was a head leaders for our schools. Is it even more impossible to teacher from the generation who worked on the find fantastic sets of governors who can provide the development of local management of schools. I would strategic challenge? Do we need more of what the no more want to go back to a pre-autonomy world academy chains have, namely a board that sets than fly in the air, but it seems to me that we have not standards across a number of institutions? yet done sufficient thinking about what autonomy Sir Alan Steer: That is a difficult to get into, and one looks like and what the context for it is. You would that I don’t particularly want to get into, because I be horrified if I said to you that the best way to teach don’t know the answer. I would be tempted to leave was to go into a classroom and tell children that there it alone, because I don’t think that is a key change was to be little central direction and that they had full agent for driving a situation forward. autonomy. I think my credibility would go through the floor. Why is that different with our schools? We need Q85 Chair: You don’t think that governance is to have baselines. This policy is a baseline document. important to the way in which schools are run? As a head, you are an idiot if you get your baselines Sir Alan Steer: No, I didn’t say that. I said that too high, because you take away individual flexibility transforming the governance system may not be a key and creativity. Having no baselines at all is daft and change aid. Of course governors are important to how can lead to anarchy. To go back to your question, in the schools are run, but the absolutely key thing is the this report I had a recommendation that all schools school leader. Volunteers and governors do an should be members of behaviour and attendance incredibly valuable job, and we should be hugely partnerships and that everybody should because to me grateful to them, but they cannot and should not it empowers the front line. When I worked on the replace the leadership of the school leader. Their job children’s plan, we were extremely strong on services is to make sure that the school leader leads, not to being in the control of the school. As a head teacher replace the school leader. It would not be a prime I would have loved to have had access to a psychiatric objective of mine to transform the nation’s governance social worker—somebody with the skills that I did not system. I would be much more interested in Craig’s have and with which I was not confident. I couldn’t question. have occupied such a person full time—it would have been ridiculous. Working with another secondary Q86 Chair: A bit of small “c” conservatism from school and, perhaps, our four partner primary schools you there, Sir Alan. would have been fantastic, and we could have done Sir Alan Steer: There is no small “c” conservatism— that. For the primary sector in particular, so much I am a radical, Mr Stuart! policy from the centre—if you will forgive me— Chair: With a capital “R”! We may try to challenge always has a secondary image in it. We are not others to have provision to look at improvements to thinking sufficiently when we talk about things such governance. as school autonomy. What does that look like in the one-form entry Hertfordshire primary school where Q87 Ian Mearns: Good morning, Sir Alan. As a my wife is a governor with 200 children? It looks very school governor myself, I have been around long different from a 1,500 secondary school with all its enough to remember the time before school exclusion structures and strength. I absolutely support the appeals panels at governor level and at authority level. autonomy concept, but I think that you would have I remember some bad experiences as a relatively new far more effective autonomy with schools working school governor in the ’80s, when head teachers collectively in groups without losing that creativity of would sit in on an exclusion hearing with the parents individuality. Look at the academy chains, which are and the child. The parents and the child would then really interesting. I attended a conference organised retire and the head teacher would revisit the whole by the current Ministers last December and listened to issue with the governors, who would then make a one of the academy chief executives talk about what decision. That seemed to me to be very much against was standard in all the academy schools. It was very the rules of natural justice, inasmuch as the person impressive and excellent practice. A wicked thought who was prosecuting the exclusion did it all over went through my mind that, as an academy head, I again while the governors made their decision. I wrote would have less autonomy than I had as a community to my LEA at the time and we got some clear comprehensive head. It is a very good brand. To me, guidance from it on how to manage these things, and this is the future: empower the front line, absolutely, that was set up very much like discipline appeals and be radical—that’s where the skills are—but panels and so on within the local authority’s human schools need to work collaboratively in order to share resources framework. I understand that the larger of training and resources, and to have the continual the coalition parties, prior to coming to power, had a challenge that Ofsted provides once however many policy to abolish recourse to independent appeals years. panels for children who have been excluded. I understand that that is still the policy. How do you Q84 Chair: May I push you on the issue of feel about that, given that the levels of support for governance? Somebody recently said that you children who are exhibiting problematic behaviour wouldn’t have a board for every little electricity sub- can vary dramatically between schools and given that station; you have a central board so that you have the capacity within schools to work effectively with strategic governance throughout the organisation, and children who have difficult behaviour problems can then you have local information groups. Have we got also vary dramatically? If we do not have that governance wrong? We struggle to find enough great recourse to an independent appeals panel, is it not the cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 27
20 October 2010 Sir Alan Steer case that we could potentially have a race to the whether you were going to ask about the item that I bottom for some youngsters. saw on the BBC website this morning before I set off, Sir Alan Steer: I do not approve of the proposal to which claimed that one in four boys in primaries have abolish independent appeal panels, and I have been SEN. I worry about our SEN identification, and I have very clear on that both in my reports and in other talked about that in the report. I thought that the recent statements. In saying that, I am expressing the view report by Ofsted was excellent. I know that it of both, as I understand it, of the professional provoked reaction, but after measured thought people associations of head teachers. I agree with you; I think subsequently concluded, “Yup, it hits the button; it is that it is wrong. You are speaking to somebody who right.” We rightly tend to get concerned when schools sometimes had to sit in appeals panels—it is not a don’t recognise children’s special needs and don’t nice experience; it is actually very stressful. It is respond, as we should. The obvious examples that I morally wrong to have a decision made by the state have seen are children having hearing aids, hearing about an individual without having the right of appeal. difficulties or eyesight problems. It is ludicrous and That seems to me to be quite contrary to our shouldn’t happen, and generally it doesn’t. We should traditions. I hope that there will be a rethink on that, be equally concerned about wrong identification of and that people will see it differently. On a practical special needs. Schools doing a fantastic job doesn’t basis, and I think that this view is shared by the head mean that we cannot improve. The debate ought not teacher associations, there is the risk that you will turn to be about schools failing, which isn’t true, but about this into much more of a legal, judicial problem and how we take school improvement further and whether that those head teachers—I do not think that most it has improved faster. That is the intelligent debate. actually think this—who say, “Oh good, we won’t In the area of SEN, we have major work to do. It is have an independent appeals panel”, will learn to not credible that a summer-born child is twice as regret that when they find themselves being taken to likely to be on the SEN register as an autumn-born the courts. I do not support that; I think that it is child—that is ludicrous. What does that say about wrong. Schools and organisations need to model good our work? behaviour if they expect good behaviour. Taking away the right to appeal is not good behaviour. Q90 Pat Glass: But in a sense, Sir Alan, I am more concerned about the curriculum and how that impacts Q88 Ian Mearns: As a chair of governors myself on throwing off children with SEN and children with until recently, I have had to go along to education behavioural issues. appeals panels to defend the school’s position, having Sir Alan Steer: I am not going to get deeply into made the ultimate decision to exclude a pupil myself. primary curriculum, because it is an area where you I have to say that you are right—it is not pleasant, but need to talk to others who have expertise. I am frankly, I think that it is entirely fair. hesitating because I am going to say something that Sir Alan Steer: The other thing that you could say is will sound very simplistic. I have quite an article of that it is also not true that vast numbers of children faith that it isn’t always about the content, but how it are being reinstated in schools. I have made is taught. All through my professional career, we’ve recommendations in reports, and I stand by them, that had brand new ideas about new courses to be we need to ensure that appeal panels are of quality. offered—this, that and something else—particularly in There should be a training element and people, where the secondary sector. I can name, by heart, a dozen of they can, should come from the same sector. We them by all sorts of letters that have come and gone— should do everything that we can to ensure that those CPVE and all sorts of things. They do not always appeals panels are of a decent quality. My view is that address the issue because we don’t address the issue they are absolutely essential and that they are about the means of teaching those courses. I think morally right. there is more flexibility in school curricula, which schools have taken advantage of. It goes back to the Q89 Pat Glass: I agree with you entirely about the issues of leadership and confidence. We don’t have to ethos and the culture within schools and its effect do things that way. Good, effective school leaders upon behaviour, but can we look at the impact that look at what is required and interpret it, and take it in the curriculum has on behaviour. We probably have the interest of their children. That isn’t answering your the highest identification levels of SEN in Europe. In question; I know that partly because I am not going terms of behaviour, we tend to lump together to go down the path that I don’t feel qualified to go disaffected children with those children who have got down. I think you need to talk to curriculum experts. neurological issues and in some cases mental health Chair: Okay, thank you. issues—autism being a collection of behaviours. Within that identification of SEN, almost the biggest Q91 Pat Glass: Can I move on quickly then to group are the children with behavioural problems. CAMH services? Certainly, my experience with How far does the curriculum impact on that? There is CAMH services—I am perhaps being more critical— a very strong argument that, in primary particularly, is that there are too few, and the quality is variable. we become far too formal far too soon, and these I am particularly critical when children with serious children are thrown up and are identified as SEN very difficulties who don’t turn up to appointments are quickly, when, in fact, changes and flexibilities within simply taken off the list. What is your view about the curriculum are all that is needed. CAMH services across the country? Are there too few Sir Alan Steer: There are a range of issues within that and is the quality variable? Or is it simply about question. When you mentioned SEN, I did wonder access? cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 28 Education Committee: Evidence
20 October 2010 Sir Alan Steer
Sir Alan Steer: I regard that as a balanced and mild Q93 Chair: Yesterday, we visited New Woodlands viewpoint, as I would be far more critical. I think this school in Lewisham. What is your assessment of the hovers around—I don’t want to use intemperate provision for children who are either at risk of language and question my credibility—a national exclusion or who have been excluded, and the scandal on the issues of children’s mental health. We consistency and quality thereof? have come to this issue quite belatedly. As a young Sir Alan Steer: Again, it is extremely varied. I really headteacher I found it extremely difficult to get wanted you to ask me about alternative provision, and medical acceptance that children had mental health I would have raised it otherwise. problems. I understood why that was, but when you Chair: I try to keep you happy. had extreme cases, it was pretty disastrous. You are Sir Alan Steer: I am very grateful for your concern. absolutely right in terms of variation. You want Again, in some areas, we have a situation that is hard centres of excellence, and you have them, but you to describe as anything but scandalous. We have have other places where it is dire. I was working at a excellent provision in certain places—you may have conference last week when I heard the record in terms seen it yesterday. In other parts of the country, we of the waiting time between a referral and a child have children who are out of school, receiving as little getting the appointment. It was a record for me—it as one hour a week of home tuition, week after week, may be worse. In this area there were 18 months month after month. I am accepting part of the blame between referring a child and the child being seen and for this. I think the blame for this situation is to be having an appointment; it is normal for it to be nine shared by the education world, by policymakers and months. If that child genuinely has mental illness, that by everybody. If we had the same focus on the well- is a scandal. What would we say if we had a child being of those children, as we have—rightly so— with appendicitis, or some physical illness? We would when we are horrified by ill treatment of toddlers, we be absolutely shocked. The variation, nationally, is would see things very differently. I do not have the enormous. The only way I can answer your question, evidence for this, and this is speculation, but I would from the knowledge that I have, which isn’t deeper bet that some of those 11, 12, 13 and 14-year-olds go than that, is that when I do conferences in various into drugs, crime and prostitution. I would be amazed parts of the country, I have yet to have people put if that wasn’t true. It would be inconceivable that that their hands up and say, “Our CAMH service is great,” wasn’t true. Yet, despite the Education Act 1996 and that is depressing. It is variations of discontent, putting a requirement on local authorities to meet the and it is generally quite severe. needs of children, as it did, we still have a situation where some children are either getting as little home Q92 Pat Glass: So you agree with me that it isn’t a tuition as that or, in some cases, nothing. That, to me, case of lack of awareness of what’s available, but it is a scandal. It is also stupid, because what on earth is, in many cases, far too few and far too variable? do we think is happening to those children? What is Sir Alan Steer: That is probably true. Again, I don’t their impact on society? If we back pick—my want to be trapped into displaying knowledge I don’t language is going—from, say, the prison population, I have. I suspect that that’s true. I think it can also be bet we could trace back a number of those people to about working practices. I think it’s about being that. Alternative provision actually became quite an proactive. We haven’t got on to certain things, because emotional and moral issue, and that is from somebody there are time limits, but one of the key who didn’t know much about it until asked by the recommendations in 2005 related to parent support Secretary of State to look at it. I put it into my report advisers, which then came in. A lot of our thinking that national minimum standards should be was that schools needed to have the capacity to established—not by me, I don’t have the expertise, but provide support for these sorts of families, because they should be. I would have thought that the most you reacted when I talked about the length of time basic one is that there should be a minimum amount waiting for an appointment. What used to incense me of education, training and experience that a child as a head teacher—a red mist would come over my should have in a week. That appears to me to be fairly eyes—is when you would find out, having worked obvious, and that was accepted in the wash-up, and I your socks off to get an appointment, that the family am grateful. All parties accepted that, but it seems to hadn’t kept it. It had been lost, and you then had have got stuck on the funding issue, on which, I am another six months’ delay or whatever it was. What afraid, I will be very robust and say that some we wanted, with our parent support workers, was to authorities are doing it, which indicates to me that have the capacity in schools to phone up the night there has been money allocated to it. If others aren’t, before and say, “Hello, Mrs Steer. Do you remember it is because they have chosen to spend the money the appointment tomorrow? Do you want me to come elsewhere, but it is not negotiable. I understand the and fetch you and take you down? Are you okay?” I problem, but it is not negotiable. These children have mentioned psychiatric social workers. You need cannot be left on the streets in the way that they are to have the skills at the front line to be able to give being. It is actually scandalous. advice and say, “We don’t think that’s a mental health problem.” That needs to be championed. I know the Q94 Chair: Indeed, and left to themselves, as you people and the buttons to press to get that child rapidly say, the vacuum will be filled, and they will provide through the system and not hung up in the the model alternative to any other child who gets into bureaucracy, which, in education and in health, all too trouble and is excluded temporarily or for a longer often stops things from happening. time. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 29
20 October 2010 Sir Alan Steer
Sir Alan Steer: It is wrong, and it is stupid, which is I raised the issue of respect and asked what it looks a combination of things that you definitely don’t want. like to a parent. How are you greeted when you Chair: Quickly, Tessa. Then we must bring this part approach a school? How are your concerns seen? How of the sitting to a close. accessible are the people that you want to be accessible, accepting that a school must run? What Q95 Tessa Munt: I am interested in your statement is the quality of the information that you get? When that said, admittedly with an air of frustration, something difficult happens and a school makes a “Schools should solve society’s problems.” I want to mistake—my school made tonnes of mistakes—you look at the other part of that deal, which is the parental need to be able to phone up and have that difficult input. I want to put that in the context that we have conversation, not hide behind things. You need to very large schools, certainly in the secondary sector, work constantly. If I’m waffling slightly it’s because where there are 1,200 to 1,500 pupils. I come from a it is hard to have an individual thing. You need to rural area where travel distances are extreme—easily practise what you preach in terms of your relations to eight, 10 or 12 miles. There are many distractions parents, and you need to do it all the time. where often both parents or carers are working, and they may have other caring responsibilities. My own Q96 Tessa Munt: May I ask you a small sub- experience is that parents’ evenings are 10 minutes question? What do you feel about teachers’ e-mail here, 10 minutes here, and, by the way, you can’t see addresses being available to parents? them because there is not enough time left in the Sir Alan Steer: I would not have had it. evening. Those happen once a year. I wondered what you thought was the best approach to involving Q97 Tessa Munt: How accessible do you want staff parents and constructing school and parent to be? relationships. Sir Alan Steer: I would not have done that. I might Sir Alan Steer: My starting point is absolutely that have had it for key people. The world moves on so parents are responsible for their children; I have made rapidly in its thinking. In a secondary school, we had that comment. I was that sort of parent. The idea that a team of highly skilled people. It is a skill, because the state was going to nationalise my children—under sometimes parents come into school emotional, no circumstances. Parental responsibility is upset—all sorts of things like that. I would not have paramount. One needs to say that. Teachers sometimes wanted open access. I don’t think that is fair on the think, “Hang on. The entire responsibility is given parent or the teacher. I would be perfectly happy to over to us. It shouldn’t be; that is not right.” What is have an e-mail contact with key members of staff, but right is that schools do accept that responsibility, as I I would have managed the situation; I would not have said before, to try to solve society’s problems—and had open access. generally, I would argue, they are very good at it and often not given credit for it. On the subject of Q98 Chair: Sir Alan, thank you very much. It has involvement of parents, you mentioned the example of been an extremely stimulating session and very useful. parents’ evenings. Many schools, slightly under cover, Please do stay in touch with the Committee if you have days when they are open to parents. They are not have anything you would like to add. We could have actually supposed to, because you are not supposed to talked to you more about children with SEN being close the school for that and it would count as eight times more likely to be suspended from school, unauthorised closure. It actually makes it far easier for and about early intervention in speech and language parents to come in during the course of the day and when so many children with communication, speech have an in-depth conversation with teachers. That is and language difficulties tend to be seen as one tactic schools use. I think schools need to be troublesome rather than having a need to be proactive. I mentioned the parent support advisers. addressed. On those issues or others we would be That is a significant development. When I have seen delighted to hear from you again if you wish. those people in operation, they always seem to me to Sir Alan Steer: Would you like these documents? Are be members of the local community, so they have a they of use to you? There is something on school rapport with the parent body. They are not very well teaching and learning in class, and a copy of the last paid but they are highly committed and making a big report, which I imagine you have. There is also a impact. That is something that I hope survives all the section on principles and practice. issues that we are thinking about today and everything Chair: Yes, thank you very much. else. Communication between school and parents is important. Kindliness to parents is important. Earlier cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 30 Education Committee: Evidence
20 October 2010 Sue Bainbridge
Witness: Sue Bainbridge, Programme Lead for Behaviour and School Partnerships, National Strategies, gave evidence.
Q99 Chair: I am delighted to welcome Sue senior leadership team. It is absolutely crucial that part Bainbridge, the programme lead for behaviour and of the National Strategies behaviour programme has school partnerships at National Strategies, to the had an opportunity to work at that level. If we don’t second part of this morning’s session, on the historic work at the senior team level, we are not going to day of the comprehensive spending review. Can you make a difference across the school to improve talk us through the types of challenging behaviour that behaviour. With the senior team, we get them to teachers encounter in schools and give some examples unpick what their principles, values and beliefs around of how National Strategies is helping to tackle those? behaviour are, and we get them to bring the staff on Sue Bainbridge: First, I thought I would very quickly board through a number of different strategies and give you an overview of what the National Strategies through training materials that we have. Those programme is about, to ensure that we are all starting strategies and materials engage all staff on their basic from the same place. The National Strategies beliefs and feelings on behaviour. The views of pupils behaviour and attendance programme actually should also be taken on board, so that the whole supports all local authorities to improve behaviour in school takes responsibility and ownership. I think that 153 local authorities. We are working in and the way we have moved that forward is by working supporting all primary schools, secondary schools, with those teams. For instance, I have worked for the special schools and all PRUs. In more recent times, last year with a school where there is inadequate we have been supporting the developing and growing behaviour. I don’t just go in and advise them; I go in area of alternative provision. In terms of the types of and sit in on their senior leadership team meetings, I behaviour that we see in schools, we start from three review what they’re doing, and I actually follow them different areas. In the majority of schools, we have into the classroom. very good behaviour, but in terms of the types of behaviour that we support, we are largely talking Q101 Chair: I assume that it’s a school that used to about low-level disruption within schools—the types have inadequate behaviour. of behaviour that present themselves to teachers and Sue Bainbridge: I am absolutely certain that it’s just niggle at them. That can be chattering classes, or about to be told, at its next HMI visit, that it has got pupils coming into the classroom without their satisfactory behaviour. But it had some other materials and things that make them ready to learn. entrenched difficulties. Perhaps they are actually not listening to the teacher, or interfering with each other while the lessons are Q102 Chair: I assume you’re sort of the Steer going on. On the types of behaviour that we see at implementation team, aren’t you? He had the grand that level, as a national strategy, we have looked at thoughts and the knighthood, and you go in and do our consultant field force, who work in local what he used to do on the ground, delivering day to authorities, to see how they can work with school day in the most difficult circumstances. teachers to look at different strategies and build, importantly, the confidence and skills of the staff. We Sue Bainbridge: What we have done as a national work with leaders in schools. When it comes to the strategy is to take forward the advice that we have had behaviours that we see at low levels and the more from the practitioners’ group and the advice that challenging behaviours that we see in schools, it is we’ve had from Steer, but what we have really based important, as Alan has already said, that the leadership our practice on is the best practice in schools. Part in the school takes responsibility. Whether it is the of what we’re about is not only going into schools, low-level disruption that we see in many schools, or parachuting in and supporting them— the more challenging incidents of behaviour—such incidents might have been brought about by tensions Q103 Chair: You are there, you’ve been doing it outside in the community from different gangs, or yourself for the last year, in one of the small number they may be verbal and physical threats that occur in of schools with particularly poor behaviour, or schools from time to time—part of our role is to difficult behaviour issues. Take us through it. What ensure that the school has a consistent approach to have you been doing? How do you work? At what dealing with that behaviour. First and foremost, the level? Do you start with the head and then the school should have really high expectations of department heads? Or do you start with each behaviour within their school and from that point, it classroom teacher? Do you start with the youngest should ensure that it takes on board the views of the teachers in the school, or the most experienced parents, all the staff and the views of young people. teachers? Where do you go? Who do you work with the most? Q100 Chair: How do you do that exactly? Sue Bainbridge: We started with the head teacher first Sue Bainbridge: It is one of the things that we have of all and her senior leadership team, getting them to worked hard at in a lot of our schools. In 2005, we identify two or three things that they wanted to do. had 72 schools that had inadequate behaviour, and at First, we identified how they wanted to get together the end of 2009, that figure was down to 18 schools. some very simple rules that everybody could agree Working with those schools with inadequate to, that everybody could put into the classroom, that behaviour, we found it effective to go in as a regional everybody would remember and that everyone would team and work with our consultants and with the deliver on. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 31
20 October 2010 Sue Bainbridge
Q104 Chair: Can you rattle some off for us? and then the teacher has to face them again another Sue Bainbridge: It is things like—and again, it is day. Instead, at the end of the day teachers are taught about the ownership of them—“We will go into to have a conversation with that young person and classrooms ready and prepared to learn,” “We will go they are brought back together to resolve that conflict. into classrooms and we will listen to each other when Pat Glass: I want to clarify that. When you talk about we talk,” “We will go into classrooms and”—very consultants, what you mean is specialists employed by simply—“we will keep our hands and feet to the authority. That’s the name that’s given to them. ourselves.” That actually covers so many things. They’re not people who come in at huge cost from When conflict arises in the class, you’ve got those the private sector. rules that everybody has agreed to—pupils, teachers and the senior leadership team. Therefore, the Q108 Chair: What evidence have you got that conversation’s very simple. “Did we keep in line with these rules?” “No, we didn’t.” “What do we do after National Strategies interventions are effective? that point?” And we know what is going to happen, Sue Bainbridge: The data that we have are, as I said in terms of the kinds of consequences that there might before, that we’ve moved the number of inadequate be. So it is very, very simplistic, as Alan was saying behaviour schools from 72 to 18. In 2006, we before. It is keeping things as easy as possible for introduced a new programme around securing good young people to remember. If they’ve got 40 school behaviour in all schools. In the inspection tranche last rules, they won’t remember them. So that’s how we year, 80% of schools had moved to good or focus on it. In terms of then working with that school, outstanding, whereas in the inspection tranche the we have tried to identify good practice in a year before, it was only 70% of schools. Those kinds department, because what you want to do is to build of data are the hard data, obviously based on Ofsted on strengths. In this particular school that I am figures, but we’ve also got data around the impact of referring to, the humanities department was very good behaviour on attendance. The SFR figures that good, with some very strong, skilled teachers. So we came out yesterday showed the best possible PA worked with them to start looking at how they could figures: we’re down to 4.3% in terms of persistent share the strategies that they use with other absenteeism now. I think the strong link between departments. And then we work department by improving behaviour and getting young people into department, building their skills, including their skills school is absolutely crucial, so that when they’re in to coach other teachers, and then we move on through school, they can engage and start to learn. We’ve got the school. really good figures on our social and emotional skills programme and the types of things that are coming Q105 Chair: So how much training have individual out there. We know that 90% of our primary schools teachers had? are engaged in that programme. A primary school in Sue Bainbridge: Within the school, over the last year Wiltshire took on board the social and emotional individuals have probably had five or six very aspects of learning approach. It had very high levels intensive sessions on looking at behaviour strategies. of exclusions. Straight away, a year into developing But to be perfectly frank, because of what the other SEAL, they’re down to zero exclusions within that schools got to develop, they have been totally aligned school. Nothing else had changed within the school to the quality of teaching and learning. The whole other than taking on board that programme across all focus has been on engagement of pupils and staff. There’s a 65% take-up of the social and developing positive attitudes to learning, as opposed emotional programme within secondary schools. to the behaviour management side of things. Again, we’re really starting to see the impact there. There are things like family SEAL, and there is the Q106 Chair: Has it led to the departure of some of impact on families engaging. I think the other area the teachers? Sir Alan said that the biggest link is that that’s big within the behaviour programme is our good teaching—best practice—leads to good national programme for specialist leaders in behaviour behaviour. If you’ve got a school that’s got inadequate and attendance. We currently have over 7,000 behaviour, it’s probably because there’s a lot of lousy teaching. Some of that needs to be challenged and participants in that programme, and 63% of improved, and in some cases people perhaps need to participants are focusing on the behavioural, find some more useful thing to do with their time. emotional and social difficulties aspect of that Sue Bainbridge: What we find when we are working training. That’s a training programme that is given in a school that has got inadequate behaviour is that over to schools and individuals, where they actually quite often some teachers will move on, or will be take responsibility for their own continuing encouraged to move on by head teachers. professional development. They lead the cluster sessions, and they have opportunities to go back into Q107 Chair: To another school? school. As for the impact of that particular Sue Bainbridge: Yes, to another school or another programme, through testimonies we’re getting, post, or to retire from the profession, given their age. especially from the north-east, there is already really In other cases, we work very hard with consultants to strong evidence of how those members of staff— support and develop skills and, most importantly, on they’re not always teachers—are really starting to the confidence of those staff to work with young have career prospects. They’re getting that confidence. people. We also look at things like ensuring that, when They’re more skilled and more able to address those an incident occurs, the young person is not taken away behaviour issues. cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 32 Education Committee: Evidence
20 October 2010 Sue Bainbridge
Q109 Chair: Can I ask you about SEN? What does future? Are there any threats to it? Sorry to add to National Strategies do to help differentiate between my question. general behaviour difficulties and early identification Sue Bainbridge: On types of support, six or seven of, and support for, children with special educational years ago, when we had the BIP programme, there needs? were BEST teams—behaviour and education support Sue Bainbridge: We actually have a National teams—wrapped around a number of schools that Strategies programme that leads on SEN, and we work were in the programme. What has developed from hand in hand with it. There’s an element there that those teams is that a number of schools have taken on skills up staff in being aware of, and being able to that model, and they have those teams within their identify, such things as communication difficulties, school or wrapped around their school. Those teams BESD issues and autistic spectrum disorders as soon work largely within the school and the community, as possible. One of the things that we’ve done, and also in some cases work across all ages. They get working alongside those colleagues, is look very to know some of the family issues so, when they are carefully at how early we can help schools to identify coming into support, they know the context of the need. One of the things within behaviour school. They know the context of the family and can improvement that we’re taking forward is looking at actually intervene much more quickly. Where we see data tracking. We’re very keen as early as possible to those services in short supply—an example is encourage schools and local authorities to look at a community mental health services, as Pat said earlier, profile of need, so that when we have issues and some speech and language services are often in emerging—for instance, in year 9, if suddenly quite short supply—we have seen schools and local behaviours are presenting—we track those young authorities being quite creative in the way that they people back to when those triggers first came about, have addressed some of the issues. Two years ago, and start to look at whether they were presenting Hammersmith and Fulham had a look at the number earlier as having communication difficulties or mental of young people it was sending out of city. It realised health difficulties. the expense that that was costing and decided that it would not do that any more, but that it would invest Q110 Chair: Is it working? Anecdotally, it seems some money in providing CAMH services and speech from parents in my constituency with autistic children, and language services to its primary schools. That was from the National Autistic Society and from evidence not to every primary school, but there is a much- from people I meet, that it is still a complete battle enhanced service within schools. It then put in place with local authorities to get any recognition of the nurture groups in year 7 in secondary schools, focusing on speech and language. Those are the kinds child’s needs. Even if you can get it, there can be a of approaches where teams of specialist identified long delay and often non-implementation of those services are really making a difference. Those schools things that are specifically prescribed to help. The are utilising those services to skill up other whole thing looks pretty disastrous at every stage. mainstream teaching staff. They are putting a speech Sue Bainbridge: I think that we are only at one stage and language therapist alongside a teacher to enable within that journey. Now we have encouraged schools them. What we are seeing now with partnership to look very clearly at the needs of young people, as working is schools coming together creatively. Instead opposed to very quickly labelling young people with of funding being top-sliced, and that money being in a special need. Once we look at the need, we can the authority, schools are retaining some of those usually address the kinds of strategies and funds and starting to look at sharing their resources. interventions that are needed. With our data tracking, Where one school in a partnership of five has a good we have really encouraged schools not just to collect facility—it might have a community mental health the numbers, but to start looking at the quality of the building on its site, while another has a youth centre— intervention, and to start tracking the impact of the schools are using and swapping those services. We intervention; for example, with a young person with even have teachers and single-issue teams that are a communication difficulty, at what point would we now starting to think about how they can best make intervene and see how effective that intervention was? joint appointments, as Sir Alan was saying earlier; Quite often, we find that we don’t actually measure they are starting to take that forward. For the future, the impact of the intervention. We keep intervening, there is real potential for schools to use their own and then wonder why we are not getting anywhere. I resources better to look at the services they need. We think that that is really important. One of the things need to ensure that those services are there, and that that we have tried to do is encourage all staff, when skilled professionals are there to fill the gaps. they have a vulnerable young person with presenting Chair: Thank you very much. It was a long needs who is not engaging, to dig really deep and try introduction from me. Nic? different things, and then see if that makes a difference to their engagement with a learning Q112 Nic Dakin: We have had a vast amount of opportunity. evidence to the Committee already, and you have given a very positive picture of National Strategies, Q111 Chair: How important is local collaboration but in that evidence there was very little reference to on, or between, education, social care and health National Strategies. Why was that? services in identifying and addressing behavioural Sue Bainbridge: Because it was evidence from issues related to SEN? How do you think that that National Strategies, we assumed that what we collaboration can be fostered and improved in the presented was about National Strategies. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Education Committee: Evidence Ev 33
20 October 2010 Sue Bainbridge
Q113 Nic Dakin: I was thinking of evidence from Sue Bainbridge: From day one, our remit was to build other people. People aren’t pointing to National the capacity of local authorities to work with schools Strategies and saying that it has made a positive by developing the skills and competence for them to impact. They are not saying, “Look at National deliver themselves. We were never building a Strategies as part of the solution.” dependency on our role. The materials, which we Sue Bainbridge: We have focused on getting know are used regularly, will continue to be used by ourselves into schools and on working to skill up a schools. Schools will develop the materials and they consultant field force within local authorities. The will move them on. The future will be in partnership feedback that we often get when we go into local working, with schools coming together to adapt those authorities is on the value of the behaviour and materials and to develop their own materials. There attendance consultants who work in those authorities will always be a need to drive, advise and guide. For and on the work that they do. It isn’t necessarily about example, last week I went into one of our 20 lead our having a wider audience. To be perfectly honest, behaviour schools, which is an outstanding school we offer a universal service to all schools, but, as across the board, and the message that I received was, often happens, there are a number of outstanding “No one has ever come in, no one has ever helped schools. We support local authorities to make me, no one has ever challenged me and no one has decisions about whom they support, but it is entirely come in and had this conversation, from which we up to them to use their knowledge of schools to decide could really benefit.” Schools will always need that where they take that support. On working closely with challenge, drive and support, but we have done our Ofsted, Ofsted is very aware of the work that we do best to provide them with the skills and the materials and of the number of organisations that we work with to take forward. in partnership. Q117 Nic Dakin: Where will that capacity be in the Q114 Nic Dakin: The Secretary of State has said that future? Those consultants in local authorities are National Strategies has wasted huge amounts of likely to disappear, aren’t they? Where will the money. What do you say to that? Have there been any capacity be to ensure that, five years down the line, cost-benefit analyses? we don’t slip back again? Sue Bainbridge: In taking forward this particular Sue Bainbridge: We have some very, very good programme, my focus has been on developing high schools that are really addressing the issue of quality materials and approaches and on providing behaviour. We have 20 lead behaviour schools. That quality training to people so that that training and is only 20, I know, but they are already networking those materials can be cascaded. As a programme, we with other schools in their regions. We have schools are contracted to the Department for Education, and, that have taken forward specific aspects of as such, the specification and any funding and costs programmes. On local authorities, Hull springs to sit within the remit of the contract manager in the mind in terms of taking forward things like restorative Department, Dave Sleep. So if you have any further practice and trying to drive forward and address the questions on costs, I would advise you to go to him really entrenched issues that they have in some of and ask for more specific information about that. their schools. On those kinds of pockets of practice, local authorities will work together—they have Q115 Nic Dakin: So you would not agree that it was worked together in the past. But, more importantly, a waste of money? groups of schools will work together. What we will Sue Bainbridge: I would not agree, because the data see is champions within those schools really start to show the improvements that we have made year on take forward the practice, develop the practice and year. If you were to go into a number of local make it their own. That is what they need to do. authorities, you would find that there are networks of leads, especially from secondary schools, that come Q118 Craig Whittaker: Sue, I want to clarify a together on a termly basis to discuss and share good couple of things. You explained that the schools have practice. If you were to go into the regions, you would gone from 72 inadequate down to 18, and you have find that there are regional teams. We are looking at dealt with that by addressing the skills gaps with a an exit strategy for ourselves from March onwards, lot of teachers within schools and, of course, local but those local authorities are coming together of their authorities. We also know that a huge amount of data own accord to carry on sharing and promoting the tracking and, indeed, profiling of needs is done. Are kind of opportunities that we provided to them and to you therefore suggesting that because of the skills gap, work together to share that good practice. We will which you also spoke about, that perhaps this data leave a mark. We have left materials, which are being tracking and profiling of needs is not quite as it should used. The social and emotional aspects of learning be, because of the skills gap? If the answer is no—as programme is the most frequently downloaded I suspect that it is—is it not therefore down to the programme on the Department for Education website. quality of the teachers and the leadership, more than The fact that people are using the materials that are anything else? out there shows that we are making a mark. Sue Bainbridge: At the end of the day, you cannot pull apart the quality of teaching and the types of Q116 Nic Dakin: Do you believe that there will be a behaviour that you see within school. We know that sustainable legacy from this programme as we move the two are inextricably linked. What we find as well forward and that schools can manage in the future is that if you don’t have a strong leader and a strong without national guidance? leadership team that has a vision and high cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
Ev 34 Education Committee: Evidence
20 October 2010 Sue Bainbridge expectations regarding where they want the school to to explain what it is they have to do to be in a be, which everybody buys into and takes partnership, you almost get the feeling that that responsibility for, it isn’t going to work in terms of partnership will not work until they have really driving that forward. All teachers—all staff—need to engaged with the individuals and made them see the model good behaviour at any point. I think Alan reason for being in a partnership. Revoking the talked about meeting and greeting young people on requirement to be in partnership will have less impact the way in and being around at lunch times and other if those partnerships are already formed and if they times. All that is as important as the quality of are making a difference. What we found was that, teaching and learning. But, fundamentally, what we historically, those partnerships were based on fair find is that if young people are not engaging in their access and managed move protocols in local learning, that is where we first and foremost must authorities. Whether sustainability has anything to do address the skills needs of those teachers. with being in partnership is to do with whether those partnerships have moved on—whether they are Q119 Craig Whittaker: I am particularly interested sharing the development of their policies, considering in what I said about the data tracking and profiling of sharing their continuing professional development needs. If there is a skills gap there, particularly with opportunities, sharing staff and looking at resources. the teachers, does that bring a question mark over the They know already what it is that they are doing and quality of data tracking and the profiling of needs? why they want to work together. One really good Sue Bainbridge: It does. What we have found is that example of partnership working is in Tower Hamlets. we have gone into schools where they have been No one told those schools to work together; they collecting numbers as opposed to really analysing the decided to work together. They share their data now. data they have, not only on the basis of what the They not only openly share data with heads and senior pupils are doing, but in terms of the timetable areas leadership teams, but flag up the youngsters who are where those issues are emerging—having a look at the causing them concern. They ask each other for help different staff where those issues are emerging and the with strategies to address a problem. A youngster different subject areas. That is where that data never comes to that table for a managed move or any tracking is important. If people are collecting that kind of support because they are at risk of exclusion. information but doing nothing with it, which is often That is the sort of early intervention that those kinds the case, that is the point at which we have to say, of partnerships are now working towards. As for “Okay, you’ve got this information now. What is it revoking the requirement to be in partnerships, I don’t telling you, what are you going to do with it and how see that as an enormous problem for those regularly and quickly are you going to address it?” partnerships that are working already. Some One of the things we find is that where we have a partnerships will use it as an excuse now for schools system—a consequent system or whatever—within a to drop out. At the end of the day, schools will work school, if that’s addressed very regularly and staff and with schools that they can benefit from. As for the young people are flagged up, those issues can be future, it is only by working together in partnerships addressed before they become entrenched and those that schools can best afford the services that they young people start to disengage and spend less time need. Each individual school cannot buy in all the in the classroom. services that it wants, but five or six schools working together might be able to afford to share those services Q120 Ian Mearns: Hi Sue. In 2005, Sir Alan’s report between them and use them more effectively. They suggested that all secondary schools, including can then start to influence what those services look academies and foundation schools should be part of a like for those young people in need. We did some local partnership and that this should cease to be a training recently in the south-east. Schools were very voluntary option by 2008. However, since this keen to start looking at how they could influence what September, the Government have taken the decision their alternative and PRU provision looked like. to revoke the requirement for schools to work together Where there were gaps, they wanted to see how they in behaviour and attendance partnerships. So what are could ensure that those gaps did not exist in the future. the threats and the opportunities created by a diminution of the role of local authorities in relation Q121 Ian Mearns: The problem is you have given us to behaviour and discipline in schools? Will the a couple of examples of effective partnership working. removal of the requirement to form behaviour and There are 150 or so local education authorities. I guess attendance partnerships have any meaningful impact, from the way in which you have phrased your answer and does the prospect of local authority behaviour there are a number of education authorities where support services being outsourced or disbanded those partnerships don’t really exist in the way in concern you at all? which you want them to. Have you any concerns for Sue Bainbridge: On schools working in partnership, those areas? the strongest partnerships that we have seen across the Sue Bainbridge: I have a concern when local country are in places such as Bradford, where they authorities are purely based on a managed move. have a really strong partnership and operate in three What we might find is that if schools don’t have to different clusters. They have engaged in those engage in that fair access protocol—being part of that partnerships because they wanted to and not because sort of agreement between schools—some schools anyone told them to. They saw the benefits of working will find themselves with a higher level of excluded in partnership. When I have been called to pupils, because they are willing to take those young management committee meetings across the country people in that move. We may find that others are not cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:55] Job: 006766 Unit: PG02 Source: /MILES/PKU/INPUT/006766/006766_EdC 20 Oct 10 CORRECTED.xml
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20 October 2010 Sue Bainbridge as welcome into the partnership, because they Sue Bainbridge: At the moment, it is the local negatively contribute to the number of excluded pupils authorities’ responsibility to intervene if they feel that without doing their bit to contribute in a positive school leaders are not taking forward their role and way—to offer services and support to schools. That is are falling down in terms of their responsibilities. despite the fact that they are, quite often, outstanding schools with an awful lot of skills and expertise to Q124 Tessa Munt: What access do governors have offer. One of the roles that we played in National Strategies was to facilitate some of the conversations to that work? around looking at the benefits that every school would Sue Bainbridge: The governing body’s role is also to have in taking forward that partnership. In the future, challenge the head. It has a very clear role in many some schools will opt out and be in it for them. schools in taking forward certain aspects of the Chair: Sorry, Ian, I must cut you off there. school’s role, in terms of bringing in responsible policies, overseeing the data and looking at what the Q122 Ian Mearns: This is important, because Sue’s issues are in the school. I think that a lot of our answer has elicited in my mind another question. It is governing bodies, currently, will challenge the data. the question that I asked Sir Alan before. You We did some work in Sheffield, where there were high mentioned that some outstanding schools are not levels of disproportionate exclusions. In that school, acting as part of a partnership. Those outstanding the governors were very challenging. They analysed schools could well have the recourse for parents to an that data down to four teachers whose confidence and independent appeals panel removed. If they are not skills not only were lacking in terms of addressing playing the game in terms of being in partnership with fairness within some of the young people they were other local community schools, how will that work teaching, but hadn’t changed in terms of the support and where will those kids end up? they were being offered. The governors were very Sue Bainbridge: At the moment, one of the things challenging in terms of what they wanted that head that we are working very hard on—and will continue to work very hard on until the end of the contract—is teacher to do in order to take the school forward, so encouraging those schools to look at the benefits of that young people didn’t miss out on learning. working in partnership. We’ve really got to make outstanding schools understand that they will not stay Q125 Tessa Munt: So is it primarily a local outstanding as individual schools. We have to try to authority role? sell to them the fact that by working with other Sue Bainbridge: In terms of local authorities, our schools, there will be a lot of benefits. To be honest, team has worked with assistant directors who have I’ve only been into the 20 lead behaviour schools— responsibility for behaviour strategically within an outstanding ones—in the last six months, so I haven’t authority. What I am seeing is their role in going in got a lot more knowledge than that. But in those 20, and challenging head teachers on behaviour and they are all willing to engage with other schools. They exclusion levels, and I am seeing it very much as their all want to be part of that partnership, and offer and having a very strong role within schools. But that’s develop their own skills. They are not complacent, and they want to carry on. perhaps because I meet very few governing bodies. I Chair: We are coming to the end. Tessa would like operate more with local authorities and their quickly to ask about governance. relationships with heads than I do with governing bodies and their relationships. Q123 Tessa Munt: Quickly, I want to ask you whose Chair: Tessa and Sue, thank you very much. Thank job you would cite as being to challenge school you very much for giving evidence to us today. It has leaders. been a fascinating morning. cobber Pack: U PL: COE1 [SE] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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Wednesday 27 October 2010
Members present: Mr Graham Stuart (Chair)
Nic Dakin Ian Mearns Pat Glass Tessa Munt Damian Hinds Craig Whittaker ______
Examination of Witnesses
Witnesses: Gillian Allcroft, Policy Manager, National Governors’ Association, Mike Griffiths, Head of Northampton School for Boys and witness for the Association of School and College Leaders, Russell Hobby, General Secretary, National Association of Head Teachers, and Charlie Taylor, Headteacher, Willows Primary Special School and Acting Headteacher of Chantry Secondary Special School, Hillingdon, gave evidence.
Q126 Chair: Good morning. Welcome to this behaviour and discipline in the classroom. Have you meeting of the Education Committee. We are grateful any comments to make on that, Russell? that the four of you have come to give evidence to us Russell Hobby: There are three things that drive today. If you’re happy and comfortable with it, we’ll behaviour in schools, quality of teaching being one of use your first names. Let’s crack on through the them; the consistency of the behaviour policy across questioning on the subject of behaviour and discipline. the whole school and how well that is implemented When we took evidence last week, we were told that is another and, of course, parental attitudes towards in general standards of behaviour and discipline are schools—it is those three things together. Appropriate improving and that, although there is work still to do, use of teaching assistants within a good behaviour one could be happy with the general direction. Would policy needn’t undermine behaviour at all, but the you all concur with that? inappropriate use of people without the qualifications Mike Griffiths: I’ll go first. The evidence collected to do it would have that impact. Of course, if you’re from groups such as Ofsted would seem to be that is. not being stimulated in your lessons, you’re more Clearly, it’s always been an issue ever since I started likely to misbehave or to be alienated from school. teaching 34 years ago and, I suspect, ever since Aristotle or whoever was writing about young people Q128 Chair: Is there any evidence that TAs are being being disrespectful compared with the older used inappropriately and that that is having an impact? generation and so on. I suspect it is a bit of a Mike Griffiths: I don’t know whether inappropriate is generational thing. My perception would be that in the right word. In secondary schools, it is not so much schools, yes, behaviour is improving. teaching assistants as the new breed of cover Gillian Allcroft: I would concur with that. It’s what supervisors that has evolved with the work force Ofsted has reported. Clearly there is always room for reforms. In a school such as mine we need, when we improvement—there are always behaviour issues— appoint them, to make sure that they are trained, but generally it is getting better. because they are not teachers; they supervise work that has been set by teachers. Clearly, however, it can Charlie Taylor: Yes, again, I’d agree. There has be an issue. It is something that is worthy of further always been a sense that this is the worst generation debate and research about the impact of non-teachers we’ve ever had and that things are getting worse and supervising classes at work. Certainly, if there is a worse, but I don’t feel that’s the case at all. I think significant amount of absence in a school and a there have been some significant improvements in youngster has several periods of cover supervision behaviour. A lot of that is linked to improvements in during the course of a day, then I would imagine that teaching as well. behaviour could become an issue. Russell Hobby: Yes, I would agree with that, but small incidences of bad behaviour cast quite a long Q129 Chair: Do you have any comment on that, shadow and have a disproportionate impact, so it is Gillian? right to focus on the minority of cases where we do Gillian Allcroft: No, we have no evidence on that. want to improve it. Chair: Okay, with no further ado I will cede to Craig.
Q127 Chair: According to Sir Alan Steer in the Q130 Craig Whittaker: Good morning everybody. I various pieces of work that he has done—and almost want to talk about the new powers, specifically powers everyone else agrees—quality of teaching is the most of restraint; the permanent exclusions and the important thing in improving behaviour and independent appeals panels; and the removal of 24- discipline. I don’t know whether it’s just since we hour notice of detention. Do you agree with the new have had the rarely cover provisions, but there seems proposals and do any of you wish to comment to be increasing evidence of TAs ending up taking specifically on any of those three issues? classes. Someone who is not even qualified as a Russell Hobby: I suppose the most ringing teacher sometimes takes classes, which must surely endorsement I can give for them is that they are fine. undermine the quality of the teaching and thus make The trouble is that it’s not the giving of new powers; it less likely that people will experience consistent it’s how we use powers at the moment, and there is a cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor wide range of existing legislation that isn’t fully enable me, as the teacher, to improve relationships exploited to make use of that. In specific terms, the with that youngster, but that’s unlikely to occur if the proposals for anonymity are welcome, because a youngster perceives the detention as being a period of relatively small proportion of accusations actually almost imprisonment. Even in such cases, detentions result in any action being taken and it causes immense are better held at breaks and lunchtimes than after trauma. The powers for search are fine. I don’t think school. the idea of removing notice for detention for outside Charlie Taylor: The thing that concerns me is the school hours is a helpful suggestion. I think the impact going of the independent panels. Having sat in a on parents of not giving them notice would not help former life as an LEA representative on those panels, the relationship with the school. the decisions that actually did get turned over made Mike Griffiths: At the risk of being rather boring, I me think, “Damn right,” because the school had run think ASCL, too, would welcome the new powers the show appallingly, had failed to follow procedures from the point of view that at least they provide a and things hadn’t been done right. In the 2% or 3% signal to parents and youngsters that the Government of decisions that do get turned over, I don’t have a will be supporting schools and teachers in their problem with that at all. The hands-on bit concerns attempts to make sure that discipline is as good as it me a little, because, as I have seen in primary and can be in a school. Similarly, the search powers are secondary schools, you get circumstances where fine, although it is strange that mobile devices such as teachers have been trained and therefore they think telephones are lobbed in there at the same time as that it’s okay to lay hands on a pupil. The danger is drugs, knives and whatever else. There is a bit of a that that can escalate, things get worse and you then confused message there, although I understand why it end up with a situation where a pupil gets permanently has appeared. The search is common sense, I would excluded. So I agree, provided the training is of high hope, and not a whole series of rules and regulations enough quality and teachers really understand that it’s about it. I share the welcome for anonymity, the last resort. You don’t want situations where, as particularly because of the incidences of the use of IT, soon as there’s a bit of disruption, a bigger teacher websites and so on as a way of spreading information just bundles the child out of the room. You don’t want and, dare one say, malicious gossip. I think anonymity the message going out to any child, “Because I am is important. I also share the notion that the item on bigger and stronger than you, I can get you to do detention is unhelpful. Certainly, in my school, for stuff.” A lot of our children are coming into schools simply pragmatic reasons, I will not be allowing with that sort of message already and the last thing teachers to detain youngsters without giving notice. we want to do is reinforce that message at school, as That is partly because there are transport issues for well. I would add that a very positive bit that came youngsters—in some communities, where there are out of that, too, which was the positive touch that the school buses to catch, it’s just simply not pragmatic— Secretary of State mentioned in terms of being able to but also because one only has to look forward to the comfort children and making that emphatically okay November evenings and youngsters travelling home to do. Some schools appear to have a non-touch in the dark and so on when the parents haven’t been policy, so you have, say, a child of five, who’s crying given notice. You only need the first instance of their eyes out because they’re missing their mother, something happening on the way home, and schools and no one is allowed to put their arms around them will very quickly not want to put themselves in that and give him or her a cuddle. That seems ludicrous, position. and I am very glad that the Secretary of State has clarified the law on that. Q131 Craig Whittaker: Is it fair to say, then, that these are just extra powers in the toolbox of things Q132 Craig Whittaker: Are you saying that the that are available for schools to use and that it’s initial teacher training is inadequate as it currently entirely down to the head and the leadership team as stands? to whether they use them or not? If that is the case, Charlie Taylor: In terms of managing behaviour? why do you think that previous tools in that toolbox Craig Whittaker: Yes. have not been exercised by teachers? Charlie Taylor: Yes, I think there should be more. Mike Griffiths: I’m not sure that they haven’t been When I was trained, I probably had about half a day exercised by teachers. I think teachers always have on that in the entire course. It might be a day now, used these powers. Detentions are not terribly useful. but it’s not much more than that. People tend to try and find a more creative way of dealing with issues, because to get good discipline you Q133 Craig Whittaker: Do you want to pick up on need to work with youngsters and get their co- that, Mike? operation. Simply penalising and depriving them of Mike Griffiths: Yes. My school runs a school-centred time and so on isn’t always helpful. The only time initial teacher training course. Where teacher training when I think it can be useful is when that time is is based in schools, there is probably a greater used by the teacher to constructively work with that emphasis on management of behaviour as a key issue. individual child, in a way that they don’t normally That is something that I would like to see expanded. have time to, to actually rebuild the relationship. Other than that, I entirely agree. My head teacher 30- Personally, I am completely against the notion of what odd years ago used to say, “Whatever you do—I I think in some schools is called faculty detention, implore you, I beseech you—don’t touch the children, where somebody else runs it. As far as I can see, the whatever the provocation.” His view, and mine as only reason for keeping a youngster behind is to well, was that as soon as you do, you automatically cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor place yourself and the school on the back foot. The Q136 Ian Mearns: I have been a chair of governors focus is then on the behaviour on the teacher, rather for secondary schools for 20 years, and I have sat as than on the behaviour the child, which led to that a chair of governors at an appeal panel defending the response. My view is entirely that we should say to school’s position. I haven’t been turned over yet but I staff, “Whatever you do, you still do not touch a child agree with you, Mike, that quite often it isn’t pleasant when you are angry with the child because of their from the school’s perspective. However, in the misbehaviour.” However, I well remember running different appeal panels that I’ve been to, the running under-13 football teams and knowing which child of the appeal panel has sometimes been very good, would need a consoling arm around their shoulders and at other times, it has been decidedly iffy in terms after they missed a penalty in the dying minutes of a of the way that the chair has allowed the proceedings cup game, and it is just as important to do the same to get out of hand. Do you think that there is a role for for a child who is missing their parent. the appeal panels to be much better trained in terms of their membership? Q134 Craig Whittaker: Gillian, I will ask you my Charlie Taylor: In the ones that I’ve sat on, I’ve been final question, which ties in with what we’ve been impressed by the expertise and generally they have talking about. If the Government do go ahead with gone very well—and I’ve sat on quite a few over the removing the right of appeal to an independent panel years as an independent LEA rep. against permanent exclusions, for example, would school governors be confident that they can provide Q137 Tessa Munt: I’d like to ask you a few the same level of safeguarding to parents as questions about preventing and managing exclusion, independent panels? concentrating on the prevention part first. Early Gillian Allcroft: I think that the answer is probably identification of risk factors seems to be one of the no, although not because governors wouldn’t try to do things that we might concentrate on. What do you it properly. Governors already have to review certain think are the risk factors that we should be taking exclusions, and we already advocate that any governor into account? doing that should be properly trained. Even if Russell Hobby: The most obvious risk factor is governors are confident and doing it properly, there is special educational needs. Children are eight times potential for the perception by parents and pupils that more likely to be excluded if they have a statement. the governors work hand in hand with the head, so I’m not saying that is something that justifies it, but even if they’ve reviewed the head’s decision, they’re clearly we are excluding more children in those just going to agree with what the head says. Even if circumstances and that is probably where we need to focus a lot of attention. Equally, exclusions are not you have agreed it and the head has done everything evenly distributed. Children on free school meals are marvellously and it’s all fine, and you have ratified the more likely to be excluded as well. I think we should decision, there is still going to be that perception that focus our attention on those points. you haven’t because you are just in the pocket of the head. If you get rid of independent appeal panels, the Q138 Tessa Munt: Does anyone have anything else danger is that schools will end up in court. That is to add? going to be a massive cost for schools. Charlie Taylor: I would simply say, “Ask nursery school teachers.” Go to a nursery school and say to Q135 Craig Whittaker: Do you think we are going the teacher, “Which pupils in your class are going to to see fewer exclusions on the back of this happening? be causing disruption further down the road?” There Gillian Allcroft: It’s very difficult to say until a few was a hideously depressing study—I am trying to schools have ended up in that situation. Personally, I remember where I saw it—that got nursery school would keep independent appeal panels because I think teachers to predict which children would end up in that they do a good job. prison and 15 years later, they were completely right. Russell Hobby: Can I weigh in to reinforce that? It If we are spotting these problems in nursery school, puts schools in a difficult situation. Exclusions are a why do we wait till the children have gone to measure of desperation anyway, so whether they secondary school before we sling them out or do would influence the number of those—it is always the something about their behaviour? I would put in a last resort. In terms of natural justice and the way it plug for my early intervention nursery at my school, appears, keeping independent appeal panels will where we take eight pupils who have fallen out of protect schools and make sure they use the right some sort of permanent education, and they spend two process. or three terms with us. Ninety-six have gone through Mike Griffiths: I agree. Although I’ve appeared in our unit and only seven have come back with a front of independent appeal panels and I didn’t like it, statement for behaviour further down the road. If you I think it is better that they remain because the compare that with the recidivism rate of somewhere alternative would be even more unpleasant for me as like Feltham, which I guess is about 80%, it is a pretty a head. Although they are not comfortable places to good case for early intervention with young children. be, my only concern about them is that sometimes they are almost too focused on determining whether Q139 Tessa Munt: Thank you. Now I want to draw every last i has been dotted and every t crossed on you on a little bit further from that, because it strikes procedural items, rather than on the behaviour that me that some of the things that were identified for us might have led to that exclusion. I still think that we were: social and economic status, which is some of probably need to retain them. the stuff that Russell has actually raised; poor cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor attachment with early carers, which might be a natural might be worth looking at—comparing those conclusion; reading failure; and pupils going through youngsters who were part of the all-through with the school transition. The education system can perhaps youngsters who joined. Again, we have to be careful only have an effect on the latter two of those. A 1974 with the data because it is not always as simple as study stated that reading failure was the only one of it seems. all the various indicators that accurately predicted the later incidence of violent and antisocial behaviour. If Q140 Tessa Munt: I did not want to imply in any we look in our own country at the number of people way that if you cannot read you go to prison. What I with a very poor reading age who end up in prison, am saying is that the learning experience of reading something like 60% or 70% of our prison population can perhaps alter people’s futures, and that seems to have a reading age of less than 10. That is something be a factor so frequently. that we can have an effect on, and I wondered what Mike Griffiths: Clearly, it is absolutely vital because your comments were about reading and the ability to if youngsters are not able to read well and effectively, teach reading to very young children. they simply cannot access other parts of the Charlie Taylor: I feel strongly about the teaching of curriculum. Of course, if they cannot access the a specific reading scheme, and I happen to be very curriculum and if their achievement gets lower an passionate about synthetic phonics. In some ways it is almost inevitable consequence is that they become nothing new, but it is about very focused teaching of relatively disaffected and relatively uninterested in reading—it’s made a real focus. In both my schools, lessons, and behaviour becomes a problem. it’s a way of targeting the children, assessing where they are and moving them on in a very, very structured Q141 Tessa Munt: So what we are saying is that it way. The effects are dramatic and we get some real is possible that instead of concentrating on managing change. I think a generation of children lost out exclusions we could prevent more, perhaps. because of the fancy sort of stuff that I was taught at Charlie Taylor indicated assent. teacher training college—real books, or letting them look at the pictures and make it up as they went along. Q142 Tessa Munt: Charlie seems to agree, so that Actually, reading is one of those things that you have would be what I would suggest. May I quickly look to teach. at interventions and managing exclusions through Mike Griffiths: I wouldn’t disagree with any of that, restorative justice, mediation, internal exclusion and but I think that we have to be careful about cause and managed moves? How often are managed moves and effect. Although significant numbers of people end up internal exclusion used to prevent final exclusion? having a problem who were also poor readers, they Gillian Allcroft: That varies enormously from school were probably also deprived in lots of other ways as to school in terms of internal exclusion. It can depend well. We have to be careful not to make too simplistic on the individual school’s policy and how it is a judgment that because you are not a reader, you will managed. not get on. In the 1950s, my father was deputy head of a secondary modern school and he remembers the Q143 Tessa Munt: Are managed moves a good days when people left school at 14 or 15 and went thing? into the army or manual labour. Vast numbers of them Gillian Allcroft: They can be. It is a balancing act. could not read or write functionally, but that is not to They can be a good thing, but on the other hand they say that they all ended up in prison. I do not think that can be seen as a way of moving the problem it is a necessary consequence, so I think that we have elsewhere without dealing with it. They can be a good to be careful. You also mentioned transition. Schools thing, because sometimes the pupil needs to be in a work a lot harder than they used to on transition, but different environment, which might help that pupil sometimes it is the art of the possible. I was a head and move their education on. teacher in relatively rural Oxfordshire where basically Russell Hobby: I think that managed moves are a there were about five primary schools that fed into the good thing, because groups of heads and schools work secondary school of which I was head. There, liaison together to take responsibility for a problem, rather was fairly straightforward, and you could work with than saying, “That child is not my problem any that. My current school’s 2010 intake came from 83 longer.” If you are participating in it, you are also different primary schools, which completely changes accepting children from other schools. I think that, in the dynamic of how much transition work can go on some areas, they are often hung up by the bureaucratic between us and them. I am also aware of all-through difficulty of organising it and by whether the local schools, which I think you’re interested in, and there authority is sufficiently stimulating it and helping to is one in our town. It is a bit of a misnomer, though, co-ordinate things. But as a principle, and as an because although it is an all-through school in one alternative to permanent exclusion and at the end sense, it is only an all-through school for about 30 of point of an escalation of processes that include things the students. They are still joined by about 180 other going on purely within the school, it is a big step students at year 7, so it’s not as though the whole forward. school is all-through. I do not know of many cases Mike Griffiths: Although I think that, in principle, where a school is actually all-through, with 90 they and partnership working are a good idea, I am youngsters or whatever going right the way through afraid that, in my experience, the local authority has from age four to age 18. I think in most so-called not been involved at all. It is individual head teachers all-through schools, actually there is still quite a big working together to resolve the problem. I have to addition of other youngsters from other places. That say that, in my experience, managed moves are rarely cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor successful. The danger is that they can be used to clean with the local authority. It is hard to tell from disguise or mask the problem. It is almost delaying the your evidence what you think is really happening. inevitable sometimes. There may be occasions when it Mike Griffiths: That’s not a situation that I would is appropriate and it will work and has a good chance recognise at all. In my experience, head teachers know of working, but not that many cases have been only too well exactly what’s happening in their successful in my relatively limited experience. It schools. depends what is the reason for doing it. If it is just that something has gone wrong in relation to a Q145 Chair: So Patrick Roach—I think it was—of particular school, it can work. But if the youngster the NASUWT was wrong to suggest that there was a has a deeper, underlying problem, simply shifting it disconnect between leadership and the front line? elsewhere and having a trail of disruption around local Mike Griffiths: Yes. schools doesn’t do that youngster any good, and it Russell Hobby: Just to add to that: the majority of certainly doesn’t do the youngsters and the staff at the head teachers are also teachers, so they’re on the front receiving school much good either. line as well as leading the school. So I would Charlie Taylor: I think that internal exclusion can reinforce that. work well when it is well managed, but when it Chair: We move on to exclusions and partnerships. becomes a sort of school sin bin it can be disastrous. I observed a school where pupils said to each other, Q146 Pat Glass: I want to ask a few questions “What have you got for second lesson? I’ll see you in around early intervention and alternative provision, the sin bin at quarter past, then, because that’s boring but before I do, Charlie, can you give me the name of and we’ll have a bit of fun there.” But in well that school again? managed, well organised schools it works very well Charlie Taylor: Rosedale College in Hillingdon. and it is very successful. To briefly go back to the point about transition, I have a very big concern about Q147 Pat Glass: Thank you. Looking at early what happens to exclusion rates between 11-year-olds intervention in both senses, around nurture and 12-year-olds—in other words, between year 6 and provision—it was good to hear you talk about that— year 7—when they dump them between the two. Do and intervening before the problem escalates, how children get twice as bad between the last year of important is that in what we have heard in your primary and the first year of secondary? No, they evidence about a reduction in behaviour problems in don’t. We have a problem around that. When we get schools? to 12-year-olds, I think that the exclusion rates are Russell Hobby: It’s vital. We weight our system too about four or five times higher. I say to my secondary much towards the end of the education process, when school colleagues that I think, as a primary head, that it’s too late to alter the things that have been there are times when secondary schools could learn embedded beforehand. From universities on down from the way in which primary schools run things. through the system, we need to be paying as much For example, there’s a fantastic school in my local attention to nursery and pre-school activity. As authority called Rosedale College, which has a high- Charlie said, there are some quite strong predictors. level teaching assistant who goes around all the There are various studies in the US as well, which separate classes with an individual class group for connect lifetime income and happiness to the quality year 7 and year 8. That means that when the pupils of pre-school provision. It raises some interesting come into the room, the teaching assistant knows all questions about the pupil premium as well, which those pupils and can tell the teacher, “So and so is starts at five, as I understand it, rather than earlier. It having a bit of a twitch today. If he starts acting up, might be that we could help disadvantaged children I’ll take him out. Leave it to me.” That differs from more by focusing resources even earlier in their the very difficult situation that secondary school school career. teachers are put in where they have 30 children and barely know who they are, and they have to deliver Q148 Pat Glass: In my experience, nurture provision the curriculum. If someone starts acting up, it is very patchy across the piece; in some authorities immediately becomes a problem and it snowballs. A most schools have nurture provision and in others they little bit of primary seeping into secondary would not have very little. What is the experience among your do any harm, particularly in schools that have very head teachers? If we think that this is important, challenging behaviour. should Government be sending out very strong signals around nurture provision? Q144 Chair: The number of permanent and short- Russell Hobby: They could send out strong signals term exclusions has been decreasing. Mike, in your about what works and then leave it to schools in the evidence to the Committee, you sat on the fence and area to react to that evidence. I think that they have said that “hopefully” this is because things are getting an interest in doing that. Particularly when you better rather than because of pressure from the connect Sure Start and children’s centres with the Government and so on. What is the truth here? It is schools themselves and you manage that journey from going down. Is that a good thing or does it, in fact, three onwards throughout the school career, that is mean that head teachers are just intimidated into not quite effective. doing it? We have had evidence from teaching unions Mike Griffiths: Early referral is important in changing that heads do not get to understand and feel the true behaviours rather than simply punishing the bad picture that is going on down below and are just rather behaviour at the end when it is much too late. I would keen to keep the numbers down and keep their noses support what Charlie said in terms of a school like cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor mine, where there are learning support assistants and for that. We need to put as much resources as we can behavioural support assistants who know the classes into looking after those pupils who are getting and the youngsters, and do follow them or particular chucked out of school. There is a real danger that you groups, so they get to know them and can provide the get into what is called the child deficit model, which continuity that perhaps a subject teacher wouldn’t be is where all the problems get focused in on the aware of, which helps. Even though we’re classed as children, and you end up with situations where “outstanding” with behaviour described in the past schools are thinking that if they could just get rid of three Ofsted reports as “excellent,” at my school this one child, then everything would be okay until we’ve appointed a behaviour support manager. The the next one comes along. We should focus in on those idea of that is to identify as early as possible—in our children and improve the quality of teaching in case in years 7 and 8—for which youngsters PRUs—we have talked about reading—so that we behaviour is an issue or may develop into one, so that have really focused teaching of reading in PRUs and we can target support, teacher training and ways of really focused work on their social and emotional dealing with those youngsters at as early a date as issues. In the PRU that I run, a lot of time is spent on possible, rather than doing the old finger-in-the-dike social issues. The children sit around the table every thing for two or three years before they become fully day for 20 minutes and have tea and toast together. grown adolescents and become a major problem. We On one level it seems trivial, but what they get out of want to tackle the issue at an earlier stage. More and sitting opposite each other—it is all very twee, with a more schools are trying to do that. Secondary schools butter knife and a teapot and that kind of thing—and are trying to tackle the issue when it first arises, rather actually beginning to unravel and being able to than when it becomes a problem. discuss the issues that are going on makes a huge amount of difference to their behaviour. Most of the Q149 Pat Glass: There was an authority that I children now spend only two terms in my school and worked with in a large city that had agreed with its then move back into mainstream primary schools. secondary head teachers that every time there was a During that process, because they still spend a day a permanent exclusion, they would have a formal week in their mainstream school—we are emphatic serious case review where other heads would come in about that: they don’t lose touch with that school and and look at, not the incident itself, but what led up to they have to continue to wear that school’s uniform it, and would come out with written recommendations and everything else—it means that we can get the for governors, saying, “This is the thing that you need teachers from that school in to the Willows, and we to put in place to prevent this ever happening again.” can train them and support them to reintegrate that Do you think that it would be helpful if we looked at child back. So when the next one comes along, instead it from a structural point of view rather than the child of simply pushing them out, they will actually have and the incident? more resources and a bigger skill set to help them, Gillian Allcroft: As governors, we have to put in support them and change them. place what we can to ensure that heads and teachers can do their job properly, and look at intervention and look at staffing complements and decide whether this Q151 Pat Glass: Russell, coming back to you, given is somewhere where the budget might need to go. that the panel have seen excellent provision— Clearly, we are all facing budget constraints, so there Charlie’s is one that we haven’t seen, but that we will be issues. The other thing that has obviously recognise—and given that there is almost a shortage worked in authorities is parent support advisers, and of money and really good staff around this area, is this having those people in place to help is great. It has an area in which local authorities should be looking to been shown that that can help work with behaviour. pool their resources and their specialities, because staff are crucial? Q150 Pat Glass: Moving on to alternative provision, Russell Hobby: Staff are crucial, and so is the quality we had Alan Steer here last week, and he said that of training. The difficulty would be, as Charlie has PRU provision in this country was little short of a outlined, the relationship with local schools. PRUs are national disgrace. My experience is that it is either connected to a group of schools, which can make it very good or very poor. Given that we are facing harder to pool resources at a large level, but that might economic restraint, do you think that there is a place be possible at a smaller, community level, and for local authorities to share their expertise and pool certainly with resource constraints that is an issue to resources around this? Do you want to start, Charlie? look into. As well as the quality of what is delivered, Charlie Taylor: Yes, I do. I think Alan Steer is right we need to look at what they are for and why children about the wide swings in the quality of alternative are referred to these units. That is probably a bigger provision for pupils. Some of it’s excellent; some of driver of what is going on. If they are used as a long- it isn’t. At my school, there is a lot of intervention; term place to put children that we find too difficult to we work with the parents a lot. It is much easier to work with, that is exactly the wrong reason to be using change the behaviour of a three-year-old than it is them. They are short-term interventions to help when your child gets to 15. Parents are a lot more up someone turn around and go back into mainstream for changing the behaviour of a three-year-old than education. If we are sending children with special they are for a 15-year-old. By the time they get to 15, educational needs there, as opposed to specialist the die is cast and people are putting their hands up alternative provision, then this is just a big misuse of and saying, “Let’s hope they get to 18, so we can the PRU set-up. I wonder how some of the issues move them on.” So I think that there is a huge case around quality and impact might be related to using cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor them for the wrong things as opposed to what is being there is a really good CAMHS and where it makes done in them. a difference? Mike Griffiths: I think the time lag is the problem a Q152 Pat Glass: May I move on very quickly to lot of the time with CAMHS. There are often some CAMHS? As a Committee we heard clearly from a very good people but it tends to be a problem of time number of experts that CAMHS is very patchy across for getting a referral, which is one of the reasons why, the country and very limited. There is just not enough as I say, we have appointed somebody, almost our of it and there are not enough of the really good ones. own person, who has expertise in that area. There is Because tier 1 services consequently largely fall upon also that notion of special needs: although all teachers school staff, and given that we are identifying need to be aware of issues about how to work with significantly more children with SEN than our youngsters with needs in their subject areas, I don’t European neighbours are, are our staff in schools think that every teacher needs to be trained in order trained enough to be able to identify the difference to recognise the thing in the first place. They need to between those children who have conduct disorders, be aware that a youngster has the condition and be those who have SEN and those who are simply under- told the best way to deal with that. You refer to achieving as a result of many other factors? training, but we do that on whole-school training days. Russell Hobby: I think the role of special educational There is always at least one of those days at my school needs, both delivery of the appropriate teaching and where there is an emphasis on special needs. identification of those needs, should be looked at in initial teacher training. While classroom management Q156 Pat Glass: So is the average teacher in the is probably an argument for putting more teacher classroom well trained enough? Given that, for training into schools, because it is a practical instance, on average, we are told, there are two discipline, there is a theoretical basis to some of this autistic children being taught in every class who can work as well and it supports some of the higher exhibit all kinds of difficult behaviours, is every education influence in initial teacher training as well. average teacher well trained enough to deal with that? But this takes place also within a wider circumstance Mike Griffiths: “Every average teacher”? All teachers that as a society we are more inclined to ascribe could be trained more in everything. Clearly, it is an area, but it’s the art of the possible. We do what we categories to behaviour rather than to treat people as can and we do what we do. I suspect that most schools individuals. There is a kind of medicalisation of how have a clear focus on youngsters’ special needs, but we talk about children. That is driven by parents of course there are special needs. I would not want it wanting to ensure that their children’s needs are to be equated. This hearing is on behaviour and recognised and that they get the resources and support, discipline and obviously the two are not— and schools are doing exactly the same thing as well. Pat Glass: But the two things are almost So there is a bigger picture about how we describe intrinsically linked. needs within schools and whether we need to go as Mike Griffiths: That’s right. I wouldn’t like there to far as categorising people with medical issues, if that be a belief that there was an intrinsic link between the makes sense. two. The two clearly are very different issues. Q153 Pat Glass: Initial teacher training gets blamed Q157 Pat Glass: In a sense, what I am trying to for everything. It is three or six months for a PGCE. explore is this: many of the behaviours that we see in It is a very short course and there is a lot to learn. school will be linked with SEN. Are teachers well Teachers are in school a long time. How important do enough trained and aware to be able to identify the head teachers feel it is that there should be continuous difference? I suspect that Charlie has lots of children training around SEN? who have come through his system who have come Russell Hobby: Yes. Every teacher needs to know. It through as conduct disordered and who actually have is not just a specialist role. a diagnosis. Charlie Taylor: Very often what we find is that they Q154 Pat Glass: But head teachers are not spending have an undiagnosed condition. For example, we had their money there, are they? And they need to, don’t a pupil the other day who was very naughty, but it they? turned out that she was in the first percentile for Russell Hobby: But there are any number of things speaking and listening. Even though socially she that we could be spending money on training people appeared to be quite good at communicating, if you in. That is the difficult side of it. There is the role of listened to what she said it was very poor and she had the co-ordinator and their position on the leadership slipped through the net. As soon as we were able to team within the school as well. So there is a balance. recognise that and support the school to recognise In different schools it will vary because for some that, her behaviour improved considerably. schools there won’t be a high incidence of pupils with special educational needs and that won’t be the right Q158 Chair: On CAMHS, the mental health services way to spend their training budget. for young people—children not with SEN but with a particular mental health need—the evidence we have Q155 Chair: May I ask you specifically about seems to be that that does not get met across the CAMHS? Alan Steer referred to new cases where a board. Is that as scandalous as it looks? If that wasn’t child had to wait 18 months before being seen and so—in other words, if this Committee or these nine months is routine. Do you have examples where parliamentarians were to push the new Government to cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor do what the previous Government obviously did not into schools and working with parents and supporting do, would it make a huge difference to children with them. It is very difficult for some of the parents in my mental health problems if they got early intervention? school to go to a clinical setting and turn up on time Mike Griffiths: I think it would, because we have for appointment after appointment. The danger is that been talking for the last 15 minutes about the you get to a situation where they miss two importance of early intervention, and you are not appointments and are kind of rubbed off and it is said going to get early intervention if you are having to that they weren’t ready for therapy, rather than being wait for 18 months to even get the assessment. It is chased up and told, “Look, we can help you here, but an important issue. you’re going to have to meet us halfway.” There’s a Charlie Taylor: In my school, we had a clinical huge amount to be done on going around to houses psychologist who was working there two days a week, and getting parents into schools. paid for by a project from CAMHS. She ran a parents Mike Griffiths: My school has four times the national group which was incredibly successful in terms of average of pupils with autism—we have over 40 moving stuck parents, really moving their behaviour youngsters on the autistic spectrum with statements on. Unfortunately, the funding for that ran out and for autism. I would like to support the notion that now all our mental health support is paid for either by parents are absolutely key in behavioural things in us or by charities who we get to help fund it. But in secondary school as well as primary school. We terms of what we get from CAMHS it’s now become always look at it as a triangle of parent, child and very limited. school—you need all three corners to be working effectively and we try to work very closely with Q159 Chair: Would you rather see the money come parents on the behaviour of youngsters. Charlie is direct to the school so that you can commission and right—it is absolutely key at primary, but also at work under your own control, or would you rather secondary, that you get parents on board. Most parents rely on the NHS with an additional central prod into start to despair of their adolescent child at some it and hope that it can deliver? point—I know I did—but it is important to get the Charlie Taylor: We are supposed to be able to message through to some parents, “Your 15-year-old commission through CAMHS, but I thought education adolescent is a pain, but we teachers have seen that recruitment was complicated until you get into health many times and, trust us, they grow up to be okay.” recruitment and everything that goes with it. The bureaucracy and everything else around it is such a Q162 Chair: Will the fact that there will no longer complete nightmare that in the end you think it is be a requirement to be a member of a behaviour and better if we use the money on what we want. You attendance partnership have any impact? have to pay them a huge—I don’t know how to put Russell Hobby: Even if you require people to it—pimping fee, I suppose, to get any services into participate in partnerships, they can be there in spirit your schools. You end up paying a tip to the NHS for but not in body and vice versa, so required partnership bringing a worker into your school, so in the end we working tends to produce no better effects than thought we would go direct to the workers and recruit voluntary ground partnership working. our own people. Mike Griffiths: I agree 100%. Mike Griffiths: I would agree that the best way that Gillian Allcroft: I agree. we have found to get things to happen is to put the Charlie Taylor: I agree, too. money into the school and the school then buys from Chair: Excellent. wherever it can obtain the service. Q163 Ian Mearns: We have strayed into parents, Q160 Chair: Because there is this general tension which is the area that I wanted to come in on. As a between a sense of central direction and prescription school governor and an elected member of the council which should guarantee, in a way, the service delivery dealing with education for a number of years, I have and if you go to greater autonomy you might be often come across parents who are difficult to undermining that. categorise. I very rarely come across a parent who Charlie Taylor: If the money is not ring-fenced, then literally doesn’t care about their child. They quite it may get spent on something else—that is the often lack understanding about how to modify or difficulty. If you ring-fence the money you can moderate a child’s behaviour, but I very rarely come provide the service, but then you get all these little across parents who don’t care. Having said that, even pockets of money that head teachers are trying to when parents might care, they are quite often still the juggle around with, so it is always difficult. heads of unstructured and chaotic households. For Mike Griffiths: I think it is a mistake that politicians some youngsters, sadly, the most negative influence make to think that prescription guarantees that on their lives will be their own parents. That is a sad something will happen. I don’t think it does. fact of life. Having said that, when we come across youngsters from chaotic homes, it is very difficult to Q161 Pat Glass: May I ask one more question? My intervene. We have received written evidence from an feeling and experience around this is that there is too educational psychologist, Dr Sue Roffey, who says little provision, it is too variable and it is in the wrong that “parents often feel blamed, helpless and place. There is a structural issue—CAMHS sitting in marginalised in their interactions with schools over clinics and not in schools and not in homes. issues of school behaviour”, and that “parents are Charlie Taylor: They need to be in schools, because often at a loss themselves to manage behaviour well”. schools have a really good record of getting parents However, where things are going badly awry, the cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Ev 44 Education Committee: Evidence
27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor evidence that we have received states: “By August on my door for the first three months when I got there, 2008, no parenting order for behaviour had yet been because I’d forgotten that I was the head teacher. issued, and Committee staff are not aware that the Parents still have all those feelings, so they walk in position has changed since.” So these powers are already bristling and ready for a fight. The more available to local authorities working in partnership schools can do to bring parents in and make them feel with schools, but they don’t seem to be being used more engaged and more a part of the fabric of the when parents are presented with youngsters whose school, the better. Many schools do that brilliantly, behaviour at school is chaotic. How can we better and those schools that do don’t tend to have constant develop understanding between schools and parents issues with parents—complaints and arguments. They on issues of behaviour? Should different approaches are working together and understanding that the be employed in the different sectors between primary school is on their side. and secondary, or even special schools? Russell Hobby: I think home-school agreements can Gillian Allcroft: There clearly is a difference between work as well, but only if they are a living policy and primary and secondary. As a primary school, you are document, not just a piece of paper that is like a far more likely to see your parents at the school gate mission statement. There are more constructive and you are far more likely to know them as alternatives. If, as a school, you are trying to apply a individuals on a regular basis. It is therefore easy to consistent policy—which is, after all, what children build up a relationship and have those quiet words really need—the fact is that that consistency ends at and conversations that are more difficult to have at the school gates and they can then go out into a very secondary. I think that all schools, in terms of inconsistent world where their behaviour is treated in behaviour, accept that you can’t deal with poor different ways. The home-school agreement is a way behaviour unless you involve the parents. They have of trying to spread that consistency further and trying a variety of strategies to deal with them, but what to invite and engage parents into having a consistent works in one school with one set of parents will not approach to managing behaviour, too. necessarily work in another school. You have to look Mike Griffiths: The most effective schools are the at the individual context of the school. Going back to ones that try and build on that relationship by having what I said in that earlier question, where people have a good relationship between the parents and somebody had parental support advisers, they have proved a very at the school, whether that is the form tutor, a mentor valuable role, particularly for those parents who have or whoever. We try hard with some youngsters, who had a negative school experience and who don’t want have been a problem, to report back on a weekly basis. to come in and talk to the teachers, however much the We try to report positive things, because sometimes, teachers would like them to. Having that person, who as has been mentioned, the parents themselves have is not actually a teacher, can be really useful. had negative experiences of school, and they only see Mike Griffiths: I am not surprised that there aren’t it as an almost punitive environment. Getting positive that many parenting orders, because in one sense it is messages back to the parents can be very useful in an admission that everything has gone wrong. My terms of improving that youngster’s behaviour. view is that if you end up with a parenting order, you have lost anyway. As a school, you can only work co- Q165 Damian Hinds: I want to talk about leadership operatively with the parents. If the youngster comes and managing behaviour overall. We have talked from a dysfunctional family, you need to find already about the role of heads. We are short on time whatever help, support and advice you can give, I know, but, Gillian, what is the role of governors in because it is a co-operative venture to get that this? Can governors really be sufficiently in touch youngster into secondary schools. with classroom reality? Gillian Allcroft: Yes, I think they can, provided that Q164 Chair: Do you think that home-school they know their school. The best governing bodies agreements are a good thing? will absolutely know what is going on in their school. Mike Griffiths: I don’t think they are worth the paper The chair will have a good relationship with the head. they are written on, to be honest. I don’t think that Governors will go into school on properly focused anybody has ever used them productively. visits to find out what is going on. The role of the Charlie Taylor: I think they can be used governors is to set a statement of behaviour principles, constructively as a starting point for putting down and it is then the head’s responsibility to set the some benchmarks. The way that they are used is then behaviour policy, which sets out rules, rewards and broadened, and it is a way of engaging parents and sanctions. Those principles are set in conjunction with discussing what your expectations are, particularly the head, because the head is usually a governor when you first meet them when they first come to the anyway. The governors set the ethos and the school. I do think that the more schools can do to meet principles, and that should be done in a context of those more challenging parents and to make them feel “Where is our school? What is our school like? And that the school is on their side, the better. Because what should be the right principles for our school?” let’s face it: these are often parents whose own education has been incredibly disrupted. They get a Q166 Damian Hinds: Can you give me an example horrible feeling as they walk through the door into of such a principle, which would not be a universal school; they feel terrified. When they get to the head principle, but would be different school by school? teacher’s door, it brings back that terrible feeling—I Gillian Allcroft: It is possible that some schools still get it in my own school, and I’m the head operate a no-exclusion policy, so it is possible that one teacher—where the years fall back. I used to knock of the principles that governors could lay down is that cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor in their school they would like to adopt a no- Mike Griffiths: On your question about governance, exclusion policy. one of the things I am looking for is intelligent targets. During my first headship, in Oxfordshire, the chair of Q167 Damian Hinds: That doesn’t sound like a the governors wanted to set me a target of reducing behaviour principle; that sounds like a what-you-do- exclusions. Fortunately, I had a very wise vice-chair about-behaviour principle. of governors who said, “Well, Chair, what we actually Gillian Allcroft: It depends how you look at it, want is for the standard of behaviour in the school to doesn’t it? It is saying, “We will promote good improve. It may be that in order to achieve that, Mike behaviour and one of the things that we will try and has to increase the number of exclusions over a short ensure is that no child from our school is excluded.” period.” I think that shows the importance of not That would definitely be something that most schools being driven by a set of targets, which might look will not have. Clearly that would have to be done in as though they will do one thing. What was actually conjunction with the head. important in that school was that the standards of behaviour improved, not that exclusions went down, Q168 Damian Hinds: Can I press you on the point up, or stayed the same. In terms of leadership, where about behaviour principles? I understand the point governors and heads need to work together is on about having principles, but you said that governors creating the ethos in a school—what the school means would set them. What sorts of principles will they be and what it stands by. Certainly in my school, one of setting that would not be universal, in terms of the key things is that word “respect”. We say that behaviour standards, to all schools? respect should be given to all, by all, whether that is Gillian Allcroft: To be honest, if they would not be students to students, students to teachers or teachers universal it is because the principles tend to be around to students and indeed to other staff. It is just as respect and not allowing bullying behaviour and that important that it goes both ways. The key thing with sort of thing. You would expect that most of the all these policies is that you have to live them. You principles, although they will not be exactly the same, can have whatever you like in a drawer, as a mission would generally speaking work across most schools. statement and as a policy, but you have to be able to walk into a school and get an immediate feeling—you Q169 Damian Hinds: Thank you. What do you look should be able to tell straight away what the school is for from your boards of governors in terms of like. That is something I would like to see a lot more leadership in this area? of in terms of Ofsted, which we have not mentioned. Russell Hobby: In terms of variation of principles and Ofsted should be using professional judgment on how that relates to governors, it is probably more some of these things, rather than tick lists and about what you do or do not need to make explicit checklists and numbers and so on. I want people who in a policy. You can take less for granted in some are well trained, can recognise things and have the environments, so you may have increasing detail in professional judgment to say, “This is a good school. the behaviour policy or you may need to be This is a school where behaviour is excellent,” rather reinforcing behaviour. I have been around some of the than their having a whole series of things that they’ve charter schools in New York, for example, where counted up and which mean, therefore, that the school pupils have to look the teacher in the eye when they is excellent. are talking to them. In other schools you do not need to make those sorts of comments, so it is more about stepping in at that level. There probably is some Q171 Damian Hinds: I want to skip to one last variation, for example, in the level of talkback that question, which is about language. I am only 40, but you would allow and recommend in different types of I sometimes feel that it’s been 120 years since I was schools depending on the culture and the philosophy at school. In these sessions, and we’ve already had a that existed. There is that air of getting together and number on behaviour and discipline, we hear a lot deciding how we need to make it work, but nine tenths of talk about appropriate behaviour and inappropriate of it will be in the implementation of the policy and behaviour, acceptable and unacceptable behaviour, the way the governors support the head teacher in both disruptive behaviour, but not bad behaviour. I wonder challenging them to make sure they are consistent and what your views are on that. Is there too much policy, backing them up when they have made the right too much relativism and too much categorising of choices. different behaviours, and not enough talk about what is right and what is wrong? Q170 Damian Hinds: Do you think governors are Russell Hobby: It sometimes helps, though, when you well placed to establish those? I understand what you don’t say that a child is bad or good, but that their are saying about the degree of specificity on different behaviour is bad or good. That’s some of what we’re rules. Are governors best placed to make those trying to do, because if you keep telling someone that judgments? they’re bad— Russell Hobby: In a large number of cases they will accept the advice of the head teacher, and they will be Q172 Damian Hinds: No, not even to describe backing up and reinforcing that. They are also part of behaviour. I think that I’m right in saying that in these the community that the school has served, and they sessions we haven’t heard the words bad and good or should be in a position to express how that feels from right and wrong being used, even in relation to the point of view of the parents and other members of behaviour. It has always been appropriate and the community and whether it is set in the right way. inappropriate, or acceptable and unacceptable. I’m not cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Ev 46 Education Committee: Evidence
27 October 2010 Gillian Allcroft, Mike Griffiths, Russell Hobby and Charlie Taylor saying that you’ve said that, but that’s what’s been Charlie Taylor: The difficulty is that, if a school said in general. hasn’t got its programme right, it doesn’t matter how Russell Hobby: I think maybe that’s us trying to well trained the teacher coming in is. If the separate behaviour from the individual, so that people overarching behaviour isn’t being managed properly, feel that the behaviour can change. There is also a one teacher at the bottom of the tree doesn’t have a fair amount of political correctness in the way that we hope. describe things, so fair enough. Mike Griffiths: I was also going to make a point about Mike Griffiths: I agree with the thrust of your school-centred initial teacher training. In my school, argument. Children need to know what is right and for instance, we have about 18 trainees a year, but what is wrong. It is as simple as that. We try to ensure they don’t all work in my school. We organise the that children do recognise that some behaviour is teaching, the training and this, that and the other, but simply inappropriate—[Laughter]—or wrong in a some of them work in our partner schools. Some of civilised society. We’ve always had such arguments, them will have their two teaching practices in other whether it is the mods and rockers on Brighton beach, schools and not have either of them in my school. It’s or the punk rockers, things have always been more about whether a school can effectively organise happening with adolescent youngsters. We stick with the training, rather than the provision. Such training the respect notion—if your behaviour is showing can also help to address particular geographical needs, disrespect to somebody, that is wrong. In fact, that is because, certainly where I am, there is no HE one of the things that the chair of governors at my institution that offers degrees and PGCEs for future school says when she stands up at the prospective secondary school teachers. Our SCITT is useful to parents’ evening. “Children need to know the more mature entrants to the profession, because they difference between what’s right and what’s wrong.” don’t have to travel long distances for PGCE provision at a university. Q173 Nic Dakin: There’s a leaked report suggesting Russell Hobby: Just to redress the balance towards the that the Government are going to cut ITT in higher academic end of things, there are some topics around education by 85% and transfer those responsibilities behaviour that are best addressed in an academic or to schools. Earlier today you talked about how schools higher education environment, particularly when you are the best place to train management of behaviour are phasing into some of the more complex needs— issues and other things, but are schools ready for that health, mental health and special educational needs. responsibility? Do they have the capacity, and do you Getting a whole view of child development and how think that that’s a positive direction for them? children grow and learn may not be the right thing to Mike Griffiths: I believe so. I also worked earlier in take place within a school environment. Nor, to go my career in initial teacher training at a higher back to another point, would every school welcome education establishment—Sheffield City Polytechnic, the requirement to train teachers. What we are as it then was. I think that schools are the best places. probably talking about is a balance of a school-led The only problem is that a huge level of provision with suitable academic input. bureaucracy—a level that most schools can only dream of—affects initial teacher training. That is Q175 Craig Whittaker: But haven’t we already something that needs to be addressed, but, if that can established that the training around things like be resolved, schools are very good places for initial CAMHS, for example, is minimal anyway? teacher training. I am not saying that they should be Russell Hobby: Yes. I’m not necessarily saying it’s the only place, but I think that they do provide an happening right at the moment, but it strikes me that excellent route for many people to go into teaching. there are some topics that you don’t learn on the job. Charlie Taylor: We use the graduate teacher You learn them off the job, and they include some programme a lot, whereby we’ve got teaching of these mental health issues. Whether they could be assistants to transform into teachers further down the improved and done differently is another matter. road. I would say that, most of the time, schools can Chair: Whether we could inject the academic into the do that work. If they do need support, schools such as school environment rather than regarding them as mine offer support in training on behaviour to other entirely separate, perhaps. Thank you all very much schools in the authority. for your evidence. It was very helpful, and thank you for coming in. Q174 Ian Mearns: If a school hasn’t got its behaviour programmes right, is it the right place to teach new teachers? Isn’t that a problem? cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Education Committee: Evidence Ev 47
27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan
Examination of Witnesses
Witnesses: Virginia Beardshaw, Chief Executive, I CAN, John Dickinson-Lilley, Vice-Chair, Special Educational Consortium, Paula Lavis, Policy and Knowledge Manager, YoungMinds, and Jane Vaughan, Director of Education, National Autistic Society, gave evidence.
Q176 Chair: Excellent. I am so glad that I didn’t life, and they are more likely to enter custody. There have to send the Serjeant at Arms to go and fetch you, is a broad consensus that exclusion from school forcibly compelling you to appear. [Laughter.] Thank results in dramatically poorer outcomes for children you all very much for joining this session of the and has a significant long-term cost for society. We Education Committee and our inquiry into behaviour know that disabled children and children with SEN and discipline. You bring specialist expertise. Will you continue to be eight times more likely to be start off by giving us an opening view about your permanently excluded from school than the rest of the thoughts on this misbehaviour and discipline inquiry, school population. In fact, 24 children in every 10,000 as briefly as you can? I will start with you, John, if excluded have SEN compared with two in every I may. 10,000 excluded without SEN. We have argued for John Dickinson-Lilley: Good morning. My name is many years that when a disabled child or a child with John Dickinson-Lilley and I am vice-chair of the SEN is at risk of exclusion, a review of that child’s Special Educational Consortium. First, I just want to SEN should be undertaken before they are referred take this opportunity to thank you for inviting me to off-site. The review should look at whether reasonable give evidence today. I really appreciate the adjustments are required for the disabled child or a opportunity to do that. The SEC is made up of 22 child with SEN that, if they are made, could avoid the voluntary sector and professional organisations. We need to remove the pupil from the school in the first provide a discussion and debate about special instance. We know that exclusion is only likely to educational needs and disability issues. We define our compound the considerable barriers that disabled policies by identifying areas of consensus, and I will children and children with SEN face in achieving their be talking about those areas of consensus today. There full potential. are three particular issues that I would like to pick up on: the first is the link between behaviour and the Q177 Chair: Thank you very much, John. Virginia, ability of disabled children and children with SEN to what are your opening remarks? Could you be as brief access their learning; the second is the importance of as you can, please, because we have limited time? making reasonable adjustments to behaviour policies, Virginia Beardshaw: I am Virginia Beardhaw, chief and the third is exclusions. In terms of the first issue, I think that the Steer review built on a lot of previous executive of I CAN, the children’s communication evidence about behaviour in schools. SEC supports charity. Our mission is to support all children’s speech the conclusion of his report that for all children and language development, and our special focus is behaviour in school is intrinsically linked with good on children who find speech and language difficult. I teaching and the ability of a child to access their CAN is a member of the Special Educational learning. It is common sense that a child who is Consortium, of which John is the vice-chair. I thank engaged with their education and making good the Committee for inviting me to give evidence today. progress is less likely to be disruptive or challenging I will start by giving some killer facts. There is a clear in class. That means that where a child is disruptive, and proven link in research between a child’s speech, schools should not look at behaviour in isolation and language and communication needs and their take the disciplinary route, but should look to identify behaviour. Children with speech, language and the underlying causes of that behaviour. Furthermore, communication needs, SLCN, are at a higher risk of where a child has a disability or SEN, it means developing poor behaviour and therefore are much looking at the support that they are receiving and more likely than average to be excluded from school. determining whether that support is the right type of Two thirds of seven to 14-year-olds with behavioural support. We know that there is a lot of confusion in problems actually have SLCN, so it is a very high some quarters about the crossover between children incidence. Undetected speech and language with SEN and disability. We think that schools difficulties will often manifest themselves as poor perhaps need to appreciate slightly more the behaviour, both at school and within the home. It is difference between SEN as a legal concept and just common sense: members of the Committee will disability as a legal concept. The confusion means that understand that if you are not understanding schools are not always clear about when they should something very well, and if you cannot express provide a reasonable adjustment and when they should yourself very well, school may be a frightening, make provision for a SEN. The legal protections humiliating and absolutely confusing place to be. afforded disabled children, specifically in schools, are Those of us who know this do not find it in any way about reasonable adjustments and actually those surprising that children and young people with SLCN reasonable adjustments are sometimes critical to act up or opt out. They are highly over-represented in ensuring that disabled children can engage in a both the excluded and truanting populations, but from learning environment. In terms of exclusions, we their point of view it is entirely logical. know that children who have been permanently excluded are less likely to achieve five good GCSE Q178 Chair: That is a very powerful statement, results, they are less likely to be employed in later Virginia. Paula? cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Ev 48 Education Committee: Evidence
27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan
Paula Lavis: My name is Paula Lavis and I am from adequate—I saw heads shaking—what needs to be the children’s mental health charity YoungMinds. Our done to make it adequate? particular interest is in the links between behaviour Virginia Beardshaw: We have advocated for a long and mental health problems. As you probably know, while, as have others, tools to help staff to identify one in 10 children have a mental health problem, and and assess SLCN in both special and mainstream many children with a mental health problem are settings in order to help to identify areas for excluded from school for bad behaviour. I was really development. We would also like to see a step change interested in your conversations in the previous in the initial teacher training and continuous session about CAMHS and early intervention. professional development processes for teaching staff to help them to link poor behaviour and speech and Q179 Chair: Jane? language difficulties—and other special educational Jane Vaughan: I am the director of education for the needs for that matter—to address the cause rather than National Autistic Society. I have three key areas that the effect. More specifically still, we are advocating I feel run on quite well from the previous discussion. the introduction of a screening tool for children at two First, the behaviour of children with autism is linked and a half, linked to the healthy child programme, and to teaching and learning, and to appropriate support then subsequently at five, prior to the proposed for teachers and learning. Anxiety and stress have a reading test, to pick up children’s communication great deal of impact on how you see a child with difficulties early and to introduce a personal plan for autism behaving in the classroom. We are talking the child. That would have general benefits across throughout this session about behaviour, and I think special educational needs, because communication that sometimes we need to think about the individual difficulties are a part of so many different special child and, rather than how we manage the behaviour, educational needs and disabilities—autism is a notable what we have to do to return the child to learning. one, and 60% of children with cerebral palsy and a What should we put in to return the child to learning, very high proportion of all deaf and hard of hearing not necessarily just manage the behaviour? What children, for example, are affected. should we be doing to return to learning? Secondly, John Dickinson-Lilley: The Institute of Education training: Pat’s discussion about training in secondary and its teacher development agency have developed schools was very interesting. I liked that bit. I feel new modules which specifically look at SEN and very, very strongly that it is not just the teachers and disability. New teachers and initial teacher training special educational needs co-ordinators that need should be getting more input around those specific training; we have to get to the head teachers and the areas. There is also the inclusion development governors, because they influence the whole school. programme which is basically bringing teachers up to the same level through CPD. Overall we are probably That is very important to us. It’s not just the teaching starting to move in the right direction at a very, very assistants, supervisors and teachers. Let’s get those simplistic level, but we are not even going to start to head teachers and governors involved. We need to see the impact yet. I would like to pick up on one of improve our assessment to identify additional needs the points that Nic made, which is about support staff. and special educational need, especially before One of the problems we can see is that TAs are being exclusion. If you are going to exclude a child, you used at the moment just specifically to manage should look at whether there is a special educational behaviour, rather than to support attainment. It is clear need. Is there autism there? Could we do something that the more support assistant time a child has, the differently? Could we put something in now, before further back they are in attainment. A good example the exclusion? Also, we talked about alternative of that would be in a classroom environment and, say, provision: there again, assess the child before filling in a classroom survey. Quite often a TA would alternative provision. Let’s have a look at what their do that for a child, so the child is not being integrated need is. Is there something that we have not picked into the learning that’s going on with the rest of the up, especially around autism? We use lots of class. Making sure that TAs have the right kind of assessment for learning in the classroom. It is a superb support to support a teacher and the child in getting tool for teachers. They don’t need a different tool for children to learning points is significant. children with autism, but they need to know about and appreciate autism so that they can use exactly the Q181 Pat Glass: We know that the National same tool in perhaps a slightly different way. So the Association of Head Teachers and many others, even areas are training, assessment and returning to I in my time, have said that far too many children learning through appropriate support. with special needs are attending pupil referral units Chair: Thank you very much. simply because there isn’t the appropriate provision in local authorities. As a Committee we went last week Q180 Nic Dakin: I shall pick up on the training to visit New Woodlands School in Lewisham where theme. Thank you for coming today. You mentioned they have powers—what is it? in those opening remarks several areas—for example, Chair: Innovation powers. speech and language, mental health, autism and other Pat Glass: They have powers to innovate to allow the issues. Do you think that the training that is currently school to run the pupil referral unit and for children in schools for the staff—head teachers, support staff, without statements to attend. It was clearly an teaching staff—is adequate to allow identification of outstanding school, which was meeting the needs of those different needs, and to know the appropriate all the children there. Do you think that there needs interventions to get the best out of pupils? If it is not to be separate provision for children with SEN? Is it cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Education Committee: Evidence Ev 49
27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan about the culture and ethos within the provision or affects children differently, as do speech and language does there need to be separate provision? If there is a difficulties. With person-centred planning, we should need for separating provision for children with be able to support those youngsters in mainstream challenging behaviour with SEN from children who schools, if that is suitable for them. There needs to be have disaffected, delinquent, conduct-disordered a range of provision. Some children can be supported behaviour, within the SEN bits do we need to have well in mainstream schools. If we can get them separate provision for autism, language and all the assessed well and meet their needs, if there is good separate areas around the disabilities? teaching and learning, and if the support services are Virginia Beardshaw: At I CAN, because speech, there, are accessible and are coming into schools to language and communication needs are of very high support teachers, then we can do it. However, there prevalence—SLCN is the largest category of reasons are some children who do need specialist provision. It for statementing in primary school and applies to is the same as going into PRUs; for some children more than a quarter of all statemented children—we with autism, that is not the right place for them, in advocate the classic, public-health-based, waves which case specialist provision is preferable and will model. The critical thing—John mentioned this too— give them the best opportunities in life. Going to a is that mainstream settings need to have very good PRU could well destroy their future. However, there teaching and learning for all children. Quality first are some PRUs that are good at assessing need, and I teaching and learning, when it works, is a good way know some very good PRUs where children with of addressing the needs of many, many children with autism are assessed as soon as they come in and put speech, language and communication needs. For in the right structures, and you see them fly. others with greater needs, a targeted approach will be required. What is really needed is for the whole school Q184 Pat Glass: Given that unfortunately, whichever work force to have the skills to be able to bring special way we look at it, there are an awful lot of children resources to bear to support the child well and make who have very serious speech and language reasonable adjustments. Then there is a group of difficulties, whether or not they have a statement or children who might need specialist help. That can have been diagnosed, and are perhaps on the often be done in mainstream settings, but sometimes semantic-pragmatic spectrum of autism, what one it is best for the individual child if that is done outside. thing could we do to improve alternative provision, For example, I CAN run specialist special schools for such as short-stay schools or PRUs? Do you want to children with severe and complex speech, language answer that, John? If you had a wish list, what is the and communication needs, many of whom have failed one thing you would do? I know what I would do. in mainstream schools. Sadly, poor behaviour will be John Dickinson-Lilley: To be honest, this is where a significant component of that failure. I do not SEC is quite an interesting organisation; because believe that there is a right or wrong approach, but it we’re a consensus organisation, I could give you 22 needs to be based on the needs of the child. different answers to that question. I am inclined to write to you after speaking to our members, because Q182 Chair: When you have provision for children they would all want the opportunity to put their little who have been excluded from school, which has to be No. 1 in, if that’s possible. provided structurally, should that be provided collectively so that the children with serious Q185 Pat Glass: Paula? behavioural issues that are not related to SEN—bad Paula Lavis: I would say that, obviously, looking at behaviour—are put together with children with SEN? it from the mental health perspective, what I hear from Is that the right way, or should we be trying to have colleagues who work in PRUs is that better links with separate channels of provision? CAMHS for particular young people are important. I Virginia Beardshaw: No; I think wherever possible gather, and this is similar to conversations that we had the needs should be met in the mainstream school. earlier, that there is a lot of stigma around mental Moving children out should be the exception. health problems. I gather from children and parents in PRUs that a lot of people would like CAMHS to come Q183 Pat Glass: Do you think it would be helpful if into PRUs to work with them, rather then expecting the Committee made a recommendation that no child children to go to the service, but I guess there would with a statement of SEN should attend a PRU? be some who wouldn’t want that, so it’s about being Jane Vaughan: No; I do not think that that would be more flexible in how you work with others or how helpful at all. I think that for some children with they work with other services. autism, going into a PRU can be very challenging, very stressful and, for some of them, the worst thing Q186 Pat Glass: So better, more flexible CAMHS? that possibly could happen. They will find that their Paula Lavis: Yes. needs are not being met at all, and that goes back Jane Vaughan: For me, it would be about training to the point we made earlier: before deciding on the and autism awareness, and exactly as you’ve been provision that the child will be placed in, you have to saying. Looking at training, there should be a tiered ensure that you know what that child’s need is. As approach, so you should have a certain level of Virginia said, we all accept that children with SEN are training if you are a TA, a certain level if you are a individual. Children with autism are individual, as it teacher, and there should be a level of training if you affects everyone in a different way. There is a core are a head teacher or governor—you can tell it’s my diagnostic issue for autism, the triad of impairments thing. If you are working in a PRU, there should be a and difficulties, but every child is different. Autism level of training in awareness of autism and other cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Ev 50 Education Committee: Evidence
27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan special educational needs so that you can put in the child with autism, that issue might be something that individual package to get that child accessing presents. learning, whether that is outreach in their homes to Paula Lavis: I guess, from a child development and support them or whether it is coming into the PRU. mental health perspective, these building blocks of Virginia Beardshaw: I don’t know whether this is the education are important to get into place early on so one right answer, but for me, given the high you have a better sense of self-esteem, and so you prevalence of speech, language and communication don’t start off your education or early life thinking needs, I would say that all children should be screened that you’re an educational failure. You are building for SLCN, ideally before they’re excluded; then those resilience so you are much better able to cope with needs can be met in the PRU. It is such a pan-SEN difficulties of life, which would hopefully reflect in and pan-disability issue. your behaviour. Paula Lavis: May I just add something about training in mental health? In school or a PRU, if teachers or Q188 Nic Dakin: Can you give an example of how school staff have some ability to identify mental inappropriate teaching and learning can impact on a health problems and possibly improve the referrals— pupil with special educational needs? so they only refer people to CAMHS who need to be Jane Vaughan: I will give you one anecdote of referred—you might not get the bottleneck that you something that happened to me. I gave a child a get at the moment in CAMHS. worksheet and on it, you had to put a cat beside the table and a lamp on the table. This was many years Q187 Nic Dakin: One of the things that’s come ago. It said, “Draw a line under the table” and, when through in what we’ve heard in other witness sessions I turned around, the little boy had actually gone under is reading, which, I suppose, is one of the the table. When I dug deeper, it was not bad representations of language at its core. As young behaviour—you could have seen that as him just people who can’t read are more likely to have messing about. It was before I was very behavioural issues, notwithstanding the other knowledgeable about autism and I thought, “What is situations that they might be in, do you think that it is going on here?” and I realised he had read that totally a key issue? We heard from Charlie earlier about a literally. That could be interpreted as a behaviour clear strategy for addressing that in his area. Is it issue, because he did a lot of things like that, but important or is it a distraction? really, it was literal understanding. John Dickinson-Lilley: In my day job, working for RNIB, we know that only 100 titles are available in an Q189 Chair: Does anyone else want to come in on accessible format to visually impaired kids in schools. that? Quality of teaching for children with SEN, as With only 100 textbooks on the curriculum available for other children, is the single most important thing to visually impaired children, it goes without saying in terms of shaping behaviour in the classroom. that those children will not perform as well. In a sense, Jane Vaughan: Could you repeat that, Graham? it is connected to reading, but more widely it Chair: We are very keen to explore the quality of illuminates the need for training of staff who can teaching because it is so important—that’s what Alan identify needs. The same theory might apply, for Steer said, and that’s what you have said to us. As example, to a child with a hearing impairment, where Alan Steer put it, “You’d always ask in these matters, how they are taught, in terms of acoustics, is more ‘What does it look like?’” That’s what we are trying important. Therefore, it is also about linking into the to find out. What does good teaching for children with comments I made earlier about reasonable SEN look like and what does bad teaching look like? adjustments, lesson planning and the tools you use as What does it look like to disadvantage a child with a teacher, but using different tools in different ways SEN in the classroom, because if we can’t understand to ensure that everyone is achieving the right what it looks like, it’s hard. learning points. Virginia Beardshaw: I think the reading is an Q190 Nic Dakin: I suppose the other thing is, are important one, but both literacy and numeracy rest on we making improvements? You are working in this a language base. The single most accurate predictor arena—do you feel we are moving in the right or of a child’s attainment at age five is their vocabulary wrong direction? and their ability to use language. Therefore, there is Jane Vaughan: I think in the last five or 10 years, we an inextricable sequence of language skills knocking have moved on hugely—I am especially talking about into and forming literacy and numeracy skills, and, autism. You see huge improvements in primary therefore, having a huge impact on attainment and a schools. Five years ago, some primary schools had child’s ability to thrive in school. never heard of autism but that rarely happens now. Jane Vaughan: With autism, we sometimes have a You go in and they have heard of it. I am not saying different angle to cope with, in that a lot of children that they are all doing wonderful things, but it is very with autism are very good readers and will read quite rare now to go into a primary school where they are fluently. Where the teacher then has to be skilled is to not doing something or they are not aware of it. dig deeper and be able to assess the comprehension, Secondary schools are another, completely different because they often have over-expectations. That issue. young person may have learnt and be reading by rote Paula Lavis: May I say something about projects such and their comprehensive language may be very low the targeted mental health in schools programme? I indeed. So, there is a different issue there again, but think that has made huge differences in some areas, teachers need to be trained to understand that for a possibly to those who were in the first pathfinder. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
Education Committee: Evidence Ev 51
27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan
They have been going for nearly three years now. in her classroom. All we did was to try to work out, Those huge differences are not just in terms of the by talking to him, how we could get over that. We cut school, but how the school sits within the system of a circle out of black paper and whenever that class services that supports children and young people— was coming in, the teacher put that circle under a chair obviously, I’m thinking about children and young so that when the boy got to the door he could look for people with mental health problems. YoungMinds has the circle and make straight for the chair. That took been involved in some of the training for some of that problem out completely. The issue is about the TaMHS projects, to train teachers in basic things making adjustments, and knowing your children and connected to mental health, so they can be reflective what to look for, especially when children with autism on their practice and think how they can best help are in mainstream education. If you don’t know young people. autism, you don’t know that they may have sensory needs. You may not know that they are anxious about Q191 Nic Dakin: So, you feel that awareness is walking into bright lights, or that they have difficulties raised on those issues with staff in schools and that anticipating when lessons will end. There are so many the interventions for those sort of students are better things that if you know about them, you realise that than they were 10 years ago, so the outcomes should something that you think is behavioural could just be be better? their autistic need. Paula Lavis: For some schools. I’m sure that some Virginia Beardshaw: I agree with that personalised schools are still struggling. approach that Jane is advocating. One very practical John Dickinson-Lilley: I kind of build in the point I suggestion for the Committee to consider is building made earlier. My specialism is in visual impairment. on the general continuous professional development If you think about how you are taught in a classroom, in the inclusion development programme with which there is a huge dependency on the written word and I CAN was a collaborator. We wrote the speech, on being able to interact with a blackboard. For language and communication needs bit of it. I think example, I can’t really see any of you particularly the inclusion development programme was a good clearly, so for me to read on a blackboard would be start, but there needs to be renewal, and building on tremendously difficult. This leads back to the point that. It is only if you have that basic level of about training, and why we are all so keen on really understanding in the whole school population that you high quality training of teachers and teaching will be able to build the personalised approaches that assistants. If you aren’t able to physically think about Jane has told us about so eloquently. how to make an on-the-hoof adjustment in the Jane Vaughan: The inclusion development classroom—something very simple that includes programme has one for autism as well. Last year, children—you start to build the potential for a every school got that. When I go to meetings or do behaviour problem right there. We need to see the training, I say, “Hands up who’s seen the IDP in their impact of improved teacher training, and then work school.” Perhaps 50% or 25% do so, and I am thrilled. out whether what teachers are being taught now in Again, what is happening to that training? I know that terms of their initial teacher training and what existing I am being repetitive, but I am making my point. Head staff are already doing in terms of classroom practice teachers should be saying, “I want all my staff trained is the right approach, or whether they need more in this.” upskilling. Q193 Pat Glass: May I ask something quickly? I Q192 Chair: What would it look like? We heard think the IDP was absolutely superb, and I think it got from Alan Steer that primary schools are rather better better as it moved on. At the beginning there were at classroom management and planning where issues, but as it moved on it was superb. It is about children sit. Secondary schools tend to do that less every teacher. It is not targeted at specialist teachers; well. Is it about where you position children, or are it is targeted at every teacher. What can we do that we talking about teachers changing how they present would help that to move on? the curriculum, or the curriculum itself, to better suit Virginia Beardshaw: I think you should recommend the children? What does it look like? When we have a refresher, if I may be so bold. We learned as we done the training, what will the teachers do that they went along, so that learning should be applied to move were not doing before? it up a level. I think we fell down a bit in the Jane Vaughan: I think again that it is looking at the dissemination plan and programme for it, so I individual, and knowing what to look for and how recommend that the Committee looks at that. their SEN may impact on their learning. I can give a simple example. A teacher in a mainstream secondary Q194 Pat Glass: So what about saying that Ofsted school was having a lot of difficulty in getting a young will look at it? child with autism even to come into the classroom. Jane Vaughan: I was thrilled that Ofsted now has to We went to look at it, and after just a little digging look at SEN, because local authorities do not really we discovered that the child found it very hard to have much power in schools. Again, it is back to the come into the classroom past two particular boys who head teacher and governors. It would have been great were themselves quite challenging. There was to see some accountability, which is why I talk about obviously a slight issue between him and them. He this tiered approach. Norfolk, for instance, has also found it difficult because of his sensory needs to developed in its schools a tier of training so that if look at the whole classroom and know where to sit. you are a TA you have so many modules, or if you His anxiety levels went straight up as soon as he was are a head teacher so many modules. 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27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan expected in their schools to have so much training in Q197 Craig Whittaker: So how do we model that SEN. If we had linked the IDP with that, with some provision, to give that provision where needed? That sort of sign-off that you had actually completed is the key question, really. looking at it on your PC, that would have had much Paula Lavis: I suppose we have to see the whole more impact if there was some accountability person, not just split-off bits. Our mental health is somewhere. integral to our physical health as well, so you can’t just split them all off. Q195 Craig Whittaker: As a trainer in my other job, before I came to this place, I know that you have to Q198 Chair: We are talking about the structure of be very careful that meeting training needs is not just that provision. What does good provision look like? a tick-box exercise, which quite often happens. I think How is it modelled? Who does what? Who has what that we have established that training need with responsibility? Who has the lead? Where should the teachers is key. We have also learned over the last few budget go? weeks that assessors probably over-assess, and Paula Lavis: Maybe it should be a pooled budget. because of the training needs quite badly sometimes. That has always been a bit of an issue, with different The key for me is provision. I want particularly to talk agencies contributing to the main pot. It does not take about CAMHS, because Paula has already said that a lot before a bit of that money is pulled off. Often one in 10 young people have mental disorders in you get lots of project money, so you might get a little school. Going back to the head teachers as well, Sir pot of money for the short term, which is then taken Alan Steer’s report clearly says that head teachers away because it has not been mainstreamed. It would complain very strongly about accessing CAMHS. probably be helpful to have a centralised fund within CAMHS is not just about one thing; it is about a range a local area. of services that do not always come from a primary Jane Vaughan: Again, going back to CAMHS, we care trust, but from a whole range of providers. How assume people have been trained in autism, but lots would you model a provision that was actually going of the CAMHS teams have not. We go back once to provide for all children who need a CAMHS again to having that training. specialist, from low-level support to more complex John Dickinson-Lilley: I think that, as people have support? already pointed out, it is really difficult to disentangle Paula Lavis: I guess it is also, as you say, thinking mental health disability and behavioural difficulties. about what CAMHS actually is. It is not just about There is a real issue in schools about who is specialist NHS services, which I think often people responsible for a child’s mental health; we need a bit think of it as being. It goes back to what I was saying more clarity about that. One of the key challenges for earlier about the idea of this being a whole-system schools now, certainly with the changes to the approach to mental health. You do not just have the structure of the system, is how to develop those schools, but you have the NHS, and they all work partnerships. Not only are the quality and types of services available variable—within counties together in partnership to produce a strategy for how sometimes—but the relationships may need to be built they can commission and deliver these services with the local mental health trust, the NHS and social together at their local level. That also needs to be services to create a bigger picture. There are all kinds based on the local need, which I think is quite of reasons for mental health issues that may be related important, because there is obviously no point in to disability or to something else. I think that a putting in place services that you do not need in your fundamental role for schools would be to build those service. The other important thing is listening to partnerships in the first instance, which then links to young people, because they have a lot to tell us, and making sure that children are being assessed at school. we can learn a lot if we listen to them about what sort That assessment is critical, because we know that of service they would find acceptable. children with an SEN or disability are more likely to Jane Vaughan: We have an issue reported to us by a have a mental health problem than their peers. Getting lot of young people with autism, adults with autism that identification in place should lead a school to and parents, in that a lot of children with autism have question the need to look at the kinds of interventions real difficulty accessing CAMHS, because they will that need to be made either now or in the future. It is say that this behaviour is their autism, when in fact it not only about looking at a child’s SEN or disability is actually a mental health problem. in isolation, but at its tangential effects.
Q196 Tessa Munt: Sorry; this behaviour is—? Q199 Craig Whittaker: The initial question was Jane Vaughan: Sometimes CAMHS will say that a about what sort of structure you would put in place, child cannot be referred because they are autistic, and but I am not quite getting it. therefore the behaviour that we are seeing is part of John Dickinson-Lilley: I could give you a direct their autism rather than a mental health issue. We answer to that. It is very hard for us to talk about know, however, that autism does not mean that you structure, because of the changes to the education have a mental health issue, and you can have autism system as it is now. One of our concerns at the SEC and a mental health issue. Because of the lack of is that we are seeing significant defragmentation recognition of the anxiety and stress around autism, it already in the traditional central support services often deteriorates into a mental health issue, and such provided by local authorities—such as educational individuals are having great difficulty accessing psychologists and so on—because of the new CAMHS. academies programme. There is potential for further cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan defragmentation with free schools, where schools will Q201 Chair: John, do you want to give an instant be required to commission services. If the money has response to Virginia’s radical proposal? already been taken away from local authorities, those Virginia Beardshaw: It’s CDC, so— services will be lost, and if they are lost, how will John Dickinson-Lilley: It’s slightly more complex for provision be made? It is an absolutely critical me to give a radical answer—no matter how radical I question, but it is one that we are going to find very would like to be on occasion. hard to answer until the Government can give us an Chair: If you have to get consensus of 22, we’re answer about how they are going to ensure that this lucky that you say anything at all. provision will continue to be made while education is John Dickinson-Lilley: You’re right; it takes a lot of being changed in the way that it is being changed. preparation. On provision, one of the difficulties is that, if you look at children with sensory impairment, Q200 Craig Whittaker: That leads nicely to my next including children who are deaf, for example, there is question. As a previous Lead Member, one of the key a very low incidence; the same goes for children who things that I have been banging on about for many are blind and partially sighted. As a result, service years in the local authority is that, with things such as provision by someone central is actually fairly essential. We’re not necessarily saying that local CAMHS and disabled children, we often see money authorities are brilliant, but we’re not saying that they going from vast amounts of pots through different are terrible either. We’re not even saying who should directorates, children and young people’s services, provide it. What we are saying is that the market is primary care trusts and sometimes justice services, not viable, because you are talking about such a small and we often also see a huge amount of duplication number of children. The question about how that of service and huge gaps in the service. The thing that provision is made is really important and it is I have been banging on about for years is: why don’t something that the Committee might want to reflect we get one pool of money, tear down those structures on a little bit more. Charities such as the RNIB or the and have one overhead cost? And, guess what, all of National Autistic Society provide such services and a sudden we wouldn’t just have service, but a can do a little bit of work in providing some of those provision right across the board. Surely, in the light of services, but we don’t have the capacity or the ability the savings that are needed, that would be the best to provide specialist support services. There is a real way forward. question there about the viability of those services Virginia Beardshaw: I wasn’t expecting to make this going forward. point today, but this fragmentation is a real worry. It Chair: Thank you, John. has been a consistent feature of the system for Jane Vaughan: May I just add one more thing? umpteen years, not just affecting CAMHS. Children Chair: No, I’m afraid not, Jane. with speech, language and communication needs fall through the cracks between local authority-provided Q202 Ian Mearns: There’s a strong correlation services and NHS-provided services arguably more between children who have emotional and behavioural than any other group. As a result, I CAN, the Council difficulties and SLCN. In particular to you, Virginia, for Disabled Children, the National Children’s Bureau can you tell us about the correlation between and the Communication Trust have made a children’s emotional and behavioural difficulties and submission to the Department of Health, in response their speech, language and communication needs? to the new White Paper, suggesting that the child Virginia Beardshaw: That is what I was starting to do health commissioning budget, which is the money that at the beginning. It always amazes me that, in this pays for CAMHS among many other things, should field, we always tend to make things too technical. migrate with the public health budget to local That is why, when I’m talking about behaviour and authorities, so that local authorities would be able to SLCN, I always say that it is commonsensical that, if take an integrated view of commissioning. That is you can’t really understand, because comprehension quite a radical suggestion. It has always been rejected is a big part of language, what is going on in a setting, in the past, because of issues around health particularly a setting as formal and as demanding as a professionals’ terms and conditions. Those would not school, and if you can’t really express yourself very apply, because, under the proposals on splitting well—in technical terms, this means receptive provision and commissioning, it is only the language and expressive language—is it any wonder commissioning budget that need move to local that you either act up, misbehave or absent yourself? authorities. Health professionals’ terms and conditions Hence the exclusion figures of 60% to 70%—actually, could remain the same. I wasn’t expecting to do this those are the figures for youth offending—and today, but I highly recommend that radical suggestion truanting is equally high. I could go off into technical to this Committee, which is of course known for its detail, but I would invite members of the Committee independence, and I will make available the letter to make an imaginative leap. All those same elements from I CAN, CDC, the National Children’s Bureau apply in the youth offending and criminal justice and The Communication Trust, so that you can system. These kids cope very badly. If we could get consider it.1 into the whole teaching work force, the whole school Jane Vaughan: Craig, I would like to think about this work force and the young offending work force a a bit more. Can I think about it and write back to you? realisation of just how many children are not getting it and are not able to express themselves properly, Craig Whittaker: Certainly. then, I think, we would bring about a sea change that 1 See Ev 146 would have a beneficial effect across the whole range cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan of special educational needs, including key areas such advocating screening at two and two and a half, linked as autism, dyslexia, deaf and hard of hearing children to the child health programme, and then screening at and a range of others. five on entry to school. We are passionate—we think Jane Vaughan: I will just give you an example that I that would turn things around if, and only if, this isn’t think demonstrates a lot of what Virginia says, with just an assessment and it is followed up by support. which I agree totally. It was given to me by the We spend far too much in this country and waste a lot SENCO of a secondary school in Surrey. A young boy of our valuable, most skilled staff’s time just doing who has Asberger’s syndrome accidently dropped his assessments and then doing nothing whatsoever sandwiches as he walked into the dining room. He about them. didn’t realise and went to the other side of the hall. Jane Vaughan: There is the danger therein as well. If The head teacher came in, saw the sandwiches, teachers are waiting for a child to be assessed and realised that they were his and shouted, “Boy, pick up diagnosed, they won’t meet the need—“Oh no, we these sandwiches.” The young man stood up and said, don’t need to do anything. They haven’t got “Man, you pick them up.” Absolutely horrified, the anything.” We need to look at the child and say, “This SENCO rushed over to the head teacher, as he was is your need.” exploding, to say “Let me explain. Let me explain.” She got the young man to sit down and explain how Q205 Tessa Munt: We heard evidence earlier about he saw the situation according to his understanding of links with crime for the group of young people who language and his own expression. The person he’d have SEN. There is a phrase from the YJB, which seen had called him “Boy”, so he responded with says, “Significant numbers of young people with “Man”. In his logic, the sandwiches were next to the special educational needs can end up in alternative man, so why would he walk right the way across the provision and in turn involved in the criminal justice hall to pick them up when they were next to the man? system, when their needs have either not been I thought that that was a great example of how speech identified properly, or they have not been met and language communication difficulties can result in appropriately in mainstream provision.” What kind of a behaviour difficulty. interventions are required where a child with special educational needs or a mental health problem is also Q203 Ian Mearns: If I can come back to Virginia, I identified as being at risk of committing a crime? am delighted that you have raised the issue of non- John Dickinson-Lilley: Again, that links back to the attendance and truancy, which often goes with assessment, because although a child might already be youngsters. It seems to me that it is one of the items diagnosed with a special education need, the fact that that we have lost a little bit. We did agree to look at there are behavioural issues might mean that there is that at the start of our proceedings on behaviour and discipline, but we seem to have lost it somewhere. another underlying special educational need or Can I take you back to something you said that disability. You quite often find that disabilities, special perturbed me a little bit? You said that if youngsters educational needs and behaviour get overlaid in were screened for speech and language different ways, so things get missed. One of the most communication needs prior to exclusion, then they important things is that identification. One of the could be dealt with in the PRU; but why would you things that we’ve found is that if a child has, for exclude them in the first place? It seems to me that if example, a behavioural problem, quite often schools we identify such needs through a screening process progress them through the disciplinary route and prior to exclusion, what we have actually done is forget about looking at curriculum and assessing need. identify a failure in the institution rather the child. They just look at the child’s bad behaviour and Virginia Beardshaw: Thank you for giving me an progress them through the disciplinary route with opportunity to clarify that for the Committee. Of fixed-term exclusions and permanent exclusions. As a course, I would always prefer the child’s needs to be result, by the age of 19, 27% of young disabled people met in a school setting. If, prior to exclusion, there is are NEET, because, ultimately, they get excluded from screening for SLCN, then that is exactly what I think the system so many times that the system inherently could, should and in many cases must happen, rather fails them. We then move on to the causes of crime, than the child going to a PRU. But sometimes they with which we are all familiar and on which I don’t will go to a PRU, and there, they will need to have really need to comment, including social exclusion their needs addressed. I am also glad that you are and all of the other factors. We need to get it right at pleased that I brought up truancy. It is something that school and keep on getting it right. If you look at the we see a lot in our I CAN schools. We’ve had children key stages, 42% of children in key stage 1 have a who have been school refusers for two or three years, speech, language and communication need. If you and we bring them back. One of the things that I am look at the same group of children at key stage 3, only proudest of is how they can then achieve good GCSE 5% have that need, but DCSF research shows that, results and go on to college. between the ages of 12 and 17, 38% of that group have a behavioural, emotional or social difficulty. So Q204 Ian Mearns: Is there one magic bullet for what you are seeing is a bizarre translation from key detecting youngsters who have these needs that have stage 2, in which 42% of children with a speech, previously gone undetected through the systems and language and communication need becomes 38% of through primary and secondary education? children with behavioural, emotional and social Virginia Beardshaw: For SLCN, which has wider difficulties. I allude to the point that was made earlier applications across special education needs, we are about secondary education by saying that there is a cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG03 Source: /MILES/PKU/INPUT/006766/006766_o0003_EdC 27 Oct 10 corrected.xml
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27 October 2010 Virginia Beardshaw, John Dickinson-Lilley, Paula Lavis and Jane Vaughan distinct difference in how secondary schools treat Paula Lavis: There are strong links between youth children with special education needs. crime and mental health. Huge numbers of young Virginia Beardshaw: I saw some slightly bewildered people with mental health problems end up in the faces among the Committee members, but I have a youth justice system. I guess that a lot of those cases nifty little chart that shows that miraculous conversion may well have been avoided if we had really good over the summer holidays. High levels of speech, early intervention services to pick them up. You can language and communication needs are identified in identify those at risk at a really young age. primary school, but we believe that a massive relabelling takes place by the time they get to Q207 Chair: So if you prioritise them at the age of secondary school and those very same children are two and a half or five, they won’t end up in jail? relabelled as having behavioural difficulty. I have that Paula Lavis: Yes. chart here, and I will make it available to the Chair: On that positive note, I thank you very much Committee. I just wanted to back you up, John. indeed for coming to give evidence to us today.
Q206 Chair: I’m afraid that our time is up, although there’s much more that we’d like to explore. There is just time for a final word from Paula. cobber Pack: U PL: COE1 [SE] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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Wednesday 17 November 2010
Members present: Mr Graham Stuart (Chair)
Neil Carmichael Charlotte Leslie Nic Dakin Ian Mearns Bill Esterson Tessa Munt Pat Glass Lisa Nandy Damian Hinds Craig Whittaker ______
Examination of Witnesses
Witnesses: Katharine Birbalsingh, ex-Deputy Head, Daisy Christodoulou, Teach First Ambassador, Sue Cowley, Educational Author, Trainer and Presenter, Paul Dix, Lead Trainer and Director, Pivotal Education, and Tom Trust, Former Elected Member for Secondary Sector, General Teaching Council for England, gave evidence.
Q208 Chair: Good morning. Thank you very much teachers to teach behaviour rather than just to rely on for joining us this morning for this behaviour and our culture moving towards better behaviour. We must discipline inquiry. It is a great pleasure to have you actually teach the skills, but do it so that it is with us. We tend to do this fairly informally and use consistent throughout the country and do it when it first names, if you are all comfortable with that. You has most impact, which is in initial teacher training. have come to give evidence to us this morning. If you We must make that training of the highest quality that had to pick one thing that could be adopted and help it can be and teach behaviour on a par with how to improve behaviour and discipline in our schools, teachers learn to teach the curriculum. what would it be? Can I start with you, Tom? And don’t cheat. Q211 Chair: Do you think that the training of Tom Trust: One thing is a return to the belief that, teachers in behaviour management is poor? where respect comes into the equation, the children Paul Dix: It is shockingly patchy. When it is poor, it should actually be respecting their teachers rather than is half an hour in a seminar and sink or swim. We the other way round, depending on the definition of have proved that we can teach it, and when we do “respect” that you are using. teach it, it turns schools around. We have been doing it for 10 years. Let us have it as a core competence. Q209 Chair: Isn’t respect necessarily mutual? Let us give teachers the ability to learn it in training, Tom Trust: Yes, but it has a number of different so that they do not come to us and say, “Thank God definitions. What a lot of children who are less well we met you 30 years later. If only somebody had told behaved appear to mean by the word is that you—the me that 30 years ago.” teacher—should defer to them. That is one meaning Sue Cowley: I am going with Paul on this. I meet of “respect”. One of the things that I have found as a NQTs all the time. I work with them, and they say to teacher over the years is that it is usually the children me, “Why didn’t anybody tell us that there are these who have done the least to earn respect who expect really simple, straightforward things that are not easy you to defer to them. to put in place, but that are straightforward to communicate to NQTs? Why has nobody told us Q210 Chair: So it is a re-establishment of adult practical ways of actually managing behaviour?” A lot authority. more complex things could be changed, but of all the Tom Trust: Yes, if you want to précis it, that would things that could be changed in a fairly be the summation. straightforward way, it would be to give new teachers Daisy Christodoulou: I would arrange school access to those techniques and strategies that make a timetables so that pupils are taught by as few teachers direct difference in classrooms. as possible over a week, and that teachers teach as few pupils as possible, whereas currently a teacher Q212 Chair: Behaviour and discipline is not some may teach 20 lessons a week and may teach 20 new faddish concern. It has gone on for years. How different classes. Teachers therefore have to see can we have a system of initial teacher training, hundreds of pupils and know all their stories, all their continuing professional development and the most targets and everything about them. If it can be done researched educational system in the whole world and so that they teach only four or five classes a week, it not have put in place basic, well-recognised would allow teachers and pupils to form better bonds techniques? and better relationships and reduce the likelihood of Sue Cowley: Yet all the time I meet new teachers who pupils misbehaving. say to me, “Nobody ever told me this,” and it is such Paul Dix: I would introduce to teacher training a straightforward thing. throughout, whichever route you take to become a Katharine Birbalsingh: While I agree with my teacher, compulsory high-standard, high quality colleagues, we have got things the wrong way round. training and behaviour management. We must be We are always concentrating on looking at the honest about the skills that we can teach and ask behaviour and then dealing with the behaviour. All cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust that is very good and, clearly, there are a lot of ways Q215 Chair: You have said that behaviour of dealing with behaviour from the teacher’s point of management techniques for front-line teachers can be view. That is an excellent idea and we need to teach taught. Is there something just as discrete and the teachers that, but what we need to do is to hold deliverable that can be given to school leaders? staff to account. In particular, we need to hold the Obviously, Katharine’s point is different from yours. senior teams to account. When I say, “hold them to Regardless of the skill of the teacher, the really highly account”, senior teams are responsible for leading skilled ones might be able to cope more easily but schools and for supporting their teachers. Too often, they also need support and help when required. Can senior teams fail their teachers by not supporting them that be delivered? properly and by having low expectations. We need to Paul Dix: Yes. We do exactly that. We work with ensure that the right questions are asked of senior future leaders, head teachers and middle management teams. Are they putting systems in place to ensure that teams to create the conditions where the training will the right kind of environment exists in the schools, so have most effect. That is what we do. It’s proven. that the behaviour we are talking about does not HMI and Ofsted have seen it and commended it. happen and the level of bad behaviour is reduced? Tom Trust: What Katharine said is crucial. Without Clearly, teachers still need to know how to deal with identifying any locations, I have worked in a school that behaviour, but if senior teams were doing their where the head’s attitude towards a teacher having a job properly across the country, we would not have problem with a disruptive pupil was to say, “It’s your the state of behaviour that we have at the moment. problem. Your lessons must be uninteresting,” or “Your methods are not good enough.” Then you can Q213 Chair: What happens to people on the front have a situation where a head or senior team give line who try to highlight the situation and ask for support, which has a number of benefits. It certainly greater levels of support? lifts staff morale. I sat on a case recently where a head Katharine Birbalsingh: Obviously, it depends on the had gone into a school to turn it around. He put 13 school. It is not that people don’t want to help. There members of staff on capability in one go. That must is too much in-house variation to which some people have had a devastating effect on staff room morale, here have referred. If you are an excellent teacher and which of course will then feed down to their can manage that behaviour, you will survive wherever performance in the classroom. It will do nothing to you are and do well. Then what tends to happen is improve the school. On the other hand, in another that senior teams say, “If he can do it, why can’t she?” school I am aware of—I won’t identify it—a head has But it is the role of leaders in schools to ensure that just come in and has started from the point of view of all teachers can discipline their students. That doesn’t the pupils. He has shown the staff that he is supporting mean taking responsibility away from the member of them in a school where they had felt unsupported, where there were all the various problems. They were staff, but there is a real lack of responsibility in our getting stressed out. They had absences and so forth. schools. The children and teachers are not responsible He has come into the school and started dealing with for themselves, and it’s the same with senior teams. pupils. He said to the staff, “If you have any problems, Often in schools, you see the senior teams blame the I will deal with them.” He has confronted the problem teachers and say, “If only they had the skills and were in that direction and lifted the morale of the staff. I as clever as I am, everything would be fine.” And the am aware of it because I know many of them. So, I teachers say, “The senior team are horrible. They am underlining what Katharine has said. The role of won’t support me and won’t do anything.” There is a senior teams in this matter is absolutely crucial, but kind of back-biting that goes on, and the people who very patchy. are lost, obviously, are the children in between. Q216 Nic Dakin: Good morning. Thank you all for Q214 Chair: Do the rest of you accept Katharine’s coming. I have to leave before the end of the session analysis? We have heard evidence that leadership because of constituency matters, so I apologise for teams in schools tend to be slightly removed from the that. Can I take this a little further? How do we ensure reality of front-line teachers who have to put up with that school leaders in the increasingly devolved behaviour, and sometimes that doesn’t seem to filter situation that we are moving into meet the highest upwards. It is certainly not recognised, and teachers aspirations that you are describing in terms of leading facing challenge are not supported in the way that they on behaviour? How do we do that? should be. Tom Trust: I think that that will be very difficult. You Daisy Christodoulou: I agree with most of that. referred to the devolved powers, and I think that that Paul Dix: It comes back to the same issue—the fact will make any kind of consistent approach very that they all start from different starting points. If you difficult. It is what this Government seem to want to don’t allow people access to high quality training, you do. What the solution is, I do not know. will have teachers who are failing and struggling, and Sue Cowley: When I talk to teachers—mainly on the teachers who are absolutely flying. There is also ground with them, as opposed to with managers—the variation in senior management teams. Some are on thing that most worries them is when there is a kind the ground every day, deeply committed to being out of disjoint between what happens in the classroom and of their offices and involved in the life of the school. the support that is provided by the management. Some shut their doors and lock themselves away. Teachers will say to me, “I follow the school policy Again—I’m sure we’ll come to it—the patchy nature and I discipline—I give a verbal warning, a written of effective leadership is a core issue. warning, and then I go to the next stage up and the cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 58 Education Committee: Evidence
17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust next stage up. But nothing happens when that goes up you are told not to, what do you do? You shout, you the line.” So it is a case of joining up the teacher rail, and you try to replace the physical punishment in the classroom—on the ground, with the kids—and with some sort of emotional punishment. Nobody finding a way for management to follow through at trained our teachers, so, absolutely, hold senior and the top end of the disciplinary policy. Otherwise, the middle management to account—but train them so children quickly learn that when the teacher says, that they can do it. None of this is particularly “This will happen,” it does not, which is a big problem revolutionary or new, it just needs to be done. It has in schools. never been done apart from where we go—where we Katharine Birbalsingh: We have to hold them to go and do it, we see schools in the worst possible account. We need to ask questions—we need to ask situations turn around, because people get it. If you the same questions of staff that we do of senior teams. train them and then they do not get it, and they are We say to them, “What kind of bad behaviour do you clearly not taking up the opportunity, you can tackle put up with? What do you think is acceptable?” You them. The national strategy has trained teachers in ask the head and the deputies, and then you ask the need, but it did not train all teachers; it trained some same of staff, to see if they match up—if they do not, managers and some middle managers, but it did not you need to ask a few more questions. You need to give that consistency across the country. What is the ask them about what kinds of systems they have in motor of a good school? It is the middle management, place in the school to support the teachers, and if they and where they are not trained appropriately, you see work. Ask the senior team and then ask the staff to things fall down. You can train the staff as well as you see whether they match up and then, finally, hold them want, but if you have not trained the middle and senior to account. Quite simply if people do not do their jobs, management, the whole thing is a waste of money. they need to be fired. If people cannot do their jobs Daisy Christodoulou: This ties into devolved powers there needs to be some sense that they might lose to schools. Sue said about how you punish a kid, you them. Members of the senior team do not feel that, so go up the behaviour policy and get to the top of it— they go about their jobs doing whatever it is that they then what happens? The ultimate sanction is do. In the same way that we need to hold teachers and permanent exclusion, which is something that would children to account, we need to hold senior teams to be affected by devolved powers, as PRUs are account. We should not allow these things to spin out commissioned on a local authority basis. I have a of control for years and years. If a school is in chaos, great deal of sympathy for people who have to operate the senior team is doing something wrong and we in this area. When I was at the classroom level, I did need to point our finger at them and say, “This isn’t not see such things happen. I can sense a lot of good enough,” and hold them to account. We should pressure for and there are probably a lot of people not feel fear about doing that. In any other industry, if who want to exclude pupils. Nevertheless, from my you do not do your job properly, you lose it. Why can position in the classroom, it seemed that there were a we not have that in teaching? I want to be able to lot of pupils who could do unacceptable things work in a profession that is held in such high regard repeatedly, and they had to do an awful lot that was that when I do well, someone says, “Well done,” and really bad in order to be permanently excluded. I when I do not do well, I think, “Oh my goodness— understand that it is difficult and that the PRUs have I’m in fear for my job.” That is how it should be— a lot of pressure on them. However, you may have the like it is in industry. best behaviour policy in the world—the best trained teachers in the world—but kids know that they can Q217 Nic Dakin: There seems to be a difference get to the top level of sanction and, as it sometimes between your approach and Tom’s. seems, effectively just start again at the beginning. Tom Trust: I agree that senior teams should be They work their way up to the top, and begin again. accountable. I am very supportive of the notion of If there is no ultimate sanction at the top, it is very 360¡ appraisal. Managers and heads are not appraised hard—for all the skills and all the techniques—to by the people whom they most affect—the staff. I do enforce any of this. Kids quickly see through it. not want to leave out the fact that how they affect the staff also affects the children, which is why the whole Q218 Nic Dakin: May I move on to a different thing is there in the first place. I have sat on cases for picture? We have taken a lot of evidence and also the General Teaching Council, which I have resigned visited several institutions, so we have looked at what from, by the way—I am not in it any more. There is going on. To me, the general picture is that have been a couple of times when I have sat on a case behaviour in schools is generally good to very good. and I have heard a head teacher giving evidence But there are some pockets of difficult behaviour, with against a teacher, and I have sat there thinking, “You a few students in particular schools, and probably should be in the dock as well—so to speak—because across them. Does that match your assessment of what what you were doing was clearly not helping the is going on? situation.” Sue Cowley: There are two things going on, when I Paul Dix: Hold people accountable, but train them talk to teachers. First, there is the low-level stuff, effectively first—give them an opportunity to learn the which a competent, inspirational teacher can deal with skills. Many of our middle and senior managers went fairly simply. Secondly, there is a core group of through a period when we had corporal punishment. students with what I consider to be fairly serious We put down the cane and we replaced it with behavioural issues, who, since inclusion, are perhaps nothing, and we force teachers to guess. Well, if you in a mainstream environment that does not suit their were previously striking your students and suddenly needs. One, two, three or x number—it’s the weight cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Education Committee: Evidence Ev 59
17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust of numbers—of those kind of students can destroy the however, at how disruptive to learning low-level learning for 30 kids in a class. That breaks teachers’ behaviour is. hearts. They say, “I just want to teach. There are 27 in there who all want to learn. And I have these three Q221 Nic Dakin: I think that people understand that. hardcore students.” It is the hardcore ones who can The reality is that we have a base of evidence, through destroy the education of the other children, which is Ofsted inspections and through Sir Alan Steer, which really just a crime. says that behaviour is good to very good. You are saying that your anecdotal evidence base challenges Q219 Nic Dakin: But you are saying that that is an that. You’re saying that in every classroom there are exception rather than a rule. three disruptive students, whereas Ofsted is saying Sue Cowley: It only happens in certain schools. In that it has not seen that. most schools, it is the low-level stuff, and if you have Katharine Birbalsingh: No. I’m saying that it is in one, two or three difficult students, you can support lots of classrooms. them and put them into the referral unit. But where Tom Trust: I must question Mr Dakin’s sources—the there is a weight of numbers in a school, it moves to Steer report and Ofsted. I have read the Steer report, the negative side—the ethos of the school is affected and I think that he talked to a lot of head teachers. and there is a snowball effect. Head teachers have told me that there are no discipline Daisy Christodoulou: I agree completely about the problems in their school when there have been copies two levels—low-level disruption and serious of lesson observations that they have taken when they misbehaviour—but they are linked. Even if only a few have been observing the teacher. In those pupils do really quite bad things, if they are seen to observations, there have been a list of misdemeanours be getting away with those things, it makes it so much happening with the head in the room. I have also harder to tell a kid at the back of the class to stop heard a head say, on oath, that there were no drinking a Coke or to do their tie up properly, so the disciplinary problems, even though there were press two are linked. It may be a minority of pupils who reports stating that there were. Getting evidence from behave in that way, but if you don’t deal with it head teachers is not always reliable, because they have effectively—in a lot of cases, we don’t—it impacts on a lot to lose. On Ofsted, I did some supply in a school everyone and lowers standards across the school. that was having an Ofsted report, and I got my supply Katharine Birbalsingh: I want to say that what Daisy list for the lessons that I was covering that day. I was has said about holding pupils to account, and their told that those teachers were not away, but that I was having some final sanction happening to them, is a big going in the classroom with them. In I went. I later issue. What Sue has said obviously follows on from found out that it was unlikely that Ofsted inspectors that. I also want to point out on the difference between will go into a class that is being covered by a supply good and very good that it depends what you mean teacher—it is not impossible, but it is unlikely. Each by good and very good. morning, the Ofsted inspectors were given the little pile of cover slips, and they knew which lessons were Q220 Nic Dakin: I am looking at Sir Alan Steer’s being covered. They thought that the ones that I was inquiry into behaviour and at Ofsted inspection supposed to be covering were covered, but they reports. That is the evidence base that we have been weren’t. They were terrible classes. They did not given. necessarily have weak teachers—perhaps some Katharine Birbalsingh: I would say that when Ofsted were—but they were full of really disruptive pupils. says something is good, it’s not very good. Certainly, Ofsted’s views on behaviour are not worth the paper from the thousands of teachers I have spoken to, the they are written on, in my humble opinion, because many teachers who have now written to me—given there are lots of strategies that head teachers use to my new profile—and others who have spoken to me avoid the Ofsted inspectors seeing the worst children. in the street, I would say that bad behaviour in the That may shock you, and you may think that that is country is quite common. That does not mean that all an isolated incident, but it is not—it happens. I have children are badly behaved. You have a situation one crucial point to make. I was elected to the GTC where 27 of them are fine, but three of them are being by secondary teachers. I objected to the GTC’s stance disruptive in most classes across the country. Because at the time on not supporting teachers on the question you do not have the final possible outcome—the child of unruly pupils. That was my election statement and knows that they go up, come back down again and go secondary teachers had to vote for 11 out of 24 up, and that there is nothing that can be ultimately candidates. I got the fifth highest number of first done about them—you often have two or three choice votes. Okay, there was only 7% turnout, but students in each class who are misbehaving in such a 7% of 250,000 teachers is a very good sample way. Bad behaviour spreads like a cancer; it is very compared with a YouGov poll or a Mori poll. I difficult to contain it. One very badly behaved student thought, “Hang on,” because I hadn’t expected to be impacts on a second one, who is quite badly behaved, elected; I was just making a statement. and those two impact on two others, who are somewhat badly behaved. It spreads, so that even the Q222 Chair: I take it that that is a statistical very good students become somewhat unsettled. That indication of genuine concern among secondary creates a situation where you have low-level teachers. behaviour. People often dismiss that, and say, “It’s just Tom Trust: Yes. It is there among secondary school low-level behaviour, that’s okay.” You’d be amazed, teachers. cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 60 Education Committee: Evidence
17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust
Q223 Chair: I want to bring Lisa in, because we down to, “Right, somebody turns up.”2 But equally, have got a lot to cover, but does anyone else want to what you don’t want to do is have this punitive model. add anything on that? Both Katharine and Tom have At the moment, there is this sense that Ofsted is just said that they do not think that Ofsted and Steer give here to pass judgment—there is no sense that there’s an accurate reflection of the level of indiscipline in the kind of support that there used to be with the kind our schools. of LEA inspection model. I think that has kind of gone Paul Dix: We can all throw anecdotes in front of you missing down the years somewhere. to prove the story either way. What is clear is that behaviour is good or outstanding in most of our Q227 Lisa Nandy: Do the rest of you agree with schools. If you asked teachers whether they would that—if Ofsted were seen to be more of a way of appreciate more input on behaviour, they would say, helping schools to improve and reach standards rather “Absolutely, yes.” We should give them that, and we than just an inspection model? should focus resources on those schools and pupils Sue Cowley: If you want schools to be honest and that are most in need. give an honest picture of what goes on day to day, then you can’t expect all lessons to be outstanding. Q224 Chair: So, you broadly accept the Ofsted Some days, teachers are knackered, and they need to analysis, although there is obviously still ample room have a lesson that just kind of paces along. Some days, for improvement. they are an inspiration, absolutely, but on a Friday, Paul Dix: Yes. when it’s the last thing, it has been raining all day, and the kids are narky, you adapt, and you’re flexible. Q225 Chair: Sue, do you accept the Ofsted analysis? Not every day is every single teacher in the country Sue Cowley: Generally speaking, behaviour is good going to be able to prove that they’re outstanding. and fine. We mustn’t demonise children. They are just being like we were. A lot of this stuff is what we did Q228 Lisa Nandy: The other members of the panel when we were at school: “Let’s wind up the teacher.” I said largely that Ofsted underestimates the level of think you have to be really careful. This is the current challenging behaviour in schools; I know you didn’t, generation of children. They are different from how Paul. The Children’s Commissioner put to us the we were when we were at school, but they are opposite point of view, which is that because Ofsted essentially children. But there are some schools in focuses very much on lower-performing schools, the crisis; don’t get me wrong. picture we get of poor behaviour is over-inflated. Do Daisy Christodoulou: Briefly, I have concerns. I don’t any of you have any response to that? have any statistical data to back it up, but some Ofsted Katharine Birbalsingh: For the vast majority of my reports and the Steer report don’t ring true with what career, I have only ever worked in good and I see. I think a lot comes down to what Katharine has outstanding schools. Ofsted’s standards are not high said about what you define as good behaviour. If you enough when it comes to behaviour—it is as simple say bad behaviour is only something that is at the as that. The problem is that we’ve got it the wrong extremes of violence, then yes, it is a minority. But if way round, as I said at the beginning. We keep you define it more broadly, which I think it is fair to thinking, “Well, there’s bad behaviour. What do we do, then I think that there are problems. I think it is a do about it?” Of course we need to think like that, but significant issue among the teachers I trained with, what we are not thinking about is: how do we create who represent a fairly big cross section. an environment where that behaviour doesn’t happen Paul Dix: But you’re in the most challenging schools, in the first place? That is what we must concentrate though, so your experience is skewed by that. on. Ofsted doesn’t even look at that. It is not thinking Daisy Christodoulou: That is true, but it is still a lot about what kinds of systems are in place to ensure of schools. that a certain environment is created. We always come Paul Dix: But they’re all identified as challenging to it after the fact, and don’t pre-empt. We’re not schools, which is why Teach First is involved. trying to create a certain environment. What we’re Daisy Christodoulou: But in challenging doing is we wait for the behaviour to happen, and then circumstances, some of them are classified as we’re thinking about how we react to it. Of course we outstanding. need to react to it and have innovative ways of dealing with behaviour, but it is not even necessarily in the Chair: I am going to bring this dialogue to a close, thinking of senior teams that those environments need as fascinating and enjoyable as it is. to be created. It is not in the thinking of inspectors. It’s just not in anyone’s thinking, frankly, and that’s Q226 Lisa Nandy: I’ve heard from most of the panel what we need to do. that you have real concerns about Ofsted’s ability to give us an accurate picture of the level and nature of Q229 Lisa Nandy: The Government’s direction of challenging behaviour in schools. What suggestions travel is very much about trying to free up good or do you have for how we might get a really accurate picture? 2 Note by witness: I’ve been told by teachers on several Sue Cowley: You want to do what it is doing in early occasions that their school has either excluded certain pupils during an inspection, encouraged them to stay off school, or years, which is Ofsted turns up without warning. If organised work experience to coincide with an inspection. you want an accurate picture, and do not want schools However, I would not wish to present this as something for to exclude pupils for the week,1 you want to get it which I have direct written evidence or research. This is anecdotal, but I think most teachers would accept that it still 1 See Ev ?? goes on. cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Education Committee: Evidence Ev 61
17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust outstanding schools from inspection. Do you think think that it is the teacher’s and not the child’s fault that that’s a positive thing in relation to behaviour, or when the child misbehaves. It is very important that do you think that that might cause some problems? children are responsible for themselves. Even when Tom Trust: If they aren’t going to look at the they are in the most boring of situations—it is Friday outstanding schools, what yardstick are they going to afternoon, it is raining outside and they have the most use to measure others by? boring teacher in front of them—we should still have the highest expectations of behaviour. In certain Q230 Bill Esterson: Can I ask the panel to define schools, that will be the case; in other schools, the what they regard as unacceptable behaviour, and what teacher will be held responsible for the bad behaviour, they define as children being children, and where the and that is where we go wrong. We should not be line between the two is? holding the teacher responsible. We should be holding Paul Dix: That is a fascinating question. I was at a the students responsible. school the other day where somebody had been Sue Cowley: You said earlier that teachers— excluded for what in another school would be a Chair: Sue, I am not having a dialogue. terribly minor offence, but they suddenly found Sue Cowley: Sorry. themselves permanently excluded. They go to the Daisy Christodoulou: I would agree with that. Pupils pupil referral unit, which asks, “What on earth are you doing? I have other children who have been excluded would be fine, they would be very well behaved in for extreme offences, and all you’ve done is my class, they would be my children, but I would hear something very minor.” What in one school passes for stories about them misbehaving in another class in horseplay in another is a critical incident. Unless we school. I would sometimes see them misbehaving in start to get some consistency in the tariff, we will find front of a supply teacher, and I would ask them that in some areas pupil referral units and alternative afterwards, “What were you doing? I know you can provision are stuffed with people who were being behave. Why were you doing that?”, and they would teenagers but got caught out on a bad day, and in say, “Oh, Miss, it wasn’t my fault. The teacher others there are extremely violent, aggressive, couldn’t control me.” I heard that from one or two damaged young people who are in need of a lot of pupils. It was a common refrain from good pupils who support. I don’t think there is an easy answer to what could behave. I was gobsmacked when I first heard it. is good behaviour. In Stoke, it is different from what I would sometimes ask, “What, if you were in a sweet it is in Edinburgh. shop with a policeman standing next to you, would it Sue Cowley: I think that it is fairly straightforward. If be okay to steal the sweets?” At some point, you have a kid tells me to F off or spits at me, that is to say that it is unacceptable for a pupil who is capable unacceptable behaviour. If they are talking during my of behaving and who knows how to do it to start lesson because I have spent half an hour rambling on misbehaving, because they think that something is at them, their behaviour is partly caused by my going on for too long. approaches to teaching and learning. I need to take some responsibility for the low-level stuff. So I won’t Q231 Bill Esterson: I am not sure whether that was have talking while I’m talking—it is unacceptable, but quite the point that Sue was making. it is to do with my skill as a teacher. It is those things To move on from that point, what works in terms of that Paul and I have said. You can train teachers to deal with them, but things like telling me to F off— managing behaviour both for the lower level stuff and I’m sorry, that is unacceptable, in all walks of life.3 the higher level stuff? I meet teachers who tell me that yesterday a kid in Tom Trust: Can I come in on that because I have not their class told them to F off but nothing happened. given my view on your original question? I created a There is a disjoint between day to day in the definition. I prepared a paper on disruptive pupils a classroom and what the managers do about it. year ago for a policy committee, and wrote: “If a Katharine Birbalsingh: I fundamentally disagree with pupil’s behaviour causes the teacher to have to Sue. What Sue has just said demonstrates precisely interrupt the flow of a lesson so that the whole class what is wrong with our thinking in schools. Of course, ceases to be taught for a measurable length of time or you are a dynamic teacher, you are interesting and you if that behaviour prevents just one or two pupils, even do everything the right way, and you can keep your the pupil himself, from benefiting from the teacher’s students entertained and interested in working and so input for those pupils or that pupil, the lesson has been on. Sometimes there are ordinary teachers—in fact, disrupted.” It is very simple. It takes in the low-level often there are ordinary teachers, simply because the disruption, not just the extreme cases. I also wrote: “If extraordinary is exceptional, by definition. Therefore, we wish to do service to the ‘Every Child Matters’ there are lots of teachers who sometimes ramble on, principle—I don’t know the status of that particular but, because we have this way of seeing things—“It principle with the change of Government—“the needs is my fault for their misbehaving because I rambled of the disruptive child have to be met, but they are on,” which is exactly what Sue said—it is partly the clearly not best met in otherwise well-managed teacher’s fault, because they did not entertain the child mainstream classes or else the child would not behave enough or teach the child well enough. Of course, in a disruptive way. The needs of the other children there is truth in that—if you have a very good teacher in the class who also matter are obviously not best who does not ramble, the children will not misbehave. met by the lessons being disrupted.” I do not know However, we must not then allow that to make us whether that is helpful, but you asked what we 3 See Ev ?? thought was meant by disruption. cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 62 Education Committee: Evidence
17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust
Q232 Bill Esterson: What about the techniques that everybody, but I could say to one kid, “Sort your tie work in managing behaviour? out”, but to another kid I may have to go across to Paul Dix: The best schools have a sign above the door them and whisper, “Can you get your tie sorted out?” regardless of what context they are working in, which For some kids, it is appropriate to say across the class, says, “This is how we do it here.” When you walk “Sort your ties out,” but for other kids I need to through the doors of that school, the expectations of achieve that standard but by using different behaviour are different from those outside. The techniques—those are the techniques that we are behaviours that you use in the community or the talking about: consistency, but flexibility in how I behaviours that you use with your parents might well achieve the consistent standards—because we are work out there, but when you walk through that door, human and so are the kids. that is how they do it there. The best schools have Daisy Christodoulou: I agree with Paul that absolute consistency. I don’t care whether the system consistency is phenomenally important; if different they use is behaviourist or whether the system they things are going on in different parts of the school it use is extremely old-fashioned, the critical difference is really difficult to maintain standards. I also think is that people sign up to it and teachers act with one that the larger the school, the harder it is to be voice and one message: “This is how we do it here”. consistent—it is not impossible, but it can be more You can find those beacons of hope in the difficult. communities in most poverty, and you also find that Katharine Birbalsingh: These are the questions that the best independent schools do exactly the same one must ask of the senior team—how do you get thing, such as, “This is the Harrow way,” or whatever consistency across the school? How do you ensure it might be. It is, “When you walk through the door, that staff are all doing similar things and are having this is how we do it here.” The best teachers have the similar expectations in their classrooms? That is rarely same sign above their door. What works is asked of senior teams, so one must hold them to consistency, not trying to tackle all behaviour at once account to ensure that there is consistency across the but deciding which behaviours are to be taught. It is school. One must not be attacking each teacher and not relying on the parents to teach it, but saying, “You saying, “Look, you haven’t done it in your need these behaviours to be a successful learner in classroom.” If they have not done it, it is because it is this school. We are not going to hide them. We are not coming from above. You have to hold the senior going to teach you them. We will teach the staff how team to account for that consistency, because to do it.” I see that evidence every day in schools that consistency is everything—if you do not have it, you are moving forward in the hardest circumstances. It is do not have anything. not necessarily an issue of resources. It is an issue of commitment and focus for the school and of absolute Q235 Neil Carmichael: I will ask a few questions consistency. about curriculum and teaching methods, but before I Sue Cowley: They are very high expectations, clearly do so, I want to ask Katharine a question. You have stated and clearly applied, with a system to back them put great emphasis on keeping the leadership and up when they are not being met. It is not the teacher’s management of the school accountable. I was fault the students misbehave, but equally the teacher impressed by that, but who is going to do it? Can has a responsibility to set high expectations, to refuse governors do it? Is governance the right sort of to talk over students and to ensure that students listen structure? Who else would it be? If it were to be to them, but at the same to be willing to build governors, how would you strengthen it? relationships, build trust and be flexible with the most Katharine Birbalsingh: No, it cannot be governors. I troubled. The stories you hear about some children suppose I am thinking of an equivalent to Ofsted—of turn your blood to ice. We cannot just say to some of some sorts of inspectors popping in every now and them, “Right, do this—or else you’re out!” That is not again and talking things through. That does not mean appropriate. Flexibility at the same time is the hardest that they need to come in wielding an axe, but they thing in teaching. I have high standards and high need to ask the right questions. They need to ask expectations, but I am flexible and I achieve those in questions of the senior team and then ask the same the best and simplest way to build a relationship with ones of staff to see whether they tally up. If they do, my children. that is fine—you know that there is consistency. They would be looking to see whether there is consistency Q233 Bill Esterson: Can I pick you up on that point? in the systems and whether there are systems, both to I sometimes hear in schools about children being support the teacher when the behaviour happens and given a bit more leeway for the very reasons you are to create an environment in which children can learn. describing, which is that something is going on in That is what they should have as their focus and they their lives. need to be asking questions of everyone to see Sue Cowley: I understand what you are saying. whether consistency is there.
Q234 Bill Esterson: There is a perception of Q236 Neil Carmichael: So you are looking for a different treatment for some children. What about the pretty rigorous and persistent inspection regime. other children who then say, “Hang on a minute, how Katharine Birbalsingh: That is the word—persistent. come he or she is allowed to get away with it?” How are they persistent? How are they relentless? Sue Cowley: Can I clarify that? Teachers ask me Senior teams must be relentless and the teachers must about that frequently. I am not saying that the standard be relentless with their love of learning in order to differs. It is an equal, consistent standard for empower everyone in the school to move that school cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust forward. Those inspectors—or whoever it is—would the question of managing the curriculum. There are come in and ask about that. They need to be looking two distinct issues, and I would like you all to have a for relentlessness, persistence and consistency—and crack at them. they rarely are. That in-house variation is something Tom Trust: Starting with me, again? that all schools struggle with. That should be what Chair: No, we will start with Katharine, because that everyone is looking at, and they are not—they are is only fair. looking at things such as “community cohesion” and Katharine Birbalsingh: Okay. I was hoping that they nonsense. would answer, because I wasn’t quite sure about your distinction. Q237 Neil Carmichael: Those matters will be dealt Neil Carmichael: The curriculum is a curriculum: with, but I have got your point. I am not entirely sure first, there is what is on it, which is what we expect that an inspection regime is the right instrument, but children to learn about; and secondly, there is how we we will work on that. On curriculum teaching effectively manage the delivery of the curriculum, if methods, we need to tease out an answer on mixed- you like. They are two different questions, which both ability classrooms. May we have a one-liner from need to be addressed. each of you about the wisdom of having those, in Chair: Start with how important you think it is to connection with discipline? tailor the curriculum to the needs of the pupils rather Tom Trust: I have always opposed the notion of than to the results set. mixed-ability teaching, which is very much more Katharine Birbalsingh: Again, this is one of those difficult than teaching a streamed class. It is very complicated questions. Clearly, if you teach children much a matter of—almost—belief or faith, but I do things that they are interested in, they are more likely not go with it at all. to behave. But do we then abandon Shakespeare, Daisy Christodoulou: Perhaps for certain subjects, because they are not interested in Shakespeare? but on balance, no. Paul Dix: When you have high quality teachers, Q239 Neil Carmichael: How do you know? mixed-ability teaching raises achievement and Sue Cowley: They are. results—done it, seen it, proved it. You can look at Katharine Birbalsingh: They are when you do things the evidence and see that when you have poor quality to get them into it. For instance, the argument is often teaching, setting and streaming make it easier to cope made that black pupils will be more interested in black with behaviour. It is about the quality of your teaching writers than in white writers. There is some truth in staff. Good teachers will tell you that they love and that—they will be. However, does that mean you only enjoy mixed-ability teaching and that it raises teach them black writing and never teach them any achievement; teachers who are not quite as skilled will white writing? I don’t think so. There needs to be say that having streams is easier. some kind of balance. Similarly, when you teach Sue Cowley: Human beings are of mixed ability. I am history, the argument is made that black pupils will be with Paul—it is about the skill of the teacher. It is more interested in black history than in other types of about the joy of differentiating—of having the most history, and there is some truth in that. Does that mean able pull up the weaker ones. It is the model that I you only teach them black history and do not teach would absolutely go with—not always, not in every them any other type of history? No, I don’t think so. situation, but most of the time. You have to find a balance, which is difficult. Being Katharine Birbalsingh: In any institution, you have a quite traditionalist, I like the move towards more few, who are extraordinary, at the top; a few, who are traditional teaching of history and English. Having struggling, at the bottom; and most people, who are said that, there will be an impact on behaviour, ordinary, in between. The few who are extraordinary, because there is very much a sense in some who are at the top, might be able to cope with mixed- communities that people want subjects that are taught ability classes, but you cannot have a system that in a certain way to be made relevant to them as such. relies on everyone being extraordinary, because it will Sue Cowley: There are two aspects to behaviour when fail. If most people are ordinary, and those are most it comes to the curriculum. One side of it is inspiring of your teachers, you must have a system that will children to want to learn and to be engaged, which is work for them. Therefore, mixed-ability cannot work. part of the deal that you have with them as a teacher. I understand that in PE, drama and art—those kind of Some of my lessons start: “You will be engaged. We subjects—mixed-ability is much better for them and will be doing this crime scene. Somebody’s been they prefer that, but for academic subjects mixed- murdered. We’re going to work back through the story ability is an absolute no. of ‘Romeo and Juliet’ from the end, where all the Neil Carmichael: Mixed views there about mixed- murders happen.” But the bargain is that, in return for ability. those inspirational and engaging lessons, we are going Chair: I do not know whether that reflects their to read and analyse this section of the text, because, abilities or not. equally, children love difficult technical terms and analysis. They adore Shakespeare when it is taught in Q238 Neil Carmichael: I’m not going to go into that, a creative way and when it is relevant to them, but but—interesting stuff. The next question that we also when you say to them that the language is part should be looking at, and you have all touched on this, of the joy of it. There does not have to be this disjoint is the curriculum—the management of it and what it between the traditional curriculum and the creative is. First, I want to know how you think the curriculum curriculum. It is not like that. You need a mixture of can be used to influence behaviour, and then there is the two, with the skilful teacher in the middle cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust managing behaviour by engaging with her pupils and who are able to access the most boring—or creative— knowing what’s going to turn them on, for want of a lessons in secondary education. It is absolutely better term. She has that as a bargain with them: “You critical. Sorry, I bent the question round, but my need to do this bit to access this bit, therefore you experience brings me to that. must behave.” Chair: I am not going to allow anyone else to come Q242 Craig Whittaker: So you are saying it’s a in on that, as we have a lot to get through. I am good thing? sorry, Paul. Paul Dix: If they are trained appropriately in managing behaviour, yes. Teach for America works Q240 Craig Whittaker: I want to ask Tom about phenomenally well, so that model makes sense. It something you said earlier. You used the example of would be intelligent to bring that over, but let’s have a school where a head teacher came in and put 13 them in primary schools, because we need men in teachers on capability assessments, which demoralised primary schools. them. I come from a background—before coming to Tom Trust: In the Department for Education business this place—where a capability assessment was an plan, it says that you want to create “new programmes incredibly positive thing in analysing people’s to attract the best to the profession”—I have no development and training needs. Are you saying that argument with that—“including former members of there may be a reluctance out there for teacher training the armed forces”. Why single out former members of and development from the teachers themselves, the armed forces? Why not former Members of because that’s what I picked up? Parliament? Tom Trust: No. By the time you put a teacher on Chair: Lack of discipline. We are an unruly lot. capability, there will already be issues about Tom Trust: I don’t know why that was specified. performance. Presumably they are there because they Sue Cowley: We need to be careful that we don’t look have had appraisals that raised questions about their at somebody in the armed forces and think, “Well, performance. I know the standard letters that heads they can discipline,” because discipline in a school by have to send out during the capability procedure its very nature is a different kettle of fish, and it would always include rather pat phrases such as “This is a require training. You cannot court-martial a kid. The supportive thing.” It isn’t supportive. If a teacher is idea that you get to the end of the line—that’s it, put under capability, they are at risk of losing their you’re out—is not how it works in schools. The job. That doesn’t cheer up many people. children have to go somewhere.
Q241 Craig Whittaker: I do not agree with you, Q243 Craig Whittaker: So is it a good or a bad because my experience is totally different—it can be thing? an incredibly positive thing. That brings me nicely on Sue Cowley: It’s fine, as long as they are trained and to teacher training. David Moore, who was here some they understand what it is about. weeks ago, told us that Marks and Spencer—I am a Katharine Birbalsingh: When I was told on the phone retailer by trade—spends more time training its staff about the Army, I laughed. If it is the case that in most to deal with angry customers than teachers get in of our schools the behaviour is very good, why are we behaviour and assessment training. We have already thinking about putting the Army in our classrooms? established that there is a greater need for that. What It’s a good question. are your views on the Secretary of State’s proposals Paul Dix: They would be in disadvantaged schools. to bring ex-forces personnel into the teaching work In America, they target the communities most in need, force? where they do not have the quality of staff. They put Paul Dix: What schools need are the ambition, high the male role models in there and it works. It is expectations and respect that people from the armed proven. It works. forces bring. But I know from experience a huge and hefty ex-special forces person who joined a school. I Q244 Craig Whittaker: Okay. Let me turn it on its saw him wobbling in the staff room at lunchtime and head. Do schools use SEN to hide their own failings? he said to me, “How do you get these kids to behave?” Sue Cowley: It’s very hard to get a kid statemented. Let’s train them, because they could be a huge asset, There is a tendency, perhaps more these days, to say, but let’s train them well and put them into primary “Does this child have SEN?” But the statementing schools. Primary schools need men teaching boys to process, to have somebody with a statement and extra read, and if boys can read, the behaviour problems in support, is a very long and complex process. secondary schools start to go away. We must have Statistically, I don’t know. Are there more children boys reading before they go to secondary school, and these days with special needs, or is it that we then you will see behaviour start to improve. When I identifying them more? I don’t know. go to modern foreign languages departments in Katharine Birbalsingh: I always talk about this schools, there are often behaviour issues. Why? excuse culture that exists, which has become part of Because the children do not understand English well the norm, so there is ADHD, SEBD, anger enough, and we are suddenly asking them to learn management and so on. It is through no one’s fault, another language, so they are voting with their feet. because we’ve looked at why this child is Teach children to read and get men in primary schools misbehaving, and then see what kind of support we so that reading is not just cool—it is what happens. It can bring in for him, which isn’t a bad thing—that’s is what men do. Get them leaving primary schools a good thing to do. But then it has become so with the ability to read, and then you will see people commonplace that teachers tend to think, “Well, this cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust one has behavioural problems in this way, that one’s around the country where they have access to the kind got ADHD, this one’s got this, and this one’s got that.” of training we’re talking about that is given to Everyone has some kind of label, and no one is teachers. I’ve done it for parents as well, so there is responsible for themselves in looking after their that. behaviour, because, “Well, it’s not my fault, I’ve got Daisy Christodoulou: I worry slightly, in that ADHD. It’s not my fault, I’ve got anger sometimes I think that these things might seem a bit management.” So it’s an excuse culture. Although I intrusive. I am a teacher, and not a parent. There are think schools probably use SEN officially and hide standards of behaviour that you want in school and in behind it, it is less obvious or tactical in what you’re class, but I don’t want to tell a parent how to do their saying. It’s just more of a culture of expecting less of job. I worry over that. I think it is a sensitive issue. students because we think they’ve got this or that Paul Dix: Where it works best, you have key workers label. We’re always labelling everyone, as opposed to who work with that family and follow it, and the just expecting high standards of behaviour from them. family has a consistent connection with that key worker throughout that child’s period of need. Early Q245 Chair: Does anyone take a different view? intervention works well, but we could go on for years Paul Dix: We need to differentiate between those and years blaming parents. That’s an easy thing to do, children who walk the line—on some days they’re and I think it’s very difficult to solve those entrenched having a tricky day, and other days not—and some problems in families. Why don’t we concentrate our very damaged children with severe mental health resources on where they’re most effective, which is issues, with whom we should be extremely concerned, establishing good order and behaviour in schools, and and who have huge additional needs. I think schools targeting some of those families, but not pretending don’t necessarily hide behind it, but they’ve played a that we can suddenly have national parenting game. Extra funding comes with it, so you’re tempted teaching? Parents don’t buy into it. You put on into identifying every single possible need. I think behaviour management meetings and so on, but there’s a case for differentiating those children who parents don’t get their parenting from training are damaged and most at need, and who have medical sessions; they get it from the telly, their neighbours, diagnosis, and the children who, in a different tradition or culture. It is easy to divert responsibility situation, in another week or year, or when with a on to parents, but what we need to do is to set the different teacher, could perform differently. Schools standards in schools first, and then work outwards, play the game that is laid out for them, and we’ve got rather than try to change what is coming in—that is to where we’ve got to because they have been doing the wrong way around, for me. exactly that. Tessa Munt: Can I go to Tom and then to Katharine, Chair: I’m afraid that I will have to cut both you and because Tom was frowning? the panel off on that and come to Tessa. Tom Trust: Early years is way outside my experience because I am a secondary school teacher. I was Q246 Tessa Munt: I would like to pick up on frowning because I remember having a discussion something. I can’t remember who said this, but one of with a head teacher about 30 years ago in which he you said we shouldn’t be relying on parents to teach told me that we shouldn’t be telling parents what to behaviour. I just want to ask you questions about the do. I disagreed with him in the sense that if we don’t fact that we’ve concentrated on consistency. If you’ve set standards in school, and standards are not being got one model in schools, where you have consistent set at home, the child is lost. That was my view 30 standards that you have been set by the school, and years ago. Schools are quite entitled to set standards then everything falls apart when that child leaves of behaviour, but I am thinking in terms of secondary school and goes back to the community or home, how schools, whereas your interest is more in early years much emphasis should be put on work with parents in this line of questioning. and carers to deal with young people with Tessa Munt: I’m interested in the whole lot. behavioural difficulties? Tom Trust: As a general rule, and to state the obvious, Sue Cowley: I’m doing a lot with early years at the the most difficult children generally have the most moment, and one of the things that you really notice difficult parents. Head teachers who are dealing with is that by the age of three, a child can be so damaged, very difficult children—perhaps where there is a effectively, by lack of boundaries outside school, that question of whether a child will be excluded—find right from the start, you are playing catch-up. themselves talking to difficult and unco-operative Absolutely, if you can get things right before a child parents. is three, when they start the educational process, it’d make a huge difference. Q248 Pat Glass: Moving on to the Government’s proposals on discipline and behaviour, a ministerial Q247 Tessa Munt: Okay, but how do you do that? statement has been issued that sets out new measures You’ve picked a child up at three, and I accept that to tackle behaviour. Ofsted is telling us that we don’t absolutely. What do we do? need new measures to tackle behaviour and that Sue Cowley: I think it’s great to have the emphasis on teachers know what they can do, that restraint is early years, that more two-year-olds are being funded perfectly legal, and that it is actually parents and to have more time in an environment where people pupils who don’t understand what powers teachers are skilled at handling them, and that more workshops have. What is your comment on that? Do we need are set up for parents. There is patchy provision for new powers, or is it that not enough people know what parents, but I don’t think there’s consistent provision the powers currently are? cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Katharine Birbalsingh, Daisy Christodoulou, Sue Cowley, Paul Dix and Tom Trust
Paul Dix: If head teachers are asking for additional there are implications for such places. It was all right powers because of their particular circumstances, I when I was at school in London because I could be think we should be prepared to give them to them. It kept in just like that and get a later bus. On being able would be disproportionate to give powers of restraint to restrain pupils, training is necessary where restraint to every school and every schoolteacher. Perhaps we is necessary. I notice that it refers to not letting should be targeting the areas where that is an issue. children leave the classroom. Unions have been Compelling trouble-making parents to take advising for years that you shouldn’t stand in a pupil’s responsibility for their children is an intelligent idea, way if they try to leave. I have always ignored that as and giving head teachers power is absolutely what a teacher. I have always taken the view that a child they want and need. We have already talked about can only leave my classroom if they walk over me. I what head teachers are crying out for, and that is the have survived to retire. I have always felt that it sends training and the tools to do the job properly. the wrong message to children if you let them do what they want, quite honestly. Q249 Pat Glass: So it is the training rather than the Daisy Christodoulou: Yes, I agree with that. With a additional powers. lot of the rules, it comes down to the message that Paul Dix: If head teachers want these new measures they send, as opposed to whether they are enforced or and they are asking for them, we should of course not. For example, on whether you can search kids’ give them to them. But I think that teachers would bags, if I didn’t know a pupil’s name, I would ask say that what they want is joined-up management and them to give me their planner. If they refused, there decent training. was deadlock. The issue of this law came up on 7 July Tom Trust: I wouldn’t argue with the need for some and I discussed it with my class. It’s not particularly extra powers, but what teachers need more is that I want to search a pupil’s bag, but if there is a reassurance about what they can do, because they are law and the school has the power to do so, it sends a a beleaguered profession. A particular point that message. That’s what I like about it. That message worries me is the idea of repealing the legislation that does get through to kids, and it makes them think. requires schools to give parents 24 hours’ written Chair: Thank you all very much indeed for your notice of detentions, although I know that that is evidence this morning. It’s been tremendous, qualified. Having taught in a rural areas, I know that enjoyable and informative.
Examination of Witness
Witness: Nick Gibb MP, Minister of State for Schools, Department for Education, gave evidence.
Q250 Chair: Good morning, Minister. Thank you Q251 Chair: But you’ve described, Minister, what very much for joining us this morning after that you’d like. You haven’t particularly described how the excellent panel, which I know you listened to. If I Government are going to bring that about. may, I will start with the question that I asked the Mr Gibb: We have set out very clearly that we want previous panel. What is the one thing that the to give teachers and head teachers the powers and Government can best do to improve behaviour and support that they need. For example, on 7 July, I discipline in our schools? announced that we would clarify and strengthen guidance on the use of force and on search powers, Mr Gibb: We need to trust and support our teachers. and that we would remove the statutory notice for 24- That is the key thing. That came out of the evidence hour detention. session that we’ve just heard, and it came out when I read the evidence you took in earlier sessions. Q252 Chair: But Minister, some people have Teachers need to be supported by their head teachers, welcomed that and have said that it would be a useful and both head teachers and teachers need to know that power that they could use appropriately in rural areas, they have the support of the Department for Education or otherwise as they saw fit—hopefully they would and the Government. The other thing that came out tailor it sensibly—but no one has said that the powers this morning was having systems in place. I have are the issue. All they’ve said is that this consistent visited a lot of schools over the past five and a half picture needs to be made to happen in more schools. years, and the schools that have the most successful What are you going to do to make that happen? behavioural policies are those that have very clear Mr Gibb: That’s about spreading best practice. It’s systems in place. For example, Oakgrove school in about having Ofsted focus its inspections, and instead Milton Keynes has a member of the senior of focusing on 17 different issues focusing on four: teaching, attainment, leadership, and behaviour and management team walking the corridors with a mobile safety. We can send them a clear message that we as phone, every teacher has a mobile phone, and if there a Government regard tackling behaviour as a key is any disruption in class they pick up the mobile priority and can have Ofsted focus its inspections on phone and call the assistant head, who comes to the that. That will, I think, send a clear message to schools class and takes the child away. A consistent, well- and head teachers. established series of events happens at that school. There are no behavioural problems, and the mobile Q253 Chair: But the previous Government saw phones are rarely used. behaviour as a key priority, and good practice has been recognised and is fairly commonly shared, and cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Nick Gibb MP yet it doesn’t happen. It is still not clear how you early years, partly because of the knock-on impact it are going to bring it about in a way that the previous has on behaviour, discipline, reading and all those Government didn’t. other things that affect children further down the line. Mr Gibb: Well, don’t underestimate the importance of We have had Sure Start for a number of years and the powers that we’re talking about. We have done a there are soon to be extensions to it in a couple of research exercise over the past few months into why different ways. I wondered what your view is on the teachers don’t use the powers that they have. There is effectiveness of the Sure Start model in the UK. a lot of uncertainty out there. They don’t know what Mr Gibb: It can be effective, but it does need to be their powers are. They don’t know how to use them. targeted better at those parents and families who have One of the reasons for that is that the guidance that is particular difficulties. That has been my colleague sent out to schools runs to 500 pages for behaviour Sarah Teather’s objective and that is what I hope the and nearly another 500 pages for bullying. With the Clare Tickell review will look at, as she examines the best will in the world, this guidance is not read by early years foundation stage. Going a little up the age teachers. So, we have engaged in a very extensive range to reception and the first years of primary exercise of slimming down that guidance to 20 or 30 school, I do think that reading is very important. It pages, and we hope to be able to release it over the came out in this morning’s evidence session as well next few weeks and months. as in evidence sessions earlier on in your deliberations, which I have read, that reading is very Q254 Bill Esterson: In the previous session, we important. It is not only reading per se, but the heard mixed evidence on the level of behaviour in frustration at not being able to read by the time a child schools. My experience of schools that I go into is reaches secondary school, which can lead to that behaviour is pretty good on the whole. So, isn’t disruptive behaviour. Our policy on synthetic phonics, the challenge to focus on those schools where and ensuring that every six-year-old has mastered behaviour is an issue, rather than on a much wider those basic decoding skills, is very important when it approach? To pick up Paul’s point, is the challenge to comes to behaviour policy. ensure that there is consistency in all schools? Mr Gibb: Yes, but Ofsted says that more than one in Q257 Damian Hinds: More generally on early five schools have behaviour that is only satisfactory identification and early intervention programmes, we or inadequate. That is 677 secondary schools in the have taken evidence from a number of different country. If you speak with the unions, ATL says that people and even seen a couple of people who have 40% of teachers have faced physical aggression in that told us about a brilliant thing that is going on here and academic year. There are problems and they need to a brilliant thing that is going on there, but when you be spread on a system-wide basis. It is not only about ask how they came up with it, there is always a focusing on a minority of schools. Having said that, different route. What is the Government’s plan for one of the key objectives of this Government is to amassing the intelligence on what works best in what close the attainment gap between the wealthiest and context, with who and how and so on? How do you poorest backgrounds. Children from the lowest make sure that it is disseminated and that you get best socioeconomic group are eight percentage points more practice without stifling the innovation, the diversity likely to be engaged in poor behaviour and they and the localism, which is quite often the strength that disproportionately attend schools with poor behaviour. you find in those brilliant things? We need to make sure that, in a fair and just society, Mr Gibb: Two things to say. First of all, we want to we tackle those weaker schools on behaviour. wait to hear what Graham Allen has to say in his review, which is important. You make a good point Q255 Bill Esterson: Sure. We have heard about the about spreading best practice. Please wait for the Steer report. What would stop you implementing White Paper, where we will be discussing how we those recommendations? disseminate that best practice. The evidence that is out Mr Gibb: Many of Alan Steer’s recommendations will there sometimes does not get down to the classrooms. be incorporated in our policy. If you don’t mind being It is about disseminating best practice, and having a little patient for the White Paper that is about to be websites and easy access to material through some published, he has a series of principles that we agree sort of directory. That is the right approach. It must with, and I think that you will find that a number of not be top down. We have to move away from the his recommendations are reflected in our approach to top-down approach to policy—the prescriptive policy. He talks about consistency, school leadership, approach—which stifles innovation and can be very rewards and sanctions, behaviour strategies, staff demoralising for teachers. I’m talking about the lever deployment, pupil support systems, liaison with arch files that arrive every two weeks and are plonked parents, managing pupil transition and organisation on a teacher’s desk, but then lie unread and undermine and facilities. Who can disagree with that approach to morale. Those days are over, as far as we’re behaviour? It is about turning those general principles concerned. into concrete policy, which I hope that you will see in the White Paper. Q258 Damian Hinds: Does that imply that the guidance given on the early intervention grant will be Q256 Damian Hinds: Good morning, Minister. I quite broad in terms of how it can be used? Also, what want to point back to early years. It seems to have potential do you see with that and more generally for been a consensus among economists for a number of increasing reliance on payment by results and how years that the marginal million pounds is best spent in would you measure results? cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 68 Education Committee: Evidence
17 November 2010 Nick Gibb MP
Mr Gibb: Payment by results is a good approach when matters with CPD is not going off on some course, but you want to buy in services from other, third sector sitting down with other teachers—more experienced organisations, but we are trying to move away from teachers perhaps—in the school and reflecting on their ring-fenced grants for specific purposes. A lot of the own experience and observing good teachers in the grants in the past have been subsumed into the school to see how they manage poor behaviour, how baseline of schools, and that is the right approach, but they manage to teach physics or whatever. on the specifics, just wait, please, for the White Paper. Q262 Damian Hinds: Finally, on the issue of Q259 Damian Hinds: We talked a little in the last ongoing support, particularly in terms of special session about Troops to Teachers and we had someone educational needs and identification of them, the here from Teach First. It’s interesting that whenever National Strategies inclusion development programme you talk about the American Troops to Teachers is said to be useful in helping teachers to identify the programme, there is an explicit recognition that it had causes of poor behaviour. With the end of National a lot to do with getting men into primary schools and Strategies, how do you plan to plug that gap to ensure specifically black men into primary schools. In this that that ongoing support remains in place? country, how explicit will we be about trying to get Mr Gibb: Early identification is very important, and more men into primary schools? that’s what things such as our screening test at six Mr Gibb: That is a problem. Only 15% of teachers in are designed to achieve, because a child who hasn’t primary schools are men, and 28% of primary schools managed to master the simple decoding techniques for have no male teachers at all. As you indicated earlier, words may well have other needs as well. We need to particularly when children are from families in which make sure through the ITT that teachers do have there is no male role model and they then go to training, not necessarily in how to teach every single schools where there is no male role model, it can be special need that there is, but at the very least in being a problem. I think there is a case for encouraging into able to identify that there is a need there. They can the teaching profession people who have had then call in the specialist to address it. Things like experience in all walks of life, including the military, dyslexia are needs that do need to be identified very because they bring something extra to our education early. system. Q263 Lisa Nandy: I want to ask you about your Q260 Damian Hinds: Let’s move on to teacher decision regarding no-notice detention. Do you training. Paul Dix mentioned that we had got rid of consider that decision to be fair to children who have the cane in schools and replaced it with precisely caring responsibilities at home? nothing, but there are various tricks of the trade, and Mr Gibb: This isn’t a prescriptive policy—“You shall various people have given evidence to the Committee not give a detention without 24 hours’ notice.” This and brought up specific things such as “Don’t repeat is a permissive power that says that if you do not wish a question”—if you repeat a question, the child gets to give 24 hours, as a school, you do not have to. used to the idea that they don’t have to listen to other Schools are public bodies and as a public body they people talking—“Don’t talk over children,” and so on. have to behave reasonably, so I don’t believe that any To what extent do you see the place for learning about school would—well, any school would simply not be those things as being in initial teacher training, or does permitted to—act unreasonably in giving a detention it have to be in continuing development and on-the- to a child who has caring needs, or who lives, as was job training? If it’s the former, how much does initial pointed out by Tom Trust, in the middle of a rural area teacher training have to be changed to make more with transport problems. Of course, those schools will space for learning those techniques? take the appropriate measures, but do you think it is Mr Gibb: We are reviewing the QTS standards, and I right for the House of Commons to pass a law telling think that’s very important. There should be greater a school how to run detention? It does seem focus on those behavioural management techniques, extraordinary. We need to get away from this but as Alan Steer pointed out in one of the sessions, prescriptive approach to our schools. continuing professional development is important; learning these things in the school is important. That’s Q264 Lisa Nandy: I’ve worked with young people why we also want greater focus on graduates—people who have caring responsibilities for several years. coming into the teaching profession—learning in One of the most striking features about that is that schools, in school-centred initial teacher training. they are often very reluctant to tell people—friends, peers, teachers, anybody—about what’s going on at Q261 Damian Hinds: It struck me when Sue Cowley home. So my question for you is, if you’re expecting was speaking earlier that a lot of what she was saying schools to behave reasonably, how can those schools about the way you interact with and tailor your behave reasonably if they simply don’t know that approach to individual children means that it probably those young people have those responsibilities? is rather difficult to teach to a teacher, as it were, in a Mr Gibb: Well, perhaps they ought to know. If a systematised way. You would have to learn more from school decided to give a no-notice detention to a child observing other teachers and a bit from trial and error. who had these responsibilities, and it did prove a Is there more of a role for buddying and that sort of problem, so the child simply left, it would soon thing even after initial teacher training? become clear to the school that that child had other Mr Gibb: I think so. If you talk to experienced issues. I think most schools are aware of these issues. teachers and the trade unions, they say that what I think we have to trust professionals who run our cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Education Committee: Evidence Ev 69
17 November 2010 Nick Gibb MP schools—trust the head teachers, trust the teachers. take a differential approach to the general school They are professional people, and I believe they know population. Yet in earlier evidence, people have said what they are doing in running a school. What we consistency in disciplinary matters is most important. have to do—certainly the approach of this So which one are we going to have—consistency or Government—is to liberate them to run the schools as differentiation? they see fit, and not always to prescribe every dot and Mr Gibb: They are not incompatible. I think it was comma on when and how they can run detentions and Sue Cowley who said in the earlier session you have how they can run their schools. to be flexible when it comes to the particular needs of particular children. What consistency means is that Q265 Lisa Nandy: I understand that, Minister, and I when you speak out in the wrong way, or swear at know that that’s the direction that the Government a teacher, you know that the following will happen, have said they want to take, but obviously there are a regardless of which teacher is taking the class. That is couple of really key issues there. One is that schools what consistency means—there are systems in place, tend not to know about those issues, and if they don’t as Katharine Birbalsingh pointed out, that will know then they won’t be able to behave responsibly. automatically kick into place when poor behaviour That will cause extreme damage for that young person happens. That will apply to all the children in the who then is sitting at school thinking “I’ve got a school, including those who have special needs, mother”—or a father or a younger sibling—“who is difficult home lives or caring responsibilities. But in desperate need at home, and here I am completely when it comes to things like detention or the trapped.” And it will cause issues for the school as completion of homework, of course you have to take well, because the school will be failing in its into account the home lives and the responsibilities of responsibility to that young person without ever those children—schools do do that. having known about it. Mr Gibb: It won’t just be the detention issue that will Q270 Lisa Nandy: A number of organisations have be a problem for that child. It will be a whole range said to us that they consider the response that you of issues. I would hope and expect that the issue have, essentially, given us, which is that you want would have arisen and come to the notice of the schools to be able to discover those things, is putting school before the first detention was made. For the cart before the horse. I urge you to take that very example, issues of homework being completed, and a seriously when you talk to those organisations. I want whole host of other issues, should have come to the to ask you one further question. We have heard very attention of the school before that time. little support for another proposal from the coalition, to end the right to an appeal against permanent Q266 Lisa Nandy: I understand you’ve had exclusion to an independent panel. Can you tell the conversations with organisations that represent young Committee whether you still intend to go ahead with carers. Are they supportive of the approach? that measure? Mr Gibb: We are engaged with a carers strategy and Mr Gibb: What we are concerned about is the we do want to have a better identification. I have not circumstance in which a head teacher expels or met the carers people yet, but I will do soon, in due permanently excludes a pupil—for example, for course. carrying a knife or for attacking another pupil or a teacher. That child is then excluded, there is an appeal Q267 Lisa Nandy: You will commit to doing that. and, as a result of the appeal, the child comes back Mr Gibb: I will do so. to the school. When that happens, it undermines the authority of the head teacher and the teacher. It is an Q268 Lisa Nandy: Will you talk to them very unacceptable state of affairs. You will have to wait seriously about whether this is in fact a good idea? until the White Paper next week, please, but when Because I put it to you that there are serious concerns we were devising our policy, that was one of our key about the impact on that group of children and young priorities. The other thing that we wanted to ensure people, quite apart from the other groups that we happened was that the child being excluded was being heard about in the earlier session. excluded fairly. We need to make sure—this is the Mr Gibb: I understand the argument, but the key is imperative that led to the establishment of the identifying who these children are, and it’s not just the independent appeal panels—that a capricious decision issue of detention that makes that important. We do cannot happen when it comes to excluding a pupil want to ensure that all schools are able to identify permanently from a school. We need to make sure that those children who have these kinds of responsibilities pupils who have committed a serious offence within at home. These measures do have the support of the school don’t come trotting back into school, teachers, and some of the teaching unions, though not undermining the head teacher’s authority. all, support them. Q271 Lisa Nandy: It seems strange because Sir Alan Q269 Ian Mearns: On the back of that, Minister, I Steer’s report came out very strongly against the sort think overnight I heard a report that there are four of measures that you seem to be indicating will be in times as many youngsters who have these caring the White Paper next week. responsibilities in their own home than previously Mr Gibb: There are differing views on a range of thought, and we’ve got to find out the evidence for issues, of which that is one. We agree with much of that. It seems to me that you’re implying that for those what Sir Alan Steer has said. For example, on setting youngsters who have those responsibilities we should by ability or children sitting in a seating pattern in a cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 70 Education Committee: Evidence
17 November 2010 Nick Gibb MP classroom—all these are good practice, and we accountability measures. They will look at all kinds support his 10 principles, but on that one issue we of issues as well as exam results, such as behaviour. disagree. In the Department, we want to get the information that we have about schools out there. It should be available Q272 Chair: So are you planning to have some form to the public to look at; it shouldn’t just be sitting on of internal right of appeal? You said that you wanted computer discs for Ministers. to stop capricious decisions, but that is impossible— the only way that you can stop capricious decisions is Q275 Neil Carmichael: The other question relates to to have some mechanism by which to correct them. the curriculum, which we have talked about; the kind Mr Gibb: Again, patience—I have set out the issues of curriculum that we will be seeing is going to be that were concerning us, which are about ensuring that slightly different and you have announced some plans head teachers have— already. The key is how that will be sure to engage Chair: I’ll take that as a reassurance that you agree the pupils, and whether it will be something that we with my analysis. can be confident will help disciplinary and behavioural issues in schools. Q273 Lisa Nandy: May I ask you one last question, Mr Gibb: What’s important when you devise a Minister? I am concerned, in light of your answer to curriculum—and again, we will be announcing the the previous question, that there are not sufficient details in due course—is that it will deliver the safeguards in the measures you are pressing ahead education that our young people need in this country with for some of the most vulnerable children. Will for the modern world. We need a well-educated there be safeguards for the most vulnerable children society. There will be things in the curriculum that in the system that you are proposing? are challenging, difficult, and not necessarily fun or Mr Gibb: Of course, the driver behind all our policies immediately interesting, which is what education is is to help children from difficult backgrounds, and the about. That is why it is called an academic discipline most vulnerable are our key priority. We want to close because sometimes, it’s hard. Learning long division, the attainment gap for children from poorer families or tables, or learning to read is hard, but once you can and between children with special needs and those read and you’ve mastered that basic skill, it’s a joy that have no special needs. That is an overriding for children to read books. I feel very strongly that— objective of this Government, so you can be assured and this evidence was in some of your earlier that every policy that you see in the White Paper will sessions—if children can’t do things, that is a cause have built within it safeguards to protect the most for them to start to misbehave. I think we all would if vulnerable. we were in an environment where we were expected to be able to do something but we hadn’t learned how Q274 Neil Carmichael: We’re all looking forward to to do it and were struggling. It makes people the White Paper, that’s for sure. misbehave and be disruptive, and that’s what we have I want to test this question of accountability, which to tackle. we discussed in the evidence session when looking, for example, at the role of head teachers and Q276 Neil Carmichael: So, higher standards and leadership. You emphasised that a moment ago. You improved teaching are obviously the solution, and we have also said that you don’t want a top-down would all agree about that. In a sense, what we are approach, which is consistent with the coalition saying is that the ethos and overall feeling of the Government. So, how do we hold head teachers and school is really the key driver for improving leadership to account? Are we going to look at Ofsted behaviour. and look at that as an instrument, even if it does narrow down to four areas? Or should we be Mr Gibb: Yes. We must have high expectations of all strengthening governance? What mechanism do we children in our schools. I don’t think we should take have in mind to enforce this issue of accountability? the view that we need to make our curriculum easier Mr Gibb: It’s a good question and the answer is all of in order to raise the standards of behaviour; it should the above. Ofsted is very important, which is why we be the other way round. We need to raise standards of want to focus inspections on those four key areas, behaviour right across the board, so that children can which are teaching, attainment, leadership and learn more and schools can deliver a challenging behaviour and safety. On the results of the school— curriculum. That will equip our young people to its attainment levels—we want to ensure that the compete in a very competitive global environment in published results, or league tables if you like, don’t which emerging countries are educating generations have built within them perverse incentives for children of graduates to very high standards and where school to be put in for the wrong qualifications. And of leavers are highly educated. In a global world, where course, the whole structural reform process, of jobs are also now global, we want our young people allowing new schools to enter the system—the who are educated in this country to have a good academies programme—is all about giving parents chance of competing for those jobs and that business. genuine choice. It’s accountability to parents rather than Government that matters and opening up the Q277 Chair: How do you stop you yourself from school system so that increasingly—not immediately, ending up as a bit of a Gradgrind? Isn’t this relentless because this is a big capacity issue—parents will have focus on standards and measurable outcomes taking a genuine choice in where they can have their children the enjoyment out of teaching and the joy out of educated. That is the most powerful of all the learning in too many cases? cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Education Committee: Evidence Ev 71
17 November 2010 Nick Gibb MP
Mr Gibb: Why do you say that? What is there not to schools. The best schools have huge extra-curricular enjoy in teaching a child to read effectively and to see activities. No one has required them to have those the joy they have in reading book after book extra-curricular activities, but all those things—good throughout primary school, or in a child grasping pastoral care, good extra-curricular activities—lead to some of the complexities in the physics curriculum? higher standards in the schools. That’s what we need That’s what education is about and most teachers have to try and foster. It’s our belief that the way you foster come into the teaching profession to teach their that is to take away the bureaucracy and impositions subject. We need to liberate them to enable them to from the centre that stifle innovation and crowd out do that. teachers’ time.
Q278 Charlotte Leslie: My swimming coach used to Q281 Charlotte Leslie: Does it stifle compassion as say, “No pain, no gain.” I think it may be something well? we’ve forgotten to tell young people. The best Mr Gibb: I think it probably does. If you are a teacher achievements and the best things come after you’ve faced every two weeks with a new missive arriving worked quite hard to do them. That’s my little from the Department for Education or one of the contribution. arm’s-length bodies telling you that there’s a new Chair: Who’s next? approach to doing this and that, it does undermine your morale and take up time that you could be Q279 Charlotte Leslie: Thank you, Chair. I’m going spending on dealing with a child’s needs. to ask about exclusions. I was very interested in what Lisa had to say about children who have caring Q282 Charlotte Leslie: Moving on—sorry for that responsibilities. I was very shocked by what you excursion—to exclusions and academies, there’s quite said—that no one at the school actually knows— significant evidence to suggest that academies use because I think it’s absolutely vital that in our policy both fixed-period and permanent exclusions more than we take care of the most vulnerable. To what extent local authority schools. First, do you think this is the do you think that structures such as 24-hour detention case? Secondly, is it of concern? Thirdly, does it put and structural safeguards have removed the feeling of an excessive burden on those local authority schools responsibility from the teachers for their own that remain, which are left with the more difficult interaction with their pupils, and their own children? understanding and professionalism towards their Mr Gibb: I think you’ll find that the figures show that pupils, towards simply depending on a very crowded over a period, they don’t exclude more than structured basis where children just move through a maintained schools. What does tend to happen in mincemeat machine of structural safeguards? Do you schools in very challenging areas is that a new head feel that the removal of some of these safeguards or teacher comes in—that can happen in the maintained structures would re-emphasise to teachers that it’s sector or in a new academy—and, wishing to their professional duty to understand and know their establish, might make his mark on the school by children, which surely must be the basis of good establishing new behavioural policies and bringing in learning? a new uniform and a new approach. They can exclude Mr Gibb: Talking to teachers, I think they feel that the a large number of pupils in those early years, but once balance between rights and responsibilities between the good behaviour is established, those exclusions adults and children—pupils and teachers—has shifted, fall off. What does concern us is that there are 300,000 or the perception has shifted, too far towards the pupil. fixed-period exclusions every year, and 20% of young So you will get children saying, “I know my rights, people who are excluded are excluded three times or miss. You can’t touch me,” or “You can’t keep me more in a year. That’s a worry. We have to tackle that. here.” I think that does undermine the confidence of teachers. The message we want to send out is that you Q283 Charlotte Leslie: That was my second do have those rights, and we’re going to clarify them question, really. What sort of scrutiny will you be so that you yourself are clear that you have those using to make sure that schools aren’t overusing fixed- rights. period exclusion? Is there anything you will be doing? You don’t want to be top-down. Q280 Charlotte Leslie: Do you want to move Mr Gibb: One of the reasons, of course, is that head responsibility? In good schools that I go to, I know teachers are deterred from excluding permanently, and that the teachers have a very personal relationship that’s why we’ve seen a decline in those figures and a with their pupils. The pupils that you see feel that significant rise in temporary exclusions. But what there’s someone there for them. In my view—I don’t good practice around the country shows is that early know what the caring organisations would say to intervention—not in the sense of very young children this—that is by far the best way of dealing with but when problems are identified in secondary schools children with caring responsibilities, because it’s not and specialists are brought in before the children get just the detention that’s going to be an issue but all to the point at which they are going to be excluded— sorts of other things. How do you foster, through is the right approach. There are lots of examples of political structures, an atmosphere where teachers take shared expertise, of using the expertise of those in the a professional personal responsibility towards the third sector who are experienced in helping children children they’re teaching? with behavioural problems. Spending a day a week Mr Gibb: It’s a difficult thing to do in a top-down with the London Boxing Academy for example, or way, but that pastoral care is what happens in the best any of these organisations, can turn the children cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 72 Education Committee: Evidence
17 November 2010 Nick Gibb MP around. There is a very good example in Horsham result of exclusion. Pupils need to remain the shared of a virtual PRU. Four secondary schools use a non- responsibility of all in a locality.” Is it right? maintained special school that specialises in Mr Gibb: You don’t need to force people into behavioural policy, and young people who are in partnerships. The best partnerships are voluntary. In danger of exclusion go to that school a couple of days one of the earlier sessions, you had Sue Bainbridge, a week to do photography and things that interest and I jotted down what she said. She said: “in places them, and that addresses their behavioural problems. such as Bradford, where they have a really strong That is the kind of imaginative approach that we need partnership and operate in three different clusters. to see in our schools. They have engaged in those partnerships because they wanted to and not because anyone told them to.” So Q284 Charlotte Leslie: As the local authority, under you do have to trust professionals, and we are moving what we imagine might appear in the White Paper, into a world in which we are going to be trusting becomes less of a player—less of a provider—in the schools, teachers and head teachers and taking away school landscape, do you think that that will be statutory requirements to do things such as that. But detrimental, or will it be an opportunity for the better I believe that people will want to work together as provision of alternative provision, which hasn’t been professionals. In addition to that, of course, there is great? the Fair Access protocol in the admissions code. It is Mr Gibb: No. Again, you’ll have to wait for the White still there, and will remain. So I don’t think that just Paper, but I think that we do need to harness that vast because you take away an obligation an activity pool of expertise and experience that lies in the third won’t continue. sector. We also need to look at what’s happening in the best PRUs. Ofsted has graded 69% of them as Q288 Craig Whittaker: I hear what you’re saying, “good” or “outstanding”, but that does mean that a but what about the better schools? What about the whole bunch are not, which is a worry. I think that schools that have the best pupils? Are they not going something like one in five of them are graded as to benefit by disadvantaging the schools that don’t or “outstanding.” So, we need to harness that experience, won’t get involved, or those that are poorer and the experience of the third sector, and bring that performing? expertise into schools. Mr Gibb: They’ll still be subject to the Fair Access protocol, which is designed to prevent all the children who have been excluded going into one particular Q285 Charlotte Leslie: Will anything replace the school. My perception of the head teachers in this kind of structural support that the local authority country, even those who run high-performing schools, provided? I want to think about behaviour is that they do not want to be an island unto partnerships between schools. Will anything replace themselves; they believe in working with other that, or will schools be expected to simply replicate it schools. I believe that that will continue, through professionalism? If so, and if they don’t, will notwithstanding that you take away a statutory there be any measures to ensure that there isn’t a obligation. vacuum left where once a local authority was? Chair: We’ll come on to partnerships in a minute. Q289 Craig Whittaker: Let me come to the move Minister, if you could answer on the other issue. away from reliance on the local authority. Are there Mr Gibb: Very early on, the Secretary of State any services that you think need to be provided by the established a ministerial advisory group of people local authority to allow both the benefits of economies from local government and the education world to of scale and for cases that need an urgent response? look at what the structure of a post-academies world Mr Gibb: There will always be a role for local would be like. A lot of the ideas that you’re talking authorities in education. For example, they need to about have been deliberated on in that discussion, and have the role of being the champion of pupils and some of the conclusions from that group are in the parents. If they look at the schools in their area and White Paper, which you’ll have to wait for, but not see an inadequate number of places or poor provision, for very long. they have a role in ensuring that the provision rises, by inviting in and cajoling or by encouraging new Q286 Chair: When will it be out? schools to be set up in the area. They will have a role Mr Gibb: Very soon. Very soon, indeed. in low-incidence special needs, of course. Even in a Chair: You can’t tell us precisely when. system where all schools are autonomous, schools will Mr Gibb: Very soon. want to buy services. They may well buy them from their local authority or from another local authority. Q287 Craig Whittaker: A lot of people have written They might decide to form their own clusters or in to the Committee about the requirements for groups of schools to buy goods and services in a more schools to join behaviour and attendance partnerships. cost-effective and economical way. Birmingham City Council’s behaviour support service said that it regretted the Government’s decision to Q290 Craig Whittaker: What evidence is there to remove that requirement, and argues that allowing show that autonomy is what schools want? “schools to ‘opt out’ of working with neighbouring Mr Gibb: We are persuaded by the evidence from schools and local youngsters will lead to additional around the world that autonomy is commensurate with pressure on a smaller number of schools, a fractured high standards. The OECD has done a lot of research, education system and more pupils out of school as a and the two key features that high-performing cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Nick Gibb MP jurisdictions around the world have in common are convinced that a school applying for academy status autonomy and clear external accountability is capable of managing itself as an autonomous mechanisms. That is what we’re driven by. academy, he won’t sign the academy order. It won’t happen if we’re not convinced of that. Q291 Craig Whittaker: Do our schools have the skill set and the capacity to undertake that role? Q295 Chair: In a more autonomous world, will the Mr Gibb: That’s why the academy programme has responsibility for permanently excluded pupils been set out in stages. We invited all schools to apply, continue to rest with the school and not the local but those that are rolling forward in the first wave are authority? the schools that are graded by Ofsted as outstanding. Mr Gibb: Again, we have been deliberating on these We are sure that those schools have the right important matters. Without wanting to sound boring, leadership. At the bottom end, we will be encouraging please wait for the White Paper, which will have a lot academy sponsors to come in and help the poorer- to say on those issues. performing schools that we are not sure have the right Chair: Whether it’s Monday or Wednesday next leadership to develop. week. Mr Gibb: It will come out very soon. Q292 Craig Whittaker: So with the exception of academy sponsors, what other skill-set programme Q296 Pat Glass: In a similar vein, you said earlier in will we put into schools, so that they can take on the answer to a question that the Government are looking role of being autonomous and not rely on the local to support children from the most difficult authority? backgrounds. I have worked with the most specialist Mr Gibb: What do you have in mind? schools in behaviour and with some of the children in those schools who have incredibly challenging Q293 Craig Whittaker: I’m not the one who is backgrounds. Almost universally, those children come making the policy; that is you. I am just saying that from homes in crisis and in the most awful we currently have a situation in which a lot of schools circumstances. As a head teacher, I would look to are heavily reliant on local authorities. We are going bring in all the agencies that could support that child to take that away and give them more autonomy. I’m and that family—the police, child and adolescent not convinced—some of the evidence says that we are mental health services, social care, the NHS and so not convinced—that they have the skill set and the on. At the moment, the local authority acts as the capacity to deliver that autonomy. I have asked what broker and, as I said, the school holds the ring. In your we will do as a Government to support the skill set new autonomous world, who is going to replace the and capacity raising, apart from introducing sponsors. local authority in doing that? As the head teacher of Mr Gibb: It’s not about taking the scaffolding away an academy, where do I look for that support? tomorrow, but about moving over a period of time to Mr Gibb: As you know, from next September,4 we a position where schools have autonomy. Schools that are introducing the pupil premium. By 2014, that will we do not feel have the right leadership will not be be £2.5 billion a year. We are still consulting on how fast-tracked to become academies. We are starting that will be allocated and on the definition of the with schools that are outstanding, and we have now children who will qualify for it. It will go to schools announced that schools that are good with outstanding that have a high proportion of pupils such as those features will be able to become academies. We expect you are referring to, and the money will help head all those academies to take with them, or help, a teachers to buy the services that you are talking about. school in the local area that has poor leadership and That’s the essence of what we intend to do. think that is struggling. That is a way of getting those skills head teachers want that responsibility. They don’t spread more evenly across the school system. The want to always have to pick up the phone to somebody Secretary of State has also announced a doubling of else and tell them what to do. They want the the number of national leaders in education— autonomy and decision-making power to help tackle exceptional teachers around the country who have the education and special needs of those children in already provided services and support to neighbouring their care. If they don’t want to do that, they won’t schools or schools in other parts of the country. When want to apply for academy status. they provide that support, the standards in those schools rise. It is about using the existing stock of Q297 Pat Glass: To be fair, schools have got more exceptional heads to spread expertise around the money now than they’ve ever had. It’s not a question school system. of money. Giving the pupil premium will not make that happen; it is about the responsibility for pulling Q294 Chair: Minister, have you done enough on this together and co-ordinating all those agencies. As a transition? If we’re moving from a less autonomous head teacher of an academy, is that really going to fall world that is supported by local authorities to a more on me? It is not just about standards or managing my autonomous world, there is a transition period in school and teachers; I will also have to manage what which that capability has to be grown. Have you was previously done by the local authority. thought about this enough and put enough support in Mr Gibb: Yes, but as a head you don’t have to do all place to allow that transition to have as few downsides those tasks yourself. Heads can delegate such as possible? activities to specialists. We have the targeted mental Mr Gibb: The Secretary of State has to sign off every 4 Witness correction: The pupil premium will be introduced school that becomes an academy. If he is not from April 2011, not September. cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
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17 November 2010 Nick Gibb MP health in schools initiative, which is about bringing strategy, but I share your concerns and the concerns those specialist services into the school. It does not all of the witnesses that you’ve heard from in terms of have to land on the shoulders of the head teacher. access to those services. I think it was Alan Steer who Most heads want the responsibility and decision- said that it was nothing short of a national scandal. making power to take such decisions and not have to We need to address it. If 10% of our young people defer to others. Most professionals respond to that aged five to 16—that is what the figures show—are very well and rise to the occasion. We want to ensure suffering from mental health problems, it cannot be that those services are available. One thing that has right if a teacher identifies a serious problem and tries come out of the evidence sessions is that there are to access the CAMHS service but finds that they can’t. problems with the CAMHS service and that access to That cannot be right. It is a set of circumstances that it is not adequate. I take that point and share the we can’t allow to continue. concern. I hope that we as a Government will take those things on board. I know that the Department of Q300 Ian Mearns: On special educational needs Health wants to raise the importance of mental health provision, an important part of the process for young and put it on a par with physical health in terms of people as they are assessed is the need to see an health indicators. There is a seriousness about that educational psychologist. I’m sorry to say that issue in the Government. I take your comments on successive Governments have got the provision of board, but I think that most head teachers relish the responsibility. educational psychology wrong. In training, for instance, we are currently having a massive problem in terms of the number of local authorities that haven’t Q298 Pat Glass: I think we differ in that. I know been subscribing to the training programme. Prior to thousands of head teachers as well, and I have rarely this, it was top-sliced, and the number of trained come across any who see their job as about co- ordinating the police, social care and so on. We will psychologists produced annually wasn’t enough to move on from that. meet demand. We are looking at a profile of the Let us take those children whose lives are not awful profession that shows that we’re going to have a enough to hit the thresholds whereby agencies such as significant problem within a relatively short period. CAMHS, social care and the police would get What do you think the Government need to do to involved. Currently, co-ordination of that would lie address this problem in terms of training needs, but either with the education social work service or the also on the provision of educational psychology? education welfare services in local authorities. There Mr Gibb: This is something that the Government are is an increasing number of academies, and as they looking at. It is important. I know that there has been take their funding out of the local authority, we will a freeze on recruitment of educational psychologists, hit a critical mass whereby local authorities will no but you will see more on this in the special longer be able to provide those services. In a sense, educational needs Green Paper that will be coming some children are not bad enough to need those out fairly shortly. strategy services. What will happen to them? Mr Gibb: If you are talking about social services, that Q301 Chair: What’s the update on when we can is a separate issue. If you are asking about the role of expect the Green Paper? local authorities in a world where an increasing Mr Gibb: Fairly shortly. number of schools are academies, the ministerial Chair: Before Christmas then. advisory group established by the Secretary of State is looking at that to see what their role will be and Q302 Ian Mearns: A quick question on speech and how it is to be funded. There will always be a role for language, and communications therapy. What have local authorities in the provision of education, and in you got in mind for that? the provision of central services. Because those Mr Gibb: Again, it is important that we identify early services may be purchased by schools, it may be children who have these problems, but you’ll have to decided that local authorities will provide those wait for the outcome of the SEN Green Paper, which services funded centrally—for example, low- is due shortly. incidence special needs. That is something that is being discussed at the moment with the local authorities. Q303 Ian Mearns: On funding, Charlotte was going to ask some questions about alternative provision, but Q299 Ian Mearns: We touched on CAMHS services that was dealt with earlier. But in terms of that, you in a previous sitting. Some people giving evidence said earlier that you want to get away from a situation described the current situation as nothing short of a in which Polish kids perform the worst. Pat said, when national disgrace. There are many examples where I asking you a question, that schools already have quite wouldn’t disagree. Would you consider passing a lot of money, but the trouble with that money is that responsibility for budgets and the commissioning of it comes through standards funds, additional all children’s community health services to local educational needs funds and area-based grants. I have authorities, in order to provide a more streamlined a funny feeling that the £2.5 billion pupil premium service to young people and their families? will absorb those grants and will not be extra to them, Mr Gibb: In terms of mental health, this issue has and that the redistribution will mean that some kids in now been addressed with the mental health strategy. the poorest areas will end up getting less. Could you We’ll have to wait to see what comes out of that comment on that? cobber Pack: U PL: COE1 [O] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Education Committee: Evidence Ev 75
17 November 2010 Nick Gibb MP
Mr Gibb: Other than the area-based grant, those other boroughs. You also have the example of Leicester grants that you have mentioned have been subsumed compared with Tower Hamlets. They will take a into the baseline of the schools funding. number of years to iron out.
Q304 Ian Mearns: Not in this financial year, they Q310 Tessa Munt: I want to talk to you about the haven’t. link between attendance and behaviour, which brings Mr Gibb: No, from the next financial year onwards. us back to the beginning of the session. The National Association of Social Workers in Education identified Q305 Ian Mearns: So is the general schools budget that the school board, as was, highlighted a range of going to grow by those amounts in the next financial barriers to school attendance as being poverty, mental year? and physical ill health, domestic violence, alcohol, Mr Gibb: Yes, a number of grants that are currently drug misuse and child cruelty. It says that those ring-fenced will form part of the baseline for school indicators are equally applicable to predicting poor funding. On top of that, you have the pupil premium, behaviour. Do you recognise a direct link between the which is why, over the four years of the spending causes of poor behaviour and the reasons for poor review, there is a real-terms increase in spending on attendance in school? schools. Mr Gibb: I think that’s true. I cited at the beginning the fact that a child from the poorest cohort is eight Q306 Ian Mearns: Just to be absolutely spot-on on percentage points more likely to engage in poor this, I was, until recently, the chair of governors of a behaviour than a child with parents in the wealthier secondary school in Gateshead that has something like cohort. Those children are also disproportionately 22% of its budget over and above age-weighted pupil likely to attend a school with poor behaviour. So the unit funding through standards funds and so on. Are question for us as policy makers is: what do we do you saying that that is being put into the pot and added about it? Other parts of Government are trying to to the existing pot for the general schools budget, and address those underlying causes, but our role here is that the pupil premium is on top of that? to make sure that children who come from families Mr Gibb: Yes, that is correct. with poor structures at home can at least come to a school that has safe structures in place. Other parts Q307 Chair: Does that mean that each school’s of Government are trying to address those underlying individual budget will remain the same, or could there causes, but our role here is to make sure that children be a redistribution based on a new assessment of who come from families with poor structures at home need? can at least come to a school that has safe structures Mr Gibb: It is flat cash per pupil. That is then in place. That is what we have to deliver as a public allocated to the local authority, which then allocates it service. to the schools. If those local authorities decide that one particular school in the area gets all the money Q311 Tessa Munt: I wonder how you envisage how and there is nothing for the rest, it is a decision for you might deal with poor attendance. Are you going the local authorities how they allocate that fund to take a stronger line on that? Are we slapping through the Schools Forum. But overall, there is flat parents into jail, or what? cash per pupil and, on top of that, you have the pupil Mr Gibb: We are going to continue to monitor the premium, so those schools that have high proportions numbers and have it as a priority for schools. We will of children who qualify for the pupil premium will continue with the current approach to attendance and have additional cash on top of the flat cash per pupil. use all the parenting orders and parenting contracts that exist at the moment. We are not intending to ease Q308 Chair: Is the flat cash based on the existing up on any of those issues and imperatives in terms of allocation to a local authority area? attendance. Schools will still be under the same Mr Gibb: Yes, they then allocate it to the schools. pressure they are now to ensure that they have high attendance. Q309 Chair: So, just as an example, Hull will continue to receive considerably more—hundreds and Q312 Tessa Munt: But the Education Welfare hundreds of pounds more—per pupil than East Riding Service has quite a low threshold for intervention. I next door? wonder how you envisage our moving from what is a Mr Gibb: You are now talking about the disparities in relatively punitive approach to a problem that is based funding between local authorities, which is something in different places. We may not, if we go back to that we want to address. That is why we have been Lisa’s point, be picking up those causes very well. I talking about, over a period, moving to the national just wondered how you see the interaction between funding formula with a view to trying to eradicate being relatively punitive to people who don’t attend those problems. The trouble is that it will take many and picking up those children who have a massive years before you can actually have a system that is problem. People may wish to hide that because they absolutely fair between local authorities. We have may not want to have intervention, because they may inherited this system that goes back many years and see that as being highly dangerous. is based on historic allocations. That can’t be right. It Mr Gibb: It is about schools engaging in their pastoral is unfair that areas such as Barking and Dagenham, responsibilities the best that they can—that is what it with all the deprivation that they have, have much is about—and about ensuring that social services, lower funding than some of the neighbouring which my colleague Tim Loughton is dealing with, cobber Pack: U PL: COE1 [E] Processed: [20-01-2011 12:57] Job: 006766 Unit: PG04 Source: /MILES/PKU/INPUT/006766/006766_o0004_Edc 17 November 10 CORRECTED.xml
Ev 76 Education Committee: Evidence
17 November 2010 Nick Gibb MP have the capacity to deal with problems when they are have. We had to make some difficult decisions, and informed about them and about a particular child from they were not taken lightly. We hope local authorities the school. You hear all too often that the social will be able to manage their budget and find savings. services departments of local authorities are stretched For example, we expect schools to deliver £1 billion and don’t have the manpower to tackle issues, and that overall in terms of efficiency savings through better has to be addressed; there is no question about that. procurement, and we will assist schools through That is, again, about trying to liberate social workers various tools and mechanisms to help them deliver from the bureaucratic burdens imposed on them, so those savings. We expect the same approach to be that they have time to behave as professionals. The taken by local authorities. common theme in this Government is about trusting professionals and liberating them to do the job that Q315 Chair: You didn’t directly answer my question. they want to do to the best of their ability, without At the moment, however they manage it, they are being inhibited and stifled by having to deal with form facing general cuts. Youth services and youth work filling and all the bureaucracy that is piled upon them. look to be facing catastrophic reductions. Is that a That is our approach, and I think it will be successful. balanced approach? Do you have concerns about it? If you trust professionals, liberate them and give them Mr Gibb: We have concerns about any spending cuts the time and space to do the job they love and want that have had to be made. We did not come into to do well, they will do it well. They will pick up, and politics, certainly not into the Department for then be able to focus on, these issues. Education, to make cuts. That has been made essential by the state of the public finances that we inherited. It Q313 Chair: Minister, there is early intervention and is not the ideal place that we want to be in. Yes, we there are schools, but there is another factor in the are concerned, of course. behaviour of young people in schools, which is the youth services provided outside. How are the Q316 Charlotte Leslie: On the back of that, do you professionals in youth work being liberated by 50% see specific tension between devolving a lot of activity cuts and the removal, in many cases, of services that towards the third sector—the big society stuff—and have contributed to engaging young people and the fact that a lot of those third sector organisations helping them learn to behave, not only in schools, but gain an awful lot of their funding from local outside them? authorities? There is a tension between wanting more Mr Gibb: Local authorities have to fulfil their third sector involvement and the effects of the local statutory functions with the resources that they have. authority cuts, which means that there is less third It is a difficult time that we are living in; we are faced sector involvement. with a huge budget deficit of £156 billion. It is the Mr Gibb: Yes, but we also are devolving budgets to worst in the G20, and we have had to make some very decision makers, whether it is schools or elsewhere, difficult decisions that we would not wish to have who can then purchase those services. On the one made. hand, the local authorities are having to make some very difficult decisions themselves on how they Q314 Chair: You rightly boast of your success as allocate scarce resources but, on the other hand, we Minister in protecting schools’ budgets, relatively are giving de-ring-fencing funds that first give local speaking. Absolutely, but are you concerned, on the authorities more flexibility but also give head teachers other hand, that youth work is facing what looks like the power to spend money on acquiring services from pretty catastrophic reductions in service? Is that an the third sector, which they previously may have been unbalanced approach? required to purchase from the local authority. That Mr Gibb: These are very difficult decisions that had flexibility will assist the third sector certainly in the to be taken. They were not taken lightly. We are long run. expecting people to do more with less. A great deal Chair: Thank you very much indeed for giving of deliberation took place over the summer on how evidence to us this morning. we can get more out of the limited resources that we cobber Pack: U PL: COE1 [SO] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Education Committee: Evidence Ev 77
Wednesday 1 December 2010
Members present: Mr Graham Stuart (Chair)
Neil Carmichael Charlotte Leslie Nic Dakin Ian Mearns Bill Esterson Tessa Munt Pat Glass Craig Whittaker ______
Examination of Witnesses
Witnesses: Dr John Dunford, Education Consultant, Bill Gribble, Behaviour Management Trainer, Jacquie Nunn, Director of Improvement and Training, Training and Development Agency for Schools and Andrew Winton, Manager, Voice of Young People, London Borough of Havering, gave evidence
Q317 Chair: May I welcome our witnesses? This is until, by Christmas, we had the situation that every a formal session as opposed to an informal seminar. It child knew that they could disrupt their classes as is none the less a closed session, and the record will much as they liked because at the end of the day the be published when our report is produced some time school wasn’t going to exclude them. This seems to next year. If it is necessary to bring in any of our other me to go counter, potentially—because of this funding advisers who are not on the panel, I may do so—I situation at the moment—to the very welcome warn Hansard about that. message in the report that the Government want to Thank you all very much for coming this morning support head teachers on good behaviour and to give evidence to our inquiry into behaviour and discipline in schools. I just give that as a warning. discipline in schools. The biggest theme that has come out is the need for consistency both within and Q319 Chair: Jacquie, would you like to come in on between schools in terms of setting policy and ethos this? within the institutions and ensuring that everybody Jacquie Nunn: Not specifically on this issue, because knows where they stand, whether they are a member it is beyond the remit of the agency in terms of school of staff or a pupil. We are moving now towards the leadership and so on. end of this inquiry and coming up with If there is one key message that I have for the recommendations to Government. If you had one Committee, it is about the importance of early and recommendation above all, what would it be, Bill? continuing CPD for teachers, building on the Bill Gribble: For me, the thing that has come out that experiences we have that are broadly positive in initial you must not lose is the whole concept of the school teacher training. There is also a very strong sense that retaining responsibility for a child, even if they are initial teacher training gets new teachers up and excluded, and a continuity of provision of some sort, running and gives them the basic skills to function in whether that be in terms of personnel or otherwise. the classroom, but that it’s very far from being a But it doesn’t need a teacher to do that. You’ve started complete journey at that point, and that they need to get a few pointers in there that we don’t necessarily strong support once they get into their first schools, need teachers to do some of these jobs, and I think particularly when they are moving between different you are quite right. So succinctly then: money environments for training. There is some disjunction following the child and continuity of provision to give for those who are training in—for the sake of a full educational experience. argument—relatively leafy suburbs and then move to work in the inner city and perhaps encounter Q318 Chair: John, I know you have some thoughts difficulties that they have not faced before. That is a on the issue of the school retaining responsibility for major issue in terms of an ongoing focus in the school the excluded child. for that development. Dr Dunford: Yes. I am very concerned about this Andrew Winton: I would like to come back to the measure because I think, particularly at a time of point made by John and Bill around exclusion. I difficult funding, that it would be very difficult for would argue that we need to look at the whole life of schools to afford good provision on an individual the child, and exclusion is not necessarily a positive basis for excluded children full time, so I think this is part of the process of bringing up children. In terms of going to act as a disincentive to exclusion. If you put looking at exclusion within the context of managing in place a disincentive to exclude students who behave behaviour—of course, when we look at behaviour, we very badly, the message that dribbles down through have to look at both positive and negative aspects—I the system is that the school can’t exclude you. This do not see it as being a positive process. Discipline happened in 1999 when the Government introduced within schools is very important, but I think we need circular 10/99—I think it was called that—which was to look at the consequences of exclusion and how we a disincentive to schools, and there were all sorts of can better provide for the needs of the young people ways in which David Blunkett tried to stop schools who often have some of the most challenging from excluding people to reduce the number of backgrounds. I agree with John that money needs to permanent exclusions. That message trickled down be made available to support those children, but I through the system during the second half of 1999 would also support the argument that they should cobber Pack: U PL: COE1 [E] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Ev 78 Education Committee: Evidence
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton remain the responsibility of the school, because they Q321 Chair: Can we move on to techniques for can then be managed effectively. managing behaviour? In the context of the White Bill Gribble: Having administered the aspect of 10/99 Paper, can you comment on whether you think it that was being discussed, I found, as an education contains sufficient incentives for partners to convene officer, that the difficulties that were being of their own accord in the interest of sharing best experienced in schools were just the same at a local practice and promoting school improvement? authority level. It is about a partnership and about the Bill Gribble: I think it’s excellent, but, at times, it can local authorities, which currently retain the money for be very inward-looking if that is done just within the the pupil referral unit system and alternative institution. I think those institutions need to look provisions, working in partnerships with schools. That outside and to other institutions. is not to say that they can’t exclude, but perhaps to say, “We can do something in partnership with you in Q322 Chair: Is there enough incentive in the White a trusting relationship, so there is no need to exclude Paper? Do we need to retain compulsory behaviour and we can carry a child on to another aspect of and attendance partnerships? education that is perhaps alternative and outside the Bill Gribble: Very much so. current school,” although, for parts of that child’s educational experience, they might still be in the Q323 Chair: You do need to keep the behaviour and school. attendance partnerships? We had a virtual pupil referral unit set up in the Bill Gribble: I think so. authority that I was in, where children were working Andrew Winton: I would agree with that. in different aspects and in different parts of the county Dr Dunford: I think they are very important. They doing different things, but they were still receiving, in have made a lot of progress. I think it is important effect, a relevant educational experience for them. I that schools should not be able to opt out of them, mean “relevant” very much in terms of the emotional because there is no great incentive for schools that and developmental level of the child, because often don’t have many badly behaved children to be in these these young people are very emotionally delayed. partnerships, and that means that they’re not taking their fair share of the burden. All schools should be Q320 Chair: What is there about the school retaining in these partnerships. responsibility that will make it more likely that there will be better provision? Q324 Pat Glass: We heard this morning and in Bill Gribble: They can go back to school at some earlier evidence about the importance of parents, of point—that metaphorical umbilical cord between the culture and ethos within a school, and of its education and the person, which can never be repaired leadership. It is almost a three-legged stool—if one leg isn’t there, it falls over. Would you agree that all emotionally, hasn’t been cut. There is always a way schools should be making effective links with parents? back. To cut that at an early stage for the child is What is it that the good schools are doing that we can almost unforgivable. It is about giving us the recommend that all schools do? opportunity to help a child to go back into the Bill Gribble: Bringing parents in. They are a educational environment rather than excluding them community in the very sense of the word—they are from it, or encouraging them to go elsewhere. I have an essential part, in essence, of that school found many young people being encouraged to go— community. When I was in mainstream school, the inappropriately, because they are vulnerable already— best learning assistants I had were those who were to further education establishments to seek their mums within the community. It was people who knew educational experience. They are in an even more what was going on in that community. It was vulnerable situation there, and many of them didn’t community-based, and the schools were opening their have to carry out the same rigorous attendance doors to the community. procedures as were carried out in mainstream In terms of behaviour, if you are developing education and they just disappeared from the system. behavioural contracts in school for difficult young The societal cost of that, at a later stage, is vast. people, if you exclude the parents from those contracts Working in great partnership with many of Andrew’s and don’t reach out to the community, you are missing members, we were able to find where those young a real opportunity. people were and to try to re-include them in the educational experience. Q325 Craig Whittaker: May I go back a little bit, Andrew Winton: I just want to say that there is also a because I want to ask particularly about what our question of whether exclusion should be considered paper here says about the role of governors in as form of discipline or punishment. I think that there supporting that? One of the biggest issues that are certainly situations when a young person’s governors come to me about is the fact that we put too behaviour is such that, in order to enable other young many burdens and too great responsibilities on them. I people to learn and teachers to teach, they need to be just wonder whether this is a step into the running of removed from the classroom environment. However, the school. How does it fit? I am bit concerned about exclusion—and certainly permanent exclusion—has us putting more emphasis on school governors, such a cataclysmic effect on the life of that child that particularly when it should be the head teachers and to view it as a discipline measure is an admission of the leadership of the school that take that failure. responsibility. cobber Pack: U PL: COE1 [O] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Education Committee: Evidence Ev 79
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton
Dr Dunford: What I don’t think you’re saying, and no link at all—“Oh, that’s the school over in Yeovil,” certainly you are not to say, is that governors should or wherever it might be. come in and do it, or even know how to do it. There Bill Gribble: And school isn’t a building, is it? is a notion that governors are, in a sense, almost a link Dr Dunford: School is a community. You go out to between the school and the parents, and can be an that community. early-warning system for the school of when the parents are not happy about things—I think that that Q330 Tessa Munt: And the other thing is that we is their role. have to take account of working parents. Dr Dunford: And this is jolly difficult for schools that Q326 Chair: Do you think that the White Paper, have 40 or 50 different primary schools feeding into which is saying that a national college is going to take them and take from a hugely wide area, but most on a particular role in training chairs of governors so schools have some distinct communities that they can that they can do this strategic challenge of heads and go out to. assistants— Andrew Winton: Excellent. Q331 Bill Esterson: We talked earlier about parents Dr Dunford: It is a very small start, but an important who don’t want to engage and the impact of that. Is it one, on a much bigger problem. enough to try and engage with them? I suspect not, Chair: Does everyone agree with that? but I would be interested in your views. Neil Carmichael: Can I just tease that one out a bit? Andrew Winton: Yes, in terms of the work that my Chair: You’re going to, Neil. Go ahead. members would be doing working with parents when their children are not attending school, those are some Q327 Neil Carmichael: What I think is inappropriate of the most difficult to engage parents. We don’t apply about the way in which we select governors at the enough resources to this, and it is certainly something moment is that they are representing things, rather at the moment that resources are being pulled away than the skills that they have. I would like to hear your from. We have to argue that that work in its general, views about that because— broadest format is the most important thing that we Chair: Neil, sorry, I’m going to cut you off. I hate to need to be focused on now. be so brutal, but I think that is taking us into broader Bill Gribble: When I was a head teacher, the issues of governance, which I think is fascinating, but education welfare officer was my eyes and ears in the not on behaviour. community—and certainly my eyes and ears for early warnings of problems with particularly vulnerable Q328 Neil Carmichael: Not really, because one of children either coming into the area or developing the skills that they should have is about behaviour within the area. They also had links with youth management and so forth. workers. Youth workers have different skills; they are Chair: Very briefly then. much more local, and those channels of Dr Dunford: I am a great supporter of what you said communication would be opened up accordingly. It is about skills versus representation, but behaviour about the systems that you’ve got, but it is also about management is not one of the skills. opening up those systems to reach out to parents. Bill Gribble: Yes, I agree, but they can bring their experience to bear. I think we were talking previously, Q332 Bill Esterson: So it is very important that before we came into this session, about the importance education welfare officers and youth workers are of bringing life skills into an educational environment. supported, and that we don’t see cuts in those services. It is vital, because that is the real world. Bill Gribble: That’s why I say school isn’t a building. Chair: Thank you. Craig, had you finished? Pat, did Jacquie Nunn: Just on the business of working with you want to come in? Oh no, sorry; it was Tessa. parents, and thinking about initial teacher training, currently in the standards we have got explicit Q329 Tessa Munt: I want to go back to this business recommendations and requirements about developing of parents. I think it is critical that parents are the ability to work with parents. We are at a point involved, but I would just like to pose to you the when we are looking towards the possible review of difficulties of being in a rural area. It is absolutely fine the standards for teachers. Looking at what it says in in first school; it is a bit of a problem in middle the White Paper, there is a shift in emphasis away schools, or once children get to about nine or 10 and from relationships between teachers and parents and a they are always travelling on buses; and it is strong focus on what happens in the classroom—with impossible when you go 15 miles to your senior subject knowledge and all the rest of it. In any review school. How do you bring parents in? of the standards, I would like very strongly to see Dr Dunford: I have had this issue as a head teacher. continuing emphasis given to beginner teachers’ I ran surgeries in the villages. understanding of how to work with parents. Tessa Munt: Ah! Great. Dr Dunford: Not many parents turned up to the Q333 Chair: Do we have any evidence? Everyone surgeries, but there you go. would like to engage with parents but the more Tessa Munt: But it doesn’t matter, because you are difficult the parental community, the more difficult it doing it. is. You are pouring resources into going out to engage Dr Dunford: And then it doesn’t depend on physically with people with whom it is very hard to engage, where the school is as to the extent to which parents instead of concentrating on making sure that the feel a link with it. Living 15 miles away you can feel school is a safe haven and a place where children cobber Pack: U PL: COE1 [E] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Ev 80 Education Committee: Evidence
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton come in and get the stability and the values that they Bill Gribble: And in terms of managing student don’t get at home. Where should the emphasis be? Is behaviour, there are mass variations and a mass of it possible to run a great school with great behaviour different competency levels. We were saying and discipline without any engagement particularly previously that there needs to at least be a basic level with parents, apart from those who voluntarily come of competence before going into the classroom, but I into contact? don’t believe that exists, particularly in terms of Bill Gribble: No. Categorically no; it isn’t. It is one behaviour. of the key principles underpinning the Steer report as well. Of the six core principles, I think two are given Q336 Charlotte Leslie: Is it also the case that it is over to parents. almost better to have no one do it at all than have Dr Dunford: I was going to mention the the figure of authority prove themselves incompetent, recommendation in, I think, Alan Steer’s first report because that encourages kids to say, “Authority isn’t for home-school support workers particularly working working—let’s rebel even more”? around children with bad behaviour. Actually a lot of Bill Gribble: There lies anarchy. secondary schools employ home-school liaison people, not just to work with people with bad Q337 Chair: We are nearing the end and we want behaviour. Good practice is that those secondary recommendations. Bill and John, how do we get that schools share those people with local primary schools, consistency? because actually they are working with the same Bill Gribble: You have a build-up of an initial level families. of competence that is expected before you go into the profession, and then there is an encouragement to take Q334 Charlotte Leslie: In our discussion before, I on other competencies to lead to other levels. was interested in the idea of the professionalisation of teaching. To what extent is it analogous to the medical Q338 Chair: So the TDA is not doing the job? profession, in which there is a canon of good practice Bill Gribble: It is doing the job. that is not prescriptive and specific, but one of basic Jacquie Nunn: Can I just comment on that? Some principles that generally apply and to which people 94% of our beginner teachers—NQTs—completing a can be referred when schools are in trouble? What is survey in February after they qualify say that their your view on something that is professional-led, rather training has been satisfactory or better, and 67% at than politician-led? primary and 69% at secondary say that it is either As an example, to see what comments you give in good or very good. What we have to get better at is response, we visited a school that had a very difficult the join-up between initial teacher training and what “hard to reach”—I don’t like those sorts of phrases— happens to them when they move into their full-time community. One of the things that happened was that role in school. they went into the homes and took the kids’ Xboxes Bill Gribble: Exactly. and consoles away, which—surprise, surprise— dramatically improved behaviour. What struck me Q339 Chair: Will the White Paper proposal to move was that, if you put the removal of Xboxes and from university-based to more school-based training consoles into a prescriptive canon of good practice, it improve the quality or lead to a deterioration? would never work, but is it worth striving to achieve Jacquie Nunn: I think it is to do with the a canon that says, “You should develop a relationship relationships. At the moment, our employment-based that is such that you are able to go into the home and trainees say that they are more satisfied with the do that”? training in behaviour. There are three reasons for that. The first is their status—they are employed in the Chair: Who would like to reply to the Grinch? school and, therefore, their status is different from that Andrew Winton: By taking the Xbox away, you are of the trainee teacher coming in for a 12 or six-week encouraging greater engagement between the child practice. That is the first thing. The second thing is and the parent, which is a very positive thing. You about continuity. Typically, a larger percentage of our mention the professionalisation of teaching, but it employment-based trainees move on to do their might be the professionalisation of all the other induction year in the school in which they had their workers in the school that needs to be focused on first. initial teacher training. For that reason, there is a pull- Teachers already have a very robust graduate training through—they are working within the same set of programme. If you look at education welfare, home- expectations, so we would expect them to be more school support work, learning mentors and so on, you confident. will see that many of them require no training Thirdly, there is an issue about mentoring and whatsoever. coaching. We know that the focus of the mentoring and coaching that they get tends to be more about Q335 Charlotte Leslie: I have experienced in my behaviour management and so on, whereas in the time a great variety. One chap didn’t even know university-led, rather than based, courses—they are all whether taking 48 paracetamol, which is what one girl very much school-based—there is a strong focus on claimed to have done, was dangerous or not. I was their subjects. I would say that, in teaching and working as a lifeguard and lots of people were learning, strong focus on subjects is as much about jumping up and down, saying, “We must sort this what we are here for in terms of engagement of out!” Is there great variation? children and young people in their learning. There is Andrew Winton: Huge variation. all to play for. I think there are enormous strengths in cobber Pack: U PL: COE1 [O] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
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1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton it, but it is not a simple equation between what fundamental principles of behaviour and attendance happens in a university-led partnership and a school- good practice. based one. Jacquie Nunn: That’s an issue to do with the design of the training and when things happen in the course. Q340 Chair: John, is this initiative going to make it Teach First has the summer institute front-loaded, so better or worse in terms of quality and consistency? that they have those six weeks before they move in Dr Dunford: I think it’s going to make it better, and before they begin teaching in September. In other because you have longer in a school-based course designs that would be stranded differently. That partnership. You are in the same place for a longer is one of the things that we are beginning to look at, time. In the end, behaviour is about building because, within that broad picture of general relationships with the pupils, and you can do that satisfaction about what they’re getting, there are some much better in the institution than you can as a student anomalies. There are trainers and providers that are just there for a short time. I think that it is important doing it better than others, so we need to find out the to keep a link to theory and to understand a bit about reasons for that. child psychology. Q345 Craig Whittaker: In regard to general Q341 Chair: Is it your understanding that that is satisfaction levels, is that actually because they do not going to happen? understand what they need to understand? Dr Dunford: I would hope that it is. I hope that the Jacquie Nunn: We would need more time to explore pendulum does not swing too far. that. We look at that in terms of special educational needs and their knowledge of diversity, English as an additional language, and so on. There is a whole range Q342 Chair: So, in your view, we need to make a of issues on which, in some ways, the deeper they get recommendation that the university element needs to into it, the less skilful they feel, because they begin to be maintained and that there needs to be a constant appreciate fully the range and complexity of the issues transfusion into the school system? that they will face on a day-to-day basis. Bill Gribble: Absolutely. And, at the other end, the Chair: After three-and-a-half years on this strength of the mentoring in school is vital for the Committee, I know how they feel. newly qualified teacher. If the mentoring is just an Bill Gribble: The other question is: is it desirable to add-on to somebody’s job within the school, it will have everybody as a super behaviour management fall by the wayside. The quality of mentoring in initiative-type person? Do you not need academics, schools is very important. too? That is why I go back to your professionalism idea. Could somebody not develop such skills over Q343 Craig Whittaker: I have two points. First, the time in their career route to become better in the fields White Paper clearly states that they are continuing of behaviour management, English, or whatever? It is with some of the pilots for university-based training, just another aspect. so that is not being done away with. Secondly, and I think that there are two levels. There is the initial most importantly, I want to challenge what Jacquie is competency level, which is what you are talking saying, because we have heard very clearly that about, that needs to be consolidated through the companies such as Marks & Spencer initially train mentoring process in school and through doing the their staff in customer service issues for 10 times job. Then there is the next level, which is part of longer than teachers, who get a half day’s training at management and those further advanced skills in the end of their initial teacher training. That doesn’t managing pupil behaviour. That level needs to be square with me. taken on board as part of headship or senior teaching. Jacquie Nunn: That’s not true. There may be a half Andrew Winton: Often those skills related to dealing day’s taught session in a university-led partnership, with behaviour don’t need to be done by teaching which might be about code of practice for special staff; they can be done by a school’s pastoral staff. needs, or what a typical school behaviour policy looks Dr Dunford: I have two quick points, both of which like, but the substantial training in behaviour takes relate to Charlotte’s point on, as it were, a canon of place in the 24 weeks out of the 36 weeks that they professional knowledge. This area of behaviour is are in school. From the moment that they walk almost the one area in which the previous Government through the door, they are expected to function as a produced such a canon, because they got Sir Alan teacher and as a member of the teaching staff. They Steer to produce his excellent report. There are are expected to operate the school’s behaviour policy, chapters in that report that are of direct use, so there and one of the school’s senior teachers will sit down is a professional canon. In more general terms, it is with them and deliver a taught session on what is back to the point I was making last week about the expected of them. They will be operating exactly the need for a chief educational officer, which Ian same as any other teacher in the school. mentioned earlier. The other point in the White Paper, which I think you Q344 Craig Whittaker: Is that not the point? A lot ought to pick up in relation to this, is the proposal for of teachers are saying that they go into the workplace specialist leaders of education. These won’t be just very inexperienced and have very little background in heads of history; these could be expert behaviour behaviour and attendance. One of the reasons managers as well, who could be people who are behaviour and attendance can be so bad is because funded to go and support behaviour in other schools. teachers can’t cope and don’t understand the You would have national leaders of education and cobber Pack: U PL: COE1 [E] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
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1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton local leaders of education and this new idea—it’s a and develop within different domains of learning, very good one—is for these specialist leaders. which are crucial to the whole debate around pedagogy, which is coming live at the moment in a Q346 Chair: Why would they be better than SIPs? way that I think is extremely helpful. In terms of this They were a great idea; it’s just that no one seems rather stark delineation that you portray between very happy with the way they have worked out. school-led and HEI-led— Dr Dunford: I thought they were a great idea too, but they were very generalised. Here you are talking about Q352 Pat Glass: Well that’s what Ofsted said. specialist leaders of education who will go round and Jacquie Nunn: I think first of all, much of the work help schools in specific ways. that we are doing in CPD now, particularly in the area of SEN, is underpinned by the principle that it will all Q347 Chair: Do you all think that they sound like a be at masters level. Nick1, who has been working good idea? with you, has led for us considerably on a significant Bill Gribble: Absolutely. swathe of this work. The specialist qualification for Chair: I’m getting nods from all four. SENCOs, which derives from the recommendation of earlier work of the Select Committee on special Q348 Pat Glass: I have two points around the shift educational needs, is a masters level qualification. from higher education initial teacher training to That is the first time that an M level has been a school-based initial teacher training. First, at least particular requirement of any role within the school university courses look at things like child work force. So it is very significant. But the work we development and pedagogy. I am concerned that if we are doing on mandatory qualifications, dyslexia and got more school-led initial teacher training then, yes, all of the others, all have M level credit attached to training on behaviour may be better, but training for them. So there is intellectual challenge in there and special needs, which is very poor at the moment, will universities have to be engaged in all of that work. suffer. So I’d like your comments on that. Secondly, If we look at this shift notionally from HE-led to the chief inspector of Ofsted published a report last school-led, the best partnerships, and in Ofsted’s terms week that said that our university-led initial teacher this would be true, are the ones where that partnership training was twice as likely to be good or outstanding is very strong. I suppose the paradigm case of an than school-led initial teacher training. Why would it employment-led programme at the moment is Teach say that if it’s not true? First, where it gets an awful lot of publicity and focus. Bill Gribble: A student going into teaching who has That is hard wired to what goes on in universities. The a degree has done three, sometimes four years in the Institute of Education and the University of Warwick university education environment already. Because of are involved in that. Thirteen university departments that they have an expertise which they take with them. of education are providing the training on that The next phase should be this initial competency programme. They come in with tutors and work over level, which I keep bashing on about, which is to get the summer recess. a person ready to go into a classroom with a set of skills which will give them a whole concept. They Q353 Chair: Why did Ofsted say that university-led should be creating an inclusive educational is twice as effective as schools-led when the White environment for the young people they are working Paper suggests that we are now going to do more of with. That should be fundamental. the latter rather than the former? Jacquie Nunn: It is because of the maturity of the Q349 Pat Glass: But is child development not system. Our employment-based providers have been fundamental to that? accredited since 2004, so new provision is being Bill Gribble: Absolutely. measured against higher education-based provision, which has a track record that, in some cases, goes Q350 Pat Glass: And will we not lose some of that? back to the 19th century. The pace of progress has Bill Gribble: I don’t think so if we are looking for the been strong. We know that some of those basic competency which is already being run very employment-based training routes are producing very well by TDA. It is taking that further. It is encouraging good teachers. Ofsted’s survey report when it did that the professional development of teachers and the first review of what were then designated continuing professional development of teachers recommended bodies said that they were taking high- which hasn’t been well done. calibre entrants and turning them into average teachers. We don’t want that. We want all teachers to Q351 Pat Glass: I’ve seen lots of good child be excellent. development practice in primary schools but virtually none in secondary schools. Q354 Pat Glass: So you are saying that school-based Jacquie Nunn: I think that is to do with successive ITT will catch up with experience and produce very iterations of the standards over time. Circular 4/98 good teachers. and, to a lesser extent, the two succeeding versions of Jacquie Nunn: The pace of progress so far— the standards have represented subject knowledge quite differently. I think that under the current version of the standards there is far more scope for courses to Q355 Chair: Can you quantify that for us? encompass the range of issues around child 1 Nick Peacey (Institute of Education, University of London), development and notions about how children learn and Specialist Adviser to the Committee cobber Pack: U PL: COE1 [O] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
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1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton
Jacquie Nunn: I cannot quantify it for you because people with SEN are about eight times more likely to the employment-based routes are in their first Ofsted be excluded and so on than other children. Isn’t this inspections. They have never been inspected before. pretty fundamental and don’t we need to have We are in the second year of a three-year round. Later, evidence rather than just a hope that it will get better? I can supply the Committee with the data we have at Andrew Winton: From my point of view, I would look the moment about the outcomes of those inspections at it more from the pastoral side. We don’t train in terms of the numbers that have been designated pastoral staff sufficiently to be dealing with those as outstanding by Ofsted for their achievement and issues outside the classroom environment. Where capacity to improve. We do not have the complete parents are struggling in the home to work with their three-year picture yet, because Ofsted are just children, more support there would be very helpful, embarking on the third year of the cycle. and we don’t train our staff at all. Bill Gribble: And we don’t encourage the evidence Q356 Pat Glass: Could you let me have that? trail to be consolidated and shared. Jacquie Nunn: I will do, with pleasure. Q360 Chair: So what recommendations could we Q357 Charlotte Leslie: I did a bit of work with make to make a difference? Teach First. It was very interesting the way it was Bill Gribble: Create an evidence trail as a norm, so very work-based but they used universities as the core all staff are feeding their views and ideas on a regular of what they do. It seems to make a lot of sense. basis through their departments to a central source— Forgive me if this already happens and I am being to their SENCOs in schools. ignorant, but I am concerned about the level of understanding of and catering for special educational Q361 Chair: But if they’re not trained properly in needs in mainstream schools. Would there be any the first place, they don’t know how to identify it. benefit to mandatory placements in different types of Bill Gribble: Well, their SENCO can do a lot within special school for any teacher? Does that already the school. A lot of that can be school-based. happen? Jacquie Nunn: There is a mythology that you cannot Q362 Bill Esterson: I was going to ask about troops carry out a placement in a special school in initial for teachers, and I can guess the response. Gimmick teacher training. That is false and the agency is or good idea? working very hard to overcome it. Again, Nick’s fully Bill Gribble: We need people with life skills in the aware of this and can give you more information. We classroom. If a member of the armed forces has got have made it very clear that you can do your initial life skills to bring to the classroom, great, but they teacher training in any setting that enables you to learn also need to bring other things as well. It is not just towards demonstrating standards. There are some confrontational styles of discipline. examples of really good practice in that. Dr Dunford: It betrays a misunderstanding of the relationship between the teacher and the pupil to think Q358 Charlotte Leslie: Given that the child with that these troops can very easily move into teaching. special needs, particularly if they are from a It won’t be easy for them, but some of them will no disadvantaged background and their needs have not doubt turn out to be very good. been picked up, could crop up in any school, do you think there is merit in having a mandatory placement Q363 Chair: There’s probably no other organisation in a special school so that it is part of the process, in Britain with a better record of turning around the even if it is just for a few months? This is a genuine lives of children who have had a disrupted and question because I have not seen teacher training up disordered childhood, and turning them into decent close. citizens with self-esteem, pride and achievement, than Jacquie Nunn: I can only give a personal response to the Army. Why would you not wish to allow people that. I am not speaking on behalf of the agency who come from that culture with that excellent record because we have not discussed it. Personally, I would to come over and be involved in education? think it is highly beneficial because engaging with the Andrew Winton: I’d challenge that. learning of youngsters who are having particular difficulty hones, develops and extends your Q364 Chair: Or am I talking rubbish? Andrew thinks knowledge and understanding of how all children I am talking rubbish. learn and makes you a better classroom teacher in Andrew Winton: Having served in the forces I mainstream. My personal view would be very strongly wouldn’t recognise that as being true. I think that in favour of that as an approach. certainly for some young people from some Pat Glass: I just think I would have been completely backgrounds the forces are a very effective place to opposed to that. learn discipline, but not for the broad range. I don’t think it is necessarily transferable. As has been Q359 Chair: I just want to follow up on the SEN suggested I think some people coming out of the issue. SEN identification and its consistency are not armed forces will make excellent teachers, but many adequate now. Why should we believe that they will will not. become more consistent in the new system, which will Jacquie Nunn: I think there’s a technical issue. I be more school-based and less HE-based? What think the idea is being borrowed from the States, evidence is there that it may not even deteriorate where I think 40% of the armed forces are graduates. further? That is directly relevant to behaviour, because The proportion in our system is very much smaller cobber Pack: U PL: COE1 [E] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Ev 84 Education Committee: Evidence
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton than that. If the present Administration have the Q371 Neil Carmichael: Rather than, say, local ambition of supporting the training of these people it authorities? will be a long haul, in some cases from GCSE all the Chair: It is only the statemented children for whom, way through to graduate status, before they could after the Academies Act 2010—although I suppose think about acquiring QTS. There is an issue there that that is specific to academies—local authorities which may be problematic in terms of the numbers will continue to have responsibility. For the others, it who are actually eligible. I think this issue about is devolved to schools. Is that right? Is that bringing individuals into schools in other roles, appropriate? possibly, has got some mileage. I am not sure whether Andrew Winton: Yes. everybody who makes a difference in school has to be Bill Gribble: Yes. It safeguards the identity, if you a teacher. like, or the additional needs of the special child.
Q365 Bill Esterson: I was lobbied about this last Q372 Neil Carmichael: I’m thinking about the week by two people completely separately, who gave commissioning of the actual services of support that examples going way back. One went back to the ‘50s, SEN children might require. and made the point about behaviour then, when Bill Gribble: You’ve got to have a broker within local discipline was not the issue it is now, by any means. authority to be able to do that, because they have the Former military personnel and former police range and the extent of services available for this personnel came into teaching and disappeared without specific need. My wife used to do that as a senior trace very quickly, because they tried to impose a officer for a local authority. Again, developing the system that was totally inappropriate. One of the more level of trust between different schools to allow those modern parallels was that in the armed forces and in sorts of things to happen is a vital role that cannot be the police you have a system where people are already done within one school. The local authority role in self-disciplined, and perhaps that is a fundamental that is very important. difference. I would be interested in your comments on the comparison there. Q373 Neil Carmichael: Is that one of the reasons Dr Dunford: My direct experience of bringing Army why there are variable standards? people into school, albeit not in a teaching role, was Bill Gribble: Yes, very much so. It is often the extent that they found it very difficult to adapt from the of the quality of the brokerage, if you like, within the Army culture—which they had had for 20 years or local authority. whatever—into the school culture. Tessa Munt: I want to go back to the statementing thing. We’re off the record aren’t we? Q366 Nic Dakin: I want to come back to Sir Alan Chair: No, we’re not. This is formally recorded and Steer’s work, which obviously is a big piece of work. will duly be published. Just to check, I think what you were saying was that that was based on sound and broad evidence that we Q374 Tessa Munt: Fine, I come from a county where have a right to trust. I think you were also saying that it is very difficult to get a statement. I would like to the advice that comes out of that is a good template know what you think about statementing, because my for taking forward a more consistent approach to experience is that I have, perhaps, a number of behaviour in schools. I just wanted to check that. children who spend a bit of time in their week on a Bill Gribble: Absolutely. The core principles are farm, and there are children who go off and work— supreme, and should underpin anything that we do this is at the age of nine, 10 or 11—and they clearly with behaviour. can’t read. What is going to happen is that, if they go into further education at the age of 16, the college will say that the child is dyslexic or this or that. They are Q367 Nic Dakin: That’s very helpful. On a different free to say whatever the state of that child’s abilities issue, would you recommend a refresh of the inclusion or potential is. That is because no one is going to be development programme? Does that need to be re- charging anyone after 16, so it’s okay to discover that looked at? you have a problem at the age of 16. Andrew Winton: Maybe not as a priority. Some of these parents have been fighting and fighting. In my county, if you are poor, it is very difficult to get Q368 Nic Dakin: Not a priority, but worth a look. a statement. If you have £40,000 to go through the Andrew Winton: Yes. court system, get yourself a QC and so on, you can probably get there, because you’ll battle them. I want Q369 Neil Carmichael: I want to go back to SEN. to know how we actually ensure that children who Who should be doing the commissioning of services have needs are identified, don’t disappear and don’t and interventions, especially for those children who get farmed out—literally—and that they are actually have communication issues and so forth? How do we picked up and given the support that they really need. get a proper interface that is going to be effective Bill Gribble: There’s no short answer to that, but one with schools? of the elements you’ve got in the White Paper now, Andrew Winton: Probably the school should be which I said that you mustn’t lose sight of right at the commissioning. outset of today’s meeting, is for the excluded child. They have an additional need if they are excluded— Q370 Neil Carmichael: The schools themselves? for whatever reason. That need for them might be an Andrew Winton: Yes alternative educational provision. cobber Pack: U PL: COE1 [O] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Education Committee: Evidence Ev 85
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton
Q375 Tessa Munt: Yes, but we have inclusion in my threshold, advanced and excellent teacher skills. I county, so we don’t do exclusion. certainly think that there is an infrastructure in place. Bill Gribble: But my point was, if money follows the child for those additional needs, perhaps into further Q381 Chair: So middle leaders are getting all the education, that would be the future. At the moment, training they need on behaviour and discipline. Is that money following the child is an important aspect of what you are saying? this. For a weighting to be given to a child, so that Jacquie Nunn: I’m saying that there is an they can get a certain amount of educational infrastructure in place that school leadership can use experience to meet those needs, is an important to assess those needs. The responsibility for meeting aspect. You’ve started on it in the White Paper. those needs has been devolved to schools, and Chair: We need to cover some other material, so I continues to be, so I think, as we have said elsewhere, don’t want to keep revisiting existing stuff. Charlotte? that it is for school leadership to make decisions around that. Q376 Charlotte Leslie: A very quick one on exclusion and SEN. Is there any merit at all in the Q382 Chair: It may be for them to make those idea of having some kind of trigger system, whereby decisions, but the question is whether they are if a child experiences more than a certain number of providing middle leaders with the quality training they fixed-period exclusions, this automatically triggers an require in order to be able to deliver the consistent assessment for SEN? Is that a mad idea, or does it policies throughout the school. have some merit? Jacquie Nunn: The evidence that we have on that is Bill Gribble: No. that there is a very variable picture nationally. Chair: Bill says no. Anybody else? Bill Gribble: It could be an emotional developmental Q383 Craig Whittaker: Can I take you back to the thing that hasn’t been picked up, which is an initial thing that we were talking about around the additional need in itself. It may not be just an quality of the initial teacher training? You have educational need; it could be a broader need than that. mentioned mentoring being a big part of it, but there is no consistency in the mentoring process. I am sure Q377 Charlotte Leslie: But some kind of that is a huge gap in provision. assessment? Jacquie Nunn: What we need is a consistent set of Bill Gribble: Some form of assessment, which should expectations around mentoring and how it is be taking place naturally within a school anyway. If I represented in the standards. Charlotte talked earlier was a head teacher and that wasn’t taking place about professional responsibilities and the naturally in the school, I would be very concerned. It professionalisation of teaching. I think that the comes back to the evidence trial thing again—all staff responsibility of any profession for those entering it should be feeding into that sort of thing. and moving up through is crucial. That is true of other professions. I think that we have begun to build that Q378 Chair: Jacquie, can I ask you in the first systematically into the account of what it means to be instance whether you agree that head teachers should a teacher. It is represented in the standards for be regularly assessed for their suitability as school teaching in terms of what they say at threshold level leaders? Who should conduct those assessments? about the responsibility of working with those coming Jacquie Nunn: As I say, I’m here to represent the behind you in the profession. But I think that we could TDA, not the national college. strengthen it.
Q379 Chair: The national college seems to be “in” Q384 Chair: Does the role of education welfare at the moment. officers need to be promoted, and where should their Jacquie Nunn: I would have thought that the national line management sit? This is an important issue. college would be the body that would be the natural Andrew Winton: Clearly, I would say yes. At the constituency for being in the lead around any such moment, it is quite worrying that there are huge cuts assessments of head teachers. We have performance of 50 to 80% across some areas. Historically, the management going right the way through the school management has rested with local authorities. A while at all levels, and that is the role of the agency in terms ago, there was the opportunity for it to be devolved to of looking at how we are looking at everybody up schools and, where it was devolved to schools, it was through middle management to— unsuccessful. Where staff were based in schools but were managed centrally under a professional Q380 Chair: So national college for heads. What management structure, that worked well. So I think about middle leaders? Do we do enough to support yes, that would probably be a good model to look at them and ensure that they have an understanding of keeping a central management within the local and consistently apply behaviour and discipline authority. policies within schools? Jacquie Nunn: I think so within the context of Q385 Chair: Okay. Does anyone disagree with that? performance management for schools. The extent to Bill Gribble: No. which people have enacted their responsibilities around that is very variable across the system in terms Q386 Ian Mearns: On that point, at the outset of our of the use that has been made of the framework of inquiry into behaviour and discipline, we suggested standards that is in place now for teachers through that we should look at the role of attendance in cobber Pack: U PL: COE1 [E] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
Ev 86 Education Committee: Evidence
1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton conjunction with behaviour and discipline. Do you The answer is that you want them to work in schools really think that attendance can be disassociated from and develop school-to-school support, brokered and behaviour and discipline in schools? commissioned by the local authorities. That is where Andrew Winton: Attendance is a behaviour. their role lies in the future. Dr Dunford: Yes, I do disagree with that, because I Bill Gribble: That’s why those partnerships that we think that, in the current circumstances, schools may discussed previously are so important. wish to do it in a different way. They may wish to tie Andrew Winton: The notion of academies comes in it up with some other home liaison work and they may there. wish to work in, for example, a group of secondary schools and a group of primary schools, as I said Q390 Neil Carmichael: So, in a sense, we’re talking earlier. But, none the less, they should tap into the about a new relationship for local authorities to have expertise that Andy has referred to, which his with schools, and they’re going to have essentially the members have. commissioning role—we mentioned expertise before Andrew Winton: Certainly, the exclusion work itself in connection with SEN—for extra support where it is could be employed by schools, but they would need appropriate and needed. to have professional supervision from somebody One final question: just how much authority should outside the school. either governors or a local authority have over the head in terms of his or her performance, and what sort Q387 Neil Carmichael: Given that the White Paper of sanctions do you think are appropriate? is talking about local authorities shaping their own Dr Dunford: In a sense, I’ve just answered your capacities and, let’s say, contributions to school question, haven’t I? I said that there is so little management policy, should they be thinking in terms expertise there. I think that it’s a great pity that the of their intervention as, “You must do better”, or White Paper has suggested the end of the school should it be, “We’re here to help if you want us to”? improvement partners, because they were providing In other words, what kind of relationship do you think some degree of external challenge to head teachers, local authorities should be starting to build up with and head teachers, on the whole, welcomed that. schools, with the new responsibilities and powers that Where that external challenge will come from in the they have? future to schools that are not going to be inspected Dr Dunford: I’ve said this so many times over the and are not going to have school improvement years, and I think it applies to this account in the partners and so on, I am not quite sure. That is White Paper about the role of local authorities; you something that needs looking at within the White really have to think differently in relation to primary Paper. Is it going to come from governing bodies? If schools and secondary schools. The kind of support it is, we’re back to your earlier comment about the that a primary school—and I am a governor of a skills of governing bodies. primary school—needs from a local authority is very Neil Carmichael: That’s a subject I’ve been pursuing. different from the kind of relationship that a secondary school should have with a local authority. I think there Q391 Pat Glass: Can I move on to alternative are two quite different answers to your question. provision? We have heard witnesses say that the Neil Carmichael: I think you’re absolutely right, current situation is scandalous. My experience is that oddly enough. PRUs are either very good or very bad, and there is Chair: Why oddly enough? For the record, can I say little in between. The balance of good ones and bad that John Dunford is frequently right? Far from ones is not equal. I’ve come across PRUs where they universally, but frequently. don’t teach children with behavioural problems, and they won’t have this one or that one. Given that the Q388 Neil Carmichael: From what I can see, White Paper is talking about giving PRUs the same sometimes local authorities are reluctant to intervene kind of governing bodies and establishing them as in secondary schools in a decisive enough manner. I schools, and yet these are the schools of last resort, don’t know; that is just my experience, and certainly how do you think that will work? Will it work? if things are going wrong, because of the complexity, Bill Gribble: I think any opportunity to enhance the size and so forth. professionalism that does or does not exist in some Dr Dunford: Because of the way that the career PRUs at the moment is an important development. structure has gone, many local authorities—there are Chair: Can you speak up please, Bill? 150 of them now—have no expertise whatsoever in Bill Gribble: Sorry. Any opportunity to enhance the secondary schools and particularly in secondary professional development of the pupil referral unit school leadership, whereas they tend to have some systems at the moment is important. However, I still expertise in primary school leadership. It is just the feel that they should be very much within the local way that different career structures have worked. authority auspices and have direct links to local authority oversight, if you will, because they are the Q389 Neil Carmichael: One reason for that might be alternative provision, often funded greatly by the local that they simply do not have enough secondary authority. Having said that, I found that when I was schools to be interested in, in their patch. Are local the head of a PRU I didn’t want a pupil referral unit. authorities big enough to have the capacity to deal What I wanted was a virtual pupil referral unit, if you with secondary schools? get my drift. When I was working with head teachers Dr Dunford: But even if they were, where do you and saying, “How do I stop your children coming to want the really good people in the system to work? me?” they said, “Bring your expertise to us”, which is cobber Pack: U PL: COE1 [O] Processed: [26-01-2011 14:12] Job: 006766 Unit: PG05 Source: /MILES/PKU/INPUT/006766/006766_o0005_EdC 01.12.10.xml
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1 December 2010 Dr John Dunford, Bill Gribble, Jacquie Nunn and Andrew Winton what we did, and this was 20-odd years ago, so before Q396 Chair: I just want to ask about the White outreach was thought of. We found that by working Paper’s requirement for schools to provide full-time with the pupils who were on the verge of exclusion education for all excluded pupils. Do you think that we could do a much better job than waiting for them will lead to an improvement and what might be the to be excluded and ending up with us. risks of that approach? Bill Gribble: If the funding stream were there for the Q392 Chair: We visited a PRU in London that does individual pupil, in other words the money followed precisely that. the child, that is realistic. Bill Gribble: And it works so well. To develop the service approach to the pupil referral unit system Q397 Chair: But why should it be particularly? It is where children get real alternative educational coming out of the school budget and the school experiences would be a much better way than to over- remains responsible. In what way will the money be formalise the system. available? Bill Gribble: The money should be available for the Q393 Pat Glass: Do you still think it needs to be alternative provision to be made. largely with the local authority? Andrew Winton: £15,000 is what it costs in a PRU. Bill Gribble: I do. Normally for four or five students— Dr Dunford: Yes, I think that’s right but there will be Bill Gribble: So we are going to have a disparity some groups of schools that will develop their between costs. behaviour and attendance partnerships to the extent that they can do this. Q398 Chair: If the school gets the budget by dint of Bill Gribble: I agree, wholeheartedly. excluding, does that not create some perverse Dr Dunford: But not all schools will be able to do incentives? That would be the opposite of what John that. is suggesting. If the school can exclude and then trigger additional monies to support that pupil, does it Q394 Pat Glass: A quick question. As an assistant not have quite an incentive to do so? director I always took the view that we should not Bill Gribble: Not if the money is ring-fenced for the prevent PRUs from taking children with statements of pupil. The money has to stay with the pupil. SEN. Having moved away from that I have now Andrew Winton: It is about having independent changed my view. Do you think that one of the assessment of the needs of individual students. That recommendations that we could make would be that doesn’t have to be at the point of exclusion. PRUs should not take statemented children? Bill Gribble: They should take statemented children Q399 Chair: But if excluding a pupil you are finding if it does not disadvantage them for their additional troublesome means that you can instantly get a big need. If those children have a specific need, such as chunk of cash, which is exclusively for the use of that Asperger’s, and they do not have access to the clinical pupil but means that you can provide for them in a and psychological service that they would desperately way that you otherwise couldn’t, is there not a bit of need, that would disadvantage them even further. So an incentive to start excluding away? They are not if they can still have their additional needs met then really excluded, because they are still with you—you yes, they can go to a PRU. just get more money to look after them. You’ve still Andrew Winton: Given that all alternative provision got them, but you get more cash. has to be registered as a PRU, then where would those Bill Gribble: But if the school still has ownership and children go? it is going to affect their league table, or whatever, Pat Glass: I think that local authorities should make they certainly will have some incentive to make sure alternative and proper provision for statemented that the provision for that child is met. children and that PRUs are used too often. Chair: I should put it on the record that John Dunford Q400 Chair: They have ample incentive, because is an adviser to this Committee. they get the cash. So surely they would exclude more. I am just trying to understand the incentives for them Q395 Craig Whittaker: New Woodlands school that in the system. we went to in Lewisham has—I think this is the Dr Dunford: I think the cost of dealing with this is correct terminology—powers to innovate as issued by much more than the money that they’ll get. So it will the Secretary of State. It is one of the few schools still cost them. in the country with that. Should that be more widely Chair: Sorry Charlotte, but I am going to bring the available for PRUs or that kind of model? session to a close. Thank you all very much for Bill Gribble: It’s a great model but if that sort of coming and giving evidence to us today. We really mandate is given without some form of assessment of appreciate your taking the time. Bill, it would be very the ability to deliver, it would be a disaster. It could useful if you could leave with us the paper that you spread poor practice. have prepared. 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Ev 88 Education Committee: Evidence Written evidence
Memorandum submitted by Tom Burkard Summary Current efforts to “manage” the behaviour of disengaged pupils are unlikely to make much difference. The underlying assumptions of modern education virtually guarantee that a substantial minority of pupils will find school such an unrewarding experience that they will become chronic truants or school-refusers (if we are lucky) or violent and disruptive (if we aren’t). The crucial factors are: 1. Discovery learning—described by Jerome Bruner as “the most inefficient technique possible for regaining what has been gathered over a long period of time”—poses insurmountable obstacles for pupils with poor working memory; deficits in this area are central to hyperactivity and low attainment in literacy and maths. 2. The Early Years Foundation Stage has reinforced teachers’ perception that children must reach developmental milestones before reading instruction can begin. This is disastrous for low-ability pupils with any kind of learning difficulty: for them, keeping up is a challenge, and catching up is all but impossible. Effective reading instruction is the key to social and intellectual development. 3. The curriculum has been progressively stripped of declarative knowledge—which virtually all children can master—and replaced with a “problem-solving” approach. In fact, problem-solving depends upon knowledge bases which children of poorly-educated parents are unlikely to have. 4. Mixed-ability teaching necessitates “differentiation”—the personalised learning agenda promoted in the Gilbert Review is the ultimate expression of this absurdity. High school teachers often have more than 150 pupils, and it is sheer fantasy to assume that they can “personalise” instruction for all of them. Pupils with low ability, as well as those who are very bright, frequently become bored past all endurance. 5. “Inclusive” policies put low-ability children in daily contact with pupils who are far more able. Low-ability pupils have a very high incentive to disrupt any activity which will expose their inferiority. 6. The SEN Code of Practice ensures that teachers and psychologists explain educational failure in terms of problems within the pupil, rather than failings in the educational environment. 7. Contrary to the assertions of ideologues, competition does not demotivate low-ability pupils. In fact, nothing motivates them more—my SEN pupils used to beg for quizzes and contests. 8. Continual exhortations for pupils to “aim high” and “don’t settle for a dead-end job” demean manual work, and ensure high continuing rates of immigration. 9. The consensual or corporate model of authority has weakened the authority of teachers.
1. Discovery learning Discovery learning relies upon children’s inclination and ability to conduct their own learning with limited input and guidance from the teachers. If the work is to be of anything more than the most trivial significance, the pupil must be able to entertain complex material, weigh the importance and relationship of various elements, and form judgements and new hypotheses to guide further investigations. Pupils who lack this ability are often considered to have an attention deficit disorder; alternately,they may be dismissed as “lazy”. Psychologists now recognise the key role played by working memory in behaviour and academic achievement. As a recent Canadian study summarised, What this new research has shown is that the primary problem with ADHD is not behaviour, but rather cognition. That is, the underlying deficit in ADHD is a cognitive control problem that effects both cognitive functioning and behaviour. One of the primary cognitive control mechanisms is working memory. Working memory plays a major role in helping the mind focus on task while screening out distractions. Working memory functions as temporary storage of knowledge that is applied to tasks of comprehension, computation and planning. As a result, researchers have shown that poor working memory is related to poor academic achievement, especially in subjects associated with language arts and mathematics.1 Children with poor working memory normally make good progress when taught with direct instruction. Basic sub-skills must be thoroughly mastered before attempting higher-level work. For instance, when number facts are learnt to the point of automaticity, the pupil’s working memory is freed to master basic algorithms. When these have been mastered, the pupil’s attention is thus freed to apply these algorithms to problem-solving. The current practice of encouraging children to “explore” number by using alternative
1 Comments posted on http://www.ldrc.ca/contents/view article/215/by Peter Chaban, in reference to “Reconceptualizing ADHD”, by Dr. Rosemary Tannock, Senior Scientist, Brain and Behavior Program, The Hospital for Sick Children, Associate Professor of Psychiatry, University of Toronto, and Rhonda Martinussen, doctoral candidate, University of Toronto Processed: 01-02-2011 14:42:40 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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methods of computation—which supposedly teaches “concept of number”2—places an almost insurmountable obstacle in the way of pupils who have enough trouble mastering standard algorithms. However, modern educators will do almost anything to avoid “rote learning” (once described as “learning something so that it may be reliably recalled at a later date”). It is difficult to judge the extent to which our teachers rely upon self-directed learning. Obviously, there is a direct contradiction between meeting mandated curriculum requirements and allowing children the freedom to pursue their own investigations. In practice, teachers probably rely on direct instruction more than is commonly assumed; as Robin Alexander once observed, discovery learning can degenerate into “a charade of pseudo-inquiry which fools nobody, least of all the children, but which wastes a great deal of time”.3 We suspect that infant teachers are the worst offenders: they are the most likely to have completed a three—or four-year ITT course, and hence most likely to identify emotionally with modern learning theory. The success of our own Wave 3 intervention rests largely on the fact that it is normally delivered by teaching assistants, who seldom have a problem with direct instruction. But for most children with poor working memory, infant school sows the seeds of future behaviour problems. A USDoE study concluded that “What brings about the delinquency is not the academic failure per se, but sustained frustration which results from continued failure to achieve selected academic goals.”4 Recent research on working memory, ADHD and cognition can be reviewed at http://www.cogmed.com/ adhd-working-memory
2. Early Years Foundation Stage If the decision to introduce synthetic phonics was a massive setback for the educational establishment, with the introduction of the EYFS in 2008 they managed to claw back a lot of ground. In 2007, we had little difficulty convincing quite a number of infant schools to introduce our synthetic phonics materials in Reception Year: but with the EYFS, this is no longer possible. Now, pupils in Reception must “learn through play”. The EYFS has also re-introduced the concept of “reading readiness”. The old National Literacy Strategy, for all its faults, at least recognised the overwhelming evidence that children who fall behind in reading have very little chance of catching up. The EYFS has introduced a developmental inventory to classify children who are deemed to be unready to engage the National Curriculum. Once more, schools have ready-made excuses for failure. As the Southampton evaluation of our Bear Necessities Wave 3 intervention pointed out, literacy instruction facilitates development: A noticeable development in children’s ability to concentrate and focus was also noted by several schools, a difficulty which had been initially identified as a barrier to children’s success in reading… At the start of the pilot, teachers had cited speech difficulties as one reason why some pupils were not being successful at reading. Interestingly, data confirmed that whilst 37% of pupils did show some speech difficulties at the start of the intervention, this did not continue to intrude as a barrier to learning… Furthermore, the number of pupils manifesting initial speech difficulties, fell to 16% after six months, suggesting that the programme itself had alleviated some symptoms. These findings highlight the importance of maintaining high expectations for these pupils and not using speech difficulties as an excuse for poor attainment.5 Advocates of delaying reading instruction point to the low rates of reading failure in Germany and Scandinavia, where children don’t start school until age six or even seven. They neglect to mention that their languages are phonetically very regular, and synthetic phonics has always been the norm—it would be perverse to teach reading with any other method. Indeed, teaching children to read these languages is so simple that most children have mastered basic decoding skills before they start school. A recent CfBT review of studies from around the world came down firmly on the side of direct instruction for very young children.6 Few would doubt that success in learning to read is a crucial element in pupil behaviour. An American study of youthful offenders arrested for violent crime reported that: …The present study was unsuccessful in attempting to correlate aggression with age, family size, or number of parents present in the home, rural versus urban environment, socio-economic status, minority group membership, religious preference, etc. Only reading failure was found to correlate with aggression in both groups of delinquent boys. It is possible that reading failure is the single most significant factor in those forms of delinquency which can be described as anti-socially aggressive. I am speaking of assault, arson, sadistic acts directed against peers and siblings, major vandalism, etc.7
2 I have yet to find a succinct definition of this fuzzy concept. 3 Quoted in Phillips, M (1996) All Must Have Prizes, Little Brown & Co, London, p 59 4 Brunner, MS (1993) Retarding America: the Imprisonment of Potential, Halcyon House, Portland, Oregon, p 30 5 Claire Belli (2009) “Next Steps in Literacy”, unpublished thesis, University of Southampton, pp 60–61 6 http://www.nurseryworld.co.uk/news/1028252/Analysis-Teacher-led-activities-produce-better-results/?DCMP%ILC- SEARCH 7 Hogenson, D (1974) “Reading Failure and Juvenile Delinquency”, Bulletin of the Orton Society, 24, p 167 Processed: 01-02-2011 14:42:40 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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If reading failure is strongly indicated the most significant factor in violent anti-social behaviour, there is good reason to believe that success in learning to read acts as a prophylactic. Durand Academy in Stockwell has 900 pupils, 95% of whom are Black Minority Ethnic, and all of whom can read. Head Greg Martin reports that “…in my 23 years as Head Teacher, only one child was ever excluded.”8
3. The corruption of the curriculum Michael Gove acted swiftly to suspend the new National Strategies, but it will take quite some time to purge the system of the intellectual poison contained in the Gilbert Review. As Colin McKenzie—an outstanding science teacher in Cumbria—put it: The drift away from content has become so pronounced in recent years that many young and “successful” teachers find it laughable that we might want to reinstate knowledge and understanding as the central tenet of education.9 The young and “successful” teachers he refers to are those who have completed the new Masters in Teaching and Learning. The notion that children can be taught all-purpose “critical thinking skills” is absolute moonshine: understanding how a historian or a biologist works will be of very little use to a mathematician. Knowledge and understanding are inextricably intertwined. Our ability to evaluate new information from any source is absolutely dependent upon our prior knowledge of the subject. There are no short-cuts to wisdom. The intellectual pretensions of the “21st century skills” lobby have been mercilessly exposed by the eminent American cognitive scientist Daniel T Willingham in Why don’t students like school?. This book should be required reading for anyone with an interest in education.10 The children of educated parents are spared the worst consequences of modern educational follies. Unfortunately, these theories have been dominant in England’s schools for over two generations, and many children born today have grandparents who can barely read and write, and know nothing of the world beyond what they see on television. The problem of the underclass has nothing to do with “resources”: in the last 45 years, the United States has spent $150 billion on Head Start and other Title 1 programmes, and there is very little to show for it. According to Head Start Impact Study—by far the largest evaluation to date—“the benefits of access to Head Start at age four are largely absent by 1st grade for the program population as a whole.”11 We should not discount the possibility that there is a substantial genetic component to IQ. But whatever the explanation for low ability, to date all attempts to raise it have proved disappointing, and low-ability pupils simply are not good at the “problem-solving” activities favoured by educators. Bearing this in mind, it is clear that a curriculum which devalues declarative knowledge—rote-learning, if you will—dooms low- ability pupils to failure. On the other hand, low-ability pupils can achieve far more than they do now. My proposals to train ex- soldiers as teachers came as a result of seeing what the Army can do with the most unpromising recruits, young men who have left school with absolutely nothing to show for it except attitude problems. Having served as a military instructor in the Royal Pioneers, and having taught in a Norwich comprehensive, I have no hesitation whatever in claiming that the military’s training methods are vastly more effective and humane than the supposedly “child-centred” practices advocated by our educational establishment. Military instructors are given freedoms that teachers in state schools can only dream about. The prestige of Britain’s armed forces contrasts starkly with the reputation of England’s “bog-standard” comprehensives.
4. Mixed-ability teaching There is very little evidence to indicate that pupils in mixed-ability classes learn more than those who are grouped by ability. Jo Boaler and Dylan Wiliam have published results of interventions which have shaped the “personalised learning” project that was heavily promoted by New Labour, but Boaler’s ideas are, to put it politely, original. Her big idea is “ethnomathematics”—a creed which, according to a Wall Street Journal article by Diane Ravitch, argues that: …traditional mathematics—the mathematics taught in universities around the world—is the property of Western Civilization and is inexorably linked with the values of the oppressors and conquerors.12 A more sober assessment of mixed-ability teaching can be found on the Teaching Battleground blog: …the movement for mixed ability classes is indistinguishable from the movement against teaching. The mixed ability class teacher is not a teacher at all. They are, often quite explicitly, a facilitator. They are a person who designs educational activities for children but doesn’t actually tell them what they need to know. They are a friend to the child, but not an expert on an academic subject.13
8 e-mail to author, 9 Oct 2010 9 e-mail to author, 12 May 2010 10 Willingham, Daniel T (2009) Why don’t students like school?, John Wiley & Sons Inc, San Francisco 11 http://blog.heritage.org/2010/01/15/head-start-a-150-billion-failure/ 12 Ravitch, D, (June 20, 2005) “Ethnomathematics”, The Wall Street Journal 13 http://teachingbattleground.wordpress.com/2007/04/15/mixed-ability-teaching-doesnt-exist/ Processed: 01-02-2011 14:42:40 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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It is usually argued that ability-grouping condemns the least-able to an inferior education. Insofar as the bottom sets are taught by low-ability teachers, this is undoubtedly true. Giving heads enough incentives to sack useless teachers is, alas, probably beyond the reach of any government. However, it is far from clear that low-ability pupils fare any better in a mixed-ability class, where group work and project work frees teachers from the impossible task of “differentiating” or “personalising” learning for all pupils. As the Teaching Battleground blog notes: [Group work] is actually misnamed as it is highly impractical for an entire group to do the work. A better name for it would be “Sarah, the bright girl and her friend Lucy’s work”. However as long as Kevin, who sat at the same table picking his nose, is allowed to write his name on the back of the piece of work then the teacher can claim that Kevin has also worked in the lesson.14 Ever since mankind discovered the advantages of trade, increasing specialisation of function has created continuous advances in productivity—a lesson which is lost on our ideologically-motivated educators.
5. Inclusion The violent aggression of a single pupil can be enough to ruin a teacher’s career and blight the education of hundreds of pupils. It gives entirely the wrong message to all parties concerned: extreme anti-social behaviour pays, and the laws governing human society don’t really mean anything. “Inclusive” policies have exactly the opposite of their intended effect—they destroy social cohesion, ripping apart human communities which supposedly play a critical role in socialising young people. Other pupils who would not otherwise have the courage to misbehave are encouraged to emulate and follow the worst examples. The reluctance of headmasters and school governors to permanently exclude violent pupils is in part a function of the fact that they don’t have to directly experience the consequences of their decisions, but mostly it is a function of moral cowardice. No one wants to be portrayed as the meanie who says “no”. Nor do they want to take an action which could have unpleasant repercussions if the excluded pupils’ parents storm into the school or take legal action. Nor do they want to jeopardise their chances of promotion within the local authority. Even the pupil who is spared exclusion does not benefit, save for the dubious following he will attract as a romantic anti-hero who has bested authority. He (and it is almost always a he) will be denied the possibility of functioning as a useful member of society. When he is older, he will almost certainly supplement his welfare entitlements with the proceeds of crime. It is perhaps a small mercy that he will not expect to live long. The coalition is well aware of this problem, and Michael Gove has accepted our proposals to train ex- service personnel as teachers, and to encourage Skill Force to run pupil referral units. New Labour’s solutions—such as school behaviour partnerships—were sticking-plaster measures which created bureaucratic structures which had little function beyond preserving the fiction that inclusion was working. We are currently working on a radical proposal to limit local authorities’ responsibility to excluded pupils to the provision of a school voucher to the amount previously attached to the pupil—this is being presented to the Department in our submission to the SEN review, and attached to this paper.
6. The SEN Code of Practice It is hard to take seriously a document which claims that: A child has Special Educational Needs if he or she has a learning difficulty which calls for special educational provision to be made for him or her.15 The Code specifies in great detail the procedures which local authorities and schools must follow, but is strangely mute about outcomes. Its operating assumption is that educational failure is due to factors within the child or his home—and it never results from inadequate or misconceived teaching. The main purpose of the Code is to protect schools and local authorities from legal action for failing to meet pupils’ individual needs, as required by the 1981 Education Act. It operates by conflating pupils with genuine medical needs with those whose problems only began once they crossed the school gate. This egregious legislation, for all its humane intentions, is unworkable and must be repealed. At one SEN exhibition, our stall was next to that of a company that sold software which enabled teachers to create Individual Education Plans and other documentation by choosing alternative phrases from drop- down boxes. Their main selling point was that their software was continuously updated to reflect changing DCFS requirements: needless to say, they did a lively trade. My submission to the Department on the SEN consultation suggests a market-led approach similar to the system created by the MacKay Amendment in Florida.
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7. Competition—the magic motivator Unlike teachers, military instructors are advised to incorporate competition into lessons wherever possible. However, competition works just as well in schools as it does in the Army. You just have to be careful when inspectors are around. Obviously, it won’t work well in mixed-ability classes. But when everyone in the class has an honest chance, losing is a powerfully-motivating experience. As a school in Essex discovered, competition can even get boys reading fiction.16
8. Aiming high These days, no high school is complete without posters urging pupils to “aim high” and “don’t settle for a dead end job”. No doubt these are well-meant, but it is incredible that educators who claim to worry so much about pupils’ self-esteem can be so crass when it comes to pupils whose lack of academic achievement will limit them to low-status work. Insulting youths who decide that a “McJob” is better than signing on is not an honourable way to encourage pupils to go on to further education. Indeed, one wonders why no one bothers to warn them about “dead-end degrees”, such as a BA in Media Studies at one of our newer universities. Nor why NVQs are known as “No Value Qualifications”. Or that at least a half of those starting a university degree are worse off financially for their trouble.17 Contrary to what our educators would have you believe, Britain’s labour shortages are at the bottom end of the market: for every Indian doctor or Hungarian dentist, there are dozens of immigrants washing cars and cleaning offices. Our NEETs are a direct result of the insidious propaganda to denigrate honest work.
9. Authority Teacher’s authority has been so badly eroded in recent years that it’s hard to know where to start. The malign influence of courses in “behaviour management” has created conditions where teachers are assumed to be at fault when pupils misbehave. This is not just a reflection on education: in the real world, we are all uncomfortable with the idea of individual authority. Managers derive their authority from committees and consensual mechanisms. It doesn’t have to be this way. At the Durand Academy in Stockwell, Headmaster Greg Martin writes: Discipline is incredibly important in schools if you hope to create an environment that is conducive to concentration and effective learning. At Durand, from day one of a child’s education we make our expectations for good behaviour explicitly clear. We expect children to wear their uniforms correctly, move around the school in an orderly fashion, listen and focus in class and respect one another. Most importantly we ensure that all teachers, parents and carers are fully on board with this holistic approach. “So, the youngest child aged three enters into this whole-school culture, where the practices are observed in every corridor, stairwell, dinner hall and of course classroom—it is part of our DNA.” “With this consistent approach, new children or late starters quickly adapt and settle in. A marked effect of this has been that those that have joined the school with alleged behavioural problems are led by the example of every one of their peers and class leaders, dinner ladies and teaching assistants, and we soon find that the bad behaviour is nullified.”18 Visiting Durand Academy, one is immediately struck by the lack of random movement and background chatter. The pupils are very exuberant at break time, but their classes (unusually for a state primary school, all pupils are grouped by ability) are firmly led by teachers who have been recruited and trained the way Greg Martin wants them trained.
Conclusion The problems outlined above are systemic, and they reflect an ideology with an international dimension. They cannot be solved by creating more management structures: proposals to “professionalise” the SEN workforce would do nothing more than encourage teachers to look for excuses instead of solutions. Politicians should reflect that the driving force behind the Gilbert Review did not come from those who actually have to teach our children. They should scrutinise every proposal devised by experts, and ask themselves how many non-contact jobs they would create—and how much non-contact work it will create for over-burdened teachers. As a veteran of the SEN industry, I can vouch that SEN professionals are very good at consulting each other, and devising paper-chases that lead nowhere. School partnerships, integrated delivery and inter-agency collaboration are merely devices for diffusing responsibility and creating excuses for more meetings. October 2010
16 http://www.telegraph.co.uk/education/7976044/Extraordinary-School-for-Boys-helping-boys-love-literacy.html 17 http://www.popecenter.org/clarion call/article.html?id%1740 18 e-mail to the author, 8 Oct 2010 Processed: 01-02-2011 14:42:40 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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APPENDIX Parents of pupils who are permanently excluded for behaviour problems should also be entitled to a voucher, but the local authority should have no further responsibility. This would concentrate the minds of parents with poorly-disciplined children—and it would stimulate the creation of effective private or third-sector provision. The welfare state originated as a benign safety net for the weak, the poor and for people who were merely down on their luck. Gradually, it has mutated into a monster which shields people from the consequences of feckless or anti-social behaviour. With the 1981 Education Act, the responsibility for violent and disruptive behaviour in the classroom was effectively transferred from the pupil and his or her parents to the local authority. We now have a bizarre situation where local authorities are paying anything up to £150,000 per year to contain a single pupil with severe behaviour problems—yet at the same time, hundreds of thousands of well- behaved children are not being taught the most basic skills they will need to survive as adults. We should be careful not to demonise all violent and disruptive pupils. As much as it offends our sense of justice when young bloods swagger back into school after a short temporary exclusion for assaulting a teacher or a fellow pupil, few of them are beyond redemption. I’ve worked with kids at the margins of society for over 40 years—and very few of them are psychopaths. Nearly all of them respond positively when they are taught by someone they respect. Almost all of them are pathetically eager when they are given a chance to excel. But in most mainstream schools, the only way they can win “respect” is by misbehaving. From their viewpoint, a temporary exclusion—like an ASBO— is a badge of honour. We have proposed that Skill Force—who train ex-service personnel to work with pupils who are at risk of exclusion—should be encouraged to run PRUs. This proposal has been greeted enthusiastically by the Government. We desperately need more PRUs which are run by people who are untainted by defeatist “behaviour management” training—in other words, we need people with the guts to say “no”. As a practical matter, we are not going to get very far unless we create conditions where for-profit ventures can compete successfully. Ironically, the only barrier to Skill Force’s participation is their own Board of Directors. Directors of charities are almost always extremely risk-averse. When you serve for no pay, the last thing you want is to be held accountable if something goes wrong. As positive as this idea is, it will not really get to the heart of the problem. We believe that the responsibility of local authorities for excluded pupils should be limited to providing their parent(s) with a voucher to the value of mainstream education. This could, and probably would, be topped up by businesses and charitable foundations. Other than providing the parent with a list of potential alternative schools, the LA should bear no further responsibility whatever. It is obvious that there will be casualties. There will be some feckless parents who don’t get the message, and a few pupils who will become full-time criminals on the street instead of part-time thugs in the school. But where are we now? Policy-makers are fond of creating systems where there is a theoretical safety-net in place to cover any eventuality: witness America’s “No Child Left Behind” and our own “Every Child a Reader”. These policies fail miserably to achieve their goals, and we just take it for granted. But suggest a plan which might actually work with 99% of your pupils, and you still will be crucified if you haven’t created the fiction that no child will slip through the net. But in the long run, it will be worth it. England is littered with council estates where people live hopeless and servile lives, which are rendered meaningless because their betters have decided that they can’t possibly be responsible for their actions or for themselves. October 2010
Memorandum submitted by The Association of Education Psychologists The Association of Educational Psychologists and Educational Psychology The Association of Educational Psychologists (AEP) is the professional association and trade union for educational psychologists (EPs). It is the only organisation in the UK run exclusively for and by EPs, representing around 90% of the professional work force. The AEP seeks to promote the overall well-being of children and young people, represents the collective interests of its members, promotes cooperation between EPs, and seeks to establish good relationships between EPs and their employers. The AEP currently has 3250 members across England, Scotland, Wales and Northern Ireland. Educational psychology is a key frontline education service that underpins the understanding of how pupils develop and learn. Many practicising educational psychologists undertake doctoral study as part of their continuing professional development and three year doctoral level initial training has been developed for all new entrants to the profession. EPs work with children and young people aged from 0–19 but the majority of their time is spent with school-aged children. Processed: 01-02-2011 14:42:40 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Executive Summary The AEP’s membership works on a daily basis across a range of educational settings that include schools, early years, Pupil Referral Units and within multi-disciplinary settings with close colleagues from the NHS and Children’s Social Care. As such, EPs are uniquely placed to ensure consistency and continuity when managing challenging behavior, which is the bedrock of any effective behaviour or discipline policy. In this response, the AEP will focus on the role, associated benefits, and additional resources that educational psychologists can provide to schools in order to effectively manage challenging behaviour and discipline. EPs play a key part in helping shape how educational settings approach a vast range of educational issues training in child development, curriculum development and special educational needs, all of which impact on schools’ abilities to manage behaviour. However, despite these benefits, the impact of EPs is being undermined by the lack of resources on the frontline. This is attributable in part to a lack of understanding about the range of work across educational settings that EPs perform, and the unclear and unsustainable funding mechanisms for trainees that translate as a result. This is leading to a shortfall of trained EPs able to undertake statutory work, and equally important preventative work that has a real impact on children’s outcomes, especially in areas such as behaviour management. The AEP recommends that the Department for Education strongly addresses these areas of concern by reviewing the current training arrangements for EPs and how they are funded. Crucially, this would not require any increase in funding budgets.
Behaviour and Discipline in Schools The AEP noted with interest that this inquiry will look at the strategies that schools have in place to manage both positive and challenging behaviour, and how to identify the root causes of challenging behaviour; inviting views from the professional children’s workforce to share examples of best practice and offer recommendations. As such, we would like to comment on what steps the Government should take to maximise the input of EPs, who as a key part of the children’s workforce whose skills are currently under utilised, can make effective interventions towards improving behaviour and discipline in schools. We would in particular like to comment on the following aspects of the inquiry:
How to support and reinforce positive behaviour in schools (1) All children and young people, particularly those within vulnerable circumstances, need access to a range of well trained and highly skilled professionals who can recognise, manage and support their individual needs. This is especially important for those children with disabilities or complex special educational needs, as they often move between settings. (2) EPs work on a daily basis across a range of educational settings that include schools, early years, Pupil Referral Units and within multi-disciplinary settings with close colleagues from the NHS and Children’s Social Care. As such, they are uniquely placed to ensure consistency and continuity when managing challenging behavior, which is the bedrock of any effective behaviour or discipline policy. (3) An AEP investigation in 2008 found that the EP’s role was often different across the country, indicating their ability to respond to local need. EPs work across the full range of educational settings and are well positioned in Local Authorities to identify and analyse trends across localities and implement strategies to address local need accordingly. (4) EPs are a highly skilled section of the children’s workforce, who are trained in applied scientific methods, diagnostic and assessment skills, and have a thorough understanding of child development. As such, an EP’s skills are most effective when used to identify children who cause concern early on and implement preventative strategies, rather than through, what is very often, reactive statutory assessment work. (5) A school’s approach towards managing behaviour and discipline should develop from a sound understanding of child development and an awareness of the root emotional, wellbeing or social causes that precipitate challenging behaviour. EPs are ideally placed to raise a school’s capacity to share best practice and provide support to teachers based on these principles. (6) The AEP is concerned by the level of knowledge and training in basic child development held by mainstream elements of the children’s workforce. The AEP has found that EPs are often told by teachers that the pupils they are expected to teach now would not have been in school five to ten years ago. The expectations on teachers, especially in secondary settings, do not seem to be matched by effective training. (7) EPs are vital in ensuring that the principles of child development are recognised in schools’ strategies for all children, but especially those with generalised and complex special educational needs. The root causes of behavioural difficulties among these vulnerable groups are often developmental and behavioural assessment is more effective if understood in terms of an individual child’s needs. Processed: 01-02-2011 14:42:40 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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(8) The most effective behaviour interventions are those that are taken at a systemic level via a whole school approach, involving teachers, parents and the pupils themselves, in order to improve problematic elements of a school’s ethos/culture and to promote the emotional wellbeing of the entire school. It is essential that senior management teams in schools communicate behaviour policies to all staff members and ensure that its principles are adhered to at all times. (9) Schools should move the focus away from individual referrals around behaviour, and be challenged to look at their practice as a whole. Such systemic approaches on a preventative scale are more effective than reactive individualised casework. This not only helps to support teachers and pupils in dealing with and reacting to challenging behaviour, but it also creates a healthy school environment that prevents such behaviour developing to levels when the most serious interventions are required. (10) EPs play an integral role in helping schools to adopt such a holistic approach towards behaviour management. By working as part of multi disciplinary teams and in close liaison with other elements of the children’s workforce, EPs ensure a continuous and consistent multi-agency approach when dealing with vulnerable children across the range of educational and care settings. (11) From their knowledge of child development, EPs are also essential in delivering in-house training to build the capacity of the workforce to recognise and address the causes of challenging behaviour. This can include conducting and providing feed back on classroom observations, designing and running INSET across the workforce and setting up training workshops. As a result teachers become able to identify and mitigate the effects of potentially problematic situations more readily. Training should also focus on how certain adult behaviours can trigger challenging behaviours. Initiatives such as learning and reflection groups can cement this awareness. (12) Basing teacher training and behavioural management on an understanding of child development not only provides teachers with strategies to deal more confidently and appropriately with individualised instances of challenging behaviour but more importantly it prevents escalation to a level when physical intervention becomes necessary. (13) Schools should not just have in place measures to penalise bad behaviour. School strategy should be refocused to build resilience, reduce risk and promote emotional wellbeing. Guidelines should outline how teachers themselves can consistently model positive behaviour to reinforce and reward good behaviour. Personal assessment of work, individual appraisal and peer support all contribute towards pupils developing an intrinsic sense of responsibility and ownership of their behaviour. This also helps to reinforce and address the link between behaviour and learning outcomes, which although related is often addressed by schools as separate concerns. (14) Schools should develop positive management strategies, which train teachers to manage classrooms in a proactive manner. A key element of this approach is positive feedback and to acknowledge appropriate behaviour when it occurs. It is important that disruptive behaviour is not condoned, but dealt with in a graduated way. Pupils who fail to respond to directions should never be ignored, but caught early.Teachers should redirect behaviour by acknowledging the appropriate behaviour of pupils around them and giving clear choices as to what will happen if they continue not to do as they are told. (15) These changes to teacher practice have been found by the AEP to reduce the number of fixed term exclusions and improve long term outcomes for all children and young people, although especially those who show signs of challenging behaviour. (16) Despite the positive contribution that EPs can make towards helping schools to manage behaviour, supporting schools to avoid the most serious interventions and ensuring improved outcomes for the most vulnerable children, the AEP is concerned that this is undermined by a lack of EP resources delivering frontline services. The biggest challenge to supporting behaviour management in schools is a lack of time and capacity, which results in attempting to show teachers what strategies to employ, but without necessary time to follow up on advice. (17) A lack of frontline capacity is in part caused by the unclear and uncertain arrangements that are in place to fund the training of EPs. All trainees receive a bursary to cover the first year of training, securing a paid placement in their second and third years to complete their doctoral study. University fees and first year bursaries are currently paid through the Children’s Workforce Development Council (CWDC), funded by voluntary annual subscriptions from Local Authorities. (18) Local Authorities are allocated non-ring-fenced funding for EP training, and this money should be paid into the central pot administered by CWDC for this purpose. However, due to the voluntary nature of the system, and pressures on budgets, Local Authorities are increasingly reluctant to either pay their voluntary subscriptions or appoint trainee EPs. (19) As with the training of other statutory front line service professionals, eg teachers and social workers, the joint training approach between employers and universities is crucial in order to ensure that training is linked to the very real needs of children, young people, schools and families. Processed: 01-02-2011 14:42:40 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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As guaranteed funding supports the training of other statutory front line children’s services professionals it seems anomalous that a similar system cannot be implemented for educational psychologists. (20) This is precipitating a shortage of trained EPs who are able to carry out statutory work and equally crucial preventative interventions. This is an immediate problem that needs to be resolved urgently. Current figures from the CWDC indicated that approximately 33% of first year trainees only had their placements for September 2010 finalised in July and August. Additionally, the CWDC has announced that recruitment for the 2011 course is frozen. This not only affects those wanting to enrol, but those already in the training system, leaving them with no guarantees that training can be completed. (21) It is crucial to note that no increase in funding is required to address this issue; rather funds that have always been intended to support the training of EPs are used for that purpose in an efficient manner. The previous funding model, which was to top-slice all Local Authorities rather than seek voluntary contributions, provided for a steady uptake of training places. (22) These developments threaten to restrict an EP’s work to statutory assessment and reactive casework. This reduces the capacity of staff to be involved in equally vital, but non-statutory preventative work. This includes working with teachers and parents to manage behaviour and discipline, in spite of the demonstrable outcomes and expertise that EPs can deliver.
Ways of engaging parents and carers in managing their children’s challenging behaviour (23) The AEP has found that changes to a home environment often affect children’s behaviour in more ways than changes to a school environment, making the involvement of parents in managing a child’s challenging behaviour essential. Early intervention and identification when a child is young is equally important when involving parents and carers because intervention can occur when the child and parents have more changes to turn behaviour around and see results. However, this requires sensitive handling and mandating parents to attend parenting classes should not be viewed as the only available strategy to engage parents. (24) Parents are less likely to support schools if they perceive that schools are being unfair to their child. Schools can negate this by having a clear set of values and procedures for dealing with challenging behaviour and discipline. If parents are aware that their child is rewarded for appropriate behaviour, it is more likely that they will support the school over matters of discipline. Initiatives such as use of parent letters, merit stars and personal appraisal can cement this approach. (25) However, even more importantly, behaviour management strategies should incorporate the child’s perspective in order to work on targeting the reason for behaviour and addressing these points. This work is usually undertaken in consultation with a teacher who can then devise a strategy to deal with these difficulties. An EP is crucial in eliciting the child’s perspective and addressing the root causes of problematic behaviours.
How special educational needs can best be recognised in schools’ policies on behaviour and discipline (26) The AEP has found that the consistency provided by adopting holistic, whole school approaches for behaviour and discipline will benefit all children, including those with SEN. However, school policies should at the same time take account of the individual child, their particular generalised or complex SEN needs and the root causes, often developmental, that trigger challenging behaviour. (27) Nurture Groups, which are school-based educational resources that try to meet the underlying needs of children who have not had the opportunity to develop the necessary skills to be successful learners, can also help to reintegrate children successfully into the mainstream classroom, while supporting their individual needs in a specialised setting. (28) Typically, children participating in Nurture Groups have difficulties in accessing the curriculum within the mainstream classroom. A Nurture Group will always have a teacher and support assistant who work closely with between eight to ten children, meaning that the teachers can develop a close relationship with each child, anticipating difficulties, intervening quickly and tailoring their approach to each child’s particular needs. All children will spend some part of each day in their own mainstream classroom. (29) Nurture Groups can also provide parents with a clear point of contact within the school to provide support and advice as well as follow up on the positive reinforcement that takes place in the educational setting. (30) The benefits of Nurture Groups should be more widely communicated across schools and Local Authorities as they ensure close liaison and joint planning between class teachers and other members of the workforce who are responsible for the child’s needs in school and at home. Processed: 01-02-2011 14:42:40 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Recommendations In order for EPs to be able to contribute to improving the performance and ability of schools to manage challenging behavior, the Government should: — look at how the children’s workforce can be trained appropriately in child development so as to better equip teachers with the skills and knowledge to identify and address the root causes of problematic and challenging behaviour — encourage schools to adopt a holistic, consistent whole school approach towards behaviour and discipline that focuses on positive classroom management and acknowledges how behaviour is related to learning outcomes — give direction to Local Authorities that educational psychology services should not only be available to all children but also parents and teachers, so that the children’s workforce can draw on the added resource offered by EPs to provide support and advice on how to identify causes of challenging behaviour correctly and implement strategies accordingly — look at the voluntary and unsustainable funding of EPs and ensure that national funding is made available to train EPs and ensure there is no reduction in their current number. September 2010
Memorandum submitted by The British Psychological Society The British Psychological Society thanks the Education Select Committee for the opportunity to contribute to this inquiry. The British Psychological Society (“the Society”) is the learned and professional body, incorporated by Royal Charter, for psychologists in the United Kingdom. The Society has a total membership of almost 50,000 and is a registered charity. Under its Royal Charter, the key objective of the Society is “to promote the advancement and diffusion of the knowledge of psychology pure and applied and especially to promote the efficiency and usefulness of members by setting up a high standard of professional education and knowledge”. The Society maintains the Register of Chartered Psychologists and has a code of conduct and investigatory and disciplinary systems in place to consider complaints of professional misconduct relating to its members. The Society is an examining body granting certificates and diplomas in specialist areas of professional applied psychology. This response was prepared on behalf of the Society by Professor Pam Maras (University of Greenwich), and Dr Patrick Leman (Royal Holloway, University of London), with specific expertise in the area of pupil behaviour and discipline. Professor Judi Ellis Chair, Research Board The Society represents a wide range of expertise in the field of education and behaviour, both at academic level and on the ground via the Educational Psychologists’ community currently advising schools and Local Authorities. As such, we welcome the opportunity to contribute to these discussions. The response is based upon evidence from psychological and related research.
Executive Summary — Educational Psychology Services work closely with other agencies at individual, organisational and policy levels. — The term anti-social behaviour can be unhelpful because it implies a punitive approach and does not take account of the range and complexity of causes. — Over-individualisation of pupils’ behaviour fails to take account of the social context or pupils’ individual agency and responsibility. — Young people can become more negative about school at a time when they are required to make important educational and personal choices — Schools are not independent of communities—there is evidence that clusters of schools operating together can impact on exclusion rates. — Engaging parents and families is crucial: this engagement needs to be carried out within the context of the communities within which schools are located. — Individual agency (and consequential responsibility) within a welfare context is likely to be the most conducive to positive change. — Research has shown that pupils with behavioural problems are not a homogenous group and that such pupils can be identified within at least eight different categories. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— The disciplinary climate of schools, school ethos and school leadership is an important factor. — Psychologists have a key role in bringing scientific rigour to the design and evaluation of interventions. — Psychologists have documented successful interventions working at the institutional, the classroom and the individual pupil levels, with teachers and with pupils and parents. — Psychological interventions address both pragmatic strategies and the intense emotions that often surround serious behaviour difficulties. — Published accounts document psychologists’ involvement in successful mediation between teachers and parents and in devising joint strategies that have produced significant improvements with KS1 & 2 pupils originally judged by their teachers as the most difficult they had encountered. — Pupil educational choices and opportunities at Key Stage 3 and 4 need to allow for those pupils not Able and/or inclined to follow single routes to higher and further education post 18.
Introduction Psychological research can make a central contribution to this inquiry through both empirical research and the systematic collation of the experience of practitioners such as educational psychologists and clinical child psychologists. As a scientific discipline, psychology is well-placed to provide an evidence base for effective intervention to improve pupil behaviour and learning at both the individual and school level, and more widely to inform policy decisions. The Society has been active in linking scientific evidence in relation to different types of behaviour difficulties and guidelines for practice (eg British Psychological Society, 1998; 2000; 2008).
1. Supporting and reinforcing positive behaviour in schools The Society welcomes the focus of the inquiry on supporting and reinforcing positive behaviour; well- established evidence from psychology suggests that this is most likely to be fruitful. The following points reflect psychological research in this area: 1.1 Over-individualisation of pupils’ behaviour, fails to take account of social context or pupils individual agency and responsibility (Norwich, in press*). Approaches located in restorative justice principles, which require engagement of all and focus upon restoring relationships address this deficit. 1.2 Teachers’ perceptions about the causes of pupils’ behaviour are important factors in the way they subsequently respond (Maras, 1996; Maras et al., 1997, 2000; Mavropoulou & Padeliadu, 2002; Pintrich & Schunk, 2002; Weiner, 1992). 1.3 Research on effective interventions includes: peer mediation around bullying (Smith, 1999), “Circles of Friends” interventions (Newton et al., 1995, Frederickson & Turner, 2003), social skills training (Maddern et al., 2004), peer tutoring and mentoring (Maras, 2001; Maras et al., 2000; Southwick, Morgan, Vythilingam, & Charney, 2005) and moral reasoning (Kuhn & Udell, 2003; Leman & Bjo¨rnberg, 2010). 1.4 Psychologists have found that early intervention work with teachers reduces disaffection and improves pupils’ behaviour (BPS, 2009; Cooper & Whitebread, 2007; Murphy, 2005). Clarity in communicating successfully with pupils with conduct problems is essential; aggressive adolescents can attribute ambiguous teachers’ intentions as hostile and personal (Wyatt and Haskett, 2001).
2. Understanding challenging behaviour by pupils in schools and its impact 2.1 Challenging behaviour generates intense emotions in staff, parents and pupils. Psychological interventions to help teachers manage deleterious and demoralising emotional responses have been positively evaluated (Bozic & Carter, 2002; Hanko, 1999; Stringer et al., 1992) 2.2 There is persistence of commonly reported sex differences in the prevalence and type of behaviour difficulties; teachers’ perceptions of young men’s emotional difficulties are significantly lower than their estimations of young women’s, compared with perceptions of behavioural difficulties (Maras & Cooper, 1999). 2.3 The nature of difficult behaviour, and how to address it, change with age; teenagers tend to become more negative around the ages of 13 to 15 (Maras et al, 2007) and show stronger affiliation with their peers and lower affiliation with their schools or families (Maras, in press*). This is also the age when they are now required to make important decisions about their education, including GCSEs, which will affect their future educational and employment opportunities. Life events such as school change, educational stress and general life worries often co-occur at this time (Maras et al., 2006). If at this critical time pupils do not have adequate support systems then anti-social behaviour becomes more likely. 2.4 Changes in adolescence, including neurological changes are likely to impact on emotions and behaviour (eg see Eisenberg et al., 2005; Sisk & Zehr, 2005). Pupils struggling with the transitional process may manifest their difficulties in sudden outbursts of inappropriate behaviour or detachment from their new Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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environment (Morgan (1999). Kee Tony (2003), found positive correlations between negative attributional style and self-reported school discipline problems, such as the use of foul language, bullying, habitual lateness, substance use, property damage, cheating and truancy. 2.5 DeWit et al. (2000) reported correlations between school culture characterised by perceptions of low teacher and classmate support, pupil conflict, unfair school rules and disciplinary practices, and low pupil autonomy and low attachment to learning and peer approval of deviance.
3. Approaches taken by schools and local authorities to address challenging behaviour, including fixed-term and permanent exclusions 3.1 Professionals’ perceptions about young people are likely to affect young people’s attitudes towards schools, subsequent behaviour and their own roles as agents in changing that behaviour in a negative way (Maras, Brosnan, Faulkner, Montgomery & Vital, 2006). 3.2 Reid (2008) suggests that at least 10 aspects are crucial to a framework and strategies for improving school behaviour and attendance: school leadership; school transitions; the quality of pastoral support; training and professional development; internal school structures and organisation; parental involvement; pupils’ voices; early intervention; multi-agency working; and finally, the role of the education social work service. 3.3 Young offenders sentenced in court have often been excluded from school. Parsons (2009) has shown that an alternative curriculum, whether managed in school or at other sites, is a key strategy for keeping young people involved with education where they might otherwise be on the streets. 3.4 School ethos is important. Well-disciplined schools create a whole-school environment that is conducive to good discipline rather than reacting to particular incidents. Prevention rather than punishment is central. Head teachers play a key role in developing policies and practices alongside other key members of staff, and teachers as a whole are committed to the pupils and their work. Most routine discipline problems are dealt with by teachers themselves, and there are strong links with parents and community agencies (Wayson et al., 1982). 3.5 Schools with high levels of communal organisation show more orderly behaviour. Schools differ in their degree of community, collegial relations being central to this, coupled with a role for teachers which frequently bring them into contact with other staff and pupils outside of the classroom (Bryk & Driscoll, 1988). 3.6 Attitudes of staff, particularly senior management and head teachers, are important in explaining the different rates of exclusions between similar schools (Maras et al., in press*19). There is a tendency for higher rates of exclusion in schools where staff believe that they do not have the power to address issues of poor behaviour (Maxwell, 1987). 3.7 Secondary schools with low levels of disruptive behaviour have pastoral care systems with the aim of enhancing educational progress. Tutors are the core of pastoral care, pastoral care for teachers is in evidence and the school climate promotes discussion of disruptive behaviour without recrimination (Galloway,1983). 3.8 Positive outcomes have been documented from the adoption of multi-disciplinary teams within schools, and on-site learning support (Hallam & Castle, 1999a; 2001) as well as following the employment of home-school links workers (Hallam & Castle, 1999b; Castle & Hallam, 2002). 3.9 Behaviour audits enable schools to identify particular difficulties, allowing schools to explore issues relating to school climate, policies and practices across the school, as well as identifying those pupils at risk of exclusion who may then be offered additional support. 3.10 Benefits have been identified from the appointment of lead behaviour professionals, learning mentors, home-school links workers, Behaviour and Educational Support Teams, nurture groups, alternative curricula, parenting programmes and therapeutic activities. The most effective schemes are those where there is whole school support, and which are integrated into whole school policy. 3.11 Classroom teachers need to establish an “activity system” which includes attention to goals, tasks, social structure, timing and pacing and resources. These activities need to be planned and managed to support good behaviour (Doyle, 1990). Where teachers are pressured to take increased responsibility for standards of attainment they tend to become more controlling and the development of learner autonomy is reduced with potentially negative effects on behaviour (Ryan et al., 1985). 3.12 Pupils can participate in addressing behaviour issues by engaging with school councils and school leadership programmes. Pupils need to internalise the need for responsible behaviour and value it for the benefits which accrue to themselves as well as others. Strategies for fostering and developing prosocial attitudes should be explored and developed alongside those targeting antisocial behaviour.
19 References marked “in press*” in this response, refer to British Journal of Educational Psychology Monograph: Psychology and anti-social behaviour in schools (Maras, Demetre & Tolmie (Eds) forthcoming), see end of our submission for full reference list Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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4. Engaging parents and carers in managing their children’s challenging behaviour 4.1 Tensions can often exist between teachers and parents around instances of difficult behaviour (Hanko, 1999, Dowling & Osborne, 1995). Psychological research has demonstrated that teachers, parents and pupils can often hold clashing beliefs about: — the major causes of difficult behaviour in schools (Miller et al., 2000, Miller et al., 2002; Norwich, Cooper & Maras, 2002); teachers consistently see home backgrounds as the principal cause of the misbehaviour and a large scale national study involving the parents and teachers of over 2,000 pupils found that parents and teachers differed significantly in their estimations of the extent of an individual child’s difficulties; — the ways in which parents can most effectively support schools in managing behaviour, (Miller et al., 1998); and — the persons who are most able to effect positive changes (Miller & Black, 2001). 4.2 Systematic collations of highly successful interventions involving educational psychologists, teachers and parents have revealed the nature of the consultative skills displayed by psychologists in moving potentially explosive situations towards positive outcomes valued by all parties (Miller, 2003). 4.3 Studies highlight the value of incorporating support for parents or caregivers into interventions. A wide range of proven parenting programmes is now available including Parent Support Advisers, dedicated expert parenting practitioners and the increased availability of “Think Family” services. although the majority of parents attend these programmes voluntarily, some must to do so because they have been issued with a Parenting Contract or Order (DCFS, 2010a).
5. How special educational needs can best be recognised in schools’ policies on behaviour and discipline 5.1 Pupils with behaviour difficulties are not a homogeneous group but can be typified under at least eight headings, including: delinquency,emotional difficulties, behavioural difficulties, emotional and behavioural difficulties, social problems, challenging behaviour associated with learning difficulties, and mental health problems (Maras, 2001). Individual pupils rarely fall under one category and they therefore require different and targeted interventions. 5.2 The term anti-social behaviour has a generality about it that encompasses both disturbed and disturbing behaviour (Norwich, in press*). The 2009 Home Office definition of anti-social behaviour which informed a policy framework with powers to address the regeneration of disadvantaged areas, gave powers to antisocial behaviour that could be applied to 10–17 year olds (Norwich, in press*). This definition does not lend itself easily to a special needs framework within which the types of difficulties encountered by many pupils with disturbed behaviour might be best located. 5.3 It is important to distinguish between school level processes and the exceptional needs of certain individual pupils. Today, most pupils with SENs are educated in mainstream schools; mainstream education and the nature and level of support that they receive will vary from region to region. 5.4 Research shows that young people attending behavioural support units and Pupil Referral Units (PRUs) have accurate perception of their behavioural and conduct difficulties. In the same study, young people scoring high on the hyperactivity tended to attribute significant amounts of blame to themselves for negative events, suggesting a greater tendency towards problems in these areas (Maras et al., 2006); evidence suggests that high levels of negative attributional style in childhood are linked to later depression in adulthood (Hilsman & Garber, 1995). 5.5 Current methods of identifying young people’s difficulties in school and the subsequent targeting of appropriate interventions remain very much dependent on teachers’ and others’ judgements rather than common agreed criteria. 5.6 Tabassam and Grainger (2002) found that pupils with learning disabilities and/or AD/HD had an overall negative attributional style, whereas typically achieving pupils report an overall positive attributional style for academic success and failure. 5.7 Ofsted (2003) reports that only one third of secondary schools adequately meet the needs of pupils with social, emotional and behavioural difficulties; in fact 64% of the pupils given permanent exclusions in that same year had special educational needs (Boyle & Goodall, 2005, as sited in McIntyre-Bhatty, 2008).
6. Alternative provision for pupils excluded from school due to their behaviour 6.1 Improving behaviour in school depends on addressing a range of inter-related issues at the whole- school, classroom and individual pupil level (Gottredson et al., 1993). 6.2 A distinction is commonly made between the extent to which orderly behaviour can be brought about by effective school policies and classroom management skills, and the size of that proportion of pupils who require specialist and individualised interventions. 6.3 Research in primary schools has shown that even pupils judged by their teachers to be most extreme in their behaviour can be “brought around” by effective interventions devised between teachers and educational psychologists (Miller, 2003). Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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6.4 Opportunities for pupils who are not inclined, or best suited, to follow current conventional educational routes geared toward further education are common across Europe and elsewhere; however, they are more generally only offered to pupils as a last resort as part of a portfolio of alternative education. 6.5 Research and practice in psychology has shown that effective school level processes can positively influence some pupils judged extremely difficult to manage (Miller, 2003). Conversely, some detailed individual management strategies, with their roots in psychological research, have been shown to have wider implications for more general practice within schools (Maras, 2001). 6.6 In terms of these interventions with individual pupils, a large and convincing evidence-base demonstrates the effectiveness of approaches based on Cognitive Behaviour Therapy (Graham, 2004) and Solution Focused Brief Therapy (Rhodes & Ajmal, 1995, Young & Holdrof, 2003).
7. Links between attendance and behaviour in schools Lloyd-Nesling (2006) provides evidence linking pupil disaffection in areas of socio-economic disadvantage to effective or ineffective school leadership. The evidence from research suggests that effective school leadership can be improved in terms of managing pupils’ behaviour and attendance by: — Encouraging parents and the wider community to feel part of the school process; — Creating stability in the school’s organisational structure; — Being consistent with disciplinary, behaviour and attendance policies; — Encouraging senior pupils to act as role models; — Encouraging pupil involvement in the day-to-day school life and implementing a culture of shared visions and goals, high expectations and a positive ethos; and — Addressing issues of bullying, including verbal and cyber bullying (as cited in Reid, 2008).
8. The Government’s proposals regarding teachers’ powers to search pupils, removal of the requirement for written notice of detentions outside school hours, and the extent of teachers’ disciplinary powers, as announced by the Department on 7 July[MU1]. 8.1 We recognise perennial concerns about the balance between pupil behaviour and discipline and the appropriate provision and tensions between the care/welfare and the justice/control approaches (Macleod, 2006; Norwich, in press*). 8.2 There may be times that require urgent school action. A key factor in managing pupil behaviour relates to the disciplinary climate of schools. Longstanding but still valid research identified four types of climate: controlled (low misbehaviour, severe punishment); conflictual (high misbehaviour, severe punishment); libertarian (high misbehaviour, light punishment); autonomous (low misbehaviour, light punishment) (Cohen & Thomas, 1984). 8.3 It is clear from work in low and zero excluding schools and Local Authorities that managed moves and/or alternatives to exclusion, that these approaches are likely to be more fruitful and less socially and financially costly. We hope that these initial comments are useful to you. We would be happy to provide a more in-depth submission if that would be of use to the Select Committee Inquiry. October 2010
References Boyle, D, and E Goodall (2005). School’s Out? Truancy and exclusion: A guide for donors and funders. London: New Philanthropy Capital. Bozic, N & Carter, A (2002). Consultation groups: participants’ views. Educational Psychology in Practice, 18(3), 189–203. British Psychological Society (2009). Better behaviour in class. Available online at: http:// www.thepsychologist.org.uk/blog/11/blogpost.cfm?threadid%655&catid%48 Bryk, A S & Driscoll, M E (1988). An Empirical Investigation of the School as a Community. Chicago IL, University Chicago School of Education. Castle, F & Hallam, S (2002). A School-Home Liaison Project: Supporting and Involving Parents; Reducing Truancy and Exclusion, TOPIC, 27(4), 1–5, Slough, NFER. Cohen, B & Thomas, E (1984). The disciplinary climate of schools, Journal of Educational Administration, 22(2), 113–134. Cooper, P & Whitebread, D (2007). The effectiveness of nurture groups on student progress: Evidence from a national research study. Emotional and Behavioural Difficulties, 12(3), 171–90. DCFS (2010a). Parenting and family support: Guidance for local authorities in England. Nottingham: DCSF Publications. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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DeWit, D J, Offord, D R, Sanford, M, Rye, B J, Shain, M & Wright, R (2000). The effect of school culture on adolescent behavioural problems: self-esteem, attachment to learning, and peer approval of deviance as mediating mechanisms. Canadian Journal of School Psychology, 16(1), 15–38. Dowling, E and Osborne, E (eds) (1985). The Family and the School: A Joint Systems Approach to Problems with Children. London: Routledge and Kegan Paul. Doyle, W (1990). Classroom knowledge as a foundation for teaching, Teachers CollegeRecord, 91(3), 347–60. Eisenberg, N, Cumberland, A, Guthrie, I K, Murphy, B C, & Shepard, S A (2005). Age changes in prosocial responding and moral reasoning in adolescence and early adulthood. Journal of Research on Adolescence, 15(3), 235–260. Frederickson, N & Turner, J (2003). Utilizing the Classroom Peer Group to Address Children’s Social Needs. An Evaluation of the “Circle of Friends” Intervention Approach. Journal of Special Education, 36. Galloway, D (1983). Disruptive pupils and effective pastoral care, School Organisation, 3(3), 245–54. Gottfredson, D C et al. (1993). Managing adolescent behaviour: a multi-year, multischool Study. American Educational Research Journal, 30(1), 179–215. Graham, P J (2004) (Ed.) Cognitive Behaviour Therapy for Children and Families (2nd Edn.). Cambridge. Cambridge University Press. Hallam, S & Castle, F (1999a). Evaluation of the Behaviour and Discipline Pilot Projects (1996–99) Supported under the Standards Fund Programme: Research Report RR163. London: Department for Education and Employment. Hallam, S & Castle, F (1999b) Evaluation of a School-Home Liaison Project—London Diocesan Board for Schools. Institute of Education, University of London. Hallam, S & Castle, F (2001) Reducing Exclusion from School: What can help prevent it? Educational Review, 53(2), 169–179. Hanko, G (1999). Increasing competence through collaborative problem solving: using insight into social and emotional factors in children’s learning. London. David Fulton. Hilsman, R, & Garber, J (1995). A test of the cognitive diathesis–stress model of depression in children: Academic stressors, attributional style, perceived competence, and control. Journal of Personality and Social Psychology, 69(2), 370–380. Kee Tony, T S (2003). Locus of control, attributional style and discipline problems in secondary schools. Early Child Development and Care, 173(5), 455–466. Kuhn, D & Udell, W (2003). The development of argument skills. Child Development, 74(5), 1245–1260. Leman, P J (2001). The development of moral reasoning. In C. Fraser & B. Burchell (Eds.), Introducing social psychology. Cambridge: Polity Press. Maddern, L, Franey, J, McLaughlin, V & Cox, S (2004). An evaluation of the impact of an inter-agency intervention programme to promote social skills in primary school children. Educational Psychology in Practice, 20(2), 135–57. Maras, P (1996). “I’d rather have dyslexia”: Perceptions of EBDs. Educational and Child Psychology, 13(1), 32–42. Maras, P (2001). Citizenship, mentoring and related schemes for children and young people with SEBDs: evidence from research. In P. Cooper (ed) “We can work it out” What works in educating pupils with social, emotional and behavioural difficulties outside mainstream classrooms. London: Barnados. Maras, P, & Redmayne, T, Hall, C, Braithwaite, D, & Prior, P (1997). “Helicopter children” and “butterfly brains”. ADHD: perceptions, issues and implications. Educational and Child Psychology, 14(1), 39–49. Maras, P & Cooper, P (1999). Sex differences, gender issues and EBDs. In P. Cooper (ed) Understanding and supporting children with emotional and behavioural difficulties. London: Jessica Kingsley. Maras, P,Edgecombe, D, Dobson, S & Tagoe, P (2000). “The bad kids are getting rewarded” Peer mentoring for school pupils. London: National Mentoring Network. Maras, P & Aveling, E (2006). Students with special educational needs transition from primary to secondary school. British Journal of Special Education, 33(4), 196–202. Maras, P, Brosnan, M, Faulkner, N, Montgomery, T, & Vital, P (2006). “They are out of control”: Self- perceptions, risk-taking and cognitive attributional style of adolescents with and without Social Emotional and Behavioural Difficulties. Emotional and Behavioural Difficulties, 11(4), 281–298. Maras, P, Carmichael, K, Patel, S, & Wills, J (2007). “The trouble with Year 10”. 13–16 year old school students’ attitudes to higher education. Social Psychology of Education, 10, 375–397. *Maras, P, Demetre, J, & Tolmie, A, editors (forthcoming) Psychology and antisocial behaviour in schools. British Journal of Educational Psychology Monograph Series: Psychological Aspects of Education— Current Trends. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Mavropoulou, S & Padeliadu, S (2002) Teachers’ causal attributions for behaviour problems in relation to perceptions of control, Educational Psychology, 22(2), 191–202. Maxwell, W S (1987). Teachers’ attitudes towards disruptive behaviour in secondary schools, Educational Review, 39(3), 203–216. McIntyre-Bhatty, K (2008). Truancy and coercive consent: is there an alternative? Educational Review, 60(4), 375–390. Miller, A (2003). Teachers, Parents and Classroom Behaviour. A Psychosocial Approach.Maidenhead. Open University Press. Miller A, Ferguson, E & Simpson, R (1998). The perceived effectiveness of rewards and sanctions in primary schools—adding in the parental perspective. Educational Psychology, 18, 55–64. Miller, A, Ferguson, E & Byrne, I (2000). Pupils’ causal attributions for difficult classroom behaviour. British Journal of Educational Psychology, 70, 85–96. Miller, A, & Black, L (2001). Does support for home-school behaviour plans exist within teacher and pupil cultures? Educational Psychology in Practice, 17(3), 245–62. Miller, A, Ferguson, E & Moore, E (2002). Parents’ and pupils’ causal attributions for difficult classroom behaviour. British Journal of Educational Psychology, 72, 27–40. Morgan, A R (1999) (ed.) How to Create Useful Transition Activities: tips for principals. Reston, VA: National Association of Secondary School Principals. Murphy, R (2005). Every child matters: Change for children, resources and practise. London: DfES. Newton, C, Taylor, G & Wilson, D (1996). Circles of friends: An inclusive approach to meeting emotional and behavioural needs. Educational Psychology in Practice, 11(4), 41–9. *Norwich, B (In press). Anti-social behaviour: what contribution for psychology? British Journal of Educational Psychology Monograph Series. Norwich, B, Cooper, P & Maras, P (2002). Attentional and activity difficulties: findings from a national study. Support for Learning, 17(4), 182–186. Office for Standards in Education (OFSTED) (2003) Special educational needs in the mainstream (London, HMSO). Parsons, C (2009) Strategic Alternatives to Exclusion from School, Stoke on Trent: Trentham Books. Pintrich,PR&Schunk, D H (2002). Motivation in education: theory, research and applications (2nd ed). Upper Saddle River, NJ: Merrill/Prentice Hall. Reid, K (2008). Behaviour and attendance: the national picture; a synopsis. Educational Review, 60(4), 333–344. Ryan, R M, et al., (1985). A motivational analysis of self-determination and self-regulation in education. In C Ames & R Ames (Eds) Research on Motivation in Education Vol: 2. The Classroom Milieu, San Diego, Academic Press. Rhodes, J & Ajmal, Y (1995). Solution Focused Thinking in Schools. BT Press: London. Sisk, C L & Zehr, J L (2005). Pubertal hormones organize the adolescent brain and behaviour. Frontiers in Neuroendocrinology, 26, 163–174. Smith, P K, Madsen, K C, & Moody, J C (1999). What causes the age decline in reports of being bullied at school? Toward a developmental analysis of risks of being bullied. Educational Research, 41, 267–285. Southwick, S M, Morgan, C A, Vythilingam, A & Charney, D (2005). Mentors enhance resilience in at-risk children and adolescents. Annual reviews of clinical psychology, 1, 255–291. Stringer, P, Stow, L, Hibbert, K, Powell, J and Louw, E (1992). Establishing staff consultation groups in schools. Educational Psychology in Practice, 8(2), 87–96. Tabassam, W & Grainger, J (2002). Self-concept, attributional style and self-efficacy beliefs of students with learning disabilities with and without Attention Deficit Hyperactivity Disorder. Learning Disabilities Quarterly, 25, 141–151. Wayson,WWetal.(1982). Handbook for developing schools with good discipline. Bloomington IN, Phi Delta Kappa. Weiner, B (1992) Human motivation: metaphors, theories and research. Newbury Park, CA: Sage. Wyatt,LW&Haskett, M E (2001). Aggressive and nonaggressive young adolescents’ attributions of intent in teacher/student interactions, Journal of Early Adolescence, 21(4), 425–446. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Young, S & Holdorf, G (2003). Using solution focused brief therapy in individual referral for bullying. Educational Psychology in Practice, 19(4), 271–83.
Supplementary memorandum submitted by the British Psychological Society The British Psychological Society (the “Society”) welcomes the opportunity to provide additional evidence to that already supplied to the inquiry. The additional points made relate to specific areas of discussion arising out of the first witness sessions hosted by the Committee.
Degree of the Problem Public perceptions and media suggestions of an increase in behaviour problems in schools are not supported by data; evidence indicates a decrease in exclusions from school, and most schools and teachers have in place excellent strategies for working with disaffected youth. However, there will always be a number of children and young people who find school challenging, and that schools and teachers find both difficult to teach and disruptive. Teachers generally find low levels of persistent disruption particularly difficult, especially when involving more than one pupil. There are though a number of strategies for dealing with this issue, most of which relate to school management, leadership and behaviour policy. It is however likely that even in schools without significant behaviour problems, a small number of children and young people would benefit from interventions and advice from educational psychology services and in some instances clinical psychologists involved with Child and Adolescent Mental Health Services (CAMHS). It is worth noting that although Sir Alan Steer’s report offers a number of ways forward, no psychologists or any other representatives from allied professionals including psychiatrists psychologist are named as contributing to the report—unlike the Elton report which has within it many interventions such as a nurture groups which did draw upon psychology (Norwich, in Maras, Tolmie and Demetre in press) It is also the case that understanding of, and interventions for, such children and young people would be enhanced if psychological understanding and interventions including child development were part of initial teacher training and continuing professional development. The Society would be happy to advise on any moves toward addressing this need. In addition, the Society will publish a monograph containing contemporary papers on psychology and anti-social behaviour in schools as part of the British Journal of Educational Psychology monograph series on current trends in education in spring 2011.
Mixed Ability and/or Ability Streamed Teaching Evidence from psychology has shown that neither mixed ability nor streamed teaching is preferable in terms of reducing behaviour difficulties in classrooms. Rather more relevant is the style of teaching in relation to the topics covered and needs of peoples. Indeed research has shown that streaming can reduce the academic opportunities for less able students in some situations. For example, when comparing teachers’ methods of teaching in mixed ability class and classes grouped by abilities, evidence suggests that the later intends to differentiate resources for groups of students with differentiating abilities more than teachers working in mixed ability classes (Hallam & Ireson, 2005). Teachers felt that they had to spend more time to manage disruptive behaviour, and reported to be stricter with the lower ability pupils when working in classes grouped by ability rather than mixed ability classes. Less able pupils seem to have fewer curriculum opportunities, more structured work and repetitive work with fewer opportunities for discussions. The later scenario might be perceived by students as boring and could feed into disengagement with academic work as well as more disruptive behaviour. Ireson and Hallam’s (2009) longitudinal study of 1,600 students aged 14–15 years showed that the extent of ability grouping within a school had an effect on students’ academic self-concept; in regards to their general self concept, students in the most stratified schools had less positive academic self-concept. Interestingly this academic self-concept was not subject specific—the extent of ability grouping for students from Year 9 to Year 11 did not affect their self-concept in mathematics, science or English.
Literacy and Anti-social Behaviour The body of evidence showing large numbers of young people and adults in the judicial system with lower levels of literacy and numeracy than the general population should be treated with caution, as the data underpinning them are not causal and much is linked to social backgrounds. Trzesniewski and colleagues (2006) (in a sample of twins tested at the ages of five and then seven) found that relationship between reading and antisocial behaviour was primarily due to environmental factors (eg stimulating home environment, child neglect, mother’s reading skill, parental income, education, social class, deprivation, family size, maternal depression, and young maternal age) which were common to both variables (reading and antisocial behaviour). Clearly low levels of literacy are problematic in all walks of life and education. Antisocial behaviour was an important predictor of reading problems, even after controlling for comorbidity between ADHD and conduct problems. Literacy difficulties may trigger problem behavior and vice versa. However, there is no scientific evidence to support a view that poor literacy is the sole or most common cause of discipline problems in schools. Rather, there are multiple reasons why children and young people may have behaviour problems, from social Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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background to biological and neuropsychological factors that may be genetic, or arise out of prenatal or birth trauma, or as part of a young person’s development. However, in many situations young people’s difficulties are caused by a combination of factors. This makes working with young people difficult and time consuming. It is therefore crucial that full assessments are made as early as possible and that these involve educational psychologists as part or as well as behaviour support teams. In extreme cases, part of CAMHS are involved in assessing the needs of children.
Discipline and Teacher Strategies Skiba and Peterson (2000) suggest that there is a gap between scientific research and practice with regards to school discipline and behaviour in class. Evidence from the USA suggests that schools which implemented “zero tolerance” policies to tackle violence and disruptive behaviour in schools were perceived to be less safe than schools which did not rigidly implement “zero tolerance” policy. Doumen, Verschueren and Buyse (2009) argue that conflicting situations following an aggressive child’s behaviour could have an impact on teacher’s belief of their coping and management skills of disruptive children. Their research provides evidence to suggest that the main reason why a disruptive child’s behaviour leads to teacher-child conflict is teacher’s perceptions of lower control over that child’s behaviour. The introduction of child development into teacher training, would allow teachers to better understand the complexities and possible nature of child’s disruptive behaviour and therefore restore their confidence in their abilities to manage classroom behaviour and improve teacher child interactions. In sum, practitioners in the school should not only focus on reducing children’s aggressive behaviour, but also on strengthening teachers’ belief in their own abilities to deal with this behaviour, and specifically in interactions with particular children in their classroom. Professor Pam Maras October 2010
References Doumen, S, Verschueren, K, & Buyse, E (2009). Children’s aggressive behaviour and teacher-child conflict in kindergarten: Is teacher perceived control over child behaviour a mediating variable? British Journal of Educational Psychology, 79, 663–675. Hallam,S&Ireson, J (2005). Secondary school teacher’s pedagogic practices when teaching mixed and structured ability classes. Research Papers in Education, 29(1), 3–24. Ireson, J & Hallam, S (2009). Academic self-concepts in adolescence: Relations with achievement and ability grouping in schools. Learning and Instruction, 19(3), 201–213. Maras, P, Demetre, J, & Tolmie, A, editors (forthcoming) Psychology and antisocial behaviour in schools. British Journal of Educational Psychology Monograph Series: Psychological Aspects of Education— Current Trends. Skiba, R J & Peterson, R L (2000). School discipline at a crossroads: From zero tolerance to early response. Exceptional Children, 66(3), 335–347. Trzesniewski, K H, Moffitt, T E, Caspi, A, Taylor, A, & Maughan, B (2006). Revisiting the association between reading achievement and antisocial behavior: New evidence of an environmental explanation from a twin study. Child Development, 77(1), 72–88.
Additional Information on Related Documents of Interest 1. Responses from the British Psychological Society to Consultations — Autistic Spectrum Disorders in Adults—draft scope consultation—May 2010 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%918&RegionID%0&iYear%0&open% — A Better Future: A consultation on a future strategy for adults with autistic spectrum conditions— September 2009 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%806&RegionID%0&iYear%0&open% — Autism Spectrum Disorders in Children and Young People—draft scope—July 2009 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%819&RegionID%0&iYear%0&open% — Consultation on the Autism Spectrum Disorder (ASD) Strategic Action Plan 2008–09—2010–11— December 2008 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%734&RegionID%0&iYear%0&open% — Attention Deficit Hyperactivity Disorder: consultation—March 2008 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%644&RegionID%0&iYear%0&open% Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— Generic and Specific Interventions to Support Attitude and Behaviour Change at Population and Community Levels (Behaviour Change)—May 2007 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%505&RegionID%0&iYear%0&open% — Strengthening powers to tackle anti-social behaviour—Feb 2007 http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%433&RegionID%0&iYear%0&open% — The Society is currently in the process of responding to the Autism Strategy Scotland; however, the draft document will not be available until the end of November. — 21st Century Schools: A world-class education for every child/a school report card http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%767&RegionID%0&iYear%0&open%false — Mental Wellbeing of Children in Primary Education—Consultation on Synopsis on the Evidence http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%549&RegionID%0&iYear%0&open%false — Statutory Guidance on Section 6 Education & Inspections Act (Positive Activities for Young People) http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%463&RegionID%0&iYear%0&open%false — 14–19 Education and Skills White Paper http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%222&RegionID%0&iYear%0&open%false — Statutory Guidance for Local Authorities and Schools on Information Passports, Personal Learning Plans and the Core Entitlement for All Pupils in Pupil Referral Units and Other Alternative Provision http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%879&RegionID%0&iYear%0&open%false — Assessments Relating to Learning Difficulties—Guidance to Local Authorities http://www.bps.org.uk/publications/consultation-papers/consultation- papers home.cfm?frmAction%details&paperID%804&RegionID%0&iYear%0&open%false
2. Related Guidelines and articles available on the Society’s website — Challenging Behaviour: A Unified Approach—Good Practice Standards for Service Responses to Challenging Behaviour—Self Assessment Checklist http://www.bps.org.uk/dcp-ld/news/challenging behaviour.cfm — Better Behaviour in Class http://www.thepsychologist.org.uk/blog/11/blogpost.cfm?threadid%655&catid%48 — Advancing the Technology of Behaviour change to Promote Health (Robert West) http://www.bps.org.uk/document-download-area/document- download$.cfm?file uuid%320FAD36-1143-DFD0-7ED2-6B682098268C&ext%ppt — Autistic Spectrum Disorder—Guide for Chartered Psychologists working with Children & Young People http://www.bps.org.uk/document-download-area/document- download$.cfm?file uuid%4D7D91BC-1143-DFD0-7E2A-E443E780170C&ext%pdf October 2010
Memorandum submitted by Dr David L Moore CBE Managing Behaviour Most teachers manage the majority of pupils well most of the time. Statistical information on exclusions and schools internal documentation support this. Permanent exclusions from school are around 10,000 per year out of a pupil population of over eight million. They constitute less than one-quarter of one percent of the total school population. Boys make up the majority of permanent and fix term exclusions from primary and secondary schools. They are four times more likely to be excluded than girls. The most common reasons for exclusions have not changed since the publication of Exclusions from secondary schools 1995–96, they are: — Verbal abuse to staff. — Violence to other pupils. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— Persistently breaking school rules. — Disruption. — Criminal offences, usually theft or substance abuse. There are over 4,000 secondary schools in England of which some 1,500 have not permanently, or fix term excluded any pupils in the last five to 10 years. Some 10–15% of all permanent exclusions come from about 100 schools. Fix term exclusion is used by many schools of a way of indicating to the pupil and parents that behaviour is declining. In nearly two thirds of such exclusions lasting between one and three days it is effective ensuring the pupil does not reoffend in the following twelve months. Some schools use of fix term exclusion is promiscuous. For example, some continue to exclude for pupils not wearing correct uniform. A fact not published in the 1996–97 HMI Report as it was lost in the editing process was that two-thirds of all pupils excluded from schools visited had reading ages between 8.5 and 10 years. HM Chief Inspector of Prisons note in a report issued around the same time, that two-thirds of prisoners on remand had poor reading ages usually ten years or less. While girls are less likely to be excluded, often the offenses they commit are often of a higher level than boy’s, for example sustained and intense bullying and acts of sustained violence. Assaults on teachers generally occur when a pupil attempts to leave a classroom and the teacher moves to stop them. Normally the pupil pushes the teacher away which is reported as assault. There are however, as unions will testify occasions when violence towards teachers occurs though it is not as commonplace as sections of the media would have their readers believe. Both the Elton and Steer reports on behaviour in schools noted and inspection evidence concurs that the behaviours that concern teachers the most are low level disturbance, which groups around: — General buoyancy as pupils move around the school and enter and leave classrooms. — Idle chatter during lessons. — Not following expected classroom routines, for example calling out and interrupting others including the teacher. — Pupils coming off task and interfering with their peers who are trying to work. — Inappropriate social behaviours such as “answering teachers back”, attempting to have the last word and displaying an acute disregard for the adults status. Teachers have little training in managing behaviour. Since Kenneth Baker was Secretary of State for Education 3 year teacher training courses have limited Child Development and Psychology programmes and for students taking the PGCE courses they are lucky to receive between an hour to two hours on classroom and pupil management. Some professional associations for example the NASUWT organise training for newly qualified teachers at summer schools before they begin at their schools which helps prepare them for the challenges of managing young people. The over-all lack of understanding about child development and psychology disadvantages our teachers and as a result many struggle to distinguish between what are termed “received” behaviour, that which has been learnt at home and not modified to function in different settings and behaviours that indicate disturbance and illness. Clear and consistent classroom routines, linked to engaging teaching which takes into account the range of reading ages and offers tasks that support and yet challenge at the same time help most pupils to maintain good behaviour. Pace of lesson gives a sense of urgency and helps maintain pupils focus. Inconsistency creates opportunities for pupils to come off task. Where teachers do not settle classes well, the social chatter and group dynamics takes control so that teaching becomes an interruption to the social discourse of the pupils. The introduction initially through the Excellence in Cities Programme and Behaviour Improvement Programme of Learning Mentors and In School Support Centres has been effective in preventing exclusion and improving behaviour. Increasingly schools outside of the programmes funding streams have from within their own budgets employed staff to take on these roles. Often these staff come from outside the teaching profession. Primary schools have used support programmes such as Quality Circle Time, Nurture Group Programmes and more therapeutic approaches such as A quiet Place and Place to be. All such programmes have their place, but cannot compensate for weak or inappropriate classroom organisation or teaching. Most schools provide a safe haven for pupils; however, they are only as strong as their weakest teachers. Head teachers report that some staff do not follow expectations identified in the schools behaviour policy. They expect senior staff to sort out classroom difficulties and abdicate responsibility for what goes on in their classroom or teaching area. Evidence from visits indicates that where senior staff have worked with weaker staff there is generally an improvement in classroom organisation and teaching. As a result staff become more self confident and manage pupils better. Some staff however continue despite support, to struggle. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Effective links between home and school are pivotal in helping pupils to understand that the expectations are the same irrespective of the setting and that the child cannot play one off against the other. However, there are a large number of parents for who school was not a pleasant experience and these are the ones who tend to challenge the schools if they perceive their child is being victimised by the school. Managing these situations is not easy, but some schools using Pupil, Parent Support Workers have found that earlier intervention where parents are approached and don’t feel blamed for their child’s behaviour are beginning to change attitudes to schools and teachers for the better. There are however, behaviours and attitudes that test schools and all the adults that work within them. Some pupils have a limited understanding of personal danger, social convention and their role as a child. Often they challenge their parents and others in authority such as the police. They do test the support systems of schools and staff tolerance. Currently too few schools seek training for staff in managing or working with other schools for joint training. Some schools have a handful of such pupils while others, usually serving very poor communities many have a higher number. They are not the majority causing chaos in our schools but the impact of this minority can be significant in influencing how teachers view behaviour over-all in theirs and other schools. October 2010
Memorandum submitted by Carl Parsons, Visiting Professor of Educational and Social Inclusion, Centre for Children, Schools and Families, University of Greenwich Achieving zero permanent exclusions from school, social justice and economy Introduction Zero exclusion schools are possible. More realistically, clusters of schools, with support, coordination and brokering by the local authority (LA) or through local partnerships, can organise and sustain an inclusive educational community. Exclusion from school is a quiet mockery of Every Child Matters. Even with the coalition government’s abandonment of the requirements for local attendance and behaviour partnerships (due to be in place from September, 2010) and even with the Academies Act in place, it still makes sense in terms of social justice, educational and child support and saving money to reduce exclusions. This paper looks at the social justice case through secondary data and reports research and action about how committed local authorities along with their communities can successfully reduce or eliminate permanent exclusions. All political persuasions can sign up to this and prevent harm which is experienced disproportionately by some groups. The Strategic Alternatives to Exclusion from School project set out to explore not whether permanent or fixed period exclusions should be banned but whether they could become unnecessary. Focussing initially on three low excluding LAs and then on five high excluding LAs, this work shows that local authorities have a powerful influence on school exclusion levels. At the local strategic level, provision can be organised for all pupils through collective education and children’s services action. Three factors motivated the Strategic Alternatives action project in 2005: a conviction that power and control in education is exercised to an important degree at the corporate level in LAs through elected members and senior officers; the top 15 LA excluders had an average permanent exclusion rate (0.21%) seven times higher than the average for the 15 lowest excluders (national mean 0.11%—2004–05); low excluders appeared to be able to maintain their low excluder position over time. In the two year project (Parsons, 2009), three of the project LAs reduced fixed period exclusions, including one which had been the highest permanent excluder in 2003–04. Some secondary schools used newly opened Inclusion Centres or Learning Support Units as substitutes for fixed term exclusion, recognising that the time off school usually meant that pupils, who were not generally on top of their work, would get even further behind. While fixed term exclusions were increasing nationally, three of the LAs were able to reduce their rates. Reduction in the permanent exclusions in the five high excluding LAs was through the efforts of the LAs, their schools, children’s services and some coordinated contribution from the voluntary sector, rather than the project. As well as the provisions mentioned above, managed moves (Abdelnoor, 2008) and alternative curricula played key parts. All had reduced their rates from 2004–05 levels one achieving a reduction to one quarter of the national rate by 2008–09. Advances made in reducing exclusions since 1997 by the Labour government should not be discarded lightly by the new administration. However, there are continuing concerns about current legislation and guidance and the operation of procedures at LA and school level. The main concerns are in relation to: — the paradoxical logic of removing children from education, a state provision seen as important to individual development as well as national economic and social progress; — the treatment of vulnerable children; — social justice in terms of the disproportionate exclusions of some groups; and Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— the apparent tension between Every Child Matters and the use of permanent exclusion against a small proportion of children, with fixed period exclusions applied to about 3% of the school population, a proportion of whom receive multiple fixed period exclusions. This paper is divided into a number of sections, mainly reviewing secondary data, in most instances showing data for TWO years to illustrate that inequities are recurrent, systematic and known. The sections which follow are: Zero and low excluding local authorities. Social justice and exclusions. Strategies for low or zero exclusions. Zero and low excluding local authorities. Table 1 shows that there were 17 zero excluding local authorities in 2008–09, up from 12 in 2007–08. Many of these have sustained very low or zero exclusions for two or more years. It can be done. The advantages of managing provision in a non-exclusionary way are massive in terms of reduced conflict and better outcomes at no net cost. The message can be more effectively spread using evidence even more than through moral exhortation! Of the LAs achieving zero exclusions in the latest figures, many have sustained this position over two or more years. 31 out of 150 LAs, 20%, count as low or zero permanent excluders.
Table 1 LOWEST RATES OF PERMANENT EXCLUSION 2008–09
Number of permanent Percentage of the Local Authority exclusions school population National average 6,550 0.09 1 Barnsley 0 0.00 2 Brighton and Hove x 0.00 3 City of London 0 0.00 4 Isles of Scilly 0 0.00 5 North East Lincolnshire x 0.00 6 North Lincolnshire 0 0.00 7 North Tyneside 0 0.00 8 Portsmouth x 0.00 9 Rotherham x 0.00 10 Rutland x 0.00 11 Sheffield x 0.00 12 St. Helens 0 0.00 13 Waltham Forest 0 0.00 14 West Berkshire x 0.00 15 Wigan x 0.00 16 Wolverhampton 0 0.00 17 York x 0.00 18 Leicester 10 0.01 19 Cambridgeshire 10 0.02 20 Cornwall 10 0.02 21 Cumbria 10 0.02 22 Medway 10 0.02 23 Slough 10 0.02 24 Southend-on-Sea 10 0.02 25 Blackpool 10 0.03 26 Bolton 10 0.03 27 Bradford 30 0.03 28 Dorset 20 0.03 29 East Riding of Yorkshire 10 0.03 30 Kingston upon Thames 10 0.03 31 Stockton-on-Tees 10 0.03 x is as given in DfE statistics. The three very small LAs are in italics Table 2 shows that in Wales permanent exclusion rates have been fairly low and often at half the rate for England. Scotland and Northern Ireland have done better, with rates which are less than a quarter of those in England. It is clear from both the figures and the commentaries on those countries’ websites that a different commitment to the care and well-being of all children prevails. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Table 2 PERCENTAGE RATES OF PERMANENT EXCLUSION IN THE COUNTRIES OF THE UK
2006–07 2007–08 2008–09 Northern Ireland 0.02 0.01 0.01 Scotland 0.04 0.02 0.02 Wales 0.05 0.05 0.05 England 0.12 0.11 0.09 Social Justice and Exclusions Exclusion is a disciplinary response from a school and has no forward plan for the child and no coherent vision of the educational community’s responsibility for making provision to meet need. It is a punitive response, however regretfully administered. It removes an alleged problem from the school, but it causes great anguish and hardship for the child and family and increases problems for other services to deal with the child following exclusion. There are more effective, efficient and caring ways of managing the challenges at the level of the LA and school clusters with support from other agencies (Parsons, 2009). Camila Batmanghelidjh (2005) and her work with Kids Company demonstrates another, more responsible and caring ethical position. Some groups are disproportionately excluded. Those from poorer backgrounds as indicated by free school meals, those with special educational needs and some ethnic groups are excluded at up to three times the average rate. Figure 1 shows the rates for permanent exclusions of ethnic minorities for England as a whole. While within the White group Gypsy-Roma and Traveller children are excluded at even higher rates (not shown), the substantially higher than average rates for some ethnic minority groups stubbornly persist year on year. There are arguments to be made about the education system not being adjusted to meet the needs, expectations and attributes of some parts of the citizenry (Parsons et al, 2005).
Figure 1 PERMANENT EXCLUSIONS IN ENGLAND BY ETHNICITY IN 2007–08 AND 2008–09
% rate of permanent exclusions 0 0.05 0.1 0.15 0.2 0.25 0.3 0.35 0.4
Total White
White and Black Caribbean White and Black African white and Asian Other mixed
Black Caribbean Black African Black Other
Indian Pakistani Bangldeshi Other asian 2007/08
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Figure 2 FIXED PERIOD EXCLUSIONS IN ENGLAND BY ETHNICITY IN 2007–08 AND 2008–09
% rate of permanent exclusions 0 1 2 3 4 5 6 7 8 9 10 11 12 13
Total White
White and Black Caribbean White and Black African White and Asian Other mixed
Black Caribbean Black African Black Other
Indian Pakistani Bangldeshi 2007/08 Other asian 2008/09 Chinese Other
There were 6,550 permanent exclusions in 2008–09 (down from 8,130 in 2007–08). 5,000 were white, 1,520 were ethnic minorities. Of these, 360 were of “mixed ethnicity” and 540 were from the three Black groups. The disproportionate exclusions nationally of White and Black Caribbean, Black Caribbean and Black Other are plain to see in the graphs. DfES research on minority ethnic exclusions and the Race Relations (Amendment) Act 2000 concluded that “the disproportionalities, in terms of exclusion and attainment, are institutionally racist outcomes routinely produced as a matter of organisational practice” (Parsons, 2008: 401). Looking at the graphs carefully, it would seem that for permanent exclusions, for those three highest excluded groups shown, the disproportionality is significantly reduced, less pronounced for fixed period exclusions as shown in Figure 2. Maybe there is some movement towards Getting it; Getting it Right (DfES, 2007) but the scale of the difference has been, and remains, disturbing.
Figure 3 RATES OF PERMANENT EXCLUSIONS IN ENGLAND BY SEN STATUS IN 2007–08 AND 2008–09
0.45
0.40 2007/08 0.35 2008/09 0.30
0.25
0.20
0.15
0.10 % rate of permanent exclusions 0.05
0.00
SEN with SEN without No SEN All statements statements
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Seventy one percent of permanently excluded children in both years were on the special needs register. As shown in Figure 3, they are two and a half times as likely to be excluded if they have a statement (many of these will be in special schools) and continuing to be three times as likely if on the register of special needs without a statement. This is one of the clearest cases of not having an educational system designed to meet need. Some refer to it as scandalous. Deprivation measures are strongly associated with exclusions. Figure 4 shows that generally exclusion rates decline with affluence. Table 3 shows that, at the level of individuals, those with a free school meal entitlement are about two and half times as likely to be excluded permanently and a little over twice as likely to be excluded for a fixed period than other pupils.
Figure 4 RATES OF FIXED PERIOD EXCLUSIONS BY DEPRIVATION QUINTILE OF SCHOOLS’ INTAKE 2008–09
6
5
4
3
2
% rate fixed period exclusions 1
0 0-20% 20-40% 40-60% 60-80% 80-90%
Deprivation quintile
Table 3 EXCLUSIONS BY FREE SCHOOL MEAL STATUS
Exclusions 2007–08 Exclusions 2008–09 Number of % of school Number of % of school Permanent exclusions exclusions population exclusions population Pupils eligible for free school meals 3,050 0.28 2,480 0.22 Other pupils 5,020 0.08 3,900 0.06 All pupils 8,130 0.11 6,550 0.09
Fixed period Exclusions Pupils eligible for free school meals 126,920 11.56 124,190 11.10 Other pupils 255,950 4.02 237,880 3.77 All pupils 383,830 5.14 363,280 4.89 Strategies for Low or Zero Exclusions It is important to recognise the pressures which give rise to high rates of exclusion such as: — Implicit exclusionary and punitive cultures. — The “standards” agenda of the DfE and the DCSF before it. — Staff “training”. — Behaviour that is very risky—knives or drugs. — Delay in getting the multi-agency support. — The myth of eliciting support for the child through exclusion. — Parental non-cooperation. — “Day 6” provision to be made by the school for a pupil after five days of exclusion. — The one-off incident which could not be predicted. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— Distribution of deprivation funding between least and most deprived schools. It is how an LA, its schools and children and families services work to confront these pressures that is crucial. In low excluding LAs, trust, speedy response and constructive, non punitive layers of provision are robustly coordinated. Exclusions are applied disproportionately to lower socio-economic groups and some ethnic groups, which raises social justice issues. Poorer children, as signified by free school meals entitlement, and those of Black Caribbean heritage are much more likely to be excluded as white children. Those with special needs are likewise vulnerable to exclusions. The outcomes for permanently excluded young people are generally poor and it is the plain, avoidable absence from education that is the root cause. There is a key strategic role for the LA or partnership in reducing exclusions. The LA retains a political, financial and moral power amongst the providers of services for children, including education. The key strategic developments are: 1. Shared commitment across schools and LA members and officers working with explicit principles and procedures. 2. Broadening the school by making more diverse and multi-level provision in schools. 3. Building bridges so that managed moves can be organised and school clusters can share the responsibilities. 4. Alternative provision involves finding or making a place for every child. 5. Joining up the dots to make multiagency work effective. 6. Ethos, attitudes and sharing a vision, working at hearts and minds to gain support for including all children and responding to all needs. A strategic inclusion agenda shown to work includes action of the following kind: 1. Identify the credible inclusion champion at LA member level. 2. Negotiate speedily authority level changes in structures, provision and staffing that headteachers will accept. 3. Ensure the lead is taken by a high ranking and well-paid officer who has the authority and respect of heads and can do business with them. 4. Support school leaders in diversifying their provision and making best use of the diversified workforce in supporting challenging young people and their families. 5. Establish agreement amongst schools about how pupils might be moved from their current school, either permanently or temporarily, building on personal relations between schools but creating fair access protocols or points systems. 6. Develop a range of alternative curriculum providers, assessing and monitoring that providers can meet targets and contribute valuably to children’s development including qualifications. 7. Ensure that the teams of other professionals are of appropriate skill levels and can offer a fast response. 8. Create and recreate the sense of belief in the LA’s duty to provide calmly and restoratively for every child. Zero exclusion schools and LAs work. Personal and collective damage to individuals and families is reduced, some shocking, persistent inequalities are reduced and some woeful lack of care for special needs pupils and those growing up in deprived circumstances is avoided. All this can be done in a way which is “cost neutral” and does not damage attainment standards. No other country in Europe does it as we do it in England and that should also be a prompt to new thinking, new practice and real demonstration of every child matters, whichever government is in power. October 2010
References Abdelnoor, A (2007) Managed Moves: A Complete Guide to Managed Moves as an Alternative to Permanent Exclusion, London: Calouste Gulbenkian Foundation. www.gulbenkian.org.uk/media/item/1229/216/ Managed-moves-04 08.pdf Batmanghelidjh, C (2007) Shattered Lives: Children Who Live with Courage and Dignity, Philadelphia, PA, Jessica Kingsley Publishers. Council on Tribunals (2003) School Admissions and Exclusion Appeal Panels—Special Report, London, Council on Tribunals. DfES (2007) Priority Review: Exclusion of Black Pupils “Getting it. Getting it Right”, London, Department for Education and Skills. DCSF (2008) Improving Behaviour and Attendance: Guidance on Exclusion from Schools and Pupil Referral Units, London: Department for Children, Schools and Families. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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DCSF (2010) Guidance on School Behaviour and Attendance Partnerships, London: Department for Children, Schools and Families. Parsons, C, Annan, G, Cornwall, J, Godfrey, R, Hepburn, S and Wennerstrom, V (2005) Minority Ethnic Exclusions and the Race Relations (Amendment) Act 2000, Research Report 616, London, DfES www.dfes.gov.uk/research/data/uploadfiles/RR616.pdf Parsons, C (2008) Race Relations Legislation, Ethnicity and Disproportionality in School Exclusions in England, Cambridge Journal of Education, 38.3, pp. 401–420. Parsons, C (2009) Strategic Alternatives to Exclusion from School, Stoke-on-Trent, Trentham Books. The Strategic Alternatives to Exclusion from School project was funded by the Esmee Fairbairn Foundation to whom I am most grateful. The views expressed here are not necessarily those of the Foundation.
Memorandum submitted by the National Union of Teachers (NUT) 1. The National Union of Teachers (NUT) welcomes the opportunity to respond to the Inquiry into Behaviour and Discipline in Schools. 2. The NUT believes that the professional judgement of teachers should be at the heart of teaching and learning. The approach of schools to pupil behaviour and the level of support given to teachers will determine whether or not schools are effective. 3. In its National Charter Learning to Behave: A Charter for Schools the NUT set out proposals which, if adopted in schools, would encourage the promotion of good pupil behaviour and the reduction of behaviour which disrupts school life. 4. The NUT recognises the importance of no child being “written off” and believes that neither teachers nor pupils should face dangers arising from unacceptable behaviour. It is important for teachers and schools to consider ways in which all pupils have access to an education which meets their needs. 5. This submission is accompanied by two NUT publications on behaviour: Pupil Behaviour: Advice, Guidance and Protection and Learning to Behave: A Charter for Schools.20
Supporting and reinforcing positive behaviour in schools 6. The school behaviour policy, which should be discussed by all members of the school community, especially staff and pupils and not just considered by Governors as a paper exercise, is of paramount importance to the effectiveness of behaviour management in schools. The NUT believes that a school behaviour policy must be a practical document which includes clear guidelines to staff on practice and procedures relating to any incidence of inappropriate behaviour within school. The policy should also make a clear commitment to regular professional development programmes for all staff on behaviour strategies both in child and adolescent development and about the application of behaviour management strategies. 7. The NUT believes that head teachers have a responsibility to provide continuous professional development (CPD) for their staff. CPD needs to cover behaviour management strategies and should focus on understanding child and adolescent development. A systematic approach by head teachers to facilitate the provision of behaviour related CPD can have a very positive impact as evidenced by the success of the NUT’s CPD programme. The programme’s behaviour courses, focusing on restorative justice, violence prevention and conflict resolution are always fully subscribed. 8. Research shows that in schools where teachers collaborate effectively they achieve better levels of behaviour.21 9. The NUT believes that schools need sufficient time within the day to conduct 360 degree examinations of both the pupil and the situation when there is an incident relating to inappropriate pupil behaviour. In order to effectively carry out an investigation and find a resolution schools may require on-site trained counsellors. Necessary time within the school day should also be allocated for all staff to share information and experiences about the behaviour needs of individual pupils. 10. The NUT supports and advocates the approach of the Social and Emotional Approaches to Learning (SEAL) materials in schools as they aim to tackle the reasons for a pupil’s behaviour rather than their actions. For staff such an approach can create an environment in which social and emotional skills are enhanced to an extent where behaviour issues can be resolved through discussion and negotiation rather than punishment methods, physical restraint or as a last resort exclusion. 11. The NUT further advocates the use of positive parenting courses run by pupil and parent support advisors within schools as a way of improving behaviour through the development of a common home/ school language and understanding of expectations.
20 Not published on the Committee’s website. 21 Improving School Behaviour, Chris Watkins, Institute of Education, Paper for NAPCE, National Association for Pastoral Care in Education, 2000. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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The nature and level of challenging behaviour by pupils in schools, and the impact upon schools and their staff 12. Unacceptable pupil behaviour, whether low level or extreme, is profoundly challenging for the staff and pupils who come into contact with it. It disrupts the continuity and consistency of teaching and damages teachers’ confidence and young people’s learning. It jeopardises the life chances both of those who are involved and their peers. If not tackled, the causes of unacceptable behaviour, which may lie outside the school, may continue to damage their own lives and those of others into adult life. 13. In its Charter on behaviour Learning to Behave22 (a copy is attached for your information23) the NUT outlined the entitlements and responsibilities of all those involved in school communities. The NUT fundamentally believes that it is the right of teachers to teach and the right of children and young people to learn.
Bullying 14. The NUT welcomes the Government’s pledge on tackling homophobic bullying. Guidance to schools should ensure that all school behaviour policies make clear that racist, sexist, homophobic and transphobic incidents and harassment against pupils or staff on the grounds of disability or religion or belief will not be tolerated. They should refer explicitly to strategies to prevent homophobic, transphobic, racist, sexist and disablist bullying and to eliminate the homophobic and sexist content of commonly used terms of verbal abuse. The NUT suggests that school policies on equal opportunities and on harassment and bullying should be required to state that the school will take action to protect all pupils and staff from all forms of harassment. 15. In its survey on Homophobia carried out in Oldham (2008) the NUT found that 85% of teachers who responded to the survey had witnessed incidents of homophobic abuse being made to pupils or teachers each week. Over half of the teachers responding to the survey had been the target of homophobic abuse themselves by pupils during the school year. 16. Cyberbullying is a growing issue within schools linked to a range of behaviour issues. The NUT believes that it is an area which should be addressed within school behaviour policies.
Approaches taken by schools and local authorities to address challenging behaviour, including fixed-term and permanent exclusions 17. School communities benefit from a strong lead from head teachers and senior managers in addressing challenging behaviour. The provision of positive support to staff is essential for the effective management of behaviour. Ofsted24 found that senior managers who provided close support to staff contributed significantly to the effective management of behaviour. 18. The NUT is deeply concerned about the high exclusion rates in Academies. Department for Education figures for 2008–09 (published July 2010) show that permanent exclusion rates in Academies were almost three times as high as those in all schools—0.31% in Academies compared with 0.09% in all schools— and almost double the rate for local authority maintained secondaries (0.17%). The rate of fixed period exclusions in Academies was 13.51% compared with 4.89% in all schools and 9.26% in local authority maintained secondaries. 19. The figures also show how certain groups of children—those with special educational needs (SEN), those on free schools meals and those from ethnic minority backgrounds have much higher exclusion rates overall. Given these facts, the high exclusion rate in Academies must raise concern about whether Academies are discriminating against some disadvantaged groups of children. It would be of concern to the NUT if Academies were using exclusion to remove young people who might depress the exam results at those institutions. 20. The NUT also has concerns that the pressures on schools to maintain their place in the league tables may cause them to consider using either “unofficial” or permanent exclusions as a mechanism to achieve this. 21. Curriculum organisation can also have a significant impact on pupil behaviour. The NUT believes that head teachers and senior colleagues should work collaboratively and in consultation with teachers in order to design coherent curriculum models which can meet the needs of all children. Such models should be based on teachers’ professional judgement and knowledge of their pupils. 22. NUT members consistently report, for example, that the change of curriculum for pupils entering year one, which is often more formal and less flexible than the EYFS, leads to inappropriate pupil behaviour. In many instances this is due to the inflexibility of the curriculum and the inappropriate way in which this transition stage is managed by the school. Introducing a transition stage for at least a term and allowing access to outdoor play areas can support pupils in this year group, particularly summer born boys for whom the change can be traumatic.
22 Learning to Behave: A Charter for Schools, National Union of Teachers, 2006. 23 Not published on the Committee’s website. 24 Managing Challenging Behaviour, Ofsted, March 2005, HMI 2363. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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23. The link between inappropriate pupil behaviour and SATs is also reported by NUT members. Pupil frustration at often being required to sit and cram for too long can lead to unacceptable behaviour. The removal of such pressures on staff and pupils would greatly support those advocating a more flexible curriculum. 24. There is evidence from a range of sources including the DfE itself, Ofsted and DEA which suggests that global learning supports and reinforces positive behaviour through an emphasis on critical and creative thinking, self-awareness and open-mindedness towards difference. Such approaches help to build pupil confidence, empathy and sense of social responsibility which support and reinforce positive behaviours. 25. The NUT’s CPD programme in collaboration with the International policy team is currently providing a course for teachers called ‘Internationalising Learning’, which includes a focus on teaching about identity, empathy, respect for others and community cohesion. Global teaching resources and ideas trialled by participants during the course are posted on the NUT’s website at http://www.teachers.org.uk/ node/11676 which means that they can be shared with and adapted by other teachers. One participant on the course said “Since trialling the global dimension in my class over the last few weeks, pupils have learned to appreciate other people’s opinions and that different views and attitudes are okay, developed skills of empathy and learned reasoning and deduction skills-being able to argue effectively and appropriately…”. 26. Ofsted noted in its research on Education for sustainable development25 that “some school leaders identified links between particular pupils’ involvement in sustainable activities and improvement in their attitudes and behaviour generally.” 27. Independent Appeals Panels (IAP) should include at least one classroom teacher as a representative. The NUT believes that IAP’s should always demonstrate “reasonableness” when making a judgement about returning a pupil to a school. For example, where a teacher has been injured in an altercation with a pupil, the NUT would deem such a move to be unreasonable in terms of the expectations of any future teacher: pupil working relationship and would expect the IAP to judge it to be unacceptable for the pupil to return to that school. 28. The NUT believes that schools’ access to local authority behaviour support services provides an important element in the success of school behaviour strategies. Access to behaviour specialists and the range of behaviour services is of particular importance in supporting schools with less experience of managing inappropriate pupil behaviour. Any reduction or loss of support services could result in an increase in the number of exclusions from such schools. 29. A further concern of the NUT is the impact of the Academies programme on local authority support services. As greater numbers of schools become removed from local authority control there is a real danger of local authority services such as behaviour support being outsourced or disbanded completely.
Recognising special educational needs in schools’ policies on behaviour and discipline 30. The school Behaviour Policy should include a commitment to co-ordinating provision across the school for pupils with SEN to secure appropriate support for these pupils, as well as an explanation of the role of the SENCO in ensuring that the needs of pupils with SEN are met. 31. In order to prevent disabled pupils and pupils with SEN becoming involved in the disciplinary route in schools, reasonable adjustments and special education provision should be made for them. 32. One of the recommendations of The Costs of Inclusion26 report was that future education policy should serve to enhance collaboration among schools to ensure the best service to all children. The NUT advocates closer links between mainstream schools, special schools and short stay schools in order to foster effective learning communities, co-operative multi-agency work and joined up family services.
The efficacy of alternative provision for pupils excluded from school because of their behaviour 33. The NUT believes that high quality alternative provision for pupils excluded from school is essential to both the continuity of education for the pupil and as a way of supporting them to manage their own behaviour appropriately. The importance of close links between teachers in alternative provision and mainstream schools cannot be underestimated. It is where there is a breakdown in communication between establishments which have responsibility for a pupil that the danger of them “falling through the net” becomes apparent. 34. Partnership working between schools and alternative provision including short stay schools and special schools is a positive way in which staff can work more effectively together to support pupils in managing their own behaviour without recourse to exclusion. The NUT supports the way in which behaviour partnerships can enable schools to facilitate “managed moves” with the least disruption to the pupil.
25 OFSTED, Education for sustainable development, 2009, Manchester. 26 The Costs of Inclusion, MacBeath and Galton, University of Cambridge/NUT, May 2006. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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35. There is a concern, however, that the introduction of a greater number of Academy schools into the system will remove the ability of schools to continue to engage in behaviour partnerships. Academies have no requirement to belong to such partnerships and can simply “opt out” of such a system.
Links between attendance and behaviour in schools 36. It is well-recognised that pupils attending school regularly are less likely to engage in inappropriate or poor behaviour. Teachers are well aware that there are many reasons why a pupil may have poor attendance, some of which will not be factors which they can control, such as parental illness or disability, parental alcoholism or drug abuse or being required to care for younger siblings, for example. Schools should also remain vigilant about the impact which domestic violence and abuse can have on pupil behaviour and the ways in which such pupils can be supported. 37. Pupils need support in informing schools about such issues at home and they need to feel confident that the consequences of divulging such information to a school will not have any detrimental consequences. 38. This role constitutes part of the duty of care of a school and should not fall to teachers to manage. The importance of effective communication, however, between the social service or care elements of schools and the classroom teacher must not be underestimated. For teachers to be most effective it is important that they do have an understanding of a pupil’s home circumstances where it may affect their ability to reach school on time, have persistent absence or find it difficult to meet deadlines.
The Government’s proposals regarding teachers’ powers to search pupils, removal of the requirement for written notice of detentions outside school hours, and the extent of teachers’ disciplinary powers, as announced by the Department on 7 July 39. The NUT calls for an unequivocal statement from Government that if teachers use their powers to search pupils or their rights regarding physical restraint there will be no unforeseen consequences arising from their actions. Teachers have a duty of care to pupils which may at times cause them to intervene to protect pupils from harming themselves or other pupils. Many are currently not confident that if they take such action they will be supported by senior leadership teams, parents or the local authority should an inquiry be conducted. 40. One NUT member made the following statement regarding teachers disciplinary powers: “Most teachers are reluctant because they only see this physical intervention as a last ditch attempt to resolve a situation. There is a perception however that this kind of intervention may well either cause themselves harm or bring about disciplinary action. Despite a well negotiated restraint policy in our County, staff still become victim of disciplinary action for the most “soft” intervention such, as leading a pupil by the arm. In one case this led to a teacher being suspended causing all the usual stress involved in such matters. As a consequence any positives coming out of County training gets overridden by actual events”. 41. The NUT supports the importance of maintaining teachers “normal” practice with regard to using physical restraint on pupils. Practice may, however, vary greatly between the different key stages of education and between sectors within the school system. Members report for example that different levels of pupil behaviour are accepted within short stay schools than might be considered reasonable in mainstream schools. There are also differences in the extent to which a teacher might comfort a child in the early years sector which would not be considered appropriate for older children. This is what is meant by teachers being able to work in a way which is “normal” for them within their particular workplace. It is important that policy and guidance for staff reflects and supports this. 42. The NUT believes that reporting incidents of restraint within school should not be enforced as a statutory requirement but left to the judgement of the individual head teacher. 43. The proposed introduction of flexibility in the notice required for detentions is supported by the NUT with the caveat that sensitivity regarding no notice detentions, where such action could make a child vulnerable, is retained and schools themselves are trusted to make such judgements. 44. The NUT has general concerns about any relaxation of the requirements regarding teachers search powers in which the gender of the searcher and the witness need only be the same gender as the pupil being searched where this is reasonably practical. The NUT recognises, however, that there may be difficulties for small schools in such cases, where the availability of a particular gender may prove impractical. Nationwide generic advice becomes difficult in these circumstances. Individual schools should therefore have specific guidance in their own behaviour policies to cover such eventualities, possibly having named persons or posts which have been appropriately trained to handle such delicate situations. September 2010 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Memorandum submitted by the Association of Teachers and Lecturers ATL—Leading Education Union 1. ATL represents teachers, support staff, lecturers and leaders. We believe that teachers as professionals must be recognised for their knowledge, expertise and judgement, at the level of the individual pupil and in articulating the role of education in facilitating social justice. Schools should be supported to work collaboratively to offer excellent teaching and learning, and to support pupils’ well-being, across a local area. Accountability mechanisms should be developed so that there is a proper balance of accountability to national government, parents and the local community, which supports collaboration rather than competition.
How to Support and Reinforce Positive Behaviour in Schools 2. Despite much negative coverage in the media, 66% of respondents in a recent ATL member27 survey found that positive behaviour is supported and reinforced effectively in their schools. Based on our members’ experiences, we outline the key factors vital for this support.
Strong Leadership 3. As with any initiative or activity in schools, the support of a strong leadership team is key to success. This strong leadership must translate into active support for school staff in terms of: (i) having clear and concise guidelines on behaviour for all pupils, and an insistence on their being consistently applied; (ii) having similarly clear and concise guidelines on classroom/behaviour management for all staff with appropriate support structures in place; (iii) ensuring that staff have appropriate peer or leadership support in relation to their practice around behaviour management, eg mentoring, training; and (iv) having a belief in teacher professionalism which supports teacher flexibility to deviate from prescribed practices in order to meet the needs of their pupils, where necessary.
Whole-school Behaviour Policy 4. A consistent factor in promoting positive behaviour in schools is a whole-school behaviour policy,with expectations throughout the school team, at all levels, that it be consistently applied. Member experience observes that for this policy to be effective, it needs to be backed up with behaviour management plans and risk assessments for persistent and challenging cases. Positive and proactive measures are emphasised with clear reward systems highlighted and where sanctions are necessary they are proportional, clear and effective. All measures must be consistently applied. 5. As staff turnover in schools may vary, it is important that school leadership ensures that all staff know and understand the policy, and that there are regular opportunities for training and review of practice in the light of the policy and vice versa, which includes all staff, short—or long-term. Consistency is vital and clear reporting and recording procedures play a key role in ensuring that it is achieved across all staff.
School Culture and Ethos 6. The whole-school approach embraces the school culture, staff-pupil and pupil-pupil relationships and vigilance around group tensions and bullying. School behaviour policies need to include explicit references to specific forms of bullying, such as racist, sexual/sexist and homophobic bullying and again, should be backed by clear action plans (eg the use of homophobic language is not simply stopped, as part of behaviour policy, but also challenged with regard to underlying cultural assumptions).28 7. ATL’s members have also found that a positive ethos in the school of praise, responsibility, support and peer leadership supports and reinforces positive behaviour. This includes countering prejudicial and stereotypical assumptions about particular groups and having an inclusive ethos, promoting positive images of LGBT pupils, BME pupils (including Gypsy, Roma and Traveller pupils). Schools use mentoring/ buddying systems between pupils to combat bullying and ignorance and to ensure that difference is understood. Core values for all—staff and students—are embedded in everyday discussions, circle times and problem solving situations. The whole school knows the expectations, from the children to the teaching staff, support staff and midday supervisors.
Staff Initial Training and Professional Development 8. It is not just important that staff know the school’s behaviour policy and work to demonstrate the values that underpin it; they need to understand child development and human behaviour in order that they can promote behaviours which enable classroom relationships to ensure learning and fulfilment of potential. There is no doubt that the current offer of initial and continuing professional training is not sufficient,
27 Behaviour, Discipline and Attendance: ATL Member Survey, Autumn 2010. 28 “Doing Gender”, ATL survey report on aspects of sex/gender identity and homophobia. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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leaving an understanding and knowledge gap. This is exacerbated by a similar lack of training about Special Educational Needs, needs, which if unidentified and unmet, can result in pupil disaffection and alienation from learning, often manifesting in challenging classroom behaviours. ATL’s excellent and oversubscribed Behaviour Management training course and related publications29 attempt to meet the professional need caused by this deficit but it is vital that a solution is developed at a broader systemic/structural level.
Support Staff 9. The use of teaching assistants has been invaluable in schools particularly where SLTs have been encouraging of their development, often into areas of behaviour and SEN. TAs have been vital in establishing strong and supportive relationships with pupils who find learning/social aspects of education difficult, in working with their families and also in working with other agencies.
Collaborations, including Extended Services 10. Schools who have positive experiences of behaviour have often promoted close working relationships between their staff and other schools nearby, including the local PRU, and other professional agencies, eg education psychologist, social care and health professionals.30 They work with parents and the local community to help change potentially negative attitudes to education there. Many members feel that the existence of Sure Start has been very helpful, in making parents feel more involved in the school, tackling distrust and fear, helping parents understand better their own responsibilities and receive support to deal with any parenting challenges they face.
Systemic Challenges High-stakes accountability and assessment system 11. “Each year is started with good intentions but as pressure for results mounts the focus switches.” This quote from an ATL member encapsulates the tension between the current high-stakes testing systems and broader strategies of inclusion which underpin the most effective behaviour policies. We know from research31 that a focus on learning rather than performance yields excellent results, in terms of pupil engagement and behaviour and also on academic outcomes. However, under the current high-stakes system, under the heavy hand of Ofsted, many school leaders find it risky to change their strategy.
Funding for Staff 12. As funding in schools is becoming increasingly stretched, ATL is concerned about the impact on staffing levels. Any cut in teacher numbers will be disastrous as our existing teaching workforce is already stretched, teaching large classes and with excessive workloads. We are also concerned that any cuts in support staff numbers will have a massive impact on overall staff workload and on current positive strategies of behaviour management—in many schools, TAs are essential to offering dedicated support to individual pupils and their families, proactively tackling challenging classroom behaviours and supporting teaching.
Diversification of the School System 13. ATL believes that the ever-growing diversification of the school system, and the move by many individual institutions away from the local authority structure will undercut behaviour and attendance partnerships and across-school working, despite such collaborations offering solutions around managed moves, staff mentoring and professional sharing of key information.
The Nature and Level of Challenging Behaviour and its Impact Nature and level of challenging behaviour 14. ATL members typically experience low-level disruption and lack of compliance with expectations/ rules. This kind of behaviour interferes with teaching and learning and causes stress on a daily basis. 15. A big challenge to school staff is also entrenched behaviour based on stereotypes and cultural prejudice ie homophobia and transphobia, Islamophobia, sexism and towards vulnerable groups such as those in care or with learning difficulties. 16. Verbal abuse of teachers, in terms of insults, threats and derogatory comments, is distressingly common: 51% of ATL members surveyed32 reported that they had experienced this. A significant proportion of ATL respondents also reported being subject to intimidation such as threats, shouting, being sworn at (38.6%) and physical aggression (28.5%). Violence is also a concern with 25.9% of ATL survey respondents experiencing violence directed at staff. In the main, violence by pupils is directed at other pupils,
29 “Managing Classroom Behaviour” ATL, Watkins (1997) and “Learning: A Sense-Maker’s Guide”, ATL, Watkins (2003). 30 ATL, Extended Services, position statement, March 2010. 31 “Learning: a sense-maker’s guide”, Watkins, ATL, 2003. 32 Challenging Behaviour in Schools: ATL Member Survey, Spring 2010. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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in the experience of 87.3% of respondents. These figures are important and concerning but it is vital that responses engage with individual incidences and causes, whilst ensuring that staff are protected and supported and future risks minimised.
Impact on staff 17. The impact on staff who experience challenging classroom behaviour is huge. Members cite effects including chronic stress, depression, voice loss, loss of confidence, illness resulting in time off work, negative impact on home/family life. Many experience huge frustration in facing problems which are beyond the school’s capacity to change, or in facing challenges without good support from the senior leadership team. When these frustrations and negative effects become overwhelming, many lose their faith in the education system with the result that a significant proportion leave—36.8% of our respondents considered changing profession because of poor behaviour by pupils.
Impact on school 18. The impact at school-level of disengaged and challenging pupil behaviour is disruption of learning and the increasing disengagement of pupils. Staff absence increases as dealing with daily challenges takes its toll, and staff morale in general dips. The community of the school is undermined, and cohesion becomes more difficult to maintain. A supportive and pro-active senior leadership team with whole-school policies on behaviour which emphasise engagement of pupils can do much to minimise the negative impact on school, staff and pupils of any challenging behaviour that occurs.
Approaches to Address Challenging Behaviour 19. Schools and local authorities have built up a range of strategies to respond to challenging behaviour. The following are some of the approaches observed by members: — Managed moves between schools—these have worked very well in some areas, based on collaboration between schools, support by the local authority, giving pupils another chance in a different environment.33 — Increase of communication with parents—this is particularly effective where school staff have established supportive relationships with parents, often involving a team relationship with external services. These can include, where appropriate, contracts or agreements between parents/carers, students and senior staff. — Dedicated inclusion teams with particular strategies eg: time out; key workers; groups which focus on communication skills, anger management etc; inclusion rooms; a “seclusion” system; a behaviour card system; and restorative justice. — Where removal from lessons seems to be required, it can be replaced with a part-time timetable in secure personalised learning centre/behaviour unit on-site. — Positive strategies such as nurture groups. Also, mentoring by older pupils. — Zero tolerance approaches to unacceptable behaviours. Use of sanctions such as removal of privileges. Also, fixed-term exclusions. — Differentiated policy in relation to need, eg SEN.
Engaging Parents and Carers 20. Our members report that building relationships with parents is a key way of engaging them positively in managing their children’s behaviour. Some schools have a dedicated staff member for parent-community relations which has achieved much in this area, particularly reaching parents who have been previously difficult to engage; some offer parenting classes. Early involvement of parents, clear communication of difficulties and consequences and behaviour agreements (some do this in the form of “contracts”) are very effective. There needs to be a basis of regular communication with parents for “good” as well as “bad” reasons. Tools such as the Individual Education Plan (IEP) are also useful. Extended services can play a key role in this; it is vital that school staff liaise with specialists outside the school, highlighting specialist support to parents, ie around domestic violence, LGBT equality etc.
Difficulties 21. Evidence/information plays a vital role in these relationships and this can be undermined by insufficient logging of incidents. This will be further damaged by the currently considered abolition of duty to record and report bullying incidents and racist incidents. Staff can be vulnerable to pupils/parents making allegations against them, as a form of defence—logging of incidents helps to defuse these allegations earlier.
33 “Managed Moves”, Abdelnoor, Gulbenkian Foundation (2008) & “Strategic Alternatives to Exclusion from School”, Parsons (2009). Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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22. Some parents distrust or fear institutions such as schools, and indeed the supportive extended services around them. This is very challenging for schools and LAs to overcome. These fears and resentments are often reinforced by deprivation and socioeconomic inequalities. Time—and staff-intensive interventions including a dedicated Parent Liaison worker are needed to meet this level of need. 23. Some schools and areas face the challenge of a geographically dispersed parent body where communication with parents is stymied by distance. Email, phone and notes via student bag/book methods can be effective but are limited, particularly when sensitivity of issue dictates a face-to-face approach. Where language can be a barrier, it is vital that there are language support services available and indeed, access for families to EAL services. 24. A significant proportion of parents feel unable or disinclined to set boundaries for their children. In some cases, it reflects a lack of confidence or knowledge, needs which can be met with early parenting interventions like Sure Start. There are parents who present strongly challenging behaviour themselves, being aggressive towards the school and in some cases, their children. In these cases, it is vital that schools use extended services and proactive approaches.
Special Educational Needs 25. SEN can best be recognised in schools’ behaviour and discipline policies through an underpinning broad inclusion policy and an openness to a broad range of interventions, according to pupil need and situation. This kind of broad strategy emphasises early identification of SEN, recognises different needs and therefore affords flexible options for staff to use ie pupils with special learning/behavioural needs being able to spend time in the Learning Suite, TA support, one-to-one tuition, individualised/differentiated learning, behaviour support plans. 26. It is vital that schools have expertise and experience in SEN; many use a Learning Support Worker/ Team to ensure the identification of, and organisation of support for, special needs of pupils. Staff need to be given access to this SEN expertise, whether through internal/external CPD, mentoring by the SENCO, peer support. Schools need to link with external agencies to have access to expertise and to support their SEN provision.
Current Challenges 27. SEN can be seen as an add-on, with behaviour management policies not allowing for differentiation. This can be exacerbated by inadequate internal communication with SEN dept; members report cases where support staff are given little input and information on current behaviour or SEN policies. There is a lack of general workforce knowledge of specific SEN issues, leaving them ill-prepared to encounter/identify the related needs. 28. Funding is perceived to be an issue in the lack/delay of statements for pupils with SEN with the potential conflict of interest represented by the funding body as provider of statements. However, it is vital that alternative options being considered take into account factors such as the current shortage of education psychologists.
Alternative Provision 29. Currently, alternative provision is patchy in terms of access and quality across the country. Members observe that getting access can be slow and difficult, even impossible. Where alternative provision settings have worked well, members have strongly praised services they offer pupils, such as skills centres, and outreach services which are helpful in building up support for those pupils. They are seen as being very effective with behaviour management, and many members are fearful for the future of these centres in relation to funding cuts as they feel that they offer a vital opportunity for pupils who have struggled with mainstream education. 30. Re-integration into the mainstream school environment is an area of concern for our members—it is vital that there is good communication between the school and the alternative provision setting so that there is a clear strategy to prevent a recurrence of previous issues. 31. Members report that managed moves, if supported by parents, have worked well for many pupils, providing the opportunity for a fresh start within mainstream education, without the stigma of permanent exclusion.
Links between Attendance and Behaviour 32. As with behaviour, strong leadership and a flexible curriculum has impact on attendance in schools as observed by Ofsted in 2007.34 Non-attendance is a challenging behaviour and as with classroom disruption, it can be an expression of alienation and disengagement with school, learning and the curriculum. It can also be an expression of broader socioeconomic issues, chaotic home lives or pressures on children as carers. As with behaviour, it requires understanding of individual cases and individualised responses.
34 “Attendance in Secondary Schools”, Ofsted Report (2007). Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Government’s Proposals 33. ATL members expressed concern about the impact of Government proposals on relationships with pupils and parents, for example:
Powers to Search 34. There are already powers to search for teachers; extending and continuing to emphasise these powers undermines teachers’ role as educators, putting them increasingly into a policing role. Members feel that these risk alienating pupils and parents, perhaps even resulting in civil claims and could precipitate challenge and confrontation with a negative impact on learning. Some members observed that these measures are suitable to schools as “grade-factories” but are debatable if schools’ function is also to shape “well-rounded individuals”. Any powers to search must be accompanied by clear guidance with the aim of protecting staff and pupils alike.
Detentions Notice Requirements 35. ATL members believe that this will be detrimental to relationships with some parents who, without notice, will not know where their children are, giving them cause for a reasonable complaint against the school. It also raises concerns where pupils need school transport and there are no alternative transport options available. While it can make detention more efficient by the fact of its immediacy, our members are unsure that this advantage outweighs the disadvantages noted above. They observe that lunchtime detentions can be as effective and not as problematic. They also state that the use of any such sanctions should be included in regular communication with parents.
Conclusion 36. ATL members are clear that while challenging pupil behaviour is a significant issue in schools, there are positive developments that engage pupils in learning, minimizing disruption and providing support for staff in recognising pupil needs. Many of these developments come out of strong leadership, collaborative across-school working, local authority support and extended services. These are vital to continuing success in meeting the challenge as is a shift of emphasis away from the current narrow-target and high-stakes accountability system. September 2010
References — “Behaviour, Discipline and Attendance: ATL member survey”, Autumn 2010 — “Doing Gender”: ATL survey report on aspects of sex/gender identity and homophobia, July 2007 — “Managing Classroom Behaviour”, Watkins, ATL, 1997 — “Learning: A Sense-Maker’s Guide”, Watkins, ATL, 2003 — “Extended Services”, ATL Position Statement, March 2010 — “Achievement for All”, ATL, 2002 — “Challenging behaviour in schools: ATL member survey”, Spring 2010 — “Managed Moves”, Abdelnoor, Gulbenkian Foundation, 2008 — “Strategic Alternatives to Exclusion from School”, Parsons, 2009 — “Recording and reporting incidents of bullying between pupils, and incidents of abuse against school staff”, ATL, March 2010 — “Attendance in Secondary Schools”, Ofsted, 2007
Memorandum submitted by NASUWT — The NASUWT has considerable experience of dealing with behaviour and attendance issues in school through its casework. — The NASUWT has extensive experience of providing high quality guidance and resources for schools on managing pupil behaviour, including a joint leaflet with the former Department for Children, Schools and Families (DCSF) on the rights and entitlements of classroom teachers with regard to pupil behaviour. — The Select Committee review of behaviour and discipline needs to recognise at the outset that schools are safe havens of calm and security and the vast majority of schools do not have serious or endemic behaviour issues. — Ofsted has shown that in a large majority of schools behaviour is managed effectively. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— The problem of “low level disruption” is a significant factor that blights learning, as highlighted by an NASUWT survey in March 2009 that found that, on average, teachers lost 30 minutes of teaching time each day as a result of low level disruption. — A major feature of schools that experience poor behaviour is the failure of school leadership to consistently support the professional expertise and judgement of classroom practitioners. — The review needs to recognise the effect that external influences have on a child’s behaviour within school and that schools working alone cannot solve all problems of poor behaviour and indiscipline. — Collaborative working between schools and other agencies is key to tackling problems of poor pupil behaviour. The decision to remove the requirement for Behaviour and Attendance Partnerships is a fundamentally retrograde development. — There are serious concerns about the likely effects of funding cuts upon behaviour support and special educational needs (SEN). — An important factor for fostering good behaviour is through an engaging curriculum. The Government should consider this in the forthcoming curriculum review. — Low level disruption has a cumulative effect that can be very stressful for the teacher and can impact upon overall teaching and learning experiences. — All children should attend school ready to learn. Parents and carers need to be equipped to support their child when they experience behaviour issues. — Access to high quality alternative provision is critical; however, more work is needed to ensure better access to and better quality of alternative provision. Funding cuts risk damaging this important sector. — Poor behaviour and truancy are strongly linked and require coherent strategies to address these problems. — The NASUWT believes that wide variations in the reporting and recording of information about allegations made by pupils about teachers should be tackled urgently.
Background and Context 1. The NASUWT has consistently been at the forefront of campaigns concerning issues of pupil behaviour and discipline in schools. The NASUWT has developed considerable experience of dealing with behaviour and attendance issues in schools through individual and collective casework. Its activities in this area reflect the high priority given to these issues by classroom teachers and the challenges faced by school leaders. 2. The Union has produced high quality guidance on behaviour management for its members. It has also been successful in obtaining amendments to national guidance on behaviour; including securing a landmark victory in the House of Lords, “P v NASUWT”, that established the right of teachers, with the support of their union, to refuse to teach violent and disruptive pupils. Most recently, the DCSF issued a joint leaflet with the NASUWT on the rights and entitlements of classroom teachers with regard to pupil behaviour. This guidance has been highly regarded by schools and welcomed widely. 3. Schools are relative safe havens of calm and security, providing an orderly and well-developed environment that is immensely beneficial to young people. 4. The Select Committee’s review of behaviour and discipline in schools must be set in a context in which there is clear recognition of the fact that behaviour in schools is generally rated as good or outstanding. The vast majority of schools do not have serious or endemic behaviour problems. Ofsted has demonstrated that the vast majority of schools are providing an acceptable level of education and 70% are good or outstanding and there is further evidence of sustained improvement in schools over the past four years.35 Furthermore, Ofsted reports that “figures indicate that the very large majority of schools manage behaviour well and engage pupils effectively”.36 5. Nevertheless, serious behaviour and discipline issues are a problem for teachers in a very small minority of schools and minor but significant behaviour issues are experienced by many teachers within schools. Teachers cannot teach and pupils cannot learn if there is not a well-ordered environment within the school. In March 2009, the NASUWT conducted a survey of members over one week and received 10,259 responses both from teachers and headteachers. The key finding of the survey was that the problem of “low level disruption of lessons” was a concern for teachers in their attempts to deliver high quality teaching and learning experiences to their pupils. Additionally, the survey found that two thirds of teachers had reported that 30 minutes or longer was lost as a result of pupil indiscipline or poor behaviour. The loss of teaching and learning time is strongly related to the original capacity within schools to deliver support to the classroom teacher when it is needed.
35 Christine Gilbert (2009), The Annual Report of Her Majesty’s Chief Inspector of Education, Children’s Services and Skills 2008–09, TSO: London p 7. 36 Ibid, p 28. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Supporting and reinforcing positive behaviour in schools 6. A key issue when examining pupil behaviour and indiscipline in schools is the nature of support given to classroom teachers. The NASUWT has found that a major feature of schools that experience poor behaviour is that they do not consistently support the professional expertise and judgement of classroom practitioners. In the March 2009 survey, a small majority of teachers said that they lacked confidence about whether they would receive swift support when referring a disruptive pupil to school management (61%) and a larger majority of teachers said that they lacked confidence about whether they would receive timely feedback about a pupil when they were returned to the class (71%). One in five teachers (21%) stated that there were no mechanisms for the withdrawal of poorly behaved pupils from classrooms. 7. Although an overwhelming majority of teachers reported that their school did have a behaviour policy (93%), it is clear that schools need to be better geared towards supporting teachers in the classroom in managing pupil behaviour and must therefore be in touch with and supportive of classroom practice. This will require workforce changes in schools ensuring that all school leaders have a genuine commitment to an engagement with the classroom and the demands of classroom teaching. 8. There must be a greater recognition of the effect that a child’s life outside of school has on their attitudes to learning and in their relationships with others in school. The relationship between outside experiences and behaviour in school is well established, for example, the NASUWT has commissioned a major piece of research and subsequent toolkit concerning gangs and schools. 9. A key component of support for behaviour must involve greater collaboration and a shared responsibility between schools and other bodies within the local community. This support should be a genuine attempt to share ideas, expertise and resources to ensure that all members within a school feel supported. School Behaviour and Attendance Partnerships, designed to address the underlying problems leading to poor behaviour and attendance in schools, emerged following an expert review led by Sir Alan Steer and have begun to make a significant impact in improving behaviour and attendance. The Coalition Government’s decision to revoke the requirement for such partnerships is therefore a regrettable and retrograde step that will harm developments to encourage cross-community support for schools in managing behaviour. 10. Furthermore, the ability of schools to pursue collaborative links will be more difficult following the passage of the Academies Act 2010. Academies and free schools are under no obligation to collaborate with local schools in their areas. There is a real issue that the Government’s academies policy could lead to the concentration of behaviour problems in particular schools. Evidence from academy schools to date demonstrates that academies are far less likely to collaborate with other local schools, were more likely to exclude pupils and less likely to admit pupils excluded from other schools. 11. Schools need support to be able to offer early identification and intervention for pupils whose behaviour is likely to escalate further. This must involve both support and challenge for pupils and their families. This will only be managed if services both within schools and within local authorities are appropriately resourced, with effective levels of training. 12. Furthermore, there are factors related to the presentment of poor behaviour, including particular special education needs. It is important that in an atmosphere in which cuts are touted for all major departments within Government that recognition is given to the importance of resourcing appropriate and effective SEN diagnosis, guidance and support. 13. A crucial aspect of encouraging good behaviour within schools is to have a broad, balanced and engaging curriculum in schools that is relevant to pupils’ lives and offers choice, as well as parity, between academic and vocational learning. The NASUWT would be concerned by any attempt that would lead to closing down pupils’ choices and the narrowing of the curriculum or over a prescription of curriculum and pedagogy. It is vital that teachers are able to exercise their professional judgement in relation to the teaching of a common curriculum entitlement for pupils.
The nature and level of challenging behaviour by pupils in schools, and the impact upon schools and their staff 14. There is a distinction to be made between challenging behaviour in schools and low-level disruption, but both occurrences can be to the detriment of learning within schools. The impact of challenging and violent behaviour is more obvious and overt and must be dealt with in an effective and supportive manner for school staff who are witness to it. For example, the NASUWT has reflected teacher and public concern about gangs and the involvement of young people in violent crime within particular areas by commissioning a study by Perpetuity Research and Consultancy International (PRCI) Ltd on gangs and schools with a final report published in 2009. Crucially, the study found that gang-related behaviours originate in contexts outside schools. The research found that schools need to work consistently and comprehensively with the police, youth services and others to identify young people at risk from gangs and in the delivery of effective preventative measures. The NASUWT launched a toolkit for schools to use in April 2010. 15. The NASUWT believes that schools should operate a zero-tolerance approach to all forms of bullying, including prejudice-related bullying. Schools must have in place effective systems to ensure that there is accurate recording and reporting of all forms of prejudice-related bullying against both pupils and Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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staff. We would expect the Government to insist on data collection at school level and use the data to inform planning and decision making and for policies and procedures to be developed in consultation with workforce unions to tackle these problems. 16. The impact of low-level disruption, because it is on a smaller scale, is more cumulative. Examples of low-level disruption reported in the March 2009 survey included lateness, refusal to listen to the teacher, unwillingness to engage with the work, conduct within class and arrival without correct equipment. Each of these examples taken on their own would be profoundly frustrating but it is the very nature of the persistence of this behaviour that is the problem. For many teachers it is the unrelenting facet of these behaviours, together with the effect that they have both on workload and on teaching and learning, that leads to stress and ill health. 17. There is a need for schools therefore to ensure that their behaviour policies accurately reflect the impact of such behaviour problems upon all members of staff and have effective procedures for dealing with it. However, having a policy is not enough. Schools must be encouraged to act upon an individual teacher’s concerns and develop a consistent approach to ensure that issues are identified. The policy therefore needs to accurately reflect the best practice to be applied. 18. Of particular concern in recent years has been the growth of the use of digital media within this context. There is growing evidence of the use of digital equipment and social networking sites by pupils in an inappropriate way to bully and intimidate others. This phenomenon is referred to as “cyberbullying”. At an extreme level there are reported cases of students filming each other in acts of anti-social behaviour within school, and “acting up” to the camera, in order to later share this information with their peers on YouTube or Facebook. Following representations from the NASUWT, the DCSF had begun to revise guidance to schools over this issue. However, schools have been slow to act on this and more pressure still needs to be placed by the Government on internet service providers (ISPs) to address this problem.
Approaches taken by schools and local authorities to address challenging behaviour, including the use of fixed term and permanent exclusions 19. The NASUWT is concerned that targets, official or unofficial, to reduce or inhibit the number of exclusions within a school could have a detrimental effect on the ability of that school to fulfil its obligations, in respect of teaching and learning, to its pupils. Headteachers must be empowered to exercise their professional judgement in the use of exclusion. In the most severe cases, headteachers must be supported in excluding the pupil permanently. Decisions to exclude a pupil must balance the interests of the excluded pupil against the interests of all the other members of the school community.
20. Furthermore, independent appeals panels should not direct the reinstatement of a pupil where the disciplinary process has been carried out without any procedural irregularities of a kind that might have affected the fairness of the procedure. The NASUWT welcomed the Secretary of State for Education’s pre- election pledge to abolish these panels and would urge the Government to carry out this pledge.
21. The lodestones of good practice within this area are consistency and collaboration. Schools that have a good approach to addressing challenging behaviour apply the rules consistently and appropriately and ensure that all people involved in decisions about exclusions have current training, up to and including school governors.
22. Collaboration through mechanisms such as Children’s Trusts are so important within this area because of the need to support schools to make difficult decisions in excluding pupils, including on a permanent basis, and ensuring that those pupils are able to have a second chance in a new institution, with appropriate communication between the two schools about the nature and challenge of pre-existing behaviours and strategies used. Schools that collaborate effectively and share information openly are also able to avoid the stigma of permanent exclusions for some students by using managed moves. These are only effective when schools operate in an arena of trust and are appropriately supported by the local authority. The NASUWT is extremely concerned that managed moves in particular will be almost impossible to operate in a marketised system of education where academies and free schools are expected to compete against each other.
Ways of engaging parents and carers in managing their children’s challenging behaviour 23. Parents and carers have a key role in ensuring that children attend school ready to learn. Engagement of parents and carers in managing their children’s behaviour is therefore a crucial part of the overall picture in changing pupil behaviour within schools. This engagement must, however, be placed in a context in which parents and carers are given appropriate support and feel empowered to make choices for their children. This is a vital role for wider services for children and families, particularly in terms of supporting families at greatest risk. Support staff in schools can also play a crucial role in building links between the school and home. The NASUWT is concerned that budget cuts could undermine the provision of children and family support services. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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The efficacy of alternative provision for pupils excluded from school because of their behaviour 24. Schools must have access to high quality alternative provision as there are some instances in which it may be appropriate to exclude a pupil temporarily from a mainstream school and place them within this environment. A short spell in an alternative provision setting can be mutually beneficial for both the school and the pupil and can ensure that the pupil is able to return to school ready and focused on learning and no longer at risk of permanent exclusion. However, for too long, alternative provision has been under- resourced, leading to a variable quality of provision. Alternative provision needs to be a core part of the overall education provision in every locality, run by the local authority as part of a strategic overview of education within that area and accountable to the local populace. Given that 75% of pupils within pupil referral units (PRUs) are SEN, they must be appropriately resourced, with the facility to retain and recruit a high quality workforce. The NASUWT is extremely concerned that proposed cuts following the Comprehensive Spending Review (CSR) will further exacerbate this problem.
Links between behaviour and attendance in schools 25. There is an enormous amount of evidence that links truancy to poor behaviour and anti social behaviour both inside and outside of schools. Within schools this may be as a result of the fact that a pupil may not be able to interact with the work they are required to do or may be as a result of a wider educational or social need. Truancy can also take place because of bullying within schools. This emphasises the need for the correct policies and procedures to be in place as identified in paragraph 15. The key to tackling truancy in schools lies with early intervention to identify and provide support for specific SEN students and for schools and parents to be vigilant in monitoring deteriorating attitudes to school. Parental support and engagement is crucial in tackling this issue and demonstrates the need for ensuring that parental engagement is a focus for all schools and communities.
The Government’s proposals regarding teachers’ powers to search pupils, removal of the requirement for written notice of detentions outside school hours, and the extent of teachers’ disciplinary powers, as announced by the Department on 7 July 26. The NASUWT welcomed the additional measures announced on 7 July in broad terms but is concerned about the lack of detail regarding their implementation. The NASUWT has campaigned for many years for anonymity for teachers facing allegations by pupils up to the point of conviction. However, there are still concerns about the wide variation in the recording and reporting by the police of information that is connected with an allegation and its investigation. The key issue is that teachers are particularly vulnerable to false allegations by pupils and this can have a devastating effect on their professional reputation, as well as their personal well being. Teachers have found that due to inconsistencies in reporting by police, a Criminal Records Bureau (CRB) check will make reference to an allegation, even though it is unfounded, and thus blight career prospects. This issue must urgently form the basis of future guidance from the Government to ensure that this is not allowed to continue to happen. 27. The NASUWT was concerned that the changes to the notice period for detentions and the extension of a teacher’s power to search were measures that would need to be handled carefully by schools, ensuring that there is clear communication with parents and pupils, alongside a robust and accessible school behaviour policy. Additionally, guidance about the use of force for safety or restraint must be shaped carefully to ensure that teachers and headteachers are not left vulnerable to disciplinary or legal action. September 2010
Memorandum submitted by Voice: the Union for Education Professionals Executive Summary Positive management of pupil behaviour is essential if quality learning is to take place in schools. Effective systems need to be in place to support and reinforce positive behaviour. Such systems will include a clearly defined behaviour management policy which has the support of parents, pupils and staff. Sanctions and rewards need to be applied in a consistent way and supported by regular staff training. While extremely volatile behaviour is rare, many staff are put under inordinate and unacceptable stress by low-level indiscipline. Challenging behaviour can be addressed most effectively through a multi-faceted approach, incorporating a ladder of sanctions, positive engagement with parents and assistance from external agencies. Decisions about disciplinary penalties should always be made on the basis of fair and transparent principles, unhindered by political interference. Discipline is not just the responsibility of the school; parents also play a key role, both in promoting good behaviour and in being held to account for their children’s misbehaviour. Alternative arrangements need to be made when poor behaviour is linked with special educational needs. In such cases, appropriate assessment and early intervention should lead to an effective plan being developed, alongside the resources required for its implementation. Alternative provision for pupils excluded from school often lacks efficacy and represents poor value for money, while schemes based on internal seclusion are generally both more effective and less expensive. Exclusion is very ineffective as a means of improving behaviour and attainment, not least because it disenfranchises pupils from their right to be educated. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Improvements in attainment, attendance and behaviour are inter-related, so it is important that pupils who are excluded are given alternative access to a high quality education and the opportunity to address the issues underlying their behaviour, whilst also safeguarding the right of other pupils to complete their education without disruption. The Government’s proposals for strengthening teachers’ disciplinary and search powers are generally welcomed, but it is important that clear guidance is given on how these powers should be enforced to ensure consistency across the country and to avoid malicious allegations or threats of litigation being made against teachers. The proposal to grant teachers anonymity whilst accusations against them by pupils are being investigated is especially welcomed as staff, as well as children, are entitled to protection, especially as careers can easily be blighted by false allegations.
Introduction Voice: the union for education professionals is pleased to have the opportunity to respond to the Committee’s inquiry into behaviour and discipline. Voice is an independent trade union, founded in 1970 by two Essex teachers, Colin Leicester and Ray Bryant, who fathered together a group of like-minded professional teachers who were prepared to commit themselves to the principle of not striking. The union now has 35,000 members across all sectors of education (early years, primary, secondary and tertiary), including teachers, lecturers, school and college leaders, teaching assistants and other school support staff, nannies, nursery nurses, childcare and early years professionals, centrally employed staff working for Local Authorities in education or children’s services, students on teacher training or childcare courses, and self- employed tutors and consultants. Formerly known as The Professional Association of Teachers, the union re-branded in February 2008 as Voice: the union for education professionals. Independent of the Trades Union Congress and not affiliated to any political party, Voice prefers to use the force of argument rather than the argument of force and, as such, relies on the power of effective negotiation rather than resorting to strikes or any other form of industrial action.
Comments 1. There are many ways of supporting and reinforcing positive behaviour in schools. Each school should have a clear and robust behaviour management policy,which is regularly reviewed with input and agreement from parents, pupils and staff. This policy should be publicised, eg through home/school agreements, on school noticeboards, with regular reminders during registration, tutorial and assembly sessions, and should be implemented consistently. The policy should specify sanctions and rewards, which should be applied in the same way by all staff. Staff should receive regular training in behaviour management and there should be a supportive culture within schools which allows staff to raise concerns with senior management without fear of being stigmatised. Managing behaviour should form a key part of teacher training programmes. Good behaviour can be promoted by thoughtful planning, appropriate lesson content and interest level, use of a variety of teaching techniques, opportunities for enjoyment, “hands-on” activities and curriculum differentiation which promote a sense of achievement for both pupils and staff. Good standards of teaching, clear expectations of pupils and effective inter-personal relationships create an infrastructure for good behaviour. In order to gain the respect of the pupils and maintain control, staff should be respectful, good humoured, fair, consistent and hard working. In doing this they provide pupils with role models for good behaviour. Respect is a two way affair and in giving respect it is expected that adults will receive respect from pupils. 2. The media constantly highlight incidents of poor behaviour in schools, ranging from vandalism to sexual assault, to serious physical assault. These headline-grabbing examples are not indicative of school life in general, but there is no doubt that behaviour and discipline issues are a major source of concern for school staff. Teachers and teaching assistants are frequently confronted by “low level” behaviour issues. Low-level incidents can occur in the classroom (eg chattering, making unnecessary noise, interfering with other pupils’ equipment, being late for a lesson, eating or chewing gum in class, avoiding work, being cheeky, using mobile phones or other devices inappropriately, and general rowdiness) or outside of the classroom (eg running in the corridor, being unruly whilst waiting in a queue, loitering in “prohibited” areas, leaving the premises without permission, etc.). There is no respite when incidents occur on a seemingly relentless basis and it is hardly surprising that recent research from a variety of sources cites pupil behaviour as one of the top three causes of stress for teachers. Anecdotal reports from our members suggest that many teachers feel unsupported when they are subjected to challenging behaviour by pupils. In many cases, persistent low-level disruption wears down members of staff to the point at which they have to take sick leave because of stress, anxiety or depression, and, in some cases, such staff become subjected to absence management or capability procedures whilst they are off sick. The impact of pupils’ challenging behaviour on teachers is such that some teachers experience a loss of confidence or self esteem, become disheartened or lose their motivation to teach, feel that they may lose self-control and behave rashly in a way that they might later regret, apply for jobs in other schools, or even consider leaving the teaching profession. 3. Schools generally have a ladder of sanctions for challenging behaviour, beginning with warnings (some schools use a coloured card system), referral to a designated staff member, internal seclusion (eg a “time out” room or detention), liaison with parents/carers, fixed term exclusion, permanent exclusion or “managed move” (whereby pupils are transferred to another school where they can be given a fresh start). At the same time, strategies for promoting positive behaviour need to be put in place and any signs of troublesome behaviour need to be identified at an early stage so that remedial action can be taken before the disruptive Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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behaviour escalates. Anecdotal feedback from members indicates that many schools are reluctant to follow through the higher sanctions and, in particular, in recent years use of exclusions has been restricted on the basis of political rather than educational grounds. In best practice cases, numbers of exclusions have been reduced because schools have been able to recognise trigger points which enable pupils at risk of being excluded to be identified early enough for intervention strategies to be put in place, although in other cases schools have set up networks which have enabled them to transfer troublesome pupils in “managed moves”, which do not officially count as exclusions. Exclusions are relatively ineffective in acting as a deterrent, punishment or means of rehabilitation. It is important that those who are excluded, for whatever reason, have suitable places where they can continue their education, receive the support they need and then make a successful return to normal schooling. Exclusions are, however, effective in terms of making schools safer places for both staff and children, as it is both unfair and unsafe to allow the disruptive behaviour of a minority to interfere with the learning and well-being of the majority. For this reason, the sanction of exclusion must remain an option when all other attempts to bring about the necessary improvement to a child’s behaviour have failed. 4. It is incumbent on schools to have very good communication processes in order to engage parents/ carers, including home/school agreements, newsletters, details of the school behaviour policy in the school prospectus and on the website, flexible times for parents to liaise with staff, regular parental consultation events, and use of the Education Welfare Service or internal family liaison facility. Parents have a part to play in school discipline by promoting and providing role models for good behaviour and also by being held to account for the actions of their children, especially for children below the age of criminal responsibility. Behaviour in school does not take place in a vacuum; it is influenced by what happens outside of school and, especially, by the home environment. Teachers cannot be expected to deliver a panacea for problems which are not purely educational in origin. In order to ensure effective engagement with parents, it is vital that parents/carers are provided with positive information about their children. If parents are contacted only when it is necessary to communicate negative news to them, this is not conducive to the development of a supportive and positive partnership. Sharing positive information can help to maintain standards and promote positive behaviour and attendance. Strategies might include sending home good news postcards on a regular basis and personal letters at the end of term, alongside occasional emails, text messages or phone calls to communicate positive information about their children, and constructive dialogue at parents’ evenings. Parents who feel that they are working in partnership with school, because of regular and mutual communication on positive (as well as negative) issues, are more likely to be positive in their support of staff, share information about issues that are affecting their children, and work constructively with the school over any problems that might arise. If communication with parents is predominantly concerned with negative behaviour, it is more likely that parents will be confrontational towards staff and deny that there is a problem, which leads to pressure being placed on pupils to improve in the absence of any necessary support and, ultimately, calls for more expensive and extensive intervention to be provided. 5. Any robust policy on special educational needs must be founded on a clear understanding of what those needs are. If would be helpful for every school were to have its own dedicated and qualified Special Educational Needs Coordinator, rather than this important role simply being tagged on to the already onerous workload of any member of the Senior Leadership Team. Parents and carers have knowledge of their children’s needs—educational, social, emotional and behavioural—and it is important that this information is shared with the school as soon as a child is referred for admission to start a process of ongoing dialogue between home and school. Behaviour policies may need to be modified to accommodate situations where pupils cannot be held to be fully responsible for their behaviour because of identified special educational needs. However, it is very important that, in such circumstances, alternative strategies are put in place to manage the behaviour of such children rather than giving them carte blanche to behave in any way they choose without recrimination. This could usefully include input from the multi-disciplinary team involved with the child’s Common Assessment Framework form. It is not always more support that is needed, but, rather, more appropriate support. Schools have risen to the challenge of becoming more inclusive, which means that most schools now admit children with complex needs which, in the past, would have prevented them from attending mainstream schools. In such situations, however, a proper assessment must be made of each child’s needs so that support can be tailored to individual circumstances. Instead, what often happens is that a generic support worker is allocated to a child without having received the necessary specialist training to deal with that particular child’s needs. 6. Alternative provision for pupils excluded from school often lacks efficacy and represents poor value for money. Places in Pupil Referral Units cost about four times as much as a secondary school place, but, in spite of such intensive financial support, such pupils are more likely to leave school with no qualifications, become unemployed, end up in prison and experience homelessness—all at great cost to society. Of course, the needs of pupils who show challenging behaviour must be balanced against the needs of the wider school community.In this regard, exclusion must be retained at the ultimate sanction because if a pupil is preventing others from learning by persistently interfering with the ability of teachers to teach, then action must be taken in order to safeguard the entitlement of the majority to be able to complete their education without disruption. However, there are alternatives to exclusion which are both more effective and more cost- effectiveness. Some schools have set up on-site units to house pupils who would otherwise be excluded. 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but also allows the needs of these children to be addressed without the need for more costly intervention. Such provision may also incorporate any alternative curriculum, often a more vocationally oriented curriculum which is more relevant and appealing to pupils who have been disaffected by a more traditional academic provision. Another way in which this can be achieved is by arranging for such pupils to take up college places early (say, at age 14) on either a part-time or full-time basis. Some schools have even introduced schemes which allow pupils to opt for a transfer to another school, sometimes starting with a trial period. The use of internal seclusion strategies, whilst more common in secondary schools, may also be found in primary schools in the form of withdrawal activities and nurture groups, which enable pupils who are at risk of being excluded to have access to an alternative curriculum and positive intervention strategies either one-to-one or in small groups, where the more appropriate staffing ratios and use of staff with specialist skills can be used to address some of the causes of poor behaviour in an attempt to rehabilitate children who demonstrate challenging behaviour. 7. There is a clear link between attendance and behaviour in schools. Truancy is an example of troublesome behaviour and persistent absenteeism has a negative impact on academic achievement. Absenteeism leads to a loss of learning momentum as children lose contact with the curriculum, which, in turn, fuels further disengagement and disaffection, especially considering the risk of negative teacher attention on the child’s return to school. However, whilst this is true for voluntary absenteeism, it also applies to absenteeism that is enforced by fixed term exclusions. Breaking the continuity of schooling, for whatever reason, presents a major risk to the child, with potentially lifelong consequences. Fixed-term exclusions often have the effect of giving pupils licence to truant whenever they misbehave, and by driving attendance down in this way, schools also drive their attainment down. Attendance can often be improved by ensuring that a diverse and relevant curriculum is offered with interesting lessons which engage and hold the attention of pupils, combined with regular staff training focusing on developing good relationships with pupils. 8. On 7 July 2010, the Government proposed to strengthen behaviour and discipline in schools by (a) ending the rule requiring schools to give 24 hours’ notice for detentions, (b) allow staff to search pupils for personal electronic devices, pornography, cigarettes, legal highs and fireworks, (c) strengthen guidance and legislation surrounding the use of force in the classroom, and (d) give anonymity to teachers accused by pupils and take other measures to protect against false allegations. These proposals are generally welcomed insofar as they are intended to reduce bureaucracy, further protect staff and empower teachers in the classroom. Some of the proposals, however, may potentially create further difficulties. The ending of the 24 hour detention rule may allow teachers to deal with poor behaviour immediately, but the measure may harm staff-parent relations as parents will legitimately worry if children arrive home late without prior explanation, and some children may have difficulty getting home if they are unable to leave school on time. Regarding the power to search, many teachers will feel uncomfortable in this role. Staff must not be required to search and, ideally, any searches should be undertaken by trained security staff. In relation to the use of force for safety or restraint, there is increased potential for false accusations against staff if schools are to abandon their “no touch” policies and teachers are encouraged to use force whenever they feel the need to. If policies are to change in this area, there must be consistency across Local Authorities and all parties (staff, pupils and parents) should be clear of the correct interpretation of these powers. Anonymity for teachers is very welcome and long overdue. Voice has campaigned for this for many years as it essential to prevent malicious gossip, media scrums and the ruining of lives and careers. Again, consistent practice and interpretation are crucial. In particular, there is a concern that the use of “soft information” on CRB forms may still ruin the careers of innocent teachers unnecessarily. September 2010
Memorandum submitted by Sir Alan Steer 1. Current standard of behaviour in schools. There is no evidence to support the view that there is a crisis in the standard of behaviour in English schools. The evidence from Ofsted and the professional associations is that standards are good in the large majority of schools. This does not indicate that some schools, some teachers and some children experience serious problems. In these circumstances intelligent and effective action is required to raise standards. 2. Early intervention. There appears to be general agreement that early intervention is a basic requirement for any effective programme to raise standards of behaviour. Sadly policy and practice make this very difficult to achieve. — Funding. The funding imbalance between primary and secondary school sectors prevents appropriate intervention at the times when it would be most effective. Much subsequent expenditure by secondary schools is ineffective “catch up”. — Targeted funding. There is a reluctance to ring fence funding for specific purposes. I support the view that ring fenced funding should be kept to the minimum, but would suggest that if we want effective early intervention we have to target funding for this purpose. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— S.E.N. A very difficult area, but one that is ripe for a review. We need to improve the skill levels of key staff in schools to ensure more accurate identification of children with S.E.N. We need to change the mindset of teachers and parents so that in most cases the focus is on remedying the special need, rather than processing it through the period of compulsory schooling. The recent report on this topic by Ofsted should be seen as a key piece of evidence by the Committee. — Children and Adolescent Mental Health Service. While there are centres of excellence the general standard of this service is far from satisfactory. Resource levels are insufficient for need, but in many areas operating practices are unsatisfactory. The delay in receiving an appointment can often be 9 months, with examples existing of 18 month delays. Children with mental health problems can cause significant disruption in schools. 3. Government policy on school autonomy. I am thoroughly supportive of the principle of school autonomy and the empowerment of the professional front line. As a headteacher who experienced the introduction and implementation of Local Management of Schools I witnessed the improvements it brought to overall standards. The proper exercise of autonomy demands a clarity over the boundaries in which it operates. Without this clarity there is the danger that the exercise of autonomy by some schools will adversely affect some of their own children and the children in other neighbouring schools. A key decision by the Secretary of State has been to remove the requirement for all schools to be members of Behaviour and Attendance partnerships. In my opinion this is a profound mistake. Government ministers and their advisers do not always visualise the impact of their policies on schools and children. The current position on school autonomy illustrates the point. Small primary schools will find it difficult to enjoy the benefits of autonomy as they lack the capacity to take advantage of them. Many of them will be losing services they currently get from the Local Authority as a result of the cuts. They will need to establish support systems with local primary and secondary schools. For all schools the advantages of making in partnership are significant. The ability to make joint staff appointments and to organise joint staff training would empower schools and make a reality of school autonomy. The argument that partnership working should be left totally to the choice of the schools assumes that all school leaders will act in an altruistic manner and places the interests of individual schools ahead of those of their children. 4. Alternative Provision. The standards currently are varied to such an extent that in some areas children receive minimal provision. This places them at risk. Government needs to implement immediately the requirement that all AP providers should meet minimum standards. These need to then be inspected as previous history indicates that without more visible inspection, some Local Authorities fail to meet their statutory responsibilities. 5. Behaviour Review 2008–10. In this review I made a great number of recommendations that would be politically uncontroversial. I would urge the Committee to examine these recommendations and use them to guide their thinking. November 2010
Memorandum submitted by National Strategies 1. Introduction 1.1 This paper responds to the stated terms of reference for the inquiry in sections 2–8 below. 1.2 Since 2003, the National Strategies’ Behaviour and Attendance programme has supported schools in improving behaviour and has sought to build schools’ capacity in relation to behaviour so they are less reliant on external support. The paper presents the views of the National Strategies and should not be read as representing the views of the current government. 1.3 The most recent Ofsted behaviour grades, based on National Strategies’ data, show 80% of all secondary maintained schools (2498) judged by Ofsted as having good or outstanding behaviour and 19% (592) rated as having satisfactory behaviour. 1.4 The number of schools judged to have inadequate behaviour is 31. This number has risen as a result of the change in the criteria used by Ofsted in September 09 when it had previously been a downward trend between 05 and 09 from 72 to 18. 1.5 Successful practice exists where the following key elements are present: — a positive school ethos that promotes ownership and responsibility for a behaviour policy that is consistently implemented; — access to high quality teaching and learning with flexibility for personalisation to secure the engagement of all pupils; and — a range of opportunities for staff to participate in relevant professional development and to network with other professionals to share best practice. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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2. How to support and reinforce positive behaviour in schools 2.1 Positive behaviour in schools is most dependent on high quality teaching and learning. This significant point is recognised by Sir Alan Steer in two reports Learning behaviour: Report of the Practitioners’ Group (2006) and Learning behaviour: Lessons learned (2009). 2.2 Key issues for schools are: — the need to address low level disruption whilst promoting and reinforcing positive behaviour; — the need to maintain a consistent approach to improving behaviour across the whole school community; and — the need to extend understanding of what works well to all members of the school community and other agencies working with the school and/or its pupils and to foster high aspirations and expectations. 2.3 In response to these issues, our experience suggests that the most effective approaches to support and reinforce positive behaviour include: — Strengthening the links between the quality of teaching and learning and positive behaviour— resulting in a strong alignment between school improvement, raising standards, teaching and learning and positive behaviour and engagement in policy development. All 20 lead behaviour schools identified the quality of teaching and learning as a key contributor to improving behaviour. — Securing time and commitment to develop a positive whole school ethos, giving staff an opportunity to discuss pupil behaviour and develop a shared understanding of the principles that underpin a consistent approach, linking learning and behaviour expectations. — A secondary school in South Gloucestershire LA, is recognised by Ofsted as an improving school, with a positive ethos and strong sense of collective responsibility amongst staff. Work on improving attainment and behaviour has been underpinned by a focus on developing the social and emotional skills of pupils with a notable positive impact on reducing the need for exclusions. — An unpublished report on the National Strategies’ tracker school project by Dr Robin Banerjee, University of Sussex (10 July) on the impact of work to develop the social and emotional skills of pupils in 60 schools reports positive benefits. The report found that in these 60 schools social and emotional skills and school ethos were directly related to attainment and the use of this approach was linked to better quality relationships between pupils, higher Ofsted ratings for behaviour and lower levels of persistent absence. — Focusing on a positive approach to behaviour improvement through developing a culture that celebrates success rather than one that reacts through sanctions. Pupils respond well to high expectations which are shared routinely in lessons/tutor time. On receiving an Ofsted inadequate behaviour rating, a secondary school in Surrey LA reviewed approaches to behaviour management, shifting the focus from negative sanctions to planned interventions. At its recent Section 5 inspection the school received an outstanding grade for behaviour. — Identifying the key roles and responsibilities of senior leaders and governors to give behaviour a high profile: “Revisions to the roles and responsibilities within the senior leadership team have meant that senior staff have a clearer focus for their work and are more accountable for improving standards and leading improvement. This has strengthened the effectiveness of the senior leadership team” (Extract from primary school Ofsted Report in Newcastle LA). — Promoting visible staff role models, leading positive behaviour at all levels and at all times across the school. This includes the use of practical classroom strategies to instil staff confidence, resilience and skills to promote de-escalation and engagement. The National Strategies have developed the leadership skills of the full range of staff by using the National Programme for Specialist Leaders in Behaviour and Attendance (NPSLBA) professional development programme. From December 2006, 7331 participants have followed the programme. “The NPSLBA helped cover supervisors to develop skills in a confident and positive manner helping them to develop strategies in dealing with different situations as they occur in the classroom” (Assistant headteacher from a lead behaviour school in Northumberland LA). — Using student leaders to provide good role models of mature and respectful young people. Pupils feel greater ownership of the behaviour in their schools when they are trained as pupil ambassadors, showing enormous pride and encouraging others to share responsibility for ongoing success. A secondary school in Tower Hamlets LA has adopted a student ambassador model. Pupils receive intensive training to act as school leaders and train others to use student voice to improve behaviour. — Achieving a consistent approach and skills to monitor behaviour, measuring the impact of all planned interventions through data analysis and self-review. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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3. The nature and level of challenging behaviour by pupils in schools, and the impact upon schools and their staff 3.1 Challenging pupil behaviour, in whatever form it takes, whether in inadequate behaviour schools or within particular groups in other schools, can impact on the emotional health and well-being of school staff. 3.2 From our experience, schools that are aware of the possible impact of challenging behaviour on staff absence and recruitment and retention invest resources, where possible, in professional development and staff well-being. Staff are supported to respond confidently and effectively to challenging behaviours by a positive school ethos, clear expectations, well-defined roles and responsibilities, early intervention procedures and consistency in approach. 3.3 Based on feedback from schools, there is a range of challenging behaviours of individuals and groups of pupils that demand staff responses: — Tension emerging between pupil groups from different areas. — Verbal threats to staff and pupils. — Violence to staff and pupils. — Use of knives and potential weapons. — Drug use. — Complex and multiple behaviours such as attention-deficit hyperactivity disorder (ADHD) and autistic spectrum disorder (ASD). 3.4 We are prepared to discuss the challenging behaviours that have a higher profile at the oral evidence stage, if the Committee wishes, focusing on effective school responses to different types of these challenging behaviour.
4. Approaches taken by schools and local authorities to address challenging behaviour, including fixed-term and permanent exclusions 4.1 Early intervention and working in partnership with other schools, local services and the wider community to draw on local expertise and resources are of critical importance in addressing challenging behaviour, including exclusions. 4.2 For schools and LAs, challenges exist. They need to: — get the right balance between rewards and sanctions including early intervention and exclusions; — meet the diverse needs of pupils including those vulnerable and at risk of exclusion; and — access effective external support including from other schools.
4.3 Early intervention An effective early intervention strategy removes the barriers to learning faced by pupils. Data analysis is essential and informs a “continuum of support” which includes differentiated teaching and learning, small group work, withdrawal units and one to one support. Provision is managed by the school, supported by local agencies. One example is: — offering a package of one hour meetings between a pastoral teacher and a pupil, focusing on self- awareness and strategies to manage feelings. For pupils involved, behaviour improved and fixed term exclusions were reduced by 60% and repeat exclusions reduced from 33% to 13% (Alternatives to Exclusion in a secondary school in Gloucestershire LA).
4.4 Working in partnership Effective partnership working is characterised by: — A commitment to shared responsibility to improve outcomes for pupils in a locality. — Schools and local partners having a good understanding of pupil profiles. — Shared expertise and resources to address the underlying causes of poor behaviour. Examples of successful approaches are: — collaborative working between three schools, including a PRU, inviting parents/carers to work with staff to develop skills to support their child in school and at home. Positive outcomes centred on increased confidence through strong relationships between schools and parents/carers and improved engagement of pupils in learning (Southend LA development group). — narrowing attainment gaps for boys at KS4 by working in partnership with a local agency to improve boys’ motivation. The intervention resulted in improved attainment (60% up one grade or more in Maths; 63% increased attendance; 46% reduction in detentions; 50% reduction in fixed term exclusions) at a secondary school in Gloucestershire LA. 4.5 A key element of effective partnership-working is self-sustaining networks. These help to ensure that practice is shared, with school staff supporting each other and developing new practice by: Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— Extending staff skills through outreach from alternative providers and PRUs, helping to improve behaviour and giving staff confidence to address low level disruption before it escalates. — Supporting effective managed moves to other schools in local partnerships. — Using permanent cover staff to reduce pupil access to unfamiliar supply staff. A secondary school in Coventry LA introduced this approach, identifying it as a key factor in receiving an outstanding behaviour grade at last inspection.
5. Ways of engaging parents and carers in managing their children’s challenging behaviour 5.1 The National Strategies promote the importance of family involvement in improving behaviour. Schools may be on the third/fourth generations of families and issues are sometimes repeated without any recognition that schools can intervene to change established patterns. Often schools have difficulty in engaging with hard to reach parents. 5.2 Schools often highlight that parents/carers lack confidence in communication with their children and organising family activities. Schools that have been successful in transforming relationships have provided opportunities for parents to become engaged in activities to support their children’s learning both at home and in school. Building the confidence of the parent/carer provides motivation for the child and enhances the relationship between families and schools, with a common purpose. Effective strategies are: — working with parents to contribute to the development of a positive school ethos. In a lead behaviour school in South Gloucestershire LA, sessions on school ethos and social and emotional skills were offered to parents/carers resulting in improved pupil attitudes to school and better attendance, behaviour and attainment; — providing training for parents that focuses on effective parenting and family relationships. Wirral LA “Family Works” consists of a training programme for over 1,000 parents each year. Data shows that pupils whose parents attended Family Works scored, on average, 10% higher in writing and 6% higher in reading at the end of KS2 tests. Families in socially disadvantaged areas benefit most; — engaging parents in behaviour policy review and developing classroom rules. Parents act as advocates to strengthen home school partnerships, wanting the school to improve from its last good behaviour rating (a secondary school in Oldham LA); — developing drop-in resource/school centres for specialist advice and support for pupils and families. In a secondary school in Cornwall LA, the centre met a range of pupil needs and provided referral to multi-agency support; and — promoting the use of parenting contracts for pupils with challenging behaviour. Contracts work well when the school part of the contract involves supporting the parent/carer with strategies, skills and confidence to use the same strategies consistently at home. A secondary school in Liverpool LA used a primary support model for tutor groups in year 7.
6. The efficacy of alternative provision for pupils excluded from school because of their behaviour 6.1 Since the publication of Back on Track in 2008, the National Strategies has supported the development of alternative provision. Pupils need to view themselves as learners and in the best provision pupils indicate that staff do not give up on them. In some cases alternative provision has offered pupils the most stability and security in their school life. 6.2 Personalised curriculum planning based on knowledge of pupil needs is at the heart of effective alternative provision. A flexible combination of accredited learning opportunities in schools, PRUs, FE colleges, voluntary agencies and alternative work-based provision builds on pupil strengths, accelerating learning and engagement. Successful provision is set within a continuum that fully utilises in-school provision, local services, the voluntary sector and the community. This provision sometimes includes: — Locality-based partnerships of schools, FE and alternative providers working together to ensure that courses available meet pupil needs and are linked to potential employment and further training. Provision and pupil progress is overseen by a lead person who monitors outcomes. — Support teams working with vulnerable pupils during school holidays, providing transitional support on leaving school to ensure that personal stresses do not undermine ability to continue education. Wolverhampton LA has a highly skilled team of psychologists on call to support need. — Alternative providers investing in the best staff and accessing high quality professional development such as NPSLBA. Staff skills need to be of the highest quality to focus on raising pupil achievement and re-engaging disenchanted learners. The use of assessment is strong and expectations are high, with an emphasis on building self esteem, the personal and social skills of pupils and families and celebrating success. Halton LA provides high quality CPD to alternative providers, who meet to access training and act as a support group to share skills and approaches. — Responding to changing pupil profiles with headteachers providing feedback to the LA and alternative provider funding bodies on how flexible provision has met pupil needs. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— Alternative providers focusing on key skills in Maths and English to support reintegration into mainstream schooling when the pupil is ready.
7. Links between attendance and behaviour in schools 7.1 There are strong links between behaviour and attendance. (See appendix one). 7.2 In many schools where behaviour has improved, attendance has also improved. Pupils are more likely to attend a school with a safe, secure and calm learning environment, with a strong school ethos, where bullying is unlikely to occur. 7.3 Complementary examples of effective practice exist such as strong leadership with high expectations, a positive whole school ethos supported by a unified staff team that demonstrates consistency in approach and robust data analysis that informs and tracks the impact of interventions. 7.4 In Essex LA, education welfare officers (EWOs) took part in NPSLBA and developed school action plans for attendance as part of their workplace activity, as well as confidently-led training for schools with high levels of persistent absence, supported by personalised training materials. The training focused on improving behaviour through focused classroom strategies as well as attendance to achieve positive outcomes for pupils.
8. How special educational needs can best be recognised in schools’ policies on behaviour and discipline 8.1 The National Strategies focuses on improving outcomes for pupils with special educational needs. Elements of this work are used to support development of behaviour and discipline policies to meet pupils’ needs: — Some staff lack the skills and confidence to meet the needs of pupils with special educational needs. It is important that the behaviour policy highlights the need for staff to analyse the cause of the behaviour as this may be due to an area of underperformance, for example, in social development of communication. The National Strategies’ Inclusion Development Programme (IDP) provides strategies for staff to support pupil needs, including behaviour and communication. Recently a year 7 nurture group at a secondary school in Hammersmith and Fulham provided additional support to pupils through CAMHS and speech and language therapists to address disengagement at year 6. With routine ongoing support in these two areas in the latter part of year 7, the pupils are now back on track. — Most behaviour policies contain a section on rewards and sanctions to be used to improve behaviour. It is important that the behaviour policy is clear about how rewards and sanctions may be used with all pupils. As small step approaches are often used with pupils with special educational needs, they may appear to get more rewards for small outcomes and possibly also fewer sanctions for minor misdemeanours. For staff to implement the policy consistently and pupils to see the policy as fair, these flexibilities need to be clearly mapped out. In Nottingham City, the behaviour consultant and Assessment for Learning adviser worked with schools to include pupils and parents in initial behaviour policy development and ensure school representatives support pupils who may feel they have been unfairly treated. — Learning Support Units (LSUs) have a positive impact on attainment and attitudes to learning. The role of the LSU needs to be clearly defined in the behaviour policy as an area where learning needs of pupils are met. The policy should describe the function of the unit and reaffirm the role of mainstream school staff in providing a differentiated offer to pupils to meet needs in timetabled lessons. In schools where all staff spend time teaching in the LSU and where the most engaging curriculum offer is presented, the smaller pupil-staff ratio can address issues swiftly. October 2010 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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APPENDIX 1 LINKS BETWEEN ATTENDANCE AND BEHAVIOUR IN SCHOOLS
Correlation between changes in behaviour judgements and attendance judgements (as a number)
300
250 Attendance judgement 200 improved Attendance judgement 150 stayed the same 100 Attendance judgement got 50 worse
0 Behaviour Behaviour Behaviour judgement judgement judgement got improved stayed the same worse
The percentage of secondary schools who had an Outstanding Ofsted judgement in ….
28%
26%
24% Behaviour 22% Attendance 20% Overall Judgement 18%
16%
14% 19th November 27th November 6th September 2008 2009 2010
The percentage of secondary schools who had a Good Ofsted judgement in …. 55% 53% 51% 49% 47% Behaviour 45% Attendance 43% Overall Judgement 41% 39% 37% 35% 19th November 27th November 6th September 2008 2009 2010 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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The percentage of secondary schools who had a Satisfactory Ofsted judgement in …. 45% 40% 35% 30% Behaviour 25% Attendance 20% 15% Overall Judgement 10% 5% 0% 19th November 27th November 6th September 2008 2009 2010
The percentage of secondary schools who had an Inadequate Ofsted judgement in ...... 7%
6%
5% Behaviour 4% Attendance 3% Overall Judgement 2%
1%
0% 19th November 27th November 6th September 2008 2009 2010
Memorandum submitted by National Governors’ Association 1. Introduction 1.1 The National Governors’ Association (NGA) is the national membership body for school governors. NGA has several categories of membership comprising individual governors, school governing bodies and independent local associations of school governing bodies. NGA seeks to represent the interests of all school governors and governing bodies in all phases and types of school (including academies).
2. How to support and reinforce positive behaviour in schools; 2.1 Governors are responsible for the strategic direction of the school, including its ethos. They have specific statutory duties under Section 88(2) of the Education and Inspections Act 2006 (EIA 2006). These are to: — make, and from time to time review, a written statement of general principles to guide the headteacher in determining measures to promote good behaviour; and — notify the headteacher and give him or her related guidance if the governing body wants the school’s behaviour policy to include particular measures or address particular issues. 2.2 Governors are required by the Act to consult pupils, parents and staff about the statement of general principles. 2.3 The headteacher has a legal duty to establish a behaviour policy and procedures, setting out the detailed measures (rules, rewards sanctions and behaviour management strategies). In determining the behaviour policy the headteacher must have regard to the governing body’s general statement of principles. 2.4 The NGA believes that it is right that the governors set the over-arching ethos, but that the headteacher who is the lead professional in the school is responsible for determining the day to day rules and associated sanctions and rewards which go hand in hand. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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3. The nature and level of challenging behaviour by pupils in schools, and the impact upon schools and their staff 3.1 The NGA does not dismiss the challenges of poor behaviour, but would like to draw attention to Ofsted’s findings (Annual Report 2009) which found that behaviour was good or outstanding in over 80% of schools. Poor behaviour impacts on both staff and other pupils and does not provide an effective environment for learning.
4. Links between attendance and behaviour in schools 4.1 If there was a clear link between poor attendance and poor behaviour then the NGA would expect that the percentage of schools with good or outstanding behaviour would be similar to those with good or outstanding attendance records. This is not the case. Ofsted reported that just over 55% of schools had good or outstanding attendance records—whereas as noted above 80% of schools had good or outstanding behaviour.
5. The Government’s proposals regarding teachers’ powers to search pupils, removal of the requirement for written notice of detentions outside school hours, and the extent of teachers’ disciplinary powers, as announced by the Department on 7 July 5.1 The NGA supports the Government’s proposed announcements about powers for teachers; it is essential that all staff, pupils and parents are clear about teachers’ powers in these areas. September 2010
Memorandum submitted by the Association of School and College Leaders Introduction 1. The Association of School and College Leaders (ASCL) represents 15,000 members of the leadership teams of maintained and independent schools and colleges throughout the UK. This places the association in a particularly good position to present evidence to this inquiry. 2. We would draw the committee’s attention to work that has already been completed on behaviour, particularly the work of the group chaired by Sir Alan Steer (2009) and the Practitioners’ Group (2005). 3. We hope that the committee recognises that the vast majority of schools are calm well-ordered places where violent, disruptive behaviour is not a significant issue: a view supported by evidence from Ofsted. 4. This report can only identify a number of the key points on such a broad topic and the association is happy to provide further information as required.
How to support and reinforce positive behaviour in schools 5. Schools should aim for the highest possible standards of student behaviour. 6. Schools should develop a positive ethos within their school community. Pupils need to be engaged in the life of the school, consulted through pupil voice and their leadership and decision making skills developed. 7. What the school expects of students should be clear and understood by all. Ideally the students and their parents should be involved in setting these expectations. These expectations should be displayed around the school. A number of schools have built on the idea of “Rights and Responsibilities” to help determine expectations of behaviour. 8. The student support system of a school should ensure that every pupil has someone who knows them well and is able to support them with their learning and development. Specific additional support may need to be focused on those young people that are particularly vulnerable. A number of schools have used learning mentors effectively in this role. 9. To promote good order schools not only need to have agreed policies and practices in place, but all the staff in the school need to implement these policies consistently. 10. Inappropriate behaviour should always be challenged and the issues addressed. ASCL supports the principle of “early identification and intervention” to work with students with behavioural issues. 11. Where staff are having difficulties with behavioural management they should receive intensive support and coaching.
The nature and level of challenging behaviour by pupils in schools, and the impact upon schools and their staff 12. Schools have a challenging task, being expected to uphold the highest behavioural standards whilst children, their parents and society often observe very different behavioural norms outside school and at weekends. 13. It should be noted that the standards of behaviour in the vast majority of secondary schools are good or better. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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14. Media reports of declining standards are not built on any firm evidence base but tend to come from a false extrapolation from a few relatively isolated but often serious incidents. 15. Schools and their teachers do however face challenging behaviour from some young people and a range of strategies have been employed to deal with the situations faced. 16. There is a range of challenging behaviour. The most common is what is termed “low level disruption” to lessons through children not retaining concentration and failing to focus on their work. This is demonstrated by actions such as, talking out of turn, shouting out, children out of their seat or generally hindering other students. This type of behaviour can be a constant drain on staff energy and take the focus away from developing the learning experiences for the students. Teachers and support assistants have however developed a wide range of strategies and approaches to both minimise the level of such disruption and to deal with it when it occurs. 17. The more serious behavioural problems include: — Complete refusal to follow staff instructions. — Continual use of abusive language and use of threats to staff or other students. — Racist incidents. — Violence to staff or other students. — Selling drugs. — Weapon carrying and/or use. — Gang culture and fighting. 18. All of the above behaviours can cause insecurity in staff and students and seriously affect staff confidence and undermine their authority. Again schools have well developed approaches to dealing with these situations but damage can be done to the ethos and culture of the school by the very fact that these activities take place even when dealt with well by the school. 19. Although a serious incident can have a negative impact on a school, dealing very well with such an incident can also have a positive impact by making it clear that such behaviour is not acceptable and showing what the consequences are should there be a similar event. 20. Schools also have to deal with issues between students and increasingly conflicts from outside the school that move into the school and impact on school life. 21. The electronic age has brought with it a number of new challenges including cyber bullying and challenges to school staff authority through social networking sites. Strategies to deal with these are being used but are still at a developmental stage.
The Approaches taken by schools and local authorities to address challenging behaviour, including fixed-term and permanent exclusions 22. Prevention is of course far better than having to deal with unacceptable behaviour. Developing a suitable school ethos of respect among students, staff and parents is essential, as is having a curriculum appropriate to the needs of the students. Having a range of learning and teaching approaches that engages and interests the young people will significantly reduce incidents of poor behaviour. Schools have commented on the fact that the increased flexibility in the curriculum at both KS3 and KS4 has been helpful and has helped improve behaviour. 23. Many schools have introduced training programmes for their staff on behavioural management strategies. 24. There is considerable experience in schools as to what works in successfully managing behaviour. Secondary schools have extremely well developed structures to support classroom teachers in terms of dealing with disruptive pupils. These include: — Coaching schemes led by experienced members of staff. — Observation classrooms to observe experienced teachers at work. — Peer support systems. — Use of specially trained classroom support assistants. — Support staff on call to support staff and deal with incidents. — Withdrawal of students from the classroom. — Use of extraction rooms following seriously disruptive incidents. — Use of internal exclusion (with support for the student) as an alternative to external exclusion. — Senior staff on call available to deal with serious incidents. — Support and re-integration programmes for students that have been internally or externally excluded. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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25. Many schools now have highly trained support staff in support of staff and to work with pupils that are causing issues in the classroom or around the school. Schools use punishments both to deter pupils and as part of the process for students to understand that their actions have consequences. 26. Retaining students after the lesson and into a break or lunchtime is a very commonly used approach. After school detentions tend to be used for repeat offenders. 27. Fixed Term external exclusions are used for repeated “minor” incidents or for more serious offences such as: — Violence to another pupil. — Possession of drugs on the school premises. — Theft. — Damage to property. — Racist incidents. 28. Although the vast majority of secondary schools will use any form of external exclusion only after exhausting other alternatives there is a significant variation in the use of external exclusions. 29. Most secondary schools operate effectively in behavioural partnerships in which the use of “managed moves” or “fresh starts” as a way of giving students a further opportunity to succeed within the school system without the need for a permanent exclusion. The success of such programmes is variable and many partnerships have developed schemes of “time out” between the schools with specific work carried out with the young person, often through a PRU or special school, to modify the student behaviour before their start in the new school. 30. In some places partnerships are still at a low level of effectiveness, particularly when some schools remain outside the group. In some cases trust is lacking and league tables, and the competition for pupils, inhibits openness and honesty. 31. Where partnerships are working well, behaviour collaboration has produced positive benefits in reducing the number of fixed term and permanent exclusions as well as improving attendance rates. Schools actively involve other specialists to work with students and multi agency working in schools is now fairly common. We see this working most effectively when the multi-disciplinary teams are based in schools. The quality of such teams, their capacity to deal with the volume of work and their support for individual students is variable across the country. 32. Some schools have worked together to operate a unit on a neutral site. This is used as a buffer between six day and permanent exclusion. In authorities like Lancashire schools have set up “respite centres” which pupils attend from the sixth day of exclusion. There are also examples of schools providing an “alternative day” in order to reduce short term exclusions with pupils attending school at varying times and taught in separate units. 33. Many secondary schools continue to complain that they do not have enough time from educational psychologists, social workers and education welfare staff. There has been an increase in the number of pupils from mainstream schools suffering from mental health problems, often with consequent behavioural problems. Schools continue to be frustrated at the slow response time for access to children’s mental health services including child and family guidance. 34. The restriction placed on schools with the requirement to make educational arrangements for students on exclusions beyond the sixth day appears to have led schools to keep fixed term exclusions down to five days whenever possible. There are however some good examples of local arrangements working well but there are some organisational or cost issues particularly in rural areas with long distances between schools. 35. Permanent exclusion is, for the majority of secondary schools, a last resort: only used when all else has failed. However some members have indicated that they “have” to move to permanent exclusion as this is the only way to trigger the required support for the young person, highlighting the concerns we have regarding the difficulties of accessing some of the support services. 36. ASCL believes that in the interests of fairness and natural justice independent appeals panels against exclusions should remain. We consider that the removal of these panels will also lead to several parents taking legal action against schools which will involve a great deal more work and unnecessary bureaucracy for the school. 37. Following a permanent exclusion there are good examples of how behavioural partnerships handle the process of allocating another school to the student. The use of re-integration programmes and a phased introduction to the new school are well used in many parts of the country. 38. ASCL has considerable concerns regarding Children’s Trusts. Although there are reports of some working well in most cases these appear ineffective and bureaucratic and have failed to produce “joined up action”. Inter-agency work is at its most effective at an institutional rather than authority wide level. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Ways of engaging parents and carers in managing their children’s challenging behaviour 39. Schools need to actively engage with all parents and set up a good communications system so that parents feel involved in the decision making processes related to their child’s education. The use of modern technology is helpful here with the use of email and text systems now being extensively used, although there are still issues with the hard to reach parents. 40. Many schools use some form of “single point of contact” approach for parents so that parents know who to contact and a relationship is set up between that member of staff and the parent. 41. Several schools have made excellent use of Parent Support Advisers to promote the school-home relationship. 42. A number of schools have had success in working either on their own or with external agencies in setting up support “clinics” for parents to work with them on strategies to improve their child’s behaviour. One of the frequently observed issues relates to young people who have not had any boundaries set at home and therefore find it difficult in environments where boundaries are clearly laid out. We would urge work with such families at an early age as the behavioural patterns are often ingrained in the pupil by the time they get to secondary school which makes the task in there much more difficult. 43. Many schools will use a regular phone contact with the parent/guardian to inform them of progress. It is essential to find positive messages to send home as well as concerns. Positive message can give the parent encouragement to persevere whereas a series of negative messages can led to the parent giving up. 44. As some parents themselves have negative views of schools, some schools have used home visits or meetings at neutral venues eg youth club to meet with parents so that the parent is not “always been called into school”.
How special educational needs can best be recognised in schools’ policies on behaviour and discipline 45. Behaviour policies need to be flexible enough to ensure that students with SEN are in no way disadvantaged. 46. Much progress has been made to ensure that able students with behavioural issues are not placed in SEN (learning difficulties) groups.
The efficacy of alternative provision for pupils excluded from school because of their behaviour 47. There is significant variation in the quality of alternative provision with some excellent work in PRUs, college linked and vocational courses and special schools. There is much to learn from the good practice and better dissemination of this is essential. 48. Some special schools report that they are admitting pupils with behavioural difficulties at an older age than in the past, as mainstream schools are keeping them longer, eventually failing in many cases at around years 9 or 10. This can mean that they arrive at special school too late for the school to have a great impact on the behaviour of the pupil before they reach the end of compulsory education.
Links between attendance and behaviour in schools 49. It is important that all students are in school unless ill or engaged in education off site. Attainment is clearly linked to attendance, with absence being one of the major factors in limiting student progress. 50. There is some evidence that those students who have behavioural problems also have lower attendance rates. This can be a viscous circle as absence gives a discontinuity in the learning experience which means the pupil has difficulty in picking up the lesson at the start (as they were not in the lesson last time) and this can led to them being disinterested and then disruptive. Some schools put in place strategies to deal with this to ensure such students are engaged at the start of the lesson. Although this can be time consuming for the teaching staff it can be highly effective. 51. It is interesting to note that schools that have adopted alternative curriculum routes for potentially difficult young people have seen both an increase in motivation, attendance and attainment. This would emphasise the point made earlier about the impact an appropriate curriculum and good learning and teaching has on students.
The Government’s proposals regarding teachers’ powers to search pupils, removal of the requirement for written notice of detentions outside school hours, and the extent of teachers’ disciplinary powers, as announced by the Department on 7 July 52. ASCL broadly welcomes the support of the government for schools when they have to deal with poor behaviour. 53. The vast majority of incidents in schools do not require the use of force by staff, but heads and teachers will be reassured that they have the Secretary of State’s backing in the rare incidents when this becomes necessary. We would, however emphasise that there should be absolute clarity, in law, on this as the final decision on whether the use of any force is acceptable will lie in the hands of the courts. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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54. ASCL welcomes the extension of the powers to search and would urge that common sense should rule how and when the search is carried out rather than the set of regulations that were considered when the previous administration was examining this. 55. The association acknowledges the sentiments behind the wish to remove the “24 hour notice” for detentions. In most cases this would only apply to detentions after school as for break and lunchtime detentions there was never any reason previously to give notice. For after school detentions there are a number of practical considerations to take into account. Firstly there is the safeguarding for the child; is it appropriate to delay a 12 or 13 year old on a dark evening to then potentially travel home alone without having warned the parents (who may not be able to collect the child)? For many schools there are transport issues where students travel to school by coach and parents would need to make arrangements to collect their child after the detention. The 24 hour gap also gives a “cooling off” period for the teacher who may have made a hasty decision. The school will also need to consider the relationship with the parents/guardians and a lack of prior notice, even if supported by statute, is likely to irritate them. For these reasons we can see a large number of schools not making use of this provision. 56. ASCL welcomes the determination in the July 7 statement to have anonymity for staff when allegations have been made against them. Evidence indicates that there has been an increase in the number of malicious allegations against staff and that some pupils are using these to “get” certain staff. Staff should be protected from being named in such cases. September 2010
Memorandum submitted by the National Association of Head Teachers
The National Association of Head Teachers (NAHT) welcomes the opportunity to submit evidence to the Committee, given the nature of this particular inquiry.As a professional association for leaders in education, it is well placed to give voice to the views of its members. These number 40,000 in total, of whom more than 28,000 are currently based in and leading educational establishments.
How to Support and Reinforce Positive Behaviour in Schools? 1. NAHT believes that there is already sufficient legislative provision for schools when it comes to the practicalities of behaviour management. There is also adequate guidance, including a suite of documents, on tackling different “categories” of bullying. Section 91: Education and Inspections Act (2006) provides clarity on the powers schools have to regulate the conduct of their pupils both in and outside the school premises covering confiscation, detention and restraint (use of reasonable force). 2. We also note the proposed repeal of legislation relevant to detention (24 hours notice outside the school hours). The proposed review of the extent of teachers’ disciplinary powers announced 7 July 2010, when consideration will be given to broadening the powers of search to include: mobile phones, ipods and personal music players. NAHT welcomes these proposed reviews. 3. We acknowledge the right of schools to enact the existing provisions within its discipline policy. However, we would stress that what is important is communicating the school behaviour policy to the school community so that both parents and pupils are aware of and accept the schools’ power to discipline. Some pupils and parents are more aware of their rights—not necessarily their responsibilities. It is, therefore, an important message to continually emphasise and convey. 4. Schools are also aware of the need to engage parents and carers in circumstances where it is necessary to manage their children’s challenging behaviour, supported through developing a school/parent partnership. Schools equally recognise, however, that developing successful partnerships is very dependent on various factors, for example parental background and culture. The association is aware that some guidance exists to support schools.
What is the Impact on Schools and their Staff? 5. There can be a significant impact on classrooms and the whole school community when pupils exhibit challenging behaviour, affecting both staff and pupil well-being and not least the teaching and learning environment. Resources are important to avoid an imbalance of the ecology within the classroom. There is a delicate balance between the resources schools can bring to bear on the task of teaching and the demands created by some children, Dyson et al. (2004).
Allegations against Staff 6. NAHT welcomes the Government’s promises to include an absolute right to anonymity during an investigation. This has been an issue of grave concern over the past few years. More than 1,700 staff in UK schools accused of misbehaviour by parents or pupils during 2009, 50% of complaints of alleged physical assault, or inappropriate restraint led to 143 of those accused being dismissed or resigning. Despite the Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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number of complaints only a small percentage merited police investigation and an even smaller number concluded in conviction. We do support the need for robust systems, without dragging innocent staff into lengthy periods of proving their innocence.
Approaches taken by Schools and Local Authorities to address Challenging Behaviour Exclusions 7. National statistics illustrate that permanent exclusions and fixed-term exclusions are decreasing and this is to be welcomed. Hopefully this has been achieved through improved strategies for dealing with behaviour, rather than pressure from local authorities on schools to “contain” pupils, or through government driven policies on managed moves. To ensure managed moves operate fairly and successfully there needs to be structures in place that enable honest exchange between all professionals in those schools involved in the process. 8. What is significant is the number of pupils with “Special Educational Needs” both those with statements and without statements. The statistics indicate those pupils are over eight times more likely to be permanently excluded than those pupils with no SEN. The message is clear not enough is being done to avoid this ultimate sanction. We continue to hear from our members that they cannot get the necessary support and exclude because there is no alternative. A school leader’s ultimate priority is to balance the health and safety of the whole school community. To address this dilemma early intervention is needed by the relevant agencies within the local authority and strategies put into place and this necessitates resources. It is essential that careful consideration is given to the most appropriate educational placement. Lots of exclusions happen because the pupil is in the wrong setting and is absolutely fine when moved whether to a specialist mainstream unit, special school or PRU, or given better support where s/he is. Far more consideration needs to be given to using short-term placements as part of early intervention. 9. But Politicians and Local Authorities also need to stop thinking in the short-term and to realise that in the longer term early intervention of the right kind (including changing the provision or level of support) is essential. 10. Another important issue for schools in addressing behaviour is the “deprivation factor”: those pupils on free school meals are three times more likely to receive either a permanent of fixed period exclusion than those who are not eligible for free school meals. NAHT welcomes the idea of a “pupil premium” but is concerned that to make significant impact in narrowing the gap will require a “significant premium” as earlier research evidences. As with other intractable issues, the underlying cause lies beyond the school—in our expectations of parents, attitudes towards “youth”. Home school contracts may be supportive but they are only binding on the school. The enduring solution to poor behaviour in schools lies outside school. Stable family environments, decent incomes, parenting skills responsibility, higher levels of equality satisfying leisure opportunities, etc. 11. We note that the rate for boys’ permanent and fixed-term exclusions is also three times greater than for girls and NAHT would stress that this is an area that needs to be further explored—whether relevant to the need for a more flexible curriculum and/or to improved behaviour management at home and in schools. Personalising learning should include allowing for a more flexible and active curriculum, with plenty of opportunities for short-breaks, changes of activities and outdoor learning, etc. 12. With regard to the current statutory exclusion procedure this is well embedded in schools. NAHT would also support the retention of Independent Appeal Panels. Only 1% of all exclusions lead to a successful appeal where a pupil is reinstated. Better to retain the IAP as a buffer to avoid heads being dragged through courts to defend their decisions.
Links between Attendance and Behaviour in Schools 13. Statistics also demonstrate that school attendance is improving and this is to be welcomed because there is an obvious link between attendance and behaviour in schools. For example when pupils miss out through non-attendance this significantly impacts on their ability to participate in developing their learning abilities and in consequence has an effect on behaviour. In circumstances where it is difficult to engage children and young people, pupils may often become disruptive to draw attention away from their learning difficulties.
Behaviour in Schools what is the Position? 14. The message that perhaps also needs to be conveyed is one of proportionality with regard to behaviour in schools. Challenging and disruptive behaviour in schools has received “media hype” over the last decade. 15. Alan Steer’s Learning Behaviour: Lessons to be Learned (2009) stated that perhaps we need to look at the overall picture. It reflected that out of the 7 million pupils in schools it is the behaviour of a small percentage of pupils that tends to impact on the majority! Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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16. The latest statistics from Ofsted show that pupils’ behaviour was good or outstanding in 95% of primary and 80% of secondary schools inspected in 2008–09, and that behaviour was inadequate in just 1% of secondary schools and less than 0.5 per cent in primary. In fact out of 21,920 schools only 48 were judged to have inadequate behaviour: December 2009. 17. The aim of the “Behaviour Challenge” was to move the Ofsted ‘judgement’ of satisfactory to good or outstanding by 2012 and we acknowledge the reasons for support in that direction. At that time 43 local authorities received communication from the Department by way of a trigger for additional support. Lead Behaviour Schools were to be identified, supposedly 100 by autumn 2010, we are only aware of 20 schools. NAHT would like to raise the question what is intended will this initiative proceed—what is happening now? Also what has happened regarding the profile of the National Programme for Specialist Leaders in Behaviour and Attendance?
Teacher Training 18. The NAHT is of the opinion that what is a priority is improved initial teaching training and continuing professional development in behaviour management and most importantly improved teacher training in working with children with special educational needs, behavioural and learning difficulties to include a focus on “child development”. A renewed emphasis on training and development would have a significant impact on the outcomes for those pupils. Inspired students, who are learning things that feel relevant to them, are far less likely to be disruptive and to create trouble. 19. We would also like to emphasise that many new routes into teaching have little or no opportunities to spend sufficient time on developing a suite of classroom management strategies to suit different types of problems. 20. Another important point we would like to make is about training for head teachers or aspiring heads. It is recognised in research that school leaders need to be trained to be effective school leaders and this is particularly relevant to the context in which they will working—for example in areas of disadvantage, developing different skills, but we are not sure to what extent this is being promoted, Leithwood and Bevin (2005); Muijs et al (2007)
What is the Eficacy of Alternative Provision? 21. We would also like to emphasise our concern around alternative provision. PRUs are particularly good with dealing with the disaffected, school phobics/refusers and those who cannot cope with a normal school environment, despite having the ability to do so. They are not designed for students with long-term SEND (Special educational needs and disability). 22. Ofsted acknowledged in 2007 that a wide variety of pupil referral units existed, but all were facing similar barriers in providing a good education for their children and young people. Some with inadequate accommodation, pupils of different ages with diverse needs arriving in an unplanned way, limited numbers of specialist staff to enable a broad curriculum to be delivered and too often there were difficulties in reintegrating pupils into mainstream schools. In the main this position would appear to be unchanged. 23. However, we would emphasise that the success of pupil referral units depends on the ability to respond to these challenges and this is very much dependent on the support PRUs receive from the local authority. We are aware that the LGA is carrying out its own “closed” consultation regarding PRUs; Behaviour; Exclusions. It would be of concern if this was ultimately an exercise purely linked to resource implications rather than needs of children and young people. 24. NAHT is extremely concerned that some Local Authorities place pupils with statements in PRUs, naming the PRU. This we would argue is not good practice although not illegal and the NAHT believes this is an area that needs to be addressed. It also appears to be the case that too many children with special educational needs are also being placed in pupil referral units, because there is no other provision in the local authority area. 25. The original concept of a Pupil Referral Unit was for dealing with pupils disengaged from education, exhibiting challenging behaviour; their focus was on turning those pupils around. We believe that these units, however, remodelled, should be part of a continuum of provision so that pupils are reintegrated back into mainstream provision. However, too often a gap exists between intention and practice, so children and young people often stay in a PRU for an indefinite period. This causes longer-term planning difficulties and opportunities to reintegrate pupils into mainstream are then further limited, due to subsequent provision not being identified before pupils are admitted to the PRU, so poor practice exists. 26. To further evidence this in “answer to questions to the house: 20 July 2010”, it was stated that the number of pupils placed in PRUs with special educational needs without a statement as at January 2010 (all ages) totalled: 8,130 in England. The number of pupils with a statement of special educational needs 1,700 in England. What is also significant is that no figures on the length of time a pupil had been in a pupil referral unit were available. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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27. NAHT would urge the committee to investigate this and to carry out a review on the whole area of alternative provision. In March 2010 we as stakeholders responded to two separate consultations on Alternative Provision. The first focused on improving what exists and the second relevant to regulations empowering governing bodies to require a pupil to attend a premise outside the school to address behavioural problems. 28. NAHT believes it is essential to ensure quality alternative provision is available to suit the needs of children and young people. Consideration should be given to separate provision for those children identified with special educational needs and those children exhibiting challenging behaviour. However, we appreciate that there is often an overlap as much of the evidence conveys.
Conclusions 29. School leaders are dedicated professionals, determined to deliver the best opportunities for all the pupils in their care. An important remedy to poor behaviour, within the schools’ control, is the opportunity to deliver great teaching through having sufficient resources/funding to ensure the appropriate provision is in place. September 2010
Memorandum submitted by I CAN 1. Executive Summary 1.1 I CAN, the children’s communication charity, welcomes the opportunity to feed into the Committee’s inquiry into Behaviour and Discipline. Our evidence demonstrates the strong link between emotional and behavioural difficulties and poor communication skills. From our experience however, Speech, Language and Communication Needs (SLCN) often go undetected in children and young people with behavioural difficulties, resulting in further social exclusion. I CAN believes that more needs to be done to ensure early identification of SLCN as well as positive intervention for these vulnerable children. In this submission we have used our experience to highlight the following areas: — The strong correlation between children who have emotional and behavioural difficulties and children who have SLCN. — The need to ensure that SLCN does not go undetected in children with behavioural difficulties. — The key role that identifying and addressing communication needs can play in supporting positive behaviour. — The need for tools to aid in the identification of SLCN in both mainstream and specialist settings. — To ensure the provision of specialist help including clear methods for referral to a specialist provider.
2. About I CAN 2.1 I CAN is the children’s communication charity. We work to develop speech, language and communication skills for all children, with a particular focus on children who have Speech, Language and Communication Needs (SLCN). I CAN works to ensure all people who have a responsibility to children, from parents and teachers to policy makers, understand the importance of good communication skills. We do this through: — Direct service provision through two schools for children with severe and complex speech, language and communication needs (SLCN), and a network of early years centres. — Consultancy and outreach services through I CAN’s Early Talk and Primary Talk programmes, and our Communication Skills Centres. — Information, training, support and online resources for children, families and professionals. — Raising awareness through campaigns such as Make Chatter Matter. 2.2 I CAN uses its expertise from working directly with children with SLCN to develop information packages, training and programmes to develop the communication skills of all children and young people. I CAN is delighted that the issue of children’s speech, language and communication has risen up the political agenda significantly over the last few years. Our Make Chatter Matter campaign has engaged support from a range of Parliamentarians from all sides of the political divide and has spearheaded a shift in Government priority for the issue. Make Chatter Matter has been underpinned by I CAN’s “Cost to the Nation”37 report which set out the evidence base for the scale of the issue.
37 Available on our website at http://www.ican.org.uk/upload2/chatter%20matter%20update/mcm%20report%20final.pdf Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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3. Background to Speech,Language and Communication Needs (SLCN) 3.1 I CAN believes that the best way to support positive behaviour is to identify and address the underlying communication difficulties that very many pupils with special educational needs have. 3.2 Speech language and communication skills are the basis for other key life skills: learning, literacy, positive relationships and regulation of behaviour and emotions.38 Speaking and listening skills underpin pupil outcomes; young people with good communication skills have a wider range of life chances.39 3.3 In some parts of the UK—particularly areas of social disadvantage, upwards of 50% of children are starting school with SLCN.40 Many have poor language skills which are inadequate for the start of formal learning, but with the right support may catch up with their peers. However, some of these children have more complex or persistent SLCN. Based on information from prevalence studies41, 42 and from schools census data,43 we can estimate that all together this may be around 10%44 of all children and young people. 3.4 Those with unaddressed, speech language and communication needs are at risk of problems with literacy, numeracy and learning.45 They are less likely to leave school with qualifications46 or job prospects and are in danger of becoming NEET (Not in Employment, Education or Training at 16–18), as are young people who have spent time in alternative provision.47 SLCN can also lead to difficulties with social relationships and behaviour. Speech, language and communication needs are strongly associated with mental health problems as well as other social emotional and behavioural difficulties.48 We also know that children excluded from school are likely to have special educational needs, including a high incidence of communication difficulties.49 People with speech and language needs are significantly over-represented in the young offender and prison populations.50 In addition to this, limited language skills make it difficult for young people to access support or understand interventions.51
4. The Relationship between Speech,Language and Communication Needs and Behavioural Difficulties 4.1 I CAN is concerned by the evidence that young people with social emotional and behavioural difficulties 52 are at risk of undetected communication problems.53 4.2 There is evidence of a high incidence of communication difficulty (often unidentified) in those who are young offenders54, 55 looked after children56 and those who have conduct disorder57 as well as other social emotional and behavioural difficulties.58 It is estimated that between 60%–90% of these vulnerable
38 Silva P, Williams S & McGee R, (1987): A Longitudinal Study of Children with Developmental Delay at age three years; later intellectual, reading and behaviour problems. Developmental Medicine and Child Neurology 29, 630–640. 39 Improving Achievement in English Language in Primary and Secondary Schools (2003) HMIE. 40 Locke, A. Ginsborg, J and Peers, I (2002) Development and Disadvantage: Implications for Early Years IJLCD Vol 27 No 1. 41 Tomblin J B et al (1997) Prevalence of Specific Language Impairment in Kindergarten children Journal of speech, Language and Hearing Research 40 in Lindsay G and Dockrell J with Mackie C and Becky Letchford (2002) Educational Provision for Children with Specific Speech and Language Difficulties in Engand and Wales CEDAR. 42 Law J. Boyle J. Harris F. Harkness A. and Nye C. (2000) Prevalence and Natural History of Primary Speech and Language Delay: findings from a systematic review of the literature IJLCD Vol 35 no 2. 43 DfES (2006) National Statistics First Release. 44 see I CAN prevalence calculations and Law et al (2000) Provision for children’s speech and language needs in England and Wales: facilitating communication between education and health services DfES research report 239. 45 Stothard et al 1998 and Communication Disability and Literacy Difficulties I CAN Talk (2006). 46 Snowling M J, Adams J, Bishop DVM, and Stothard SE (2001) Educational Attainments of School Leaver with a Pre-school History of Speech-Language Impairments IJLCD Vol 36. 47 I CAN Talk Series 4 Language and Social Exclusion. http://www.ican.org.uk/upload2/publications/language%20and%20social%20exclusion%20report.pdf 48 Toppelberg C O, Shapiro T (2000), Language disorders: A 10-year research update review. Journal of the American Academy of Child & Adolescent Psychiatry 39: 143–152. 49 Ripley, K, Yuill, N (2005) Patterns of language impairment and behaviour in boys excluded from school. British Journal of Educational Psychology. 75(1):37–50. 50 Snow, P C & Powell, M B (2005). What’s the story? An exploration of narrative language abilities in male juvenile offenders. Psychology, Crime and Law 11(3) 239–253. Bryan K Freer J; Furlong C Language and communication difficulties in juvenile offenders (2007) International Journal of Language & Communication Disorders 42 2. 51 Snow, P & Powell, M (2004). Interviewing juvenile offenders: The importance of oral language competence. Current Issues in Criminal Justice 16(2), 220–225. 52 Heneker, S. (2005) Speech and language therapy support for pupils with behavioural, emotional and social difficulties (BESD)—a pilot project British Journal of Special Education 32 2 p 86. 53 Cohen, N J, Barwick, M A, Horodezky, N B, Vallance, D D, and Im, N (1998). “Language, Achievement, and Cognitive Processing in Psychiatrically Disturbed Children with Previously Identified and Unsuspected language Impairments”. Journal of Child Psychology and Psychiatry 39, 6, 865–877. 54 Bryan, K. 2004. Preliminary study of the prevalence of speech and language difficulties in young offenders. International Journal of Language and Communication Disorders, 39, 391–400. 55 Snow PC, Powell MB (2007) Oral Language Competence, Social Skills and High-risk Boys: What are Juvenile Offenders Trying to Tell us? Children & Society (OnlineEarly Articles). doi:10.1111/j.1099–0860.2006.00076. 56 Cross, M. Lost for words. (1999) Child and Family Social Work 4(3): 249–57. 57 Gilmour, J; Hill, B; Place, M. Skuse, D. H. (2004) Social communication deficits in conduct disorder: a clinical and community survey Journal of Child Psychology & Psychiatry. 45(5):967–978. 58 Toppelberg C O, Shapiro T (2000), Language disorders: A 10-year research update review. Journal of the American Academy of Child & Adolescent Psychiatry 39: 143–152. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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young people have undetected communication difficulties. We also know that children excluded from school are likely to have special educational needs, including a high incidence of communication difficulties.59 Again, poor language skills make it difficult for young people to access support or understand interventions. 4.3 I CAN believes there is a clear link between poor behaviour and poor communication skills. A recent study from the University of Sheffield concluded that “for a high proportion of secondary age pupils at risk of permanent school exclusion, language difficulties are a factor in their behaviour problems and school exclusion.”60 4.4 We believe that the key is to identify accurately the underlying difficulties that give rise to poor behaviour so that positive and developmental strategies can be put in place in advance. 4.5 We also know that these underlying language difficulties often go undiagnosed.
5. Next Steps 5.1 In our view there are a number of actions that should be taken to address this which I CAN is able to help deliver: — Tools to help staff identify and assess speech language and communication needs (SLCN) in both special and mainstream settings to help identify areas for development. — Clear triggers for referral for specialist help with SLCN. — The provision of that specialist help. — Advice on how speech and language therapists forming part of the multi disciplinary team that works effectively with children and young people. — Workforce development with particular focus on the links between behaviour, emotional and social difficulties (BESD) and SLCN, stressing the connection between language and social exclusion. 5.2 In both of our own special schools for children and young people with complex SLCN (Dawn House School in Nottinghamshire age range 6–19 and Meath School in Surrey for primary age children), there is exemplary practice in how to support positive behaviour. This includes: — In the classroom, helping the learners identify and express their barriers to learning so that their needs are met rather than them “behaving badly”. This is done through thorough assessment, skilled teaching and a multi disciplinary approach of teachers and speech and language therapists working together. — In the school more widely through a language enriching environment, active student councils and outstanding care and guidance in time outside lessons. — Working with parents so that strategies used to manage behaviour at school are understood and consistently applied at home. September 2010
Supplementary memorandum submitted by I CAN When I gave oral evidence to the Education Select Committee on 29 October, I promised to write with some additional information.
1. Integrated Commissioning for Children with SEND In discussion with Members of the Committee, the issue of specialist support to children with behaviour problems came up, particularly as regards Child and Adolescent Mental Health Services (CAMHS), where support needs to come from the NHS. All too often it proves very difficult for schools to access CAMHS and other specialist health support such as Speech and Language Therapy in schools because commissioning budgets and priorities are neither integrated nor aligned across agencies. As a result children fail to receive help and support that is vital to their attainment and behaviour. It was in this context that I mentioned a radical proposal put forward in response to the Liberating the NHS White Paper by myself, Paul Ennals of the National Children’s Bureau, Christine Lenehan of the Council for Disabled Children and Anita Kerwin-Nye of The Communication Trust. I attach the letter to Andrew Lansley MP, Secretary of State for HeaIth, that I referred to in Committee, which outlines this. We suggest that government builds on its plans to locate the public health commissioning function within local authorities, by also identifying the local authority (working closely with GP consortia) as lead commissioner and budget holder for all local children’s community health services.
59 Ripley, K, Yuill, N (2005) Patterns of language impairment and behaviour in boys excluded from school. British Journal of Educational Psychology. 75(1):37–50. 60 Clegg, Finch, Murphy,Nicholls and Stackhouse (2009), Language abilities of secondary age pupils at risk of school exclusion: A preliminary report. Journal of Child Language Teaching and Therapy 25: 123–139. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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We propose this because we consider that Commissioners should be in a position to commission in the round for children’s services. The most effective services for children with SEND integrate provision made by NHS therapists with that provided by local authority advisory teachers and special units/schools, and local authority social care services; the most effective early years services integrate the work of health visitors, speech and language therapists and early years practitioners. Without overall commissioning, uncoordinated services serve children poorly and mean that the collaborative practice which underpins effective practice is impossible. Commissioners should be in a position to commission services that operate seamlessly at universal, targeted and specialist levels. Any separation of these levels of commissioning risks removing the incentive to invest in cost-effective interventions to reduce service demand later. I hope very much indeed that members of the Education Select Committee will consider the arguments put forward in the letter carefully, with a view to recommending the transfer of NHS child health commissioning budgets to Local Authorities we advocate. Improving attainment and behaviour in our schools depends on being able to marshal a range of well integrated specialisms from a number of agencies to support children with SEN and others. This can only happen if there is an integrated approach to budgeting and commissioning across agencies locally. The present fragmentation of commissioning across Local Authorities and the NHS serves children very ill. Children with SEND are particular losers in this.
2. Young People with SLCN: A Hidden Population I offered to circulate the table below to illustrate the point that both John Dickinson-Lilley from SEC and I were making about the shift in SEN designations that occurs between primary and secondary school. As you will see from the table below, school census data indicate that the incidence of SLCN are as high as 24% in primary school years and fall dramatically to 6% in secondary. In contrast, BESD in primary years is around 17% and rises to over 30% in secondary years. It is unlikely that nearly 20% of SLCN disappear between primary and secondary or that BESD rates increase without any links to communication needs and skills. Indeed studies have shown that over time young people with SLCN make progress in language development but remain significantly behind their peers; the underlying language deficit remains. The possible reasons for the fall in reported numbers are varied, a central one being the difficulty in identifying language difficulties. SLCN in adolescents are often described as “hidden”. Language difficulties may be misinterpreted as bad behaviour rather than be seen for the difficulty it is.
Pupils in England by types of Special 30 Educational Needs Those on ‘school action plus’ and those receiving statements
Figures from Department for Children, Schools and 20 Families Statistical First release SFR 08/2008
N.B. at primary Speech, Language and Communication needs 18.5% 25.2% 30.6% (SLCN) is slightly 10 second biggest group to Moderate Learning Difficulties (26.3%) at secondary. Behavioural Emotional 7.4% and Social Difficulties (BESD) becomes 0 biggest group Primary Secondary
3. Speech Language and Communication Needs:Links to Behavior I thought it might be useful for the Committee if I summarised some of the evidence linking Speech, Language and Communication Needs and poor behaviour that I drew on in my oral evidence: — Without intervention, SLCN impacts on literacy development, educational outcomes, emotional and social development. — Children with SLCN are at increased risk of emotional and behavioural difficulties (often undetected) and frequently excluded from school. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— Although there is uncertainty around the exact relationship between emotional and behavioural difficulties and SLCN, there is a strong correlation with both internalising (eg anxiety, depression) and externalising (eg anti-social behaviours) difficulties in adolescence. — Studies indicate that the incidence of communication difficulties among children with behavioural, emotional and social difficulties (BESD) to be between 55 and 100% compared to a typical prevalence of around 5%. — Two-thirds of 7-14 year olds with behaviour problems have a communication difficulty. — A recent study from the University of Sheffield concluded that “for a high proportion of secondary age pupils at risk of permanent school exclusion, language difficulties are a factor in their behaviour problems and school exclusion.” — Those with a history of communication difficulties are at a higher risk of developing mental health problems. Unsupported, around one third of children and young people with SLCN will go on to require treatment for mental health problems. — 60-90% of young offenders have SLCN. November 2010
Memorandum submitted by Special Educational Consortium 1. Introduction 1.1 There are some key themes which SEC wishes to explore in its submission on school behaviour policies and the way they can best support and encourage the positive behaviour and engagement of disabled children and children with SEN: — Behaviour difficulties are closely linked to a failure of a child to access education and make progress. Schools sometimes struggle to help disabled children and children with SEN access their education, and where this happens it can lead to disabled children and children with SEN being caught up in disciplinary procedures unnecessarily. — Behaviour difficulties are often caused by underlying conditions, including mental health problems, underlying disabilities, and problems outside of school. Schools should look at the underlying causes of behaviour, as well as having appropriate disciplinary routes. — It may be perceived that a disabled child is simply being naughty or deliberately disruptive when in fact this behaviour arises as a consequence of their disability or alternatively as a consequence of a lack of reasonable adjustments made to accommodate their disability. Schools need to understand the rights of disabled children and are legally required to make reasonable adjustments to their behaviour and discipline policies where a disabled child is concerned — The SEN framework does, and was always intended to, address the needs of children with significant behaviour problems that cannot be solved through the standard behaviour and discipline frameworks operated by the school. This means children with some of the most challenging behavioural issues are supported through the SEN system.
2. Unmet Learning Needs as a Major Factor in Disruptive Behaviour 2.1 Behaviour difficulties are closely linked to a failure of a child to access education and make progress. Disabled children and children with SEN are more likely to have unmet needs, which goes some way to explain why they are more likely to be caught up in school’s disciplinary procedures. A number of reports have raised questions about the extent to which the exclusion of certain children is a result of their unmet special educational needs61, 62. 2.2 While not all disruptive or challenging behaviour can be explained by a failure to have educational needs met, it is obvious that a child who is engaged with their education and making good progress is much less likely to be disruptive in class. None of this means that schools should not emphasise the need for good discipline and apply appropriate sanctions where there is a breach of the behaviour policy. Nonetheless, it is the long term interests of both children and schools that teaching policies and practices place an importance on addressing the educational needs of children who display disruptive behaviour. This will have the benefit of both improving behaviour and increasing attainment. 2.3 The findings of a panel of senior teachers63—that ”learning, teaching and promoting good behaviour are inseparable issues for schools”—was echoed by Sir Alan Steer’s review of behaviour which stated that ”much poor behaviour has its origins in the inability of the child to access learning”.64 Ofsted has found
61 National Foundation for Educational Research, Admissions and Exclusions of Pupils with Special Educational Needs DfES Research report RR608, 2005. 62 Audit Commission, Special Educational Needs: a mainstream issue, 2002. 63 Learning Behaviour. The report of the Practitioners Group on School Behaviour and Discipline, DCSF, 2005. 64 Learning Behaviour: lessons learned—A review of behaviour standards, Institute of education, 2009 and practices in our schools. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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that ”most of the secondary schools in which behaviour is inadequate, teaching and learning are also inadequate”.65 Parents of disabled children and children with SEN support this view: a survey by the National Autistic Society found that 66% of parents say a delay in accessing support had a negative impact on their child’s behaviour and 34% say it had a negative impact on their child’s mental health.66 It is also worth noting that the most common reason for exclusion is persistent disruptive behaviour,67 which is more likely to occur when a child is not engaged or satisfied with their progress at school. 2.4 To help address the underlying causes of disruptive or challenging behaviour, behaviour policies need to emphasise the need for early intervention to asses whether the behaviour is a result of unmet learning needs. This is supported by Ofsted which found that behaviour will be poor where there is too little emphasis in the behaviour management strategies on improving the quality of teaching.68 Where a child is disabled or has SEN and is becoming disruptive, behaviour policies should stress the importance of reviewing whether those additional needs are being met. 2.5 This is an even more pressing issue where there is an unidentified need, as children may be labelled as having behavioural difficulties when in fact the issue lies further back in the system’s failure to meet their educational needs. For example, there is a particularly strong link between children identified as having behavioural difficulties and children who have unidentified speech, language and communication difficulties69, 70. Where a child has no identified need, behaviour policies should stress the importance of reviewing whether they have any additional needs where a child is displaying disruptive or challenging behaviour. Recommendation 1 All school behaviour policies should have a focus on early intervention to address the underlying causes of behaviour, and particularly whether the behaviour is a result of an unidentified SEN. Recommendation 2 All teachers should be properly trained in SEN, in order to recognise whether behaviour is a result of an unidentified or unmet SEN.
3. Behaviour Policies—Making Reasonable Adjustments for Disabled Children 3.1 It is clear from current evidence that disabled children continue to encounter significant difficulties in the way schools understand and address issues with their behaviour. Disabled children with a statement of SEN (ie disabled children with the most significant needs) continue to be eight times more likely to be excluded from school as their non-disabled peers71 despite statutory guidance which states that they should only be excluded in “the most exceptional circumstances”.72 Children at School Action Plus—many of whom will be disabled but who may not receive the same level of support as children with a statement—are over 19 times more likely to be excluded than their peers.73 3.2 The Equality Act 201074 requires schools to ensure disabled children75 are not treated unfavourably because of a reason arising as a consequence of their disability and to make adjustments to ensure they can access all the benefits of their education. These protections apply equally to policies on behaviour, including blanket discipline policies which do not take account of disabled children’s different needs. 3.3 Like all children, disabled children display disruptive or challenging behaviour for a range of different reasons. They may not be accessing their education or making progress, they may have problems with communication, they may have mental health needs, or there may be issues outside of school. In some cases, a child’s perceived disruptive or challenging behaviour arises directly as a consequence of their disability or as a consequence of a lack of reasonable adjustments made to accommodate their disability. Whatever the case, if a disabled child is displaying disruptive or challenging behaviour, early intervention is needed to assess whether appropriate reasonable adjustments have been made for them—this duty is anticipatory. The
65 The Annual Report of Her Majesty’s Chief Inspector of Education, 2008. 66 Batten, A et al, Make school make sense, National Autistic Society, 2007. 67 Statistical First Release: Permanent and Fixed Period Exclusions From Schools and Exclusion Appeals in England, 2008–09, Department for Education, 2010. 68 Managing challenging behaviour, Ofsted, 2005. 69 Gilmour, J, Hill, B, Place, M and Skuse, Social Communication Deficits in Conduct Disorder: a clinical and community survey Journal of Child Psychology & Psychiatry 45(5):967–978, 2004. 70 Toppelberg, C.O. and Shapiro, T, Language Disorders: A 10-year research update review, Journal of the American Academy of Child & Adolescent Psychiatry 39: 143–152, 2000. 71 Statistical First Release: Permanent and Fixed Period Exclusions From Schools and Exclusion Appeals in England, 2008–09, Department for Education, 2010. 72 Improving behaviour and attendance: guidance on exclusion from schools and pupil referral units, DCSF, 2008. 73 Children with Special Educational Needs 2009: an analysis, DCSF, 2009. 74 The definitions and responsibilities contained in this section refer to the Equality Act 2010 which replaces the Disability Discrimination Act (DDA) and related legislation from October 2010 as the main source of protection from discrimination. 75 A person is disabled if they have a physical or mental impairment that has a substantial and long-term adverse effect on their ability to carry out normal day-to-day activities. A physical or mental impairment includes learning difficulties, mental health conditions, medical conditions and hidden impairments such as dyslexia, autism, and speech, language and communication impairments. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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fact that a child has a disability does not mean they should never be disciplined, but rather the behaviour and discipline policies should reflect the need to pay extra attention to the underlying causes of their difficulties to reflect the additional barriers disabled people face in society. 3.4 If a child’s disruptive behaviour arises as a consequence of their disability and reasonable adjustments having not been made, the school could be found guilty of disability discrimination if that disabled child is unnecessarily punished or excluded. Recommendation 3 All schools should be made fully aware of their legal responsibility to make reasonable adjustments for disabled children, including flexibility in behaviour and discipline policies. Recommendation 4 Schools should focus on early intervention to ensure disabled children receive the adjustments they need at the earliest possible stage, particularly where they are displaying disruptive or challenging behaviour. Recommendation 5 All staff should receive adequate disability training in order to recognise disabled children, respond to their needs, and understand their duty to make reasonable adjustments to the way they enforce behaviour and discipline policies.
4. Explaining the Link Between Special Educational Needs and Significant Behaviour Difficulties 4.1 The SEN framework does, and was always intended to, seek to address these needs of children with significant behaviour problems that cannot be solved through the standard behaviour and discipline frameworks operated by the school. The Warnock report upon which the SEN framework is based states that the system of special educational needs should: “embody a broader concept of special education related to a child’s individual needs as distinct from his disability and a wider description of children which includes those with significant difficulties in learning, or with emotional or behavioural disorders, as well as those with disabilities of mind or body”.76 Therefore, where a child has behavioural, emotional, or social difficulties and these are acute enough to become a barrier to learning despite the usual interventions of the school, the child can receive support through the SEN framework. 4.2 There is a clear distinction between routine misbehaviour and children who seriously struggle with their behavioural, emotional, or social development to such an extent that it becomes a barrier to their learning despite the usual interventions of the school. There has been a recent rise in the number of children with behavioural, emotional, or social difficulties identified through the SEN system. One of the reasons for this may be where schools’ standard behaviour management and early intervention strategies are not robust enough to differentiate between routine misbehaviour and SEN. Recommendation 6 The Government should make a commitment to addressing the needs of children with behavioural, emotional, or social difficulties as parts of its plans to boost discipline in schools, and publish a strategy for doing do so.
5. Addressing the Needs of Children with Behavioural,Emotional, and Social Difficulties 5.1 Any attempt to prevent serious cases of disruptive or challenging behaviour in schools must seek to address the needs of children classed as having behavioural, emotional, and social difficulties. Behavioural, emotional, or social difficulties arise as a result of a variety of often interrelated causes, including mental health problems, underlying disabilities, trauma, abuse, bereavement or chaotic home lives. There are also very strong links between significant behaviour difficulties and unmet communication needs.77 Children with behavioural, emotional, and social difficulties are some of the most challenging for schools to teach and unsurprisingly are by far the most likely group of children to be excluded.78 The argument about whether children who struggle with their behavioural, emotional, or social difficulties should be described as having special educational needs is less important than addressing the underlying cause of these problems, and often schools will also meet a child’s needs through mental health or pastoral support programmes as well.
76 Warnock, H, Special Educational Needs—Report of the Committee of Enquiry into the Education of Handicapped Children and Young People, 1978. 77 Cross, M, Children with Emotional and Behavioural Difficulties and Communication Problems: there is always a reason. Jessica Kingsley Publishers, 2004. 78 Statistical First Release: Permanent and Fixed Period Exclusions From Schools and Exclusion Appeals in England, 2008–09, Department for Education, 2010. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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5.2 Strengthening the ability of the SEN system to meet the needs of this group of children will significantly increase schools’ ability to improve their behaviour. Early intervention and additional input from specialist local authority support services is highly valuable, but problems of access for schools remains a problem.79 There is currently considerable evidence that schools are seeking access to the additional help required from professionals in health and social services earlier than they were able to secure it and that access to child and adolescent mental health services was very variable80,81. Strengthening this support should be a priority. The fact that evidence has shown that between 60–90% of children with significant behaviour difficulties also experience communication difficulties also presents a strong case for particular investment in this area. 5.3 Many children with behavioural difficulties will also have underlying mental health conditions affecting their behaviour. Around one in ten school age children will experience a mental health problem at some point during their schooling.82 Good schools will have a positive whole-school approach to improving the mental health and well being of all their pupils. For children with less severe mental health and/or behavioural needs, the school will be able to manage these within their usual mental health and well-being practices, such as small group work to promote social and emotional skills or peer support programmes.83 For children with more significant mental health needs, excellent schools’ mental health policies will be closely integrated and complimentary to the SEN provision for children with behavioural, emotional, or social difficulties, the school’s pastoral support services, and stress the importance of involving, and signposting to, local specialist services. Recommendation 7 As part of its strategy to improve behaviour in schools, the Government should evaluate the benefits of significant programmes of early intervention in the areas of mental health and speech language and communication.
6. Exclusions 6.1 Children who have been permanently excluded are less likely to achieve five good GCSE results or be in employment in later life.84 There is also a long established link between being excluded from school and becoming involved in crime85—for example, research from the prisons inspector in 2004 found that 83% of the young men in custody had been previously excluded from school.86 There is a clear consensus that exclusion from school results in dramatically poorer outcomes for the child concerned and has significant long-term costs to society. There have been strong arguments made that we should move toward a zero exclusion school system87, 88. 6.2 High levels of exclusions are both a cause and a result of poor social outcomes for young people with SEN and disabilities. A survey of 22 LEAs found that 87% of exclusions in primary schools and 60% of exclusions in secondary related to pupils with SEN.89 Disabled children and children with SEN continue to be over eight times more likely to be permanently excluded from school than the rest of the school population.90 It is essential that the Government as an urgent priority looks at reducing the number of young people with SEN and disabilities who are excluded from school. These groups of young people are already at a disadvantage in terms of accessing education, and being excluded from school only compounds this fact. Recommendation 8 Where a disabled child or child with SEN is at risk of exclusion, a review of a pupil’s special educational needs should be undertaken before they are referred off-site. This should look at whether reasonable adjustments are required for the disabled child or child with SEN which, if made, could avoid the need to remove the pupil from the school.
7. Informal Exclusions 7.1 Informal exclusions usually occur when a parent is asked to remove their child from school for a fixed period of time without the child being officially recorded as being excluded. This practice allows schools to exclude children they find difficult without the child having done anything specifically wrong. Informal exclusions are a key sign that the school’s standard behaviour management policies is not robust enough.
79 A statement is not enough, Ofsted, 2010. 80 Ibid. 81 Making sense of mental health—the emotional wellbeing of children and young people with complex needs in school, NASS, 2006–07. 82 Mental Health: One in 10 children has a mental disorder, Office for National Statistics, 2005. 83 Targeted Mental Health in Schools Project, Department for Education, 2010. 84 Daniels, H et al, Study of Young People Permanently Excluded From School, University of Birmingham, 2003. 85 Graham J and Bowling B, Young People and Crime, Home Office, 1995. 86 Mark Challon and Thea Walton, Juveniles in custody, HMI Prisons, 2004. 87 Sodha S. and Margo J, ex curricula, Demos, 2010. 88 Peacey, N, Toward Zero Exclusions, IPPR, 2005. 89 Special educational needs: a mainstream issue, Audit Commission, 2002. 90 Statistical First Release: Permanent and Fixed Period Exclusions From Schools and Exclusion Appeals in England, 2008–09, Department for Education, 2010. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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7.2 Statutory guidance91 is clear that informal exclusions are unlawful. Nonetheless, recent reports have found that over 50% of local authority officers have particular concerns about the risks posed to children by unofficial exclusions92 and that informal exclusions continued to be a routine experience for some parents.93 Recommendation 9 The Government should look at ways of improving the way parents are informed of their rights and schools of their responsibilities. Parent Partnership Services and the voluntary sector are well placed to inform parents of their rights, and the Government should seek ways of supporting them to hold schools to account. September 2010
Memorandum submitted by YoungMinds 1. YoungMinds is the UK’s leading charity committed to improving the emotional well being and mental health of children and young people by ensuring these issues are placed firmly on the public and political agenda. We achieve this though the provision of research, lobbying, influencing policy and campaigning. Driven by the experiences of children, young people, parents and carers we also raise awareness and provide expert knowledge through training, outreach work, and publications.
2. Executive Summary 2.1 The root causes of behaviour and discipline problems need to be tackled if there are to be any major improvements seen in our schools and communities. Many children and young people live very chaotic lives, and there has been a significant increase in the number of children and young people with mental health problem over the last few decades. Rather than punishing children and young people for bad behaviour, they need to be given support to help them become more resilient and deal with difficult situations. Many will need specialist support to help them with their mental health problems. Schools need a better understanding of what mental health is and know how to identify and refer on a child who they believe is experiencing mental distress. So schools need to work with other agencies to ensure that vulnerable children and young people receive the right help and support. Teachers also need support to ensure that they are themselves mentally healthy and better able to cope with the pressures of teaching. There is a lot that schools can do to promote the mental health and emotional wellbeing of their pupils, but they need to work in partnership with other agencies to achieve it. Many schools are doing this already, but it is far from universal. There are initiatives such as SEAL, TAMHS and the UK Resiliency Programme, all of which are delivered in schools and have been shown to promote mental health and wellbeing and are beginning to help tackle behaviour and discipline.
3. Look Behind the Behaviour 3.1 We believe that behaviour problems and discipline in schools need to be effectively addressed, for the sake of all children and young people in the school, the teachers and their families. However, there are reasons why children and young people behave in the way that they do. Rather than just punishing them, the underlying causes need to be addressed if behaviour and discipline problems are to be improved. We see behavioural problems within a mental health and wellbeing context, meaning that “bad behaviour” is often related to the child’s mental health and wellbeing. So if a child has for instance a number of negative life experiences, this is likely to impact on how they see themselves and relate to others and it will influence their behaviour. 3.2 There is a lot of confusion around terminology, so to clarify what we mean our definition of mental health is “the strength and capacity of our minds to grow and develop and to be able to overcome difficulties and challenges and to make the most of our abilities and opportunities”. 3.3 We believe that mental health consists of the following: 1. A capacity to enter into, and sustain, mutually satisfying and sustaining personal relationships. 2. Continuing progression of psychological development. 3. An ability to play and to learn so that attainments are appropriate for age and intellectual level. 4. A developing moral sense of right and wrong. 5. A degree of psychological distress and maladaptive behaviour within normal limits for the child’s age and context.
91 Improving behaviour and attendance: guidance on exclusion from schools and pupil referral units, DCSF, 2008. 92 Children missing from education, Ofsted, 2010. 93 Lamb Inquiry—special educational needs and parental confidence, DCSF, 2009. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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3.4 As this definition suggests, mental health is not the same as mental illness. Mental health is something that we all have, and it is an essential component of health. Being mentally healthy is important for school attainment and appropriate behaviour in the school setting, good social relationships and about having the capacity to cope with all that life throws at us. 3.5 Many children who have a special educational need, particularly those who are said to have behavioural, emotional and social difficulties (BESD) will also have mental health problems.
4. Children’s Mental Health Problems 4.1 We know that many children and young people have very chaotic lives, and experience a whole range of negative life experiences such as seeing their parents divorce, living in poverty and in a deprived environment, where violence and gangs are everyday experiences or where their parents have mental health problems. We know that one in ten children and young people aged five to 16 years have a mental disorder (Green, et al., 2004). This means that the person’s problems have reached a clinical threshold and are severe enough to require specialist help. However, there will be many more children and young people who will have a range of milder mental health problems which have not reached the clinical threshold, but it may still have a significant effect on their lives. Vulnerable groups such as children in care are even more likely to have a mental disorder. It has been estimated that 45% of children in care have a mental disorder (Meltzer, et al., 2003). Children and young people with mental health problems experience a number of negative life experiences. For instance, the Child and Adolescent Mental Health (CAMH) survey found that over half of children with an emotional disorder or a conduct disorder had seen their parents divorce or separate (Green, et al.,2004). 4.2 About 5.8% or about one in 20 children and young people have a psychiatric disorder called a conduct disorder (Green, et al., 2004). This disorder is associated with behavioural problems and crime and is more prevalent in boys than girls. Many more children and young people experience milder conduct problems, which do not meet the clinical threshold, but are also associated behavioural problems, crime and an increased risk of adverse outcomes in later life. It has been estimated that 30% of crime is committed by children with conduct disorders, at a cost to society of over £22 billion a year. One study estimated that the 45% of children who have mild or moderate conduct problems go on to commit half of all crime at an annual cost of some £37 billion. The lifetime costs of crime are an average of £160,000 for each child with conduct disorder and £45,000 for those with mild or moderate conduct problems (Centre for Mental Health, 2009). 4.3 Like many mental health problems, conduct disorder is related to poverty and disadvantage. For instance, among children and young people with conduct disorders: One-third of children lived in families where neither parent was working; More than half lived in households where the average income was £300 per week; 41% lived in areas that were described as “hard pressed” (Green, et al., 2004). Many mental health problems are associated with negative long-term socioeconomic outcomes, and this is particularly the case for people with a conduct disorder (Richards, M. et al. 2009). 4.4 Therefore, if we see behaviour as the outward expression of how children and young people feel and how they respond to the world around them, then it is not surprising that so many children and young people are said to be “badly behaved”. If we focus on the fact that some young people have behavioural problems because of the difficult and often dire situation in which they find themselves in, rather than focusing on them as being “bad”, then it is easier to see why it is so important to provide the right help and support. This strategy will not only benefit children and young people themselves but will save millions in future costs to the NHS, Social Care and the Criminal Justice System.
5. Children and Young People with Mental Disorders and School Problems 5.1 Children and young people with mental disorders are much more likely to be excluded from school. For instance 15% of young people with a conduct disorder had been excluded three or more times from school, compared to young people without a mental disorder (Green, et al., 2004). Teachers report that young people with mental health problems are more likely to be truants, than young people without these problems (Green, et al., 2004). However, it is likely that some of these days off are likely to be due to actual illness. 5.2 Young people are more likely to enjoy going to school and behave better if the school environment and culture offers a safe and supportive environment that encourages them to become engaged in their own education and development. This relates to ensuring that the school has a healthy culture that is aware of and supports young people’s wellbeing and mental health as well as their educational development. Going to school can be helpful for young people with mental health problems because it is seen as a “normal” activity. 5.3 Young people are known to improve when they are in Pupil Referral Units (PRU) because they are in much smaller classes, and have a structure in place that helps them. This progress can stop once pupils return to their school unless they receive similar levels of support. To be effective PRUs need funds, and support from other agencies to tackle the underlying problems associated with behaviour problems. If effective support isn’t provided when young people are in a PRU, they are just held there and leave with as many problems as they started with. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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6. Schools are key to providing Support, but they need to Work with Other Agencies 6.1 Schools are a key agency in providing support to children and young people because they spend so much of their time there. However, there needs to be a joined up approach to promoting mental health and wellbeing, and helping children and young people who are presenting with mental health problems. The Achieving Equity and Excellence for Children document states that although schools are not required to support young people’s health and wellbeing, good headteachers will continue to do so because they know that pupils can not learn if they are unwell, unhappy or struggling with what is going on in their family life (DH, 2010). Whist we wouldn’t dispute this, or that there are some good headteachers who understand how health and wellbeing affect attainment, our concern is that not all headteachers understand this link. 6.2 There is a need for early intervention, both in the form of preventing behaviour problems, or mental health problems occurring in the first place, and in providing support when problems first appear. Initiatives such as SEAL which promotes emotional literacy are important because it helps develop children and young peoples’ emotional literacy skills, and their social skills. So it helps children and young people to resolve problems, develop empathy, and form relationships. There are existing NICE public health guidance documents on promoting emotional wellbeing, but schools do not have to implement these recommendations. Schools should be encouraged to implement this guidance. Action for Children estimate that providing early intervention services are much more cost effective than waiting for problems to get worse, and require interventions that are much more expensive. They estimate that providing more effective early intervention could save UK economy £486 billion over 20 years (Aked, et al., 2009). 6.3 It is well known that in some areas child and adolescent mental health services (CAMHS) are not as effective as they should be. Some areas are doing some outstanding work, but this is far from being universal. CAMHS have historically been under resourced and under funded, although they see some of the most vulnerable children and young people. CAMHS is not just about specialist CAMHS, which are mainly situated within the NHS. The concept of the comprehensive CAMHS covers the full range of services that: promote the mental health of all children and young people; provides early intervention services when problems first arise, and provide specialist mental health services for children and young people who have more serious mental health problems. Many of the services within the concept of the comprehensive CAMHS are provided by agencies other than the NHS eg social services, and the voluntary sector. All of these services need to be functioning effectively if the whole system is to work properly. 6.4 We know from the Schools Survey and from our work that schools do not always work in partnership with local child and adolescent mental health services. There can be a number of reasons for why this might be the case, but often it is connected to different agencies not having a shared vision for what this support could look like and not working together to achieve it. The Targeted Mental Health in Schools (TAMHS) projects have helped agencies to think about how they can work together, and provide help and support to the children and young people in their school. These projects were funded for three years, and are now in their final year. Schools and their local partners should be encouraged to work together to build on what they have found works and to mainstream these projects once the funding period ends. 6.5 Providing access within the school to support services, such as counselling can be helpful for young people who are experiencing problems. This might be for young people who have mental health or behavioural problems, but also for instance for those who have been bullied, have problems at home, have experienced bereavement and so on. Many young people find school to be a safe and familiar environment, so it is a good location for providing accessible support services as long as they are built around the needs of young people and aren’t stigmatizing.
7. Supporting Teachers 7.1 There also needs to be support for teachers themselves to support their mental health and to prevent burn out. Teachers provide a role model for the children in their care. As children are known to model their behaviour on those around them, there is a need to ensure that teachers are mentally healthy and resilient. 7.2 Many young people turn to their teacher for help when they experience problems. It is not realistic for teachers to be therapists, but we believe it’s vital that teachers know where to signpost children and young people to, and to have a basic understanding of child development and mental health. If teachers had this training, and/or knew how to get more specialist advice when required, it could help identify when a young person was experiencing mental distress, rather than just seeing them as being badly behaved. 7.3 Whole schools approaches, to behaviour and mental health, need to be led or endorsed by the head teacher, to ensure that this work isn’t marginalised. Dynamic and committed PSHE teachers are crucial, but tackling behavioural issues and promoting mental health and wellbeing needs to be owned by the whole school. 7.4 The UK Resilience Programme (UKRP) is an example of an evidence-based programme that is being piloted in the UK and aims to build resilience and develop problem solving skills (Challen, et al. 2010). The programme requires the senior management teams in the respective 22 schools to sign-up to the programme, which involved providing workshops for year seven pupils. The second interim report found that this programme did have a beneficial influence on the behaviours of the young people. For instance, it reduced Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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reported depression and anxiety, and young people reported that it gave them skills to help resolve difficult situations and avoid arguments and fights. One of the schools reported that they saw a 50% reduction in fixed term exclusions.
8. Parents 8.1 It is important that parents are involved in any interventions concerning their child’s behaviour. Parenting support has been shown to be effective in helping parents whose child has conduct problems. From our work with schools, providing parents with information that helps them understand their child, and their mental health is helpful in tackling behaviour problems. 8.2 Our Parents Helpline receives calls from any adult who is worried about the behaviour or emotional problems of a child or young person. In 2009 39% of the calls were connected to school-based issues such as exam stress, bullying and school refusal.
9. Recommendations 9.1 There is a need for whole school approaches to promoting mental and emotional wellbeing, and tackling behaviour problems, which are led from the top. 9.2 Teachers should have some basic training in child development, and young people’s mental health, and know how to signpost young people to other local services. 9.3 Schools need to work with other local agencies to ensure that children and young people’s mental health is promoted, and any young people with difficulties are referred on to effective mental health services in the community. 9.4 There should be a joint local Child and Adolescent Mental Health Services (CAMHS) strategy, which includes all relevant agencies: health, education and local authority. 9.5 There should be a joint local commissioning plan to ensure that high quality services are provided to meet the mental health needs of all children and young people. 9.6 Schools need to implement relevant NICE guidance. 9.7 Parents also need information to help them support their young people. 9.8 Like the NHS there should be a framework that considers how public services, including schools improve young people’s outcomes across a range of dimensions. September 2010
References Aked, J. et al. (2009) Backing the future: why investing in children is good for us all. London: NEF and Action for Children. http://www.actionforchildren.org.uk/uploads/media/36/7857.pdf Sainsbury Centre for Mental Health (2009) The chance of a lifetime: preventing early conduct problems and reducing crime. London: Sainsbury Centre for Mental Health. http://www.centreformentalhealth.org.uk/ pdfs/chance of a lifetime.pdf Challen, A. et al. (2010) UK Resilience Programme evaluation: second interim report. London: Department for Education. http://www.education.gov.uk/research/data/uploadfiles/DFE-RR006.pdf DH (2010) Achieving equity and excellence for children. London: DH. http://www.dh.gov.uk/en/ Publicationsandstatistics/Publications/PublicationsPolicyAndGuidance/DH 119449 Green, H., McGinnity, A., Meltzer, H., et al. (2005). Mental health of children and young people in Great Britain 2004. London: Palgrave. See http://www.statistics.gov.uk/downloads/theme health/GB2004.pdf Meltzer, H. et al. (2003) The mental health of young people looked after by local authorities in England. London: The Stationery Office. See http://www.statistics.gov.uk/downloads/theme health/Mental health children in LAs.pdf Richards, M. et al. (2009) Childhood mental health and life chances in post-war Britain: insights from three national birth cohort studies. London: Sainsbury Centre for Mental Health. See http://www.centreformentalhealth.org.uk/publications/life chances.aspx?ID%596
Supplementary memorandum submitted by YoungMinds 1. YoungMinds wishes to submit additional evidence to the Education Select Committee Behaviour and Discipline Inquiry concerning how we would model effective child and adolescent mental health services (CAMHS) and how referrals to specialist CAMHS can be improved. 2. At YoungMinds we believe that the comprehensive CAMHS model is the most effective way to deliver the full range of mental health services to young people. By comprehensive we are referring to the full range of services that are required to meet child and adolescent mental health needs eg promoting good mental Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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health, early intervention when problems first arise, and when specialist mental health help is needed. This comprehensive range of services is important because mental health is a continuum with mental health and wellbeing at one end, and severe mental illness at the other. Young people move along this continuum at different stages in their lives so mental health services should not only be viewed as specialist NHS services that are focused on people with severe mental health problems. The concept of comprehensive CAMHS emphasises that mental health and wellbeing is the responsibility of every service that works with children, young people and their families and not just specialist mental health teams. 3. This conceptual model for CAMHS is not new. The tiered model for CAMHS was first outlined in Together We Stand in 1995, and Standard 9 of the National Service Framework for Children, Young People and Maternity Services stated that a comprehensive CAMHS would be available in all areas by 2006. Some areas have made significant progress, but this is certainly not the case in all areas. 4. We believe that the Comprehensive CAMHS model is still a good one, but the problem is connected to its implementation. The comprehensive CAMHS should be seen as a system and if parts of the system are not working, then the model will not be able to work effectively. There are a number of reasons why there are problems with the implementation. This has been discussed in detail elsewhere (CAMHS Review, National Advisory Council), but from our perspective the main reasons are connected to: — Mental health continuing to be marginalised so it not seen as important, and just seen as the responsibility of specialist CAMHS within the NHS — The different relevant agencies not working together — Lack of good leadership from the relevant agencies — Mental health services still being the Cinderella of Cinderella services and there being a lack of funds for CAMHS; and — Lack of training in child development and mental health for staff who work in universal or tier 1 services eg GPs, teachers etc. — Services not implementing what children, young people and their families tell them. 5. There is a greater awareness of mental health, but it still seems to be seen as the responsibility of specialist CAMHS, rather than tier 1 or universal level services. So if the number of young people being identified as potentially having mental health problems increases, but capacity within specialist CAMHS doesn’t grow, then it is not surprising that there are difficulties in being referred to specialist CAMHS, and that there are long waiting lists. 6. Relevant services in a given area need to work in genuine partnership to plan, commission and deliver the comprehensive CAMHS model. The different agencies need to have a mandate and incentives to encourage them to work in partnership. There also needs to be good leadership within these agencies to drive forward partnership working. Partnership working relies on trust, and this needs to be nurtured and developed through good working relationships between staff in different agencies. 7. The full range of mental health services should be developed in line with the needs of children or young people and their families, rather than the needs of the services. So services within a local area should ensure that the joint strategic needs assessment (JSNA) and that the views of children, young people and families are central to how services are developed and delivered. 8. There needs to be a shared understanding of mental health and wellbeing, and of the range of services that are required, and what the responsibilities are for each agency.
Improving Referrals 9. We appreciate that there are difficulties in referring children and young people to specialist CAMHS services. To improve referrals there needs to be: — Adequate capacity at all levels, to ensure that the entire system works, and that undue pressure is not put on one part of the system. For instance, specialist CAMHS need to have the capacity to meet the mental health needs of young people in their area. This is important to ensure that lower level services such as school counselling services are not left to care for young people who have serious mental health problems. — A better understanding of relevant local services. This is important as there may be good voluntary sector services that might be more appropriate for some young people. These services may be able to provide support whilst they are waiting to access specialist CAMHS. — An understanding of referral protocols, so tier 1 or universal level staff know how to refer on, and what the criteria are. So time isn’t wasted on inappropriate referrals. — Flexible ways to access services such as self referral. Referrals need to be less bureaucratic and enable young people to be able to self refer. — Support from specialist CAMHS to support universal and tier1 staff. Support from a practitioner such as a primary mental health worker (PMHW) could provide support for teachers who are concerned about a particular child. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— Targeted support in schools such as counselling, to provide support to children and young people who have mental heath needs. — Emphasis on promoting mental health and wellbeing. This could be carried out in a number of settings, and in partnership between various agencies. For instance, universal mental health promotion could take place in schools as part of PSHE lessons, but other agencies such as the NHS and the voluntary sector could contribute to these lessons. — Tier 1 and universal level staff should receive appropriate training in children and young people’s development, and mental health. This would enable them to correctly identify mental health problem and be able to make more appropriate referrals. — Good quality information via online platforms, print and telephone helplines needs to be provided in accessible ways for those young people who are waiting to access services, or who have concerns about their mental health. This could give them some support whilst they are waiting, rather than being left with no help at all when they may be very distressed.
References Department of Health (2004) Standard 9: The mental health and psychological well-being of children and young people. London: Department of Health. http://www.dh.gov.uk/en/Publicationsandstatistics/ Publications/PublicationsPolicyAndGuidance/DH 4089114 Independent CAMHS Review (2008) Children and young people in mind: the final report of the National CAMHS Review. London: Department for Children, Schools and Families, and Department of Health. http://www.dcsf.gov.uk/CAMHSreview/downloads/CAMHSReview-Bookmark.pdf National Advisory Council for Children’s Mental Health and Psychological Wellbeing (2009) One year on: the first report from the National Advisory Council for Children’s Mental Health and Psychological Wellbeing. London: Department for Children, Schools and Families and Department of Health. http:// www.dcsf.gov.uk/CAMHSreview/pdfs/NAC%20OYO.pdf Williams, R. & Richardson, G. (1995) Together we stand: the commissioning, role and management of child and adolescent mental health services: An NHS Health Advisory Service (HAS) thematic review. London: HMSO. For further information please contact Paula Lavis, Policy and Knowledge Manager, at 48-50 St John’s Street, London EC1M 4DG. Telephone 0207 336 8445 or visit www.youngminds.org.uk November 2010
Memorandum submitted by The National Autistic Society Executive Summary 1. The National Autistic Society welcomes the opportunity to submit evidence to this inquiry. We particularly welcome the fact that special educational needs was singled out as in need of particular consideration in the terms of reference for the inquiry. We would further welcome the opportunity to present oral evidence to the Committee. 2. While there will be children, including children with autism, who can behave but choose not to, all too often pupils with autism are wrongly and unfairly considered to fall into this group. Children with autism can present with behaviour in school that may be inappropriate or difficult to manage. However, in our experience, this type of behaviour often results from anxiety or frustration due to either a lack of understanding of their needs and/or a lack of support for their needs in a school environment. Moreover, due to the nature of the disability, children with autism are often unable to properly understand “socially appropriate” behaviour or properly interpret other people’s intentions. This means that they can be taken advantage of and “led” by other pupils into behaviour that is unacceptable according to the school’s behaviour policy. 3. In this response we set out in detail the key factors for children with autism that affect inappropriate behaviour and we make the following recommendations, which we believe would both help reduce inappropriate behaviour and ensure that children with autism are supported to fulfil their potential: — All school staff should have autism awareness training so that they have a basic understanding of how to work with children with autism and to enable them to identify possible indicators of autism — All school staff must be aware of their duties towards disabled pupils under equality legislation and have training to enable them to meet these duties. — All schools should have access to specialist autism support and advice where appropriate. — Academies and free schools will need to work with each other and with local authority maintained schools as well as with their local authority to ensure the continuing viability of local specialist support. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— Where a child identified as having special educational needs is at risk of exclusion there must be a review of whether their needs are being met, as recommended in the SEN Code of Practice. — For children who are not identified as having SEN but who are at risk of exclusion or show ongoing behavioural problems an assessment to check for underlying social or communication difficulties should be considered. — All children entering PRUs should be assessed on entry and any SENs logged and reported. — Schools should work closely with parents of children with autism to ensure consistent support and approaches towards behaviour between home and school. — Parents must have a formal method to challenge exclusions of children with SEN where they believe these to be inappropriate. — Physical restraint methods should only be used by staff with appropriate training and as a last resort where de-escalation techniques cannot be used. — Schools need to communicate with parents where such techniques have been used, particularly with pupils with communication needs.
The National Autistic Society (NAS) 4. The NAS is the leading charity for people with autism in the UK. We have over 20,000 members and over 100 branches, who are at the heart of what we do, and we work with a wide network of partner organisations in the autism field. 5. The NAS exists to champion the rights and interests of people with autism and Asperger syndrome94 and to ensure that their needs are met. We provide a range of educational support for children with autism and their families, including: 6. The National Autistic Society welcomes this inquiry into behaviour and discipline in schools and particularly the inclusion of SEN within the terms of reference. We welcome the opportunity to submit evidence to the House of Commons Education Committee, and would be pleased to have the opportunity to provide further oral evidence to the inquiry. The NAS is a member of the Special Educational Consortium, and also supports their response to this inquiry.
Autism 7. Autism, including Asperger syndrome, is a serious, lifelong and disabling condition which affects how a person communicates with other people and relates to the world around them. It is a spectrum condition, which means that while all people with autism share certain difficulties, it will affect each individual in different ways. Autism affects around one in 100 people. The NAS estimates that there are 88,000 school aged children with autism in England, the vast majority of whom are in mainstream schools. 8. The main three areas of difficulty that people with autism share are: — Social interaction—including difficulties with social relationships, including appearing aloof and indifferent; — Social communication—including difficulty understanding and using verbal and non-verbal communication such as language, gestures, facial expressions and tone of voice; — Social imagination—making it difficult to understand how others think and feel or to participate in imaginary scenarios. Children with autism may also experience sensory over—or under-sensitivity, to sounds, touch, tastes, smells, light or colours. Sensory input such as a ticking clock or screaming in the playground can be highly stressful.
Autism and School — A child with a special educational need (SEN) is nine times more likely to be excluded from school.95 — 27% of children with autism are excluded from school at least once, compared with 4% of other children.96 — 40% of parents report their child with autism has been bullied at school, rising to 59% of those with Asperger syndrome.97
94 Asperger syndrome is a form of autism. People with Asperger syndrome have the same traits as those with autism—difficulties in communication, social understanding and social interaction—but will not usually have accompanying learning disabilities 95 Department for Children, Schools and Families (2008) National Statistics SFR 14/2008 “Permanent and Fixed Period Exclusions from Schools and Exclusion Appeals in England, 2006–07” 96 Green, H et al, (2005) Mental health of children and young people in Great Britain, 2004. Basingstoke: Palgrave Macmillan, p.192 97 Reid (2006) B is for bullied, NAS: London Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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— 42% of children with autism report not having any friends at all, compared with 1% of other children.98 9. The nature of autism impacts the way that a child with autism relates to others pupils and teachers in the school environment; it can be difficult for that child to form friendships and to understand the social rules which determine the behaviour of their fellow pupils. 10. Children with autism can present with behaviour that may be difficult to manage. In the NAS’ experience this often results from anxiety or frustration due to a lack of understanding and support for their needs. Children with autism may struggle to express their frustration verbally becoming increasingly frustrated, which inevitably affects behaviour. 11. The school environment can be a highly confusing and stressful one for a child with autism. They are often loud and crowded with a lot of information to take in; for the many children with autism who may have sensory issues, such environments can cause significant distress and behaviour that would be considered disruptive. 12. It is common for a child with autism to hold in the stress and “cope” as much as they are able to. This stress may then be released at once; a child may appear to react very strongly to a seemingly minor incident which can then cause friction between that child, the staff and their peers. This can often happen where the child has been dealing with ongoing low-levels of stress, perhaps as a result of teasing, sensory difficulties or difficulties in understanding what’s happening, until something finally pushes them into reacting. 13. Difficulties with social interaction mean that children with autism often find the communal aspect of schooling very challenging. They may not understand what is appropriate behaviour among their peers and find that they are often left out and struggle to make friends. They may also be “led” by other pupils into behaviour which is considered inappropriate. Case study example: susceptibility to peer influence “James finds unstructured time extremely difficult. He has no friends and frequently spends his break times wandering round the edges of the playground watching other pupils and trying to work out how to join in conversations and games with his peers. One day he tries to join in with some other pupils, who see him as “weird” and naı¨ve, and they dare him to throw stones at a teacher. James wants to be “in the gang” and does not understand the possible consequences of throwing the stones. Fortunately he misses, but he is suspended from school.” 14. For children with autism, interacting with peers can present a confusing minefield of social etiquette, cues and rules which they do not know how to navigate—whilst everyone else, it seems, intuitively does. 15. Break times for example can be particularly difficult for children with autism. Unstructured times are unpredictable and it can be very difficult for a child with autism to know what to do during this time in contrast to the rest of the day when they are given instructions, rules and a timetable to guide them through. If you are not aware of the social rules of the playground it can appear as though everyone is simply running around screaming. Moving between lessons can be extremely stressful for a child with autism. 16. Many children with autism find transitions and unplanned changes extremely difficult. Sudden changes to the timetable or a substitute teacher can be very stressful and may increase a child’s anxiety significantly.
Bullying 17. In some cases a child’s behaviour may be as the result of ongoing provocation and bullying. In a survey carried out by the NAS,99 a number of parents of children with autism reported that their child had been excluded from school as a result of their reaction to ongoing, persistent, low-level bullying. The NAS has found that over 40% of children with autism have been bullied at school.100 18. The following is a quote from a parent in response to an NAS research questionnaire. It is indicative of the effect that bullying and lack of teaching training can have on outcomes and behaviour for a child with autism: “Problems mainly happened at first mainstream junior school, because he was withdrawn from certain lessons. He was teased and mocked by the manipulative, smart kids—consequence: awful behaviour from my son who physically attacked them, and was blamed. The next school he went to, the staff had a negative effect on his relationship forming, because they had him down as a marked person, due to his poor social skills and a negative attitude to his needs. Now his current school has a good policy and are able to tackle any problems consistently and effectively, again due to size, resources, and trained staff.”101
98 Green et al 99 Reid and Batten (2006) B is for bullied: the experiences of children with autism and their families, London: NAS 100 Make School Make Sense, Reid and Batten, The NAS, London, 2006 p13. 101 Make School Make Sense, Batten et al Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Teacher Training and Behaviour “Educating a child with autism will require modification of both your group and individual teaching methods”.102 19. Staff who are not equipped to deal with the behaviours that children with autism may exhibit, may exacerbate a situation by reacting to it inappropriately and failing to make adjustments. A teacher with the relevant expertise may have the tools to diffuse a challenging situation where their colleague is not. 20. For inclusion to take place, educational provision must be adapted according to the pupil’s individual needs, which relies of an adequate understanding of autism through training, however 44% of teachers have said that they did not feel comfortable teaching students on the spectrum.103 21. Under the Disability Discrimination Act (and shortly under the Equality Act), schools have responsibilities to make reasonable adjustments for children with disabilities. This includes adapting the classroom environment, teaching practices, and crucially making adjustments to the application of behaviour policies where the behaviour is due to a reason related to the child’s disability. Yet we regularly hear from parents that such adjustments are not being made and that far too often schools are not fulfilling these duties. Good practice example: a reasonable adjustment Gary is five and has autism. He did not answer his name when the register was taken, which the teacher found frustrating. However an autism specialist at the school recognised that Gary did not understand the concept of the register and why he had to tell the teacher that he was already in the room. She suggested that the teacher provide Gary with a card to give in at the beginning of the lesson instead of having to answer his name.104 22. It is true of any pupil, with and without SEN that the key to improving behaviour involves engaging a child through expert teaching.105 For children with autism this means teachers who understand their condition and can communicate with them. Access to specialist support is critical for teachers to be able to support children with autism effectively. We strongly welcome the recommendation from the Lamb Inquiry, currently being taken forward by the Teaching and Development Agency (TDA), to have teachers with specialist understanding of autism accessible to every school. 23. Under-identification is significant problem facing pupils with autism at school. While national prevalence figures suggest that there are 88,000 children with autism in England, Government figures106 show only 56,000 are identified in maintained schools. The recent Ofsted SEN Review found that pupils with complex conditions like autism struggle to get appropriate support even where their needs are apparent unless they have a medical diagnosis. We are aware of cases where schools refuse to acknowledge that a child has an autism, even where they have a medical diagnosis. 24. The quality of teaching staff available to a child with autism will also significantly affect that child’s ability to learn and develop to the best of their potential. In our experience, “bad” behaviour of pupils with SEN is often a consequence of their needs not being met rather than them being naughty. The Steer report makes that point that a child who is not properly supported at school and given the tools they need to develop, is likely to become frustrated with their lack of achievement and therefore demonstrate bad behaviour.107 25. The NAS recognises that there will be children, including children with autism, who can behave but choose not to. However pupils with autism are frequently wrongly considered to fall into this group, particularly by staff who have a low awareness of autism. This is compounded by the invisible nature of autism. For example, some children with high functioning autism or Asperger syndrome may be academically able yet lack social and relational skills to follow instructions appropriately. 26. A staff member may attribute the failure of a child with autism to follow instruction, to choice rather than lack of understanding. The staff member’s lack of understanding of autism then places the pupil at a disadvantage. Recommendations: — All school staff should have autism awareness training so that they have a basic understanding of how to work with children with autism and to enable them to identify possible indicators of autism. — All school staff must be aware of their duties towards disabled pupils under equality legislation and have training to enable them to meet these duties. — All schools should have access to specialist autism support and advice where appropriate.
102 Autism in your classroom: a general educator’s guide to students with autism spectrum disorders, Woodbine House 2007, Deborah Fein, Michelle Dunn 103 National Union of Teachers (2006) “SEN survey on the provision of training to teachers in relation to pupils with special educational needs—evaluation”, UK 104 Children Now (May 2005) 105 Ofsted, 2009. Twenty outstanding primary schools—excelling against the odds in challenging circumstances. 106 Department for Education (2010) Special Educational Needs in England January 2010 107 Learning Behaviour, Lessons Learned , Sir Alan Steer, London 2009 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Early Intervention 27. With the right support incidents of extreme behaviour can be reduced. Identifying the root cause of behaviours and understanding them is often essential to prevent issues escalating, as well as explaining social situations and putting strategies in place to help children manage their emotions. 28. Nevertheless, NAS research of nearly 1,300 parents of children with autism shows that nearly half (45%) say it took over a year for their child to start receiving any support. Of these, two thirds said that the delay has had a negative impact on their child’s behaviour, and a third (34%) say it has had a negative impact on their child’s mental health.108 29. The NAS is finding that the pupils who are referred to our schools have increasingly complex problems with behaviour and mental health problems, frequently as a result of a lack of appropriate support at earlier stages in their school life. Many of the pupils have had significant periods, even up to two years, without any formal education before coming to our schools. 30. Failure to provide appropriate support in education for children with autism can have major consequences. Research shows that children with SEN are more likely not to be in education, employment or training (NEET), and one study has shown that while 60% of people in young offender institutes have speech, language and communication needs, only 5% were identified early in life.109
SEN and Exclusion 31. Many children with autism face exclusion from school on either a temporary or permanent basis. It is the experience of the NAS that for many children with autism, exclusion represents a failure on the part of their educational setting to provide appropriate support and training to effectively manage their behaviour: — 27% of children with autism are excluded from school at least once, compared with 4% of other children.110 — Of children who have been excluded 16% have been excluded ten times, or so many times that their parents have lost count and a third have missed a term or more of school. 32. Children with autism are often also “informally” excluded which means they are omitted from exclusions data. Informal exclusions arise when the school, unlawfully,requests that a student not be present for a particular school event. Informal exclusions such as these are indicative of a school unwilling or unable to cope with the child in question. We continue to hear of pupils being sent home at lunchtimes, for an Ofsted inspection or not being able to attend school trips. 33. Faced with a lack of any viable alternative provision, some parents feel that they have to remove their children from the education system entirely and educate at home. 34. The 2006 report of the House of Commons Education and Skills Committee into Special Educational Needs states that it was unacceptable that there should continue to exist such a strong correlation between exclusions and children with SEN and that the Government should enhance existing, and improve alternative, forms of provision, training and resources rather than using an increasingly punitive approach for these children and families involved.111 Yet in our experience, exclusions of children with autism continue to happen on a regular basis. 35. Where children are excluded there needs to be planning to ensure that appropriate provision is made available for them. It is entirely unacceptable for children to be left without any educational provision, in some cases for years at a time. Good practice example: NAS Robert Ogden School, South Yorkshire 30% of pupils at the NAS Robert Ogden School were permanently excluded from both mainstream and special schools before they came to the school. A proportion of these pupils with challenging behaviours were spending a significant amount of time out of classes because they were inhibiting the learning of other pupils. In order to meet these pupil’s needs, the school has established at Key Stages 3 and 4 an “Inclusion Resource”. Each pupil is given a personalised “inclusion” timetable which enables them to negotiate their access to learning groups, or particular teachers with whom they feel comfortable. There is not an expectation that these pupils will attend all classes with their peers. Each pupil has an individual inclusion target each week, for example to attend an after school club. Pupils have been able to build up their tolerance of group learning, and have a personalised learning programme and their own space when they choose to use it.
108 MSMS Batten et al 109 Demos (2010) Ex Curricula 110 Green, H et al, (2005) Mental health of children and young people in Great Britain, 2004. Basingstoke: Palgrave Macmillan, p.192 111 House of Commons Education and Skills Committee Report: Special Educational Needs, 2006 p35 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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One pupil had been to six different mainstream schools and then a 52-week autism specific provision before coming to Robert Ogden School, where they developed a highly personalised curriculum for him. Within six months he had gained GCSE English and Maths at grade B, and has now completed a Masters degree in Engineering Programming.
Pupil Referral Units (PRUs) 36. According to Government figures, three quarters of pupils in PRUs have an identified SEN. Figures are not available broken down by type of SEN, but given the high rate of exclusions of children with autism, we believe it is likely that a significant proportion of children in PRUs have autism with either identified or unidentified needs. 37. Some PRUs provide a very good standard of provision and have access to staff trained in autism. However, others are less good, and we do not believe that in the vast majority of cases PRUs are the appropriate environment for children with autism. Children may be particularly vulnerable because of their disability. They may be bullied or pick up unhelpful behaviours from other children. What’s more, lower expectations can lead to lower opportunities for attainment. Recommendations: — Where a child identified as having special educational needs is at risk of exclusion there must be a review of whether their needs are being met, as recommended in the SEN Code of Practice. — For children who are not identified as having SEN but who are at risk of exclusion or show ongoing behavioural problems an assessment to check for underlying social or communication difficulties should be considered. — All children entering PRUs should be assessed on entry and any SENs logged and reported. 38. We believe there is a vital role for local authorities in ensuring that there is an appropriate range of provision available in a local area to meet the varying needs of children across the spectrum.
Academies and Exclusion 39. While we welcome the intention of the Academies Act to drive up standards, the NAS has significant concerns about the implications of a system in which there are increasing numbers of academies, which seem more likely to use exclusion as a tool, and the effect this may have on children with autism. 40. Both the Academies Bill Equalities Impact Assessment and Price Waterhouse Coopers’ Academies Evaluation Fifth Annual Report (commissioned by the Department for Children, Schools and Families) state that exclusion rates in academies are higher than they are in maintained settings.112 The Fifth Annual Report sets out that this was true even when comparing schools with similar intakes. 41. The raised level of exclusions in Academies suggests that they may not be addressing the issues which cause children with SEN to exhibit certain behavioural issues. Moreover, academies will not necessarily have access to the specialist teaching provision often shared between maintained schools across Local Authorities. The implications of this lack of specialist support for the behaviour of children with SEN in schools are potentially significant.113 More needs to be done to ensure that the support provided by local authorities to schools is not lost as the number of schools, not under local authority control, increases. Recommendation: — Academies and free schools will need to work with each other and with local authority maintained schools as well as with their local authority to ensure the continuing viability of local specialist support.
Involving Parents 42. An inquiry conducted by Brian Lamb found that parents of children with SEN do not feel involved enough in the process of their child’s education, or handling their challenging behaviour. Parents reported that the professionals did not appear to take their opinions and observations into account.114 It is particularly important to listen to parents as the difficulties a child is facing may not always be apparent at school—parents often describe the “3 o’clock timebomb” where their child comes home from school and explodes with the frustrations of having to cope in a neuro-typical environment of school all day. “There needs to be less leaping to conclusions about parenting skills, especially regarding behaviour”.115 43. By working with, and listening to parents it is possible to maintain consistency of approach between home and school, in order that children are able to apply their learning across different environments and to avoid them becoming confused.
112 Department for Education, Academies Bill Equalities Impact Assessment, June 2010 and http://www.standards.dfes.gov.uk/ academies/pdf/Academies5thAnnualReport.pdf?version%1 113 Breaking the Link Between Special Educational Needs and Low Attainment DCSF, 2010 114 Lamb 2009 Special Educational Needs and Parental Confidence 115 Ibid, Blackburn with Darwen Borough council, Lamb Inquiry Project Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Recommendation: — Schools should work closely with parents of children with autism to ensure consistent support and approaches towards behaviour between home and school.
Independent Appeals Panels 44. Given the disproportionate representation of children with SEN in the exclusion figures, Independent Appeals Panels are particularly vital for those children. In the experience of the NAS, challenging behaviour is frequently the by-product of a lack of understanding and support; there must be safeguards in place to protect children with SEN. 45. Sir Alan Steer has argued that the abolition of IAP will remove a level of protection for pupils and their parents, creating a potentially unfair system, which could also mean that schools increasingly become embroiled in time consuming and costly redress processes.116 Recommendation: — Parents must have a formal method to challenge exclusions of children with SEN where they believe these to be inappropriate.
Use of Force in Schools 46. We are concerned about the removal of the duty introduced in the Apprenticeships, Skills, Children and Learners Act to require schools to inform parents when they have used force on a pupil. It can be a frightening experience for children and they are at risk of injury, especially where it is used by untrained professionals. Many pupils who display behaviour which challenges schools may have a communication difficulty and may not be able to explain to their parents what has happened at school. 47. We are aware of cases where restraint is used repeatedly on pupils as young as six. Restraint should only be used as a last resort, where there is risk of injury or harm. It is imperative that school staff who use force on pupils have appropriate training in safe techniques of using restraint. De-escalation strategies must always be used as a first resort. Recommendation: — Physical restraint methods should only be used by staff with appropriate training and as a last resort where de-escalation techniques cannot be used. — Schools need to communicate with parents where such techniques have been used, particularly with pupils with communication needs. September 2010
Supplementary memorandum submitted by The National Autistic Society The National Autistic Society gave oral evidence to the Education Select Committee on 27 October. This note follows up a query around how: (a) pupil referral units (PRUs) (b) child and adolescent mental health services (CAMHS) can better support children with autism (including Asperger syndrome).
Pupil Referral Units (PRUs) While some PRUs provide a very good standard of provision, others are less good, and we do not believe that in the vast majority of cases PRUs are the appropriate environment for children with autism. Children may be particularly vulnerable because of their disability. They may be bullied or pick up unhelpful behaviours from other children. What’s more, lower expectations can lead to lower opportunities for attainment We recommend the following: — A member of staff in every PRU to have training in SEN, similar to a SENCO in mainstream school — Every PRU to have access to specialist support, including specialists in autism — Well-planned transition between settings and transfer of data/records, particularly for young people with autism. — Develop a clear mechanism to make a thorough assessment of a child’s needs on transfer to alternative provision, including how best they can be supported
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— Policy on alternative and special education provision must be joined up, nationally and locally.The commissioning toolkit should cross-refer to guidance on the development of special educational provision. — Policy on alternative and special education provision must be joined up, nationally and locally.
Child and Adolescent Mental Health Services (CAMHS) Our research shows that CAMHS is drastically failing the 1 in 10 children accessing CAMHS who also have a mental health problem. Poor understanding and training mean that staff are ill-equipped to address the needs of children with autism; CAMH services are failing to improve the mental health of two thirds of these children. We recommend the following: — Multiagency CAMHS planning groups to include education representatives — Local CAMHS strategies should consider how CAMHS will work with education — Education engaging with CAMHS — Ongoing relationship between CAMHS and schools eg West of Cornwall — Offering opportunity to have appointments in schools — CAMHS involving children, parents and professionals such as teachers working with the child — Key workers and multiagency approach, along the lines of Team Around the Child approach
Young Campaigners Group The young campaigners group formed in conjunction with the NAS’ You Need To Know campaign. It is comprised exclusively of young people with autism who campaign on the issues that are important to them around autism and child mental health. They have developed a charter which lays out exactly what needs to change in the child mental health services in order for them to provide an adequate service to children and young people with autism. The Young Campaigners identified the following points in their charter: — CAMHS should be on your side and tell your school what support you need — CAMHS should train staff at your school so they know how to help you when you’re feeling bad — CAMHS should help schools to understand more about autism
Examples of CAMHS Good Practice In some cases families feel CAMHS provide a vital link for families where other services are very poor. In one LA which has very poor special educational provision, parents want CAMHS to stay involved with their child to get schools to recognise needs.
West of Cornwall CAMHS West of Cornwall CAMHS has forged a strong link with the educational institutes in their area and, as result, has become an example of best practice. The team often receives a large number of referrals from schools. They have links with around 30 secondary schools, and a presence in each of these schools. CAMHS regularly attend the schools’ multi-agency meetings to maintain and strengthen the relationships they have with the schools. They have a joint service with behaviour support teams and with the schools autism advisors. This allows a part of CAMHS to work exclusively with the school. This allows the presence of the CAMHS staff at a meeting to feel part of normal procedure. This familiarity allows the schools to feel comfortable enough to contact CAMHS about any arising issues and it also allows CAMHS to utilise this relationship to get the school to complete school reports and rating scales for them which assists in the assessment of a child. This close working link that CAMHS has with the school facilitates a multi-disciplinary approach to treating children with autism and an accompanying mental health problem and can also help eliminate some of the difficulties that arise from the school’s lack of understanding with autism. This helps to keep some routine in the child’s life which can help to lower anxiety and increase the success of treatment.
West Berkshire Social Communication Team This team provides home and community based assessment and intervention for young people and their families. They also offer a specialist intervention service for children with more complex needs as well as a monthly consultation service for professionals working with children and young people with social communication difficulties. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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The team is part of a wider multidisciplinary group who provide services for individuals with autism in West Berkshire. They meet on a monthly basis and look at referrals to stop children with autism falling between the gaps between the different teams. Interventions on offer include: — information packs to parents and schools — visit to the school or telephone discussions with key teaching staff — a home-based intervention service to provide advice and/or specific programmes to target communication and behavioural concerns, sometimes involving individual work with the young person — parent training groups for families of newly diagnosed children — social skills groups — sibling groups — advice, training and consultation
Good practice example (from Pan-London heads meeting) In one school, the local CAMHS service runs a clinic on-site. This prevents children from having to attend appointments in unfamiliar surroundings or in bad areas. The school has a caseload meeting once a term to consider the pupils who have been identified by teachers as needing additional support, or whose parents have raised concerns at parent’s evenings. They then decide which pupils should be referred to CAMHS and professionals come into school to work with pupils and parents there. The school has a specialist nurse employed by the PCT who attends the school once a week to accompany parent to the meeting with the CAMHS professional. This helps with information sharing between the school and CAMHS (although this is still not perfect) and goes some way to addressing the issues with parents being reluctant to share problems with CAMHS staff. The school will also offer that a class teacher/TA attend the appointments where appropriate. November 2010
Supplementary memorandum submitted by Sue Cowley Ev 60: I’ve been told by teachers on several occasions that their school has either excluded certain pupils during an inspection, encouraged them to stay off school, or organised work experience to coincide with an inspection. However, I would not wish to present this as something for which I have direct written evidence or research. This is anecdotal, but I think most teachers would accept that it still goes on. I was talking to a deputy head only this week who said that schools inevitably still present “their best face” to Ofsted, and who made the point that schools feel the present inspection can be both inconsistent and punitive. At the simplest level, if I know I might have an inspector in my lesson the next day, as an individual teacher I will probably stay up late that night writing a “perfect” lesson plan. But that’s not to say that there are not some days when I go into a lesson an “wing it” because I simply don’t have time to plan in that much detail every day of the school year. Where you have an inspection system that is punitive, and where there is so much at stake, it is inevitable that schools will try and dress up what goes on. If you truly want an honest picture, you have to get away from the sense that Ofsted turn up, pass judgement, and disappear again. Schools should not “live in fear” of inspections, but should see them as an important and integral part of their drive to improve.
Ev 61: What strikes me is that, in pretty much every other job or profession, if a staff member was told to “eff off”, that would result in a very serious sanction. You see those signs at passport control about abusive language, and you know that something really serious would happen if you did swear at the immigration staff. It’s just not the case in schools, though, and some teachers have to put up with being sworn at on a regular basis.
Ev 66: I frequently find that teachers do not understand the guidance on the use of reasonable force and I have to explain to them that such a thing exists! In fact, teachers often say to me “we can’t touch pupils’. I wouldn’t argue that they need more rights to use force, because they need to build relationships with students and using force would effectively damage that. But, many many teachers do not understand and have not read the guidance, or been trained in the use of reasonable force. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Memorandum submitted by Department for Education
Introduction 1. For many teachers, dealing with poor behaviour will be a significant challenge in their career. For many pupils, their education will be impeded because teaching is disrupted by the behaviour of others. For some pupils, their own behaviour will lead to repeated fixed period or permanent exclusions and will seriously hinder their chances of becoming successful individuals contributing to society. 2. The Coalition Government wants to give teachers the confidence to exercise authority to promote and ensure good behaviour in the classroom. We recognise that heads and teachers want to improve behaviour and teach in a calm, orderly environment but are too often constrained by regulations which inhibit them from maintaining order. That is why our first announcement on behaviour on 7 July focussed on clarifying and strengthening teachers’ powers to maintain order and instil discipline. 3. We have more to do on this, including measures to tackle bullying, head teachers’ powers to exclude disruptive pupils, how teachers are trained in behaviour management and the reform of alternative provision for excluded pupils. We will set out our plans in greater detail in a Schools White Paper to be published later this year and legislate where necessary in the next Education Bill. We therefore welcome the Select Committee Inquiry and hope that its deliberations and recommendations can inform the Government’s policy.
Policy Context 4. We believe that the two essential prerequisites for successful educational attainment are effective teaching of literacy and high standards of behaviour. A higher proportion of children from deprived backgrounds have poorer literacy skills from an early age than those of their peers, and this deficit goes on to affect their later educational outcomes.117 A higher proportion of children from poor backgrounds also have greater problems with their behaviour. One study118 found that a child of parents in the lowest socio economic groups is around eight percentage points more likely to have behavioural problems than a child with parents in the highest group. Such children are also more likely to attend a school with behaviour problems. For example, data shows that pupils receiving free school meals (FSM) are more likely than other pupils to have been excluded for a fixed-period or permanently from school and the rate of fixed period exclusions is related to the level of deprivation of the school.119 Our Pupil Premium will direct additional funds to schools to support pupils from poorer backgrounds in ways that schools judge to be best, giving them flexibility to help those pupils who most need it. 5. Tackling absenteeism in schools is also a crucial part of the Government’s commitment to increasing social mobility and to ensuring every child can meet their potential. There is a demonstrable link between 1 attendance and attainment with persistently absent pupils being around 62 times less likely to achieve 5 A*–C grades at GCSE than those who attend school regularly.120 6. The recent fall in overall absence and persistent absence rates are welcome, but the overall level of absenteeism in schools is still too high. We need to do more to tackle the underlying factors that result in thousands of children being absent from school each day. Schools need to continue to be strict about authorising absence only when it is necessary, but need also to tackle unauthorised absence—which is still rising in primary schools. 7. Pupils identified as having special educational needs (with or without a statement) are more than eight times more likely to be permanently excluded than those pupils with no special educational needs (SEN). In 2008–09, 24 in every 10,000 pupils with statements of SEN and 30 in every 10,000 pupils with SEN without statements were permanently excluded from school. This compares with three in every 10,000 pupils with no SEN. Pupils with SEN are also more likely to receive a fixed period exclusion. In 2008–09, 810 in every 10,000 pupils with statements of SEN and 700 in every 10,000 pupils with SEN without statements received one or more fixed period exclusions. This compares with 140 in every 10,000 pupils with no SEN.121 Pupils with SEN have consistently been more likely to be excluded from school than their peers; we hope that the Committee’s inquiry will focus on the reasons why this is the case. 8. The recent Ofsted review of SEN and disability122 highlighted that schools classify a wide range of pupils as having SEN, from those whose needs could be met through good quality teaching to those with complex and severe needs requiring significant additional support. Correct identification and appropriate provision for pupils with SEN is a priority for this Government and the Green Paper on SEN, recently announced by the Minister of State for Children, will look at this area in detail. The Government wants to
117 In 2009 63.3% of pupils receiving free school meals (FSM) achieved a level 4 or above at Key Stage 2 English compared to 83.0% of pupils not receiving FSM. 118 Propper, C and Rigg, J (2007). Socio-Economic Status and Child Behaviour: Evidence from a contemporary UK cohort. Centre for Analysis of Social Exclusion (CASE) paper 125, LSE. 119 National Statistics: DCSF: Permanent and Fixed Period Exclusions from Schools in England 2006–07—Amended, DCSF 2008 120 DfE unpublished internal analysis based on 2009 KS4 attainment data and pupil level absence data from the School Census 121 National Statistics: DfE: Permanent and Fixed Period Exclusions from Schools in England 2008–09, DfE 2010 122 A statement is not enough—Ofsted review of special educational needs and disability, Ofsted 2010 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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look at how we can improve the services these vulnerable children, including those with behavioural, emotional and social difficulties (BESD), and their families, receive. The system needs to be more transparent for parents with more choice and involvement in the decision-making process.
Behaviour in Schools Today 9. It is true that many schools have very good behaviour and that most children will behave well if they are in a school where there is a positive ethos and a strong behaviour policy that is communicated to staff, parents and pupils and implemented consistently at all levels. However a closer analysis shows that there remain substantial problems in too many schools. A significant minority of pupils are causing disruption which impedes teachers’ ability to teach and other pupils’ opportunities to learn. As at December 2009, while 78.6% of state-funded secondary schools were judged as “Good” or “Outstanding” for standards of behaviour at their most recent Ofsted inspection, there were still 20.2% that were judged to be only “Satisfactory” and 1.1% judged to be “Inadequate”.123 This equates to 677 secondary schools (21.3%) where behaviour was only satisfactory or inadequate. 10. In 2008–09124 there were: — an estimated 6,550 permanent exclusions from primary, secondary and special schools.125 This represents 0.09% of the number of pupils in schools (nine pupils in every 10,000); — 307,840 fixed period exclusions from state funded secondary schools. There were 39,510 fixed period exclusions from primary schools and 15,930 fixed period exclusions from special schools; — 17,930 pupil exclusions for violence against an adult in primary, secondary and special schools, equating to approximately 11% of permanent exclusions and 5% of fixed period exclusions; and — a further 79,060 exclusions for threatening behaviour or verbal abuse against an adult (representing 11% of permanent exclusions and 22% of fixed period exclusions). 11. In 2008–09, the average number of fixed period exclusions per enrolment was 1.9 exclusions. Of the 194,700 pupil enrolments with a fixed period exclusion, 119,420 pupils were excluded once (61%), 36,750 pupils were excluded twice (19%) and 38,540 pupils were excluded three or more times (20%). 12. The most common reason for exclusion was persistent disruptive behaviour (30% of all permanent and 23% of fixed period exclusions). 13. The latest TellUS survey shows that 28.8% of children say they have been bullied in the last year and almost half of children have experienced bullying at some point whilst at school.126 14. There is evidence to suggest that different groups experience bullying more than others. There is anecdotal evidence from pupils and teachers to suggest that homophobic bullying continues to be a problem in schools. Due to the nature of homophobic bullying accurate data on its prevalence in schools is limited. However a 2007 survey of 1,145 pupils who identified as lesbian, gay or bisexual conducted by Stonewall, reported that 65% of young lesbian, gay and bisexual pupils have experienced direct bullying.127 A 2003 study, which compared survey responses from 1,200 lesbian, gay and bisexual people with those from 1,200 heterosexual people, indicated that 51% of homosexual men experienced bullying at school compared to 47% of heterosexual men and 30% of homosexual women experienced bullying at school compared to 20% of heterosexual women.128 15. The Longitudinal Survey of Young People in England (LSYPE)129 showed that young people with a disability were more likely than those without a disability to be called names, to be subject to social exclusion, to have their money and possessions taken, to be threatened with violence and to be victims of actual violence. 16. There is violence and assault in our schools. NASUWT have estimated that there is one assault (verbal or physical) every seven minutes.130 A recent poll by the Association of Teachers and Lecturers (ATL) found that 38.6% of respondents had dealt with physical aggression that academic year.131 Most reported incidents (87%) involved violence towards another pupil, more than a quarter involved violence against the respondent, with 44% of incidents involving another teacher or a member of support staff (more than one answer could be given). 17. There is a growing trend to bully and harass teachers by making false allegations against them. A 2009 survey132 of 1,155 ATL members found that a quarter of school staff have had a false allegation made against them by a pupil, and one in six have had an allegation made by a member of a pupil’s family. In addition,
123 Statistical Release NI86: Secondary Schools judged as having Good or Outstanding Standards of Behaviour at December 2009, DCSF 2010 124 National Statistics: DfE: Permanent and Fixed Period Exclusions from Schools in England 2008–09, DfE 2010 125 From a pupil population of over 7.4 million 126 The TellUS figures cover bullying in and out of schools, DCSF 2010 127 Stonewall (2007) The experiences of young gay people in Britain’s schools 128 King and McKeown (2003) Mental health and social wellbeing of gay men, lesbians and bisexuals in England and Wales 129 Green, R., Collingwood, A & Ross, A (2010) Characteristics of Bullying Victims in Schools 130 NASUWT, 2010 131 ATL, 2010 132 ATL 2009 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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the same survey reported that 50% of school staff reported that they or a colleague have had a false allegation made against them in their current school or college by a pupil or a member of a pupil’s family. In half the cases the allegation was immediately dismissed by the school. The police were notified in only 16% of instances, and took no further action in 55 of the 67 cases they investigated. 18. Pupil behaviour has a significant impact on the recruitment and retention of teachers. Issues of workload and poor pupil behaviour are important factors in dissuading undergraduates from entering the teaching profession and influencing serving teachers to leave.133 A 2008 poll of undergraduates found that feeling unsafe in the classroom was the greatest deterrent134 to entering the teaching profession.135 For teachers, workload is the highest demotivating factor (56%), followed by initiative overload (39%), a “target driven culture” (35%) and, pupil behaviour (31%).136 Another study137 found that 68% of 1,400 teachers agreed that negative behaviour is driving teachers out of the profession, with secondary teachers more likely to agree with this statement than primary teachers. Half of the sample (51%) felt that teachers with less experience were more likely to be driven out of the profession by negative behaviour, while 19% disagreed with this. 19. Not only can pupil indiscipline be demotivating for teaching staff, it can also be disruptive to other pupils. The 2009 Teaching and Learning International Survey (TALIS) carried out by the Organisation for Economic Co-operation and Development (OECD) showed that of 23 countries researched, an estimated 30% of teaching time is lost due to poor pupil behaviour.138 20. In a one-week period in March 2009, NASUWT undertook a survey of teachers and headteachers working in primary and secondary schools, and over 10,000 responses to the survey were received.139 The survey confirmed the OECD finding that the impact of lost teaching and learning time as a result of pupil indiscipline was acute. In primary schools, an average of 30 minutes of available teaching time was lost per teacher per day, whilst in secondary schools, the figure for lost teaching time increased to 50 minutes per teacher per day. 21. In international surveys of 15-year old students’ beliefs and expectations by Elliott et al,140 the belief that classmates had poorer behaviour and disrupted lessons was linked to lower levels of perceived work rates for pupils in both the UK and the US (Sunderland and Kentucky) compared with a Russian sample in which behaviour was perceived to be better. A similar pattern was shown in a later survey of nine and ten year-old pupils, although these students tended to be more positive in their ratings of their classmates’ behaviour.141 22. Some poorly behaved pupils may face a bleak future. Studies have found142 that exclusion is associated with: offending behaviour including offences classed as serious (drug use; possession of weapons); being NEET; academic underachievement; limited ambition; homelessness; and mental ill health. 23. Youth Cohort Study data for 2007 was used to compare, on various measures, those who had been excluded at some point to those who had never been excluded. This found that young people who had been excluded (for a fixed-term or permanently) from school in Years 10 or 11 were much less likely to be in full- time education at age 19 (20% compared to 45% of non-excludees) and much more likely to be out of work at age 19 (13% compared to 5%). Similar results for the negative outcomes for excluded pupils were also shown in the earlier Youth Cohort Studies. 24. Analysis of all pupils permanently excluded in Year 9 in the 2004–5 academic year data showed that pupils who entered secondary school with very low literacy skills (below National Curriculum Level 3 in English) had an exclusion rate five times that of pupils entering Key Stage 3 at Level 4 or above (0.5% of those with severe literacy difficulties were excluded, compared to 0.1% of those with at least average literacy levels).143 25. The DfES 2004 youth cohort study found that only 20% of pupils with a fixed term or permanent exclusion from school in Years 10 and 11 achieved five or more GCSE A*–Cs or equivalent, compared to 58% of non-excludees.
133 Ashby et al 2008: Beginner teachers’ experiences of initial teacher preparation, induction and early professional development: a review of the literature. DCSF 134 18% with salary being the next most common factor at 16.8% 135 YouGov Plc (2008) for Policy Exchange. Cited in Freedman, S; Lipson, B; & Hargreaves, D (2008): More Good Teachers 136 MORI (2003): One in Three Teachers to Leave Within Five Years. 137 NFER (2008): Teacher Voice Omnibus June 2008 Survey: Pupil Behaviour. DCSF 138 OECD (2009) Creating Effective Learning and Teaching Environments: First Results from TALIS 139 NASUWT, 2010 140 Elliott, J; Hufton, N; Hildreth, A (1999). Factors Influencing Educational Motivation: a study of attitudes, expectations and behaviour of children in Sunderland, Kentucky and St Petersburg. 141 Elliott, JG, Hufton, N, Illushin, L & Lauchlan, F (2001). Motivation in the Junior Years: international perspectives on children’s attitudes, expectations and behaviour and their relationship to educational achievement. 142 Youth Justice Board (2004): Mori Youth Survey 2004; Goulden et al (2001) At the margins: drug use by vulnerable young people in the 1998/99 Youth Lifestyles Survey; DCSF (2005) Youth Cohort Study: Activities and Experiences of 17 Year Olds: England and Wales 2005; DCSF (2004) Youth Cohort Study: Activities and Experiences of 17 Year Olds: England and Wales 2004; Randal et al (2009): Prevention is better than cure; Thomas et al (2008) Targeted Youth Support: Rapid Evidence Assessment of Effective Early Interventions for Youth at Risk of Future Poor Outcomes; Daniels et al (2003): Study of young people permanently excluded from school 143 DfES (2006) KPMG Foundation (2006) The long-term costs of literacy difficulties. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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How well Schools Manage Behaviour 26. Good teaching underpins good behaviour. Pupils are more likely to behave well when they are interested and engaged. Analysis of the Longitudinal Study of Young People in England indicated that of the cohort of 14–16 year-olds, those classified as “disengaged” were far more likely to report misbehaving than other young people. 40% of “disengaged” pupils reported misbehaving in half or more of their classes compared with just 7% of “engaged” young people.144 27. Smith et al. (2005)145 conducted a systematic review of research on what pupils aged 11–16 believed impacted on their motivation to learn in the classroom. The reviewers concluded that what teachers do can impact both positively and negatively on pupil motivation. There appeared to be a connection between pupil enjoyment of a task and the degree to which it engaged them cognitively. Across the studies in the review, it was found that engagement in learning was more likely if: — the lessons were perceived as “fun”; — the lessons were varied and participative; — teachers used collaborative approaches; and — pupils perceived activities to be useful and authentic. 28. Qualitative research with primary school pupils showed that pupils disengage with their education when they feel bored with the general curriculum or specific educational tasks—something not mentioned by parents or teachers in their equivalent interviews. The pupils also described their behaviour when disengaged; this included disruptive behaviours such as play fights and throwing objects in the classroom.146 29. Against this backdrop, it is nevertheless clear, that most young people are well behaved most of the time and that most teachers and head teachers employ effective behaviour management strategies in their classrooms and schools: — the vast majority of teachers (93%) who responded to the NASUWT survey147 said that their schools had a whole-school behaviour policy; however — the same survey found that teachers felt that the behaviour policy was inconsistently applied by a range of staff, including the most senior; — 80% of respondents to the Teacher Voicesurvey148 saw themselves as well equipped to manage pupil behaviour; but — were less sure about whether the appropriate training and support was available to help them to deal with behaviour management issues. 30. We expect that schools’ performance management arrangements will identify any difficulties individual teachers have in managing behaviour and that their CPD arrangements will address these. 31. We also believe that there is a minority of pupils who are persistently poorly behaved and need targeted support. However, any child may misbehave if their behaviour is not managed properly at school or at home and we expect parents to play their part in supporting the authority of schools and teachers.
Our Approach 32. The Elton Report (1989) pointed to the growing body of evidence indicating that, while other factors such as a pupil’s home background affect behaviour, school-based influences are also very important. 33. The most effective schools are those that have created a positive atmosphere based on a sense of community and shared values. There is now a well established professional and academic consensus on what schools can and should do to ensure good behaviour from their pupils. These include: clarity and consistency of approach (including towards rewards and sanctions) by all staff, led by a strong leadership team; good support and development for staff; and a targeted and differentiated approach towards some pupils and their parents. 34. Despite this consensus, poor behaviour remains a problem in some schools. We expect good behaviour from every child and in every school. Our guiding principles are: — teachers should be trusted to find the approaches that work in their schools; — government should free teachers by stripping away unnecessary regulation and prescription from the centre but hold schools to account for outcomes through a sharper inspection framework;
144 Ross, A (2009) Disengagement from Education among 14–16 year olds 145 Smith, C., Dakers, J., Dow, W., Head, G., Sutherland, M. and Irwin, R. (2005) A systematic review of what pupils, aged 11–16, believe impacts on their motivation to learn in the classroom. In: Research Evidence in Education Library. London: EPPI-Centre, Social Science Research Unit, Institute of Education, University of London. 146 Ravet, J (2007) Making sense of disengagement in the primary classroom: a study of pupil, teacher and parent perceptions. 147 2010 148 NFER 2008 Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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— teachers must be able to exercise authority in a manner that is clearly understood by pupils and their parents; — government will give heads and teachers the powers they need; — head teachers should back teachers’ authority and support them in dealing with difficult pupils, or when facing allegations; — pupils and their parents must take responsibility for attendance and behaviour and parents must support teachers when they insist on good discipline; and — the most challenging children need extra support.
What we will do to Support Teachers 35. Informed by our research149 on barriers to teachers using their powers to ensure good behaviour, we will work with teachers to set out a framework of rights and responsibilities, making clear that Government supports schools in ensuring good behaviour, and that we expect school leaders to support teachers. The framework will support heads and teachers in promoting positive behaviour and provide clarity around the use of powers of discipline, whether dealing with violent incidents or disruptive pupils. 36. We will: — restore schools’ authority by giving heads and teachers the powers and confidence to exclude students when poor behaviour warrants it; — issue shorter clearer guidance on disciplinary powers, including on the use of force, to strengthen teachers’ confidence to deal with violent incidents; — extend teachers’ powers to search for and confiscate items; — abolish 24 hour notice for detentions, allowing teachers to tackle poor behaviour immediately; — protect teachers from malicious allegations which will strengthen their authority in the classroom; — ensure that teachers and heads understand their powers and are therefore able to use them; and — ensure that parents and pupils understand the powers that schools and teachers have to maintain good order and deal with poor behaviour. 37. We will remove the disincentives to exclude, so that schools can make exclusion decisions based only on the pupil’s behaviour and improve the quality of alternative provision by, amongst other measures, encouraging third sector and other providers with proven success in helping children and young people overcome behavioural and other problems, to expand provision. 38. Ofsted inspection of behaviour and attendance will underline the importance of behaviour management and incentivise schools to focus on good behaviour as part of their overall approach to school improvement. 39. We are committed to making bullying unacceptable in all circumstances. No young person should go to school dreading the treatment they will receive. We will raise schools’ awareness of the importance of tackling homophobic bullying and other forms of prejudice based bullying. To do this we will: — review the Department’s guidance to ensure that schools are given the right message about tackling bullying effectively; — work with Ofsted to ensure that tackling poor behaviour and bullying is given more prominence in planned changes to school inspection; and — empower schools so that they can take a zero-tolerance approach to preventing and tackling bullying. 40. We will continue to collect and monitor data on overall absence, unauthorised absence and persistent absence rates. The emphasis, however, will be on persistent absence as the best indicator of problem absence. 41. We accept that there remains more to do and in some areas we are still considering how best to move forward. We look forward to a dialogue with the Committee and with other interested parties. September 2010
149 Unpublished at the time of this submission Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Memorandum submitted by the Training and Development Agency for Schools
1Introduction Since 2004, the TDA has invested significantly in support and challenge for the initial teacher training (ITT) sector to ensure that all programmes include high quality training in behaviour. Alongside this there has been a focus on e-safety and how to deal with cyber-bullying and homophobia. Classroom training to manage the behaviour of children and young people is an integral element of every ITT programme. Training providers must design and deliver their training programmes to enable all trainee teachers to meet a set of rigorous standards for qualified teacher status (QTS). These include standards relating specifically to discipline, the management of children and young people, and the organisation of the classroom. The standards were subject to a substantial process of review between 2005 / 7, and resulted in a coherent framework of standards for initial teacher training and for teachers at every stage of their careers. The standards on behaviour were a significant focus of the consultation and review process.
2The Professional Standards for Teachers In 2007 the revised standards for teachers were introduced. The revised framework for teachers sets out a logical progression of expectations from entry to the profession, via the core standards for all serving teachers to threshold and advanced and excellent teacher status.
The standards for the award of Qualified Teacher Status (QTS) The TDA provides extensive support for ITT providers and their trainees and sets out the scope and expectations related to each of the QTS standards in an easily accessible web-based format. All of those to be awarded QTS must demonstrate that they have met them in their practical classroom teaching.
Standard Q10: Have a knowledge and understanding of a range of teaching, learning and behaviour management strategies and know how to use and adapt them, including how to personalise learning and provide opportunities for all learners to achieve their potential. This standard requires trainees to demonstrate a range of learning, teaching and behaviour management strategies, and apply these to promote the kinds of behaviours that allow teachers to teach, and pupils to learn without hindrance. Trainees are expected to show that they can maintain secure discipline in the classes that they teach.
Standard Q31: Establish a clear framework for classroom discipline to manage learners’ behaviour constructively and promote their self-control and independence. This standard requires trainees to demonstrate that they know about and can use a range of strategies that promote positive attitudes to learning. Trainees are expected to demonstrate that they can:
— ensure that pupils know the boundaries of acceptable behaviour and understand the consequences of their actions, and
— minimise the impact of the negative behaviours of some pupils on teaching, and on the learning of others.
Standard Q2: Demonstrate the positive values, attitudes and behaviour they expect from children and young people. Trainee teachers are expected to understand and demonstrate the values and attitudes that they want pupils to develop. Such values will include respect for other people and social responsibility.Trainee teachers are expected to demonstrate that they can:
— establish high expectations for pupils’ behaviour, and resolve conflicts inside and outside the classroom, and
— implement the school behaviour policies, for example on equality, discipline, bullying and harassment. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Standard Q18: Understand how children and young people develop and that the progress and well-being of learners are affected by a range of developmental, social, religious, ethnic, cultural and linguistic influences. TDA guidance on this standard makes clear that those who might be at risk depend on teachers, among others, to monitor and manage their learning, and provide them with the support that they need. This standard gives trainees a focus for developing skills in tackling bullying and social exclusion in the classroom.
Standard Q3 (a): Be aware of the professional duties of teachers and the statutory frameworks within which they work Standard Q3 (b): Be aware of the policies and practices of the workplace and share in collective responsibility for their implementation Trainee teachers are expected to demonstrate that they know the statutory framework in which they work including in relation to their responsibilities to maintain discipline, and the powers that they have to achieve this. Additionally, they are expected know and implement the range of policies that support school practice including in relation to bullying, racial harassment, and abuse.
The QTS standards and accompanying extensive guidance can be accessed at www.tda.gov.uk/qts.
3Resources to Support High Quality Training in Behaviour and Maintaining Classroom Discipline Since 2005 the TDA has commissioned practical resources to support providers in improving the quality of teacher training programmes.
— The teacher training resource bank (TTRB) provides access to a range of relevant resources to support trainee teachers with guidance on behaviour management. The TTRB can be accessed at www.ttrb.ac.uk. The TTRB offers a direct link to other relevant resources including online Teachers TV video material and the National Strategies resources.
— The Behaviour4Learning website at www.behaviour4learning.ac.uk, features high quality resources that enable trainers and trainees to engage with the principles of “behaviour for learning”. This in turn supports improvements in the management of classroom behaviour, and the raising of achievement. Evaluation evidence shows that trainees exploit the website to inform their writing of assignments on behaviour and to find ideas to use in teaching.
— The Multiverse website (www.multiverse.ac.uk) contains relevant and practical resources for teacher trainers and trainees, addressing the educational achievement of pupils from diverse backgrounds.
4Other Elements of Training that Contribute to Effective Behaviour Management
Special Educational Needs (SEN) There is a strong link between SEN and effective behaviour management. It is recognised that persistent low-level disruption often arises when pupils cannot engage with the lesson. The TDA works with providers to embed SEN resources into ITT to ensure that trainees acquire strong skills in meeting the needs of pupils with the commonly encountered forms of SEN and know when to draw on the specialist support of the SENCO as appropriate. The TDA is also working to provide specialist dyslexia training to build capacity within the schools system to meet the needs of pupils who might otherwise become disaffected.
Early reading and literacy There are also clear links between behaviour and literacy. Early intervention to improve literacy ensures that pupils are more likely to be engaged with their learning. For primary trainees, their preparation to teach literacy, including reading, is a crucial element of their training and a key way of narrowing the attainment gap. Following the publication of the report of the Independent Review of the Teaching of Early Reading in March 2006, the TDA has worked closely with the National Strategies to provide a robust programme of challenge and support to the sector to improve the quality of the initial preparation of primary teachers to teach reading using an approach based on synthetic phonics. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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5How Behaviour Training is covered in Teacher Training i) Initial teacher training University led ITT: The programme will include sessions on effective classroom control strategies. Trainees will also learn about the statutory responsibilities of teachers and specific aspects of behaviour such as how to identify and deal with bullying. They will learn how to plan interesting lessons that will engage pupils positively and so minimise poor behaviour in the first place. All trainees on University-led programmes of ITT spend a considerable part of their programme in practical teaching experience in at least two schools. They are based in schools for 24 weeks on a PGCE secondary programme and 18 weeks for primary. For the undergraduate programme the time based in schools for the equivalent of 36 weeks or one full year of the programme. During this time they behave as a member of the school team and are expected to show that they can operate the school’s behaviour policy effectively in their own teaching. At the start of the school-based experience, trainees will have the opportunity to participate in school-based sessions setting out the school’s expectations on behaviour and the policies which they must adopt. Each trainee has a mentor who gives written feed -back on every lesson observation giving emphasis to behaviour management and setting targets for improvement.
Employment based ITT: Trainees are employees of the school and are based there typically for a full school year. Within this time sixty days of the programme devoted to training. Employment based trainees are expected to operate the school policy on behaviour and discipline. Behaviour training is seen by trainees as a particular strength of school based ITT. Part of the reason for this high level of satisfaction is that trainees typically progress to employment in the schools in which they are trained.
All trainees recommended for the award of QTS must demonstrate in practice that they have met the standards in relation to behaviour management. ii) Induction In the first full year of teaching newly qualified teachers (NQTs) develop their classroom practice by demonstrating that they have consolidated their skills in managing behaviour. They are supported in this by an induction tutor who will regularly observe and give feedback on their classroom management.
6Evidence of Impact and the Satisfaction of Newly Qualified Teachers (NQTs) with their Training. Ofsted inspection evidence indicates that providers are preparing trainees well to meet the standards at a high level. The 2006/07 Annual Report of her Majesty’s Chief Inspector noted that trainees “who successfully complete primary and secondary teacher training programmes are competent in managing the behaviour of the classes that they teach because the training programmes equip them well with practical strategies.”
In addition the TDA carries out an annual survey of NQTs in the spring term following the year in which they complete their training, probing their views on the effectiveness of their training. Typically over 12,000 respond each year, giving us a robust evidence base. The data show that there has been steady progress over time in response to the question: “How well did your training prepare you to establish and maintain a good standard of behaviour in the classroom?”
Primary NQTs responding: Secondary NQTs Responding: “Very good / Good” “Very good / Good” 2003 57% 60% 2010 67% 69%
Overall 94% of NQTs surveyed in 2010 stated that their preparation in this vital area was satisfactory or better.
The TDA uses data from the NQT survey and Ofsted inspections to work with providers rated as “poor” or “satisfactory” to develop improvement plans in order to bring about system wide quality improvement. We are currently reviewing the NQT data on behaviour at provider level in order to identify those who significantly above or below the sector average in the preparing new teachers to manage behaviour and maintain discipline in the classroom. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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7Current TDA Activity: We continue to emphasise the importance of effective training in behaviour and discipline in raising the status of the teaching profession and in meeting the government’s objective of narrowing the attainment gap. To this end, we are currently: (i) Reviewing the NQT survey data in order to identify the most effective providers and develop case studies to be used to exemplify best practice and to improve the performance of weaker providers. (ii) Working with Ofsted to ensure that training in behaviour is given priority in the review of the framework of inspection of ITT. (iii) Reviewing our advice to ITT providers ensuring it clearly and consistently represents what is known about effective practice nationally and internationally. (iv) Working with the Department for Education to develop new routes to QTS such as “Troops into Teaching” to bring fresh skills into the classroom, from mature entrants who may have significant skills in motivating and managing the work of young people. December 2010
Memorandum submitted by the National Association of Social Workers in Education (NASWE) 1. The National Association of Social Workers in Education (NASWE) was founded in 1884 and is the only association representing staff in the education welfare service (EWS) across all grades. The association has no paid officers and is run by its members for its members and has membership across the UK. 2. This NASWE submission to the House of Commons Select Committee inquiry into behaviour and discipline in schools will focus on one aspect of the inquiry, the links between behaviour and attendance and may be summarised as follows: — There are strong common causal factors between poor attendance and disruptive behaviour — That more than 90% of cases currently coming to the attention of the EWS are resolved without the need for enforcement action in the courts. — Interventions should be based on a thorough assessment of the causes of poor attendance and then effectively targeted at children and young people for whom the impact on future life chances will be greatest. — That the Education Supervision Order (ESO) is an under used tool that should be extended to cover poor behaviour as well as attendance where this has been a serious barrier to education. — The threshold for statutory involvement by an education welfare officer (EWO) has historically been relatively low compared with other services such as social care or youth offending. Deteriorating attendance, punctuality and behaviour can be an early warning sign of difficulties in a family and present a valuable opportunity for early intervention. — Schools should not be expected to deal with the impact of the raft of difficulties facing some families without access to sufficient support from statutory services.
Background 3. The EWS has existed in some form since the inception of compulsory education. The school board (precursor to the EWS) highlighted the range of barriers to school attendance; poverty, mental and physical ill-health, domestic violence, alcohol and drug misuse and child cruelty (Williams et al 2001). 4. These barriers or indicators remain and young people grow up to reinforce the cycle of deprivation and enduring social exclusion. These indicators are equally applicable in predicting poor behaviour. 5. A poor educational experience can be both a cause and an effect of social exclusion. The work of the EWS presents an early opportunity to provide help and support for families at an early stage. See table 1. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Table 1. THE LINKS BETWEEN POOR ATTENDANCE AT SCHOOL AND MULTIPLE DISADVANTAGE. (EXTRACT FROM EARLY INTERVENTION—A NEW OPPORTUNITY FOR EDUCATION WELFARE, 2010, NASWE)
Outcome Evidence Source Stay Safe “In some cases, pupil absence from Extract from National Audit Office— school can be an indicator of child Improving school attendance in England protection issues. The report of the (2005). Stationery Office. Victoria Climbie´ Inquiry highlighted a considerable number of concerns including the importance of social services investigating the day care arrangements of children not attending school. Schools that we visited considered that tracking the attendance of some pupils was crucial in maintaining a record of pupils at risk and in enabling schools and local authorities to identify possible problems”. Enjoy & “Only 13% of persistent truants achieved Youth Cohort Study and longitudinal Achieve 5 A*-C at GCSE compared with 67% of study of young people in England 2007. those who never truanted.” “Statistical analysis of school attendance Understanding truancy-Links between records shows that as the level of absence attendance truancy and performance. increased attainment decreased. However Malcolm H, Thorpe G, Lowden, K there is considerable variation among (1996) SCRE. schools and the findings of this research cannot take into account factors other than attendance on attainment. Explained absence is comparable in its effects with unexplained absence.” Be Healthy Persistent truants are more likely to McAra, L (2004) Truancy, School smoke, drink, take drugs, be sexually Exclusion and Substance Misuse— active, all factors that have clear long- quoted in NPC Report Misspent Youth term health risks. There is a direct correlation between NPC Misspent Youth (2007)—Feinstein lower educational achievement and the cited in DFES (2003) Education and incidence of health issues including Skills: The economic benefit. obesity, depression, respiratory problems, lack of exercise. Make a “Excluded children and persistent truants Absence from School: A study of its Positive risk underdeveloped social skills, which causes and effects in seven LEAs. Contribution can prevent then from holding down jobs Malcolm H, Wilson V, Davidson J, Kirk and forming relationships, they frequently S. The SCRE Centre, University of struggle to make friends.” Glasgow. DfES 2003 Research Report RR424. Truants are both more likely to commit Stevens, A, Gladstone B (2000) Learning crime and to become the victims of not Offending: Effective interventions to crime. Being in school reduces the tackle youth transitions to crime in opportunities for criminal behaviour. Europe. RPS Rainer Poor attendance through exclusion or truancy increases the likelihood of getting poor qualifications and becoming unemployed, both well-known predictors of crime. 65% of teenagers who truant once a week or more self report offences compared to 30% of their peers. Economic 75% of homeless teenagers had either SEU Report Rough Sleeping 1998 (based well-being been excluded from school or had been on CentrePoint study.) persistent truants. 27% of persistent truants in year 11 end Youth Cohort Study and longitudinal up NEET compared to just over 8% of study of young people in England 2007. all young people. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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Is all Absence the same? 6. NASWE is committed to the promotion of regular school attendance for all children, and young people of compulsory school age; however the extent, origin and impact of poor attendance is not the same for all children. Truancy is a complex issue with potentially multiple causes which are often dynamically interactive. 7. Low level absence is best dealt with by schools through effective whole school policies including clear information to students and parents, rapid follow up and attention to aspects of the curriculum, effective teaching and learning and effective anti bullying policies. 8. For some vulnerable young people the root causes of poor attendance and behaviour may lie in difficulties at home, many of which will be complex and concern parental needs that are unmet—these are the children who should concern us most as it is likely that they will have a range of other needs which will impact negatively on many aspects of their lives (see table 1 on page 2). It is unrealistic to expect schools to tackle these issues without adequate support but it is essential that schools are kept fully involved. Teachers have a unique relationship with children and their knowledge is an important contribution to any assessment. 9. Many schools employ non-teaching staff to support school attendance. Whilst we recognise the valuable role that they play the statutory enforcements duties held by LAs are generally delegated to the EWS who would still be required to intervene where the schools efforts have failed. 10. This is a specialist task and schools should expect an appropriate level of support from the local authority with sufficient EWOs with appropriate skills to support them in educating vulnerable children and young people. 11. The EWS is unregulated and whilst many officers are highly skilled and highly regarded by schools there are no mechanisms in place to ensure that this is always the case. 12. Recent data obtained by Children and Young People Now magazine revealed that there are currently 2,214 EWOs in England. EWO:Pupil ratios vary considerably across the country from 1: 500 to 1: 18,000. Latest DFE statistics tell us that there are 208,380 persistent absentees. The numbers of EWOs is likely to decrease as spending constraints take effect. (CYPN 20th April 2010) 13. We recognise that demand will vary in different parts of the country and would not necessarily want a nationally agreed pupil : EWO ratio however it would be useful to have some guidance on what would be an appropriate minimum level of staffing to meet statutory duties.
Responses to Poor Attendance 14. The current legislative framework on school attendance is complex and its application variable and in some cases arbitrary. It is a mixture of provisions located in criminal and child care law which may be used singularly, consecutively or in some instances concurrently. 15. Recent years have seen a significant increase in the number of parents being prosecuted in the criminal courts because of their child’s poor attendance. 16. Figures show a parent is sent to prison every other week in term time for failing to ensure their child goes to school. (Guardian 2009). A jail sentence is a very costly intervention- its efficacy is as yet unknown. The data we currently have in relation to the effectiveness of these punitive approaches suggests that they are not effective, either in improving attendance in a sustained way or as an effective deterrent (Zhang 2004 & 2007). 17. Using enforcement measures is sometimes necessary—but this relies on high-level assessment and intervention skills. Strategies that rely on establishing systems and pre-determined processes can be unhelpful when they are used to replace, rather than support, skilled and professional judgements. Women (as single parents) are 3 times more likely to face prosecution for failing to ensure their child’s regular attendance than men. (Kendall et al 2004).
Case Study “Terry”* Terry is in year 10 and last year he completely stopped going to school. His mother is the victim of serious domestic violence from Terry’s father who has also turned against Terry believing he was siding with his mother. He has been sending abusive text messages to his son. Terry is devastated by what has happened. When the EWO first became involved Terry tried to smash up his room and set fire to his school uniform. At this stage neither Terry nor his mum felt able to speak about their situation.
Because of Terry’s protracted absence the EWS arranged a formal meeting to clarify the authority’s intention to take enforcement proceedings. This acted as a catalyst for the family and despite proving very difficult to engage initially, Terry, with the help of a skilled EWO began to speak about his difficulties. Terry began to attend school again and despite some ongoing issues Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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with his attendance and behaviour he remains positive about his future. The EWO working closely with the school has secured day release at college and a work experience placement. This would have been out of the question the previous year. *Case studies in this submission have been previously used in the NASWE document Early Intervention- A new Potential For Education Welfare. They are real cases supplied by NASWE members.
What kinds of Families do Education Welfare Officers work with? 18. Long before the integration of education and children’s social services, the EWO worked across the two major systems. EWOs do not have the luxury of declining to work with young people and parents who may not want to co-operate. 19. NASWE commissioned Independent consultants who undertook a matching needs and services audit to gain a picture of need among EWS clients. Key findings from the audit may be summarised as. — All four agencies are working almost exclusively with children at levels 2 and 3. — 37% are judged to have reached the significant impairment threshold — More than a third of the children have emotional/mental health problems — 25% of their parents have mental health problems — 22% of children have a parent who misuses drugs and/or alcohol 20. It is clear that EWS in all four areas are working with children with serious and complex needs and there is little difference across the four samples: 21. The study showed that in 65% of cases needs were believed to have been fully or partially met, largely by the EWS. Needs were least likely to be met where it was in relation to parental mental health, trauma, much improved care at home and/or problems with adult/child relationships.
Poor Attendance and Behaviour—A Barometer of Family Well-Being. 22. Deteriorating attendance and behaviour at school are indicative of deeper issues and are a good barometer of family well-being. Truancy can be a complex behaviour; symptomatic of a range of different factors within schools, communities and families, which in many cases are dynamically interactive. 23. Whilst NASWE fully supports the notion of parental responsibility the current legislation has its roots in an era when young people left school at an earlier age. This “extension” of adolescence is not without problems and it is no coincidence that the majority of parental prosecutions concern the parents of teenagers. To deny that young people can and will make decisions for themselves is naive and an emphasis on an outdated notion of absolute parental authority is unlikely to resolve the issue. It is our experience that many young people who are persistently absent from school are not necessarily beyond parental control in other domains of their lives. 24. The EWS also works with young people who are very vulnerable but do not yet meet thresholds for other statutory interventions, this will include young people who are neglected, at risk of criminal behaviour, harming themselves through reckless behaviour, early parenthood, substance misuse and mental health difficulties (See case study “Peter” on page 6). Where parents and young people are unwilling to engage, the EWS may be the only agency where thresholds for statutory intervention have been reached and do not rely entirely on consensual engagement by the young person or their parents. 25. It is vital that those implementing statutory interventions have high level assessment skills in order to plan and deliver appropriate and targeted interventions that have a greater chance of success. 26. We believe the EWS role should be strengthened in this area and that existing interventions, particularly in regard to Education Supervision Orders (ESOs)150 should be broadened to include vulnerable young people whose education is severely interrupted, whatever the reason. Case Study “Peter” Peter attended and achieved well in primary school. His attendance did not become and issue until he went to secondary school. His mother has long term issues with drug addiction and poor mental health and despite her best intentions is unable to be the parent Peter needs. There was no recent social services’ involvement in respect of Peter. Some support was offered at a local Children’s Centre regarding his younger brother. Peter has been involved in some extensive cannabis use, which is believed to have contributed to his mental health difficulties. Peter’s mother shared her growing concern for her son’s mental health with the EWO. Peter refused to cooperate psychiatric outpatient appointments. Unable to cope with Peters deteriorating mental health and consequent challenging behaviour he
150 An ESO is a provision under Section 36 of the Children Act 1989 that places a child of school age who is not attending school regularly under the supervision of the local authority initially for a period of 12 months. The purpose of the ESO is to work in partnership with school child and family to strengthen parental capacity and improve school attendance. During the life of the ESO both parents and child may be given directions. The application is heard in the family court. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [E] PPSysB Job: 006766 Unit: PAG5
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went to live with this father who also has ongoing mental health difficulties. This quickly broke down and Peter assaulted his father. His mother did not wish him to return home and he was effectively homeless. The EWO, fearing for Peter’s well-being both in terms of his education and mental health applied for an ESO. This effectively put Peter and his parents under the local authority’s supervision for the remainder of Peter’s education. A condition of the ESO was for Peter to attend his psychiatric out patient appointments. His mental health had deteriorated to such an extent it was felt inappropriate for him to return to school but he was provided with tuition. When Peter was made homeless the EWO intervened on his behalf and referred the matter to social services who accommodated him in a local hostel with minimal support. The EWO was the only person remaining in frequent and regular contact with Peter, his psychiatrist and both his parents. With skilled negotiation she managed to persuade his father not to press charges for the assault and facilitated reconciliation. She also supported Peter to maintain contact with his mother and younger brother. Peter got the psychiatric care he needed, attended all of his tuition sessions and subsequently moved on to further education and training. He now lives independently in the local area and maintains a positive relationship with his family and has his cannabis habit under control. Peter recently told the EWO that without her intervention he would probably be dead. 27. There is a huge untapped potential to meet that gap between identified needs and children in need thresholds making a significant contribution to early intervention. It is however, vital that the primary focus of the EWO is on securing education. 28. In light of the above considerations we recommend that that there is review of the EWS role with a view to: — Greater clarity and understanding of the role and its overall contribution to the welfare of children and young people and its role in early intervention. — Ensuring that the skills, knowledge and use of statutory powers available to the EWO particularly Education Supervision Orders can be fully exploited as part of a targeted early intervention service — Ensuring that EWOs have the skills to make high level assessments of the causes of poor attendance and are able to better target interventions. — Ensuring that schools have sufficient EWO resources to undertake statutory duties in relation to attendance.
References Guardian.co.uk Thursday 12th February 2009 Kendall S, White R, Kinder K, Halsey K, Bedford N (2004) School Attendance and the prosecution of parents: effects & effectiveness of parental prosecutions. Final report (LGA Research report 2/04) NFER NASWE (2010) Early Intervention-A new Potential For Education Welfare Pritchard,C&Williams R (2010) Measuring Social Work. Professional Social Work, June 2010 RyanTunnardBrown (2008) “An audit of the needs of 197 children in touch with education welfare services in 4 local areas.” NASWE A. Susan Williams, Patrick Ivin & Caroline Morse (2001). The Children of London-Attendance & Welfare at school 1870-1990. Institute of Education Zhang, M (2004) Time to change the truancy Laws? Compulsory education: its origin and modern dilemma. Pastoral Care June 2004 Zhang, M (2007) School absenteeism and the implementation of truancy related penalty notices. Pastoral Care 2007
Memorandum submitted by Bill Gribble, further to the Oral Evidence Session on Wednesday 1 December 2010 On Ev 80, the “six core principles” of the Steer Reports appear in full in, “LESSONS LEARNED”: A review of behaviour standards and practices in our schools: Sir Alan Steer April 2009. In 2005 the Practitioners’ Group identified six core beliefs that they saw as the essential elements of successful school behaviour and discipline strategy (Annex). Sir Alan Steer opens the 2009 report with the statement: “I confirm my commitment to these beliefs which have guided my work in carrying out this review.” In my opinion, the principles and guidance from Sir Alan’s Practitioners’ Group should be reflected strongly in any forthcoming document produced by the Education Committee. As I mentioned at the oral evidence session, core principles 4 and 5 are, in fact, given over to the importance of parents as partners in the educational process. Processed: 01-02-2011 14:42:41 Page Layout: COENEW [O] PPSysB Job: 006766 Unit: PAG5
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Annex
LESSONS LEARNED: A REVIEW OF BEHAVIOUR STANDARD AND PRACTICES IN OUR SCHOOLS: Sir ALAN STEER APRIL 2009 In 2005 the Practitioners’ Group identified six core beliefs that they saw as the essential elements of a successful school behaviour and discipline strategy. I (Sir Alan Steer April 2009) confirm my commitment to these beliefs which have guided my work in carrying out this review. 1. Poor behaviour cannot be tolerated as it is a denial of the right of pupils to learn and teachers to teach. To enable learning to take place preventative action is most effective, but where this fails, schools must have clear, firm and intelligent strategies in place to help manage their behaviour; 2. There is no single solution to the problem of poor behaviour, but all schools have the potential to raise standards if they are consistent in implementing good practice in learning, teaching and behaviour management; 3. The quality of learning, teaching and behaviour in schools are inseparable issues, and the responsibility of all staff; 4. Respect has to be given in order to be received. Parents and carers, pupils and teacher all need to operate in a culture of mutual regard; 5. The support of parents is essential for the maintenance of good behaviour. Parents and schools each need to have a clear understanding of their rights and responsibilities; and 6. School leaders have a critical role in establishing high standards of learning, teaching and behaviour. December 2010
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