Item No. 7 (A) (1)
Report of the Cabinet Member for Education
Cabinet – 23rd September 2010
QUALITY IN EDUCATION (QED) 2020 – EMERGING PROPOSALS AND INVESTMENT PRIORITIES
Summary Purpose: The report summarises the next proposals for statutory consultation and capital investment for endorsement as part of the Authority’s Strategic Outline Programme which will be submitted to the Assembly in October 2010. In addition it outlines the proposed disposal programme of surplus school land to help fund future investment in school buildings and facilities. Policy framework: - Improvement Plan 2008-2012 priorities – QEd 2020 is a strategic programme of the Council - Children and Young People Plan 2008/2011 - Welsh Education Scheme 2006 - 2011 - Approved Capital Programme Budget – Feb 2008 & 2009 Reason for decision: QEd 2020 aims to continue to raise educational standards for all learners and deliver a step change in the condition of school buildings and facilities and support wider educational strategies. It encompasses the progressive review and, where necessary, the rationalisation of schools, as part of a far wider and coherent strategy for education within Swansea. The need to rationalise the number of schools within the County has been identified as part of this review, along with a wide range of other emerging priorities. In addition, it will ensure a corporate approach to future disposal programme Consultation: Chief Executive’s, Education, Finance, Legal, Corporate Property and Building Services
1. Purpose 1.1 This report will provide: • An overview of the key challenges facing Education nationally and within Swansea and the drivers for change. • An update on the outcome of the final tranche of bids submitted under the School Building Improvement Grant and the proposed funding of the required Council contribution. • An overview of the developing QEd 2020 strategy, investment priorities and proposed forward plan to be reflected in the Strategic Outline Programme which will be submitted to WAG in October 2010. • A summary of the next package of proposals that can be progressed, where this will involve a statutory consultation process, and an explanation of the next stages in the process
1.2 Considerable work has been undertaken to build a firm basis for the progressive review of all our schools, consistent with the clear lessons learned by other authorities and accepted good practice and this is set out in Appendix A. 1.3 Since November 2008, the Authority has sought to progress as many of the identified priority options as possible within the resources available (see Appendix B), in particular: • Funding has been accessed to commence a range of the identified investment priorities, most recently the announcements regarding the major refurbishment of accommodation and facilities at Cefn Hengoed Comprehensive School and at Morriston Comprehensive School. • An earlier set of statutory proposals were the subject of statutory consultation and statutory notices and final approval by the Minister. • The most recent statutory proposals have been the subject of statutory consultation and statutory notices and are currently awaiting Ministerial approval.
2. Challenges Facing Education in Swansea
2.1 Standards in Wales have generally been steadily improving over the last five years but he gap between the lowest and highest schools has widened. Further detail regarding the national challenges facing each local authority in Wales is set out in Appendix C. 2.2 The clear aims of the Quality in Education (QEd) 2020 programme have been stated as follows: • To raise standards of achievement and attainment for all children and young people • To improve the quality of the learning environment • To make the best use of human, physical and financial resources.
Pupil Outcomes 2.3 The trends in educational outcomes for the period 2004 to 2010 generally highlight improvements although the change relative to the all Wales average is variable. Outcomes at key stage 1 are slightly improving, key stage 2 are flat and key stage 3 are slightly improving. Outcomes at key stage 4 have shown the most significant and steady improvement during the last 6 years from a very low base relative to Wales to second or third quartile. Outcomes at key stage 4 in 2010 are at the highest ever on all key performance indicators across Swansea and for most of the 15 secondary schools. The gap between the highest and lowest performing schools and pupils during the same period has widened over time and across the key stages. Two of the 15 secondary schools now have a level 2 indicator (5+A* to C), at key stage 4 at 60% less than the highest performing schools. Primary attendance is amongst the lowest in Wales and consistently in the lowest quartile. Secondary attendance is steadily improving over time and fixed term exclusions from amongst the highest in Wales now have a downward and significantly improving trend.
School Outcomes 2.4 Analysis of the inspection grades over the last 6 years inspection shows 39.25% grade 1’s, 46.72% grade 2’s, 11.97% grade 3’s and 2.06% grade 4’s. Fifteen schools got 7 grade 1’s. One secondary school has just been put into special measures. Two primary schools have been in need of significant improvement during the 6 year period but are now out of this category. An initial internal analysis of all schools focusing on learner outcomes and capacity to improve identifies 41 ‘good and outstanding schools’, 29 ‘developing’, 22 ‘causing concern’ and 10 ‘underperforming’.
School Places and Buildings 2.5 There has been a reducing pupil population from 33,444 full time pupils in January 2004 to 31,563 full time pupils by January 2010. There are projected increases in primary pupil numbers by September 16 but a continuing fall in secondary pupils. There are currently 15.5% secondary surplus place projected to increase to 20.5% by September 2016 and 19.6% primary surplus places projected to fall to 15.6% (including the impact of the latest proposals). There is increasing demand for Welsh-medium primary places with the current 1,988 full time pupils projected to increase to 2,719 by September 2016. There are 29.1% buildings in category D in terms of business continuity risk and a further 50.9% category C with just 2.7% category A and 17.3% category B. There are also significant suitability and sustainability (eg reduction on carbon emissions) challenges. The backlog maintenance figure is at least £140M.
3. Priorities for Improvement and Change
Improving Pupil Outcomes For 2013 requires a focus on: • Ensuring all pupils are at least functionally literate • Focusing on improvements in reading levels
• Improving the relative attainment of boys compared to girls • Significantly reducing the number of children and young people that have poor attendance • Continuing to reduce the number of 16 to 18 year olds not in education, employment or training
Improving Schools for 2013 requires a focus on: • Low attaining schools; • Reducing within and across school variations in terms of learner outcomes • Reducing the impact of disadvantage on pupil outcomes
Improving School Places and Buildings for 2015/16 requires a focus on: • Reducing the number of secondary schools by 2 from 15 • Remodelling / enhanced facilities for 2 secondary schools in addition to 2 current significant remodels • Reducing the number of sixth forms by 2 • Reducing the number of English medium primary schools by 6 from 85. • Delivery of 4 new build English medium primary schools • Extending/remodelling 1 further English Medium primary • Increasing the number of Welsh-medium primary schools by 3 • Replacing/significantly remodelling 1 Welsh Medium Primary
4. Education in Swansea in 3 Years
4.1 There will be a significant change in the role of the Local Authority with a particular focus on: • The local authority as an advocate on behalf of child, young person and parents/carers • A small core of services in the local authority, commissioning schools and services to improve outcomes for children and young people • A significantly increased monitoring role mainly using school improvement teams
4.2 Given the phased reduction in the Education budget over the next three years, schools will see: • An increased share of the available funding, with the transfer of the associated responsibilities, from the current level of 74% delegated to schools initially to somewhere between 80 and 85% • The delegation of additional funding and responsibilities from April 2011, particularly in respect of the special educational needs 1 to 1 budget • An increased ownership of funding for specific services by schools and the requirement for targeting to pupils most in need
4.3 A review of service delivery will consider the potential for joint management and delivery of a range of Education-related and back office functions across local authority boundaries
5. Outcome of 3rd Tranche of School Building Improvement Grant (SBIG)
5.1 In May 2010 the following capital bids were submitted to WAG: a) Proposals for major redevelopment and rebuild of accommodation and facilities • Phase 2 of redevelopment of accommodation and facilities at Morriston Comprehensive School – Health and Safety / Business Continuity • New Build School to replace Manselton and Cwmbwrla Primary Schools – Health and Safety / Business Continuity • Phase 2 of major rebuild at Dunvant Primary School – completion of site rationalisation • Major redevelopment and rebuild of accommodation and facilities at Pentrehafod Comprehensive School – Suitability concerns b) Design and enabling works to further develop outline business cases for new primary schools and secondary priorities.
5.2 It is important to recognise that the criteria for bids under residual SBIG differ from the approach to be adopted in future through the 21st Century School Programme. With a very limited ‘pot’ of capital funding available nationally, there would appear to be a focus on: • secondary transformation proposals; • schemes able to demonstrate deliverability within the required timescales – and therefore not dependent upon the successful outcome of a statutory consultation process; and • schemes with a Council contribution of at least 30% (previously 20%).
5.3 In July 2010 the Minister announced the approval of the Authority’s major capital bid in relation to Morriston Comprehensive School – Assembly funding of £15.4 million to support the £22 million scheme.
5.4 The Council’s contribution will be achieved by generating capital receipts over the course of the programme. Short term unsupported borrowing will be used pending the achievement of capital receipts. The annual budget report to the Council meeting on 22nd February 2010 included the following proposals in relation to its Schools Development Programme:
Proposals and associated business cases will be prepared over the coming months and will entail:
• the identification of specific costed proposals including any match funding requirements as mentioned above; • the identification of specific sites for sale; and • a calculation for 2010/11 and each subsequent year of expenditures, receipts, shortfalls and surpluses arising from the above.
Subject to the agreement of specific proposals, it is proposed that short term unsupported borrowing be approved to fund any temporary shortfalls pending the sale of Education sites. This:
• represents a departure from the existing principle that no further unsupported borrowing is undertaken and is clearly dependent on the amounts and timescales involved; • commits the Council to using specific receipts to pay off temporary unsupported borrowing; and • is to manage cash flows in the short term i.e. additional unsupported borrowing is not a long term funding solution.
5.5 This report at paragraph 10 sets out in more detail the work that has been undertaken in order to identify the potential capital receipts required to support the QEd 2020 programme.
6. An Evolving Programme
6.1 Whilst a significant number of the identified priority options have been progressed (as is apparent from Appendix B), there remains a tremendous challenge still to be addressed through the longer term QEd strategy. Continuing feasibility work has: • identified priorities for possible investment as well as rationalisation, for example Pentrehafod Comprehensive School rebuilding / refurbishment; • reaffirmed the priority options identified within the primary sector; • further highlighted the basic need for additional Welsh medium primary places; and • identified further priority reviews within the secondary sector. 6.2 It is clearly important that the emerging programme continues to be refined and modified as appropriate opportunities and challenges arise. This might, for example, be a new business continuity risk that needs to be addressed, or the departure of a headteacher which provides the opportunity to consider an earlier reorganisation of educational provision consistent with educational principles, such as the existing Council policy of seeking to establish wherever possible all-through primary provision. 6.3 The work of the Stakeholder Forum has continued with wider consideration of the issues and potential achievable options in the secondary sector, in the light of the Transformations Direction of Travel. It is considered appropriate, wherever possible, to seek the views of the stakeholders prior to any decision to proceed to statutory proposals.
7. 21st Century Schools Programme
7.1 The Authority has for some time been in dialogue with the Welsh Assembly on the potential scope and roll out of the emerging QEd 2020 programme. This has clearly identified the need for, and significant benefits to be realised from, additional Assembly funding. 7.2 Authorities were required to develop and submit a Strategic Outline Programme (SOP) by the 29th October 2010. Whilst Swansea is able to meet this deadline the Assembly have decided to provide an extension to the 10th December 2010. The SOP will form the basis on which the Assembly will assess and determine the phasing of the national programme. The extensive stakeholder engagement to date and the developing QEd 2020 programme places Swansea in a strong position to submit a robust SOP and, subsequently, supporting business cases. The Authority will continue to press the case for accessing the necessary capital funding in order to progress the remaining priority options identified through the QEd 2020 programme.
English Medium Primary
7.3 The focus for the English medium primary sector is on the delivery of all through Primary provision, addressing business continuity issues and the further removal of surplus places. Four primary proposals have recently been approved with further statutory consultation awaiting Ministerial decision. The next identified priorities to feature in Band A priorities of the SOP submission are as follows: • A new build primary school on a single site with scope for enhanced provision for Manselton Primary/Cwmbwrla Primary • Rationalisation and partial rebuild of Dunvant Primary School accommodation on existing site • A new build primary school with scope for enhanced provision on a single site for Gowerton Primary School (formerly Tregwyr Infants/Juniors). • A new build primary school with scope for enhanced provision for Graig Infants/Pentrepoeth Infants/Juniors. • Further investment to complete the programme to deliver all through primary provision. • Investment to further rationalise the number of English medium primary schools
Welsh Medium Primary 7.4 The Authority will continue to provide additional provision to meet the growth in demand for Welsh medium primary places, where need is demonstrated. There is an urgent need to provide additional places for September 2011 in the broader Morriston area and current statutory proposals (to establish a
new Welsh medium school and increase Admission Numbers at three existing Welsh medium primary schools) now await Ministerial decision. The next identified priorities are as follows: • Enhanced replacement facilities of YGG Lon Las on the existing or a new site. • A temporary extension to the accommodation at YGG Lon Las in the Bonymaen/Birchgrove area, whilst an appropriate permanent location for a new Welsh medium primary school is confirmed (which will be the subject of a specific report to a future Cabinet meeting as appropriate). • A temporary extension to the accommodation at YGG Pontybrenin in the Gowerton/Penyrheol area, whilst an appropriate permanent location for a new Welsh medium primary school is confirmed (which will be the subject of a specific report to a future Cabinet meeting as appropriate).
English Medium Secondary 7.5 There is further need to address the significant and growing English medium secondary surplus places in some areas and standards issues in two catchment areas. A major refurbishment and rationalisation of Cefn Hengoed is in hand, as is the identified priority investment in Morriston. The next identified priorities are as follows: • Investment in Pentrehafod Comprehensive School to rebuild the accommodation and facilities, addressing business continuity and suitability issues and supporting the wider secondary transformation strategy. • The closure of Daniel James Community School on a phased basis by September 2012 with pupils transferring to other secondary schools. • Investment to further improve the quality of education and rationalise the number of English medium schools in the secondary sector.
Welsh Medium Secondary 7.6 Sufficient Welsh medium secondary places are currently available but demand in the primary sector will feed through by 2016 and require further action. Options include a third Welsh medium secondary school, potentially in collaboration with Neath Port Talbot and/or enhanced capacity at existing schools.
Aided Sector
7.7 Through regular meetings with the Roman Catholic and Church in Wales Dioceses there is a clear and shared commitment to work in partnership with the Authority to improve the learning environment for pupils and review the future nature and location of provision, consistent with the wider QEd 2020 strategy. There is a commitment in principle to address the issue of overcrowded and unsuitable sites which could include: • possible scope of site swaps;
• establishment of new all through Primary provision; and • collaboration on regional aided provision.
Post 16 Provision 7.8 In relation to post 16 provision, the Authority and the Swansea Learning Partnership support a mixed economy (6th Forms, College and work based provision) and, in line with the Further Education Colleges merger and Transformation agenda, the closure of two sixth forms at Bishop Gore and Gowerton, and joint working with the Colleges and other providers, will ensure the sustainability of Post 16 provision across the Authority. This will be the subject of a future report to Cabinet and will be supported through curriculum mapping which reflects need in each of the geographic areas. A review will be undertaken which also reflects Vocational training, Work based learning and Additional Learning Needs across the Authority.
Special Teaching Facilities 7.9 The Authority’s programme of STF provision at mainstream schools will continue. New STFs at Morriston Comprehensive School and Bishopston Comprehensive School will be consulted upon under the Director of Education’s delegated powers. It is proposed that further work is undertaken with relevant stakeholders to consider an emerging option to restructure existing separate Key Stage 3 and Key Stage 4 facilities through the creation of a new single 11 - 16 Pupil Referral Unit on a new site which can provide more appropriate facilities. A review is also to be undertaken of Special School provision in the Authority.
Transformation in ICT 7.10 It is also proposed that the SOP submission would include in Band A proposals to build on the Authority’s investment in broadband, school information management systems (SIMS MIS) and the learning platform (Moodle), to ensure that ICT underpins transformation for learning in all schools. This would be through further investment in all schools internal infrastructure, including:
• Wireless networking the entire school stock • Providing pupils with thin client or portable technology to access ICT resources • Access to ICT resources through Swansea Edunet our learning platform • Multimedia studios in each secondary school for web broadcasting • Where possible free safe internet access off our education network to home
8. Further Statutory Proposals
8.1 Separate reports to Cabinet seek agreement to commence statutory consultation in respect of a number of the identified priority options, namely:
• To cease to maintain Daniel James Comprehensive School with pupils transferring to neighbouring schools. This need has been recognised as a priority following a process of analysis of the secondary schools and engagement through the stakeholder forum and with headteachers. • To cease to maintain Manselton Primary School and Cwmbwrla Primary School with the establishment of a new primary school on a new site with enhanced accommodation and facilities. This need has been recognised as a priority throughout the stakeholder engagement process. 8.2 The proposed timescale for the statutory process, reflecting the advice of Assembly officials, is as follows: • Following approval by Cabinet, consultation letters and supporting information will be sent to the schools affected setting out the arrangements for the formal consultation meetings with pupils, parents, Governors and staff. It is proposed that these meetings will be held during October. • The responses and views expressed as part of the consultation process will then be carefully considered and reported to Cabinet by November/December for a decision on whether to proceed to Statutory Notices. • Should Statutory Notices be published there would normally follow a two month period in which formal objections or support may be lodged. However, where a school is in special measures the Authority is required to undertake a ‘fast track’ statutory process with a one month period for formal objections. A single formal objection during this period would mean that the matter would be referred to the Assembly for a final decision by the Minister within a four month period (a guideline and not a required timescale). • At least a term’s notice would be given of any changes following a decision by the Minister with implementation generally from September 2012. 8.3 Further reports will be provided for Cabinet outlining the feedback from the statutory consultations, the outcome of the Strategic Outline Programme, and prior to commencing any formal statutory consultation processes in relation to other options proposed in the Strategic Outline Programme.
9. Investment in School Buildings – Proposed Disposals
Background 9.1 Further to the recent successful grant application under the final tranche of the School Buildings Investment Programme, and wider consideration as part of the continuing stakeholder engagement process, this report updates as to present progress on the proposed valuation and disposal exercise. 9.2 A large number of surplus landholdings, either conditional upon proposals or currently surplus to current requirements, have been identified through a
joint exercise with Corporate Building & Property Services and Education. Following this exercise, a number of sites were then identified for potential disposal to help part-fund the QEd programme reflecting discussions undertaken with Education, Planning and Highways colleagues. 9.3 It is recognised that there is considerable additional detail and further discussions required to bring these sites and properties to the market and there is a continuing significant caveat over the state of the property market in the years to come. 9.4 A further validation exercise has been undertaken via consultants, funded by the WLGA (Alan Brown Associates), who have been in discussion with Property, Education and Planning colleagues over a prioritised list of sites. 9.5 They have identified a number of key points and recommendations including: (i) That a corporate, rather than a piecemeal approach, is taken to the proposed disposal of surplus education sites. (ii) That the aims and objectives of the 21st Century Schools Programme are reviewed within the context of the Unitary Development Plan, with the aim of establishing a high level strategy and related policy guidance for the proposed set of surplus education sites. (iii) That an in-house project team is established to take forward the proposed disposal of surplus education sites. (iv) That consideration is given to seeking a single development partner for a portfolio of surplus education sites. (v) That the role of local incentive-backed vehicles (LIBVs) is explored. (vi) That the final outcome of the current Community Open Space Audit should be closely monitored. 9.6 A number of the above points are specific to ongoing discussions with Planning colleagues, in particular around the interpretation of the Unitary Development Plan and the Open Space Audit. However, the major focus was in relation to the requirement to have a corporate approach to ensure the success of the disposal programme. Way Forward 9.7 In light of the above and following the recent successful grant bid, further action is now required to move forward on the disposal of these sites to maximise capital receipt and ensure public funding is in place.
9.8 A number of schools may be affected, and which as yet have not been the subject of any formal consultation, although the principle of wherever possible seeking to rationalise education assets in order to support the delivery of the investment priorities identified through the QEd 2020 programme has been discussed throughout the stakeholder engagement process
9.9 Schools will be engaged as appropriate on the proposals as part of the disposals strategy. In view of the commercially sensitive nature of the
information on potential sites and values it is not considered appropriate to provide specific details in this report.
9.10 If all the land identified surplus to current requirements is released, proves to be developable and successful, and developers and investors are found through a phased marketing programme, then sufficient capital receipt will be generated to fund, not only the proposed work for Morriston Comprehensive, but also potentially future phases of the QEd 2020 programme.
10 Financial Implications
10.1 The revenue and capital implications in respect of the specific statutory proposals are considered in separate reports on this agenda. The submission of the Strategic Outline Programme in October 2010 does not commit the Authority to the indicative funding contributions since the final approval of any capital allocation from the Assembly will be subject to the submission of a detailed Outline Business Case.
10.2 The Council’s contribution will be achieved by generating capital receipts over the course of the programme. Short term unsupported borrowing will be used pending the achievement of capital receipts, in line with the approved policy in the annual budget report to the Council meeting on 22nd February 2010. The realisation of the QEd Programme in the short and medium term is dependent on the level of capital receipts achieved. If lower than expected this will require a further prioritisation of the Programme since it unlikely that there will be any additional resources available from the general capital funding allocated to the Authority.
10.3 Any empty surplus site due to be marketed may incur additional revenue costs until the sale is completed.
11. Legal Implications
11.1 Statutory Requirements
(i) Reorganisation of school provision involving the establishment or discontinuance of community schools and community nursery schools, and the making of certain alterations to such schools requires consultation and publication of statutory notices in accordance with Section 28 and 29 of the School Standards and Framework Act 1998 as amended by the Education Act 2002 (“the Act”) and in accordance with the Education (School Organisation Proposals) Wales Regulations 1999 (ii) Before publishing any proposals, the Authority are under a duty, by virtue of Section 28 (5) and Section 29 (4) of the Act, to consult “such persons as appear to them to be appropriate; and in discharging their duty, the Authority must have regard to any guidance issued by the Assembly”. Guidance has been issued in National Assembly Circular 021/2009 entitled “School
Organisation Proposals”. Failure to comply with the statutory consultation requirement will be held by the Courts to render the decision ultra vires and void and any proposals which have not followed the Assembly’s guidance on consultation will not receive approval if submitted to the Assembly. Case law has established that consultation must: i) be at a time when proposals are still at a formative stage; ii) provide sufficient information for those being consulted to form a considered view on the matters on which they are being consulted; iii) there must be adequate time given for consideration and response; and the product of the consultation must be conscientiously taken into account in reaching any subsequent decisions as to the finalising of any statutory proposals. (iii) If objections are made in response to statutory notices, then the proposals will require the approval of the Assembly who may reject the proposals; approve them without modification; or approve with such modifications as they think desirable. If no objections are made, the Authority determines whether the proposals are to be implemented.
11.2 Legal Property, Planning and Employment Issues
Property
Any title issues which relate to the Authority’s land ownership will need to be considered by the Authority’s legal department and will need to be outlined in the individual school Reports.
Planning
Any new building work on school sites may require the grant of planning permission. Cabinet authorisation is required for applications for planning permission submitted by departments of the Council. Further reports will need to be prepared at the relevant time.
Employment
Any staffing issues arising from the proposals will need to be considered by the Authority’s legal department to ensure that employment legislation is complied with.
12. Recommendations
It is recommended that Cabinet: i) Note the successful capital bid under the final School Building Improvement Grant allocation and approve the proposed funding for the Council’s contribution.
ii) Endorse the proposed capital investment priorities for inclusion within the Authority’s Strategic Outline Programme. iii) Note the proposed commencement of statutory consultation regarding the next priority proposals, as part of a wider review of school provision in Swansea which are the subject of separate reports which provide more detail. iv) Note that further reports will be provided for Cabinet outlining the feedback from the statutory consultation and the outcome of the Strategic Outline Programme. v) Endorse the appropriate engagement of schools to advise them that the parcels of land identified will be disposed of as soon as is practically possible.
vi) Subject to current Council policy, all proceeds from eventual asset disposals will be available for reinvestment in the QEd 2020 Programme.
vii) Note that the disposal programme is intended to maximise receipts to enable essential investments in schools.
Background papers: – ‘A Better Swansea : Schools for the Future’ – Nov 2004 – ‘A Better Swansea : Schools for the Future – Taking the Vision Forward’ - February 2005 – Children & Young People Plan – Former Single Education Plan – Welsh Education Scheme 2006 - 2011 – Education Service Asset Management Plan – adopted October 2007 – Follow up / Progress on recommendations arising from previous Scrutiny Review : School Occupancy Levels and Innovative Solutions - Report to CYP Scrutiny Board 3rd November 2008 – Stakeholder Forum Information Pack – July 2008 – Stakeholder Forum Information Pack – October 2008 – Quality in Education 2020 – Report to Cabinet on 18th November 2008 – Quality in Education 2020 – Stakeholder Process - Report to Special Council on 10th December 2008 – Stakeholder Forum Information Pack – January 2009 – Stakeholder Forum Information Pack – March 2009
Contact officers: Richard Parry, Strategic Director of Education 01792 637515
Brian Roles, Head of Education Planning and Resources 01792 636357
Janet Hooper, Directorate Lawyer Legal & Democratic Services 01792 636148
APPENDIX A
Quality in Education (QEd) 2020 Programme
1 Delivering the Clear Vision for Education in Swansea
1.1 Considerable work has been undertaken to build a firm basis for the progressive review of all our schools, consistent with the clear lessons learned by other Authorities and accepted good practice. 1.2 A report to the Special Council on 10th December 2008 set out in some detail the extensive and inclusive stakeholder engagement process that has been undertaken, so there is no need to repeat the same detail in this report. 1.3 There has already been a significant impact. In particular: • Accommodation improvements have been delivered in a number of schools with a demonstrable impact on educational outcomes. • Additional places and facilities have been created to meet basic needs (e.g. Specialist Teaching Facilities and Welsh medium primary places). • There has been an effective ongoing programme to remove sub- standard accommodation, particularly demountables, so reducing future financial liabilities. • There has been a net removal of surplus capacity – an estimated 2,273 English medium places between 2004 and September 2011, the closure of 4 primary schools and the replacement of 11 separate Infant and Junior schools by 5 new all-through Primary Schools as part of an overall rationalisation of school sites, should the most recent proposals be approved by the Minister • The creation of additional Welsh Medium places – should the most recent proposals be approved by the Minister, an estimated 1,571 places between 2004 and September 2011 • The release of revenue funding from the Education Budget to support the Council’s prudential borrowing and capital priorities. • The realisation of capital receipts for re-investment in Council priorities.
1.4 The Quality in Education (QEd) 2020 Programme was launched by the Leader of the Council to Stakeholders in October 2007, demonstrating the strong political commitment. Whilst it encompasses the previous focus on the efficient planning of school places and the rationalisation of schools it is far wider, focussing on coherence with wider educational strategies and the standards agenda. It is accepted that:
• Doing nothing is simply not an option • A step change in the condition of our buildings and facilities cannot be achieved overnight – It is a long term programme
page 1 of 6 – Future capital funding from the Assembly is uncertain – The current economic downturn and slow down in the housing market presents us with a further obstacle to overcome • We will continue to seek innovative funding solutions and to make a strong case to the Assembly for their further support in this task
1.5 Through the QEd programme we want all children and young people to have convenient access to a broad and relevant curriculum that meets their needs through a network of high quality inclusive schools. The programme has very clear aspirations, namely: • To continue to raise standards of achievement and attainment for all children and young people. • To improve the quality of the learning environment. • To make the best use of human, physical and financial resources. QEd 2020 seeks to build on all that we have already achieved, whilst recognising that we still have a great deal more to do.
2. Core Principles of the Programme 2.1 The following principles, which reflect the outcomes from the continuing engagement with stakeholders, will underpin the emerging strategy for the progressive County wide review of schools: o Stakeholder engagement - Continuing openness and partnership working. o Coherence - Consistency with wider education strategies and support of other complementary Council strategies, for example regarding the provision of community facilities across the County and the SEN Development Plan. − Proposals will only be considered where the alternative proposed will offer at least equivalent quality and diversity of education experience. − Wherever possible the Authority would wish to continue to move towards all through primary provision on the basis of the educational benefits. − The Audit Commission recommends a minimum of 600 pupils for secondary 11 to 16 schools. In terms of primary schools the Commission recommends a minimum of 90. Our experience in Swansea would support these minimum levels. Greater cost effectiveness and sustainable and stable education provision is likely to be achieved in secondary (11 to 16) schools of at least 750 pupils and in primary schools by at least 105 pupils. − There are large all through primary schools operating effectively within Swansea, as well as large secondary schools. Consequently, the Authority does not consider it appropriate to determine a maximum. o Flexibility – A process which can respond to changing circumstances.
page 2 of 6 o Objectivity - The use of a robust assessment framework as set out in the Education Service Asset Management Plan (adopted October 2007), particularly issues around suitability, condition, sufficiency and sustainability. o Cost effectiveness - Seeking the most effective use of available resources, both revenue and capital, and including school closures. o Resourced – Underpinned by an Investment Strategy, including the appropriate use of resources released.
3. Assessment Framework
3.1 The assessment framework that has been used is clearly explained in the published Education Asset Management Plan (EAMP), which itself was subject to a comprehensive consultation process and strongly supported by stakeholders. It does not rely on any single factor but rather a consideration of a number of complementary factors to identify the issues and potential options to be considered. These are not simply asset related in terms of the condition of premises but also consider the impact on standards of achievement and attainment in terms of the suitability of learning environments and the sustainability of educational provision. A summary of some of the key data considered in discussions with stakeholders is readily available as part of the Stakeholder Information packs on the Council’s web site. 3.2 The process undertaken is intended to ensure that any resulting decisions are based on the fullest possible information and discussion and therefore well founded. Accordingly, the Authority have compiled a significant amount of data across all of its assets. Further surveys have been undertaken as part of an Assembly initiatives as part of the 21st Century Schools Programme and discussions have been held to understand the basis of the resulting grades. There are 30 schools where there is a difference of two grades between the Swansea condition survey grades and the condition weighted survey ratings attributed as part of the 21st Century Schools national survey. It is understood that the condition ratings used by Swansea relate to business critical risk items, whilst the condition ratings for the 21st Century Schools surveys are weighted and focused for strategic investment decisions rather than business continuity risks. It is expected by WAG that the 21st Century Schools survey data is utilised, however, the robust local data complements this and remains valuable.
4. Area Reviews
4.1 The diagram below shows the complexity of the task of reviewing the current organisation of school places and the considerable work that has been undertaken.
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AN EVOLVING AND FLEXIBLE STRATEGY Impact of Transformation Direction of Travel & wider Secondary strategy
Impact on secondary sector intakes
Overlaying of review of Aided sector issues
Overlaying of area by area review of Welsh medium catchments
English medium cross catchment issues EAMP Assessment Area by area review of English Framework medium catchments
5. Stakeholder Engagement
5.1 The diagram below sets out the open and inclusive process that has been undertaken to build on this solid foundational work.
5.2 Following approval of the next specific proposals a further statutory consultation period will commence involving all those potentially affected by specific proposals – pupils, parents, staff and governors.
5.3 Throughout the stakeholder engagement process feedback has been sought from participants, evaluation sheets collated and lessons learned. At each stage the feedback has been extremely positive and encouraging.
page 4 of 6 AN INCLUSIVE AND STRUCTURED PROCESS Issues & Potential Options Identified for each School / Schools Assessment Model Catchment Area Area Workshops
Desirability of Potential Stakeholder Forum Options
Achievability of Potential Feasibility Work Options
Prioritisation of Deliverable Stakeholder Forum Options Wider Stakeholders
Implementation of Identified Stakeholder Forum Options & Wider Strategy Affected Schools
Business Case Considered Five Case Business Model Next Phase of Specific Proposals / Wider Strategy
6. Emerging priorities
6.1 The Authority faces a severe challenge with: • Many buildings in an unacceptable condition • Some school premises near the end of their useful life where it is simply not good use of the available capital resources to continue with patchwork repairs • Too many schools in some localities • Some schools unable to offer all-through primary provision • Some schools having a relatively small number of pupils • Some schools having insufficient capacity to meet the anticipated demand Many buildings & facilities simply do not adequately support our wider educational strategies to raise standards of achievement and attainment for all. 6.2 A considerable range of needs and options have been identified and discussed as part of the stakeholder engagement process. This has indeed demonstrated the extremely valuable outcomes from this process. It is clearly unrealistic to seek to progress all the potential options that have emerged. These must of necessity be further prioritised.
page 5 of 6 6.3 A range of initial priority options were identified and reported to Cabinet in November 2008. Whilst it is for the Cabinet to determine the specific proposals to take forward, the priority options identified sought to reflect the views of stakeholders, with a particular focus on: • Business continuity needs - where it represents good value for money, to address the identified issues to ensure the continuity of educational provision for pupils • Non compliance maintenance priorities – where it represents good value for money and the work may prevent an asset falling into a category D ranking in terms of business continuity risks • Removal / replacement of sub standard accommodation – where this removes a future liability for the Council • Basic needs – where an option will provide for a clear statutory or basic need for pupils in terms of available places and / or specialist facilities such as early years / foundation phase provision • Rationalisation options - where some investment up front can release resources in the longer term to potentially re-invest in the programme • Delivering all through primary provision - where this is currently not available • Access to external grants – where specific grants such as annual School Building Improvement Grant (SBIG) or Early Years Grant (EYG) can be utilised towards a priority option, in line with the specified Assembly criteria and subject to the necessary approval process of course. 6.4 The Cabinet report of the 18th November 2008 included a County wide map which provided an overview of the full extent of identified priorities across Swansea. Further detail of the potential options identified within each catchment area and the preferred way forward in each case is provided in the full Stakeholder Forum documentation available on the Council’s web site, subject of course to the availability of the necessary resources - both capital and revenue. 6.5 Since November 2008, the Authority has sought to progress as many of the identified priority options as possible within the resources available (see Appendix B), in particular: • Funding has been accessed to commence a range of the identified investment priorities, most recently the announcements regarding the major refurbishment of accommodation and facilities at Cefn Hengoed Comprehensive School and at Morriston Comprehensive School. • An earlier set of statutory proposals were the subject of statutory consultation and statutory notices and final approval by the Minister. • The most recent statutory proposals have been the subject of statutory consultation and statutory notices and are currently awaiting Ministerial approval.
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BISHOP VAUGHAN • No emerging proposals to date – further dialogue with Diocese required PENYRHEOL PONTARDDULAIS • Establishment of a single new build primary • Continue to address structural backlog • Address the removal of sub-standard school for Gorseinon Infants / Junior / Nursery issues and non-compliance issues at BV demountable accommodation at • Address non compliance issues at Penyrheol Pontarddulais Primary with enhancement Comprehensive MORRISTON of Foundation facilities as a priority & YG BRYN TAWE consider scope for rationalisation of site to • Establishment of a single new build primary school for • Clarify feeder link with YG Gwyr from re-invest in programme Graig Infants / Pentrepoeth Infants / Juniors Sept. 2010. (YGG Bryn Y Mor) DANIEL JAMES • Managed development of capacity at • Enhanced replacement facilities & • Review & rationalisation of existing provision, • Enhanced replacement accommodation & facilities at Penllergaer Primary possible expansion of YGG Lon Las on with scope for enhancement of facilities & Morriston Comprehensive existing or new site relocation of KS3 / 4 Education Centre – Arfryn / • Enhanced provision / facilities at YGG Clwyd / Gwyrosydd / Pontarddulais PRU BIRCHGROVE Tirdeunaw • Enhance Flying Start facilities at Blaenymaes in the short term as identified priority area • Remove sub standard accommodation at Birchgrove Primary as a priority & enhance • Enhance facilities at Daniel James Comp. YG GWYR Foundation facilities • Continue to address the need for improved facilities on site. (YGG Pontybrenin) PENTREHAFOD • Clarify YGG Bryn Y Mor as a feeder link with YG Gwyr from Sept. 2010. • Establishment of a single new build primary school with scope for enhanced provision for Manselton / Cwmbwrla • Address non compliance issues at YG Gwyr • Establishment of a single new build primary school with scope for enhanced provision for Brynhyfryd Infants / Junior & Plasmarl GOWERTON • Establishment of a single primary school for Llanmorlais / Penclawdd • Foundation Phase enhancements for DYLAN THOMAS Llanrhidian site as priority • Remove sub standard demountable at Gors • Remove sub standard Pen y Fro Primary & consider scope to rationalise site demountable as part of capital to re-invest in programme & address non maintenance programme as continued compliance issues Foundation enhancement • Accommodation / toilet improvements at St • Feasibility work for proposed Foundation Helen’s Primary as a priority phase enhancements at Waunarlwydd • Enhance Flying Start facilities at Sea View in • Establishment of a single new build the short term as identified priority area primary school for Tregwyr Infants / Junior
BISHOPSTON • Need to address external toilets at Crwys Primary as a priority CEFN HENGOED • Address electrical wiring as a priority at • Continue to enhance Foundation/Flying Knelston Primary & consider some Start facilities at Pentrechwyth Primary as rationalisation of the site identified priority area • Establishment of a single primary school for Cwm / Cwm Glas • Enhanced replacement accommodation & facilities at Cefn Hengoed Comprehensive APPENDIX B DELIVERY OF PRIORITY OPTIONS OLCHFA BISHOP GORE FOR QEd 2020 • Phase 2 fit for purpose development of recently • Address accessibility issues & enhance facilities established all through primary provision at Dunvant at Brynmill Primary site as short term priority PROCEEDING OUTLINE BUSINESS CASE • Address non compliance issues at Parklands & • Address non compliance issues at Oystermouth Olchfa APPENDIX C
National Challenges Facing Education
Educational Outcomes Standards in Wales have generally been steadily improving over the last five years but he gap between the lowest and highest schools has widened. As a country, Wales does not compare well with many other countries in English, mathematics and science as shown by the PISA data
There is now a much clearer focus on the importance of the wider wellbeing of children and young people, on outcomes, on the core business of learning and teaching and on the associated accountability for improvements in these aspects. The National Purpose for Schools has been agreed and the School Effectiveness Framework has been introduced.
The aims and objectives of the School Effectiveness Framework are (i) Achieving better learning outcomes and wellbeing for all children and young people regardless of their socio economic background; and (ii) Reducing the variation in learning outcomes within and between classrooms, schools and local authorities.
The Framework will in particular focus on three inter-related priorities (i) Improved literacy levels; (ii) Improved numeracy levels; and (iii) Reducing the impact of poverty on educational attainment.
Service Delivery And Funding Levels SOLACE (Wales) (2010) has said that local government will need ‘not only to reassess existing priorities and processes but also reconsider the role of local and national government’. There is a need to develop greater economies of scale and significant service improvements through ‘whole area working’ and a ‘collaborative approach across agencies’ in response to the future economic and financial situation.
The overarching objective of the Review Of The Cost Of Administering The Education System In Wales (2010) was to ensure that a greater proportion of costs for education reach the frontline. The Minister would like local authorities and all educational institutions to respond by 20th September 2010 and (i) Highlight the actions already in hand which will contribute to the shift in funding indicating what level of savings these will achieve and the timescale for implementation; and (ii) Consider what the hypothesis in the report mean to your organisation, your sector, your geographical region and how do you intend to respond to them. including an initial assessment of timescales and the savings that will be achieved
The First Minister made a commitment in 2009 to narrow the gap year on year between the level of the Welsh Assembly funding per pupil in Wales compared to England. Currently the gap is about £530 per pupil.
The WLGA negotiation strategy for future local government settlement argues for protection of the Revenue Support Grant (RSG) to help preserve front line services and for reduction in some grants which tend to focus on discretionary activities as well as having large and wasteful administrative costs associated with them.
Local Authority Responsibilities For Education The Local Authority has a duty under the School Standards and Framework Act (1998) to raise standards in schools. This is further reinforced under The Education and Inspections Act 2006 section 1 which places a statutory duty on local authorities to secure good outcomes for local children and young people, including duties to protect the welfare of children in their area and to promote the fulfilment by every child of his educational potential.
The WLGA identified the roles in Wales (WLGA (2002)) as (i) Educational leadership and partnership (ii) Local needs analysis and planning (iii) Effective resource management (iv) Equality of opportunity (v) Support and challenge to schools; and (vi) Lifelong Learning
The LGA (20101) identified Local Authorities as commissioners of services in the future with roles to : 1. Ensure that all children and young people have a school place that meets their needs and ambitions 2. Make sure that there is diversity in the types of school available 3. Encourage schools and learning providers to work together in commissioning other services that support children and help them achieve their full potential 4. Make sure that available funding is spent efficiently and effectively 5. Challenge and support schools to ensure ongoing improvement 6. Manage changes in the system to minimise any detrimental impact on learners.
National Purpose For Schools In Wales This was outlined as part of the School Effectiveness Framework in 2008. 1. Enable all children and young people to develop their full potential by acquiring skills, knowledge, understanding and attitudes, including personal, social and emotional skills, to enable them to become economically, socially and personally active citizens and lifelong learners; 2. Promote a culture of social inclusion and respect for diversity, particularly through developing the wellbeing of learners and personalising their learning; 3. Establish strong professional learning communities in schools where practitioner can develop and share their professional knowledge ion learning and teaching; 4. Offer children and young people a curriculum that engages and motivates them to learn and to achieve their potential; 5. Provide a learning community for all engaged in school life, with children and young people and their families at the centre, and including governors, teachers, other school staff and adults training to work in schools; 6. Be a key player with other schools and partner service providers in planning and delivering integrated services for children and young people to improve their wellbeing; 7. Provide or facilitate education so that schools contribute to meeting the needs of the community and engage the community as partners to ensure that all schools are community focussed.