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NIAO Report Closing the Gap – Social Deprivation and Links to Educational

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NIAO Report Closing the Gap – Social Deprivation and Links to Educational Closing the Gap – Social Deprivation and links to Educational Attainment REPORT BY THE COMPTROLLER AND AUDITOR GENERAL 5 May 2021 Closing the Gap – Social Deprivation and links to Educational Attainment Published 5 May 2021 This report has been prepared under Article 8 of the Audit (Northern Ireland) Order 1987 for presentation to the Northern Ireland Assembly in accordance with Article 11 of the Order. K J Donnelly CB Northern Ireland Audit Office Comptroller and Auditor General 5 May 2021 The Comptroller and Auditor General is the head of the Northern Ireland Audit Office. He, and the Northern Ireland Audit Office are totally independent of Government. He certifies the accounts of all Government Departments and a wide range of other public sector bodies; and he has statutory authority to report to the Assembly on the economy, efficiency and effectiveness with which departments and other bodies have used their resources. For further information about the Northern Ireland Audit Office please contact: Northern Ireland Audit Office 106 University Street BELFAST BT7 1EU Tel: 028 9025 1000 email: [email protected] website: www.niauditoffice.gov.uk © Northern Ireland Audit Office 2021 4 Closing the Gap – Social Deprivation and links to Educational Attainment Closing the Gap – Social Deprivation and links to Educational Attainment Contents Page Abbreviations 7 Key Facts 9 Executive Summary 12 Part 1: Introduction 17 Background 18 Objectives and Outcomes 18 Social Deprivation and Underachievement 20 Measures of Social Deprivation 21 Social Deprivation Funding 22 Scope and Methods 23 Part 2: Interventions 25 Introduction 26 Targeting Social Need 26 TSN Funding 27 TSN Accountability 27 The Department’s TSN Planner 29 NIAO Survey on TSN funding in schools 30 Sure Start 30 Sure Start Performance Measurement 32 Part 3: Effectiveness to date 35 Introduction 36 Assessment 36 Targets 37 The Attainment Gap between FSME and Non-FSME pupils at Key Stages 40 Key Stages 1 to 3 40 Key Stage 4 42 NIAO TSN Survey 45 Survey findings 45 Sure Start 50 NIAO discussions with academics 53 Closing the Gap – Social Deprivation and links to Educational Attainment Contents Page Part 4: Current Actions 55 New Decade, New Approach 56 The Education Transformation Programme 57 The Tackling Educational Disadvantage Team 58 Longitudinal Educational Outcomes (LEO) Database for Northern Ireland 60 Appendices 61 Appendix 1: Study Methodology 62 Appendix 2: The Department of Education’s 2019-20 funding programmes targeting socially deprived children 63 Appendix 3: TSN 2019-20 funding and allocation 68 NIAO Reports 2020 and 2021 69 Closing the Gap – Social Deprivation and links to Educational Attainment Abbreviations C&AG Comptroller and Auditor General CCEA Council for the Curriculum, Examinations and Assessment CCMS Council for Catholic Maintained Schools CCP Childcare Partnership CFS Common Funding Scheme DEIS Delivering Equality of Opportunity in Schools (Republic of Ireland) Department Department of Education DfE Department for Education (in England) DE Department of Education DHSS (now DoH) Department of Health and Social Services (now Department of Health) EA Education Authority ELB Education and Library Board EPI Education Policy Institute ES Programme Extended Schools Programme ESaGS Every School a Good School ETI Education and Training Inspectorate FSME Free School Meal Entitlement GCSE General Certificate of Secondary Education HSCB Health and Social Care Board IAS Internal Audit Service ICT Information and Communication Technology KS Key Stage LEO Longitudinal Educational Outcomes LMS Local Management of Schools LoP Level of Progression NDNA New Decade, New Approach Closing the Gap – Social Deprivation and links to Educational Attainment Abbreviations NI Northern Ireland NIAO Northern Ireland Audit Office NICS Northern Ireland Civil Service NIMDM Northern Ireland Multiple Deprivation Measure NVQ National Vocational Qualification OBA Outcome Based Accountability OCR Nationals Oxford, Cambridge and RSA National ODP Outcome Delivery Plan OECD Organisation for Economic Co-operation and Development PAC Public Accounts Committee PfG Programme for Government PISA Programme for International Student Assessment QUB Queen’s University Belfast SAT Standard Attainment Test SDP School Development Plan SLA Service Level Agreement SLC Speech, Language and Communication SOA Super Output Area TED Team Tackling Educational Disadvantage Team TSN Targeting Social Need UK United Kingdom UU Ulster University Closing the Gap – Social Deprivation and links to Educational Attainment Key Facts The amount of Targeting Social Need funding provided to £913 million schools in the 15 years between 2005-06 and 2019-20. The number of pupils with Free School Meal Entitlement (FSME) 96,686 in 2019-20. The percentage of schools that input information to the 6% Department’s TSN Planner for the 2018-19 academic year. The proportion of school leavers with Free School Meal Entitlement (FSME) achieving at least five GCSEs A*-C (or 49.5% equivalent) including GCSEs in English and Maths in the 2018- 19 academic year, compared with a target of 60 per cent. 32.1 The attainment gap between Non-FSME and FSME school leavers in 2005-06 as measured by the proportion of school percentage leavers achieving at least five GCSEs A*-C (or equivalent) points including GCSEs in English and Maths. 29.0 The attainment gap between Non-FSME and FSME school leavers in 2018-19 as measured by the proportion of school percentage leavers achieving at least five GCSEs A*-C (or equivalent) points including GCSEs in English and Maths. Executive Summary 12 Closing the Gap – Social Deprivation and links to Educational Attainment Executive Summary Introduction 1. The Department of Education (the Department) has an annual budget allocation of over £2 billion and provides funding for a range of interventions targeted at children who are socially deprived or who live in a disadvantaged community, to help raise attainment in numeracy and literacy and narrow the gap in educational outcomes. In 2019-20, the Department provided £138 million to schools and bodies in support of these aims (6.8 per cent of its overall budget), using Free School Meal Entitlement (FSME) and the Northern Ireland Multiple Deprivation Measures (NIMDM) as measures of social deprivation. Targeting Social Need (TSN) and Sure Start funding account for 73.7 per cent of the total amount provided by the Department in 2019-20. Targeting Social Need 2. Since the Department introduced a Common Funding Scheme (CFS) for grant-aided schools, in April 2005, it has provided over £913 million of TSN funding to schools. However, there is no requirement for schools in receipt of TSN funding to spend it solely on supporting pupils from socially deprived backgrounds. Only 11 per cent of respondents to an NIAO survey of schools indicated that their school used TSN funding to support only pupils from socially deprived backgrounds. 3. Since 2010, schools have been required to account for their use of TSN funding as part of the School Development Plan (SDP) process. However, the SDP information has not been collated. As a result, the Department does not know what schools are spending TSN funds on, nor how effective schools are in addressing underachievement in pupils from socially deprived backgrounds. 4. Uptake of a new TSN planner, designed to capture a range of information about the use and the impact of TSN funding, has been poor, with only six per cent of schools returning data in respect of the 2018-19 academic year. This is an unacceptable return rate. The Department advised that uptake was impacted by the timing of the introduction of the Targeting Social Need Planner during teachers’ action short of strike. Sure Start 5. Although the Sure Start programme had started in 2000, a review of the programme in 2015 concluded that the information collected on Sure Start projects’ outputs and activities did not provide the data needed to assess the effectiveness of the support provided. However, the report noted that the Department, in conjunction with the Health and Social Care Board, had begun to address the absence of outcome data in 2014 through the development of an Outcomes Framework. Closing the Gap – Social Deprivation and links to Educational Attainment 13 6. In response, a steering group was set up to oversee the implementation of the review’s recommendations and the Department recorded all actions as complete in November 2018. Sure Start projects now use a number of recognised measurement tools to assess and record the development of parents and children involved in the projects. The Outcomes Framework, and progress since 2015-16, led to the development of an Outcomes Based Accountability (OBA) Scorecard, first used in 2018-19. The Department and the Health and Social Care Board are now better able to assess whether expected policy outcomes of the Sure Start programme are being achieved. Performance against Targets 7. Educational attainment, including that of pupils with FSME, has improved in recent years. However, despite the significant funding provided by the Department to address educational underachievement, the Northern Ireland Audit Office’s (NIAO) analysis of performance data indicates that the attainment gap between non-FSME and FSME pupils increases as they progress through compulsory education, and that there has been a persistent gap in examination performance at age 16. 8. In the 2018-19 academic year, only 49.5 per cent of school leavers with FSME achieved at least five GCSEs including English and Maths, compared with a Departmental target of 60.0 per cent and a 78.5 per cent attainment rate for non-FSME school leavers. 9. The attainment gap between non-FSME and FSME school leavers has not changed significantly in the last 15 years. The gap between the percentage of non-FSME and FSME school leavers achieving at least five GCSEs including English and Maths fell slightly, from 32.1 percentage points in 2005-06 to 29.0 percentage points in 2018-19. 10.
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