REPORT TO THE CABINET 19 May 2015

Cabinet Member: Councillor Gareth Thomas

Subject: The Future of Education Provision in Y Gader Catchment Area

Contact Officer: Iwan T Jones – Corporate Director

Decision sought i. Implement the proposal to close Ysgol Y Gader, Ysgol Gynradd , Ysgol Brithdir, Ysgol Machreth (), Ysgol Ieuan (Rhydymain), Ysgol Dinas , Ysgol , Ysgol Friog, Ysgol y Clogau () and Ysgol on 31 August 2017 and establish a community Catchment Area All Through School for 3-16 year olds on the existing sites of Ysgol Y Gader, Ysgol Gynradd Dolgellau, Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd and Ysgol Friog, on 1 September 2017. ii. As a result of the importance of appointing a head teacher and the need for him/her to be appointed in advance, approve the establishment of a shadow governing body during the Summer Term of 2015 and finance the head teacher of the All-through Catchment School from the scheme savings as soon as possible.

Local members’ views

Any observations by the Local Members will be presented at the meeting.

1. INTRODUCTION

1.1 The Council has been implementing the Excellent Primary Education for the Children of Gwynedd strategy since it was adopted in April 2009. On 9 October 2012, the Cabinet decided on a 'Priorities Plan – Reorganisation of Education Provision’ based on this strategy.

1.2 In accordance with the Excellent Primary Education for Children in Gwynedd Strategy, there have been discussions regarding the provision of education in Y Gader catchment area, Dolgellau since 2010.

1.3 A report was submitted to the Cabinet on July 16 2013 which explained the vision for the catchment area. The essence of the outline vision would be to aim for ensuring the following outcomes: • The same opportunities and experiences for all pupils in the catchment area • More consistency across the entire catchment area • Better continuity across the age range • Opportunities to share staff expertise and more opportunities in terms of professional development • Wider opportunities to coordinate public services especially support for families • Strengthening the education provision across the catchment area and set the foundations for collaboration, joint planning and joint development in the future

There is an aspiration to ensure robust and sustainable education provision in the entire catchment area and across all sectors. This will involve considering the rationalisation of the number, nature and status of the schools in some parts of the catchment area. In realising the vision in full it will mean that it will be possible to strengthen the education provision in Y Gader catchment area.

1.4 In December 2013 a report was submitted to Cabinet in which approval was given to looking at the catchment area as a whole, in accordance with the following recommendations:

i. To confirm extending the work in order to create a range of models which will serve the catchment area in its entirety, with the aim of putting before the Cabinet specific recommendations for statutory consultation in accordance with Section 48 of the Schools Standards and Organisation Act 2013. ii. To give authority to undertake an assessment in order to identify and measure the need within the catchment area for education provision of a specific category and designation as part of, and to meet the requirements of, the process of identifying recommendations in accordance with i. above. iii. To consider the possible financial implications and the options for meeting those implications and thus guarantee that any further requirements for implementing this plan are included in the review of the asset management plan. iv. Since the Church Voluntary Schools come within the remit of the process, delegate to the Cabinet Member for Education the task of conducting a pre- consultation with the Church if necessary, in accordance with the Schools Organisation Code 2013 requirements, before submitting a further report to the Cabinet on the favoured option, requesting permission to undertake a statutory consultation period on this option.

1.5 In September 2014 a report was submitted to the Cabinet in which the following recommendations were approved:

i. To undertake a process of statutory consultation in accordance with the requirements of Section 48 of the Schools Framework Standards Act 2013 to close Ysgol y Gader, Ysgol Gynradd Dolgellau, Ysgol Brithdir, Ysgol Machreth (Llanfachreth), Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd, Ysgol Friog, Ysgol y Clogau (Bontddu) and Ysgol Ganllwyd on 31 August 2017. ii. To undertake a process of statutory consultation in accordance with the requirements of Section 48 of the Schools Framework Standards Act 2013 on the preferred option, namely to establish a community catchment area All Through School for 3-16 year olds on the existing sites of Ysgol y Gader, Ysgol Gynradd Dolgellau, Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd and Ysgol Friog, on 1 September 2017.

1.6 The Gader Catchment Review Panel (CRP) was established in April 2010 and seven meetings were held. There were representatives from each school on the Panel, head teacher, chair of governors and parent-governors. Invitations were also sent to the Local Members and to a representative from the (Diocese of Bangor) and a representative from Coleg Llandrillo Menai.

1.7 The Panel received and discussed a wide range of evidence including school statistics, financial background, information about developments on a national level (including the

Government's guidance on dealing with school reorganisation proposals) and new regulations on establishing collaboration/federation patterns between schools.

1.8 A Catchment Review Panel was held in May 2014 in which background work based on the entire catchment area was submitted. This included a long list of models based on the catchment area, the proposed way forward (the current direction) and an explanation of the statutory processes.

1.9 An important context is the capital investment available for the catchment area. Since discussions have commenced in this catchment – a programme of capital investment was adopted by the Welsh Government known as the Twenty First Century Schools Programme. As part of this programme, £3.6million has been earmarked for Y Gader Catchment Area, a sum which has been approved in principle. Comprehensive business cases will have to be submitted to attract the funding. Detailed consideration needs to be given to the best use of the investment and as discussed in the Cabinet report of December 2013, as the whole catchment is being discussed, any additional financial needs will be included as part of the review of the asset management plan.

2 STATUTORY CONSULTATION PERIOD

2.1 In accordance with the statutory requirements of the School Organisation Code (006/2013) and the Schools Standards and Organisation Act 2013, a period of statutory consultation on the proposal was held with relevant consultees between 10 October and 1pm on 24 November 2014.

2.2 A statutory consultation document was prepared, in accordance with the requirements and guidance of the Schools Organisation Code (006/2013) and the document was distributed to relevant consultees. The document and all background documents can be seen on the Council’s website www.gwynedd.gov.uk/trefniadaethysgolion .

2.3 82 responses to the statutory consultation were received including responses from pupils, staff, governors and individual parents, as well as several bodies.

2.4 In November 2014, two open days were held in Glan Wnion Leisure Centre, Dolgellau. There was an exhibition of the information contained in the consultation document and officers from relevant departments (e.g. education, property, personnel etc.) were available to explain and respond to enquiries. There was also an opportunity to have copies of any documentation and to submit written observations. Over 100 people attended these open days.

2.5 A consultation document and questionnaire were created for primary and secondary pupils. A specialist facilitator was arranged to visit all the schools in order to hold sessions with the pupils to seek their opinions.

2.6 During the consultation period, a response was received from Estyn which noted that the proposal was “likely to maintain and possibly improve the existing standards of the educational provision” in the catchment area. A response was also received from Llandrillo Menai Group which noted that the proposal was “sensible and sustainable" and gave its official support to the development. The Council is pleased to have had this support from these educational establishments.

2.7 On 13 January 2015, a report was submitted to the Cabinet containing all the observations received during the consultation period. At the meeting, it was resolved to:

i. To approve the proposal to close Ysgol y Gader, Ysgol Gynradd Dolgellau, Ysgol Brithdir, Ysgol Machreth (Llanfachreth), Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd, Ysgol Friog, Ysgol y Clogau (Bontddu) and Ysgol Ganllwyd on 31 August 2017 and establish a Community Catchment Area All Through School for 3-16 year olds on the existing sites of Ysgol y Gader, Ysgol Gynradd Dolgellau, Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd and Ysgol Friog on 1 September 2017. ii. To approve publishing statutory notices on the proposal in (i) above in accordance with the requirements of Section 48 of the School Standards and Organisation Act 2013. iii. Following consideration of comments received during the consultation regarding the importance of appointing a Head teacher and the need for the appointment to be made in good time, to approve financing the Head teacher for the all-through catchment school from the programme savings for at least a year before the school opens in September 2017.

3 OBJECTION PERIOD

3.1 In accordance with the Schools Standards and Organisation Act 2013 and guidance in the Schools Organisation Code (006/2013) statutory notices were published on 25 February 2015 and a statutory objection period on the proposal was held with relevant consultees between 25 February and 25 March 2015.

3.2 The statutory notices were published on the school day of 25 February 2015 and were placed on the gates of the ten schools and on the Council’s website www.gwynedd.gov.uk/trefniadaethysgolion . Electronic and hard copies of the notices were distributed in accordance with the requirements of the Schools Organisation Code. It was clearly stated in the notices that it was possible for anybody to object and how it was possible to do so.

3.3 Five statutory notices were published:

3.3.1 CLOSURE OF YSGOL Y GADER, Dolgellau, LL40 1HY; YSGOL GYNRADD DOLGELLAU (Church in Wales Voluntary Controlled School), Dolgellau, LL40 2YW; YSGOL DINAS MAWDDWY, , SY20 9LN; YSGOL LLANELLTYD, Dolgellau, LL40 2TA; YSGOL IEUAN GWYNEDD, Rhydymain, Dolgellau, LL40 2AS; YSGOL FRIOG, , LL38 2RQ on 31 August 2017.

ESTABLISH a new 3-16 All-through Catchment School (“the 3-16 school") on 1 September 2017. The 3-16 School will be on six sites, the existing sites of Ysgol Uwchradd y Gader, Dolgellau, LL40 1HY, Ysgol Gynradd Dolgellau, Dolgellau, LL40 2YW, Ysgol Ieuan Gwynedd, Rhydymain, Dolgellau, LL40 2AS, Ysgol Dinas Mawddwy, Machynlleth, SY20 9LN, Ysgol Llanelltyd, Dolgellau, LL40 2TA and Ysgol Friog, Fairbourne, Dolgellau, LL38 2RQ.

3.3.2 CLOSURE OF YSGOL MACHRETH on 31 August 2017.

3.3.3 CLOSURE OF YSGOL BRITHDIR on 31 August 2017.

3.3.4 CLOSURE OF YSGOL Y CLOGAU on 31 August 2017.

3.3.5 CLOSURE OF YSGOL GANLLWYD on 31 August 2017.

3.4 The new all-through catchment school will be a Welsh Medium Community School for boys and girls aged between 3 and 16 years on the current sites of Y Gader, Cynradd Dolgellau, Dinas Mawddwy, Llanelltyd, Friog and Ieuan Gwynedd (Rhydymain).

3.5 Following the objection period, the Cabinet is required to consider the formal objections report as well as the responses to those objection prior to making a final decision.

4. OBJECTIONS RECEIVED DURING THE OBJECTION PERIOD

4.1 The purpose of this part of the report is to present a summary of the objections received during the objection period as well as the Council’s response to them. All objections have been analysed and the Council’s response noted. The full information can be seen in Appendix 1 of this report.

4.1.1 A total of 53 written objections were received either on paper or via e-mail. An electronic petition was also received which had been signed by 179 individuals agreeing with the following statement: “We, the undersigned, call upon the Minister for Education and Skills in Wales and the Head of Education in Gwynedd to save Ysgol y Clogau, Bontddu, Gwynedd from being closed."

4.1.2 Following receiving the objections, they were analysed and sorted under the following headings: • Education • The Community • Staffing Matters • The Welsh Language • Transport and Travel • Site and Structure Matters • Governance and Admission • The Statutory Process • Finance • Statistics • Alternative Options • General

4.1.3 No objections were received to the proposed community status of the All-through Catchment School.

4.1.4 As part of this proposal, it is not intended to add or remove nursery classes; no objections were received on that aspect and therefore the matter is not referred to in this report.

4.1.5 As part of the proposal, there is no change to the existing arrangements in the Tŷ Aran and Tŷ Meirion provision. The future of Tŷ Aran and Tŷ Meirion has been considered as part of another project which deals with the future of SEN education provision in and Dwyfor. Tŷ Aran will relocate to a new Meirion-Dwyfor school in in September 2016 and the Tŷ Meirion Unit will remain on the Ysgol y Gader site.

4.2 EDUCATION

4.2.1 Some objections were sceptical of the outcomes expected to be seen as a result of implementing this proposal, in particular educational outcomes. It was noted that there was an element of risk as there is no example of this type of educational establishment in the County. Some respondents noted that education in the catchment area should progress but not by taking a risk, given that the all-through catchment school model is as yet unproven.

4.2.2 Improving the quality of education and children's experiences is one of the main objectives of the County's schools reorganisation strategy. Improving the quality of education and factors such as class sizes, leadership and management, pupil numbers, quality and suitability of buildings which all affect the pupils’ experiences, were factors which were considered when presenting this proposal.

4.2.3 This type of proposal could provide an opportunity to improve educational standards across the catchment. Establishing one school could enable the flexibility across all the ages so that sharing resources, staff and facilities, becomes standard practice. There are reasons why this doesn’t happen to a greater extent at present such as multiple headteachers and governing bodies had to agree before any sharing could occur.

4.2.4 The all through school model should provide a more effective context for managers to manage resources and to plan education within the establishment. An all through school could provide additional opportunities for maintaining the ethos and general values across the school and these should provide a more effective context for improving the quality of teaching and learning.

4.2.5 It is true that this model is innovative; however, this should not be a reason for not taking the opportunity to establish a strong educational system for the future. The all-through school model has been established in four schools in Wales and there is a federation in south Wales which includes one secondary school and four primary schools. The Council has undertaken research and discussions with the managers of these establishments and has adapted the model to meet the specific requirements of Y Gader catchment area. The merits and risks of the model have been considered in full when evaluating the models, and it is considered that the all-through catchment school is the best way forward.

4.2.6 Several objectors noted that the quality of education in small, rural primary schools, specifically Ysgol y Clogau and Ysgol Brithdir, is much better than in larger schools due to their close and familiar nature, and the pastoral care and community education and extra- curricular experiences provided in those schools. It was noted that Ysgol Brithdir was better than nearly every other school in terms of the number of children attending, size of classes, financial cost per pupil and the academic attainment. A large number of respondents who objected to the closure of Ysgol Brithdir referred to the fact that the school provided excellent education and had recently been placed in the green category. Objections were received which referred to the fact that the extra-curricular element in Brithdir was crucial and an important part of the development of the pupils themselves but also an important contribution to the community.

4.2.7 It was also noted that Ysgol y Clogau was one of only two primary schools in the area to receive a Grade 1 in five of the seven fields in the most recent Estyn report. A large number of respondents who objected to the closure of Ysgol y Clogau emphasised the fact that the school had provided education of the highest quality for decades and asked why change was necessary.

4.2.8 The intention of this proposal is to provide opportunity for pupils in the catchment area in the entire age range (3-16). It will rationalise the size and age range of classes in the majority of the primary sites, offer social and educational benefits in terms of pupils being able to learn and play alongside their peers. The intention here is to create rural and urban sites of a sustainable size for the future given the declining number of children in the catchment area. The Council has committed to keeping rural education in the catchment area, by keeping the sites of Dinas Mawddwy, Llanelltyd, Rhydymain and Friog. In terms of the size of the sites, it is recommended that a capacity of 75 is created in Llanelltyd (where places will be offered to the pupils of Ysgol y Clogau) and a capacity of 70 in Rhydymain (where places will be offered to the pupils of Ysgol Brithdir). Naturally, the hope is that the homely ethos and atmosphere of the rural schools will continue and prosper in all sites of the new catchment school. Considerable research has been undertaken to find out what needs to be spent on the sites in which it is intended to invest.

4.2.9 In terms of class sizes, all classes in Ysgol y Clogau and Ysgol Brithdir has an age range of four years (3-7 years and 7-11 years). It is anticipated that there will be less of an age range in the Llanelltyd and Rhydymain sites with, at most, three years in one class. It is anticipated that the classes in the Llanelltyd and Rhydymain sites will be more suitable with pupils being able to learn alongside their peers. The Council is pleased to hear parents praising the education provided at Ysgol Brithdir and Ysgol y Clogau, that local residents note that there is excellent care given to the pupils and that the school is a happy and close-knit one.

4.2.10 Several objections were received which referred to the fact that the expenditure on the Rhydymain site does not create a high quality learning environment and that the expenditure on Rhydymain seems to be inferior compared with the other sites in Llanelltyd and Ysgol Gynradd Dolgellau.

4.2.11 During discussions on schools reorganisation a strong desire has been expressed by residents of the catchment area to continue with rural education. Consequently, the Council has committed to keeping rural education as an option by including the Rhydymain site as part of the preferred model. This means that there is a rural education option in the east of the catchment area. The sustainability of the Rhydymain site will be more viable following the investment to extend it. If there is a wish locally to keep rural education, it is hoped that parents will support the Rhydymain educational site. By bringing the children of the local areas (Machreth, Brithdir and Rhydymain) together in one site, it is hoped that the site in Rhydymain will prosper.

4.2.12 There will be no change to the investment figure which has been earmarked for upgrading the Rhydymain site, namely £620,000. A consultation has already been undertaken with governors and staff of Ysgol Ieuan Gwynedd in order to try to address local aspirations. Any upgrading work will reach 21 st Century expectations.

4.2.13 One objector noted that there was no reason why staff from sites should not meet to discuss and share good practice. Indeed, it was said that this was nothing new and that it could

happen in an informal way rather than formally. It was noted that staff and head teachers already meet regularly e.g. the ‘School to School’ project.

4.2.14 The Council acknowledges that some voluntary collaboration arrangements already exist in the catchment area. As the schools are currently separate educational establishments, with individual governing bodies, it is not easy to ensure consistency across all the schools. For example, one body could decide not to collaborate at any time. Although the same curriculum is followed at present, the new proposal could ensure that the same themes are taught at the same time to make collaboration during a specific school term possible. The Council acknowledges that the existing schools work within the same procedures; however, by establishing one school under one management system (one governing body, one head teacher and one management team) the experiences will be further synchronised.

4.3 THE COMMUNITY

4.3.1 Objections were received from the residents of the rural villages in the catchment area, in particular Brithdir and Bontddu who felt that closing the school in the village would mean the end of the community.

4.3.2 The purpose of a school in any village is to provide the highest quality education to the pupils. However, it is acknowledged that a school can be an integral part of the neighbouring community and that residents have strong feelings about keeping the local school. The Council acknowledges that facing change of any type can cause instability. Should the Cabinet decide to proceed with the proposal, every effort will be made to seek to mitigate the change and communicate information in a timely manner to each of the stakeholders affected by the proposal.

4.3.3 Community links will be one of the considerations when establishing the proposed new school. The Council acknowledges that closing educational sites in a village can have a negative impact on the community but that mitigating measures can reduce that negative impact. The report on the Assessment of the Impact on the Community suggests the following mitigating measures:

• “In order to create an inclusive spirit and ownership, it should be ensured that, at the start and throughout the transitional process, Governors of each school are an integral part of the developments and the decisions with regular information disseminated to parents • Appropriate consultation with the local villages and communities in terms of agreeing on appropriate use of all buildings in future • It should be ensured that a proportion of the new schools’ social activities (concerts, coffee evenings etc.) are held in the villages where the schools will close, as well as the villages where a school site will remain • The Council should ensure that school transport plans are appropriate”

Should the model be implemented, the Council could give suitable consideration to the mitigating measures noted here.

4.3.4 Consideration has been given again to the impact on the community regarding the proposal, following receiving the objections. It is considered that the assessments are still current and relevant to the recommendation.

4.4 STAFFING MATTERS

4.4.1 Some of the objections referred to the committed, professional and conscientious staff in the schools of the catchment area and that in recent times they had lived under the threat of the closure of their schools. Some objectors noted that uncertainty regarding jobs after September 2017 had resulted in a period of instability and that staff members had not been given information about what the recruitment process would be.

4.4.2 The Council acknowledges that this is a period of uncertainty which could result in stress. Should the final decision to implement the proposal be made, the Council’s Human Resources Service advisors will be available to assist throughout the process. Clear and open communication with staff will be a core part of the implementation of any proposal.

4.4.3 The Council has been clear from the beginning of the process that the proposal includes the closure of every school. The decision regarding the number and types of jobs in the new schools would be a matter for the shadow governing body and the head teacher. Until such time as a shadow governing body has been established, neither the appointment of a new head teacher nor the creation of a new staffing structure can happen. There will a recruitment process for the new school.

4.4.4 Some objections were received regarding the leadership situation in Y Gader catchment area. In addition, leadership challenges which have arisen in the secondary school recently were mentioned and questions were raised as to why the changes seemed to affect the primary sector more than the secondary sector.

4.4.5 Ysgol y Gader is receiving additional help and support in order to further develop the leadership and management which is already in place and measured through the monitoring of the pupils' attainment standards. In 2014, there was strong evidence that the collaboration between staff, governors and officers had come into fruition with the local and national results and ratios available to parents. At present, a Strategic Head is working with the acting Head in Charge and two Assistant Heads in order to respond to a specific improvement plan which has been drawn up jointly with GwE officers and which is regularly monitored by a sub-panel of the governing body.

4.4.6 Some objectors noted concerns as to whether it would be possible to appoint a head teacher of a high calibre given the recruitment problems for head teachers in the catchment area. Some expressed concerns that the head teacher would not be from an educational background.

4.4.7 By September 2015, several schools in the catchment area will be without a head teacher or depending on an acting head. The situation is now completely unsustainable and requires a quick resolution or the situation will have far-reaching effects on the education of the pupils in the primary sector and the secondary sector in the area.

4.4.8 It is agreed that appointing the appropriate individual to the post of Head teacher for the all- through catchment school will be crucial. It will require someone who has a clear vision, presence when dealing with parents and other key stakeholders and the ability to earn respect, collaboration and credibility amongst staff and pupils on all the school’s sites. However, it is also believed that appointing enthusiastic, experienced and professional staff on the six sites will be extremely important and core to the success of the new school.

4.4.9 In terms of the workload of the Head teacher, it will need to be ensured that the staffing structure which will be developed will facilitate the work on a daily basis and the workload distributed between the senior management team in order to ensure that the school is run in the most effective way in the interests of the pupils. It will be the responsibility of the shadow governing body to appoint the nead tecaher but it is anticipated that the head teacher will be from an educational background, either from the secondary or the primary sectors.

4.4.10 Based on lessons learned in other counties, the Cabinet has committed to fund the head teacher for at least a year prior to the opening of the proposed all-through catchment school. Given the critical situation of leadership in the catchment area, should the Cabinet decide in favour of the proposal, it is recommended that a shadow governing body is established as soon as possible. This will allow for time to prepare so that appointments and staffing structure can be created as well as ensuring sufficient time to create firm policies and procedures before the school opens.

4.5 THE WELSH LANGUAGE

4.5.1 Some objectors felt strongly that the new All-through Catchment School should not be given the status of a Welsh School. It was noted that the fact that Ysgol y Gader is a naturally bilingual community comprehensive school made the school more attractive and acceptable to attract families within some areas within and outside the catchment e.g. residents of the area.

4.5.2 Linguistic status has to be earmarked when a new school is established – in accordance with the Schools Organisation Code (006/2013) and the lead document from the Government, “Defining schools according to Welsh medium provision” (023/2007).

4.5.3 Linguistic status is a technical term in Gwynedd since the language policy for the schools within the County is relevant to all schools and means that all schools are subject to the same expectations. The aim of the policy is as follows: “The aim of the Language Policy is to ensure that all the pupils within the county have the appropriate linguistic skills in both Welsh and English. The expectation is the same for every one of the schools...... Although the general aim of the policy is bilingualism, the balance is weighed in favour of the Welsh language.”

4.5.4 Looking at the proposal as a whole and given that all primary schools are Welsh-medium schools, giving the primary sector a bilingual status would have a negative effect on the Welsh language. In accordance with the predictions for September 2017 there are more primary pupils than secondary pupils. In practice, there will be no change in the everyday language provided for the secondary pupils since it will be necessary to provide education through the medium which serves the demographic cross section of the catchment area.

4.5.5 One of the challenges of establishing the all-through catchment school would be establishing the appropriate linguistic structure across the age sector. Responding to the challenge and implementing the Language Policy will be the responsibility of the Head teacher and the Governing Body, with assistance from the Authority.

4.5.6 Amongst the objections, it was noted that the catchment area’s rural schools sustain the Welsh language e.g. 93% of pupils in Brithdir are fluent Welsh-speakers and it would be a shame to weaken the language by closing the schools where the language is at its strongest.

It was also noted that non-Welsh-speaking children move into Ysgol y Clogau and in no time they understand and can speak Welsh.

4.5.7 In the context of Y Gader catchment area, an Independent Linguistic Impact assessment was commissioned in order to assess the possible models. This assessment pointed out the inconsistencies within the catchment area in terms of the Welsh language, but also noted the benefits of moving ahead with the favoured model of creating a Welsh medium school for 3 – 16 year old pupils: “Model 8: Verdict of positive impact which offers an opportunity to ensure consistency across the entire catchment area. Whilst it is not possible to set every model in a score position according to impact on the language, we gather that this model offers special opportunities in terms of the planning and the provision of statutory education, which will be consistent and the outcome of one complete vision rather than various directions from a number of establishments which will be inevitable, and various standpoints in terms of attaining the County’s language policy with the aim of creating bilingual, proficient young citizens. In a catchment area where the Welsh language is facing many basic challenges, it is indeed possible that planning the provision according to one vision is the best method of trying to achieve the aims of the language policy, utilising the additional staffing and teaching resources that one establishment would have for best use across the various sites of the catchment area.”

4.5.8 Consideration has been given again to the impact on the Welsh language regarding the proposal, following receiving the objections. It is considered that the assessments are still current and relevant to the recommendation.

4.6 TRANSPORT AND TRAVEL

4.6.1 Some objectors mentioned that the proposal would involve a larger number of pupils travelling further to school, higher transport costs and a negative impact on the Council’s carbon footprint.

4.6.2 The Council acknowledges that more pupils will travel further to their education site; however, no pupils will travel in excess of the distance stipulated in the County/National policy. In referring to the carbon footprint and transport costs, we need to consider the fact that four educational sites will close. This involves revenue net savings of £255,625 (after deducting transport costs), and some of the remaining sites will be upgraded and environmentally improved. This will lead to a more effective system than the existing regime.

4.6.3 Some noted that planning to have 3 year old children travelling with 16 year olds is unsuitable and that travelling from site to site on a daily basis is unacceptable and a waste of time.

4.6.4 It is not intended that pupils should travel from site to site on a daily basis. Occasionally it would seem advantageous – in terms of the pupils’ education – to make use of resources on other sites e.g. the older pupils in the primary sector attending science lessons in the laboratories of the secondary sector in Y Gader. There is no intention for 3 and 16 year old pupils to travel together to school.

4.6.5 In terms of the distance of the site, free transport would be offered in accordance with Gwynedd Council’s Education Department transport policy.

4.6.6 Several objectors noted that Ysgol Brithdir is the most central site, it is convenient for parents since a number already transport their children there. It was stated that the pupil numbers at Ysgol Brithdir are high with no surplus places and it offers itself as the most viable site into the future. Some respondents mentioned that there is a nursery nearby in Brithdir which facilitates matters for parents and also the travelling distance to Rhydymain will be a major inconvenience. A higher number of pupils will have to travel to school and some respondents stated that parents will not carry their children from Dolgellau to Rhydymain on account of the distance. In the opinion of some respondents, this could affect the viability of the Rhydymain site into the future. A number agreed that the Brithdir site would be the viable one for the future, and a number of requests were put forward for the development of the Brithdir site to be reconsidered.

4.6.7 The Council acknowledges the fact that the Brithdir site indeed has its virtues, and there are a number of reasons why it was decided to include is as a site in the previous consultation (2011). See below for the reasons for the decision not to invest in Brithdir. The Council acknowledges and accepts that this decision has been disappointing for the parents, staff, pupils and residents of Brithdir who wanted to see the site being developed.

4.7 SITE AND STRUCTURE MATTERS

4.7.1 Several of the objectors noted that they were unhappy with the fact that the Council had done a U-turn on its original intention to develop and extend the Ysgol Brithdir site. Several objectors referred to the fact that they were disappointed and angry with the Council in terms of the processes which had been followed. Some felt that they had been misled regarding matters such as the suitability of the land in Brithdir for extending the school, the process of submitting a planning application to the Snowdonia National Park Authority and the communication between the Council and parents, pupils and members of staff at Ysgol Brithdir.

4.7.2 The Council acknowledges that the process in relation to developing Ysgol Brithdir has been a difficult one. The main reasons for not continuing with the previous proposal to create a multi-site area school were:

o The significant risk of not being able to secure planning permission. During the design period the opinion of the planning officers became much more negative than during the consultation period and they became more concerned as time went on. We had reached a point where the chance of being successful was small if not impossible. This is therefore the main reason, a matter which money cannot overcome.

o During the design period the Governments’ requirements became clearer. In order to use grant money, additional expenditure was required on the nature of the construction in order to meet very high environmental requirements Also, an additional 70m 2 was required than originally presumed in order to meet the expected standards to ensure grant funding.

o During the design the Park insisted that the level of the new building would have to be significantly lowered (up to 3m) so as not to infringe upon the existing school and the amenities of the house at the rear. The present school is already 1 metre higher than the site next door and therefore it would be necessary to excavate 4 metres. The specialist survey confirmed that a rock was found 1 metre underground. This in itself did not mean that it was impossible to achieve the development but it

obviously added to the costs. The difference in levels also meant that a complex and costly link would have to be created between the old and new buildings, including a lift etc.

Due to technical problems and the increasing cost of developing the site, as well as planning obstacles, the Council was required to make the difficult decision and consider other options and sites.

4.7.3 Several concerns have been mentioned regarding the sustainability of the Rhydymain site given the current low number of pupils, the high number of surplus places, the distance of the site given its location on the outskirts of Y Gader catchment area and the risk that out-of- catchment area pupils who currently attend Brithdir will not have a place in the site and will not choose to attend the site in the future either. It was also noted that the expenditure on the Rhydymain site does not create a high quality learning environment and that the expenditure on Rhydymain seems to be inferior compared with the other sites.

4.7.4 Planning places in schools is difficult due to parents’ choice and travelling outside the natural catchment area. In the proposed preferred option, there are adequate places in the Rhydymain site for the current pupils of Brithdir, Ieuan Gwynedd and Machreth. It is anticipated that the Rhydymain site will have a capacity of approximately 70 pupils and based on the September 2014 estimates there will be 66 children there, including pupils from outside the catchment area who already attend one of the three schools. There is a planned investment to spend £620,000 on improving the Rhydymain site. This means a substantial investment in order ensure educational provision at the site.

4.8 GOVERNANCE AND ADMISSION

4.8.1. Several observations were received from parents who were concerned regarding admission to the all-through catchment school and who wanted clarity regarding who would decide to which site their children will go.

4.8.2 Should the proposal be confirmed, only one school would exist in Y Gader catchment area. The Education Authority decides on admission to the school and the all-through school’s governing body will control admission to the specific sites. The governing body will need to decide what basis they will use to control admission but with assistance from the Education Department. It is likely that the Authority will recommend following the County’s admission policy.

4.8.3 In terms of governing bodies, reference was made in some objections to the fact that it is difficult to come by governors but other objections gave great praise to school governors who were very supportive of the work of specific schools.

4.8.4 Creating one governing body would reduce the number of governors needed, and it will be possible to create sub-panels of members to look at specific aspects (in accordance with the requirements and need). The body will need to focus on every site in the school and this work will be assessed as part of the All-Through Catchment School's Estyn inspections. It will be possible to have representation of governors from all parts of the catchment area. Members of the shadow governing body will be selected from members of the existing governing bodies.

4.9 THE STATUTORY PROCESS

4.9.1 Strong responses were received regarding the statutory process in terms of the validity of the process and the steps taken. Some were of the opinion that no respect had been shown towards the pupils, parents and staff of Ysgol Brithdir as the original proposal had been changed.

4.9.2 The Council is aware that any proposal to change provision causes concern and that a proposal to change educational provision is a difficult and challenging matter. This is why it is crucial to follow the statutory process, so that residents have the opportunity to give their observations during the consultation period and submit objections during the objection period if they wish to do so.

4.9.3 The Council has completed the statutory processes in accordance with the Schools Organisation Code (006/2013) and the Schools Standards and Organisation Act (Wales) 2013. Every item of correspondence received during the statutory consultation period was referred for the attention of the Cabinet Members. Their content was analysed and responses were given to the points raised. Specific attention was given to the main issued in the body of the Cabinet report discussed on 13 January 2015. All the objections received during the objection period are being submitted to the Cabinet Members. A table analysing the observations of the objections is seen in Appendix 1.

4.9.4 The Council acknowledges that there is frustration on the ground as a previous consultation had not been realised. It is true that there are a number of reasons in favour of developing the Brithdir site and the Council did decide to include it as part of the original proposal. Unfortunately, we came across significant constraints and problems leading to a significant increase in the cost of developing the site and it was decided not to proceed with the proposal to establish a Multi-site Area School in Brithdir and Dinas Mawddwy.

4.10 FINANCE

4.10.1 It was noted in some objections that it appeared that this proposal is only a money-saving exercise at the expense of effective educational provision in the catchment area. Some were also concerned about the expenditure on the process of reorganising education.

4.10.2 The Council is of the opinion that the expected savings of £255,625 is significant but it must be remembered that the financial factors (including savings) are only one consideration when it comes to school reorganisation. The Council believes that the proposed model offers a better use of resources (staff and equipment, buildings etc.) and increases efficiency and offers new experiences and advantages to the pupils. The Council is committed to fund the schools organisation process in order to secure a sustainable education system for the future in accordance with the objectives of the reorganisation strategy.

4.10.3 Gwynedd Council is committed to safeguarding education in the area by ensuring sustainable provision and ensuring that resources are distributed more fairly. The intention is to ensure that any change in the education provision for the area is robust enough to meet possible changes in pupil numbers in the future. The reduction in the number of pupils over recent years has created a significant number of surplus places in the primary schools of Y Gader catchment area – a total of 41% (or 248 in number). There is also a number of surplus

places in the secondary sector, 18% (86 places) which means that the total number of surplus places across the catchment area is 31% (334 school places). The projections cause concern as the schools will become very vulnerable, there will be too much pressure on head teachers as they seek to maintain standards and provide quality experiences and opportunities for the pupils. There is a real need to consider the personal and social well- being of the pupils attending the school at that time.

4.11 STATISTICS

4.11.1 Objections were received regarding the numbers of pupils at Ysgol y Clogau and the fact that several pre-school-age children came with their parents to a meeting at the school – these would be attending Ysgol y Clogau if it were to remain open. It was noted that these where children from the area and therefore that the numbers were sustainable.

4.11.2 The Council accepts that numbers can change and the effect of one family, as noted in the objections, can be enormous on the numbers. This is one of reasons why the Council believes that the proposal submitted will stabilise the educational provision in the area. In bringing the pupils of three schools together on the Llanelltyd site, a single family cannot have as much impact on the numbers and experiences of pupils.

4.11.3 In terms of the sustainability of Ysgol y Clogau on its own, the Council does not believe that the school is sustainable to the future. Even if the school was full with 36 pupils, this would still mean that the school would be dependent financially on receiving additional money through the staffing safety net to ensure it could employ a head teacher and teacher. Therefore, without permanent additional support, the school cannot continue.

4.11.4 Several objections were submitted which noted that Ysgol Brithdir was full, that there were no surplus places and that this in itself showed that the school was popular and attracted families from throughout the catchment area.

4.11.5 It is acknowledged that it is true that there are a number of reasons in favour of developing the Brithdir site and the Council did decide to include it as part of the original proposal. As noted above, unfortunately, we came across significant constraints and problems leading to a significant increase in the cost of developing the site and it was decided not to proceed with the proposal to establish a Multi-site Area School in Brithdir.

4.12 ALTERNATIVE OPTIONS

4.12.1 During the objection period, a group from Ysgol y Clogau enquired about the course of the alternative solution which they had presented to Gwynedd Council. The matters considered and analysed were a background to a pioneering educational solution in the Catchment area.

4.12.2 The Council was pleased to see a governing body trying to suggest a new and innovative way of providing education in the catchment area. The Council understood that the model suggested was a collaborative network between Clogau, Friog, Ganllwyd, Ieuan Gwynedd, Dinas Mawddwy, Cyrnadd Dolgellau and Gader schools. It would involve the closure of Brithdir, Llanelltyd and Machreth schools and establishing a system of informal collaboration between the other schools by jointly timetabling the primary curriculum. The model was included as part of the eight in the options appraisal. The model was appraised before the Cabinet decided on the option to consult upon in September 2014 and was included in the statutory consultation document. The model was appraised in accordance with the specific

considerations and there were several factors why it was not considered as the preferred option.

4.12.3 Enquiries were also made, during the objection period, as to why the idea of collaborating with the Further Education College in Dolgellau and extending the provision up to 19 years old was being considered.

4.12.4 The system of the College providing post-16 education in the Gader catchment area has been in place for some time. Discussions are being held with the College and it is fully aware of the proposal in question. The Council would welcome any collaboration arrangements between the College and the All-through Catchment School which would create new experiences and opportunities for the pupils and students of the catchment area. Should the final decision be made, there would be a need for discussion between the School Head teacher and the College in order to consider the possibilities.

4.13 GENERAL

4.13.1 Objections were received which expressed the opinion that the reorganisation process was a waste of money, that the Gader catchment area was being devalued due to the distance between it and , that the Council's elected members needed to look at the bigger picture in terms of community life and the strong desire by residents in the area to maintain the current situation.

4.13.2 Every part of the County is important to the Council and ensuring fairness, equality and equal opportunities for residents is crucial. This is why elected members represent the various wards within the County and as members they have the opportunity to voice the opinions of those wards in the Council. This is also why the Gader Catchment Review Panel was established, in order to ensure that representatives on the ground have the opportunity to discuss ideas, express opinions and contribute to the possible options early in the discussion.

4.13.3 The Council is of the opinion that an All-through Catchment School is the best possible response in terms of ensuring strong and sustainable education to the future. In order to achieve this, every school in the catchment area will close and a new school will be established. This involves creating an entirely new governing body, head teacher and staffing structure, with the ability to develop good educational practices which already exist in the catchment area to ensure that pupils in the area are given the best possible educational provision. Although finance, including possible savings, is one of the considerations when appraising possible options, this is not the only factor.

4.13.4 The Council accepts that a period of change and proposing a new system will cause concern to everyone associated with the proposal, including the parents of the pupils in the schools in question. Every effort will be made to try to alleviate concerns as much as possible by communicating and sharing information regularly. Should the Cabinet make the final decision to implement the proposal, a new work package of establishing the All-through Catchment School will start which will include aspects such as establishing a shadow governing body, arrangements to appoint a head teacher and the remaining staffing structure, creating a comprehensive communication plan, offering support and guidance to staff in the current schools by the Council's human resources department etc.

4.13.5 Every effort has been made to explain how the proposal will affect the pupils, staff and the wider community. As the final decision has not been made, it is very difficult to give details on some aspects of the proposal as it is not timely to do so.

4.14 PETITION

4.14.1 Some who signed the electronic petition also added comments. Those observations were analysed and it was seen that they involved the quality of education at Ysgol y Clogau, the relationship between the community and the school, the great loss should the school close, the advantages of a rural education and the far-reaching effects of the closure of this school on the culture and character of the area. A response is given to these matters under the relevant headings above.

4.15 EQUALITY

4.15.1 In accordance with the Equality Act 2010 an equality impact assessment regarding the proposals was undertaken. The assessment notes the current situation and shows that policies and procedures are in place which will ensure that the proposal considers and is in keeping with equal rights. Having weighed up the relevant factors, it was concluded that the proposal positively ensures equal opportunities and that measures are in place to ensure there is no unlawful discrimination or harassment. Arrangements are also in hand to monitor and review the situation.

4.15.2 Consideration has been given again to equality regarding the proposal, following receiving objections. It is considered that the assessments are still current and relevant to the recommendation.

5 SUMMARY

5.1 This proposal follows consideration of a broad range of possible models. These proposals were summarised into a long list of eight possible models, and these options were fully analysed by comparing advantages and disadvantages in light of specific factors. Factors in the ‘Excellent Primary Education for Children in Gwynedd’ strategy, the Schools Organisation Code, and the vision for the Gader catchment area along with other relevant factors were used. The factors included, but were not limited to:

• Quality of the Education • Class sizes and the age range within classes • Pupil numbers and surplus places • Teaching Environment – standard and suitability of buildings • School Status / Category • Leadership and staffing • The Community • The Welsh Language • Equality impact • Financial Resources • Geographical Factors

This full options appraisal was submitted to Cabinet for consideration in September 2014.

5.2 As part of this options appraisal, the conclusions of Community, Language and Equality impact assessments were also used. These assessments and all background documents can be seen on the Council’s website www.gwynedd.gov.uk/trefniadaethysgolion .

5.3 A pre-consultation was completed with the Church in Wales and the observations received were considered, along with the options appraisal and the impact assessments prior to deciding to approve holding a period of statutory consultation on the proposal. The Council is aware of the Church in Wales’ request during the pre-consultation period and efforts will continue to co-schedule the Gader and Berwyn catchment area projects.

5.4 Following consideration of all the observations received during the statutory consultation period and the objections received during the objection period, the Council remains convinced that this proposal is the best option for the future of education in the Gader catchment area. An analysis of the objections is available in section 4 of this report and the full analysis table in Appendix 1.

5.5 The proposal remains as the preferred option for several reasons. By establishing the all- through catchment school for 3-16 year olds, it will be possible to address a number of the challenges that currently exist in the Gader catchment area; to create a number of different opportunities to develop the existing foundation of education and teaching standards in the catchment area, and to offer flexibility in a number of ways to create a robust and sustainable educational provision in future. Some of the benefits of the proposal is that it will: • Improve education standards across the catchment area and enable flexibility across all the age groups so that sharing resources, staff and facilities will become a standard practice • Impact the size and age range within classes • Improve the condition and standard of schools in the catchment area by investing £4.34 million in upgrading and extending three sites, by spending maintenance accrual funds on three other sites • Enable a new and modern senior management system, which will release the head teacher from the classroom, offer flexibility with the staffing structure across the sectors and provide new career opportunities • Ensure that there is an education site within reasonable distance for all the pupils in the catchment area • Reduce the number of surplus places • Create around £255,625 of revenue savings, and rationalise the range of cost per pupil within the catchment area • Allow the best opportunity to try and deliver the language policy, by using the additional teaching resources that one establishment will have to best advantage across all the sites within the catchment area

6 NEXT STEPS

6.1 The Cabinet is required to consider the formal objections report and the Council’s responses to them in accordance with the Schools Organisation Code prior to making the final decision to continue with the proposal or not.

6.2 In some cases – following the Cabinet’s final decision – it is possible for the following to refer the proposal for consideration by Welsh Ministers: • Another Local Authority affected by the proposals • The appropriate religious body for any school affected • The governing body of a voluntary or established school subject of the proposals • A trust holding property on behalf of a voluntary or established school subject of the proposals

• A further education establishment affected by the proposals

The bodies making the referral will have to note why they believe that the decision made by the local authority is incorrect. Welsh Ministers will decide whether the proposals affect the bodies and whether they need to consider the proposals.

6.3 If the final decision by the Cabinet is to proceed with the proposal and if the proposal is not referred, the timetable will be as follows:

Create a Communication Plan in order to share information in a timely and and June 2015 relevant manner with the main stakeholders Start the process of establishing the shadow governing body Summer Term 2015 Decision on the construction tender for the Rhydymain site July 2015 Begin construction work on the Rhydymain site August 2015 Decision on the construction tender for the Cynradd Dolgellau and Llanelltyd sites February 2016 Begin construction work on the Cynradd Dolgellau and Llanelltyd sites June 2016 Open the All-through Catchment School September 2017

6.4 Should the Cabinet decide not to continue with the proposal, the statutory process would need to start from the beginning considering that a consensus has been reached regarding the unsustainability of the current situation.

7 RECOMMENDATIONS

7.1 It is therefore recommended that: i. Implement the proposal to close Ysgol Y Gader, Ysgol Gynradd Dolgellau, Ysgol Brithdir, Ysgol Machreth (Llanfachreth), Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd, Ysgol Friog, Ysgol y Clogau (Bontddu) and Ysgol Ganllwyd on 31 August 2017 and establish a community Catchment Area All Through School for 3-16 year olds on the existing sites of Ysgol Y Gader, Ysgol Gynradd Dolgellau, Ysgol Ieuan Gwynedd (Rhydymain), Ysgol Dinas Mawddwy, Ysgol Llanelltyd and Ysgol Friog, on 1 September 2017.

ii. As a result of the importance of appointing a head teacher and the need for him/her to be appointed in advance, to approve the establishment of a shadow governing body during the Summer Term of 2015 and finance the head teacher of the Catchment All-through School from the scheme savings as soon as possible.

OPINION OF THE STATUTORY OFFICERS

The Chief Executive:

“We have by now reached a crucial point in this process and it is time for the Council to move ahead and realise this innovative change. By doing this, as with any significant change, there are obviously objections. It is now crucial that we face the challenge in these objections in order to take full advantage of this unique opportunity to create an all-through educational provision which is sustainable and which will ensure high quality education provision in Y Gader catchment area in the future.

One important element of course is the reference in the report to the need to invest beforehand in staff resources and that this, in turn, must be considered in relation to the savings created by the proposal. It is important that this is clearly understood when the decision is made.”

The Monitoring Officer:

“In relation to the statutory process regarding school organisation, the decision sought represents the final formal phase by the Council to confirm the statutory notices published in relation to Y Gader catchment area. When publishing the notices, opportunity and timescale were given to present objections and there is a statutory requirement, according to the School Organisation Code to report and consider the responses. It is necessary therefore for the Cabinet to consider the objections and the responses to them, prior to making a decision to confirm the notices or not.”

The Head of Finance Department:

“My previous comments to the Cabinet remain valid, which is that the forecast of an annual revenue savings of at least £255,625 is based on thorough work and evidence.

In January 2015, the Cabinet agreed to fund the post of the head of the catchment area all-through school for at least one year before the opening of the school in September 2017. I noted at the time that this would be a one-off cost, and that there are appropriate ways of dealing with this matter. By now, I note the aspiration to fund the post of the new Head as soon as possible. This is a sensible request when considering the substantial preparatory work that will be necessary, but it does mean that these one-off costs will total around £150,000. It is expected that much of these costs will need to be funded from the first years’ savings, which will mean a slight delay before the savings are achieved in full, but they will not affect the subsequent achievement of the scheme.

The Cabinet should also consider if there will be further one-off costs, which have not yet been considered, when preparing to open the new school.”

APPENDICES

The Council’s analysis and response to the observations receiv ed during the Appendix 1 statutory objection period

BACKGROUND DOCUMENTS

All background documents relevant to the proposal can be seen on the Council’s website by following this link www.gwynedd.gov.uk/trefniadaethysgolion .

The background documents include:

• Schools Organisation Code 006/2013 • Schools Standards and Organisation Act (Wales) 2013 • Excellent Primary Education for the Children of Gwynedd Strategy • Priorities Plan – Reorganisation of Education Provision • Welsh Government Faith in Education document • Agenda and Minutes of the Gader Catchment Review Panel Meetings • Statistics Pack • Language Impact Assessment Report • Community Impact Assessment Report • Equality Assessment • Assessment of the Need for Different Types of Schools • Cabinet Report and Decision Notice – 16 July 2013 • Cabinet Report and Decision Notice – 17 December 2013 • Cabinet Report and Decision Notice – 16 September 2014 • Cabinet Report and Decision Notice – 13 January 2015 • Statutory Consultation Document 10 October - 24 November 2014 • Consultation Document • Consultation Documents with the Primary and Secondary Pupils in the Catchment Area • The Council’s analysis and response to the observations received during the statutory consultation period • Analysis of the consultation with children and young people by a specialist facilitator • Statutory Notices published on 25 February 2015