Attracting, Developing and Retaining Effective Teachers in the United Kingdom of Great Britain and Northern Ireland
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ATTRACTING, DEVELOPING AND RETAINING EFFECTIVE TEACHERS IN THE UNITED KINGDOM OF GREAT BRITAIN AND NORTHERN IRELAND OECD COUNTRY BACKGROUND REPORT Alistair ROSS and Merryn HUTCHINGS Institute for Policy Studies in Education London Metropolitan University MARCH 2003 CBR/UK(2003) NOTE This Country Background Report (CBR) for the United Kingdom of Great Britain and Northern Ireland has been prepared as part of the OECD Activity on Attracting, Developing and Retaining Effective Teachers. Country Background Reports are being prepared by all twenty-three countries participating in the project, to be used in the common Analytic Review. A Thematic Country Review will take place in a smaller group of nine countries, not including the UK. This report was prepared for the Department for Education and Skills, England, together with the Department of Education, Northern Ireland; the Scottish Executive Education Department; and the Department of Education and Training, Wales. The document was prepared in response to guidelines the OECD provided to all participating countries. The guidelines encouraged the authors to canvass a breadth of views and priorities on teacher policy issues. The opinions expressed are not necessarily those of the national authority, the OECD or its Member countries. The CBR is intended for three main audiences: the Secretariat and other countries participating in the Activity; those interested in teacher policy within the United Kingdom; and those interested in teacher policy at international level. The Department for Education and Skills, England, has acted as the lead National Agency for the UK in commissioning this report and in helping to provide evidence and data on which it has been based. The authors gratefully acknowledge the help that has been given by many colleagues in the Department, together with those in the Scottish Executive Education Department; the Department of Education and Training, Wales; and the Department of Education, Northern Ireland. We are also grateful for the views and information submitted by a wide range of stakeholders in the educational system and included in summary in various places in this report. The stakeholders that contributed are listed in Appendix 1. The report has been prepared by Professor Alistair Ross and Dr Merryn Hutchings, of the Institute for Policy Studies in Education, London Metropolitan University. March 2003 i CBR/UK(2003) TABLE OF CONTENTS paragraph page LIST OF FIGURES v LIST OF TABLES vi EXECUTIVE SUMMARY vii INTRODUCTION 1 Teacher recruitment and retention in the United Kingdom §1 1 Current educational reforms in the United Kingdom §3 1 Scope of this report §14 3 ONE: THE UNITED KINGDOM NATIONAL CONTEXT 4 1.1 Introduction §16 4 1.2 The administration of education in the UK §17 4 Key policy priorities and developments in education §25 6 England §26 6 Wales §36 8 Northern Ireland §40 9 Scotland §43 9 1.3 Broad population trends §47 10 Minority ethnic group population trends §53 11 1.4 Economic and labour market trends and their implications for schools and teaching §57 12 1.5 Public and private resources available for schooling §62 12 1.6 Public perceptions of schools and teachers §69 14 TWO: THE SCHOOL SYSTEM AND THE TEACHING WORKFORCE 16 2.1 Introduction §75 16 2.2 The main structural features of the school system §76 16 Types of schools §78 16 Sectors and types of state maintained schools §80 17 State maintained schools in England and Wales §83 17 Initiatives in England: Specialist schools, Excellence in Cities and Beacon §87 18 Schools State maintained schools in Scotland §95 19 Grant-aided schools in Northern Ireland §97 19 Private schools §98 20 Governance of schools §103 20 Types of school curriculum and programme §112 21 2.3 Teachers in employment §121 23 Unqualified teachers §127 25 2.4 Personnel other than teachers §130 25 2.5 Organisations involved in the development of policies concerning teachers §137 27 ii CBR/UK(2003) THREE: ATTRACTING ABLE PEOPLE INTO THE TEACHING PROFESSION 30 3.1 Identification of the main policy concerns §147 30 3.2 Data, trends and factors §149 30 Methods used to determine teacher shortages, and areas of shortage §149 30 Inflow of teachers into the maintained sector §164 35 The main pathways by which people can become teachers §165 35 Trends in teacher training numbers §166 36 The extent to which those entering training go on to become teachers §173 37 Reasons why people enter teaching §177 39 Initiatives taken to attract more people into teaching §179 39 Teachers’ salaries in comparison to those of other graduate professions §193 42 Those returning to teaching after a career break §201 43 The recruitment of overseas teachers §203 43 3.3 Future policy developments §209 44 FOUR: EDUCATING, DEVELOPING AND CERTIFYING TEACHERS 46 4.1 Identification of the main policy concerns §214 46 4.2 Data, trends and factors §216 46 Requirements to qualify for employment as a teacher §216 46 England §218 46 Wales §225 47 Scotland §226 47 Northern Ireland §229 48 Initial teacher education §231 48 England §231 48 Wales §252 51 Scotland §254 51 Northern Ireland §258 52 Stakeholder concerns about initial teacher education §260 52 Provision for those changing careers or re-entering teaching after a break §263 52 England and Wales §263 52 Scotland and Northern Ireland §267 53 Induction and early professional development arrangements §268 53 England §269 53 Wales §275 54 Scotland §276 54 Northern Ireland §279 55 Continuing professional development for teachers §283 55 England §288 56 Wales §298 58 Scotland §300 58 Northern Ireland §303 59 4.3 Future policy developments §304 59 FIVE: TEACHER CAREERS: RECRUITMENT, EMPLOYMENT AND SALARY 60 STRUCTURES 5.1 Introduction §307 60 5.2 Data, trends and factors §308 60 Responsibility for employment and deployment of teaching staff §309 60 The recruitment and selection of teachers §312 61 iii CBR/UK(2003) The appointment process §312 61 Requirements for appointment §320 62 Particular arrangements for first appointments §327 63 Supply agencies and the recruitment of supply teachers §332 63 Promotion and career patterns §338 64 England §339 65 Scotland §347 67 Wales §349 68 Northern Ireland §350 68 Salary structures §355 69 England and Wales §356 69 Northern Ireland §361 70 Scotland §362 71 Movement of teachers between posts, schools and different areas §366 72 Terms and conditions of teachers’ employment §371 72 Arrangements for teacher evaluation §382 74 England §382 74 Wales §385 74 Scotland §387 74 Northern Ireland §388 74 Disciplinary procedures §389 75 5.3 Future policy developments §392 75 SIX: RETAINING EFFECTIVE TEACHERS IN SCHOOLS 76 6.1 Identification of the main policy concerns §396 76 6.2 Data, trends and factors §399 76 Teachers leaving the profession for reasons other than retirement §399 76 England §400 77 Scotland §410 80 Wales §411 80 Northern Ireland §412 81 Retirement policies §413 81 Teacher absences §416 81 Leave of absence, sabbaticals and secondments §416 81 Sickness absence §423 82 Pupil behaviour and safety of teachers §430 83 Policies to retain effective teachers §435 84 Tackling workload §438 84 England and Wales §438 84 Scotland §452 87 Northern Ireland §453 87 6.3 Future policy developments §454 87 Bibliography 89 Acts of Parliament, Orders, etc. referred to in the Report 98 Web addresses for some organisations referred to in the Report 98 Abbreviations and Glossary 99 Appendix 1: Stakeholder contributors 103 Appendix 2: Current government-sponsored research projects 104 Appendix 3: Types of school in the UK and their distribution 107 iv CBR/UK(2003) LIST OF FIGURES Figure 1.1 National and local government structures, UK, 2002 5 Figure 1.2 Pupil and teacher numbers in maintained schools in Scotland, actual (1999 – 11 2001) and projected (2002 – 2012) Figure 2.1 Percentage age pyramids, teachers in England, Wales (2002) and Scotland 24 (1998) Figure 2.2 Teachers associations and unions in the UK 29 Figure 3.1 Teacher vacancies in England 1989 – 2002 by school sector 31 Figure 3.2 Pupil and teacher numbers in England, 1985 – 2002, by sector 32 Figure 3.3 Vacancy rates in maintained nursery, primary, secondary and special schools by 33 government office region, England, and in Wales, January 2002 Figure 3.4 Vacancy rates in England for secondary subjects, January 2002 34 Figure 3.5 Inflow to teaching in the maintained sector in England: full-time and part-time, 35 2000-01 Figure 3.6 Age distribution of those completing teacher training in England, 1999 36 Figure 3.7 Full-time and part-time returners to teaching: women and men, 2000 – 01 43 Figure 5:1 Promotion level of teachers in England, 2000, by gender, age and phase 65 Figure 5.2 Promotion level of teachers in Scotland, 2000, by age and phase 68 Figure 5.3 Average salaries by age in England, March 2000 71 Figure 6.1 Outflow from teaching and returners to teaching, 2000-01 77 v CBR/UK(2003) LIST OF TABLES Table 1.1 Population aged 5-16 inclusive: actual (2001) and projections (2016, 2026), UK 10 Table 1.2 Sectoral employment vacancies, UK, 2001 13 Table 1.3 Distribution of expenditure per pupil in schools, 1999, UK and OECD mean 14 Table 2.1 Changes in the number of teachers in the past decade, by country and sector 23 Table 3.1 Recruitment to initial teacher training courses in England 2002-03 excluding 36 employment –based routes Table 3.2 Numbers entering teacher training in the UK, 1990 – 2001 36 Table 3.3 Proportion of those entering teacher training who (a) qualify and (b) enter 38 teaching, England and Wales (1998