! NATIONAL AUDIT OFFICE

: Report by the Comptroller and Auditor General

Scottish Education Department: Control of Further Education Establishments

Orderedby the House of Commonsto beprinted 5 June 1985

LONDON HER MAJESTY’S STATIONERY OFFICE E3.30 net

424 This report is presented to the House of Commons in accordance with Section 9 of the National Audit Act. 1983.

Gordon Downey Comptroller and Auditor General National Audit Office 4 June 1985

,: ,‘; .,,, ‘~ Contents

Scottish Education Department: Control of Further Education Establishments

Pages Summary and conclusions l-4

Report 5-10 Central Institutions: courses and student intake Colleges of Education: courses and student intake College capacity Academic staff levels Surplus accommodation Unit costs Jordanhill Demonstration School Funding and financial control Possible reorganisation of Scottish tertiary education

Glossary of abbreviations 11

Appendices 1. Central Institutions 12 2. Colleges of Education 13 3. Colleges of Education: college based students 14 4. Colleges of Education: distribution of subjects at secondary level 15 5. Colleges of Education: surplus accommodation 16 Scottish Education Department: Control of Further Education Establishments

Summary and conclusions

1. In Scotland there are eleven central institutions offering advanced voca- tional courses, and seven colleges of education which train the majority of teachers in Scottish schools. The net expenditure of these establishments on the provision of facilities and courses, after deducting income from fees and other sources, is met 100 per cent by grants from the Scottish Education Department (SED). In 1983-84 the central institutions received grants of f45.4 million and colleges of education received grants of E26.3 million.

2. This report records the results of an examination by the National Audit Office (NAO) of SED’s responsibilities for the general control of the numbers and grading of academic staff, the range and distribution of courses, and the student intake to certain courses. It assessesthe results of this work against SED’s principal aim of maintaining the output of graduates in the various disciplines at a level commensurate with need and with due regard to national priorities. The report also reviews funding and financial control arrangements.

3. On central institutions the NAO concluded that SED had been reasonably successful in overcoming difficulties in matching the provision of facilities and resources with approved needs in the face of a considerable growth in demand for courses. Central institutions were generally operating up to the limits of their capacity and as a result their main difficulty lay in meeting demands for expan- sion in the technology and engineering fields.

4. SED had been less successful in overcoming problems at colleges of educa- tion caused by a sharp drop in teacher training needs. Although they have man- aged to achieve staff reductions at the colleges, academic staff levels are still higher proportionate to the students than at broadly similar colleges. Accommo- dation in the teacher training field will continue to exceed requirements by a considerable margin for the foreseeable future. A review by the Council for Ter- tiary in 1981 concluded that the existence of colleges of education as a separate sector from the central institutions made it more difficult for them to adjust to fluctuations in the level of demand for teacher training.

5. SED have emphasised that control over unit costs and academic staff num- bers presents problems of a different order when student numbers are rising, as in the cenual institutions, than when numbers are in severeand sustained decline, as in the colleges of education. They consider that the colleges have made reason- able progress in the face of their unique predicament as more-or-less single pur- pose institutions unable to temper a precipitous fall in their intakes by any sub- stantial diversion to other educational tasks, and in the face of a decision by

1 Ministers not to consider further closures until the Scottish Tertiary Education Advisory Council has reported.

6. On funding, the arrangements for administering and monitoring the dis- tribution of funds to individual colleges and central institutions appeared gen- erally satisfactory; and the financial control procedures at SED and at the indi- vidual establishments generally effective.

Central Institutions 7. Between 1978-79 and 1983-84, the number of students attending courses at central institutions rose from 11,050 to some 15,000 estimated Full Time Equiv- alents (FTE). This increase was achieved without any significant expansion in facilities, partly through having larger class sizes; over the period SED used their powers to approve staffing levels to raise the average student:staff ratio from 9:l to 11:l (paragraph 1.6).

8. Effective machinery exists for SED approval of courses provided at central institutions, and steps are taken to avoid unnecessary duplication with other higher education establishments (paragraph 1.5). However, continuing demand for central institution courses means that resources overall are likely to remain fully stretched for the foreseeable future. This may well inhibit desirable develop- ments in the range and balance of courses. For example, recent surveys have indicated growing demands by employers for courses in engineering subjects over the next decade or so, but despite recent decisions to allocate extra funds to expand the output of technical graduates, the three colleges likely to be the main beneficiaries are already operating at or fairly close to full capacity and other courses cannot readily be curtailed to accommodate the increased requirements (paragraphs 1.10 to 1.13). Action may also be needed to reduce the surplus of graduates identified in courses on town and country planning and on architecture (paragraph 1.9).

9. More generally, although SED in balancing resources and courses seek to have regard to graduates’ career prospects where possible, there was little evi- dence of any systematic analysis of graduate output statistics as an aid to identify- ing trends in the employment market; and information collected by the insti- tutions appears to be of limited use (paragraphs 1.7 to 1.8).

i of Education 10. Owing to a marked decline in the school population in Scotland, the total number of students taking initial courses of teacher training in colleges of educa- tion hasfallen substantially since the mid-1970s-from 11,320 in 1975-76to 3,362 in 1983-84. Even taking into account teachers undertaking in-service training at the colleges and other students, mainly in social work and community education fields, the total number of students under training at about 7,070 is less than half what it was eight years ago (about 15,000). During this period, the colleges have managed to reduce academic staff levels, mainly through voluntary redundancy and premature retirement. But staff numbers have not fallen in pro- portion to the reduction in students; the 1983-84 student:staff ratio averaged 8.4~1 compared with 11:l at DES voluntary colleges and SED central insti- tutions, and SED’s eventual target ratio of 1O:l (paragraph 1.28).

11. Other matters noted included: (a) though SED take account of future requirements for trained teachers in determining the intake to colleges, the absence of reliable detailed infor- mation means that the allowance made for the considerable reserve of unemployed teachers is an arbitrary one; and certain other adjustments reflect factors not directly related to the need for teachers (paragraphs 1.16-1.17). (b) an SED statistical survey indicates that around 60 per cent of 1981 and 1982 primary education graduates and 70 per cent of secondary graduates had found teaching posts by the second September after graduation (para- graph 1.20); (c) reliance on a policy of voluntary redundancy has resulted in imba- lances in academic staffing (paragraph 1.29); (d) unit costs at the colleges of education are higher than those at the cen- tral institutions (paragraph 1.32).

12. Looking ahead on colleges of education, SED’s latest projections of stu- dent numbers are that although future requirements for trained teachers are starting to rise again, there is no prospect in the next decade of a return to the levels of peak demand experienced prior to 1975-76 when intakes were more than three times their present level. Taking account of students in courses other than teacher training, the total college based population is projected to grow from 5,000 students in 1984-85 to around 7,400 in 1995-96; the effects on surplus capacity at the colleges are considered below.

Surplus accommodation: 13. Although SED began taking steps to review the college capacity in Colleges of Education 1976-77, they have not undertaken a comprehensive full accommodation survey since that time. Nor do they have accurate estimates of the number of students that the colleges can accommodate, because of a lack of consistency in the methods of assessingcapacity. They have recently initiated an exercise designed to revise estimates of college capacity on a consistent basis, but in the meantime thay have relied on existing assessments,some of which they recognise are no longer completely reliable (paragraph 1.22).

14. Following a review in 1977, SED took action to reduce net capacity (that is excluding accommodation leased to other users) from the estimated 14,450 teaching places to 11,150, mainly by the sale and lease of surplus accommo- dation. A further review in 1980 demonstrated that the colleges were still signifi- cantly underused, and SED decided that their net capacity should be reduced to 8,000 places. Two colleges were closed and another two merged: and changes in teaching methods have effectively reduced the capacity still further. The gross capacity of the colleges is now estimated at 10,550 places and the net capacity 8,900. This assessmentexcludes two colleges which have been closed but not yet disposed of. However provision still exceeds foreseeable needs: college based student numbers now total 5,250 and are expected to rise to 7,380 by 1995-96 (paragraph 1.24).

15. The most significant case of under-utilisation is that of Dundee College of Education. This college was rebuilt entirely with a design capacity of 1,800 stu- dents, but sincere-opening in 1975 has never accommodated more than 700. SED have asked the governing body to aim for a net capacity of 700 places, but attempts to find other users of the surplus accommodation have so far been only partly successful, mainly because it is difficult to identify a discrete block of accommodation which could be hived off for disposal. On the other hand, about half of the teaching accommodation for 800 students at Craigie College of Edu- cation is being leased to a local authority college, with around 250 Craigie stu- dents currently occupying the other half (paragraph 1.30 and Appendix 5).

3 Funding and financial control 16. Staff salaries account for approximately 70 per cent of administrative costs at central institutions and colleges of education. But SED have not used their powers to control numbers, grades and the provision of funds, as firmly as they might have in order to ensure that the colleges achieve higher student:staff ratios (paragraph 1.28). Examination showed, however, that SED exercised satisfac- tory control over the routine funding arrangements through monitoring of expenditure and by adjusting the level of grant-aid to individual establishments in accordance with their current needs (paragraph 1.36). Local accounting arrangements also appeared generally satisfactory; and only minor criticisms have been raised by the Scottish Office Audit Unit in recent years (paragraphs 1.37 to 1.38).

17. About fl million of the 1983-84 funding to the colleges of education was towards the costs of a demonstration school at Jordanhill College of Education, even though this means that effectively a state school is being funded by central Government. SED have recognised that the school is not needed for teacher training purposes and could be transferred to the regional council, releasing the funds for further education (paragraphs 1.33 - 1.34). Scottish Education Department: Control of Further Education Establishments

Report

1.1 This report deals with the results of an examination by the career prospects of those taking them. About 60 per cent the National Audit Office (NAO) of the eleven central insti- of students take degreecourses provided in association with tutions and seven colleges of education which are directly the Council for National Academic Awards (CNAA) and funded, and in important respects controlled, by the with universities. Scottish Education Department (SED). It considers the extent to which present and prospective capacity and courses 1.5 Every proposal submitted to SED to introduce a new at these establishments are matched to national needs; course, or to modify an existing course, is investigated by examines the control exercised by SED in such matters and HM Inspectorate for its academic content and vocational the stepsbeing taken to overcome known difficulties or miti- relevance before approval in principle. Proposals for new gate their effects: and reviews the relevant funding and courses in degree subjects are subsequently submitted for financial control arrangements. approval to CNAA or the university concerned. Similar pro- cedures for consultation with the professional and examin- 1.2 In the academic year 1983-84 the eleven central insti- ing bodies are followed for other courses. SED also approve tutions provided mainly advanced vocational courses for advanced coursesin the local authority sector to ensure that some 15,000 full time equivalent (FTE) students, employed course duplication in the public sector is kept to a minimum. 1,350academic staff, and had total net expenditure of f46.2 In considering the provision of courses, SED have regard to million (Appendix 1). The seven colleges of education pro- the long-standing principle that “courses should be pro- vided primary and secondary teacher training and training vided to all who are qualified by ability and attainment to for social work and community education to over 7,000 FTE pursue them and who wish to do so”. students. They employed 839 academic staff and had total net expenditure of f26.9 million (Appendix 2). All of these 1.6 The increase in the Scottish birth rate which occurred institutions are supported by 100per cent grant from SED to in the 1960s inevitably led to a corresponding increase 18 meet their net current expenditure and approved capital years later in the number of students seeking tertiary educa- needs. tion. The student population at central institutions rose on average by sevenper cent per annum from 11,050students in I .3 SED exerciseeffective control of such matters as over- 1978-79 to an estimated 15,200 (full-time equivalent) in all student intake; the numbers and gradings of academic 1983-84. Although there is no specific target ratio of stu- staff; target student:staff ratios; the number, range and dis- dents to academic staff for the central institutions, SED tribution of courses and the introduction of new courses. have had regard for a number of years to the policy Ultimately, they also control the closure of institutions and expressed in the 1972 White Paper on Education (Cmnd 5174) that higher education establishments should aim at disposal of assets. In exercising these responsibilities, SED operatein consultation with the institutions and with appro- achieving a student:staff ratio of 1O:l overall. However, by priate academic, professional and other bodies. Arrange- holding down the increase in academic staffing levels ments exist for exchanging information with the Scottish between 1979and 1984to under one per cent per annum - ie Universities on course developments, but SED consider that from 1,325to 1,354 staff - SED increased the student:staff these do not provide a very satisfactory basis for a co- ratio from 9: 1 to 11: 1. They have not set a specific target for central institutions beyond this level, but as there is no evi- ordinated approach to higher education planning. dence of a fall in standards using the higher ratio they con- sider that a ratio of 12:l is easily within reach. Central Institutions: courses and student intake 1.4 Central institutions are established to provide ccmrses 1.7 The central institutions offer a wide range of courses, in advanced further education having a strong vocational some of which are offered at several colleges. There are wide bias and with specific relevance to some aspect of variations in the numbers of students undertaking the commerce, industry, engineering or the arts. They give a courses. The NAO review indicated that the majority of pronounced weighting to such subjects as applied science, places made available could be justified by the level of engineering, art, domestic science, music, business manage- demand both from students and employers. For courses rel- ment and textiles. They are expected in addition to develop evant to the public sector SED calculate annual student new coursesto meet the requirements of advancing technol- intake quotas in accordance with forecasts of future needs ogy; to respond generally to the fresh needs of society; and supplied by the public bodies concerned. SED have neither to take account of the relevance of the courses provided to the resources nor capability to assessaccurately the career

5 prospects for graduates in other courses; but they seek to demand for engineers cannot be met so readily. However assesslikely employer demand so far as this can be deter- projections for England and Wales are that engineering mined-relying on advice from such bodies as the Industry output as a proportion of CNAA graduates is expected to Department for Scotland and the Manpower SevicesCom- grow from 14percent in 1979-8Oto 17percent bytheendof mission. Some courses have been stopped or cut back as a the decade. result of changes in the employment market. 1.12 As part of a wider Government initiative to switch 1.8 However, NAO examination found little evidence of resources towards engineering and technology, f 14 million any systematic analysis of graduate job statistics by SED as is now to be provided over a three-year period to increase an aid to identifying trends in the employment market. SED student placesat central institutions providing such courses; collect from the central institutions someinformation on the up to f2.0 million is likely to be available in 1985-86, first destination of graduates. But the value of this informa- increasing to f6 million in 1987-88. The funds are for tion for manpower planning is limited because(in line with additional staff costs and equipment, and to easeany obsta- the convention which applies throughout Great Britain) it cles to expansion caused by accommodation difficulties. refers to 31 December following graduation, which may be However, the three technical institutions which are likely to before some graduates have succeeded in securing per- be the main beneficiaries of this initiative appear already to manent employment; the information provided may also be operating at or fairly close to full capacity. Robert Gor- not always be reliable. don’s , which is the largest of them, has leased two blocks of teaching accommodation from 1.9 NAO examination showed an apparent over-provision Aberdeen College of Education (see Appendix 5) and has of places in courses on town and country planning and in taken over two former schools in an attempt to resolve over- architecture. A report in 1981 estimated the total United crowding problems. Notwithstanding these moves, their Kingdom requirements for town and country planners for intake of electrical engineering students had to be cut back in the next decadeas being between 69 and 185per annum; but 1984-85 becauseof lack of space.However, new accommo- three Scottish central institutions themselves normally pro- dation is now being built as part of the initiative to switch duce nearly lOOgraduatesa year in this subject, and the only resources to engineering and technology. action taken by SED has been to prescribe maximum intakes totalling 99. Similarly, in September 1984, a committee 1.13 Other practical difficulties in cutting back on the pro- chaired by Lord Esher recommended that the size of the vision of other coursesto increase the output of engineering architectural profession be stabilised by reducing the graduates are: number of graduates qualifying each year by about 30 per cent, by withdrawal of courses and by mergers. Neverthe- (a) There is limited scope for a reduction in the provi- less, SED have prescribed maximum intake levels for sion of most courses so long as the student demand for 1984-85 which are almost exactly equivalent to the actual places continues to be strong; graduates appear to gain intake for 1983-84. employment; and there remains a commitment to the “access” principle referred to in paragraph 1.5 above. 1.10 In 1983-84, reviews by the Department of Trade and Industry (DTI) and SED indicated a large increase in (b) There can be difficulties in achieving savings demand by industry for qualified engineers. DTI estimated through staff reductions in courses which on the merits that to cope with the expected demand the annual output of the case, SED might be justified in cutting or from universities and colleges would need to rise by more combining. The main problems are resistance from the than 50 per cent by the end of the decade (at a cost of f450 million at 1983-84 prices). A further DTI report (the governing bodies who are the statutory employers of Butcher report) suggesteda current shortfall of 1,500engin- the staff and the security of tenure provision in a small number of institutions. eering graduates and a shortfall of 5,000 by 1988.The report recommendedthatappropriate action should not be delayed and should form part of the wider pressure from the educa- (c) Even if agreement can be reached to stop or run- tion departments for a switch from other subjects to down courses, it can take several years for students to technology. complete existing courses and to provide appropriate facilities for new courses. 1.11 An Industry Department for Scotland review in 1984 showed that the main demand in the Scottish labour market Colleges of Education: courses and student intake has been for electronic engineers (where planned recruit- 1.14 All teachers employed in local authority schools in ment in 1984is up 60 per cent on 1983levels) although there Scotland are required to be registered with the General are also shortages in other engineering disciplines. Since Teaching Council for Scotland. Entry to the register 1979-80 there has been an increase of 45 per cent in the depends generally on securing a teaching qualification at a output of engineering graduates from the non-university Scottish College of Education, though entry may also be sector in Scotland, a rate which is slightly lower than that for allowed to teachers who have obtained their qualifications all graduates combined. And despite a planned increase in outside Scotland. Until recently, most primary education absolute numbers, the proportion of engineering graduates courses were of three years duration, but from 1983-84 a is expected to fall overall from about 24 per cent of total four-year degree course was instituted. Qualification may graduate output in 1979-80 to about 17 per cent over the also be achieved through the post-graduate certificate of next few years. SED have explained that engineering courses education. Most courses in secondary education are of one demand a higher ratio of academic and support staff to stu- year’s duration, leading to the post-graduate certificate of dents than do other courses, and consequently the increased education. Of the seven colleges of education awarding

6 teaching qualifications, five offer courses in both primary nature of the training, a specific number of students is not and secondary education, one specialisesin primary educa- allocated since formal courses vary in duration from half a tion only and one in physical education for female second- day to nine months and numbers in classesfrom a handful to ary school teachers. Most offer a limited range of non 200. Moreover, some 60-70 per cent of students undertake teacher-training courses (mainly in the community and in-service training at schools and not at college. On a purely social work fields) and all are involved in the in-service train- notional basis therefore the equivalent of ten full-time stu- ing of qualified teachers, which takes place in the colleges dents are attributed to each lecturer, giving a notional total and in the schools. Validation of pre-service and in-service of 2,190 students undertaking in-service training. SED courses for teachers is carried out by CNAA or the Scottish monitor the use of staff allocations at the end of each Council for the Validation of Courses for Teachers. session.

1.15 SED policy is to train sufficient students to enable 1.20 The colleges each year collect information on the education authorities to meet the recommended school staf- destination of teacher graduates. The most recent survey fing standards provided for in the Government’s public showed that for 1983 graduates, only 34 per cent had expenditure plans. Projections of birth rate and population obtained teaching posts. SED however considered that the trends provide estimates of future pupil numbers; and such colleges’ figures could give a misleading picture becauseof information, together with forecasts on such matters as the the poor responserate and the timing of the survey. A com- expected number of colleges of education graduates, teacher prehensive statistical exercise just completed by SED wastage rates, numbers of unemployed teachers, etc, is used examined schools censusesto establish the employment of by SED in assessingannual intake quotas to primary and college of education graduates. This indicated that 60 per secondary education courses at the colleges. cent of primary and 70 per cent of secondary graduates of 1981 and 1982 had found teaching posts by the start of the 1.16 For the 1984-85 academic year, SED initially calcu- second academic year after graduation. lated an intake quota for primary school teachers of 940. Although they did not have any independent analysis of the College capacity number of teachers out of work, this quota was reduced to 750 on the assumption that a considerable reserve of unem- 1.21 The teacher training programme was expanded in the ployed teachers still existed. At September 1983 for 1960s to cope with the effects of a sharp increase in the example, there were about 3,100 primary teachers on educa- Scottish birth rate and four new colleges were opened or tion authority waiting lists. The 1984-85 intake quota for werebeingbuiltduringthisperiod. Bytheendofthedecade, secondary school teachers was initially assessedat 390, but however, the upward trend in the birth rate had been this figure was increased to 500, partly becauseof the effect reversed. In 1972, SED discussed with the colleges the desi- on the colleges of the very sharp fall from the 1983-84 rability of limiting intakes to primary education courses; intake of 875 students and partly to give education author- and by 1976-77 it had become necessaryto limit entry to all ities more flexibility in the choice of subject teachers. pre-service teacher training courses. Legislation was approved in 1977to provide statutory backing to the Secre- 1.17 After further discussion with education authorities tary of State’s powers to discontinue courses and restrict and other interested bodies, SED confirmed that the pri- intake to courses. mary course intake should remain at 750, but increased the secondary course intake to 560 students partly in responseto 1.22 SED do not have reliable up-to-date figures for the the largest authority’s claim that they were experiencing dif- number of students that the colleges can accommodate. ficulty in filling posts in some subjects and partly to increase They have recently initiated an exercise designed to revise the intake to Dundee College of Education, which was in estimates of college capacity on a consistent basis. In the danger of falling below the level at which it could operate meantime they have had to rely on existing assessments. viable courses. Some of these are based on the original ‘design capacity’ of the college and others are derived from the ‘maximum 1.18 Quotas set by SED for non-teacher training coursesat seating capacity’ as provided in SED’s Further Education the colleges also take into account assessmentsof the likely Building Code. SED believe that several estimates of college need for graduates in the subjects concerned. In an effort to capacity are no longer valid given current teaching practices, exercisetighter control over the intake to community educa- and in all casesthe estimates represent a theoretical capacity tion, SED have for the last two years imposed financial that in practice would not be entirely filled. According to limits on training in this area. They are also discussing ways estimates at the time the colleges of education in 1977had a of improving control of the intake of social work students total capacity of 14,450 student places of which 10,710were with the Central Council for Education and Training in filled by college-based students during the 1976-77 aca- Social Work, the body responsible for assessingneed and demic year. A review carried out by SED in 1977 estimated allocating places at the colleges. that requirements for newly trained teachers would reduce the college-based population to 8,100 in 1979-80 before 1.19 For in-service training of teachers SED have aimed rising to 12,200 by 1989-90 following another expected broadly to maintain the level set in 1980 following recom- increase in the birth rate. Ministers decided that surplus mendations by the National Committee for In-Service accommodation should be leasedor sold for purposes other Training of Teachers. Since 1982-83, more resources have than teacher training but that all ten colleges should conti- been made available at colleges to cater for extra courses nue to operate. designed to cope with recent fundamental changes in the schools curriculum. At present, the equivalent of 219 full- 1.23 By 1980 estimated college capacity had fallen to time staff are employed in this capacity. Because of the 11,150 as a result of the sale or lease of accommodation. However, a further SED review in that year indicated that but currently an overall ratio is used. Funding is limited to the student population would continue to fall further the costs of the approved entitlement; where colleges fail to beyond 1979-80 to about 7,000 in 1983-84 before rising meet the target complement, they are expected to find sav- gradually again towards the end of the decade. On this occa- ings in other areasto meet the costs of academic staff above sion, Ministers decided that the extent of the surplus the approved level. capacity necessitated reductions in the number of colleges. In 1980, the Secretary of State decided to close two colleges 1.28 With the fall in student numbers, the colleges have and merge two others. The net capacity of the sevencolleges been required to reduce their academic staff accordingly. In remaining was estimated at around 11,000 places but it was most years they have achieved the levels set by the Depar- hoped to reduce the net capacity to 8,000 placesby the saleor tement, mainly through schemesof voluntary redundancy leasing of surplus accommodation. and premature retirement. However, reductions in staffing have not matched the fall in the student population. Since 1.24 The first effects of the expected increase in the birth 1975-76 student numbers have fallen by about 53 per cent rate are already being felt in primary schools, and the latest (from over 15,000 to just over 7,000) while the number of SED estimates indicate that the number of college places academic staff approved by SED has fallen over the same allocated to primary education students will grow from periodbyonly41 percent (from 1,432to839). Andalthough 1,780 in the 1984-85 academic year to 3,500 in 1995-96, most course student:staff ratios were set at between 9: 1 and partly to meet the extra demand for teachers and partly 13:l. the allowance for additional academic staff has effec- because of the longer training period necessitated by the tively led to a more generous overall student:staff ratio. In introduction of a new four-year degreecourse. The require- 1983-84 it stood at 8.4:1, compared with 1l:l at DES ment for secondary teacher places will however, continue to voluntary colleges. Although these colleges offer a wider fall for the time being: from 1,140 in 1984-85 to 450 in range of courses than do the Scottish colleges, all have as 1987-88 before rising again to 1,920 in 1992-93 and 1,620 their largest single function the training of teachers and are a in 1995-96. Taking account of the number of places allo- major source of trained teachers in England and Wales. cated to in-service training and other courses, SED estimate SED are currently working towards a target ratio of 1O:l that the total college-based population will increase from which they aim to achieve by the 1989-90academic session; around 5,250 in 1984-85 to around 7,380 in 1995-96 DES meanwhile are aiming towards a ratio of 11S: 1 for the (Appendix 3). voluntary colleges. On the 1983-84 total of 7,072 students (FTE) a target student:staff ratio of 10:1 at the Scottish coll- 1.25 The fluctuations in the birth rate, and particularly the egeswould require academic complements to be reduced by very sharp fall since 1970which is reflected in the reduction a further 132 staff (from 839 to 707, or 16 per cent of the of the need for teachers, have causedconsiderable problems total). in under utilisation of resourcesat the collegesof education. 1.29 Relying on natural wastage and voluntary redun- These problems have resulted in a fall in the student:staff ratio (paragraphs 1.27- 1.29 below); and there is a general dancy to run down staff numbers has inevitably resulted in some imbalances of skill and experience among the staff problem of surplus accommodation, exacerbated in some remaining; and a total of 32 “new blood” posts (including colleges by small class sizes(paragraph 1.26 below). 24 academic posts) were created at the colleges in 1984in an attempt to redress some of this imbalance. The growing 1.26 Despite the relatively low demand for secondary emphasis on in-service teacher training, which reflects school teachers, which will continue for the foreseeable SED’s aim to improve the quality of the teaching profession, future, there has been little or no movement towards recent developments in the curriculum and the introduction specialisation; five of the colleges provide a full range of at of information technology, has helped to absorb the extra least 19 of the subjects for which teaching qualifications are academic staff time available as a result of falling intakes to awarded. A recent SED analysis showed that the distribu- pre-service courses; and increased effort is devoted to edu- tion of students who obtained main and supplementary cational research. teachingqualifications was spread very thinly over certain courses. At Aberdeen and Dundee for example, even Surplus accommodation subjects such as history, geography, modern studies, French, physics and art commanded fewer than eight stu- 1.30 SED currently estimate the total capacity of the coll- dents (Appendix 4). SED claim that the scope for rationalis- egesof education at about 10,550 student places, although ing coursesis limited by the regional nature of teacher train- this number could not be accommodated in practice. Since ing in Scotland; all collegeshave close links with local educa- 1976, the colleges have made considerable efforts to elimi- tion authorities and in effect servea local catchment area. In nate- or reduce their spare capacity by diversification and addition some students wish to obtain more than one lettings in the expectation of a recovery in the demand for teaching qualification and somespecialists teach at both pri- teachers. With someexceptions-particularly Dundee, and mary and secondary level. to a lesserextent, Moray House, where there are special dif- ficulties - these efforts have been reasonably successful though surplus accommodation continues to. exist (see Academic staff levels Appendix5). About 16percent ofcollegeaccommodationis 1.27 SED calculate staff entitlements for each college by currently let out, some of it on long-term lease. applying a student:staff ratio to the student population at the college. Up to and including the 1983-84 academic ses- 1.31 Student numbers however (excluding those on in- sion, the entitlement was determined from standard course service training courses) totalled 4,860 in 1983-84, ratios with additional allowances for academic services, although substantial periods of time are spent undertaking research and development and higher academic staff posts; teaching practice in schools. This total is likely to rise to

8 about 6,500 (excluding in-service students) by 1995-96. f29.1 million for the colleges of eduction in 1983-84) was SED consider that the use made of colleges for in-service allocated under three heads: academic salaries; non- training is equivalent in terms of capacity to an additional academic salaries and other costs. Virement between heads 850 full-time students: but some in-service courses take was not allowed without SED consent. From 1984-85 an place outside normal college teaching hours, and so do not aggregate provision covering all three heads has been made put any additional pressure on college resources. On any for thecolleges. Recurrent grants in 1983-84 totalled f38.7 basis of calculation, however, there appears to be consider- million for the institutions and f25.6 million for the colleges able spare capacity at the colleges for at least the next ten after allowing for income from other sources. Non recurrent years. grants amounting to f7.4 million in total were also allocated for specific capital projects and substantial items of capital Unit costs equipment, for which SED approval must be sought in 1.32 SED have for several years produced annual costing advance. statements analysing the expenditure of colleges of educa- tion and central institutions. However little practical use 1.36 NAO examination has shown that SED control over appears to be made of these statistics because individual these funding arrangements has been operating satisfactor- establishments have so far failed to agree on a common ily. Rot~hthe colleges and the central institutions requisition method of allocating costs. A working party comprising funds according to need, usually twice a month. They are SED and the Principals and Directors of the central insti- allowed to draw only sufficient funds to cover their imme- tutions is considering the matter. In the absenceof reliable diate needs. Expenditure is monitored monthly by SED and comparisons from other sources, crude unit costs for central the annual allocation may be adjusted at any time in accord- institutions and colleges of education have been calculated ance with the current level of spending. As soon as possible by dividing the net total expenditure for 1983-84 for each after the year end each establishment is required to submit establishment (excluding Jordanhill Demonstration School) audited accounts to SED itemising its income and expendi- by the estimated number of students (FTE). These calcula- ture. Scrutiny of the annual audited accounts revealed no tions, broad though they were, suggested significantly evidence of excessivebalances of funds being accumulated. higher unit costs at colleges of education than at central Any grant undrawn at the year end is surrendered to the institutions; the average cost per student at the colleges was Consolidated Fund. f3,SOOcompared with f3,063 at the central institutions.

Jordanhill Demonstration School 1.37 NAO examination of the local accounting arrange- 1.33 Of the sums advanced to the colleges of education in ments of the colleges and central institutions provided evi- 1983-84, about fl million was provided towards the oper- dence of satisfactory systems of budgeting and financial ating costs of a demonstration school run by Jordanhill control. The Scottish Office Audit Unit also carries out College of Education. In the past, most colleges operated audits at each college and institution at least once every four such schools which served ascontrolled centres in which par- years. Points raised are normally resolved by correspond- ticular teaching techniques could be demonstrated. Over the encewith the establishment concerned; the Unit also consult years, however, the schools have been closed down largely SED on matters of general application and would as a becauseit was felt that the students require a range of experi- matter of course notify the Department of any serious ence in teaching practice best provided by state schools. weaknessesdiscovered. Apart from a small school run by Moray House (costing f50.000 per annum) Jordanhill is the only one which remains 1.38 NAO staff examined the Unit’s records of all audits in use. carried out at colleges and central institutions during the previous two years. This review showed a generally satisfac- 1.34 The school currently caters for about 1,000 pupils in tory picture in that the points raised, though numerous, primary and secondary education and is located in the coil- were relatively routine in nature and there was sufficient evi- egecampus. It is a highly regarded and popular school with dence to indicate that suggestions for improvements in high educational standards in a select area of Glasgow. It financial control produced an appropriate response from provides free schooling to pupils for which the local educ- the establishments concerned. tion authority has a legal responsibility and its funding by SED therefore represents a hidden subsidy to the Regional Council. SED have been considering its future since the Possible reorganisation of Scottish tertiary education early 1970s but have been reluctant to take action which, 1.39 In September 1981 the Council for Tertiary Educa- following transfer to the Regional Council or direct inter- tion in Scotland presented a report on a review they had vention by the Department, would result in outright closure, undertaken into the structure and management of Scottish with disruption of pupils’ studies, substantial redundancies tertiary education. This recommended, inter alia, that the and strong local opposition. The Department are con- formal distinction between collegesof education and central sidering their alternative courses of action. institutions should disappear. Separate management of these establishments was seen as creating unnecessary bar- Funding and financial control riers in the flexible use of resources; and this was liable to 1.35 SED fix the level of recurrent grant for each central lead to duplication of the administrative machinery and institution and college of education before the start of the staff both at the institutions and centrally. The existence of financial year after considering estimates submitted by the colleges of education as a separate sector made it more diffi- governing bodies. Until 1984-85 the approved expenditure cult for them to adjust to the declining demand for teacher (amounting to f47.2 million for the central institutions and training.

9 1.40 SED have not acted upon a number of the proposals strategy for higher education (including the universities) in in the report including those dealing with funding arrange- Scotland. The Council was asked to report by July 1985,and ments for the non-university higher education sector in Scottish Ministers have decided to defer major decisions on Scotland. They established another advisory body, the the central institutions and colleges of education until the Scottish Tertiary Education Advisory Council, to replace STEAC’s report is available. the CTES, and whose first function is to report on the future Glossary of Abbreviations

SED Scottish Education Department

CNAA Council for National Academic Awards

HMI HM Inspectorate

GTC General Teaching Council

SSR Student : Staff Ratio

FTE Full Time Equivalent

CTES Council for Tertiary Education in Scotland

11 Appendix 1 Scottish Central Institutions

Full-time equivalent Academic Total net unit Cost Title student nos staff expenditure (per student) 1983-84 1983-84 f f Dundee College of Technology 1,957 160 5,386,OOO 2,752 Paisley College of Technology 3,426 234 8,955,OOO 2,614 Robert Gordon’s Institute of Technology, Aberdeen 3,240 279 9,840,OOO 3,037 1,039 100 3,302,OOO 3,178 967 106 3,687,OOO 3,813 Duncan of Jordanstone College of Art, Dundee 945 98 3,260,OOO 3,450 Queen’s College Glasgow 766 76 2,555,ooo 3,336 Queen Margaret College, Edinburgh 1,119 121 3,650,OOO 3,262 Leith Nautical College, Edinburgh 720 63 1,993,ooo 2,768 Scottish College of Textiles, Galashiels 502 53 1,976,OOO 3,936 Royal Scottish Academy of Music and Drama, Glasgow 412 60 1,631,OOO 3,959

Totals 15,093 1,350 46,235;OOO 3,063

12 Appendix 2 Scottish Colleges of Education

College Full-Time based Equivalent Total net College students students Academic Expenditure Unit costs (incl (incl Staff 1983-84 FY notional notional f f in-service) in-service)

Aberdeen 615 821 100 3,189,455 3,885

Craigie 240 318 35 1,036,800 3,260

Dundee 503 626 80 2,792,975 4,462

Dunfermline 328 379 50 1,619,565 4,273

Jordanhill 2,072 2,592 298 9,101,030 3,511

Moray House 1,258 1,443 170 5,621,685 3,896

St Andrew 666 893 106 3,517,020 3,938

Totals 5,682 7,072 839 26,878,530 3,800

13 Appendix 3 College based students : SED projections

I 2 3 4 5 6 I 1975-76 1979-80 1983-84 1984-85 1987-88 1991-92 1995-96 Pre-service primary 6,360 2,320 1,600 1,780 2,590 3,080 3,500 teacher training

Pre-service secondary 4,960 3,110 1,760 1,140 450 1,850 1,620 teacher training

College- L based in-service 850* 850* 850 850 850 850 850 students- notional FTE

Other 1,720 1,870 1,500 1,480 1,410 1,410 1,410 students

Total number of college 13,890 8,150 5,710 5,250 5,300 7,190 7,380 based students

* estimated-comparable figures not available.

14 Appendix 4 Colleges of Education : Distribution of subjects at secondary level (derived from TQs obtained in main and supplementary subjects)

Main and supplementary TQs obtained Aberdeen Dundee Dunfermline Jordanhill Moray House St Andrew’s Total

English 15 40 19 30 107 History 5 23 7 20 60 Geography 6 10 6 10 33 Modern Studies 3 11 6 4 25 Economics/ Eton History 3 47 21 4 76 French 8 21 13 25 72 German 7 12 10 6 38 Other modern Languages 2 - 10 18 30 Computing 5 5 27 7 - 44 Latin/Greek 2 9 - - 11 Maths 25 24 85 46 58 238 General Science 4 8 5 10 5 32 Biology 8 4 20 8 23 63 Chemistry 12 10 33 14 29 98 Physics 4 7 33 25 18 87 Geology 1 - - 1 Art 6 6 24 9 14 59 Business Studies 14 42 20 76 Home Economics 9 4 25 10 48 PB - - 96 53 149 Music 12 10 8 10 54 Speechand Drama 8 5 3 17 RE 5 3 5 9 33 Technical Education 9 11 56 29 - 105

Totals 170 114 96 604 282 290 1,556 Note: Many students take more than one subject. The figures are for the 1982-83 academic year.

15 Appendix 5

Surplus accommodation at Colleges of Education

Moray House therefore benefited more than any other by the upturn in the primary student intake provision. Even so, the total student 1. SED do not have up-to-date accurate information ! about the capacity at Moray House. In the early seventies, population was estimated at under 250 in 1983-84 com- when student numbers were at their peak, there were over pared with the original design capacity of 800 places. Unlike 3,000 pre-service students at Moray House, compared with Dundee, however, the governing body has been reasonably the present figure of just over 1,000. Although some surplus successful in letting out surplus accommodation. About accommodation, amounting to the equivalent of about 400 half the College is occupied by 400 students of Ayr Technical teaching places, has been let, very little has been disposed of. College under an agreement which expires in 1986. Changes in teaching practice in recent years, however, have caused SED to revise their estimate of the gross teaching Aberdeen College of Education capacity of the college, which is now estimated to be 2,250 6. Aberdeen has an original design capacity of about 1,700 places. places, but has only about 600 FTE students at present. Teaching accommodation equivalent to 550 places is on a Dundee College of Education long-term lease to Robert Gordon’s Institute of Technology. 2. In 1967, SED decided to replace the existing college at Dundee with a larger structure because of overcrowding. Callendar Park College The new building was designed to accomodate 1,800 stu- dents but because of restrictions on the student intake 7. This college was closed in 1981as a result of Ministerial imposed by SED since the college opened in 1975 no more decision, but it has not yet been possible to dispose of it. It than 700 pre-service students have ever been accommodated was advertised for sale in 1982,but no offers were made. there. A recent room survey conducted by the College has About one-quarter of the former College is occupied by shown, on the basis of design standards in the SED Further Forth Valley Health Board’s College of Nursing and Mid- Education Building Code, that the maximum seating wifery, who have been given effective security of tenure until capacity is about 1,500, which does not include about 300 a new nursing college is completed in 1987. SED are taking places of accommodation occupied by other bodies. professional advice on how to market the property. Craiglockhart College 3. Siuce 1977, SED have examined ways in which the coll- ege could be effectively utilised, including the transfer of 8. After a Ministerial decision in 1980, the two Roman another college and the possibility of amalgamation with Catholic Colleges of Craiglockhart (Edinburgh) and Notre other local education establishments; but none of these has Dame (Glasgow) were merged in 1981to form St Andrew’s proved successful. In 1981the Secretary of State announced College. In 1983,however, as a result of falling student rolls that the capacity should be reduced to 700 places, if possible the joint owners of the College - the St Andrew’s Govern- by identifying a discrete block of accommodation that could ing Body (with the approval of SED) and the Society of the he disposed of by sale or by long lease. Further attempts by Sacred Heart - decided to sell their interests in the Coliege. the governing body to dispose of surplus accommodation Thepropertywasput onthemarket inoctober 1984,andthe havenot been successful. At present thereare students at closing date for offers was May 15th 1985. the College. 9. SED and the Society do not anticipate any difficulty in selling Craiglockhart. 4. A report in May 1982 indicated that the problem was not so much one of a large surplus of classrooms as of a 10. Most of the site is at present occupied by students of mismatchbetween the size of the classrooms andthe groups NapierCollege of Commerceand Technology, a Local being taught in them. A review in 1981 showed that 66 per Authority Further Education College which is due to cent of groups had ten or less students in them; the average become a Central Institution in September 1985. group size was 9.25 and the average room size 19.34; at the period of peak demand 75 per cent of available seats were Dunfermline College of Physical Education unoccupied. The report concluded that because of the 11. The design capacity of Dunfermline, including some design of the building, there was considerable difficulty temporary hutted extensions, has long been thought to be about identifying a discrete block of accommodation which 500, but..SED now doubt the validity of this estimate. There could be hived off for disposal. are about 320 FTE students at present. SED have for some time been considering a proposal to centralise all physical Craigie College of Education education training. If this were to be concentrated at 5. Craigie College of Education, opened in 1964, was Dunfermline, this would mean moving about 120 physical designed for a limited life span of some 20 years specifically education students from Jordanhill College to Dunfer- to meet a temporary increase in demand for primary mline, which would have the effect of using up most of teachers. SED have twice considered closing down the coll- Dunfermline’s spare capacity. No decision has yet been ege, in 1977and again in 1980, but decided on its retention taken however. mainly on the grounds that it servesa very wide catchment area and that its closure would involve substantial difficul- St Andrew’s College ties for the student population. Craigie is the only college of 12. From 1981to 1984pre-service training at St Andrew’s education which specialises in primary education and has College was carried out at both the Glasgow campus (at

16 Bearsden) and at the Edinburgh campus (Craiglockhart). establish definitively the basis on which this figure was After the end of the 198384 academic year, however, pre- determined. Until the college has conducted a comprehen- service training was concentrated at the Bearsden site and sive accommodation survey, SED cannot say whether the Craiglockhart College was put up for sale. The design figure of 2,600 is still realistic. At the time of peak student capacity at Bearsden is some 900 places but a recent fire intake, there were over 4,000 students at Jordanhill. Some reduced the capacity available. There are currently 620 stu- of these were, however, taught in temporary buildings and dents at the College. in rented accommodation, all of which has now been disposed of. In addition, a substantial part of the College is Jordanbill College now used for the training of Further Education lecturers. As 13. The existing capacity at Jordanhill has been cited over a result Jordanhill does not have a great deal of spare a number of years at 2,600 places. SED have not been able to capacity.

17