PAPER C

POLICY COMMISION BLUE PAPER

RESPONSIBLE BODY

Policy Commission for Children and School Results

PROJECT NAME

INVESTING IN THE ISLAND’S FUTURE

REFERENCE NUMBER

SC01/06

1 PURPOSE OF ENQUIRY AND PROPOSED OUTCOME

The Learning and Skills Council (LSC) had expressed a wish to modernise the facilities at the Isle of Wight College and, in the light of the Island’s relatively low standards at both GCSE and at A level; intended to include a sixth form centre there.

The enquiry, agreed by the Policy Commission at its meeting on 6 September 2006, was to gather evidence in order to advise the Cabinet on whether the centre should provide for all the Island’s sixth formers, with major consequences for school organisation, or whether other options would be preferable. It was also to ensure that the arrangements for sixth form education on the Isle of Wight would raise standards of achievement and maximise the life chances of the Island’s young people.

2 RECOMMENDATIONS

The LSC proposal is rejected in its current form and that an alternative proposal is offered which seeks to create a new arrangement for 14-19 provision on the Island either in formal collaboration with IOW College or through a re-organisation of the current school provision through a ‘trust’ arrangement.

This body of work and the above recommendations were agreed and accepted by the Members of the Policy Commission for Children and School Results.

Cllr Melanie Swan

Commissioner

3 BACKGROUND TO ENQUIRY

THE NATIONAL CONTEXT:

Local requirements are being reinforced by a drive from national government through its’ 14-19 Implementation Plan to ensure every learner aged 14-19 receives an entitlement. This entitlement should give learners access to a broad and relevant curriculum and provide them with the impartial advice, guidance and support they need to achieve well and be successful in adult life.

Broadening the curriculum from age 14 includes increasing opportunities for work based learning and giving access to fourteen specialised diplomas by 2013, following phased piloting from September 2008. No one institution is going to be able to provide the full range of courses that need to be made available to learners by itself.

There is also a requirement to produce and maintain an on-line Area Prospectus from September 2007 that outlines every course that is available to young people. This requires Children’s Services, through their Children’s Trusts, to be leading collaboration between the Local Learning & Skills Council (LSC), High Schools, The College, Training Providers, Employers and Universities.

THE LOCAL CONTEXT:

14-19 Strategy

The 14-19 Strategy sets the framework for developing 14-19 education and training as a single phase for the Isle of Wight. The vision of the strategy is for all young people to

- enjoy and achieve in education and training;

- make a positive contribution to society and achieve economic well being;

- increase their aspirations;

- raise their performance levels;

- improve their progression to further learning and/or employment.

The Strategy sets out to achieve the above by :

- supporting funding and planning agencies, schools, the college and work based training providers to work effectively together to meet the national and local agenda;

- developing and monitoring the implementation of a 14-19 Learner Entitlement;

- informing parents and learners of the choices available to them to ensure learners are on appropriate courses;

- as part of the learner Entitlement, broadening the curriculum to establish clear learning pathways at all levels and covering all subjects;

- implementing a common progression system including one on-line application for post 16 provision;

- implementing a 14-19 quality assurance system.

- supporting workforce development through the provision of training for staff new to vocational courses.

Curriculum planning is being developed via two hubs - the western hub (Carisbrooke High, Cowes High and Medina High) and the eastern hub (Ryde High and Sandown High). The isle of Wight College and the Training Providers work in both hubs.

Joint Area Review

The JAR undertaken in June 2006 identified the need for improvements in a number of areas (e.g. provision at level 2 post 16, standards at key stage 4). It broadly supported the ‘direction of travel’ of collaborative planning of the curriculum across two geographical hubs but was very clear that the pace of change needed to be much faster.

Faster pace requires that the funding and planning of 14-19 provision is coherent and coordinated, widens the choices and meet the needs of every learner, is of high quality and provides value for money. Common timetabling across schools and the college, common information for learners whatever their institution, sharing good practice between providers to improve the quality of teaching and learning and less duplication of provision would be some of the success measures.

In undertaking the enquiry the Commission was mindful of its Corporate Priorities, the Community Strategy and Every Child Matters.

PROPOSAL BY THE LEARNING AND SKILLS COUNCIL

The LSC indicated that it was looking at a proposal to invest in a 6^th Form Centre on the Island. This was to be a distinct and separate facility on the site of a re-built Isle of Wight College in Newport. It was intended to be a “flagship investment creating a centre of academic excellence on the Island. The quality of teaching and learning would be the best available in the South East and a beacon of excellence. “

The new centre would provide a range of A level choices to 1200 students. It would permit a wider choice than any school sixth form and enable academic and vocational programmes at various levels together with an effective framework for the development of specialist diplomas.

The LSC investment would be approximately £25m.

· 4 CONSULTATION EVIDENCE

The consultation exercise between 8 September and 13 October led to 136 written submissions being made to the Policy Commission. This not only included submission from all the relevant key stakeholders but also included 95 from individuals who wished to express their views on the proposals.

The Policy Commission held formal sessions at which key stakeholders were invited so that a range of issues raised in written submissions could be expanded upon and clarified.

The session on 9 November 2006 involved the LSC; IW College; 6^th Form Students; Connexions and High School Heads. The session on 10 November 2006 involved the IW Governors Association; Standards Not Tiers; Roman Catholic Diocese; Anglican Diocese and IW Chamber of Commerce, Tourism and Industry. The Policy Commission also heard the views of Primary and Middle schools at its meeting on 6 December 2006. All these sessions were open to the public and press.

A further session was held by the Policy Commission on 8 January 2007 to discuss the comments made by individuals. Due to the personal nature of some of these comments this was held in private session.

All through the enquiry the Policy Commission has stressed that it was not looking at the merits of a 2 or 3 tier educational structure for the Island. The LSC’s proposal did however have implications for High Schools which could not directly be ignored. The Council had a statutory responsibility to secure appropriate educational provision for children on the Island up to the age of 19.

In addition to the evidence sessions the Commission had, on 1 November 2006, received a presentation by Council officers on the 14-19 Education and Skills White Paper, The Skills White Paper and the Youth Matters Green Paper and how this was to be delivered through the Council’s 14-19 Strategy.

In the evidence sessions held by the Policy Commission the following key issues were highlighted by stakeholders –

Learning and Skills Council

· Shared the ambition of the Council to raise the level of attainment.

· Wished to see improvements in the range and breadth of courses for students.

· There was a quality assurance system in place to assist in the delivery of courses.

· The LSC would work in partnership in the delivery of targets within the Local Area Agreement and had been involved in the formulation of the Council’s 14-19 Strategy and Action Plan.

· The propose Centre would offer the potential of greater choice for academic and vocational courses in group sizes that were more economic and conductive to learning.

· It was accepted that the Centre would put the LSC in the position of monopoly provider.

· Transport to the proposed Centre would require consideration.

· The LSC had the power to seek the closure of a schools sixth form. This had to be submitted to the Secretary of State but could only be done with the support of the Local Authority.

IW College

· The College was in the top 10% nationally for retention rates.

· Ofsted research indicated that the bigger the group size for post 16 courses the better it was for learners.

· Would only offer post 16 courses to those students who were 16+.

· The College would not place any student on a course that they were not able to successfully complete.

Sixth Form Students

· Concerned that lecturers would not be able to support students as well as teachers in schools.

· School community would be broken up.

· The collaboration between High Schools helped preserve the availability of minority subjects.

· Students preferred small class sizes particularly for science and languages.

· Transition from High School to a Sixth Form Centre would not be welcome as it took several months to become accustomed to a new establishment and this would affect those taking examinations in the following January.

Connexions

· The Education Maintenance Allowance had reduced the number of young people moving into employment at an early age.

· There were gaps in the provision of post 16 education for specific groups such as young offenders.

High School Heads

· Recent inspections of 2 High schools by Ofsted had been good.

· Students felt safe and secure in their home institution.

· There were signs that attainment was already improving.

· Schools provided clear accountability for students’ performance and this was recognised by parents.

· No one institution would be able to deliver the full range of courses and collaboration was the only way forward.

· Schools would enable those more able students to access courses according to ability rather than age.

· Sixth form students played a vital leadership role in schools.

IW Governors Association

· Difficult to assess why schools were underperforming.

· May be of benefit having two or three post 16 Centres.

· Not a single issue organisation and had left Governing Bodies to respond individually.

· Improvements in school attainment was not about structures but the style of teaching

· Consequence of proposal on overall school structure should not be overlooked.

Standards Not Tiers

· Clear mandate from the Island’s electorate to retain the three tier system.

· Existing collaborative system gave students and their parents choice which would not be available through one facility.

· Need to stop ongoing rumours about changes to the Island’s educational system as this was causing uncertainty amongst staff and was de-motivating.

· College expectation of a mature approach to learning.

Portsmouth Dioceses – Catholic and Anglican

· There should be a range of provision that met the needs of all students.

· The Dioceses were looking at the provision of a joint Middle School with a Secondary School a longer term aim but without a sixth form.

· A sixth form centre could offer the potential for a wider Christian engagement.

· Any facility needed a place for quiet reflection and prayer.

Chamber of Commerce

· One facility would limit the opportunity for students.

· The delivery of Key Stage 3 should be under the responsibility of one phase.

· School improvement was about human interaction and not about buildings.

· Government focus was on 14-19 and schools were in the best position to deliver this.

Primary Sector

· Would add an additional transition.

· Sixth form centre would make parent engagement difficult.

· Need to share good practice within schools.

· Sixth form students played an important inspirational role in schools.

Middle Sector

· Larger schools enable greater flexibility in delivering the curriculum and recruitment.

· Disaffected students required a multi-agency approach and schools were better placed to locate these.

· Establishments needed good leadership irrespective of structure.

· The individual learning needs of each student was the key factor for achieving an improvement in the level of attainment.

Special School (St Georges with 6^th Form provision)

· Students were known to teachers and teachers were known by students.

· Delivery of lessons adapted to students needs

· Problems created by transferring to another establishment

Individuals

31 in support of a Sixth Form Centre.

· Some preferred it to be sited at Medina High School.

· Together with Primary phase from 5 to 11 and Secondary from 11 to 16.

· Centre would provide better resources for students with specialist teachers.

66 against a Sixth Form Centre.

· No evidence that it would lead to improvements in attainment.

· Loss of choice if there was a single provider.

· Sixth form students provide role models in schools.

· Add to traffic problems in Newport.

The feedback can be summarised as follows:

• The economy of size and greater diversity of vocational and academic study on larger single campus

• The ambitions for a faith based 11-16 secondary school

• The history of poor collaboration between post 16 providers in the past

• No guarantee that the ‘centre’ would improve attainment

• Potential for increased congestion due to additional traffic converging on to the centre at the College site

• There was a mandate from the electorate to retain a 3 tier system

• The present 3 tiers with some modification mirrors the national 14-19 agenda

• Keeping learning and schooling as close to communities as possible

• The need to retain expertise and specialisms in high schools to support developments in middle schools

• The need to keep strong role models and to extend further the involvement of 6th formers in primary schools

• This is a seminal moment to be innovative and prepare for the future rather than adjust for what has happened in the past

• There is a need to maximise the professional development/experience to recruit and retain teachers of high calibre

• Personalised learning means accessing learning from a position of attainment and readiness not age

5 ISSUES IDENTIFIED

5.1 FINANCIAL:

There are a number of potential financial implications particularly for the capital programme. The Council is in the latter phases of the Building Schools for the Future (BSF) programme but has been successful in the “one school pathfinder” bid (Cowes High School). The bid has been written in such a way as to be flexible around the outcome of this consultation.

There are significant surplus places in both the primary and middle schools. A radical programme of re-assessing standard numbers in schools will address this and will be undertaken in early 2007. This may release capital receipts and reduce some building related costs.

A major rebuilding programme is expensive – in the region of £25m per high school; £18m for a middle school and £7m for a primary school. The BSF funds will greatly assist in any rebuilding but are out of sync with the likely timetable. Approaches may need to be made to Ministers to amend the BSF timetable but the Council’s proposals would need to be innovative if they are to be persuaded.

5.2 STRATEGIC:

The Aim High strategy has an objective namely to improve the outcomes for children and young people.

5.3 OPERATIONAL:

The Joint Area Review (May 2006) and the 14-19 Area Review (January 2004) identified the lack of an effective 14-19 strategy with collaboration and co-operation between institutions insufficiently embedded.

5.4 LEGAL:

The Education Act 2006 has placed decision making regarding school organisation in the hands of the Schools’ Commissioner. The Authority will need to convince the Schools’ Commissioner that the principles of choice and competition are maintained through this recommendation before submitting proposals for school re-organisation.

5.5 SECTION 17 CRIME AND DISORDER ACT 1998

Local Authorities are required to consider the potential impact on crime and disorder at any point in considering policy of strategy. The bringing together of all young people aged 16-19 on one site for their education may lead in anti-social behaviour or incite young people through peer pressure to commit misdemeanours. Evidence suggest that young people are less likely to cause disruption or damage the environment if educated within their local communities.

6 OPTIONS APPRAISAL

6.1 Option 1 - Accept LSC proposal

Advantages

• Economy of size and diversity on one site

• Links to proposal re 11-16 faith based offer

• Addresses history of post 16 collaboration

• Receipt of capital investment

• Realisation of capital assets (school sites)

• IOW Council seen as taking positive action

Disadvantages

• Reduction of choice and diversity

• Cuts across 14-19 agenda

• Removes opportunity for local learning post 16

• Loss of older role models

• Cowes ‘pathfinder’ put at risk

• Staff instability and low morale in all phases; loss of specialist staff within schools

• Potential increased transport congestion

6.2 Option 2 – Reject LSC Proposal

Advantages

• Maintenance of choice and diversity and learning post 16 within localities

• Cowes ‘pathfinder’ remains on task

• Staff stability and use of high school specialisms within middle schools

• Retain the role older models in High Schools

Disadvantages

• Lack of economy of size and diversity on one site

• Ignores to proposal re 11-16 faith based offer

• Fails to address history of post 16 collaboration and ignores 14-19 developments

• Loss of capital investment

• Loss of faith amongst HE providers that IOW situation will improve

• IOW Council seen as avoiding difficult decisions

6.3 Option 3 – Recommend an alternative ie to establish a formal collaborative or federated arrangement between the current high schools and possibly the College

Advantages

• Maintenance of choice and diversity and local provision post 16

• Improved economy re size and diversity than current

• Retain the role older models in High Schools

• Possible retention of capital investment and realisation of some capital assets

• Cowes ‘pathfinder’ remains on task

• Staff stability in two phases

• IOW Council seen as creative and innovative

Disadvantages

• Costs associated with extension of middle schools to take Y9

• Ignores to proposal re 11-16 faith based offer

• Some limited re-organisation of middle schools

• Staff morale and stability in high schools

6.3.1 6^th Form provision delivered by High Schools and College as one institution governed by one body

A single corporation replacing the college and the schools operating on, say, 4 sites around the island; this would be organised on a collegiate model similar to Oxbridge – there may be some technical difficulties with this model. It potentially does not meet the principle of choice and diversity.

6.3.2 6^th Form provision delivered at 3 or 4 sites, with College separate, in a Trust Foundation under a single Governing Body

Bringing together the current 5 high school provision under one leadership and governance (the ‘Trust’). The ‘Trust’ can be sponsored by both public and private sectors and can offer different provision on different sites. This might mean the current 5 high school reducing to 3 or 4 sites with each site offering the basic curriculum plus a number of specialisms (linked to new diplomas). Learners would be able to access their local learning site for pastoral support, guidance and the basic curriculum. Collectively the ‘Trust’ could offer the International Baccalaureate, something which no single school will be able to do. A single group of trustees will provide governance with a principal and heads of learning for each site.

6.3.3 As 6.3.2 but with each establishment retaining its own Governing Body responsible for provision

A weaker version of the ‘Trust’ would be a federation between separate 14-19 institutions with each site retaining some autonomy. This may not achieve the desired collaboration or provide an effective diverse curriculum offer.

6.4 Summary of main themes from evidence linked to recommendation

Feedback	In alternative
The history of poor collaboration between post 16 providers in the past	√
There was a mandate from the electorate to retain a 3 tier system	√
The present 3 tiers with some modification mirrors the national 14-19 agenda	√
Keeping learning and schooling as close to communities as possible	√
The need to retain expertise and specialisms in high schools to support developments in middle schools	√
The need to keep strong role models and to extend further the involvement of 6th formers in primary schools	√
The economy of size and greater diversity of vocational and academic study on larger single campus	x
The ambitions for a faith based 11-16 secondary school	x
This is a seminal moment to be innovative and prepare for the future rather than adjust for what has happened in the past	√
There is a need to maximise the professional development/experience to recruit and retain teachers of high calibre	√

7 CUSTOMER IMPACT (VALUE FOR MONEY)

7.1 Current funding levels in schools on the Island are ranked at 62^nd out of 150 English local authorities, with a deprivation position of 77^th out of 150. Performance at Key Stage 4 and 5 are in the bottom quartile. Therefore the current arrangements are not providing value for money. A re-organisation will reduce management costs therefore releasing funds for delivery of the new 14-19 curriculum and the recruitment of high calibre staff.

8 Risk Assessment

Risk Scenario – CS5: School standards and structure

Description of Risk	Consequences		Risk Matrix RI
The consideration of school structure issues detracts from the need to raise standards leading to inability of the council to provide leadership and demonstrate impact.	§ The council and schools are subject to intervention by the DfES § Key staff in council and schools leave the system § Parental support and confidence in the educational system is lost § Standards plateau or fall	A
		B				x
		C
		D
		E
		F
			IV	III	II	I

9 EVIDENCE / BACKGROUND PAPERS / ADDITIONAL INFORMATION Timetable of events 10 August 2006 – letter from LSC on the IW Strategic Statement of Intent. 6 September 2006 – Policy Commission for Children and School Results agree to the scope of the enquiry and consultation process. 9 September 2006 – Consultation process starts – details in local media and key stakeholders invited to make written submissions to the Policy Commission. 4 October 2006 – Policy Commission for Children and School Results consider action plan arising from the Joint Area Review and initial comments on enquiry from representatives of The Learning Partnership and Positively Mad. 13 October 2006 – Closing date for written submissions. 1 November 2006 – Policy Commission for Children and School Results – briefing on the 14-19 Strategy. 9 November 2006 – formal evidence session involving key stakeholders to the Policy Commission for Children and School Results. 10 November 2006 – formal evidence session involving key stakeholders to the Policy Commission for Children and School Results. 6 December 2006 – formal evidence session involving key stakeholders to the Policy Commission for Children and School Results 8 January 2007 – informal session to consider individual letters Responses by Correspondence: The following organisations/bodies/institutions submitted written comments on the LSC proposals :- 1) Learning and Skills Council 2) IW College 3) Southampton and Solent University 4) The five Island High School Heads 5) Sandown High School Governing Body 6) Carisbrooke High School Governing Body 7) Ryde High School Governing Body 8) Cowes High School Governing Body 9) Catholic Diocese of Portsmouth 10) Anglican Diocese of Portsmouth 11) Head Boys and Head Girls of Island High Schools 12) Connexions – South Central 13) South East England Development Agency 14) IW Chamber of Commerce, Tourism and Industry 15) Association of School and College Leaders 16) Standards Not Tiers 17) National Union of Teachers 18) Osborne Middle School Governing Body 19) Sandham Middle School Governing Body 20) Trinity Church of England Aided Middle School Governing Body 21) Nodehill Middle School Governing Body 22) Nodehill Middle School Headteacher 23) Solent Middle School Governing Body 24) Archbishop King Catholic Middle School Governing Body 25) Bembridge CE Primary School Governing Body 26) Broadlea Primary School Headteacher 27) Newchurch Primary School Governing Body 28) Summerfields Primary School Headteacher 29) St Saviours RC Primary School Governing Body 30) Weston Community School Governing Body 31) Nine Acres Primary School Governing Body 32) Brighstone Primary School Governing Body 33) Niton Primary School Headteacher 34) Sixth Form Students from all High Schools 35) Cowes Primary School Governing Body 36) Northwood primary School Acting Headteacher 37) Mayfield CE Middle Governing Body + 95 letters/e-mails from individuals.

Prepared by: Date:

Cllr Melanie Swan, Commissioner and Mr Steve Beynon, Director of Children’s Services 25 January 2007