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Proposal to discontinue Coed Eva Infant and Junior Schools and establish a new community primary school in the same premises
Last updated 09 April 2008
The Minister for Children, Education, Lifelong Learning and Skills approved the proposal.
Date of decision:
26 March 2008
Statement of information:
1. Torfaen County Borough Council (the Authority) carried out a review of primary school provision in 2004. In its “Primary Education Review” document issued for consultation in September 2004, the LEA stated that the overriding aim of the review was to help raise educational standards, and set out the following aspirations and commitments:
• Every pupil should continue to have the highest possible quality of education;
• There should be sufficient school places in convenient locations serving their communities;
• Schools should be maintained at a viable size to attract and retain a strong team of teachers and support staff;
• That schools should have appropriate levels of high quality accommodation;
• There should be an increase in the proportion of pupils taught in “all-through” primary schools; and
• That savings would be reinvested in education provision.
2. The review document drew on the School Organisation Plan published in 2004 and highlighted the projected surplus capacity which was expected to increase in the borough. The primary review encompassed all 9 secondary cluster areas and asked for feedback on action which should be taken in each cluster in order to reduce surplus places. Information on the capital expenditure needs, quality of teaching and pupil attainment by school was included in the document.
3. Feedback on the primary review was submitted in a report to the Cabinet of Torfaen County Borough Council on in December 2004. The report outlined a number of preferred options for the second phase of the review and recommended consultation on the amalgamation of the following infant and junior schools:
• Griffithstown Infant and Junior Schools;
• Woodlands Infants and Junior Schools;
• New Inn Infant and Greenlawn Junior Schools;
• Penygarn Infant and Junior Schools;
• Fairwater Infant and Junior Schools;
• Croesyceiliog Infant and Junior Schools; and
• Coed Eva Infant and Junior Schools.
4. The Authority carried out consultation and published notices for the first five proposals, all of which were implemented by 1 September 2007.
Consultation and publication
5. Formal consultation on a proposal to discontinue Coed Eva Infant and Junior Schools and establish a new community primary school in the same premises but with some alterations to remove surplus capacity was approved by the Cabinet in May 2007. Consultation took place from 4 June to 27 July 2007. Letters providing information about the proposals were sent to parents, staff, governors and local residents on 4 June 2007 inviting written comments. Consultation meetings were also held at Coed Eva on 28 June 2007 for parents, staff, governors and local residents.
6. A report on the consultation was submitted to the Cabinet which approved publication of a statutory notice to discontinue Croesyceiliog Infant and Junior Schools and establish a new 420 place community primary school. The proposal was published on 27 September 2007. The statutory objection period ended on 27 November 2007 and two objections were.
The schools
7. Coed Eva Infant and Junior Schools share a site in the residential suburb of Coed Eva within the town of Cwmbran. About 25% of the pupils are entitled to free school meals. The schools are of modern construction with flat roofs. Pupils have access to extensive grounds surrounding the schools.
8. The Authority has rated the condition, suitability and efficiency of all their schools and devised a scoring system to indicate the order of priority in which each will need capital investment. Coed Eva Infant and Junior Schools have a low priority score, indicating that the Authority considers that they are in a good condition.
9. Torfaen has recently reassessed the capacity of the two schools and has allocated some rooms to alternative uses. As a result the Infant School has a reduced capacity of 180 places and virtually no surplus.
10. The Junior School has a new capacity of 307 places (30 of which are in a demountable classroom). In September 2007 there were 274 pupils on roll indicating 10% surplus capacity.
LEA’s statement of case
11. Currently Coed Eva Infant and Junior Schools are two separate schools with two headteachers, two groups of staff, two separate budgets and two governing bodies.
12. The Authority considers that there would be a number of advantages to the amalgamation of the two schools to create one ‘all-through’ primary school, namely:
• A new primary school under the leadership of one headteacher and one governing body has potential for ensuring greater continuity of teaching and learning for pupils up to the age of 11, as they have access to a wider range of expertise and resources;
• Curriculum and subject expertise can be shared amongst staff in larger schools, which will in turn enhance the quality and diversity of the teaching;
• Amalgamation will remove an additional and unnecessary change of school at a key point in a child’s development. It will help counteract the observed dip in pupil’s performance on transfer at age 7;
• Communication between teachers and managers across both key stages will be significantly improved;
• It will remove the differences in ethos and organisation which can have a significant impact on how pupils settle into school;
• It will provide greater opportunities for coherence of planning and common approaches to teaching and learning. Data and records regarding children’s progress and attainment can be more effectively shared to support the process of transition;
• A single all-through school can provide a more effective community role acting through a single governing body and Headteacher. It also allows the community to identify and support a single school;
• An improvement in diversity would spring from the increased potential interaction between staff and pupils. The larger school would promote greater interaction and allow opportunities for additional activities which could be supported by parents, children and staff.
13. The number of children in Torfaen is falling and the Authority estimate that 25% of places in Torfaen primary schools could be surplus by 2011. The Authority calculates that this level of surplus places would cost £500,000 per year to support, expenditure which could be allocated to support curriculum delivery or other areas of education.
14. The Authority updates their projections each year using the most up to date figures for the number of pupils on roll, live births and parental preference. The following table shows the pupil projections provided by the Authority in 2007.
Coed Eva Infant
Capacity 2008 - 180
Actual 2007 - 177
Projections
2008 - 194
2009 - 216
2010 - 222
2011 - 232
Coed Eva Junior
Capacity 2008 - 307
Actual 2007 - 274
Projections
2008 - 265
2009 - 248
2010 - 252
2011 - 258
Combined total
Capacity 2008 - 487
Actual 2007 - 451
Projections
2008 - 459
2009 - 464
2010 - 474
2011 - 490
15. These figures are higher than the proposed capacity of the new school but many of the current pupils come from outside the Coed Eva catchment area. A survey conducted in March 2007 revealed that there were 279 out of catchment pupils attending the Coed Eva Schools and only 66 pupils from the catchment area attending other community schools. The survey revealed that around 320 pupils live in the Coed Eva catchment area. This confirms that the school buildings, even when cut to 420 places have more than sufficient space for catchment area pupils. If the proposal to build a new school on the Hollybush site (which is nearby) proceeds, it is expected that pupils from that area will chose the new school rather than Coed Eva as at present.
16. The Authority is keen to emphasise the community focus of its schools. Such focus is more difficult to achieve when there are a high percentage of pupils attending the school from outside the catchment area.
17. The amalgamation of Coed Eva Infant and Junior Schools would provide an opportunity to reduce surplus places with the removal of demountable accommodation and the remodelling of the main school buildings. The proposal is to establish a primary school with a capacity of 420 places this would be a reduction in capacity of 67 places. The proposal will provide an opportunity to remove provision currently in demountables and possibly re-designate further facilities to support the community focused schools agenda.
18. There are no immediate plans for significant investment in the new primary school buildings. Currently Coed Eva Infant and Junior Schools occupy the same site but have two distinct entrances. To create a single identity for the new primary school the Authority is considering the following remodelling work:
• create a single administrative centre;
• create a single staffroom;
• reduce capacity by removing redundant demountable structures; and
• improve parking and vehicular access to the site.
19. However, it was made clear during the consultation that any significant investment had to be done in a planned and strategic way and needed to be consistent with the future plans to make schools fit for purpose. The Authority is committed to ensure that significant investment creates permanent solutions and considerable improvements. If the proposal is approved a project group will meet with the governing body, staff and other interested parties to identify the work required. This is the approach the Authority has used on previous amalgamations and is consistent with the Authority’s policy of consultation and equal partners. Each set of improvements have been specific to the individual schools. It is hoped that the improvements will be carried out in the year of amalgamation or possibly phased over two years depending on the financial situation at the time.
Financial implications
20. If Coed Eva Infant and Junior Schools are closed and a new primary school established, running costs will be reduced producing savings which will be directed into the education budget. The Authority estimates that there will be a net annual saving of approximately £30,000 per annum from the reorganisation. This would result mainly from the reduction of one school lump sum. There are no additional school transport implications.
Objections and Responses
21. There were two objections to the proposal; one from the National Union of Teachers and the other from a parent governor of Coed Eva Infant School. The main points, raised and the Authority’s response in italics, are as follows:
• The NUT object to the proposal on the grounds that the procedure chosen to amalgamate the two schools creates unnecessary risk of compulsory redundancies and the Council as an employer has a duty to consider all reasonable means of avoiding compulsory redundancy such as natural wastage.
The Authority did not consider or consult on alternative methods of amalgamating the two schools. Closing either the infant or junior school and extending the age range of the other school has potential to better protect the jobs of headteachers and deputy headteachers and may even prevent compulsory redundancies.
• The Authority and the trade unions through the Primary and Secondary Joint Consultative Committee (PSJCC) agreed the Guiding Principles for staffing arrangements on 15 September 2005 and the appointment Procedure for Staff in Amalgamating and Closing Primary Schools on 1 December 2005 under the procedure the appointment of headteachers and deputy headteachers will be by interviewing following appropriate advertisements, application and short listing. This arrangement is in accordance with the relevant Regulations guiding the appointment of headteachers and deputy headteachers as they apply in Wales.
Torfaen Local Authority pays great regard to securing continuous employment arrangements for school based staff and the procedure allows for the majority of staff to be directly allocated to a post in the new amalgamated school. There have been many occasions where the trade unions have commended the Authority on its approach to avoiding compulsory redundancy for school based staff against the challenging background of managing the impact on schools of falling pupil numbers and the consequent implementation of workforce reductions. Natural wastage is a factor that is taken into account to aid the implementation process but a proactive approach is required to manage down the numbers of staff and minimise the number of compulsory redundancies. Through these arrangements there have been no compulsory redundancies arising directly from school amalgamations and a number of Torfaen staff have benefited from opportunities for career progression.. The Authority does not accept the view that individual teachers are being asked to pay for the re-organisation by sacrificing their careers.
In respect of deputy heads who are unsuccessful in applying for the new deputy head post, it is anticipated that if no other suitable opportunities arose they would be redeployed to a teaching post. In this event their existing deputy head salary would be safe guarded for a period of three years.
The arguments brought forward regarding the closure of only one school and extending the age range of the other have been discussed. This approach would guarantee security for staff in the school with the extended age range, but not for the staff in the closing school. It would not prevent compulsory redundancy. By adopting the current process and with a shadow governing body drawn from the two closing schools equal opportunity would be offered to both sets of staff.
The Authority has followed its statutory obligation in terms of consultation clearly indicating how it would see proposals proceeding. The impact of change has not been under estimated by the Authority and measures have been put in place to minimise the likelihood of compulsory redundancy and offer support and transition arrangements for individuals who will be affected by change which includes staff and pupils.
Redundancy avoidance is not one of the criteria that the Welsh Assembly Government would take into account in determining reorganisation proposals including school closures. Full details of these criteria can be found in Welsh Office Circular 23/02 School Organisation Proposals.
Using the same process proposed for Coed Eva the Authority have already achieved the successful amalgamation of the following schools over the last two years:
• Woodlands Infant and Junior Schools
• Green Lawn Junior and New Inn Infant Schools
• Griffithstown Infant and Junior Schools
• Fairwater Infant and Junior Schools
• Penygarn Infant and Junior School.
• I object to the proposal because the Authority has not convinced me that there is good reason to amalgamate the two schools. The Authority has put forward various arguments such as simplification of administration but as a parent I have a different perspective. I have great respect for the way both schools are currently run and I am concerned about the effect the amalgamation would have on my children’s education.
• The Authority has never questioned the quality of education at Coed Eva Infants and Junior School. However, a single all-through primary school would offer educational benefits and impact positively on pupil’s attainment.
The organisation of a primary school, under the leadership of one headteacher and one governing body has greater potential for ensuring continuity of teaching and learning for pupils up to the age of 11 as well as access to a wider range of expertise and resources. There is national evidence that children’s progress can be adversely affected by a change of school part way through their primary education. This proposal would remove that transition.
An all-through primary school has greater potential developing consistent policies and approaches. The larger school allows greater curriculum and subject expertise to be shared amongst staff. It can offer enhanced opportunities for the professional and career development of teaching and support staff. Subject leaders would have the opportunity to extend their knowledge, understanding and experience of their subject across the full primary age range. These factors increase the ability of a school to attract and retain quality staff. Significant financial advantages are also obtained by amalgamating schools, helping focus resources more effectively on teaching and learning.
An all-through primary school also brings advantages for parents. They can relate to one headteacher and one set of administrative arrangements for the whole of their child’s primary education. It also avoids the possibility of a child not obtaining a place in the preferred junior school if applications received for admission are greater than the number of places available.
Arranging for all their primary age children to attend a single primary school rather than two schools is potentially easier for parents.
There would also be some recurring savings that will accrue to the amalgamated school directly and to the Authority with a guarantee that the latter will be reinvested into education. Although there are likely to be some financial savings it is the Authority’s view that the educational benefits for pupils, staff, parents and the community are the main reasons why this amalgamation is proposed.
Evidence from Estyn Inspections
22. Coed Eva Infant School was inspected on 15 May 2006. The following comments have been taken from the published report:
The five point scale used to represent all inspection judgements in the reports is as follows:
Grade 1 good with outstanding features
Grade 2 good features and no important shortcomings
Grade 3 good features outweigh shortcomings
Grade 4 some good features, but shortcomings in important areas
Grade 5 many important shortcomings.
Key Question Inspection grade
How well do learners achieve? 2
How effective are teaching, training and assessment? 2
How well do the learning experiences meet the needs and interests of learners and the wider community? 2
How well are learners cared for, guided and supported? 1
How effective are leadership and strategic management? 1
How well do leaders and managers evaluate and improve quality and standards? 2
How efficient are leaders and managers in using resources? 1
Standards of achievement
KS1 teacher assessment for 2005 show that the vast majority of pupils achieve national expectations (level two) in English (87%), mathematics (95%) and science (90%). 18% achieve level three in English, 32% in mathematics and 19% in science. 85% achieve the core subject indicator (at least level two in all three subjects) and results compare well with national norms. When marks are benchmarked against comparable schools in terms of percentage of pupils eligible for free school meals, results for mathematics are in the top 25% of performers. English and core subject indicator are above, and science just on, the median (middle) score. There is no significant difference between the attainment of boys and girls.
Grades for teaching
Grade 1 - 29%
Grade 2 - 38%
Grade 3 - 33%
Grade 4 - 0%
Grade 5 - 0%
The quality of teaching in lessons is above the WAG 2007 all-Wales targets for 65% to be graded one or two and 98% to be graded one, two or three.
23. Coed Eva Junior School was inspected from 10-13 October 2005. The following comments have been taken from the published report:
Key Question Inspection grade
How well do learners achieve? 2
How effective are teaching, training and assessment? 2
How well do the learning experiences meet the needs and interests of learners and the wider community? 2
How well are learners cared for, guided and supported? 1
How effective are leadership and strategic management? 2
How well do leaders and managers evaluate and improve quality and standards? 2
How efficient are leaders and managers in using resources? 1
Standards of achievement
Grade 1 - 13%
Grade 2 - 63%
Grade 3 - 24%
Grade 4 - 0%
Grade 5 - 0%
Pupils’ standards of achievement in lessons are above the Welsh Assembly Government’s (WAG’s) targets, which are for 95% of pupils to attain grade 3 and above, and of those, 50 % to achieve grade 2.
Grades for teaching
Grade 1 - 20%
Grade 2 - 57%
Grade 3 - 23%
Grade 4 - 0%
Grade 5 - 0%
The teaching has good features and no important shortcomings. The overall quality of teaching in lessons is higher than WAG’s targets. Teachers have good knowledge and understanding of subjects they teach. In some subjects there is a high level of expertise, such as in physical education and music.
Links:
Mr Tony Walker
Acting Chief Education Officer
Torfaen County Borough Council
County Hall
Cwmbran
Torfaen
NP44 2WN
Ein cyf . Our ref A-EDF678-20-2240-01
26 March 2008
Dear Mr Walker
SCHOOL STANDARDS AND FRAMEWORK ACT 1998 – SECTIONS 28 AND 29 PROPOSAL TO DISCONTINUE COED EVA INFANT AND JUNIOR SCHOOLS AND ESTABLISH A NEW PRIMARY SCHOOL
I refer to the above mentioned proposal published on 27 September 2007 by Torfaen County Borough Council under Section 28 and 29 of the School Standards and Framework Act 1998 (“the 1998 Act”). Under paragraph 8(1)(b) of Schedule 6 to the 1998 Act, the proposal requires approval by the Welsh Ministers.
This matter has been considered by Jane Hutt, Minister for Children, Education, Lifelong
Learning and Skills.
I am directed by the Minister to say that she has carefully considered the proposal, the statutory objections submitted to her, the Authority’s comments thereon and the supporting evidence supplied by the Authority in accordance with the Education (School Organisation Proposals) (Wales) Regulations 1999 (“the 1999 Regulations”). In exercise of her powers under paragraph 8(2) of Schedule 6 to the 1998 Act and with due regard to National Assembly for Wales Circulars 9/99 and 23/02, the Minister has decided to approve the proposal.
In reaching this decision, and taking into account all matters brought to her attention, the Minister is satisfied that Torfaen’s policy of establishing of all-through primary schools in place of separate infant and junior schools is based on sound educational principles and she believes it is reasonable for the Authority to aspire to consistency of provision across its area.
The Minister is satisfied that the Authority has met the statutory requirements in respect of consultation on the proposal, its publication and notes that it has submitted, in accordance with the 1999 Regulations, the information required in Schedule 4 of those Regulations.
Objections to the proposal
The Minister notes that there were two objections from the National Union of Teachers (NUT) and one from a parent governor of Coed Eva Infant School. She has noted the principal concerns of the objector in the letter which was submitted to her. The points made were also included in summary form in the Statement of Information on which she based her decision. She also noted the summary of responses made by the Authority which were also included in the Statement of Information. This statement can be found on the Welsh Assembly Government website through the following link. http://new.wales.gov.uk/publications/accessinfo/decisionreport/educationdrs/educationdrs2008/?lang=en
The Minister’s conclusions
After careful consideration, the Minister feels that the responses made by the Authority adequately answer the issues raised by the two statutory objections.
The Minister notes that the NUT, objected to the proposal because of the method proposed by the Authority to achieve the amalgamation of the two schools.
There are two alternative approaches to achieve an amalgamation within the scope of the Schools Standards and Framework Act 1998. The first approach is to close both infant and junior schools under Section 29 of the Act and to open a new primary school under Section 28 of the Act. The second approach is to close either the infant or junior school under Section 29 of the Act and to alter the age range and increase the size of the remaining school under Section 28 of the Act.
The Minister considers that it is for Local Authorities to decide which approach to take in the light of their local knowledge and all the individual circumstances. The main practical difference between the two approaches is the way that they affect staff. The staffing of Maintained Schools (Wales) Regulations 2006 require that for new schools or where head and deputy posts become vacant in existing schools, those posts must be advertised nationally. The posts of head and deputy are critical for the effective management and performance of the school and it is vital that the right person is appointed to the job. In the first approach, where two schools close a new school is opened both the head and the deputy vacancies have to be advertised. But in the second approach, if the school being extended already has a head and deputy in place who wished to continue in post, there is no opportunity for senior staff from the other school to compete for the posts. The Minister agrees that the approach taken by the Authority treats staff on the basis of equality, and maximises the opportunity for the best possible candidates to be appointed to senior posts.
The Minister is persuaded that the proposal will deliver a number of educational benefits. There is potential for improved continuity, and there would be a larger team of staff, providing more flexibility in covering all subjects of the curriculum. More opportunities for staff to develop their skills across the whole primary age range would be created, thus increasing teaching expertise. A single headteacher should, as the Authority suggest, provide more coherent leadership. The single primary school would be in a stronger position in respect of the delegated budget, since it would be necessary to fund only one headteacher’s post and governors would be free to decide on the remaining staffing structure. The potential savings could fund further staff or be retained in the budget for other improvements. The proposal will deliver modest savings to the Authority.
The Minister does not agree with the position of the NUT that school reorganisations should not take place if there is any possibility of it resulting in redundancy. Whist the Welsh Assembly Governments does not seek to influence local authorities in the approach they adopt when amalgamating schools the Minister views the approach adopted by Torfaen in this case as the fairest in the circumstances.
The Minister notes that one of the Coed Eva Infant School parent governors objected to the proposal on the grounds that he had not been convinced by the Authority of the advantages in changing current arrangement of separate infant and junior schools to an all-through primary school. The Minister is satisfied with the list of advantages provided by the Authority in response to this objection.
Overall the Minister is satisfied that the proposal will:
i. allow the LEA to deliver more cost effectively primary education in the area served by Coed Eva Infant and Junior Schools;
ii. provide at least equivalent quality and diversity of education as that which would be available if Coed Eva Infant and Junior Schools were to remain open, and by creating an all-through primary school make it possible to improve continuity from KS1/Foundation Phase to KS2;
iii. allow improvement and greater flexibility in management and organisation; and
iv. provide opportunities to increase the range of expertise and experience of teaching staff and provide opportunities for improvements in the deployment and development of teachers.
The Minister notes that this proposal is due to be implemented with effect from 1 September 2008 and from that date pupils attending Coed Eva Infant and Junior School will, subject to the expression of parental preference, will become pupils of the new primary school. The Minister looks to the Authority to ensure that implementation of the proposal, including any remodelling, is carried out with the minimum possible disruption.
Schools Management Division of the Welsh Assembly Government, Department for Children, Education, Lifelong Learning and Skills should be informed of the new primary school’s official name as it will appear on the Instrument of Government, along with the school’s address, so that a school number may be issued to you.
I am sending a copy of this letter to the Chief Executive of Torfaen County Borough Council the Headteachers of Coed Eva Infant and Junior Schools, the Chairs of Governors at both schools, and the two statutory objectors. A copy will also be sent to Lynne Neagle AM. The Chief Executive, Headteachers and Chairs of Governors will receive a copy of the Statement of Information.
Yours sincerely
SYLVIA LINDOE
HEAD OF SCHOOLS MANAGEMENT DIVISION
26 March 2008
Statement of information:
1. Torfaen County Borough Council (the Authority) carried out a review of primary school provision in 2004. In its “Primary Education Review” document issued for consultation in September 2004, the LEA stated that the overriding aim of the review was to help raise educational standards, and set out the following aspirations and commitments:
• Every pupil should continue to have the highest possible quality of education;
• There should be sufficient school places in convenient locations serving their communities;
• Schools should be maintained at a viable size to attract and retain a strong team of teachers and support staff;
• That schools should have appropriate levels of high quality accommodation;
• There should be an increase in the proportion of pupils taught in “all-through” primary schools; and
• That savings would be reinvested in education provision.
2. The review document drew on the School Organisation Plan published in 2004 and highlighted the projected surplus capacity which was expected to increase in the borough. The primary review encompassed all 9 secondary cluster areas and asked for feedback on action which should be taken in each cluster in order to reduce surplus places. Information on the capital expenditure needs, quality of teaching and pupil attainment by school was included in the document.
3. Feedback on the primary review was submitted in a report to the Cabinet of Torfaen County Borough Council on in December 2004. The report outlined a number of preferred options for the second phase of the review and recommended consultation on the amalgamation of the following infant and junior schools:
• Griffithstown Infant and Junior Schools;
• Woodlands Infants and Junior Schools;
• New Inn Infant and Greenlawn Junior Schools;
• Penygarn Infant and Junior Schools;
• Fairwater Infant and Junior Schools;
• Croesyceiliog Infant and Junior Schools; and
• Coed Eva Infant and Junior Schools.
4. The Authority carried out consultation and published notices for the first five proposals, all of which were implemented by 1 September 2007.
Consultation and publication
5. Formal consultation on a proposal to discontinue Coed Eva Infant and Junior Schools and establish a new community primary school in the same premises but with some alterations to remove surplus capacity was approved by the Cabinet in May 2007. Consultation took place from 4 June to 27 July 2007. Letters providing information about the proposals were sent to parents, staff, governors and local residents on 4 June 2007 inviting written comments. Consultation meetings were also held at Coed Eva on 28 June 2007 for parents, staff, governors and local residents.
6. A report on the consultation was submitted to the Cabinet which approved publication of a statutory notice to discontinue Croesyceiliog Infant and Junior Schools and establish a new 420 place community primary school. The proposal was published on 27 September 2007. The statutory objection period ended on 27 November 2007 and two objections were.
The schools
7. Coed Eva Infant and Junior Schools share a site in the residential suburb of Coed Eva within the town of Cwmbran. About 25% of the pupils are entitled to free school meals. The schools are of modern construction with flat roofs. Pupils have access to extensive grounds surrounding the schools.
8. The Authority has rated the condition, suitability and efficiency of all their schools and devised a scoring system to indicate the order of priority in which each will need capital investment. Coed Eva Infant and Junior Schools have a low priority score, indicating that the Authority considers that they are in a good condition.
9. Torfaen has recently reassessed the capacity of the two schools and has allocated some rooms to alternative uses. As a result the Infant School has a reduced capacity of 180 places and virtually no surplus.
10. The Junior School has a new capacity of 307 places (30 of which are in a demountable classroom). In September 2007 there were 274 pupils on roll indicating 10% surplus capacity.
LEA’s statement of case
11. Currently Coed Eva Infant and Junior Schools are two separate schools with two headteachers, two groups of staff, two separate budgets and two governing bodies.
12. The Authority considers that there would be a number of advantages to the amalgamation of the two schools to create one ‘all-through’ primary school, namely:
• A new primary school under the leadership of one headteacher and one governing body has potential for ensuring greater continuity of teaching and learning for pupils up to the age of 11, as they have access to a wider range of expertise and resources;
• Curriculum and subject expertise can be shared amongst staff in larger schools, which will in turn enhance the quality and diversity of the teaching;
• Amalgamation will remove an additional and unnecessary change of school at a key point in a child’s development. It will help counteract the observed dip in pupil’s performance on transfer at age 7;
• Communication between teachers and managers across both key stages will be significantly improved;
• It will remove the differences in ethos and organisation which can have a significant impact on how pupils settle into school;
• It will provide greater opportunities for coherence of planning and common approaches to teaching and learning. Data and records regarding children’s progress and attainment can be more effectively shared to support the process of transition;
• A single all-through school can provide a more effective community role acting through a single governing body and Headteacher. It also allows the community to identify and support a single school;
• An improvement in diversity would spring from the increased potential interaction between staff and pupils. The larger school would promote greater interaction and allow opportunities for additional activities which could be supported by parents, children and staff.
13. The number of children in Torfaen is falling and the Authority estimate that 25% of places in Torfaen primary schools could be surplus by 2011. The Authority calculates that this level of surplus places would cost £500,000 per year to support, expenditure which could be allocated to support curriculum delivery or other areas of education.
14. The Authority updates their projections each year using the most up to date figures for the number of pupils on roll, live births and parental preference. The following table shows the pupil projections provided by the Authority in 2007.
Coed Eva Infant
Capacity 2008 - 180
Actual 2007 - 177
Projections
2008 - 194
2009 - 216
2010 - 222
2011 - 232
Coed Eva Junior
Capacity 2008 - 307
Actual 2007 - 274
Projections
2008 - 265
2009 - 248
2010 - 252
2011 - 258
Combined total
Capacity 2008 - 487
Actual 2007 - 451
Projections
2008 - 459
2009 - 464
2010 - 474
2011 - 490
15. These figures are higher than the proposed capacity of the new school but many of the current pupils come from outside the Coed Eva catchment area. A survey conducted in March 2007 revealed that there were 279 out of catchment pupils attending the Coed Eva Schools and only 66 pupils from the catchment area attending other community schools. The survey revealed that around 320 pupils live in the Coed Eva catchment area. This confirms that the school buildings, even when cut to 420 places have more than sufficient space for catchment area pupils. If the proposal to build a new school on the Hollybush site (which is nearby) proceeds, it is expected that pupils from that area will chose the new school rather than Coed Eva as at present.
16. The Authority is keen to emphasise the community focus of its schools. Such focus is more difficult to achieve when there are a high percentage of pupils attending the school from outside the catchment area.
17. The amalgamation of Coed Eva Infant and Junior Schools would provide an opportunity to reduce surplus places with the removal of demountable accommodation and the remodelling of the main school buildings. The proposal is to establish a primary school with a capacity of 420 places this would be a reduction in capacity of 67 places. The proposal will provide an opportunity to remove provision currently in demountables and possibly re-designate further facilities to support the community focused schools agenda.
18. There are no immediate plans for significant investment in the new primary school buildings. Currently Coed Eva Infant and Junior Schools occupy the same site but have two distinct entrances. To create a single identity for the new primary school the Authority is considering the following remodelling work:
• create a single administrative centre;
• create a single staffroom;
• reduce capacity by removing redundant demountable structures; and
• improve parking and vehicular access to the site.
19. However, it was made clear during the consultation that any significant investment had to be done in a planned and strategic way and needed to be consistent with the future plans to make schools fit for purpose. The Authority is committed to ensure that significant investment creates permanent solutions and considerable improvements. If the proposal is approved a project group will meet with the governing body, staff and other interested parties to identify the work required. This is the approach the Authority has used on previous amalgamations and is consistent with the Authority’s policy of consultation and equal partners. Each set of improvements have been specific to the individual schools. It is hoped that the improvements will be carried out in the year of amalgamation or possibly phased over two years depending on the financial situation at the time.
Financial implications
20. If Coed Eva Infant and Junior Schools are closed and a new primary school established, running costs will be reduced producing savings which will be directed into the education budget. The Authority estimates that there will be a net annual saving of approximately £30,000 per annum from the reorganisation. This would result mainly from the reduction of one school lump sum. There are no additional school transport implications.
Objections and Responses
21. There were two objections to the proposal; one from the National Union of Teachers and the other from a parent governor of Coed Eva Infant School. The main points, raised and the Authority’s response in italics, are as follows:
• The NUT object to the proposal on the grounds that the procedure chosen to amalgamate the two schools creates unnecessary risk of compulsory redundancies and the Council as an employer has a duty to consider all reasonable means of avoiding compulsory redundancy such as natural wastage.
The Authority did not consider or consult on alternative methods of amalgamating the two schools. Closing either the infant or junior school and extending the age range of the other school has potential to better protect the jobs of headteachers and deputy headteachers and may even prevent compulsory redundancies.
• The Authority and the trade unions through the Primary and Secondary Joint Consultative Committee (PSJCC) agreed the Guiding Principles for staffing arrangements on 15 September 2005 and the appointment Procedure for Staff in Amalgamating and Closing Primary Schools on 1 December 2005 under the procedure the appointment of headteachers and deputy headteachers will be by interviewing following appropriate advertisements, application and short listing. This arrangement is in accordance with the relevant Regulations guiding the appointment of headteachers and deputy headteachers as they apply in Wales.
Torfaen Local Authority pays great regard to securing continuous employment arrangements for school based staff and the procedure allows for the majority of staff to be directly allocated to a post in the new amalgamated school. There have been many occasions where the trade unions have commended the Authority on its approach to avoiding compulsory redundancy for school based staff against the challenging background of managing the impact on schools of falling pupil numbers and the consequent implementation of workforce reductions. Natural wastage is a factor that is taken into account to aid the implementation process but a proactive approach is required to manage down the numbers of staff and minimise the number of compulsory redundancies. Through these arrangements there have been no compulsory redundancies arising directly from school amalgamations and a number of Torfaen staff have benefited from opportunities for career progression.. The Authority does not accept the view that individual teachers are being asked to pay for the re-organisation by sacrificing their careers.
In respect of deputy heads who are unsuccessful in applying for the new deputy head post, it is anticipated that if no other suitable opportunities arose they would be redeployed to a teaching post. In this event their existing deputy head salary would be safe guarded for a period of three years.
The arguments brought forward regarding the closure of only one school and extending the age range of the other have been discussed. This approach would guarantee security for staff in the school with the extended age range, but not for the staff in the closing school. It would not prevent compulsory redundancy. By adopting the current process and with a shadow governing body drawn from the two closing schools equal opportunity would be offered to both sets of staff.
The Authority has followed its statutory obligation in terms of consultation clearly indicating how it would see proposals proceeding. The impact of change has not been under estimated by the Authority and measures have been put in place to minimise the likelihood of compulsory redundancy and offer support and transition arrangements for individuals who will be affected by change which includes staff and pupils.
Redundancy avoidance is not one of the criteria that the Welsh Assembly Government would take into account in determining reorganisation proposals including school closures. Full details of these criteria can be found in Welsh Office Circular 23/02 School Organisation Proposals.
Using the same process proposed for Coed Eva the Authority have already achieved the successful amalgamation of the following schools over the last two years:
• Woodlands Infant and Junior Schools
• Green Lawn Junior and New Inn Infant Schools
• Griffithstown Infant and Junior Schools
• Fairwater Infant and Junior Schools
• Penygarn Infant and Junior School.
• I object to the proposal because the Authority has not convinced me that there is good reason to amalgamate the two schools. The Authority has put forward various arguments such as simplification of administration but as a parent I have a different perspective. I have great respect for the way both schools are currently run and I am concerned about the effect the amalgamation would have on my children’s education.
• The Authority has never questioned the quality of education at Coed Eva Infants and Junior School. However, a single all-through primary school would offer educational benefits and impact positively on pupil’s attainment.
The organisation of a primary school, under the leadership of one headteacher and one governing body has greater potential for ensuring continuity of teaching and learning for pupils up to the age of 11 as well as access to a wider range of expertise and resources. There is national evidence that children’s progress can be adversely affected by a change of school part way through their primary education. This proposal would remove that transition.
An all-through primary school has greater potential developing consistent policies and approaches. The larger school allows greater curriculum and subject expertise to be shared amongst staff. It can offer enhanced opportunities for the professional and career development of teaching and support staff. Subject leaders would have the opportunity to extend their knowledge, understanding and experience of their subject across the full primary age range. These factors increase the ability of a school to attract and retain quality staff. Significant financial advantages are also obtained by amalgamating schools, helping focus resources more effectively on teaching and learning.
An all-through primary school also brings advantages for parents. They can relate to one headteacher and one set of administrative arrangements for the whole of their child’s primary education. It also avoids the possibility of a child not obtaining a place in the preferred junior school if applications received for admission are greater than the number of places available.
Arranging for all their primary age children to attend a single primary school rather than two schools is potentially easier for parents.
There would also be some recurring savings that will accrue to the amalgamated school directly and to the Authority with a guarantee that the latter will be reinvested into education. Although there are likely to be some financial savings it is the Authority’s view that the educational benefits for pupils, staff, parents and the community are the main reasons why this amalgamation is proposed.
Evidence from Estyn Inspections
22. Coed Eva Infant School was inspected on 15 May 2006. The following comments have been taken from the published report:
The five point scale used to represent all inspection judgements in the reports is as follows:
Grade 1 good with outstanding features
Grade 2 good features and no important shortcomings
Grade 3 good features outweigh shortcomings
Grade 4 some good features, but shortcomings in important areas
Grade 5 many important shortcomings.
Key Question Inspection grade
How well do learners achieve? 2
How effective are teaching, training and assessment? 2
How well do the learning experiences meet the needs and interests of learners and the wider community? 2
How well are learners cared for, guided and supported? 1
How effective are leadership and strategic management? 1
How well do leaders and managers evaluate and improve quality and standards? 2
How efficient are leaders and managers in using resources? 1
Standards of achievement
KS1 teacher assessment for 2005 show that the vast majority of pupils achieve national expectations (level two) in English (87%), mathematics (95%) and science (90%). 18% achieve level three in English, 32% in mathematics and 19% in science. 85% achieve the core subject indicator (at least level two in all three subjects) and results compare well with national norms. When marks are benchmarked against comparable schools in terms of percentage of pupils eligible for free school meals, results for mathematics are in the top 25% of performers. English and core subject indicator are above, and science just on, the median (middle) score. There is no significant difference between the attainment of boys and girls.
Grades for teaching
Grade 1 - 29%
Grade 2 - 38%
Grade 3 - 33%
Grade 4 - 0%
Grade 5 - 0%
The quality of teaching in lessons is above the WAG 2007 all-Wales targets for 65% to be graded one or two and 98% to be graded one, two or three.
23. Coed Eva Junior School was inspected from 10-13 October 2005. The following comments have been taken from the published report:
Key Question Inspection grade
How well do learners achieve? 2
How effective are teaching, training and assessment? 2
How well do the learning experiences meet the needs and interests of learners and the wider community? 2
How well are learners cared for, guided and supported? 1
How effective are leadership and strategic management? 2
How well do leaders and managers evaluate and improve quality and standards? 2
How efficient are leaders and managers in using resources? 1
Standards of achievement
Grade 1 - 13%
Grade 2 - 63%
Grade 3 - 24%
Grade 4 - 0%
Grade 5 - 0%
Pupils’ standards of achievement in lessons are above the Welsh Assembly Government’s (WAG’s) targets, which are for 95% of pupils to attain grade 3 and above, and of those, 50 % to achieve grade 2.
Grades for teaching
Grade 1 - 20%
Grade 2 - 57%
Grade 3 - 23%
Grade 4 - 0%
Grade 5 - 0%
The teaching has good features and no important shortcomings. The overall quality of teaching in lessons is higher than WAG’s targets. Teachers have good knowledge and understanding of subjects they teach. In some subjects there is a high level of expertise, such as in physical education and music.
Links:
Mr Tony Walker
Acting Chief Education Officer
Torfaen County Borough Council
County Hall
Cwmbran
Torfaen
NP44 2WN
Ein cyf . Our ref A-EDF678-20-2240-01
26 March 2008
Dear Mr Walker
SCHOOL STANDARDS AND FRAMEWORK ACT 1998 – SECTIONS 28 AND 29 PROPOSAL TO DISCONTINUE COED EVA INFANT AND JUNIOR SCHOOLS AND ESTABLISH A NEW PRIMARY SCHOOL
I refer to the above mentioned proposal published on 27 September 2007 by Torfaen County Borough Council under Section 28 and 29 of the School Standards and Framework Act 1998 (“the 1998 Act”). Under paragraph 8(1)(b) of Schedule 6 to the 1998 Act, the proposal requires approval by the Welsh Ministers.
This matter has been considered by Jane Hutt, Minister for Children, Education, Lifelong
Learning and Skills.
I am directed by the Minister to say that she has carefully considered the proposal, the statutory objections submitted to her, the Authority’s comments thereon and the supporting evidence supplied by the Authority in accordance with the Education (School Organisation Proposals) (Wales) Regulations 1999 (“the 1999 Regulations”). In exercise of her powers under paragraph 8(2) of Schedule 6 to the 1998 Act and with due regard to National Assembly for Wales Circulars 9/99 and 23/02, the Minister has decided to approve the proposal.
In reaching this decision, and taking into account all matters brought to her attention, the Minister is satisfied that Torfaen’s policy of establishing of all-through primary schools in place of separate infant and junior schools is based on sound educational principles and she believes it is reasonable for the Authority to aspire to consistency of provision across its area.
The Minister is satisfied that the Authority has met the statutory requirements in respect of consultation on the proposal, its publication and notes that it has submitted, in accordance with the 1999 Regulations, the information required in Schedule 4 of those Regulations.
Objections to the proposal
The Minister notes that there were two objections from the National Union of Teachers (NUT) and one from a parent governor of Coed Eva Infant School. She has noted the principal concerns of the objector in the letter which was submitted to her. The points made were also included in summary form in the Statement of Information on which she based her decision. She also noted the summary of responses made by the Authority which were also included in the Statement of Information. This statement can be found on the Welsh Assembly Government website through the following link. http://new.wales.gov.uk/publications/accessinfo/decisionreport/educationdrs/educationdrs2008/?lang=en
The Minister’s conclusions
After careful consideration, the Minister feels that the responses made by the Authority adequately answer the issues raised by the two statutory objections.
The Minister notes that the NUT, objected to the proposal because of the method proposed by the Authority to achieve the amalgamation of the two schools.
There are two alternative approaches to achieve an amalgamation within the scope of the Schools Standards and Framework Act 1998. The first approach is to close both infant and junior schools under Section 29 of the Act and to open a new primary school under Section 28 of the Act. The second approach is to close either the infant or junior school under Section 29 of the Act and to alter the age range and increase the size of the remaining school under Section 28 of the Act.
The Minister considers that it is for Local Authorities to decide which approach to take in the light of their local knowledge and all the individual circumstances. The main practical difference between the two approaches is the way that they affect staff. The staffing of Maintained Schools (Wales) Regulations 2006 require that for new schools or where head and deputy posts become vacant in existing schools, those posts must be advertised nationally. The posts of head and deputy are critical for the effective management and performance of the school and it is vital that the right person is appointed to the job. In the first approach, where two schools close a new school is opened both the head and the deputy vacancies have to be advertised. But in the second approach, if the school being extended already has a head and deputy in place who wished to continue in post, there is no opportunity for senior staff from the other school to compete for the posts. The Minister agrees that the approach taken by the Authority treats staff on the basis of equality, and maximises the opportunity for the best possible candidates to be appointed to senior posts.
The Minister is persuaded that the proposal will deliver a number of educational benefits. There is potential for improved continuity, and there would be a larger team of staff, providing more flexibility in covering all subjects of the curriculum. More opportunities for staff to develop their skills across the whole primary age range would be created, thus increasing teaching expertise. A single headteacher should, as the Authority suggest, provide more coherent leadership. The single primary school would be in a stronger position in respect of the delegated budget, since it would be necessary to fund only one headteacher’s post and governors would be free to decide on the remaining staffing structure. The potential savings could fund further staff or be retained in the budget for other improvements. The proposal will deliver modest savings to the Authority.
The Minister does not agree with the position of the NUT that school reorganisations should not take place if there is any possibility of it resulting in redundancy. Whist the Welsh Assembly Governments does not seek to influence local authorities in the approach they adopt when amalgamating schools the Minister views the approach adopted by Torfaen in this case as the fairest in the circumstances.
The Minister notes that one of the Coed Eva Infant School parent governors objected to the proposal on the grounds that he had not been convinced by the Authority of the advantages in changing current arrangement of separate infant and junior schools to an all-through primary school. The Minister is satisfied with the list of advantages provided by the Authority in response to this objection.
Overall the Minister is satisfied that the proposal will:
i. allow the LEA to deliver more cost effectively primary education in the area served by Coed Eva Infant and Junior Schools;
ii. provide at least equivalent quality and diversity of education as that which would be available if Coed Eva Infant and Junior Schools were to remain open, and by creating an all-through primary school make it possible to improve continuity from KS1/Foundation Phase to KS2;
iii. allow improvement and greater flexibility in management and organisation; and
iv. provide opportunities to increase the range of expertise and experience of teaching staff and provide opportunities for improvements in the deployment and development of teachers.
The Minister notes that this proposal is due to be implemented with effect from 1 September 2008 and from that date pupils attending Coed Eva Infant and Junior School will, subject to the expression of parental preference, will become pupils of the new primary school. The Minister looks to the Authority to ensure that implementation of the proposal, including any remodelling, is carried out with the minimum possible disruption.
Schools Management Division of the Welsh Assembly Government, Department for Children, Education, Lifelong Learning and Skills should be informed of the new primary school’s official name as it will appear on the Instrument of Government, along with the school’s address, so that a school number may be issued to you.
I am sending a copy of this letter to the Chief Executive of Torfaen County Borough Council the Headteachers of Coed Eva Infant and Junior Schools, the Chairs of Governors at both schools, and the two statutory objectors. A copy will also be sent to Lynne Neagle AM. The Chief Executive, Headteachers and Chairs of Governors will receive a copy of the Statement of Information.
Yours sincerely
SYLVIA LINDOE
HEAD OF SCHOOLS MANAGEMENT DIVISION
