Amended proposal for a new primary school on the former Penallta Colliery site (Saesneg yn unig)

Date of decision / Dyddiad y penderfyniad:

25 February 2009

Statement of information / Datganiad gwybodaeth:

Background

Caerphilly County Borough Council (“the local authority”) published a proposal on 6 September 2002 to establish a new Welsh Medium primary school within a new residential development on the former site of Penallta Colliery.  The proposal received objections and was therefore referred to the National Assembly for Wales for determination.  The proposal was rejected because the consultation process was flawed and at that time there did not appear to be sufficient demand for Welsh medium education in that area of Caerphilly to justify an additional school.  

Following the rejection of the 2002 proposal the local authority proceeded to consult on a proposal to establish a ‘bilingual’ school on the site of the former Penallta Colliery.  This revised proposal was published on 2 September 2004 and was due for implementation on 1 September 2006.  The consultation document did not define the exact nature of the language provision at the proposed new school.  During the consultation period views for and against the proposal were expressed but no objections resulted from the publication of the proposal.  

In the absence of objections the local authority determined to implement the proposal in accordance with the notice. In response to a request from the local authority, a modified implementation date was agreed, initially for 1 September 2008, due to a delay in the completion of housing works,.

In response to a projected increased demand for Welsh medium (rather than bilingual) education in the area the local authority’s Cabinet agreed, on 18 March 2008, that it would be appropriate to follow the statutory procedures necessary to request that the Welsh Ministers relieve the local authority of its duty to implement the proposal to establish a new bilingual Community Primary School on the former site of Penallta Colliery.  On 15 April 2008 the Cabinet agreed to instigate a formal consultation process on a proposal to establish a new Welsh medium Primary School on the site and the associated proposal to request relief of duty to implement the establishment of the bilingual school.  Because of the time needed to undertake statutory consultation and the publication of notices it was agreed that the implementation date for the proposal to establish a new bilingual school would be further modified to 1 September 2009.

The new school building was completed and handed over to the Council in July/August 2008.  The building is presently in temporary use by Social Services and as a ‘Manual Handling’ training base for the local authority.

Consultation and Publication

In June 2008 the local authority commenced consultation on the establishment of a new Welsh Medium Primary School on the former site of Penallta Colliery, and the associated proposal to request relief of duty to implement the proposal to establish a bilingual school.  A consultation document was published and meetings were held on 17 June for staff, governors and parents of Ysgol Gymraeg Gilfach Fargoed and Ysgol Gymraeg Bro Allta; for the temporary governing body of the proposed new school at Penallta, members of the community and all other consultees on 18 June.  The consultation document summarised the main issues surrounding the proposals and invited views to be submitted at one of the formal consultation meetings, or in writing by 4 July 2008.

Twelve written responses were received, eight in support of the proposal and 1 against.  One respondent sought clarification regarding her own situation should the proposals go ahead and the remaining two had no comment to make.

Although most of the consultees supported the proposals some of those in support voiced concerns about proximity to existing Welsh medium schools, the need for phased entry to minimise impacts, and the position of siblings of those already admitted to Welsh medium schools.

The NASUWT were opposed to the proposals.  They were concerned that opening a brand new additional Welsh medium school could adversely impact on English medium provision, resulting in increased surplus places, potential closures of schools and staff redundancies.  The union maintained that the method of establishing demand shows that the demand is actually low and that surplus places in the present Welsh medium schools are sufficient.  

At the meetings held on 17 and 18 June 2008 attendees were largely in favour of the proposals.

Following the end of the consultation and after consideration of the responses received the local authority, on 29 July 2008, agreed to proceed to Public Notice.  On 4 September 2008 two notices were published in the Western Mail, the first requesting to be relieved of the duty to implement the proposal to establish a new bi-lingual primary school on the former site of Penallta colliery and the second to establish a new Welsh medium primary school on that site.  The local authority arranged for notices to be displayed at the front entrances of primary and secondary schools, local libraries and the local leisure centre for a period of 2 months from 4 September 2008.

The proposal to be relieved of the duty to implement requires approval by the Welsh Ministers under 10(3) of Schedule 6 to the School Standards and Framework Act 1998. Since the proposal to establish the new school as Welsh medium is linked to the first proposal it was necessary to give notice that this proposal would need to be referred for decision to the Welsh Ministers under paragraph 8 of Schedule 6 to that Act.

Caerphilly Local Authority - Statement of Case

A. Request to the Welsh ministers to be relieved of the duty to implement as a bilingual school

The Authority considers that there were aspects of this proposal which were not sufficiently clear at the time that it was originally published: The proposal:

• did not clearly define a bilingual school;

• did not distinguish between bilingual provision and bilingual speakers;

• did not make it clear that bilingual provision does not necessarily produce Welsh speakers;

• did not set out how much of the curriculum would be taught in English and how much would be taught in Welsh.

Since that time officers have further researched models of bilingual schools in other parts of Wales. A number of factors, including the home language of pupils and the amount of Welsh heard in the community, influence pupils’ capacity to acquire equal competence in Welsh and English. In areas of Wales where Welsh enjoys limited vitality in the community, Welsh medium schools where all or the vast majority of the curriculum is taught through the medium of Welsh are most likely to equip pupils with skills in both Welsh and English.

Following the publication of Welsh Assembly Government guidance on the categorisation of schools according to the amount of Welsh taught in the curriculum, the local authority concluded that the bilingual school it had originally proposed would be classified as a predominantly English medium primary school with significant use of Welsh. This type of model would not normally be expected to equip pupils with sufficient Welsh language skills to enable them to transfer to Welsh medium provision.  

Expressions of interest in the school to date have been limited and would not enable the school to operate with classes containing fewer than 4 age groups.  This would make the implementation of the proposal difficult.

Following research and the conduct of surveys into parental preference the local authority found clear evidence of an increasing demand for Welsh medium education in preference to bilingual provision, making the implementation of the proposal as establishing the new school as a bilingual school more difficult and inappropriate.  

The local authority therefore wishes to be relieved of the duty to implement the proposal to establish a new bilingual school and, following a further evaluation of the needs of pupils in the area, to establish the new school as Welsh medium.

B. Proposal to Establish a New Welsh Medium Primary School

Evidence of Demand for Welsh Medium Education in the Area

One of the main aims of Caerphilly Local Authority’s Welsh Education Scheme is:

‘To ensure that Welsh medium education is available to all children whose parents/guardians wish them to receive their education through the medium of Welsh, and this within reasonable travelling distance from the children’s homes.’

Caerphilly Local Authority has established an additional two Welsh medium primary schools since 1996 (Ysgol Bro Sannan in 2004 and Ysgol Gymraeg Cwm Derwen in 2008). Both these two schools have attracted pupils and had more nursery pupils on roll in September 2008 than the admission numbers of the schools.  It has become evident that the demand for Welsh medium education in the Borough is rising.  Pupil numbers at Welsh medium primary schools have increased from 1719 in 1996/97 to 2109 in 2008, an increase of 23%, with further increases forecast in the next 5 years.

At September 2007 nearly 13% of primary pupils in the unitary authority attended Welsh medium schools. In the Autumn of 2007 the Authority surveyed parents to seek their schooling preferences.  

The responses relating to the Ysgol Bro Allta and Ysgol Gilfach Fargoed catchment areas in the vicinity of the new school reveal above average demand for Welsh medium education as follows:

Numbers on Roll - Nursery Places

The Authority reviewed the September 2007 numbers on roll and found an increase in demand for Welsh medium places, particularly at the nursery and early years level, whilst most of the English medium school nurseries were facing falling rolls. The demand for Welsh medium nursery places rose to 47 over the admission limits whilst there was an expected over supply of 40 English medium places. This represents 47 nursery pupil numbers in excess of admission numbers in Caerphilly Welsh medium schools with the exception of Ysgol Gymraeg Cwm Gwyddon.  This school was excluded from this calculation due to its geographical location, as it is not feasible for the Authority to alter its catchment area to resolve the growing demand.  17 of the 47 excess pupils in September 2007 related to Bro Allta and Ysgol Gymraeg Gilfach Fargoed, the nearest Welsh medium schools to the Penallta site.    

For September 2008 the nursery pupils already enrolled, and who would be expected to apply for Welsh medium school places for September 2009 exceeded admission limits by 1 place despite the new Welsh medium school Ysgol Gymraeg Cwm Derwen being established in September 2008.  The expected English medium over–supply of places rose slightly to 42. At September 2008 there were only 2 surplus Welsh medium nursery places at Y G Bro Allta following an increase in the number of places available from 45 in 2007 to 49 in 2008 and no surplus places at Y G Gilfach Fargoed despite an increase in the admission number from 26 to 30.  These are the two schools which are most likely to be affected by the establishment of the new school.

Details of Nursery take up at September 2007 and September 2008 are shown in the tables below:

Note: Some admission numbers changed in 2008 following the change to a new method of calculating a school’s capacity.  

Primary School Numbers on Roll Excluding Nursery

The following tables show an indication of the present and future increase in demand in Welsh medium schools and decrease in demand in English medium schools in the area.  Information is included on Ysgol Gymraeg Trelyn, as it is within a 2 mile radius of the new school and shows a decrease in projected pupil numbers.  However as it is unlikely that the school will be affected by these proposals due to its geographical location it is shown separately.

The local authority is planning changes to Bro Allta’s accommodation, at the school’s request, in order to provide sufficient space for an IT suite, and other facilities which will have the effect of reducing the admission number from 49 to 43 from September 2010.  This would result in a reduction of the capacity at the school by 42 places.  Without a new school, there is expected to be a shortfall of places after 2011.

Catchment Areas

The catchment area of the proposed new school will include Glan- y-Nant, Tiryberth and Penpedairheol, (currently part of the catchment area of Y G Gilfach Fargoed) and Gelligaer and Penybryn, (part of the catchment area of Y G Bro Allta). Pre- school pupils residing in those parts of the current catchment areas of Y G Gilfach and Y G Bro Allta which will transfer to the new Penallta school under these proposals will be protected (on admission to reception) where they have siblings in the existing schools.  

Phased Admission Number

In order to protect Ysgol Bro Allta and Ysgol Gilfach Fargoed, the schools in close proximity to the new school, and to secure places for local in-catchment pupils in future, it is proposed that the school will initially be available only to Key Stage 1 pupils from the proposed establishment date of 1 September 2009 and extended to Key Stage 2 pupils from 2010. It is proposed to incrementally increase the admission number as follows:

September 2009: Admission number 15 (infant phase only)
September 2010: Admission number 15 (whole primary phase)
September 2011: Admission number 18 (whole primary phase)
September 2012: Admission number 21 (whole primary phase)
September 2013: Admission number 24 (whole primary phase)
September 2014: Admission number 27 (whole primary phase)
September 2015: Admission number 30 (whole primary phase) - full implementation

The capacity of the school will be 210 plus provision for 30 nursery pupils.

Transport

The Council’s current transport policy will be applied in relation to the new school i.e. free transport to the nearest or catchment area school for those pupils who live beyond a mile and a half from the school as measured by the nearest available walking route.

The Council will continue to transport eligible pupils in the reception year and above (at the end of the 2008/09 academic year) to Y G Gilfach Fargoed and Y G Bro Allta subject to parental wishes, for the remainder of their time at these schools, even when such pupils reside within the catchment area of the proposed Penallta Welsh medium school.  

Objections

There have been no objections either to the notice to request the Welsh Ministers to relieve the local authority of the duty to implement the proposal to open a new bi-lingual primary school or to the notice of the proposal to establish the new school as Welsh medium.

Financial Implications

There are no additional financial implications for the Welsh Assembly Government as the building works have been jointly funded by Redrow (housing developer) and the Council in accordance with the Planning Application Section 106 agreement and additional capital costs were agreed via the Council’s Capital Forward Programme. The total capital cost of the new scheme is £3m.  The Authority’s contribution to this cost is £1.2m.  

The Authority has confirmed that it is able and willing to meet the revenue costs amounting to £139,000 per annum

Links / Cysylltiadau:

See decision letter below:

Ms Sandra Aspinall
Director of Education and Leisure
Caerphilly County Borough Council
Penallta House
Tredomen Park
Ystrad Mynach
Hengoed
CF82 7PG

Eich cyf. Your ref SA-EF/JW/SB
Ein cyf. Our ref A-EDC-22-07-010

26 February 2009

Dear Ms Aspinall

SCHOOL STANDARDS AND FRAMEWORK ACT 1998 SCHEDULE 6 AND SECTION 28 - PROPOSALS TO:

1. REQUEST TO BE RELIEVED OF THE DUTY TO IMPLEMENT A PROPOSAL TO ESTABLISH A NEW BILINGUAL PRIMARY SCHOOL ON THE FORMER SITE OF PENALLTA COLLIERY

2. ESTABLISH A NEW WELSH MEDIUM PRIMARY SCHOOL ON THE FORMER SITE OF PENALLTA COLLIERY

I refer to the above proposals published on 4 September 2008 by Caerphilly County Borough Council (the local authority) under Schedule 6 and Section 28 of the School Standards and Framework Act 1998 (“the 1998 Act”).  Under paragraph 10(3) of Schedule 6 to the 1998 Act, the request published under Paragraph 10(4) to be relieved of the duty to implement a proposal requires approval by the Welsh Ministers.  Proposals published under Section 28 of the 1998 Act require approval by the Welsh Ministers under paragraph 8 of Schedule 6 to that Act if notice has been given, within two months after a copy of the published proposals is sent to Ministers, that they require such approval. As the latter proposal published under Section 28, to establish a new Welsh primary school is linked to the proposal published under Paragraph 10(4) of Schedule 6 to the 1998 Act, notice was given on 20 October 2008 that it required approval by the Minister.

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 proposals and the supporting evidence supplied by Caerphilly County Borough Council 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 to establish the new Welsh medium primary school. In addition, in the exercise of her powers under paragraph 10(3) of Schedule 6 to the 1998 Act, the Minister has decided that the proposal published by the local authority on 2 September 2004  for the establishment of a bilingual primary school, which was due to be implemented in September 2009, no longer requires implementation.

In reaching this decision, and taking into account all matters brought to her attention, the Minister is satisfied that, in light of a review of pupil numbers on roll in both English and Welsh medium schools, and increased projected demand for Welsh medium education in the area, it is appropriate that the new school which has been built on the Penallta site is established as a Welsh medium school.

The Minister agrees with the local authority that there had been a lack of clarity in the earlier proposal to establish a bilingual school. The Minister notes that since bringing forward the proposal for a bilingual school the local authority has completed further research on models of provision and has concluded that the proposal would not meet the needs of pupils in the area or provide a clear model of language provision. As originally proposed, the school would essentially be predominantly English medium with significant use of Welsh.

The Minister takes the view that opening a new “bilingual” school of this nature would present a difficulty for the local authority in meeting projected demand for Welsh medium places and at the same time could increase spare capacity at local English medium schools and lead to less overall efficiency.

It would not be cost effective for a new school to be established unless demand for that type of school could be shown, and the Minister has therefore concluded that the local authority’s request to be relieved of the duty to implement the proposal to establish a bilingual school in September 2009 should be granted.

Since the time of the publication of the proposal in 2004 the authority has monitored increasing demand for Welsh-medium education and has provided information, including projections, suggesting strongly that further Welsh medium provision will be required in the vicinity of the Penallta site in future.

The establishment of the new school as Welsh medium is in line with the target set by Caerphilly Local Authority in its Welsh Education scheme.  

The Minister is pleased to note that in order to protect Ysgol Bro Allta and Ysgol Gymraeg Gilfach Fargoed, the Welsh medium schools in close proximity to the new school, from losing pupils to the new school and to secure places for local in-catchment pupils in the future, it is proposed to phase admission of pupils to the school

The Minister notes that the new school’s catchment area will include Glan- y-Nant, Tiryberth and Penpedairheol (which are currently part of the catchment area of Y G Gilfach Fargoed) and Gelligaer and Penybryn (currently part of Y G Bro Allta’s catchment area). The Minister is pleased that pre-school pupils residing in the present catchment areas of Y G Gilfach Fargoed and Y G Bro Allta whose catchment area will transfer to the new Penallta School under these proposals will be protected on admission to reception where they have siblings in the existing schools.  

The Minister is pleased that this brand new school has been provided cost effectively and will provide modern accommodation for 210 pupils and 30 nursery places

The Minister is satisfied that the local authority has met the statutory requirements in respect of consultation on and publication of the proposals and that the local authority has submitted the information required by the1999 Regulations.

The Minister acknowledges that there were no objections to these proposals.

A Statement of Information which consists of the facts about the proposals on which the Minister based her decision can be accessed through the Welsh Assembly Government website via the following link:

http://new.wales.gov.uk/publications/accessinfo/drnewhomepage/?lang=en

The Minister notes that the proposal to establish the school as Welsh medium is due to be implemented with effect from 1 September 2009 in accordance with the statutory notice.  

Schools Management and Effectiveness Division (SMED) of the Welsh Assembly Government, Department for Children, Education, Lifelong Learning and Skills should be informed as soon as implementation of the proposal has taken place.  SMED should also be informed of the new 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 Stuart Rosser, the Chief Executive of Caerphilly County Borough Council, the Chair of the temporary governing body of the new school and the Headteachers of Ysgol Bro Allta and Y G Gilfach Fargoed.  The Chief Executive and the Chair of the temporary governing body will also receive a copy of the Statement of Information.

Yours sincerely

SYLVIA LINDOE
HEAD OF SCHOOLS MANAGEMENT AND EFFECTIVENESS