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The Minister of State, Department for Education (Sarah Teather)
It is a pleasure to serve under your chairmanship again, Mr Weir. It is a Wednesday afternoon; I am here in a debate that you are chairing; and I am very pleased to see you.
I congratulate the hon. Member for Luton North (Kelvin Hopkins) on securing the debate. It was good to see other Members come into the Chamber, although a bit late, because I was anxious that we would not have so many Members contributing. This issue interests Members right across the House, and I am aware of the hon. Gentleman’s involvement in the all-party group, whose input and advice I have very much welcomed.
I listened with interest to the rather technical debate between the hon. Members for Washington and Sunderland West (Mrs Hodgson) and for Blackley and Broughton (Graham Stringer). None us is a qualified educational psychologist, and it has certainly been an awfully long time since I did any neurophysiology. The Government take their advice from the best and latest scientific advice available. The Rose report tried to get away from the debate about the exact nature and cause of the difficulties that people face—something that was often distracting for many students—and instead tried to focus on solving the individual child’s problems, whatever they might be, as they present in the classroom. With that in mind, I will not get involved in the detail of that debate, because it might be better if it took place somewhere else between expert educational psychologists. Instead, I will deal rather more with service provision.
Dyslexia affects a significant number of pupils. From the school census, we know that 78,000 pupils receive support for a specific learning difficulty, including dyslexia and dyspraxia. They receive that support through school action plus or a statement of SEN educational needs. About 11% of all pupils receive such support. Many others will be supported as part of a personalised approach to teaching in the classroom, as a number of hon. Members mentioned. That will perhaps involve additional help from teachers or teaching assistants.
Dyslexia primarily affects the skills involved in accurate and fluent word spelling and reading, and it can occur across the range of pupils’ intellectual abilities. We know from parents and pupils that they are often frustrated with the assumptions made about what they can achieve, and the Opposition spokesperson, the hon. Member for Washington and Sunderland West, referred to the case of her son. Sometimes that can lead to incredible frustration and a stymieing of aspiration in individual students.
For far too long, there has been a real attainment gap between students with dyslexia and their peers. The proportion of pupils with a specific learning difficulty gaining the expected qualifications has more than doubled since 2006, but the gap remains far too large. In 2010, fewer than one in six such pupils, or just under 15%, achieved five GCSEs at grades A* to C, including English and maths, compared with more than half of pupils as whole. The Government are determined to see that change and to improve overall outcomes for pupils with SEN or a disability. Support for pupils with SEN is provided within a statutory framework that has, unfortunately, remained largely unchanged for three decades.
One of the first things that I did when I became a Minister was to begin a review of special educational needs. In March this year, I published our Green Paper, “Support and aspiration: A new approach to special educational needs and disability”, which sets out plans fundamentally to reform the special educational needs system. It was a response to a set of core problems that undermined the achievement of too many children and young people, and those problems have been mentioned by a number of hon. Members, including the hon. Member for Portsmouth North (Penny Mordaunt). The problems include parents having to battle through a confusing and adversarial system to get the support their child needs; SEN statements not joining provision up, with education, health and care often ending up being provided disparately, and families having to go between the three different providers to negotiate their own package of support; children falling between the gaps in services or having to undergo multiple assessments; and paperwork and bureaucracy adding to delays, rather than providing the support that is needed.
Kelvin Hopkins
The Minister is talking about delays. A number of members of my family have been schoolteachers, and getting statements has often been an enormous difficulty. Sometimes, it has taken up to a year before a child who clearly needed to be statemented actually was statemented. The suspicion is that local authorities are trying to delay things to save money. I hope the Minister will take that into account.
Sarah Teather
One thing that we suggested in the Green Paper was speeding up the process, but this is also a question of trying to make clear what the thresholds should be, and I will say a little more about that later.
The other thing that informed the Government’s work on the Green Paper was Ofsted’s report, which showed that too many children are being over-identified as having SEN. In other words, the wrong children are often labelled as having SEN, and we need to ensure that we put in place the right support for children at the right time.
At the heart of the Government’s vision for the reforms is a desire to support better life outcomes for young people, to increase parents’ confidence in the system and to transfer powers to the front line and local communities, as we are trying to do across all areas of policy. To achieve those changes, we are introducing a new approach to identifying SEN to challenge the culture of low expectations. There will be a new, single early-years setting and school-based category of SEN.
I heard the concerns of the hon. Member for Washington and Sunderland West, who was worried that it might lead to some young people not getting the support they need, but I should stress that, of course, school action at the moment brings with it no extra funds. School action plus money is provided to schools on the basis of other proxy indicators, rather than the number of children actually in the relevant category in previous years, so it should make no difference to the resources that are allocated. However, it will make it easier for schools to decide how to deal with the young people that they focus on. Many of them say that the existing categories are somewhat bureaucratic. Ofsted has made the point that some children are labelled as having special education needs when really they are just falling behind. That is a rather different debate from the one about specific learning difficulties.
Mrs Hodgson
We are looking for reassurance that when the reason for children falling behind is an underlying special educational need, rather than there being no specific reason, they will still be identified by some marker. They might not need the education, health and care plan, and all that it brings, but the marker would have been school action or school action plus. Will there still be some mechanism to identify those children?
I suppose the reason for giving the relevant marker to children who fall behind might be to try to find out whether there is an underlying reason.
Sarah Teather
When Ofsted reported, a rather heated debate took place between teaching unions and Ofsted, and it shed a lot of heat but not light. Many accusations were thrown from both sides about motives. I do not think that teachers label a child as having special educational needs to get round league tables or for similar reasons. It is human nature, when a problem is seen, to label it. Unfortunately, that labelling was often not followed by action. It is all very well to label a child, but it is purposeless to do so if no action follows. The child then carries a label with them, irrespective of whether it is helpful, and does not get the support needed to enable them to progress. We are trying to get away from the focus on labelling, and instead to adopt an approach in which those concerned look at the child in front of them, and ask what they need. Some of that approach, to be fair, is about good teaching practice, which will deal with many needs.
Kelvin Hopkins
The hon. Lady is right about dealing with individual children. Boys need more pressure and rigour in school, when they are young, than girls do. Girls tend to be more conscientious and are now succeeding in education. In every field and at every level they now beat boys. I agree that we need to consider teaching quality as well, so that youngsters do not fall behind because they are more interested in playing on the computer, or doing something not to do with their studies. Rigour in education is right for all youngsters. However, we also need to take account of those with specific difficulties.
Sarah Teather
All sorts of young people fall behind. The fact that so many young people born in the summer are in the school action category is particularly good evidence that we do not at the moment necessarily label the right children. Other children who may have specific needs go through school without being identified. That is not good enough, because such children do not get the support they need.
The Green Paper made some radical proposals to change the system. As several Members, including the hon. Member for Portsmouth North, said, we have just finished a consultation and will respond to it in the new year. The rest of what I say now on the matter will pick up on what we have already said, rather than announcing what we will do. Hon. Members will have to wait a few weeks, until we have finished crunching through the detail of the consultation. We had an enormous number of responses from parents, charities and teachers. That is very helpful detail and we need to work through it.
As I said during my introduction, many pupils with dyslexia receive most of their support in the classroom through high-quality, personalised teaching. We know from the independent review led by Sir Jim Rose that the early identification of problems and the right teaching support are critical to helping dyslexic pupils achieve. Alongside the special educational needs reforms we are also working with schools to support teachers to identify and respond to pupils with dyslexia. Difficulty with phonics and the ability to identify and manipulate the sound of words is central to the challenges that dyslexic pupils face. It is also a critical element for all children learning to read.
We are introducing a new phonics screening check for children in year 1, which should pick up children struggling with early literacy because of dyslexia. I think that the hon. Member for Washington and Sunderland West slightly misunderstood some things about the statement at the weekend by my colleague the schools Minister. When he highlighted the fact that inadequate numbers of young people were passing the screening test at the relevant stage, he was trying to make the point that phonics, as a system for teaching reading, had not properly embedded in teaching at the earliest stages of schooling. He was not labelling half of children as failing. He was recognising how much further we need to go to embed the practice clearly in the way teachers teach the youngest children to read, from the beginning. We know that phonics is particularly helpful for identifying difficulties in children who have dyslexia.
Graham Stringer
The Minister has been speaking an enormous amount of sense, recognising that teaching children to read is one of the most important things that the state does. I think she has recognised that Jim Rose recommended in his report that systematic phonics should be at the heart of good Government strategy for teaching children to read. When the Select Committee on Science and Technology considered the scientific basis for the Government’s policy, we found from the written and oral evidence that there was still, in the wave 3 reading recovery programme, a continuing practice of word memorisation and the use of whole language theory. That does exactly the opposite of what the Minister has been saying about recognising phonics and the transferability of the sound and the letter. Has she had a look at what is happening in wave 3 reading recovery?
Sarah Teather
I certainly looked at the reading recovery programme, Every Child a Reader, most of which is based around phonics. There are some other, more flexible, practices. We must recognise that although the evidence suggests that systematic phonics is absolutely the most effective way to teach children to read, some children for various reasons will not respond to that system, and it is important to have some flexibility at the margins to pick up the children who have fallen through the net. However, almost all the programme is still based around systematic phonics.
Kelvin Hopkins
I agree with the Minister and my hon. Friend about phonics for those who do not have the disabilities in question. Two generations of teachers have almost been forbidden phonics in schools. Even in the past year I have come across a teacher working in London who was forbidden to make any reference to phonics in school. We still have a serious problem.
Sarah Teather
To support the teaching of systematic synthetic phonics we are making £3,000 of match funding available to all schools with key stage 1 pupils, for phonics materials and training. I hope that that sort of systematic, structured approach to teaching phonics will help, because we know that it supports pupils’ approach to learning to read, particularly for those who are dyslexic.
I want to make some wider comments about support for teachers and work force development, which goes to the heart of our programme on SEN. It begins with the new standards for qualified teacher status, which include a continued focus on meeting the needs of all children, including those with special educational needs or who are disabled. Similarly, as part of the national scholarship programme for teachers, we have a clear focus on supporting teachers to improve and extend their knowledge and expertise when working with pupils with special educational needs and disability, including specific impairments.
It is anticipated that around 50% of those scholarships will be available to support SEND. We have provided funding for up to 9,000 special educational needs co-ordinators to complete the mandatory higher level SENCO award by the end of 2011-12. The Teaching Schools network, which will allow schools to support each other and drive up the quality of teaching, will help to improve the quality of support for pupils with special educational needs or a disability. Of the first 121 designated schools, 113 have been judged as outstanding for the quality of learning and progress of pupils with special educational needs. The new Teaching Schools initiative has real potential to radically improve the quality of peer-to-peer mentoring and support for teachers in relation to SEN.
Penny Mordaunt
On support, one of the other problems that I encountered in Portsmouth was that, where a child had not got a school place and the parents were trying to do their best to teach them at home, they received no support, because if they admitted to the local authority that they were teaching the child at home, they were instantly crossed off the waiting list for a school place. I would be interested to know whether the Minister has any views about how such training and support could be extended to provide parents whose children are at home waiting for a school place with the support and help that they need to ensure that they are not missing out.
Sarah Teather
I cannot comment on a specific case, but perhaps if the hon. Lady drops me a note about the matter, I will have a look at it. In the Green Paper, we indicated that local authorities need to provide support to families who are home schooling a child. They are often doing so because they have been unable to get the support that they need in mainstream settings or perhaps because their local special school did not provide them with the support that they wanted.
I want to say something about Achievement for All because it goes to the heart of some of the issues that we have been discussing about the need for someone to look at the child in front of them and have high aspirations, rather than necessarily think about the labels. The Achievement for All programme has been running in around 450 schools for the past two years, and the evaluation has demonstrated some dramatic results. Under the programme, children made greater progress in English and mathematics than other children with SEND across the country, and they also often exceeded the progress of children without SEND, so there has been a really dramatic improvement.
The independent evaluation, which was carried out by the university of Manchester, demonstrated that pupil attendance significantly improved. That picks up some of the other points that we were discussing a moment ago about additional needs sometimes being confused with SEN. Often the issue is just about getting young people to attend school. For children taking part in the Achievement for All programme, there was an average increase in attendance of just over 10%. The evaluation also found significant improvements in behaviour, including less bullying, stronger relationships between schools and parents and a greater awareness and focus on SEND.
Some of the points that the hon. Member for Portsmouth North discussed in relation to her Bill—parental engagement and the need to communicate better with parents—go partly at the heart of this. One of the key facets of the Achievement for All programme is parental engagement and enabling teachers to feel confident about having a conversation with parents about the progress of their child. The Government are investing £14 million to roll out the programme across the country, so that more children can benefit. The programme is being delivered by a newly formed charity, Achievement for All 3As, chaired by Brian Lamb and supported by PricewaterhouseCoopers. Schools can now see for themselves the evidence that the programme works, and we want more schools to come forward and sign up.
The evaluation highlighted some important lessons in how to improve the outcomes for pupils with SEND. Perhaps most crucially, there needs to be strong leadership from the head teacher and senior leadership team, rather than simply relying on a SENCO to provide leadership within a school, although that is important. Achievement for All 3As is currently engaged with 41 local authorities and 598 schools. We hope and estimate that, overall, 1,000 schools will have signed up to the programme by April next year.
I want to turn to some of the specific concerns, particularly on the Joint Council for Qualifications guidance, expressed by hon. Members. I understand that there has been significant concern following recent coverage about apparent changes to the availability of reasonable adjustments for dyslexic pupils. It is, of course, absolutely vital for the fairness of an exam system that reasonable adjustments are made where needed. We have therefore been in touch with the JCQ about the changes, and it maintains that there has been no change to the circumstances in which a student is entitled to extra time for an exam. What has changed is the type of evidence that is acceptable to demonstrate that such extra time is needed.
The most recent edition of the relevant guidance confirms that a school or college must consider and maintain on record the evidence that the student has been assessed as having a below-average standardised score in an assessment of processing, reading or writing speed. I emphasise that the previous guidance similarly required evidence of low standardised scores using assessments of processing speed, reading or writing. I am afraid that we are picking up differences in practice, not differences in the guidance. Such difficulties have always been the basis on which extra time can be awarded to dyslexic pupils, and difficulties in phonological awareness—understanding and decoding the sounds of words and verbal processing—were two of the characteristics of dyslexia identified by Sir Jim Rose.
I understand that Dyslexia Action has written directly to the JCQ to set out its concerns. It is right that the JCQ and Ofqual, as the independent body overseeing the examinations system, should respond to those and determine whether any further clarification of the arrangements is required. I understand that they will be meeting with dyslexia charities and experts in the new year to explore those differences further. Ofqual has assured me that pupils already granted extra time will remain entitled to it on the basis of their existing assessment. I hope that hon. Members will be reassured on that point.
Mrs Hodgson
On a point of clarity about the difference between the old and the new criteria, is it the case that, under the old criteria, students had to have a low score and that now it has to be below average? I am not sure whether I heard the Minister correctly.
Sarah Teather
There is no change in the criteria; there is a change in the evidence that has to be provided. What we are picking up on is how schools interpreted the previous guidance, not necessarily the actual guidance that was being provided. That raises some issues about how schools were interpreting the guidance and the freedom that they thought that it gave them. In fact, the guidance is the same, but slightly more rigorous evidence is being asked for to demonstrate that schools have met the guidance, and they are being asked to hold that on record. The best thing is for Ofqual and the JCQ to meet dyslexia charities in the new year, as they will do, along with other experts in the area. They should make those points to the JCQ and Ofqual at that stage.
The hon. Lady spoke briefly about the changes to spelling, punctuation and grammar in some GCSEs that were announced this afternoon. Hon. Members may be aware that that was likely to happen and that we would be restoring marks for spelling, punctuation and grammar in some key subjects that have extended pieces of writing. During Ofqual’s consultation on the proposals, it heard concerns from dyslexia organisations about the potential impact on pupils with special educational needs, particularly dyslexia. I understand that it will be considering that as it decides how to roll out and implement the proposal.
However, during the consultation, there was also widespread support for ensuring accuracy within the qualifications. People expect those with high grades in GCSEs to be able to write accurately. The need to include an assessment of accuracy in spelling, punctuation and grammar is key to restoring confidence in GCSEs as rigorous and valued qualifications. Ofqual has set the level at 5% of total marks for the GCSE, so that the assessment of subject knowledge is not affected disproportionately. There will be the possibility of partial marks. It is not an all-or-nothing assessment and students will be able to achieve some or all of the marks depending on the extent of accuracy and how well they have conveyed meaning. In practice, there will be no blanket effect on the grades achieved by individuals, and the credibility of the exam and the grades achieved will be increased for all. Such changes, alongside some of the reforms to special educational needs provision, will give a real incentive to teach all pupils those core skills and prevent pupils with special educational needs from being sidelined or aspirations being lowered.
Kelvin Hopkins
I recently chaired a meeting of the all-party parliamentary group for social science and policy, at which we considered and had academic presentations on social mobility. A major factor in poor social mobility is the gulf in the use of language and education. Is the Minister saying that for the great mass of pupils, we will ensure that the standard at which they are able to use the language formally will be targeted and improved, or just that we will have a race to the top where the middle class will again have the advantage?
Sarah Teather
I agreed with the hon. Gentleman’s first point. The second point seemed to bear no resemblance to the first. To raise aspirations for all is a good thing. To say that it is possible to achieve, regardless of background, is really important. To believe in social mobility and have it at the heart of educational policy, we have to have high aspirations for every child.
Kelvin Hopkins
To clarify, if one just gives marks for punctuation, grammar and syntax, certain people from certain backgrounds will have an even greater advantage over people from other backgrounds. The gulf in our society will widen unless extra effort is put in to ensure that everyone has a rigorous education in these methods.
Sarah Teather
I really do not accept that point at all. It is simply not good enough to say that, because someone is from a certain background, they will not be able to learn how to spell or use language correctly. That is exactly at the heart of what we are trying to break. I have to say that, as an employer, I meet lots of graduates who do not have dyslexia who have not learnt how to use accurate punctuation and spelling. Unfortunately, it is a continuous frustration, and I sometimes wonder whether I am the best-paid proofreader in the country, given the amount of time I spend correcting grammar and punctuation in the documents that leave the Department—I probably should not say that in Hansard.
Kelvin Hopkins
I agree entirely. The Minister’s experience and mine are the same, but those who had the rigorous experience that I had at school have an advantage over those who did not, even though they might have been equal in ability in every other way. I appreciate that we are off the subject of dyslexia now. We are running out of time; but it is important to say that, if we are to have a society that is less divided, we must ensure that we provide education for those who do not have natural advantages.
Sarah Teather
If we are to have a society that is less divided, we must ensure that all children, regardless of their background, are given the same benefits of that sound education. Putting those marks, even 5%, back into qualifications will create an incentive to ensure that all children have that grounding. That is really important.
Mrs Hodgson
To return to the subject of dyslexia and the dispensation that will be given for children with dyslexia, the additional 5% can make the difference between an A and an A* for a very bright, dyslexic pupil.
Sarah Teather
Ofqual will consider and take into account the concerns of dyslexic charities when it decides on implementation. The issue of reasonable adjustments continues to remain.
I should like to conclude now. I thought that we would not have many speakers. In fact, I seem to have prattled on for so long—[Interruption.] Are there 17 minutes left? I thought that we finished at 3.45 pm. I have been racing to the end and thought that I only had two minutes. In fact, we have loads of time. I might still conclude anyway, or I will not have any voice left.
I am very grateful to hon. Members for their contributions. I hope that I have been able to allay some concerns. Dyslexia charities will no doubt make the points that they made to the hon. Members who came to this debate to Ofqual and JCQ in the new year, but I want to leave hon. Members with the assurance that we are absolutely committed to reforming the support for children with special educational needs and disability. We will say much more in the new year, in response to the consultation. I am grateful to all hon. Members for their constructive input on this matter.