The Parliamentary Under-Secretary of State for Schools (Lord Nash)
My Lords, thank you for the opportunity to debate the Government’s proposals for the reform of the national curriculum in England. As noble Lords know, on 7 February, my right honourable friend the Secretary of State for Education announced a number of proposals to improve the content and design of the national curriculum. These proposals are the product of a painstaking and thorough review which the Department for Education has undertaken over the past two years—a review that was launched with the expressed aims of restoring rigour and high standards, ensuring that all children are taught essential knowledge, skills and understanding in the key subject disciplines, and granting teachers greater freedom to design lessons that meet the needs of all pupils.
The proposals on which we are now consulting are the culmination of extensive analysis of curricula used in the world’s most successful education jurisdictions, particularly in the core subjects of English, mathematics and science, and consideration of nearly 6,000 submissions to our call for evidence. We have also engaged with teachers and head teachers from across the country to learn more about the most effective practice in England, and have worked with subject experts and key organisations across all national curriculum subjects to inform our thinking.
The launch of the consultation on our proposals last month was preceded by a number of other publications of interest. In December 2011, the review’s expert panel, chaired by the respected curriculum and assessment expert Tim Oates, published its report. This set out a series of recommendations for the new national curriculum framework. It formed part of a wider suite of documents setting out the results of the call for evidence and research conducted by the review. This included a summary of evidence gathered about curricula for English, maths and science in high-performing jurisdictions and a research report on subject breadth in the curricula used in other education jurisdictions. The findings uncovered consistent themes that have challenged some of the tenets of our current system, showing, for example, that high-performing jurisdictions set higher expectations in terms of what they believe children can and should master at different ages.
In June 2012, we published draft programmes of study for primary English, maths and science for wider discussion. Since then, we have discussed the drafts with key subject organisations, teachers and subject experts, and have reviewed the content in the light of the feedback we received. These discussions have informed the draft national curriculum that was published last month.
The new curriculum upon which we are now consulting is both challenging and ambitious. It benchmarks our expectations in the core subjects of English, mathematics and science against those displayed by the highest performing education jurisdictions.
It is right to place this debate in an international context and to learn from those who are performing best. These jurisdictions, such as Hong Kong, Massachusetts and Singapore, which are shown by international surveys of pupils’ performance to consistently outperform England despite the best efforts of our many excellent teachers, deliberately set out to compare themselves against others, learning from other nations and asking constantly what is required to help all children do better.
Let me set out the scale of the challenge and how we are falling behind. Our performance in maths in the TIMSS study of pupil performance at the age of 10 has not improved since 2007, or at the age of 14. TIMSS science results show a drop in performance—at age 10, our mean score dropped markedly from 542 in 2007 to 529 in 2011, and at age 14 from 542 to 533. Our results in the PISA survey show that we are behind high-performing jurisdictions in reading, with an above average spread of attainment between pupils who do well and those who do not.
In the most recent PIRLS 2011 study, England ranked 11th out of 45 countries in the reading performance of pupils in the equivalent of year 5. Five countries performed significantly better than England: Hong Kong, the Russian Federation, Singapore, Finland and Northern Ireland. In the most recent PISA 2009 study, England ranked 25th out of 65 countries in the reading performance of pupils aged 15, falling from seventh in 2000; 28th out of 65 countries in the mathematics performance of pupils aged 15, falling from eighth in 2000; and 16th out of 65 countries in the science performance of pupils aged 15, falling from fourth in 2000.
Every performance measure reinforces the scale of the challenge that we face. In 2011, 18% of pupils in England left primary school without meeting the current expected standard in English, and 20% in mathematics. Employers and universities have also repeatedly highlighted school leavers’ lack of proficiency in these subjects. In mathematics specifically, England is among the countries with the lowest levels of participation for 16 to 18 year-olds, with fewer than 20% of young people studying mathematics to the age of 18. In most high-performing jurisdictions, the study of maths in this age group is almost universal. The Government have already set out their ambition for the vast majority of young people to study mathematics to the age of 18. It is therefore vital that we act now to create a new national curriculum that gives every child, regardless of their background, a broad and balanced education so that, by the time their compulsory education is complete, they are well equipped for further study, future employment and adult life.
Beyond ensuring that children are taught the essential knowledge in the key subject disciplines, we want to give teachers greater freedom to use their professionalism and expertise to help all children realise their potential. As part of this, it is important that schools and the wider public understand the difference between the statutory national curriculum and the whole school curriculum. All schools must provide a curriculum that is broadly based and balanced, of which the national curriculum is just one part. The school curriculum could be described as the way that schools bring the national curriculum to life and meet the needs of all their pupils. To do so, teachers must have freedom: freedom from top-down prescription and freedom to innovate. That is why there will be no statutory document to accompany this new curriculum telling teachers how to teach the subject content that it defines.
This is a huge cultural shift, but also a massive opportunity for teachers. In providing greater flexibility for professionals, we have considered changes to both curriculum breadth and depth. International evidence shows that high-performing jurisdictions tend to promote a wide range of subjects in compulsory education. We will therefore retain the current subject composition of the national curriculum, with the addition of foreign languages at key stage 2. Subject to the outcome of this consultation, we will change the name of the subject currently known as ICT to “computing” to better reflect its new content. We do not believe that further prescription of subjects to be taught at key stage 4 is necessary or appropriate; we are using other measures such as the English baccalaureate to encourage more schools to offer a broad academic education to all pupils—particularly the most disadvantaged—to the age of 16, in line with our international competitors.
I am sure that noble Lords will be interested in some of the detail of the new curriculum. As I have already mentioned, programmes of study in all subjects—except primary English, mathematics and science—have been significantly slimmed down, removing unnecessary prescription about how to teach and setting out the essential knowledge and skills which every child should master. In primary English, maths and science, we have taken a conscious decision to provide a higher degree of exemplification in order to ensure that we achieve the step change in standards that is essential.
In English, there is greater emphasis on reading for pleasure, and greater clarity on spelling, punctuation and grammar. In mathematics, the new curriculum will place a stronger emphasis on arithmetic and will include more demanding content on fractions, decimals and percentages. In the sciences, the programmes of study we have published include greater detail on key scientific concepts and processes. The mathematical aspects of science have been strengthened, and for the first time primary schools will be expected to teach their pupils about evolution and inheritance.
For the first time, and in line with practice in other countries and evidence about children’s cognitive development, there will be an expectation that foreign languages will be taught in primary schools. As well as enhancing the status of languages in the school curriculum, this will provide a better foundation for the teaching of languages in secondary schools, where there will be new content on translation, grammar and vocabulary at key stage 3.
In citizenship, our proposals make financial education statutory for the first time, and similarly propose that practical cooking is compulsory at key stage 3 in design and technology. In music we have balanced performance and appreciation, and in art and design there is a stronger emphasis on drawing skills and on the historical development of art. In history, rather than a disconnected set of themes and topics, we have set out a clear chronological narrative of British and world history. In geography there is a greater emphasis on locational knowledge so that pupils can use maps and locate key geographical features such as oceans, cities and continents.
In PE, there is greater emphasis on competitive sport to build character and self-esteem and to improve teamwork. As well as being valuable in and of itself, this will help ensure that we build on the wonderful legacy of the London Olympics. Finally, as I mentioned, we propose to replace the old ICT curriculum with a new computing curriculum with a focus on the principles of computer science and practical programming skills to ensure that England retains a competitive edge in the growing digital economy that will be key to our nation’s future economic prosperity.
The new curriculum will provide parents everywhere with a clear guide to what their children should know and be able to do in every subject as they make their way through school. It will also provide those schools that are choosing to take advantage of the freedoms and opportunities afforded by academy and free-school status with a reference point for designing their own school curriculum. The consultation exercise on our proposals will run until 16 April and we are keen to hear from everyone with an interest before the new national curriculum is finalised and published later this year. The timing of the debate is therefore pertinent, and I welcome further discussion of these proposals. I beg to move.
Lord Nash
My Lords, I thank the noble Baroness, Lady Whitaker, for her detailed comments on design. I very much hope that she will feed them into the consultation. We recognise the concerns raised about design and technology study programmes. We are listening, and working with the subject community and the Design and Technology Association to improve the draft.
I thank my noble friend Lord Storey for his comments, in particular about the primary curriculum, an area in which he is extremely expert. It is a delight to hear someone who has spent so much time teaching children rather than thinking about theories of education talking about what it is appropriate to teach children. I am particularly grateful to him for laying off history today, and for supporting our move to give teachers more freedom.
The noble Lord asked about teaching sex education at key stage 3. Aspects of the biology of reproduction and the human life cycle are included in science in key stage 2. It is up to primary schools to decide whether to provide additional sex and relationship education, taking into account the views of parents. Many schools choose to provide sex and relationship education in year 6.
I am grateful for the comments on soft skills made by the noble Lord, Lord Northbourne. As he knows, I share his views about their vital importance. As noble Lords are aware, the outcome of the PSHE review was announced last week. PSHE remains an important and necessary part of all pupils’ education, but teachers need flexibility to deliver high-quality PSHE and are best placed to understand the needs of their pupils. This will not come from additional central prescription. Therefore, PSHE will remain a non-statutory subject, without new standardised frameworks or programmes of study. My honourable friend Elizabeth Truss wrote to Sir Michael Wilshaw last week, asking Ofsted to draw up a guide to effective PSHE practice.
Aspects of PSHE will continue to be taught throughout the statutory curriculum. In science, pupils will learn about the structure and function of the male and female reproductive systems, and the menstrual cycle. In both science and PE, children will learn about the benefits of a healthy lifestyle, including the impact on the body of diet, exercise and drugs. In maths and citizenship, children will receive financial education, including learning about wages, taxes, credit and debt. In designing appropriate PSHE content for school curricula, teachers will be expected to build on content in the national curriculum on drugs, finance and health education, and on the statutory guidance on sex and relationship education.
All schools today have to focus more on PSHE. With the collapse in many areas of family life as a result of the high incidence of absent fathers, the absence of religion in many children’s lives and the prevalence of gang culture, the only constant in many children’s lives—the only brick—is their school. All children in the modern world face a variety of issues and schools have to do much more on what was called the pastoral front than they used to. This is meat and drink to good schools and we expect all schools to emulate what the good ones do. We trust teachers and head teachers to adapt what they do to their own particular circumstances. We are not arguing about the necessity for PSHE, and no one feels more strongly about the need for it than I do, having seen the effect at first hand of what really good pastoral, inclusion, behaviour and raising aspirations programmes, which of course include PSHE as a part, can have on disaffected children. However, we do not feel that it is appropriate to legislate for it. We should leave teachers free to teach what is appropriate to their circumstances. However, we have asked a specific question in the consultation about our proposed aims for the national curriculum and we will take all views into account before finalising them.
My noble friend Lord Black of Brentwood commented on animal welfare. It is not the role of the national curriculum to prescribe everything that might valuably be taught to children. We are slimming down the national curriculum to focus on essential knowledge in core subjects. The draft primary science curriculum requires pupils to be taught about the needs of animals, including food, water and so on, and the care of animals is something that we would expect all good schools to cover in their wider curriculum as part of the soft skills. However, we will look further into this matter.
The noble Baroness, Lady Coussins, talked about languages. The evidence shows that we have a strong basis on which to build the new expectation that foreign languages will be taught in primary schools. A recent survey conducted by the CfBT Education Trust, the Association for Language Learning and the Independent Schools’ Modern Languages Association found that 97% of primary schools are already teaching a language, and that more than 80% are reasonably confident about meeting the statutory requirement for 2014. Evidence, including some from other countries, shows that children benefit from being taught languages at an early stage. They can inspire children with a love of language that will stay with them throughout their secondary education and beyond. For this reason, we are opening up the choice of languages beyond European modern languages by including Mandarin, Latin and Ancient Greek. It is right that we give our pupils this opportunity and provide a better foundation for the teaching of languages in secondary schools.
We will not be making languages compulsory at key stage 4 because we are conscious of the need to slim down the curriculum and allow schools the freedom to meet their pupils’ needs. However, to support the introduction of the new key stage 3 second language education, the Teaching Agency is facilitating an expert group chaired by a leading primary head teacher for languages and bilingual education. The group is meeting at the moment to develop the signposting of resources and the identification of high-quality teaching materials that are freely available and is looking at ways in which initial teacher training in schools can best prepare for the introduction in 2014. On schools becoming academies to avoid language teaching, we welcome schools becoming academies, but we are not encouraging them to do so for this reason. The national curriculum should be a benchmark for all schools. Academies would have to justify to their communities if they chose not to teach what all other maintained primary schools do at key stage 3.
My noble friend Lady Walmsley made a point about language experience courses in schools, which of course they are free to run. I am also grateful for her comments about cooking and IT. On IT careers advice, we expect all schools to engage with their local business communities for careers advice in IT and other industries.
I turn now to the subject of climate change. It is not true to say that climate change has been cut out of the curriculum. It is specifically mentioned in the science curriculum and both climate and weather feature throughout the geography curriculum. Nowhere is this clearer than in the science curriculum for 11 to 14 year- olds, which states that pupils should learn about,
“the production of carbon dioxide by human activity and the impact on climate”.
This is explicit coverage of the science of climate change. It is at least as extensive and certainly more precise than the current science national curriculum for this age group, which states only that:
“Human activity and natural processes can lead to changes in the environment”.
In addition, the Royal Geographical Society has said that the draft geography programme of study will provide,
“a sound underpinning of factual knowledge to prepare, at GCSE and A level, for pupils to study the topics that confront us all, globally, as citizens and which are inherently geographical, such as climate change, pollution, ‘food, water and energy’ security and globalisation”.
On academies not teaching the national curriculum, it is true that they have the freedom to vary any part of the national curriculum that they consider appropriate. However, even in a school system where more and more schools are moving towards greater autonomy, there is still a need for a national benchmark to provide parents with an understanding of what progress they should expect and to inform the content of core qualifications. Of course, academies and free schools must prepare their pupils for national exams and will be judged in part by destinations.
I am grateful to my noble friend Lord Lucas for his comments, particularly on the importance of the broad sweep of history and the opportunity now facing us with design and technology in schools.
I thank the noble Lord, Lord Sutherland, for his Mr Micawber-like comments on the need not to crowd the national curriculum. On his point about Ofsted, I have already talked about the PSHE review. Ofsted inspects for a broad and balanced curriculum and for progression. Without good PSHE, progression can be difficult for some pupils. However, Ofsted is the sharpest tool in our box and I undertake to discuss this further with Sir Michael Wilshaw.
The noble Lord, Lord Empey, commented on the lack of incentives for computer science graduates to enter the teaching profession. We are providing a £9,000 bursary for computer science graduates. The British Computer Society-Chartered Institute for IT is offering scholarships of £20,000 to exceptional candidates. The UTCs and studio schools programme is about encouraging more young people into the technical industries.
I thank my noble friend Lady Brinton for her comments about the inadequacies of the current system. On maths and English post-16, students who have not achieved at least a GCSE grade C in English or maths at the age of 16 will be required to continue to study mathematics post-16 from September 2013. We also want to encourage schools and colleges to provide opportunities for students who have already achieved a GCSE grade A to C to continue with the study of mathematics at level 3 as part of their post-16 programme. We are developing new courses for this cohort, and work is under way with Ofqual, mathematics sector bodies and awarding organisations to determine the most appropriate format for these new core mathematics qualifications.
I thank the noble Earl, Lord Clancarty, for his comments about primary schools. He is quite right that education often goes wrong in primary schools. That is why we are focusing on the most underperforming primary schools. On trips to cultural places, that is something we expect all schools to do.
I thank the noble Lord, Lord Quirk, for his comments about teachers. He raises a very good point. All schools will have to focus on training their teachers for the delivery of the new curriculum. I thank the noble Baroness, Lady Jones, for her opening comments about how one can never get a draft of a curriculum that pleases everyone. On the authorship of parts of the history curriculum, as the noble Baroness knows, the history curriculum was drafted with the input of a great many experts in the field. We were very pleased to see 15 eminent historians, including David Starkey, Niall Ferguson and Antony Beevor, endorse our approach in a letter to the Times on 27 February.
On academy freedoms and the national curriculum, academies were allowed under the previous Government not to teach the national curriculum. If the Labour Party wants to change that, I would be interested to hear about it. On plans for an office for educational improvement, of course we agree with the principle of evidence-based policy. That is what we have been doing, and plenty of evidence is available. However, we are not convinced that the noble Baroness’s approach of setting up a new quango—no doubt at great cost—is necessary.
Turning to the content of the history programme, I reiterate the importance of giving our pupils a clear chronological narrative of British and world history rather than a disconnected set of themes and topics, often repeated, as is the case currently with for instance Nazism, over the course of their school careers. It is right, too, that the teaching of history should cover significant individuals who have helped shape the history of Britain and the world. Those names listed in the programme of study are just some of the individuals we expect schools might cover. It is not a definitive list, and teachers are free to teach about any other individuals or aspects of the history of other countries and cultures as they see fit to meet the needs of their pupils. It is clear that the history curriculum generates a wide range of views about what pupils should be taught, and it is right to have that debate. I also acknowledge that others might have made different choices, but that is why we are consulting on the programme at present and welcome responses from all parties.
The noble Baroness, Lady Jones, made a comment about vocational education. One of the Secretary of State’s first acts was to commission the Wolf review, which we have implemented in full. We also commissioned Doug Richard to look at apprenticeships and are taking his proposals forward.
I must comment on the rather sensational latter which was recently written by 100 academics. They are of course right that we want our students to learn higher-order thinking skills, but those academics, I am sure, would acknowledge that to progress to that level, students need a basic grounding in lower-level skills and in knowledge. Sir Michael Wilshaw has—
Lord Sutherland of Houndwood
I just wonder whether the Minister has noted that my noble friend Lord Quirk and I have both chaired meetings with more than 100 professors in them. They were called senates and they did not always fill us with confidence that the judgment coming out was the right one.
Lord Nash
I am obliged to the noble Lord, Lord Sutherland, for that comment and have to say that I rather sympathise with Sir Michael Wilshaw, who has encouraged people like that to get out there and see what is happening in many of our classrooms. Once you have done that, only then can you appreciate how vacuous the content is that is being taught in many of our schools and how we need to improve the national curriculum in order for pupils to progress to a higher cognitive level.
As I outlined in my opening speech, the draft national curriculum on which we are consulting is based on careful analysis of the world’s most successful school systems. That showed that our curricula, in particular for the core subjects, focuses insufficiently on key knowledge and is less demanding than in other jurisdictions. The new national curriculum will change this and will also give schools more freedom over the curriculum and teaching, not less. The new national curriculum acknowledges the vital role of knowledge in education and is based on up-to-date, cutting-edge research about how the brain learns. It lists the important knowledge pupils need to know within clear subject taxonomies. To quote the leading US cognitive scientist, Dan Willingham:
“Data from the last 30 years lead to a conclusion that is not scientifically challengeable: thinking well requires knowing facts, and that’s true not simply because you need something to think about. The very processes that teachers care about most—critical thinking processes like reasoning and problem solving—are intimately intertwined with factual knowledge that is in long-term memory (not just in the environment)”.
Indeed, how interesting would debates in your Lordships’ House be if noble Lords did not have huge reservoirs of factual knowledge stored in their long-term memories which they use to display high-order skills such as argument, reasoning, analysis, comparison et cetera? The curriculum does contain lists of facts but these facts are not opposed to higher-order thinking and the skills of analysis and creativity; rather, these facts enable such skills and provide a framework of understanding.
In every field of human endeavour it is accepted that you must know the rules of that field before you can produce anything of worth within it. Great artists and writers know their rules before they break them. Great scientists and mathematicians know the work that has gone before them. This curriculum provides the foundational knowledge that will stand our future artists, writers, scientists and mathematicians in good stead, while also allowing all pupils to appreciate the great achievements of the past.
I thank noble Lords for their valuable contributions to this important debate. As I mentioned earlier, the consultation on the draft curriculum will close on 16 April and we welcome responses from anyone with an interest. Subject to the outcome of the consultation, we then plan to publish the final curriculum in Autumn 2013, to allow time for schools to prepare for the first teaching in September 2014.