Government Food Strategy
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(2 years, 5 months ago)
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Baroness Jones of Whitchurch (Lab)
My Lords, I thank the Minister for repeating the Statement this evening. We have waited a very long time for this food strategy to be published—and what a disappointment it has turned out to be. It has provoked a united response, but for all the wrong reasons. It has been roundly criticised by Henry Dimbleby himself, by farmers, by food campaigners and by environmentalists, for being vague and unambitious. Henry Dimbleby has said that it is not a strategy and has warned that more children will go hungry. Minette Batters has said that the proposal to help farmers increase food production has been “stripped to the bone”. The Soil Association has criticised
“a narrow-minded ideology which believes government should not intervene to reshape diets”,
and Greenpeace has said that the proposals
“only perpetuate a broken food system”.
Sadly, these proposals are a disservice to the excellent, well-researched report produced by Henry Dimbleby, which took a holistic approach to the farm-to-fork journey and its impact on our health. It highlighted the terrible damage that poor farming practices could do to our planet. It called out the complicity of food manufacturers whose drive for profits is pushing highly processed junk food on to the nation in the full knowledge of the ill-health consequences, and it warned of an obesity crisis that would overwhelm our health service if urgent action were not taken. The UK is now the third fattest country in the G7, with almost three in 10 adults obese, while children are going hungry because our school food system is failing so many of them in need.
The Dimbleby report was radical and challenging. As it says:
“Change is never easy. But we cannot build a sustainable, healthy and fair food system by doing business as usual.”
It seems, however, that this is exactly the approach the Government are taking. The Dimbleby review consisted of almost 300 pages, yet this response covers barely 10% of it. It has not even responded to the 14 very well-argued recommendations in the report. All the difficult questions have been ducked. Instead, we have a statement of vague intentions and a rehash of existing policies, not a blueprint to tackle the major food issues facing this country.
The Minister’s Written Statement talked about the need to work across all government departments to deliver the strategy but, frankly, such cross-departmental working should have been put in place before the White Paper was drafted. Where are the policies that would address the 7.3 million people living in poverty, including 2.6 million children? Where are the policies to make food banks a thing of the past, instead of our facing a 95% increase in food parcels being handed out since 2015? Where are the policies to tackle the rise in adult obesity that is putting our health service under such strain? Why have the Dimbleby plans to improve child nutrition been ignored? Why have the proposals to extend entitlement to free school meals been rejected, despite widespread support from teachers, health workers and campaigners?
We know that food prices are rocketing and the food system is under strain, but this White Paper gets nowhere near addressing the root causes. Costs are dramatically rising for farmers and food producers, putting further pressure on food price inflation, and the closure of the UK’s biggest fertiliser plant last week will add to food costs. Meanwhile, crops are rotting in the field and over 40,000 pigs have already been culled because of labour shortages.
So, where are the plans to support British businesses and ensure that British food is affordable? Where are the plans to support our farmers and stop them being undercut by imports with lower animal welfare and environmental standards? Why was the commitment to tackle low-quality imports taken out of the paper at the last minute? What message is that sending to farmers? Instead, we should have a plan to ensure that we buy, sell and grow more of our great British food, entrenching Britain’s reputation as a beacon for quality food, high standards and the ethical treatment of animals.
The Dimbleby report was a once-in-a-generation opportunity to reset our food strategy for the future. It tackled the difficult issues, knowing that not everything would be agreed. So, why did the Government not feel able to give the recommendations in that report the detailed response they deserved? Does the Minister recognise that as a result, we have a White Paper that pleases no one, lacks ambition and represents a missed opportunity? I very much look forward to his response on these issues.
Baroness Walmsley (LD)
My Lords, there is much to say about this “Let them eat venison” food strategy—although there is not a lot of meat in it. It is full of vague intentions and grand promises such as a school food revolution. It seems to me that when this Government want to hide the fact that they have chickened out of doing something really revolutionary, they call it a revolution. Sadly, they have failed to do justice to Henry Dimbleby’s thoughtful, realistic and ambitious national food plan. No wonder he is disappointed that only half his recommendations have found favour with the Government.
Our national food system is broken. If your Lordships do not believe me, ask the NHS workers who are forced to use the food bank set up by the hospital where they work. Ask the person who has three jobs, trying to put food on the table but able to afford only cheap food or ready meals because there is no time left to cook. Ask the doctors who treat the 40% of overweight children and the 64% of overweight adults. Ask the nurses who treated the large number of people with obesity who died of Covid-19 at the height of the pandemic.
Henry Dimbleby recommended a food system to make people well, not one that would make them sick, while at the same time protecting the environment. Yet what do we have in response? Twenty-seven pages that ignore evidence-based measures such as introducing a sugar and salt tax, an idea that the soft drinks industry levy has shown to be an effective way of incentivising manufacturers to reformulate and reduce sugar in order to avoid the tax. Tonnes of sugar have been cut from the diets of children and teenagers, while people drink just as many soft drinks and the industry has not suffered at all. However, despite that success, the amount of sugar the average person eats is continuing to rise because of the increase in consumption of junk foods laced with sugar, salt and other appetite stimulants. So why will the Government not follow the sugar tax idea with other foods? Can the Minister say who has been lobbying the Government to ditch this recommendation? Is it the same people who succeeded in persuading the Government to delay the implementation of the ban on TV and online advertising and volume promotions of HFSS foods before the ink was dry on the Health and Care Act?
The price of food is rising but there is no evidence that a salt and sugar tax would increase it. I spoke yesterday to someone in the food industry who was convinced that it would encourage reductions in salt, and particularly in sugar, without price rises. If the Government want to reduce taxes, perhaps they should start with the inflated amounts of VAT that are flowing into their coffers from our fuel and energy purchases; that would help families directly.
During the passage of the Health and Care Act, there was a great deal of talk about what the new integrated care systems could do to address the health inequalities crisis. We know that obesity is more common among poorer people, yet this so-called strategy will do nothing to help them afford healthy food. We are told that a healthy diet would cost five times what the poorest families can afford, but the sugar and salt tax could pay for some of the measures that Dimbleby proposed to balance things out. Extending the Healthy Start programme and eligibility for free school meals and the holiday activity and food scheme would help to get fruit and vegetables into the diets of poor families, yet there are no proposals about that. Why not?
The Government talk about willpower, information and education for consumers, yet we have had health education in school for years, as well as food labelling. It has not worked. When the soft drinks levy was introduced, Liz Truss objected, saying that people should be free to choose. However, the problem is that people are not free to choose healthy food because they cannot afford it; they can only afford cheap calories. In some housing estates, almost the whole row of shops consists of junk food outlets. Where is the choice there? It is a matter not of will power but of affordability and availability.
The Government have a responsibility here. I was amazed to read in the White Paper that the cost of food is not a matter for government. Does the Minister really believe that? Of course it is, when people are getting sick, putting pressure on the NHS and costing the taxpayer a lot of money. I do not expect this Government to care about poor people losing years of life because of poor diet, but I would have thought they would understand the economic case for ensuring a healthy and productive population. Achieving the Government’s own ambition of five extra years of healthy life by 2030 is nowhere near on track, especially in the lower demographic groups.
Neither is there anything concrete in the White Paper to help farmers produce good food more efficiently, while protecting the environment. Farmers are already up in arms about what they are being asked to do without extra support, and worried about competition from large farms in Australia and New Zealand. Subsidies have been cut by 20% and the Government are still not clear about the details of the environmental land management payments.
Your Lordships’ Science and Technology Select Committee, in its report on nature-based solutions to net zero, said that farmers need a free and independent expert advice service to help them improve their productivity while improving biodiversity, but all we have is an alphabet soup of schemes and funds—and nowhere in the food strategy could I see the word “soil”. Another of Dimbleby’s recommendations that is notable for its absence is that we should aim to eat at least 30% less meat, given that 85% of our agricultural land is used to feed animals. Apart from the ridiculous “Let them eat venison” proposal, I see nothing practical to achieve that.
We are offered more research on things that we already know and more reviews about things that do not need reviewing—nothing but delay and equivocation. What a missed opportunity.
Children and Families Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(11 years ago)
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Baroness Jones of Whitchurch
My Lords, before I speak to Amendment 127, I should say that I support the amendments tabled by the noble Baroness, Lady Brinton. I pay tribute to the considerable amount of work that she has done in campaigning on the needs of severely bullied children.
As the noble Baroness said, this is a growing and worrying issue. This is backed up by a recent DfE report which identified that 47% of children reported being bullied at age 14, 41% at 15 and 29% at 16. This is a significant proportion of young people. Many report that the bullying is ongoing and for some of them it is an everyday event. There is also growing evidence that this problem particularly affects children with disabilities and special educational needs, who are, apparently, three times as likely to be bullied, with verbal, emotional and physical bullying prevalent. Again this is relevant to the debates that we have had in Committee. As the noble Baroness said, many of these children do not come to the attention of the authorities but some are so traumatised that their behaviour, school attendance and mental health begin to be affected. Figures have been cited of more than 16,000 young people at any one time refusing to attend school.
We support Amendments 74 and 217, which address these issues in a structured and helpful way. They would ensure that the Secretary of State produced a strategy and statutory guidance to prevent bullying, and provide effective recovery programmes for those affected and a temporary SEN statement to access help and support. These amendments, combined with ours, would go a considerable way towards addressing the poor educational provision and lack of consistency in meeting the needs of children temporarily unable or unwilling to attend school.
Our amendment seeks to introduce a new clause to widen out the concerns to cover children who, because they are bullied, suffer from a mental health problem or a medical condition and are unable to attend mainstream school for a period of time. We are attempting to address these widespread concerns. These issues were flagged by our colleagues in the Commons and were mentioned by a number of noble Lords at Second Reading.
In addition to the incidence of bullying, the Teenage Cancer Trust and CLIC Sargent have highlighted the fact that there are 3,600 new cancer diagnoses in children and young people every year, which can also have a significant effect on a child or young person’s education. There are other reasons why children and young people may be absent from school for a long period, including trauma, the loss of a family member or being the victim of violence or abuse at home. These children and young people should not have to suffer because of their experiences. We should do everything we can to ensure that they are able to achieve their full potential. This includes putting in place support systems and ensuring that alternative temporary education provision is as good as it would have been in mainstream education.
In his letter to Peers after Second Reading, the Minister argued that temporary access to SEN status was not the right way forward. He said:
“The definition of Special Educational Needs is deliberately broad, and it must allow local professionals the freedom to make judgements on who it applies to … However, for children who require statements of SEN it rightly takes time to make the appropriate assessments and establish the right provision. We hope and intend that the consequence of bullying can be resolved quickly … As with statements, education, health and care plans are intended for longer-term, more complicated needs, rather than for providing rapid support”.
While we understand that assessments and EHC plans take time, it is important that we also have mechanisms for addressing the needs of those children who have more immediate needs and fewer long-term needs, to make sure they do not fall through the gaps. I was interested that the noble Baroness, Lady Brinton, said this afternoon that temporary statements are indeed available, because that certainly had not been drawn to my attention. Having that spelled out in more detail goes some way towards addressing this issue.
We believe that the amendments spoken to this afternoon provide a suitable package of support for severely bullied children and others temporarily unable to attend school. We hope the Minister will agree to reconsider the Government’s position, and to come up with a scheme that is as good as those amendments put before him today.
Baroness Walmsley (LD)
My Lords, I strongly support the amendments of my noble friend Lady Brinton, and would have added my name if I could have been sure of being here today to speak to them. However, here I am, very strongly supporting them.
Many thousands of children fall into the category of “severely bullied” but are invisible, for two reasons. One is that often the bullying takes place outside school, on the internet. The school does not see it happening. Unless school staff look carefully at the attendance record, or the parent is sufficiently distraught to bring it to the school’s attention, the school may not notice what is going on. The other unfortunate aspect is that often these children are quite shy; they take themselves off, rather than put up with it. They become visible to the rest of us only when they attempt suicide, or actually succeed. Then they land on the front page of the local or national newspaper. That is a tragedy.
When the school becomes aware of this problem, it often suggests to the parent that they educate the child at home. This is not the answer. Many parents are not capable, either professionally or economically, and cannot take the time off work to educate the child at home. They need specialist, professional help. Nor is it an answer to send the children to PRUs, for the reason my noble friend Lady Brinton has mentioned. Indeed, I would say it is cruel to expect these children to attend a PRU with a group of children of whom they are often frightened. They are square pegs in round holes in PRUs, because they are often children of great ability, and the provision offered in PRUs will not address their problem and allow them to achieve their academic potential.
Virtual schools can be an answer, but not the whole answer. These children need therapeutic and restorative help from well trained people. That is why my noble friend has suggested that what is needed is temporary special educational needs provision. As to the cost, yes, the sort of provision these children need is expensive, but it lasts for only a short period. If it is done well, many of these children go back into a mainstream school—perhaps a different one—after a relatively short time, during which their confidence has been built up and their mental health problems have been addressed.
If this does not happen, it is not the school that pays but the state that pays later. These children’s potential has not been realised; they do not have the qualifications that they could have; they do not have the well paid jobs that they could have, so do not pay so much tax; and there may be ongoing mental health problems that have to be addressed later in life by the health service. Although the school saves money by not paying for this provision in the short term, the public purse does pay—and, of course, the person who pays most is the child themselves. We have a duty to give these children back their education and indeed their lives. Provision is available, and it could be expanded if only a more sensible approach were taken to ensuring that the funding became available for these children. It is not a lot to ask and, compared to many children who need special needs provision for the whole of their school life—which of course very often they deserve—these children require it for only a very short period. What they need is very special provision from people who really understand what they have gone through and what needs to be put into place to enable them to face an ordinary education again.
Education Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(13 years ago)
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Baroness Walmsley
My Lords, the Minister will know that I have always promoted the importance of young people having their say in issues relating to them—in particular, at schools. I have an Oral Question on exactly this subject on 23 November. I certainly support the principle of what the noble Baroness, Lady Howe of Idlicote, is asking for today.
When you are in a coalition, there has to be a bit of “give” and a bit of “take” on both sides. During the passage of this Bill, I think we have had that; we have had some “give” and “take” from both of the coalition partners. I thank my noble friend the Minister for that, and in particular for the fact that we managed to persuade the Government not to remove the schools’ duty to co-operate and about when part-time students start to repay their loans. These are some of those very important things that are now in the Bill.
There have been other examples of where we have considerably strengthened the guidance—for example, on searching and on same-day detentions—and we have made changes to Clause 13. My noble friends and I are still somewhat unhappy about both Clause 13 and Clause 43, but I accept that you cannot have everything in a coalition. In some cases, we have had excellent reassurances from the Dispatch Box, and I think this issue falls into that category. I hope the Minister will be able to assure the House that the Government will do everything they can to ensure that wherever children’s interests are concerned, their voices will be heard and their views taken fully into account. It is very important that that should be done in schools.
Baroness Jones of Whitchurch
My Lords, we have some sympathy with the aims behind this amendment, and understand, as I am sure many noble Lords do, the advantages that can flow from giving young people a practical demonstration of democracy and representation. As the noble Lord, Lord Hill, said in an earlier debate on this issue, the previous Government went some way towards expanding pupil representation and consultation with governing bodies. As I understand it, specific provision was made in the Education and Skills Act 2008 to require governing bodies to invite and consider pupils’ views, but this has not yet been enacted. Perhaps the Minister could clarify whether the Government are now going to implement the provision in the previous Act.
In the mean time, I listened very carefully to the speech made by the noble Baroness, Lady Howe, but would still sound a note of caution on the wording of her amendment. It would seem, as it stands, to apply equally to pupils of all ages, and we are not convinced at this stage that that is the right way to proceed. As the noble Baroness indicated, some primary school pupils might struggle to understand some of the issues on governing body agendas, and there is, as has been pointed out, the issue of whether it is appropriate for them to deal with teacher discipline and conduct issues. It is therefore perhaps more appropriate to find a level of involvement for young people in governance issues that is more age-specific. However, we very much support the idea of strengthening pupil engagement and hope that the Minister is able to suggest other ways in which this might be achieved.
Education Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(13 years ago)
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Baroness Jones of Whitchurch
My Lords, under existing legislation, before a maintained school can convert into an academy, its governing body must consult those it thinks appropriate on whether the school should convert into an academy. However, Clause 55 allows a school to convert into an academy with absolutely no consultation with the pupils, the parents of the pupils, staff, the local authority or other interested groups. Our amendment would require consultation before a school applies for an academy order and require that consultation to seek the views of four categories of stakeholders: parents, pupils, school staff and the local authority. We regard it as a matter of courtesy, democracy and common sense.
As we made clear in Grand Committee, we do not seek to set out in legislation a long list of everyone who should be consulted, but it is our view that any Secretary of State considering granting an academy order would need to be assured that the views of the four key groups were being taken into account, so any consultation should be required to include them. Indeed, the Minister said to my noble friend in Grand Committee:
“I agree with the noble Baroness, Lady Hughes, that it is quite difficult to foresee situations where it would not be appropriate to consult the kinds of people that she mentions”.—[Official Report, 14/9/11; col. GC 242.]
I wonder whether, on reflection, the Minister has come up with a possible situation in which it would not be appropriate to consult these four groups and, if not, whether he will concede that, in order for any Secretary of State to make a well informed decision, these groups should always be consulted.
I also agree with the concerns previously raised by the noble Baroness, Lady Walmsley, that under the new proposals one of the bodies allowed to carry out the consultation, apart from the school’s governing body, is the organisation with which the Secretary of State proposes to enter into an academy arrangement. As she rightly pointed out, this is no guarantee of an objective or neutral consultation. We therefore believe it is important to build in some additional checks and balances to ensure that a new academy is truly desired by the local community. By requiring the consultation to include the views of these four key stakeholder groups—pupils, parents, staff and the local authority—those applying for an academy order will need to demonstrate to the Secretary of State that there is local demand for the conversion, not just from the organisation with which the Secretary of State has proposed to enter into academy arrangements but from the wider stakeholder community. If this clause was allowed to go forward unamended, it would be yet another example of those stakeholder groups being denied a voice.
I recognise that, strictly speaking, the granting of an academy order enables a school to convert into an academy only at a future time; it does not automatically trigger conversion. By denying the chance for parents, pupils, professionals and the community to have a voice before the academy order is made, to a large degree it presents them with a fait accompli. Indeed, our amendment would ensure that the key stakeholders were consulted on a timely basis so as to be able to influence a decision whether or not to apply for an academy order. It would mean that the Secretary of State would need to take account of those views when deciding whether or not to grant that order.
I hope noble Lords will recognise the sense and the democratic underpinning of this amendment. I beg to move.
Education Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(13 years, 1 month ago)
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Baroness Walmsley
My Lords, this amendment seeks to ensure that if a school wishes to keep a child in detention after school, it must ensure that it has successfully contacted the child’s parent or carer. When we discussed this matter in Grand Committee, I asked that the school should get the agreement of the parent. I believed that I was offering a compromise when I moved towards simply asking that the school should inform the parent, but I understand that the Minister does not think so.
Clause 13 has the potential to put a child in danger and I hope that I will be given a strong reassurance by the Minister that this will not be so. While I trust the vast majority of teachers, surely the Minister must accept that it takes a while for a young teacher to develop the sort of good judgment and common sense that we believe would prevent them from putting a child in danger on the way home. That is why we need to make it abundantly clear in guidance that no teacher may detain a child after school without informing the parent if it in any way compromises the safety of the child.
My noble friend the Minister made the point in Grand Committee that schools already have a duty of care to their pupils under other legislation. That may well be so, but noble Lords know the difficulty of cross-referencing other Acts when we are considering a current Bill that makes changes to earlier legislation. That is why I am asking the Minister to ensure that in the guidance that accompanies this new power, the school is made aware, on the same page, that it must not use this power if it in any way puts the child in danger. In order to check on this, the school will have to find out what the child’s transport arrangements are and ensure that either the detention is so short that it avoids the child missing a bus or that other safe travel arrangements have been made. The school may also need to check on whether the child is a carer, where detaining that child after school may cause another vulnerable person in distress. Schools should already know which children are carers, but they need to be sure in this case. I also think the guidance should make it clear that it is good practice to inform the parents anyway by phone. I can envisage the distress of a parent, waiting at home for a child to step off the school bus, only to find that he does not. The parent will worry herself sick; I know I would have done.
I think that this provision is entirely contrary to the respect with which this Government treat parents otherwise. Only this week, we have received a letter about changes to the way complaints about school admissions arrangements are handled, which said:
“We believe that parents should be given the opportunity to be part of the system that holds schools to account, properly supported and championed by the local authority, the Secretary of State and independent adjudicators”.
At the same time, the Government seek to write parents out of their discipline arrangements by letting schools avoid telling them that their child is in detention. As I understand it, this idea has come from one of the head teachers’ unions, but not the other one. I can tell the Minister what parents want: they do not want this. They want to be respected and informed.
Points were strongly made in Committee that rural schools, if they adhere to their safeguarding duty, will not be able to use this sanction at all. Yet I can reassure my noble friend that children in rural schools will not run amok because of it. There are many sanctions already in the armoury to ensure good behaviour and most schools use them effectively. Most have maintained good discipline to date without this power. I question the competence of any school that feels it needs this power to maintain good order and discipline. Yet, in order to give them this power, the Government may risk the safety of children unless the guidance is clear, unequivocal and powerful. We want only one more case like that of poor Milly Dowler and the Government’s good judgment will be called into question, rightly or wrongly.
This is entirely unnecessary if the Government get the guidance right. Will the Minister assure me that our comments about the guidance, and the strength and clarity that it needs, are taken on board by Ministers and officials? Without that assurance, we will remain with the concerns that I have expressed. I beg to move.
Baroness Jones of Whitchurch
My Lords, our Amendment 34 is similar to the one so ably outlined by the noble Baroness. It is a requirement that schools should always give reasonable notice to parents or carers of any detentions and that before going ahead with a detention, they have received from the parent or carer confirmation that they are aware of the detention. Rather like the noble Baroness, Lady Walmsley, has described, we thought that we were eminently conciliatory in our amendment, that it was common sense and would be warmly welcomed by the Minister. Perhaps it still will be.
We return to this issue after a detailed debate in Grand Committee in which we felt there was consensus that this was a common sense position between, on the one hand, an instant response to bad behaviour, while on the other, ensuring that pupil safety is protected. As it stands, the Bill removes a requirement to give 24 hours notice of detention and as a result schools would not be required to give parents or carers any notice at all. We have had a letter from the Minister today setting out new proposals, but those ask teachers only to judge,
“whether it is appropriate to give notice to parents”.
Frankly, we do not think that that is good enough. We recognise that it is usually the case that the nearer the punishment is to the original incident, the more effective it is. However, as a number of noble Lords in Grand Committee recognised, this would potentially create a number of safeguarding issues, which the Minister’s letter attempted to address. It would also potentially damage the relationship between parents and schools and could have a knock-on effect on the success of the school’s broader behavioural policy.
A number of objections remain to no-notice detentions, specifically because of the damage to the school’s relationship with parents. The noble Baroness, Lady Walmsley, has outlined some of those, such as it being impracticable for parents to rearrange children’s transport at short notice when they might have other commitments —other childcare commitments, and so on. There could be unnecessary worry for parents in rural areas especially on dark evenings, when they are anxious about their child’s travel home. There could also be concern if parents think their child is travelling home alone, separately, because they are travelling later, rather than earlier with a group, when they are all leaving school together. There is also the issue that the noble Baroness, Lady Walmsley, raised about caring responsibilities, of which children might not always have made the school aware. Finally, and perhaps most importantly in this catalogue, there is the basic discourtesy to parents which this Bill would represent and which would do little to help schools forge strong partnerships with parents.
When we discussed this in Committee, the Minister expressed some sympathy with the arguments we had put forward, but went on to argue that head teachers already had to produce behaviour policies which were publicised to parents. She also argued that there were existing legal safeguards that protect children's welfare if they are given detention. However, we do not feel that these points adequately address our concerns and they put the onus on parents to object to the school’s actions after the event through the complaints procedure or through legal action. Surely this is making heavy weather over what should be a common-sense policy. To be frank, we have not yet heard any valid arguments against what we are proposing.
The simplest way through is to support our amendment —or, indeed, the amendment of the noble Baroness, Lady Walmsley—which make it clear that schools can organise no-notice detention provided the parent has confirmed that they aware that it is happening. This will provide adequate safeguards for children and ensure that parents are kept in the loop and treated with respect. I hope noble Lords and the Minister will feel able to support this amendment.
Education Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(13 years, 4 months ago)
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Baroness Walmsley
I shall speak also to Amendments 21, 22, 23 and 24 in my name which are grouped with Amendment 13. We ended our session on Tuesday by reaching Clause 2. We had a very interesting debate about whether there should be statutory training for any teachers who are considering doing a search of a child. This and the subsequent group of amendments refer to other aspects of the measures which extend the powers to search. This group is about tightening up what can be searched for and for what reasons; the next group is all about whether you can search alone and children of a different gender.
Amendment 13 probes issues concerning the burden of proof and highlights the potential problems that arise for schools as a result of the expansion of the powers. I am sure that head teachers and other members of staff would wish to have that power clearly defined and be without fear of contravening the Human Rights Act or prosecution for an offence against the person. Teachers are not law enforcement officers and they have no reason to risk assault upon them by insisting on searching a pupil who is capable of a violent reaction. Equally, few teachers will wish to use the power if they feel that it will jeopardise their relationship with pupils and generate a climate of suspicion in their school.
A simple Google search of the phrase “primary school rules” illustrates the need for more careful consideration of these provisions. They vary enormously. I wish to insert “reasonably” so that the Bill will say that a search can be made for,
“any other item which the school rules reasonably identify as an item for which a search may be made”.
Some school rules do not allow toys to be brought into school, but it would be quite disproportionate to body-search a child for a little soft toy brought in for comfort. As the Bill is not clear on what exactly is meant by school rules, many schools might feel that they need to revisit their rules, such as: sweets, cans and glass bottles are not allowed in school. When they do so, I would remind them of their duty to consult the pupils. In any case, rules are more likely to be followed if the children have been involved in their drafting and have signed up to the need for them.
The Joint Committee on Human Rights has called on the Government to issue guidance which makes it clear that,
“only items capable of being disruptive to teaching or learning, threatening to the safety of pupils and teachers, or which breach criminal law can be identified in school rules as items for which searches of pupils can be made”.
That is the sensible approach, and inserting “reasonably” indicates that schools must not go over the top.
Amendments 21, 22 and 23 were suggested by the JCHR in its report on the Bill. The committee criticise the very wide powers to examine and erase data or files on a mobile phone or other electronic device. We all want to give heads and teachers the powers they need to keep discipline and to prevent bullying, which is why I do not oppose the extension of these powers. It is clearly legitimate for a teacher, if he has reasonable cause for suspicion, to see whether there are any files on a confiscated phone that could be used for bullying or distribution of images that the subject of the images would not want the world to see—even pornography. However, we need checks and balances. The JCHR points out that there is nothing in the Bill to restrict the scope of the powers in relation to the purpose for which the power is to be exercised. That should be linked to the reasons for the search and the justification for the suspicion that an offence has been, or is about to be, committed.
Given the potential for serious interference in the pupil’s rights to respect for a private life, the JCHR proposed Amendments 21, 22 and 23, about which I questioned the Minister at Second Reading. In the absence of an answer, I have tabled them myself. The amendments make it clear that it must be established that the device is likely to be used for something that is either unlawful or contrary to the school rules.
I tabled Amendment 24 because I remained concerned about the power to erase files. There may be all sorts of things on the phone that are very private to the family—things that the family would rather the school did not know. There may also be things on the phone that the pupil may not want the school or his parents to know—for example, that he or she is gay. Let us bear in mind that the pupil and his phone may be entirely innocent. Indeed, pupil A reporting to a teacher that pupil B has some questionable images on his phone may, in itself, be an act of bullying by A on B—trying to embarrass Bill or get him into trouble. Pupil A may want to expose the fact that B is gay. I would call that homophobic bullying, and this Government have made clear their determination to stamp that out. I have tabled Amendment 24 to ensure that guidance includes consideration of the private life of both the pupil and his family, and the circumstances in which it is appropriate to involve parents in the deletion of files.
I ask my noble friend the Minister whether the Government will conduct a review of the existing search powers—as was recommended by Sir Alan Steer to the previous Government, but not carried out, before they extended the powers. We need more post-legislative, as well as more pre-legislative, scrutiny. Will the Government publish draft guidance relevant to the search powers before Report stage? Will such guidance be statutory? Will the Government accept these amendments? I beg to move.
Baroness Jones of Whitchurch
My Lords, I support the amendments of the noble Baroness, Lady Walmsley. I shall speak also to our Amendment 25. As has already been identified, under the previous legislation school staff already have the power to search for and seize from pupils prohibited items, including weapons, alcohol, drugs and stolen goods, and we are very conscious of the sensitivities in extending those powers.
Therefore Amendment 25 places on the Secretary of State a requirement to give more explicit guidance as to what should be included in the school rules, and on the items for which searches can be made. This amendment would very much enable some of the concerns of the noble Baroness, Lady Walmsley, to be followed through. I also echo her point that if guidance were to be produced, it would be helpful if it were in the form of draft guidance on which we could all comment.
In addition, there is currently a statutory definition of school rules in maintained schools, but there is no statutory definition of school rules in independent schools, which will, in due course, include academies and free schools. Therefore, this underlines again the case for the Government to consider and advise very carefully on what can and cannot be banned under school rules for all state-provided schools. As the noble Baroness, Lady Walmsley, has mentioned, this was picked up in the report of the Joint Committee on Human Rights, which said:
“There is a risk of the new provision falling foul of that requirement”—
to protect pupils—
“unless the new power to search is circumscribed in some way by reference to the purpose for which such a search may be made”.
The noble Baroness, Lady Walmsley, quoted some useful paragraphs from the report, but that one is also helpful.
When we debated this on the first day in Committee, a case was well made on the issue of mobile phones. For one person a mobile phone is some sort of weapon or something that can be used in a derogatory way; for others it is a teaching aid. We need to be clear about pupils’ reasons for carrying mobile phones in school. In some cases it is a link to important caring responsibilities and so on. Therefore, we must be very careful about proscribing some of these things and the wording that is used.
We have seen the 15th report of the Delegated Powers and Regulatory Reform Committee, which was handed out as we came in. It draws the attention of the House to the fact that the department’s own memorandum on its delegated powers,
“does not explain why it is thought appropriate that the list of articles in section 550ZA(3) that may be searched for … should in future be capable of being supplemented by the school in question, apparently to include any kind of article whatever”.
Again, the Delegated Powers Committee questions the extra powers that the Government are trying to give themselves without being explicit about what the articles should be and what it is appropriate to take into a school. Therefore, I hope our Amendment 25, which makes it necessary for guidance to be produced by the Secretary of State on what is and is not to be prohibited by school rules, is a common-sense measure. I hope the Minister will agree and that he and noble Lords will feel able to support the amendment.
Baroness Walmsley
My Lords, I shall also speak to Amendment 28. We now move to some of the more delicate checks and balances in relation to searching.
The amendments would make it unlawful to search a child of the opposite gender and never, in any circumstances, without another member of staff being present. Amendment 16 refers to schools and Amendment 28 to FE colleges.
As the noble Baroness, Lady Jones, said on Tuesday, searches can be very invasive and unpleasant experiences that cause children embarrassment, anxiety and humiliation. In addition, searches might have different and more pronounced implications for children with a history of physical or sexual abuse, children with a disability or special needs, or children from different cultural backgrounds.
That is why I believe the person should always be searched by a teacher of the same gender and always with a witness. I am not so concerned about searches of property or lockers, although doing that alone can also open up a teacher to allegations of theft, but searches of the person open the door to allegations of improper behaviour if he or she is either alone or of the opposite gender or both. At a time when the Government have found it desirable to bring in reporting restrictions on allegations against teachers, which we will discuss when we reach Clause 13, why are they attempting to open up teachers to this sort of allegation by encouraging them to search a child of the opposite gender alone?
Clause 2(3) allows a member of staff to search a child alone if they believe that,
“there is a risk that serious harm will be caused to a person if the search is not carried out as a matter of urgency, and … it is not reasonably practicable for the search to be carried out … in the presence of another member of staff”.
I believe that those are the precise circumstances in which a search should not be carried out alone. Let us imagine the situation in which the child and the teacher are nervous and hyped up. The child might know that he has a knife or a gun in his pocket—in these circumstances, the police should be called anyway, as carrying a knife or gun is a very serious matter. However, nothing is more calculated to stimulate the child to do something silly than the pressure of an immediate and perhaps forceful search in front of their peers. It is much better to calm the matter down and send for a senior member of staff so that the search can be carried out more safely.
I know that most teachers would be entirely sensible and cautious about something like this, but we must not make bad legislation that has the potential for putting them and the children in danger by doing something entirely unnecessary. I can think of no circumstances in which it would be safe for a teacher to search a child for a knife alone and no circumstances in which it would not be possible to send for reinforcements. If the child is wielding a knife, there is no need to search for it—it is on full view. The teacher has a right under common law to defend himself and protect the other children, and so we do not need this legislation for that situation. However, even then, the teacher would be wise to send for some support.
I believe that these amendments are absolutely necessary, and I beg to move.
Baroness Jones of Whitchurch
My Lords, our Amendment 17 mirrors much of what is in Amendment 16, but with slightly different wording in that it reinstates the protections that were introduced with very good reasons in the first place. They were to have a witness and for searches to be carried out by members of the same sex. I very much echo what the noble Baroness, Lady Walmsley, has said in this regard. We have touched on these issues in previous debates—it has been a bit of a running thread—but it does not diminish the force of the argument or the need to firm up the checks and balances that we need when teachers are operating in day-to-day school life.
Head teachers already have the power to search pupils. The powers already give teachers and head teachers the power to search, to use reasonable force to control or restrain a pupil, to stop a pupil committing a criminal offence, to prevent injury or damage to property, and to maintain good order and discipline.
In the Commons stages, colleagues debated why these new powers were necessary in addition to the existing ones and when they would be used. The answers at that time from the Government were unclear, and the Minister, Nick Gibb, was unable to give a convincing example of when these new powers would be needed. For example, when would a teacher need to search a pupil’s possessions without a witness being present? Moreover, in the evidence-taking sessions in the Commons, Brian Lightman, the head of the ASCL, said:
“I have been a head for 15 years. I cannot imagine a situation where I would sanction any of my staff searching a member of the opposite sex without a witness present. In fact, I wouldn’t allow anyone to search a member of the opposite sex, full stop”.—[Official Report, Commons, Education Bill Committee, 1/3/11; col. 24.]
Similarly, the representation from the teaching unions made it clear that their members would be very wary of using these new powers.
Perhaps more importantly, children’s rights are paramount in this regard. Many of us will have received the mailing from an alliance of children’s charities raising concerns about the extended search powers. It rightly draws our attention to the protection of children’s privacy in the UN Convention on the Rights of the Child and the Human Rights Act. It agrees with our position that the case for extended powers has not been made. Instead, it urges the Government to conduct a review of how the existing search powers have been implemented before commencing with any new powers. To me, that makes perfectly good sense.
In addition, these powers are so broad that they give teachers greater search powers than a police office would have under the stop and search provisions. For example, in the Police and Criminal Evidence Act 1984 the police powers to stop and search require,
“reasonable grounds for suspicion, before they may be exercised, that articles unlawfully obtained or possessed are being carried”.
Under Section 60 of the Criminal Justice and Public Order Act 1994, stop and search must be based upon a reasonable belief,
“that incidents involving serious violence may take place”,
or that people are,
“carrying dangerous instruments or offensive weapons”.
We do not need to give teachers these additional powers. As the noble Baroness, Lady Walmsley, rightly pointed out, if anything this will endanger the pupil/teacher relationship and put teachers at risk. In all these circumstances, we do not believe that the case has been made for opposite sex searches and searches without a witness. Therefore, we commend Amendment 17, as well as Amendment 28, which applies the same principles to FE colleges. I shall not rehearse the arguments, but we believe that the same ones apply.
Baroness Jones of Whitchurch
Before the Minister responds, I wanted to make a quick comment in response to the noble Lord, Lord Sutherland, who raised the crisis issue. That underlines our argument, which echoes what the noble Baroness, Lady Howe, said, that surely what we need to do is to review how the existing legislation has been working so far. It has been in existence for 15 years. If there were going to be crises, they would have happened by now and we should know about them. We should therefore know what extra legislation, if anything, is needed to deal with it. I can genuinely say that there does not appear to be a chorus of demand from the teaching professions saying, “We were in this awful crisis and we were constrained from what we could do by your really unhelpful legislation”. There does not appear to be that demand, but maybe it is out there. Maybe we should do what the noble Baroness, Lady Howe, is saying and find out what is happening on the ground, but without rushing into the new proposed legislation, which opens us up to other problems and repercussions, which we have not yet fully identified.
I wanted to make the quick point that we should review first and see whether there are those crises out there.
Baroness Walmsley
The noble Baroness, Lady Jones, has stimulated me to emphasise the questions that I would like my noble friend the Minister to answer. I was saving them for my withdrawal speech, but it might be helpful to my noble friend if I emphasised them now. I really would like to know what sort of crisis we are talking about, because nobody has yet described to me the sort of crisis that would make it impossible for a teacher to send a child to fetch a senior member of staff or a member of staff of the correct gender.
Furthermore, what evidence is there that it is necessary to allow searches of a pupil alone, by a teacher of any gender? Like the noble Baroness, Lady Jones, I have not heard an outcry from the teaching profession telling us that the checks and balances in the current legislation need to be withdrawn to allow them the freedom to deal with the situations that they are being faced with. I am hearing it from some head teachers, though not all, but I am certainly not hearing it from teachers themselves. As I said at Second Reading, there is this disparity of opinion within the profession itself, which makes it very difficult for us as legislators and non-teachers—most of us are non-teachers—to legislate on what is right. Perhaps my noble friend can give us some evidence of the need to remove these checks and balances and a clear description of the sort of crises that we are talking about. Are we talking about a child with a grenade in his pocket and his finger on the pin? That I would describe as a crisis—but I have never heard of it occurring. But a child with a knife or a gun in his pocket and not with his hand on it and not wielding it is a situation that would allow you to send for somebody else. If a child has it in his hand, it is on view and you do not need to search for it. You have a common law right to remove it. But if you have to search for it, you have time.
Education Bill
Debate between Baroness Jones of Whitchurch and Baroness Walmsley(13 years, 5 months ago)
Grand CommitteeRead Full debate Read Hansard Text Read Debate Ministerial Extracts
Baroness Walmsley
My Lords, in moving Amendment 12, I wish to speak also to Amendments 19, 27 and 32 in this group. My noble friend Lady Jolly will speak to Amendment 20.
Clause 2 extends the power of teachers and heads to search pupils and repeals some of the safeguards in legislation regarding searches in schools. These searches constitute a significant intrusion into children’s privacy which is protected under the UN Convention on the Rights of the Child and under the Human Rights Act. Therefore, there is an enormous onus on the Government to justify them.
I welcome the Government’s commitment to give due consideration to the provisions of the UN Convention on the Rights of the Child when making new policy and legislation. I urge the Minister to ensure that when this Bill leaves your Lordships' House it complies fully with this important convention. I am particularly concerned with regard to Article 28(2) of the convention which states that we must,
“ensure that school discipline is administered in a manner consistent with the child’s human dignity and in conformity with the present Convention”.
When the powers to search were extended in 2009 to include alcohol, drugs and stolen property, they went ahead without any published evaluation of how the previous powers were working. This is happening again, which causes me great concern. We need a thorough review of these powers with sufficient detail for us to determine whether any particular groups of children are being searched more frequently than others. It is essential to avoid any possible discrimination in the use of these powers.
The first group of amendments concern appropriate training. Amendments 12 and 19 seek to ensure that any member of school staff expected to search a pupil has had appropriate training before attempting to do so. My intention is to highlight the importance of proper training in such matters. When I was a teacher, I would not have dreamt of attempting such a thing without proper training, and I am sure that your Lordships would have felt the same in my position. Many teachers are currently reluctant to use the powers that they already have to search pupils, and would not have the confidence to do so even in the circumstances where it may seem necessary to prevent imminent harm to others unless they had confidence that they knew what they were doing. No teacher or member of staff should be expected to search a child without good-quality training, especially since current legislation allows them to,
“use such force as is reasonable in the circumstances”.
Training is essential, particularly in delicate situations where the pupil has special educational needs or has particular cultural or religious concerns or is of the opposite gender from the person carrying out the search, or there is no other member of staff present—although noble Lords will know that I do not approve of either of those last two situations.
It is not just about training. Information about the child is important too. How is a child who has been touched inappropriately or even abused going to react if someone approaches to search their person? That could escalate a fairly low-level problem into something violent and critical. Training should ensure that searches are conducted in such a way as to avoid harm to the child being searched, as well as to avoid unfounded allegations of improper behaviour by the teacher or lecturer.
Amendments 27 and 32 cover the same matters relating to searches in FE colleges. It is true, however, that most colleges have specially designated and trained security staff who would probably be called in to conduct a search if necessary. There are particular issues in colleges that may need to be addressed differently from searches conducted in schools, as many of the students may well be over 18. The current DfE guidance that was published in 2007, called Screening and Searching of Pupils for Weapons: Guidance for School Staff, mentions colleges only briefly, on page 4, which is insufficient.
Further training and advice are essential in order for staff to understand the powers under this clause. Such training should ensure that searches are conducted in such a way as to avoid harm to the child being searched, as well as to avoid unfounded allegations of improper behaviour by the teacher or lecturer. In colleges there may be only a very few years between the searcher and the searched. Such training could also usefully include managing potentially inflamed situations, identifying particular cultural or religious sensitivities, de-escalation techniques and risk assessment.
I know that the Association of Colleges is not keen on my idea of statutory training; it has said so. It says that unqualified cowboy operations will be set up to provide so-called training and might give teachers and lecturers an unfounded sense of confidence. My answer to that is that the college principal has a duty to ensure that all CPD is of good quality by getting recommendations and feedback and by checking qualifications. The association suggests that bad things can happen if people have been inappropriately trained. My opinion is that bad things can happen if people are not trained at all. We should put this requirement in the Bill. I beg to move.
Baroness Jones of Whitchurch
My Lords, as a number of amendments are in our names, I thought that it would be sensible to get up at this stage and speak on Amendments 15, 18, 26, 29, 30 and 31. In introducing these amendments, I should make it clear that we understand and support the Government’s stated intention to support schools in improving discipline. As noble Lords will know, the previous Government took the first steps towards bringing in new powers to help teachers enforce discipline, and at that time they were broadly welcomed by the profession.
Our concern with what is being proposed today is that, although on the face of it the Bill seems to build on the legislation, it takes away the important checks and balances that had been built in to protect both pupils and teachers. It remains unclear why proposals to extend those powers have been put before us.
Many of our comments echo those of the noble Baroness, Lady Walmsley. Amendment 15 seeks to ensure that staff undertaking searches are appropriately trained to search all pupils, particularly those with special educational needs and disabilities, in a way that maintains the dignity and rights to privacy of everybody, in order to foster a school environment of mutual respect. Amendment 18 also makes it clear that searches should be carried out by a member of the senior management team. In the Commons evidence that we read, this was described as good practice by a number of head teachers.
The Children's Society and the NUT, among others, made a compelling case for staff doing searches to be trained and given advice on the effect of searches on young people, including the effect on their self-esteem and confidence. In addition—I am sure that we will hear more about this—Ambitious about Autism told us that staff require proper training to carry out safe searches on children with autism so that they understand the children's potential issues, for example around physical contact. The Children's Rights Alliance for England reminded us that searches can be very invasive and unpleasant experiences, causing children embarrassment, anxiety and humiliation. In addition, as the noble Baroness, Lady Walmsley, said, children with a history of physical or sexual abuse have a very different experience of searches; there is a need for training in that respect. It is also vital that staff carrying out searches on children with special educational needs and disabilities have an awareness of those issues and make reasonable adjustments for those needs.
We are concerned also that the new powers could put staff undertaking searches at risk. For example, the NUT highlighted a concern that, without training, teachers could be vulnerable to unfounded allegations of “improper behaviour”. Again, this underlines the case that we made earlier for searches to be carried out by someone of sufficient seniority that their intention and authority cannot be brought into question when the searches are carried out. This may be best practice in many schools, but the amendments build in safeguards for all pupils, particularly the most vulnerable, to ensure that their needs are recognised and that they are treated with respect.
Finally, Amendment 26 would require schools to keep a written record of all searches, including equalities information on the SEN, ethnicity and disabilities of the pupils being searched. Just as the police powers of stop and search were found to be disproportionately targeting certain ethnic groups, there is a risk that the same thing could happen unintentionally in our schools. Without proper records, we will not be able to monitor and follow up on the consequences of those trends. This concern has been highlighted by the Runnymede Trust, which stated:
“Runnymede is concerned that this power could result in disproportionate numbers of Black children being searched. If Black pupils are searched more than other pupils or feel unfairly targeted, trust may be undermined, potentially leading to more negative behaviour in the classroom”.
The amendment will enable that record to be kept and research to be pursued to follow up on it, both within the school and more widely, to make sure that unintended consequences do not arise. It will enable us to ensure that minority ethnic groups are not disproportionately targeted, and that groups such as pupils with SEN or disabilities are also not disproportionately targeted unintentionally. I hope that the Minister will acknowledge the sense of the amendments and the comfort that they might bring by protecting the interests of vulnerable groups who are concerned about how the new powers will operate.
Other amendments to Clause 3 in this group—Amendments 29, 30 and 31—mirror the amendments that we laid to Clause 2 but relate to further education. The same arguments apply in terms of checks and balances, but as the noble Baroness, Lady Walmsley, said, because of the potential narrowing of the age gap it is particularly important that teachers are trained to treat the students with respect and be aware of their vulnerabilities.
I have one final quick comment. I am aware that a guidance note is in full consultation from the department at the moment on the powers to search without consent. I am sure that the Minister will say, “Do not worry, because this document is being consulted on”, but it increasingly gives us concern that we are being asked to make legislation now, not further down the line when some consultations will come to fruition. It is asking a lot of us to trust that those consultations will come out with the right answer. We need to ensure that we get the legislation correct now, when we have the chance to do so.
Baroness Jones of Whitchurch
My Lords, I want to make just a couple of quick points, given the lateness of the hour. The first is that the draft guidance that seems to be floating around, the status of which I am sure that the noble Lord will know better than I, explicitly states under the heading of training for school staff that there is no legal requirement for a head teacher or authorised member of staff to be trained before undertaking a “without consent” search. That is a statement of fact because there is no legal requirement, but if you are issuing guidance, would it not make sense to say something like, “But we think it is a jolly good idea”? It is almost a prescription not to bother to do the training. I may have the status of the guidance wrong, but my point is worth taking on board.
The second point concerns the final issue that the Minister raised, which was about keeping records. There was a contradiction with what a number of noble Lords said about the need for consistent record keeping so that Ofsted can check what is going on and the department can have an idea of whether there are unforeseen consequences of the searches. We all want to know what the big picture is, and we can only do that if we have consistent records. The noble Lord said that we should trust schools to keep their own records, but there is a contradiction here—and also with the requirement under the Equality Act that he talked about. I will return to the issue about what schools should be required to do in terms of keeping records to comply with fairness and meet the requirements of the legislation. I do not think that we have fully fleshed that out.
Baroness Walmsley
My Lords, this has been an excellent and wide-ranging debate. I thank all noble Lords who contributed, and in particular the Minister for his reply. Before I make a few comments, I will make one correction. I mentioned that it was the Association of Colleges that was against the statutory requirement for training: I meant to say that it was the Association of School and College Leaders. I am sure that Hansard in its usual inimitable manner will correct that for me.
I will pick up on a few disparate points from the debate. First, a number of noble Lords raised the issue of what would happen if a child were wielding a knife. I believe that a teacher or anybody else in the room would have a common-law right to intervene to protect themselves or any child there: they would not need these searching powers. Anyway, you do not need to search for something that is in full view.
I thank the Minister for his assurance that no teacher will be pressurised into doing a search. I am aware that this was in previous legislation. However, the Government are repealing a number of checks and balances in previous legislation, so I was a little concerned that they might be repealing that.
I very much agree with the points made by my noble friend Lady Benjamin about stop and search. She made her points very passionately. These are things that we must bear in mind. I asked for a very detailed review so that we can make sure that no discrimination is occurring. Of course, if the incidents are reported and recorded, as the noble Lord, Lord Sutherland, suggested, it will be very easy to collect the information. I know that the Government are trying to ease the bureaucratic burden on schools and are not implementing the duty in the previous Bill to record all incidents, but incidents of this nature are really quite serious and perhaps it should be suggested in guidance that best practice should dictate that these sorts of things are recorded under the school’s judgment.