Academies Bill [Lords]
Debate between Lord Coaker and Graham Stuart(14 years, 4 months ago)
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Vernon Coaker
That is right, and my hon. Friend’s comments highlight that we are not trying to make a party political point. We want to ensure that that is the case for local authorities of all political colours and types; that is fundamental and crucial. As I have said, however, I accept that it may not be possible to do this today, as the lawyers will, no doubt, need to check it.
Mr Graham Stuart
I think that I share some of the shadow Minister’s concerns. Low incidence is not about the acuteness of the need; it is about the fact that it is pretty rare. One of the risks of having funds devolved to the individual academies is that they may see this rare condition only once every five years, when suddenly a pupil turns up out of the blue with that need. That is why there is an issue about the difference between where the resource lies and who has the incentive to deliver the service. We need reassurance as to how we will have the system and incentives in place to ensure that, without the Secretary of State having to intervene at a local authority level to assess the whole authority’s failing, the needs of the parents and child concerned are met and there is not a big fuss in doing that.
Vernon Coaker
I totally agree, and the hon. Gentleman makes his point very well. However, I am unclear about the legislative mechanism that we will use to try to stop bad situations arising. I cannot be sure what it will be without there being something either in the Bill or, perhaps, in statutory guidance.
Vernon Coaker
That is an extremely interesting and good point. As I say, the problem is that there are a number of points like that. That one would be worth testing with an amendment to see where it is catered for in the Bill or, if the Bill does not cater for it, where it is catered for in any document relating to the Bill. For example, I think I am right in saying that the new model funding agreement does not contain a requirement for there to be a teacher responsible for children in care, whereas the old funding agreement did contain one. If I have got that wrong, I will correct it. All sorts of little changes sometimes take place in the documents, letters and guidance that go along with such Bills. The changes are sometimes not debated to the extent that they need to be and they then turn out to be crucial. Even Ministers get to the point where they try to do something and are then told, “You can’t do that because section (c) on page 48 of the guidance that you passed says you cannot.” They find that a little change that they had not properly noticed, which may have been implemented with good intent, has unintended consequences.
The hon. Member for Crewe and Nantwich (Mr Timpson) was right to make the point that he did. One of the organisations that I shall refer to in a minute has made representations to us about how we ensure that the needs of children in care and of children with other associated needs are met within the new academy model arrangements that the Bill proposes. All sorts of questions like this arise, particularly if we strip out, as the Bill does in essence, the role of the local authority and devolve the funding to individual school. One unanswered question goes to the heart of the Bill: what is the co-ordinating mechanism at a local level to try to ensure that some of these things happen? That is not in place, and that is a real problem.
Mr Graham Stuart
On a slightly different track, is the shadow Minister aware of evidence that, despite the vast increase in the number of learning support assistants, the more time children with special educational needs spend with learning support assistants and the less time they spend with a teacher, the worse is their learning experience? One of the dangers of a centrally co-ordinated system is that schools that challenge a child’s being taken off for special support might deprive that child of being in the classroom with the teacher and, perhaps, having a better opportunity to learn. We must get the balance right between ensuring provision and not having a monolithic delivery that stops innovation, particularly for the most vulnerable in our society who are too often failed.
Vernon Coaker
I do not disagree with that. Again, the freedom for a school to determine the appropriate mix between teachers, teaching assistants and other staff as well as the appropriate delivery method is a matter for the school. The Chair of the Select Committee is right to say that. However, it does not negate the fact—I think he was making this point, too—that alongside that there is a need for some sort of co-ordinating mechanism. He is quite right that there is a need for balance and there will be debate and discussion about where that balance should be and where the line should be drawn. However, part of the problem is that, as I said yesterday, this is a bit of a leap in the dark. We are almost being asked to take a leap in the dark and being told, “Don’t worry, it will be okay.” There are some fundamental questions that Ministers have been unable to answer, even though they have the best of intentions, because the Bill is permissive and just says, “Well, we’ll allow this to happen but we are not quite sure where it will go.”
A number of concerns were raised by different organisations. We have heard concerns from the Adolescent and Children’s Trust about children in care and about how these services will be met. It is seeking assurances about looked-after children and young people in academies, and it says that it wants recognition from the Government that there is a need for a local agency to assess need and to plan and cost education support services and that necessary resources must be not only identified but ring-fenced.
The Association of Educational Psychologists has also written to us, extremely concerned about some of the changes to local education funding and about how we can ensure the protection of educational psychologists if all the money goes to the schools. The National Autistic Society has made many of the same points about protecting young people in schools. TreeHouse, another charity for autism, is concerned about what it will mean if funds and resources are devolved to individual schools.
Then we come to funding. The Local Government Association states in its briefing, which all Members will have received, that
“90% of funding for schools goes, via the local authority, directly to schools with the remainder allocated back to schools following consultation with schools through the local Schools Forum…Around 20% of this ‘central spending’ goes to private, voluntary or independent nurseries, and the majority of the rest (60%) is used to provide services for pupils with special educational needs, and those who are excluded from mainstream education…In the debate around the advantages to schools of seeking academy status much has been made of the advantage to schools of retaining this 10% of ‘central spending’. However, it is important to understand that this is funding to meet the need of the pupils with the greatest needs. It is crucial that this funding is distributed in a way that does not unfairly benefit academies over maintained schools.”
I do not know whether hon. Members have had a chance to look at the Government’s impact assessment, but tucked away, where it states that local authorities will face a reduction in the moneys that they receive for the provision of such services as it will be distributed to schools, it states the assumption that the savings to local authorities in administration costs will be negligible. So, although they will have fewer resources to provide for special educational needs in an area, they will not make any savings from an administrative point of view either.
It is also totally unclear exactly how all this will be worked out. What will a school that chooses to become an academy receive? I know there is a ready reckoner on the Department’s website, but will the Minister explain how it works? [Interruption.] That was not done yesterday: we asked, but there was no time to do it, so I am asking again today because I think we would all like to know how the ready reckoner works so that schools can understand what they will receive.
What proportion of the money that those schools receive would have gone to local authorities to provide, centrally, services for children with special educational needs? What proportion of the additional money they receive will go to schools and will not be retained centrally by local authorities? How will that be worked out given that every school that is fast-tracked to academy status is outstanding and has, as the Centre for Economic Performance has said, lower numbers of pupils with SEN?
How will schools that have a lower incidence of SEN and that apply to become academies be funded? Will it be on a per pupil basis or a needs basis? If schools are funded on a per pupil basis rather than on a needs basis, big schools with a low incidence of SEN that convert to academies will receive exceptionally high amounts of money that would previously have been retained centrally to provide SEN services to the pupils and children across the local education area who needed them. Why did The Times publish an article on 12 June saying that there was considerable confusion among local authorities and schools about how much money schools would receive? Why are some local authorities saying that when they add together all the amounts that the ready reckoner comes up with as being distributed to schools on the basis of centrally provided services the total is sometimes more than they receive? We need some explanation from the Minister about that.
Academies Bill [Lords]
Debate between Lord Coaker and Graham Stuart(14 years, 4 months ago)
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Vernon Coaker
This is a Committee stage, but the hon. Gentleman has retreated into a Second Reading political statement. I was asking what evidence the Government had presented to Parliament—[Interruption.] It is not for me to present evidence. I am not the Government. I am asking the hon. Gentleman what evidence the Government have presented to persuade Parliament to accept the Bill. How have they demonstrated that primary academies would deliver what he wants? That is the issue. I do not agree with the proposal, so it is not for me to say what evidence there is in favour of it. The hon. Gentleman is a Back-Bench Member of the Government. He may progress further—I do not know—but his responsibility now is to defend the Government and to explain how Government policy will improve standards.
Mr Graham Stuart
The Minister makes a reasonable point about the quality of the evidence that the Govt should provide when presenting proposals, but I am struck by the way in which the Opposition have retreated. They are no longer telling the truth about the fact that, in 2005, the then Prime Minister said that all schools wanted these freedoms. The Government proposed a managed move, but the aim was to provide these freedoms everywhere.
It is as if the whole new Labour era is ending. The thaw is over, and we feel the cold ice of a monolithic centralised state system forming over us once more. Is that really the vision seen by the shadow Minister, of whom I have always had a high opinion? Is he really reverting to his Socialist Educational Association roots?
Vernon Coaker
It is never as simple as yes or no.
The hon. Gentleman and I have worked together a great deal over the last few years, and no doubt we will work together more over the next two or three years, or however many there may be. As I have made clear on a number of occasions, I have not said that I am opposed to academies. That would be hypocrisy of the highest order, given that I agreed to the establishment of a number of academies, and given that many of the academies that will open in September are academies to whose establishment I agreed.
I think it right to seek to increase the number of academies when that is appropriate, whether they are primary or secondary schools, although I prefer all-through academies. However, I do not think it right to fast-track outstanding schools to academy status, and to allow academy status to primary and special schools when there is no real evidence in favour of such action.
It is not a case of retreating in the direction of the Socialist Educational Association, many of whose members would oppose any academy. I do not oppose every or any academy. What I propose is a third way, which has been proposed by neither the Government nor the Socialist Educational Association but which, according to some famous politician, makes it possible to find a balance between two alternatives in order to move forward.
I want to ask the Minister a few more questions. What arrangements will there be for primary schools that are members of federations to apply for academy status, and what are the implications for each school? Can schools apply as a group, or must they apply individually? As I said, there are important questions to be asked about how academy status will work for nurseries, and about the arrangements for collaboration and funding. How will things be arranged between a local authority and a primary school if the authority has given large amounts of money to the school? How does the Minister expect small rural schools to become primary academies? What criteria will apply to them, as opposed to primary schools in the middle of cities?
Those are serious questions, and I know that the Minister will reflect on them seriously. However, as in the case of special schools, I find it slightly regrettable that we do not already know many of the answers. As I have said, the evidence base is fairly poor, given the magnitude of the decisions that we must make.