Education Bill

Baroness Massey of Darwen Excerpts

Thursday 30th June 2011 Grand Committee

[Baroness Massey of Darwen]

My Lords, I follow on briefly from what the noble Lord, Lord Elton, has just said. I have experience of school councils working extremely well. Not only do they discuss the usual problems of boys’ toilets, dining, eating snacks and so on but they discuss discipline issues. I am a governor at a primary school and the youngest children are involved in deciding on the school rules and discipline. As a result, a contract is passed down to each classroom regarding how the children should participate and how they should behave in the school. I am glad that the noble Lord mentioned school councils. I think that school councils should be included somewhere in the Bill in relation to consultation with school pupils. In my experience, that is one of the best ways of consulting pupils in deciding what the school rules should be and how they should be applied.

[The Parliamentary Under-Secretary of State for Schools (Lord Hill of Oareford)]

My Lords, before I respond to the points raised in today’s debate, I should like to pick up briefly on the issue that we were discussing when we ended our session on Tuesday, including the points raised by my noble friend Lady Walmsley and other noble Lords about training in relation to searches. In the intervening day and a half, I have reflected on some of those points and I agree that some additional advice to schools would be useful. Therefore, I am happy to commit to recommending to head teachers in guidance that, when they designate a member of staff to undertake searches, they should actively consider whether that member of staff requires any additional training to enable them to carry out their responsibilities. This revised advice will be published in July before the start of the summer holidays.

So far as concerns today’s amendments to and discussion on Clause 2, the main purpose of the clause is to try to give schools as much freedom as possible to respond to their own circumstances and challenges. We know that under the existing legislation head teachers and authorised members of school staff can search for knives and weapons, alcohol, illegal drugs and stolen property. The current situation, as set out by my noble friend Lady Walmsley is that the person conducting the search must be the same sex as the pupil being searched and the search must be witnessed by a member of staff. Where practical, the witness should also be the same sex as the pupil. That is where we are now.

With regard to the provisions in Clause 2, we propose to extend these powers to allow schools to search for any article that they suspect has been or could be used to commit an offence, cause injury or damage property. It will also allow them to search for items banned by the school rules where they have been identified in the rules as an item which may be searched for.

In addition to adding to the range of items which may be searched for, the provisions will make changes to how searches can be conducted, as my noble friend said. They will allow searches to be carried out by a member of staff who is of the opposite sex to the pupil being searched and also searches without a witness. I emphasise that these changes are subject to what we believe to be strict safeguards. Searches can take place only where the searcher reasonably believes that there is a risk that serious harm will be caused to a person if they do not conduct the search immediately. Therefore, these powers could not be used to search for innocuous items banned under the school rules; there must be a risk of serious and imminent harm.

Amendments 25, 13 and 14 relate to searches being conducted under the school rules provisions. Perhaps I may briefly set out our intention behind this provision and the safeguards here that I think will help to guard against it being used inappropriately.

Our intentions in including a specific power which enables teachers to search for, and confiscate, any item identified in the school rules are to enable teachers to deal effectively with items which, although not harmful, can still cause problems in the school.

The current powers to search pupils without consent are already subject to a number of safeguards. Searches can be carried out only by the head teacher or someone authorised by them to search; they can take place on school premises or off the school premises only when the member of staff has lawful control or charge of the pupils; and they can be conducted only if the staff member has a reasonable suspicion that the pupil is in possession of a prohibited item. The pupil cannot be required to remove any clothing, other than outer clothing.

The school rules provisions introduced by this Bill will be subject to additional safeguards. First, an item can be searched for only if it is identified in the school rules as an item that can be searched for; and secondly, the school rules must be determined and publicised by the head teacher in accordance with Section 89 of the Education and Inspections Act 2006 or, in the case of academies, in accordance with regulations that mirror Section 89. That point was raised by the noble Baroness, Lady Jones of Whitchurch. This means that the head teacher must publicise the school behaviour policy, in writing, to staff, parents and pupils at least once a year. Furthermore, the use of force is explicitly excluded from this provision. These specific requirements will help to ensure that teachers, pupils and parents will know which items are subject to searches. The power is, in the Government’s view and in that of the Joint Committee on Human Rights, compatible with convention rights.

I turn to the test of reasonableness and the points raised by my noble friends Lady Walmsley and Lord Elton. I understand the thinking behind the amendment moved by my noble friend Lady Walmsley; she is obviously concerned that schools could include frivolous or unreasonable items in the list of items that can be searched for. While I do not believe, and I do not think that she would believe that in practice governing bodies and heads would be likely to behave in a frivolous way, we think that there are existing safeguards in place which govern how schools set their school rules. That relates to the question posed by my noble friend Lord Elton. These are set out in Sections 88 and 89 of the Education and Inspections Act 2006. Section 88 requires that the governing body of a school must make a written statement of general principles from which the head teacher will draw up the school’s behaviour policy, which includes the school rules. The governing body is required under Section 88 to consult parents and pupils as part of this process. I hope that in some way that will reassure my noble friend. The governing body is also required, when making the written statement of general principles, to have regard to guidance issued by the Secretary of State. There is also a legal requirement on head teachers to have regard to this statement in determining the school rules and to bring the school’s behaviour policy to the attention of staff, pupils and parents at least once a year.

The Government intend to use that guidance, among other things, to explain the nature of the obligations of necessity and legitimate aim under Article 8.2 of the European Convention on Human Rights. As with public authorities generally, the head teacher in drawing up the school rules would have to act reasonably. So I hope overall that my noble friend may accept that there are safeguards in place and that with those safeguards we should feel more reassured that we can trust schools to judge which items they need to search for in the context of their particular school.

I turn to the content of electronic devices and the examination and deletion of what might be on them. Clause 2 would permit the member of staff who seizes an electronic device to examine any data or files on the device, if they think there is good reason to do so. Following such an examination, the person may erase any data or files from the device if they think there is good reason to do so. I think that this point was accepted earlier in the week. There is agreement that the misuse of mobile phones and other electronic devices is a growing problem in our schools. According to Bullying UK, around one in seven young people have been threatened or harassed by mobile phone.

A study by the Association of Teachers and Lecturers published last year in March, suggested that one in seven teachers had been the victim of cyber-bullying by pupils and parents. I was struck that the Association of School and College Leaders welcomed this provision in its evidence to the public evidence session for this Bill in the other place as a way of schools dealing with cyber-bullying without involving the police, which is an important point. We do not want to get to the point where schools have to call the police to deal with matters when they could deal with them with some common sense and in a safe and orderly environment within the school.

I understand the concerns of my noble friend Lady Walmsley that the provisions in the Bill might give members of staff carte blanche to examine or delete the content of a pupil’s mobile phone. But we believe that by requiring the member of staff to have a good reason before doing so, and to have regard to guidance, the clause protects pupils from random searches of their property and provides a robust test which must be passed before a pupil’s personal information on his or her mobile phone can be deleted.

I did, however, listen to what my noble friend said and obviously like her read the comments from the JCHR. In order to address those points, I think we should make more explicit in our guidance that any examination or erasure of data or files must be justified. By this I mean that the guidance should make it clear that the staff member must reasonably suspect that the data or file on the device in question has been, or could be, used to cause harm, to disrupt teaching or break the school rules in some way. I can also commit to the guidance providing advice on the circumstances in which data can be erased and when that can be handed to the police. I hope that that provides my noble friend with some reassurance.

My noble friend also raised the point about the need to respect the private life of the pupil and the pupil’s family, and on the circumstances in which it is appropriate to involve the parents of the pupil. I understand her concern that pupils are protected from any unnecessary intrusion into their private lives. The Secretary of State’s guidance will make it clear that any examination or erasure of data or files must be justified. It will also explain to schools the nature of their obligations under the ECHR and emphasise the importance of respecting a pupil’s personal information and right to privacy.

As my noble friend Lady Walmsley suggested, I would be happy to share with her and other Members of the Committee who would be interested a draft of the Secretary of State’s guidance in advance of Report, so that she can be assured of its helpfulness and we can benefit from their expertise.

I hope that that reassures noble Lords that checks are in place to ensure that these powers could not be used inappropriately. I have committed to include additional safeguards in guidance and to share that guidance as the Bill progresses through this House. On the basis of those reassurances, I hope that my noble friend Lady Walmsley will feel able to withdraw her amendment.

--- Later in debate ---

[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 Massey of Darwen]

My Lords, I should like to know where the parents are in this. If I were the parent of a child who had been searched at school by a same or opposite sex—but particularly opposite sex—teacher, I think I would be mightily cross if I had not been informed. If I were a head teacher, I would hate to be on the receiving end of a parent’s anger at their child being searched. The witness should ideally be a parent. Has that been thought of in the Bill? Are parents excluded from this procedure? It is an issue that should be considered.

[Baroness Benjamin]

My Lords, Barnado’s deals with a lot of children who have been groomed for sexual acts. If a child who had gone through that kind of procedure were searched at school, it would have a devastating effect on them. I remember once launching one of our projects for Barnardo’s—I declare an interest as one of the vice-presidents. I put my arm around a young girl because I always like hugging people, but when I did that she flinched like an animal. I wondered why and the counsellor told me that she had been groomed since she was a 10 year-old child. She was now 15 and people showing her any type of affection had a devastating effect on her. Imagine what that girl would go through if she had to be searched at school. I fully support my noble friend Lady Walmsley’s amendment. This is something that should be carefully thought through before we put it into the Bill.

--- Later in debate ---

[Baroness Brinton]

I also support the comments made by the noble Lord, Lord Laming. I confess that in the mid to late 1990s, I was chair of education in an authority where we had such an incident before the Act came in and there was a duty to co-operate. I remember at the time the deep shock as a fairly new councillor and certainly as a new Cabinet member at understanding that we had completely failed. The system had failed. I welcomed the Act when it came in.

I also echo the points that the noble Lord and others made—the noble Baroness, Lady Howarth, in particular—about a number of cases that have been reviewed since. I would say to my noble friend Lord Phillips of Sudbury that I do not think you need to take a school to court. All you need to do is look at the serious case reviews where recommendations have been made to schools that have failed to ensure that follow-up happens.

I am sure that the many schools that want to co-operate will continue to do so. The problem is with the small number that do not believe it is in their interests. I am sorry to go back in time, but I remember some grant-maintained schools in the 1990s feeling that it was an absolute liberation to be free of the local authority and doing everything that they could not to co-operate with it. I fear that we might end up with that sort of encouragement again among academies and free schools were we to lose the duty to co-operate now. It is vital that we retain it.

I have one further point that is not about safeguarding in the sense that much of this debate has focused on. In many other areas local authorities, not just upper-tier authorities with responsibility for education and social services but district and borough councils, should have a duty to co-operate for services that children receive across the board. That has to include library resources, playgrounds and provision of school places at a strategic level. Where more schools can do their own thing and there is no longer a need for an admissions forum, a duty to co-operate at the highest strategic level to ensure that there is the right provision for children in an area is absolutely vital.

[Baroness Massey of Darwen]

My Lords, I want to make a small contribution to this excellent debate and thank the noble Lord, Lord Laming, for his introduction. I am a great admirer of the noble Lord. The Climbié report that he so admirably produced led to a great deal of rethinking on vulnerable children.

Some of the issues that he and others raised are about not being able to educate without looking at the whole child—a point made by the noble Baroness, Lady Howarth, and a few other noble Lords. I also thank my noble friend Lady Morris for her potted history of education, which was very useful.