Primary Schools: Nurture and Alternative Provision

Ben Bradley Excerpts

Wednesday 13th February 2019 Westminster Hall

[Ben Bradley (Mansfield) (Con)]

I beg to move,

That this House has considered nurture and alternative provision in primary schools.

It is a pleasure to serve under your chairmanship, Sir Christopher. I am grateful for the opportunity to debate this issue. I am also grateful to colleagues who have come along. On what is a standard Brexit day in the House, an education debate might be nice light relief for us all.

I got into politics to talk about education. As somebody who always wanted to be a teacher before accidentally finding myself here, I have the privilege of working on the Education Committee, which has undertaken—before my time on it—interesting inquiries on both alternative provision and the benefit of early intervention for the life chances of young people. It is important that we get the foundation of our education system right. In my view, education should always be our priority; without it, nothing else works. Without the right support early in children’s lives, the challenges and costs only grow over time.

This debate covers two specific areas: “nurture care”—I am grateful to nurtureuk for the information it shared with me on that—and alternative provision, each of which I will address in turn. Nurture care begins at home but is a crucial aspect in the early years of schooling, especially in deprived areas and for troubled families. Across my constituency, there are relatively high levels of family breakdown, mental health issues and deprivation, which is a perfect storm of challenges for both parents and children.

Those challenges have an impact on educational attainment. In Mansfield, 27% of children start primary school without the core abilities needed to succeed, including speech and language skills. I have seen this at first hand. Barely a week goes by when I do not visit a local school. I have seen five-year-olds still in nappies, unable to communicate properly, not knowing what a book is or how to hold one and unable to settle in primary school. The Government introduced free childcare, starting for two-year-olds, aimed at supporting such children sooner, but inevitably it seems that those most in need are the ones who do not take it up.

Children who have a good start in life tend to do better at school, attend lessons regularly and form meaningful friendships, and they are significantly less likely to offend or experience mental health problems in later life. Nurture care in schools ensures that children engage with more supportive experiences, giving them the necessary social and emotional skills to succeed and to develop resilience.

[Emma Hardy (Kingston upon Hull West and Hessle) (Lab)]

The hon. Gentleman is making an incredible speech. I am proud to serve with him on the Education Committee. On the importance of nurture groups, does he agree that schools across our constituencies could be encouraged to introduce them if their extra efforts to be inclusive by doing so could be somehow acknowledged in Ofsted reports?

--- Later in debate ---

[Ben Bradley]

I thank the hon. Lady for her kind comments. I absolutely agree. Recent Ofsted proposals to look more at the holistic support within schools, and not only at academic results, are positive. However, that could certainly go further, and this kind of provision could be included in that.

Mansfield has some great examples of schools that work to provide nurture care for their pupils. I particularly mention Forest Town Primary School, which supports its most vulnerable pupils through a nurture group. That group is almost a school within a school, providing holistic care to help children engage with education early.

[Mr Jim Cunningham (Coventry South) (Lab)]

Last year, I went round several Coventry schools. Some were particularly short of resources to employ what we might call specialist teachers, for kids who have special needs. We found the same thing in nursery provision in some of the most deprived areas in Coventry. I do not want to get too political, but does the hon. Gentleman agree that the Government should try to address that somewhere down the line?

[Ben Bradley]

I agree. There is certainly a case to be made for specialist training and for changes to the way we train teachers, which I know from discussions with Education Ministers that the Government have touched on.

That Forest Town centre is a separate building on the school site, allowing young people who find mainstream education challenging in those early years to be in a quieter, more personal and supportive environment, and to slowly build up to the full experience. Some have special educational needs or challenging situations at home, but all are able to grow at their own pace with extra support. It is a bit like alternative provision, but it is on site and is therefore more flexible, allowing the children to move in and out of that mainstream setting and to have a space to call their own within the school. Equally, they are not excluded from their social networks in the same way as if they were sent to off-site provision. The teachers at Forest Town do a fantastic job, and their hard work and supportive care makes a huge difference to those children’s lives.

[Emma Hardy]

The different curricula offered to children in nurture care are more bespoke and suitable for those children. Does the hon. Gentleman agree that the progress of those children should therefore not be judged by the same measures as their peers? They are getting a bespoke and individualised experience.

[Ben Bradley]

I agree; there has to be some leeway. We often talk in this place about people’s aspirations for the future. For some people, that means undertaking A-levels and going to university, but for others it just means being able to live a relatively normal life, to get on in school and get into employment; the simpler things. There should be an acceptance of that in the way that we judge schools more broadly.

[Robert Halfon (Harlow) (Con)]

I thank my hon. Friend for his work on the Education Committee. I note that several Committee members are here. On his point about on-site organisation within a school, he will know that the Committee’s alternative provision report suggested that, whether it is learning support units or other organisations within schools, it is important for teachers to be properly trained to deal with children who have difficulties. At the moment, there are often supply teachers or temporary teachers in those organisations, who do not necessarily have those skills, which can make a world of difference. As he describes, it is so much better for a child to stay within the main school and to move between the mainstream unit and the separate unit, depending on his or her difficulties.

[Ben Bradley]

I thank my right hon. Friend for that intervention and particularly thank him and the other members of the Select Committee for coming along today. I absolutely agree—I will touch on this later—that it is important that this is not exclusion from the classroom; it is a nurturing and supporting environment to help the children to succeed.

[Jim Shannon (Strangford) (DUP)]

I congratulate the hon. Gentleman on initiating the debate. The fact that so many hon. Members have intervened indicates our interest. Like the hon. Member for Mansfield (Ben Bradley), I believe that there is a real need for the short-term, focused intervention that is found in nurture groups for children with particular social, emotional and behavioural difficulties. Does he agree that we need to increase the availability of nurture groups, which will allow individual children to reach their potential, but also ensure that teachers are able to better spread their time and energy throughout classes in which children who are unable to learn in a typical classroom set-up are being taught in a dedicated way that benefits everyone?

[Ben Bradley]

I thank the hon. Gentleman for that intervention. Later I will touch on some statistics from Northern Ireland that I hope he will find interesting. I agree with him. The reason why the provision at Forest Town, in particular, works is that although it is in a separate building and environment, it is included within the school. That allows the teachers to engage with it and children to dip in and out, and allows the integrated and supported approach that the hon. Gentleman describes. It is incredibly beneficial.

The earlier we can get children and families engaged with nurture care, the better. Children learn best when they have strong self-esteem, a sense of belonging, and resilience. Nurture groups were first developed in London in 1969 by educational psychologist Marjorie Boxall. Large numbers of young children were entering primary school in inner London with severe emotional and behavioural difficulties, which led to high demand on special school places in particular. Marjorie Boxall understood that these children had not received early support and were not ready to meet the demands of primary school. As a response, nurture care was developed, and it has consistently proved to be an effective way of helping disadvantaged children.

Nurture groups tend to offer short-term, inclusive and focused intervention. The groups are classes of between six and 12 children, supported by the whole school—not just by specialist staff for that particular site, but by teachers from across the school and by parents, who are often included in the provision. Each group is run by a couple of members of staff. They assess learning, communication and emotional needs and try to break down the barriers to learning in the mainstream environment.

Crucially, the children who attend nurture groups remain an active part of their main class and their school. They are not excluded; they are not taken off site into alternative provision. They are able to engage in the classroom with their peers wherever that is possible and wherever they are comfortable. I will touch on this again later, but I strongly support programmes that allow children to remain in mainstream schooling to engage with their peers. That is better for the child and for the taxpayer wherever it is possible.

The relationship between staff and pupils in nurture groups provides a consistent and supportive example that children can base their own behaviour on. For so many children, role models are simply vital, and this caring approach can be hugely successful. It engages children with education, giving them a positive and enjoyable learning experience, and it can help where children do not get the same support at home.

Nurture groups have been working successfully for more than 40 years right across the UK. That statement is supported by a number of studies. Last year, in my constituency, I was pleased to meet nurtureuk, which is the national charity supporting this whole-school intervention. Its figures show that this provision works. One school in Kent running a nurture programme saw exclusions drop by 84%, which I am sure that hon. Members will agree is a remarkable figure.

A 2016 Queen’s University Belfast study also supports the effectiveness of nurture groups. It evaluated the impact of 30 such groups in Northern Ireland and found them to be cost-effective. In addition, although 77% of children who entered nurture groups exhibited difficult behaviour, that had reduced to just 20% at the end of the programme.

[Emma Hardy]

I thank the hon. Gentleman for giving way again. Does he share my concern in this respect? Nurture groups sound absolutely fantastic and definitely suitable for the children. I wonder whether we would find nurture groups and the approach of looking at the causes of that behaviour in schools that have zero-tolerance behaviour policies.

[Ben Bradley]

I thank the hon. Lady for that intervention. The point that she raises may not be one for discussion now, but it is certainly interesting. There absolutely does have to be a balance. I am a firm believer—having been to a variety of schools, with different atmospheres—in discipline and teaching children the value of that, but equally in respecting the needs particularly of vulnerable children in cases such as these. I do not think that nurture care has to be a formal thing, but I do think that there has to be that flexibility of approach to give a more bespoke experience to children who need it.

[Jim Shannon]

The hon. Gentleman is very kind; he has been most gracious to us all in taking our interventions. He mentioned Queen’s University. I made a contribution in a debate last year and used the statistics to which he referred. When it comes to summing up and integrating all the information from across the United Kingdom of Great Britain and Northern Ireland, there are many examples of good practice—the hon. Gentleman has used one from Belfast—and perhaps the Minister could take them on board.

[Ben Bradley]

I am sure that my right hon. Friend the Minister will do that. It is important to weigh up all this evidence when we are deciding where to put our time and energy in education. I certainly think that primary school and the early years environment should be a key priority.

Over the last three years, school exclusions have risen by more than 40%. If there is ever a time to invest in early intervention and nurture care, it is now. This early support, if properly managed, can set children up for their whole lives at school. Some will continue to need help, and it is especially important that those children who have needed this low-level, ongoing support throughout their time at primary school do not then lose all this help when they go to secondary school; that transition is vital. We can be more inclusive, support children to stay in school, and reduce exclusions, but we have to invest in that both financially and with the time and training for teachers.

The links between school exclusion and social exclusion are well known. Children who are excluded from school are far more likely than their peers to have grown up in the care of the state or in poverty, and they go on to have much higher rates of mental illness and are more likely to end up in prison. That cycle needs to be broken somewhere. These children are the most vulnerable in our society and need greater support. We need to do more to provide a supportive environment and to ensure that our education system provides a positive, safe and reliable space for the most vulnerable children.

Nurture care can turn around a child’s life and help secure a stable future in adulthood. This is not a debate about financial efficiency, but I would like to highlight a 2017 Institute for Public Policy Research report, which argued that every cohort of permanently excluded pupils will go on to cost the state an extra £2.1 billion. The Government should support nurture programmes because that is the right thing to do, but I also argue that spending on nurture care is one of the best-value options for education expenditure. It is proactive, preventive support. Just as we are looking at prevention in the NHS long-term plan, so we should be looking at it in education.

[Emma Hardy]

The hon. Gentleman is making an absolutely excellent speech. It is quite surprising for me to find myself agreeing so wholeheartedly with a Government Member, but the point that I would like to make is that there is not just a financial consideration, but an accountability consideration. Even if schools have the money that is needed to provide nurture care and even if, as the hon. Gentleman rightly suggests, they would have the money that would be used for exclusions to provide this early intervention and care, schools still might not want to do it unless the accountability system is changed to recognise this as good, worthwhile work.

[Ben Bradley]

I absolutely agree. We mentioned briefly the changes in Ofsted’s approach that I think are positive. We could do more to highlight some of the good practice nationally and to incentivise schools to do this. We talk a lot in the Select Committee about special educational needs and disability provision. I think that schools would love to have more independence in relation to how they provide this kind of support. I think that, if it came with the right accountability and the right financial support, teachers would embrace it.

At this point, I would like to mention the Select Committee’s recent report entitled “Tackling disadvantage in the early years”, which notes that there is currently not enough of a clear strategic direction in early years education. The report argues that the Government have to remove barriers to progression for early years teachers to encourage the recruitment and retention of a skilled early years workforce. We need experienced teachers who can provide effective nurture care and help with the transition from nursery to primary school. I welcome the recent announcements on recruitment and retention from Government, which have also been welcomed by the schools that I have visited since. Similar incentives and support in relation to early years could be equally helpful.

The report praises maintained nursery schools for ensuring excellent outcomes for disadvantaged children and argues that we need to fully fund maintained nursery schools by the end of the financial year. This is a debate about primary education, but the earlier we can start support programmes for vulnerable children, the more effective that intervention will be. As one of my constituents working in the nursery sector recently said to me:

“The early years of life are the most important of life, the building blocks for their future, miss these bricks and it all comes tumbling down.”

I thought that that was quite a poetic way of describing it.

The report discusses the importance of a strong home learning environment and of reviewing the evidence in relation to interventions that support parents and families in creating a positive home learning environment. It is important that we continue to review best practice and share information about the forms of nurture care that are the most effective, and that they engage with parents to help to provide that.

Let me turn to alternative provision more broadly. It is often seen as somewhere only the worst behaved pupils should go, but alternative provision is much more than that and, done properly, can provide excellent education. It is important to remember that alternative provision also covers education for pupils who cannot attend mainstream education for a variety of reasons, including health reasons, and is not only for those who have been excluded from school. It includes pupil referral units, alternative provision academies, free schools and other settings, and there are some excellent examples of settings that provide tailored education to the pupils who have struggled the most in mainstream education. The alternative school in Accrington, for example, offers a holistic and flexible full-time school experience, designed to respond to the needs of young people who are unable to remain in mainstream school. It caters for up to 90 pupils a year spread across three campuses in the north-west. It specialises in a curriculum designed specifically for people aged eight to 18 who require that smaller, more personalised and individual approach to their education. I think that is a positive path and example to follow.

Alternative provision, when done right, works well, but too often it is seen as a dumping ground for difficult children—a way to get them out of a school. We need that narrative to change. As I noted earlier, I believe that schools should try to keep children in a mainstream setting where possible. The correlation between exclusions and problems in later life is significant. I have raised concerns previously with the Secretary of State in the Education Committee about interventions such as isolation.

[Emma Hardy]

rose—

[Ben Bradley]

I know the hon. Lady feels strongly about that. I will come to her in a second. When done right, such interventions can be helpful, but too many reports suggest that children are taken out of a classroom not to be supported, but to be kept out of the way.

[Emma Hardy]

I was going to intervene just before the hon. Gentleman mentioned isolation rooms. One of the points in our Education Committee report was about buddying a mainstream school with an alternative provision school, so that teachers can share knowledge and expertise. I know that some initiatives are now happening, whereby mainstream teachers can teach in special schools for a while, and vice versa, so that they have that shared knowledge.

The hon. Gentleman is absolutely right about isolation rooms. There is a world of difference between nurture and an isolation room, where children get no education whatsoever, but are made to sit there with a sheet to occupy them, not educate them, yet we wonder why the children have not made any progress at the end of that period.

[Ben Bradley]

I agree with the hon. Lady, and the Government have promoted partnership working between schools in some ways. We see that work between schools in the independent sector and comprehensives. I welcome that and I think teachers would welcome the opportunity to get a broader experience, and the training and development that comes with that.

Providing proper support to children, by not isolating but helping them, would be more effective and cheaper in the long-run than exclusion, but schools need investment to be able to do that. I would like to see alternative provision run more along the lines of a nurture care programme, where possible. Obviously, I acknowledge that separate settings can be the most appropriate option for some pupils. However, where possible, it would be good to do more to include, rather than exclude, pupils who are struggling in mainstream education. I would also like to see a focus on reintegration. Just as nurture groups tend to work as a short-term approach to alternative provision, rather than being a final, permanent destination for pupils, there should be a way of tailoring support with a view to bringing that child into mainstream education, at least for part of the time, further down the line.

The figures show that more than 77% of pupils in AP settings have special educational needs, so it is important to look at special educational needs and disability provision, and how it can effectively help pupils at risk of dropping out of mainstream education.

[Robert Halfon]

My hon. Friend mentioned children with special educational needs. Does he agree that there is a significant problem when something like 4,000 children with special educational needs are excluded each school week? Unfortunately, they often go into a postcode lottery of poor alternative provision, if they get any at all.

[Ben Bradley]

I absolutely recognise that challenge. Our existing inquiry on SEND in the Education Committee highlights the postcode lottery element and the confrontational experience that many parents face in trying to get the support that they need. While it seems that a lot of those involved have recognised the will of the legislation and the ideas behind it to be right, there is a practical barrier, which causes problems so that it does not always offer the support that it should.

The Government’s vision for alternative provision, outlined last spring, was largely positive, with a commitment to ensuring that it becomes an integral part of the education system, with high-quality outcomes for pupils. It is positive that the Government increased funding for higher needs and alternative provision in Nottinghamshire. The budget has risen from just shy of £60 million in 2017 to £64 million this year. That is welcome and it will have a positive impact on pupils in my constituency. However, there is still far more to do. The SEND challenge is probably the biggest problem we face in our education system. It is not simple to solve, and it affects mainstream schooling and budgets across the board.

[Kerry McCarthy (Bristol East) (Lab)]

I visited a school in my constituency, St Anne’s Infants School, which won the Marjorie Boxall Quality Mark Award for its nurture group in 2016. I appreciate the really good work it does. Yesterday, I was in a Westminster Hall debate on special educational needs. There are real concerns around the country about the lack of funding for that. The hon. Gentleman just mentioned integrating this into the education service. It should not just be excellent groups that are getting excellent provision in some schools. We need to ensure that children—whether they have emotional or physical needs, or just need a decent education—get support in a joined-up way.

[Ben Bradley]

Absolutely. I welcome some of the things that the Government have done in recent pilots for mental health support in schools, and some of the positive things that are happening there, but the hon. Lady is absolutely right that that needs to happen across the board. Every child who has that need should be able to access the support, rather than its being a postcode lottery, as has been described.

The quality of alternative provision is too variable across the country. While some settings have brilliant teachers trying to turn around lives, others do not have that focus, and the most vulnerable pupils often do not get the education that others do. Both in SEND and behaviour management, one size does not fit all, so schools need to find and offer the right intervention.

In conclusion, I ask the Minister to look at ways in which the Government can do more to support nurture provision in primary schools, with a view to offering early support, particularly in deprived areas that are most in need, helping more children to stay on in mainstream education and cutting the number of exclusions, thereby giving children in my constituency better life chances, as well as saving the taxpayer money in the long-term. I would like to see more of that supportive focus within alternative provision, too: support for schools to have more in-school alternatives to exclusion or outside provision. I believe that that approach is one of the most effective ways to support vulnerable pupils.

--- Later in debate ---

[Nick Gibb]

That is precisely why we asked Ed Timpson to look at why certain groups in society are more likely to be excluded than others, and he will publish his report soon.

[Ben Bradley]

I thank the Minister for his comments so far. I think I mentioned in my speech the positive intentions of the 2014 Act, which has been broadly well received—including in the evidence that the Education Committee received—in terms of the reasons behind it and its aspirations. When he talks about working together across different sectors and bringing different services together, does he recognise the element that is often raised as the problem, which is the challenge that local authorities face in getting the health sector genuinely to engage and to fulfil its commitments in education, health and care plans and in relation to the 2014 Act? How can we work to get those health bodies involved and more actively engaged in supporting children within SEND provision?

[Nick Gibb]

My hon. Friend makes an important point. Those are the challenges that local authorities face, and we are continually working with them to improve the quality of the provision in their areas. As for SEND budgets, which I will come on to, we are concerned about the high needs budget for schools. That is why the Secretary of State recently announced an extra £250 million of funding—£125 million in this financial year and £125 million in the next financial year—to help local authorities with their high needs budget. I think that has been welcomed by local authorities.

--- Later in debate ---

[Ben Bradley]

I am grateful to hon. Members who have contributed to the debate, particularly those from the Education Committee. They show a clear passion for the subject and for supporting young people. That is particularly so in the case of the hon. Member for Kingston upon Hull West and Hessle (Emma Hardy), who spoke with her usual passion for supporting the most vulnerable people in our society.

I was pleased to hear the Minister’s response, which made it clear that supporting disadvantaged people and a commitment to social mobility are key priorities for Government. He highlighted investment in many different areas, which is welcome. I would like to see that investment going directly to schools, and for schools to be given the ability to make independent decisions more often about personalised interventions for our children. I recognise the positive aspirations of the SEND reforms that the Minister talked about and the 2014 Act, and I look forward to the outcomes of the Timpson review.

I also thank the Minister for his kind words about Forest Town Primary School, which I am sure will make those there very happy. It is an excellent provision and there are a number of such schools across my constituency. I hope we can meet the Minister’s expectations with positive alternative provision examples. They should be encouraged, matched and talked about across the rest of the country.

I recognise the work that the Minister does behind the scenes making the case for education with the Treasury in terms of the forthcoming spending review. That is difficult in the current climate, and I hope he continues to make that case. If I can help him in any way with making the case for education’s being a huge priority for the rest of this Parliament, I certainly will. It would be very welcome. I thank everyone for their contributions. In particular, I thank the Minister for his time and you, Sir Christopher. It has been a pleasure.

Question put and agreed to.

Resolved,

That this House has considered nurture and alternative provision in primary schools.