The Parliamentary Under-Secretary of State for Schools (Lord Hill of Oareford)
My Lords, it is with more than my usual trepidation that I rise to speak because there have been times this afternoon when I felt as though 30 years had rolled back and I had been at an undergraduate tutorial with an overdue essay. However, this debate has been extremely good and thought-provoking, and there has been a large amount of agreement on a lot of the key themes. Like other noble Lords, I am grateful to my noble friend Lord Luke for securing the debate, getting it off to such a good start and setting out the issues for us so clearly.
Everyone else seems to have been declaring an interest, so I had better do so. I must correct the noble Baroness, Lady Jones of Whitchurch—I am not an expert, but as a boy I was hooked by RJ Unstead’s Story of Britain, with those wonderful illustrations by Victor Ambrus. I still have my copy at home and I should be happy to share it with anyone who has not read it. I also remember as a boy being fascinated by an encyclopaedia’s picture of French aristocrats being taken off in a tumbrel, and one of Constantine XI fighting heroically on the walls of Constantinople. I suspect that it was an early sign of a lifelong commitment to lost causes, with which I persist to this day.
I started to read history at university but I am afraid I did not complete it because I did not have the sticking power—it was a PhD on Russian history with Norman Stone. However, it was in the 1990s that a stint at Downing Street opened my eyes to medieval history because it dawned on me that I was effectively working in a medieval court. For the first time, I realised why the role of Keeper of the Stool was such an important job because, as political secretary, I spent a lot of my time going round clearing up after powerful people.
I therefore share the views expressed by all noble Lords about the importance of history, which was set out so powerfully by the noble Lord, Lord Morgan, and from another but equally important perspective by my noble friends Lady Benjamin and Lady Berridge. I think that there is agreement that history helps us to understand our common past, our shared values and our sense of national identity—a point made by my noble friend Lord Cormack, but underlined by the noble Baroness, Lady Andrews. She correctly said that history teaching is more important than ever as our society becomes more varied. Understanding history helps us to make sense of the present, as has been argued by a number of noble Lords. It develops analytical skills and helps us to understand cause and effect—one of the points that the noble Baroness, Lady Bakewell, underlined. History helps give us the ability to argue and enables us all to make connections. Everyone here is agreed on the importance of history as a subject.
We heard a number of examples of some of the things that people do not know about history. We heard about Churchill. I saw another survey that suggested that nearly half the young people aged between 18 and 24 did not know that Nelson commanded the fleet at Trafalgar and led it to victory. Nearly half did not know that the Romans built Hadrian’s Wall. That links to the point made by the noble Lord, Lord Bew, about the importance of British history. He made an extremely important point about the opportunity we have to avoid a false left/right divide on this. For most of the time in this debate we have managed to avoid that. I accept that it is impossible to dissociate history and the study of it from a political perspective. However, we have been discussing the chronology and the sequencing of history—some of the great events. Noble Lords may think that I am a mad optimist but it is possible to separate some of the facts of our history and of world history. My noble friend Lord Smith of Clifton made the important point that we increasingly need our children to have an awareness of world history. However, it is possible to separate an understanding of fact from interpretation. Interpretation is something that comes increasingly with age and knowledge, but there is a factual basis that we should be able to work hard to identify.
In terms of current take-up we know that, alongside geography and modern foreign languages, the number of pupils taking history has been falling. It is down from 39 per cent doing GCSE in 1995, to 30 to 31 per cent last year. The proportion taking A-level has been static and the number of students studying history at university has risen, but that rise is slower than the average increase in university enrolments generally. We also know that while just over 30 per cent of children in maintained schools took a history GCSE in 2010, nearly half of children in independent schools did so. That relates to a point well made by a number of noble Lords about the importance of making sure that all our children have a chance to study history, and that those from more disadvantaged backgrounds do not miss out on the opportunity to do so.
My noble friend Lord Younger of Leckie told us about the Ofsted report in 2010. The noble Baroness, Lady Jones of Whitchurch, also referred to it and was absolutely right to say that the report found much to commend in the teaching of history at both primary and secondary level and in the work that our teachers are doing. It found many examples of extremely good practice. I very much associate myself with that point of view.
The Ofsted report also said—and this point has been recognised and accepted on all sides of the House—that at primary level,
“some pupils found it difficult to place the historical episodes they had studied within any coherent, long-term narrative… Their chronological understanding was often underdeveloped and so they found it difficult to link developments together”.
They also commented that,
“the curriculum structure for primary schools was itself episodic”.
That links to some of the points made by my noble friend Lady Walmsley. The report recommended that pupils should study overview as well as in-depth topics. That relates to a point about bore-holes and breadth, raised by the noble Baroness, Lady Andrews. Ofsted also thought, again relating to the important point raised by my noble friend Lady Walmsley, that primary school teachers needed more subject-specific continuous professional development opportunities and that all students in secondary schools should benefit from a significant amount of history until at least 14.
I felt there was broadly a shared analysis of what we think the main issues confronting us are. There are concerns about the bitty nature of the curriculum and a lack of sweep and chronological development, a point made by the noble Lord, Lord Morgan; about the support available to teachers to enable them to teach history well and more broadly; and about the time available in the timetable for teaching history, particularly at key stage 3. There is also some concern about the numbers of children who want to study history at GCSE level.
I will try to set out what the Government are doing in three broad areas: first, the curriculum; secondly, encouraging the take-up of history; and thirdly, support for teachers and initial teacher training. So far as the curriculum is concerned, we had an extremely good debate which flushed out some of the difficulties. The noble Baroness, Lady Bakewell, talked about curriculum wars and the history of that; my noble friend Lord Addington talked about fashions. Both those points are well made. I think that the noble Baroness, Lady Jones of Whitchurch, agrees with our argument that, as the national curriculum developed, it has covered more subjects, prescribed more outcomes and taken up more school time than originally intended.
Overall, our intention through the curriculum review is to slim the curriculum down; to free up time in the school day; and to free teachers to use their judgment to design curricula that best meet needs of their pupils. We want the new national curriculum to be based on a body of essential knowledge that children should be expected to acquire in key subjects during their school career, to cover for all children their cultural and scientific inheritance—an important point was made about the importance of science and technology—to enhance their understanding of the world around them, and to expose them, if we can, to the best of what has been thought and written.
The review is being conducted in two phases. In the first phase, we are designing new programmes of study for those subjects—English, maths, science and PE—which we have already confirmed will continue to be a part of the national curriculum at all four key stages. We are also considering which of the other subjects that currently form the national curriculum, including history, should be part of the national curriculum in future and at which key stages. The second phase of the review, which will start in early 2012, will produce programmes of study for those other subjects which remain within the national curriculum. The review will also advise on whether non-statutory programmes of study should be published for any subjects that are not to be included in the new national curriculum.
The review began with a public call for evidence that invited views from all interested parties on what a new curriculum should look like. I understand that the call for evidence closed on 14 April; the results will be published in due course. There will be further widescale public consultation before any final decision is made. I agree with the point made by the noble Lord, Lord Davies of Oldham, that it is important that there should be widespread discussion representing a range of views.
The noble Baroness, Lady Andrews, specifically asked whether the EBacc is having any effect on encouraging the take-up of history. The Government think that a child's education is diminished without a sound understanding of history. We know that history, alongside some other subjects, has been in decline for a number of years. The Government believe that there are some academic subjects, the core subjects in the English baccalaureate—English, maths, the sciences, languages and humanity—in which too few pupils are achieving, or have even had the opportunity to study. As my noble friend Lord Luke pointed out at the beginning of the debate, the situation is worse for pupils on free school meals. The disparity between the percentage of those on free school meals who are taking the EBacc subjects—which the Russell Group of universities states are those that best equip children to take degrees in its universities—and others is very large. Only 4 per cent of children on free school meals achieved the EBacc subjects last year, whereas for children as a whole across the country, the figure was 16 per cent. We need to address that issue.
I know that all noble Lords believe that many more pupils have the potential to succeed in those subjects, and we feel that we should do everything that we can to help them have that opportunity. We know that pupils who have achieved the EBacc combination of subjects have proved more likely to go onto A-levels, have attempted a greater number of A-levels and have achieved better results. We are trying through the EBacc to allow parents and pupils to see for the first time how their school is performing against those key academic subjects. In doing so, we hope to encourage a greater number of schools to offer a broader set of academic subjects, which would include history, to more of their pupils.
The early indications are that the introduction of the EBacc is encouraging the take-up of history. Some research was carried out on behalf of the department by the National Centre for Social Research over the summer. That suggests that 39 per cent of pupils entering GCSEs in 2013 are expected to take history. If that turns out to be the case, that would be up by 8 per cent from this year and back to the level that it was that in 1995. Time will tell whether that turns out to be true, but I hope noble Lords who are keen, as we all are, to see more children carrying on with history up to the age of 16 will regard that as an encouraging sign.
That is linked with the important question about teacher supply and teacher training. The EBacc does have implications for teacher supply. If more children want to study history, we will need to have more history teachers. The modelling undertaken by the department to set future-year ITT places is taking that into account. I am told that there is currently healthy interest in training to become a history teacher. My noble friend Lady Walmsley rightly mentioned the importance of CPD, or continuing professional development. Our overall approach to that was laid out in our White Paper published in November 2010. In broad terms we are trying to improve the capacity for schools to take the lead for the training and development of teachers and to create more opportunities for peer-to-peer learning, which is what we have been doing this afternoon. Our approach is based on research that shows that teachers learn best through observing teaching and being observed and receiving feedback from other professionals. We are creating a new national network of teaching schools which will give outstanding schools the role of leading the training and professional development of teachers and head teachers so that all schools have better access to high-quality professional and leadership development. The first 100 teaching schools have already been established and we have a further 100 planned for April 2012. They will be the embodiment of our commitment to CPD and will run a range of programmes for schools, including in history, to help address some of these important issues.
Earlier this year we published an initial teacher training strategy which is out for discussion at the moment. That contains proposals for giving schools the opportunity to play a greater role in teacher training, the funding of ITT, toughening the entry criteria, and prioritising training most relevant to classroom practice. We are finalising proposals for initial teacher training in the light of responses we have received to that and we will publish a plan shortly. We believe overall, alongside work we are doing in looking at proposals for a single set of new standards for all qualified teachers, that these reforms, the network of teaching schools and a new set of teacher standards will improve the rigour and quality of teaching in all subjects, including history.
An interesting part of the debate was on issues around learning outside the classroom, enthusiasm and the importance of enthusiastic teachers, and accessibility. My noble friend Lady Berridge rightly talked about the importance of bringing outsiders in. The noble Baroness, Lady Andrews, talked about the kind of work that English Heritage and other organisations can do to enthuse and inspire children and bring history to life in a way that someone standing up in a classroom will not necessarily do. I do not think that helping children have a better sense of the chronology of the events in history needs to come from a dry as dust, learning by rote, going back to the 1950s approach to teaching. The development of the media and all kinds of new ways of learning that all of us, unfortunately, were not able to benefit from provide fantastic opportunities for children to become engaged in and get a love of history and be excited and inspired by it. Learning outside the classroom is extremely important and going to battlefields, visiting the Imperial War Museum and going to Dover Castle—which I would love to do one day if I am invited—are all ways that we can bring history to life. We think schools can work out how to do that but there is more the Government can do to make it easier for them to take pupils on trips by taking steps to reduce teachers’ fears of legal action for failures in the dreaded and sometimes mythical area of health and safety. We want teachers to be confident that they can take pupils to this kind of activity, and we will work with the Health and Safety Executive on that.
I remember reading a few years back pronouncements that history was dead. Today's debate shows that it is very much alive. We know that there are more history books being written and that there is more history on the television; we have heard about the interest people have in archaeology and in their own ancestry. As was said, history is full of ripping yarns. There is no doubting the passion and knowledge brought to us in today's debate. I do not share the knowledge of all noble Lords—for instance, that of the noble Lord, Lord Thomas of Swynnerton—but I hope that at least I share some of the passion expressed this afternoon. I will bring the debate to the attention of my honourable friend Mr Gibb, who is leading our curriculum review, and also to the attention of my right honourable friend the Secretary of State, whose commitment to history, as some noble Lords have mentioned, is well known.
The Government take this seriously. There is much more work to do, but I hope that we may have started to turn the corner. The timing of the debate, as the Government consider the national curriculum review, is excellent. I congratulate my noble friend Lord Luke on it once again, and on providing us all with the opportunity for the thoughtful discussion that we had.