Sure Start

Lord Agnew of Oulton Excerpts

Wednesday 5th June 2019 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, with the leave of the House, I will now repeat an Answer to an Urgent Question given earlier today in another place. The Statement is as follows:

“Thank you, Mr Speaker. The Government welcome the recent report by the Institute for Fiscal Studies on the health effects of Sure Start. It is crucial that in our pursuit of better outcomes for children and families and in making spending decisions, we are guided by high-quality evidence, and this report gives us more of that.

The report shows very clearly that children in disadvantaged areas benefit most from services; indeed, those in the richest 30% of neighbourhoods saw practically no impact at all. The policy framework we have in place reflects this evidence. In 2013, the Government introduced a new core purpose for children’s centres, focusing on families in the greatest need of support. While we have seen local authorities remodel services, there are now more children’s centres than at any time prior to 2008, and in fact since Tony Blair was Prime Minister. This is at a time when government is making record investment in childcare, with more than 700,000 of the most disadvantaged two year-olds having benefited from 15 hours’ free childcare since its introduction in 2013.

In addition, under the Government’s healthy child programme, children and families now receive five mandatory health visitor checks in the early years. The statutory framework also contains important protections so that outcomes for children and families, particularly the most disadvantaged, will not be adversely affected by the proposed changes to children’s centre provision.

The IFS also concludes that policymakers must,

‘consider which types of services and models of provision could most effectively help this group’.

The Government agree, and indeed we already have work under way to do exactly this. As part of our £8.5 million early years local government programme, we announced in April that the Early Intervention Foundation will look at children’s centres and other delivery models to find out what works well, so that local authorities have more evidence to help them continue to make the best decisions for their communities”.

My Lords, that concludes the Statement.

[Lord Watson of Invergowrie (Lab)]

My Lords, I thank the Minister for repeating the Statement. The IFS research demonstrates the critical role that Sure Start plays in children’s health as well as in their general development. The key findings are that the Sure Start programme begun by a Labour Government 20 years ago had a big, positive effect on children’s health, reducing the hospitalisation of children from disadvantaged areas by the time they finish primary school. Indeed, by age 11 Sure Start prevents about 5,500 hospitalisations each year, at an estimated saving to the NHS of £5 million.

Surprisingly, the Statement says that the Government welcome the report, although it is not clear why. Even more surprisingly, it asserts that there are now more children’s centres than at any time prior to 2008. How can that be? Last year, the Government’s own figures admitted that more than 500 Sure Start centres had closed. We know that it is many more than that. How does the Minister justify that astounding claim?

With the upcoming spending review, the IFS calls on the Government to review the impact of Sure Start and decide how the programme will be used. We thoroughly endorse that call, and I ask the Minister: will the Government commit to responding to the report’s recommendations before the Summer Recess, because children in disadvantaged communities cannot wait while the Tory party continues its self-indulgent navel gazing?

[Lord Agnew of Oulton]

My Lords, in answer to the noble Lord’s question about the exact number of children’s centres, as at the current state, there are 2,353 main children’s centres and a further 700 linked sites open to families and children. The important part of this issue is that all noble Lords share our concern to help improve the chances of disadvantaged children in our society. We have taken a slightly different approach through the introduction of the offers for two year-olds, three year-olds and four year-olds, where we are providing free childcare for hundreds of thousands of young children.

[Lord Storey (LD)]

My Lords, I am grateful to the Minister for repeating the Statement and, like him, I welcome the report from the Institute for Fiscal Studies. The report indeed shows that children in disadvantaged areas benefit most from Sure Start centres. The IFS report is not about childcare, nor indeed about children’s centres; it is about Sure Start centres and is entitled, The Health Effects of Sure Start.

The unique feature of Sure Start centres is that they offer a range of services to parents and children. The evidence is clear that Sure Start centres contribute significantly to improving the life chances of families in the most deprived communities—for example, as we have heard, by reducing the hospitalisation of young children by more than 5,000 a year and saving millions to the NHS. Sure Start centres also offer mental health support to young parents.

Why are the Government only now asking the Early Intervention Foundation to look at children’s centres and other models of delivery? We already know that more than 1,000 centres have been closed and that Sure Start centres are of greatest support to children in deprived areas. So why are the Government kicking the evidence-collection can down the road? The Minister must know that cuts to local authority budgets have inevitably impacted disproportionately on the most disadvantaged young children.

I have two questions for the Minister. Will the Government take a holistic view of the needs of families, and will they ensure that the early years pupil premium, frozen since its introduction five years ago, is increased in line with the pupil premium?

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[Lord Agnew of Oulton]

First, on funding generally, it is important to remind noble Lords of the opening comments in the IFS report executive summary, which state that we are now,

“one of the highest spenders on the under-5s in Europe”,

having lagged behind in the 1990s. So a great deal of progress has been made. We do take a holistic view, which is why we have put so much emphasis on supporting disadvantaged families with healthcare; that has enabled those families to get into work, which we know is one of the clearest ways to improve their prospects and quality of life.

The noble Lord asked about increasing the pupil premium. That will be a matter for the spending review, but we have done a lot in this area, including on the pupil premium that he mentioned. The introduction of the three year-old and four year-old offers gives 30 hours to families for the first time in history, and 340,000 children will benefit from that.

[Baroness Shephard of Northwold (Con)]

My Lords, can my noble friend the Minister comment on the need for Sure Start centres to be accessible? Clearly, if they are well targeted, they bring great help to children born in a disadvantaged area. Many of those areas are rural, however, and while it is one thing to provide accessible Sure Start help in closely populated urban areas, it is quite another to do so in rural areas, as I know my noble friend understands.

[Lord Agnew of Oulton]

The noble Baroness is quite right that the provision of services in rural areas is much more difficult. Again, we have taken the education route, which is why we have looked at the provision of childcare for the two year-old offer, from which nearly 750,000 children in the country have benefited. The take-up of that offer has gone up nearly every year since its introduction; we are now at a level of 72%.

Schools: Free School Meals

Lord Agnew of Oulton Excerpts

Wednesday 22nd May 2019 Lords Chamber

[Baroness Boycott]

To ask Her Majesty’s Government what steps they are taking to maintain appropriate standards in the delivery of free school meals.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, this Government want pupils to be healthy and well nourished. It is important that all pupils have access to healthy and nutritious meals at school, including those eligible for free school meals. We encourage a balanced diet and healthy life choices through school funding legislation and guidance. Our school food standards mean that the food children eat at school is healthy and foods high in fat, salt and sugar are restricted.

[Baroness Boycott (CB)]

I thank the Minister for that Answer. I wish it were entirely true. Through the Children’s Future Food Inquiry, I have spoken directly to children who live in poverty and for whom these meals are a lifeline. The £2.30 a day allowance is simply not enough, unless the school is very creative, to provide daily meals and snacks. I have heard from children who were charged up to £2 for half a small pizza. In some schools, where the water fountains are broken, they were paying 90p for a bottle of water. We spend £458 million a year on school meals, but no monitoring system is in place in England and standards are very uneven. When free school meals were extended under the coalition, a post was created to monitor them, but that person was let go after a year. Do the Government not agree that this is an extremely short-sighted approach and that the post should be reinstated immediately?

[Lord Agnew of Oulton]

My Lords, I will certainly take the noble Baroness’s suggestion back to the department for consideration. It is, however, a statutory requirement that all state schools provide free drinking water to their pupils. If there is any evidence of schools not delivering that, I would be interested to hear it.

[Baroness Lister of Burtersett (Lab)]

My Lords, a recent academic study of children and food in low-income families published by the Child Poverty Action Group, of which I am president, found that most of the children attended schools with exclusionary school meal practices, which rationed the food that children receiving free school meals were allowed, leaving them hungry and stigmatised. As one child reported, “If you’re not free school meals, you get to have bigger food”, and he did not think that was fair. Does the Minister think it is fair? If not, what can the Government do to encourage more schools to adopt inclusionary practices, which make no discriminatory distinctions between poorer and better-off children?

[Lord Agnew of Oulton]

My Lords, a great deal of work has gone on over the past few years to remove any chance of stigma, principally through the cashless facilities that schools now operate in their canteens so that a child in receipt of free school meals is indistinguishable from another child when they are being served with food. I would be very surprised to hear of the discrimination that the noble Baroness referred to.

[Lord Storey (LD)]

The Minister rightly talks about healthy eating, nutritious meals and the problem of childhood obesity, but the reality in schools is rather different. First, at key stage 2 the majority of children bring packed lunches, which are often not at all healthy. Secondly, the amount of time that children have for their lunch is being cut back so they literally rush in, eat it and rush out again. Thirdly, a cafeteria approach means that, sadly, young people choose food that is not at all healthy. I can remember when you would have what were called family meals; children would sit down at a table and serve each other, there would be conversation and they would have time to eat. Is it not time to look at what is happening in our schools at lunchtime and establish some guidelines about good practice?

[Lord Agnew of Oulton]

My Lords, compliance with school food standards is mandatory for all maintained schools and has been part of funding agreements for academies and free schools since 2014. We have provided this legislative framework, and we are providing free school meals for a huge number of pupils. As the noble Lord will know, we introduced free school meals for infants, which are now feeding some 1.5 million pupils a year.

[Lord Laming (CB)]

My Lords, will the Minister take this opportunity to congratulate the charity Family Action, which is running the national school breakfast programme? It is now operating in 1,700 schools, providing a nutritious breakfast for more than 280,000 children who come to school without having had any breakfast.

[Lord Agnew of Oulton]

The noble Lord is quite correct. Family Action was deployed in March last year on a two-year contract. It has since provided support to improve breakfast clubs in some 1,770 schools with a focus on increasing provision for disadvantaged pupils in opportunity areas.

[Baroness Symons of Vernham Dean (Lab)]

My Lords, the Minister failed to answer the question that my noble friend Lady Lister asked. She gave evidence of discriminatory practices and the Minister said they could not possibly exist. Will he please look into the allegations that my noble friend made and answer the question? If this is going on, does he believe it is fair? It is a simple question and it deserves a simple answer.

[Lord Agnew of Oulton]

My Lords, if the noble Baroness would like to write to me with examples of this, I will certainly look into it.

[Baroness Manzoor (Con)]

My Lords, I passionately believe that good nutrition is a human right. What are our schools doing to ensure that parents are educated in good nutritional value? Without good nutritional value, those children are prone to heart disease, obesity and related diseases later in life.

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[Lord Agnew of Oulton]

It is certainly incumbent on parents to set an example of good nutrition and diet in the home. I know of a number of schools that operate cookery classes and cookery clubs for parents. Indeed, my academy trust used to do such a thing. It is something that we need to keep as a priority.

[Baroness Bull (CB)]

My Lords, a new clinical service at the Evelina London Children’s Hospital has found that 70% of children with ongoing health conditions are from families living with food insecurity. It is even seeing the return of rickets, a disease of malnutrition and poverty. For these children, high-quality free school meals may be the best reliable source of nutrition. Given that we know that children who go hungry are more likely to experience health issues in later life, does the Minister agree that ensuring high-quality free school meals is about not just preventing hunger but preventing food insecurity leaving an indelible mark on these young people’s lives?

[Lord Agnew of Oulton]

I agree with the noble Baroness that nutritious food is essential for children. That is why that is set out clearly in the food standards. We are working to understand more about food insecurity by spring 2021.

[The Earl of Listowel (CB)]

My Lords, as the school holidays approach, what steps are the Government taking to ensure that disadvantaged children continue to enjoy nutritious food through the school holidays?

[Lord Agnew of Oulton]

My Lords, we are running a number of pilot schemes on food in school holidays, and we have quadrupled the amount of money this year to strengthen programmes to encourage co-ordination in local communities. Just two weeks ago, we announced a number of organisations that will be working across the country to do this. We hope to feed around 50,000 children during the holidays this summer.

[Lord Watson of Invergowrie (Lab)]

Can the Minister square his comment that all children are entitled to nutritious school meals with the fact that the Conservative Party’s 2017 manifesto committed to ending universal free school lunches for infants?

[Lord Agnew of Oulton]

My Lords, the reality is that we have not done that and are providing some 1.5 million infant meals at a cost of some £600 million a year.

Education: Climate Change Science

Lord Agnew of Oulton Excerpts

Thursday 16th May 2019 Lords Chamber

[Lord Redesdale]

To ask Her Majesty’s Government what steps they are taking to increase the priority given to teaching climate change science.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, the Government believe that it is vital that children are well informed about climate change. For this reason, relevant topics are included throughout the geography and science national curriculum and associated qualifications. For example, in secondary school science, pupils consider the evidence for the human causes of climate change, and as part of GCSE geography they study spatial and temporal characteristics of climatic change and evidence for different causes, including human activity.

[Lord Redesdale (LD)]

My Lords, head teachers have an obligation not to teach push causes, which are seen as party political, and therefore feel that teaching on climate change may cause problems. Will the Government categorically state that teaching on climate change is not a party-political issue, and would they be prepared to meet representatives of the teaching unions and head teachers to make sure that they understand this?

[Lord Agnew of Oulton]

I absolutely agree with the noble Lord that this is not party-political but a generational issue, and it is our responsibility as the older generation to protect the environment for the young people of tomorrow. We do not in any way suggest that teaching these issues is party political. We have such things as the Green Great Britain Week, which took place for the first time last year, to raise awareness of how businesses, universities, schools and the public can contribute to tackling climate change, and we will be doing another one of these in November. I am certainly happy to meet the unions and the stakeholders the noble Lord referred to.

[Lord Rooker (Lab)]

In which case, will the Minister locate some tip-top teachers in schools who are providing the science on climate change to our young citizens, and invite them to come to this place for a day to teach the climate change deniers in this House what the young people are being taught? They were conspicuous by their absence in the recent debate; clearly they do not have the confidence to put their case. The fact is that the science is there, and it would be a suitable opportunity across the generations to deliver the science to them.

[Lord Agnew of Oulton]

My Lords, there is absolutely no suggestion that there is denial of climate change by this Government. Indeed, we have seen some of the most dramatic improvements in dealing with decarbonisation of the economy over the last 10 years. We are leading the way in the G20, we have reduced carbon in the economy by 4.7% per year, which is double the G7 average, and we have some of the highest levels of wind generation in the world—so I can assure the noble Lord that we are not anti or against it. However, we also have to remember that we should be worried not just about climate change but about environmental contamination.

[Lord Lilley (Con)]

My Lords, I draw attention to my interests in the register. Will my noble friend ensure that climate change is taught within the context of the scientific method, which requires predictions based on hypothesis to be tested against observations? Therefore, let children know that the impact of CO₂ is well established by observations and can be measured, and that the direct effect of doubling the amount of CO₂ in the atmosphere will be a one degree centigrade increase in the average temperature of the globe. However, higher estimates, based on much less certain feedbacks for which there is not observational confirmation, and all the forecasts based on climate models, assume very high feedbacks that have been falsified by observations. Therefore, those models need to be amended.

[Lord Agnew of Oulton]

I assure the noble Lord that we are improving the curriculum all the time. For example, in 2018, 96% of pupils in state-funded schools were entered for the science component of the EBacc. The proportion of pupils taking GCSE geography increased from 26% in 2010 to 41% last year. We have also seen increases in participation in A-level chemistry and physics. These are all science and evidence-based subjects.

[Lord Singh of Wimbledon (CB)]

My Lords, could the Government get the United States President to drop in on one of those classes during his visit?

[Lord Agnew of Oulton]

The noble Lord makes a very interesting suggestion, which I shall pass on to the Foreign Office.

[Lord Watson of Invergowrie (Lab)]

My Lords, the noble Lord commented on science and geography being taught in schools. Clearly that is not effective enough, because students in Oxford have started a national petition to make climate change a core part of the curriculum. So far it has attracted 71,000 signatures. So young people are getting the message, and it seems that MPs are as well, because two weeks ago a Labour Motion in another place to formally declare a climate and environment emergency was endorsed without a vote. I should add that the Environment Secretary responded to that debate by saying that the situation we face is an emergency. That endorses the Minister’s point about this not being party political; I very much welcome that. Given Mr Gove’s wise words, perhaps I might build on the point made by the noble Lord, Lord Singh. Does the Minister know whether Mr Gove will raise with Donald Trump during his visit the fact that climate change is a very real threat and that ignoring international agreements and action on the climate crisis is something that he can no longer do?

[Lord Agnew of Oulton]

My Lords, I am not sure whether my right honourable friend Michael Gove will be meeting Mr Trump, but I am sure that he would raise those issues with him. I want to put a slightly different slant on things. We are making enormous progress in this country to combat climate change. As I mentioned, we are leading the world in offshore wind power generation, the cost of which per kilowatt hour has dropped dramatically in the past five years. We have created a Green Finance Institute. A record proportion of our energy is generated by low-carbon sources. In the past few weeks, we have had the first evidence of generation of electricity without any use of coal at all. We have dramatically reduced the role of coal-fired energy in generation. So we must remember that we are doing an enormous amount. My priority on climate change is that we should adapt to deal with its consequences.

[Baroness Hayman (CB)]

My Lords, the Minister is absolutely correct to lay out the measures that the Government have already taken—but was the noble Lord, Lord Rooker, not right to say that young people are aware and frightened of the effects of climate change and environmental degradation and that they are asking us, the generations represented in this House, to make a step change in what we are doing? Resting on our laurels will not protect our grandchildren.

[Lord Agnew of Oulton]

I respectfully disagree with the noble Baroness; we are not resting on our laurels. I just gave some examples of the things we are doing and how we are leading the developed world with our carbon-reduced economy. We have only recently introduced the 25-year environment plan, which encourages children to participate. We are on track, but we have to keep this in the public eye.

Equality of Opportunity for Young People

Lord Agnew of Oulton Excerpts

Thursday 16th May 2019 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, I congratulate the noble Baroness on securing this important debate. I am grateful for the opportunity to outline the Government’s work on delivering opportunities for all and improving the quality of life for young people. We have heard many excellent contributions in this debate across a range of ideas. I am also grateful to noble Lords who provided early notice of questions. I have received 25, many just before I came into the Chamber, so I will not be able to cover all of them, but I will of course write.

Noble Lords will not be surprised to know that I believe fervently that the surest way to expand opportunity is through education. Everyone has the right to a good education regardless of their circumstances. To start with the concern expressed by the noble Baroness, Lady Bull, improving this country’s education system starts in the early years. Since 2010, all three and four year-olds have been able to access 15 hours of early education a week. In 2013 we introduced 15 hours a week of free early education for disadvantaged two year-olds. We have a record proportion of children starting year 1 with a good level of development. We are spending £3.5 billion on free early years education entitlements this year.

We have introduced the phonics screening check. In 2018 163,000 more six year-olds were on track to become fluent readers compared to 2012, and 88% of those pupils who had met the phonics standard in year 1 went on to attain the expected standard in reading at the end of key stage 2 in 2018. England achieved its highest-ever reading score in the 2016 PIRLS rankings, moving from joint 10th to joint eighth.

This Government have focused on raising school standards because we know a decent education is the best way to boost social mobility. I think we all agree on that. We have helped to ensure that there are 1.9 million more children in good and outstanding schools compared with 2010. The proportion of children in good or outstanding schools rose 66% in 2010 to 85% by the end of December 2018, and that is in part down to our reforms. The latest Ofsted figures show that more than 70% of sponsored academies are good or outstanding despite replacing mostly underperforming local authority schools. In free schools, 84% of those with inspection reports published by the end of March are rated good or outstanding. We have narrowed the attainment gap between disadvantaged pupils and others by around 13% at key stage 2 and 9.5% at key stage 4 since 2011 as measured by the disadvantage gap index.

The noble Baroness, Lady Grender, asked about school funding. We accept that there are challenges in the system. We invested an additional £1.3 billion across the period 2018 to 2020 over and above the existing plans in the spending review. The IFS has shown that real-terms per-pupil funding for five to 16 year-olds in 2020 will be more than 50% higher than in 2000. Since 2017, we have given every local authority more money for every pupil in every school while allocating the biggest increases to the schools that have been most underfunded.

The new GCSEs and A-levels are the culmination of curriculum and qualifications reform since 2011 involving consultation with subject experts, higher education institutions and teachers. The new GCSEs are more rigorous and their demand matches that of other high-performing economies. At A-level, changes aim to improve students’ readiness for the demands of higher education. We have removed some 3,000 what I describe as useless qualifications, which has made room for quality of education, an important point made by the noble Baroness, Lady Bull. We have put effort behind the EBacc. There has been a 76% increase in the proportion of pupils taking the core academic standard subjects including languages. This will set them up for success in later life.

I reassure the noble Baronesses, Lady Bull and Lady Prashar, that we are widening access to higher education. It is a priority for the Government. In 2018, 18 year-olds from disadvantaged backgrounds were proportionally 52% more likely to go to university than they were in 2009.

The noble Earl, Lord Listowel, asked about making the teaching profession more attractive. He is absolutely right. The one thing that matters most in our profession is the quality of the teachers. We are very conscious of the demands on them and the fact that they now have to deal with a range of social issues which they possibly did not have to deal with 10 or 15 years ago. We tried to address this recently in our recruitment and retention strategy, and we published the Workload Reduction Toolkit in March last year.

It seems that the noble Earl engages with teachers quite often, so I ask him to take a simple message back to them—a message that I try to get across. One of the most pernicious additions to workload is teachers having to individually plan each school lesson. It is an enormous burden on them and, frankly, quite unnecessary. Schools should provide skeleton work plans for them to draw on and then they can simply add the local context to the group of children they are teaching. The evidence I have is that lesson preparation can take four, five or six hours a week, but teachers do not have to spend their time in that way.

The noble Lord, Lord Bassam, talked about higher education. I agree with him in part, in that I think we have tilted the HE route too far for some students. That is why we are putting much more emphasis on apprenticeships. We are aiming to create 3 million quality apprenticeships, with 1.7 million starts from May 2015. They are longer, with more off-the-job training and a proper assessment at the end. We are introducing T-levels, which will offer a rigorous technical alternative to academic education. We are also establishing national colleges and institutes of technology to meet higher-level technical skill needs that will further support technical education.

One thread that has run through the debate is social mobility. I am pleased to be able to say that the NEET figures are declining. At the end of 2017, they were 6.3%. This is a fall of 2.9 percentage points compared with the same figure at the end of 2010. It is the lowest comparable figure since a consistent series began in 1994.

The noble Baroness, Lady Tyler, asked about lifelong learning and adult learners, which are all part of the same issue. We are living in a very fast-evolving economy, so we have created the national retraining scheme to equip individuals with the skills they need to redirect their careers. We know that uncertainty is being caused around automation, and the retraining scheme is focusing on those most at risk from automation. The scheme acknowledges and will build on existing services. We are working closely across government and with the National Careers Service on ways to improve this, looking at the industrial strategy challenges to see where we can learn lessons and unify this journey.

Many noble Lords raised the issue of participation in higher education. Higher education providers have committed to spend £860 million in 2019-20 on measures to improve access. That is more than double the amount spent in 2009. We are seeing increasing numbers of children from state schools getting Oxbridge entries, which, for me, is one of the most rewarding aspects of my job.

Many noble Lords addressed living standards and stagnation. It is important to remind the House that there are over 1 million fewer workless households than there were in 2010, with around 665,000 fewer children living in such households.

I turn to the concern raised by the noble Baroness, Lady Prashar, about providing support in career development for children from disadvantaged backgrounds. We established the Careers & Enterprise Company’s investment fund to help give additional support in preparing for work, including opportunities for mentoring and guidance.

The noble Baronesses, Lady Grender and Lady Tyler, raised the question of young people’s wages. We are tackling this by trying to improve their skills. We know that earnings outcomes for young people studying level 2 and level 3 apprenticeships are materially higher than they are for those without those qualifications. The youth unemployment rate has nearly halved since 2010, compared to last year.

I want to address the points made by the noble Lord, Lord Mawson, about young entrepreneurs, and I compliment him on his tireless work as a social entrepreneur. I have had the privilege to hear of the many great things that he is doing. I take on board all the points he made about bureaucracy; having run my own businesses since I was 18 years old, I know exactly what he is talking about. I am very happy to meet any stakeholders who want to discuss how we can deal with this. BEIS itself has launched an independent review into young entrepreneurship, led by the Prince’s Trust. I do not know whether this is particularly high praise but a young person in the UK is twice as likely to be involved in setting up a business or running a new business as young people in France or Germany.

The noble Baroness, Lady Tyler, raised a number of issues about social mobility. I certainly recognise that there are areas across the country with entrenched social mobility barriers where young people may feel left behind. This is why we are investing £72 million through our Opportunity Areas programme, which focuses on a mix of 12 coastal, urban and rural areas across the country. Through Opportunity North East we are working with leaders from education, local government and business and investing up to £24 million to address the specific challenges in that region.

We know that people from poorer backgrounds can face greater challenges. The pupil premium has provided schools with more than £15 billion in extra funding since 2011—over £2.4 billion in the year 2018-19—to tackle the symptoms of socioeconomic disadvantage and improve academic outcomes. We have introduced the pupil premium plus for looked-after and previously looked-after children, at more than double the rate of the standard pupil premium at secondary level.

The noble Baroness asked about the social mobility report on closing the regional attainment gap. I mentioned earlier the narrowing at key stages 2 and 4, which I think is a matter for celebration but certainly not one for complacency as there is a long way to go. Social mobility is one of our top priorities. We are targeting extra support in the poorest areas of the country to raise school standards. Disadvantaged pupils are catching up with their peers. We are reforming technical education and, as I said earlier, disadvantaged 18 year-olds are entering university in much higher numbers.

On the State of the Nation report, we welcome the publication of the Social Mobility Commission’s annual report and the important work that it is doing. The commission shines a light on where the Government, business and employers can continue to raise the bar for everyone living in this country. We have asked the commission to launch a £2 million research and evidence fund to identify and spread best practice on how best to boost social mobility, beyond everything that we are doing at the moment.

It is important to address universal credit, which I know has been a controversial subject over the last few years. The noble Baroness, Lady Suttie, asked about the five-week wait for universal credit payments. It is important to acknowledge that the system has improved; I am sure that it is still not perfect, but only today I was talking to an official at the DWP who was a case worker two or three years ago and has friends and colleagues who are still on the front line. She says unequivocally that case workers now feel much more empowered to help the clients they are dealing with than they did under the old regime.

No one has to wait for their money if they need it. We have made advances easier to obtain, and claimants can get up to 100% of their first month’s payment up front. From 2021, advances can be repaid over 16 months. We have already introduced a two-week run-on of housing benefit, and we will be introducing a two-week run-on for other legacy DWP benefits. All these improvements are intended to support claimants prior to their first monthly payment of universal credit.

The noble Baroness also raised the issue of homelessness. Again, I put on record that we have seen a drop of 20% in the number of under-25 year-olds sleeping rough between the years 2017 and 2018. The Government have committed over £1.2 billion to tackle homelessness and rough sleeping in the current spending review.

Our vision for those with special educational needs and disabilities is the same as it is for all children: that they achieve in their education, find employment, lead happy and fulfilled lives and experience choice and control. We have enhanced the support available for young people and their families, giving £391 million to local areas since 2014 to support the implementation of reforms. We will continue to fund parent carer forums. In December last year, we announced £250 million of additional high needs funding, bringing the total allocated to £6.1 billion in 2018-19, and £6.3 billion in the current financial year. We recognise that high needs budgets face significant pressure.

The noble Baroness was quite right to include the issue of the quality of life of our young people in this debate. The Government are focusing on mental health. My noble friend Lady Fall is concerned about mental health. To reassure her, from December 2020, we will make teaching about mental health a compulsory part of the curriculum across the whole state system. The Green Paper on children and young people’s mental health sets out proposals to improve mental health support for young people. We will incentivise and support schools and colleges to identify and train designated senior leads for mental health, funding new training to facilitate this. We are piloting new approaches to mental health assessment.

The Chief Medical Officer recently commissioned an independent review of the impact of screen time and social media on children and young people. They must take time away from screens. Participation in extra-curricular activities promotes well-being. For example, schools with cadet forces see improvements in attendance, behaviour and attainment. Through the cadet expansion programme, 268 schools have received approval to establish Combined Cadet Force units.

The noble Baroness, Lady Grender, asked about NHS mental health support. To reassure her, the Government have made protecting the mental health of children a priority. For people experiencing their first episode of psychosis, we have a target for early intervention to ensure that treatment begins within two weeks for more than 50% of people. Nationally, the NHS is exceeding the two-week target, with over 75% of patients starting treatment within two weeks in March this year. The NHS long-term plan has set the goal of supporting an extra 345,000 children and young people via NHS-funded health services by 2023-24.

Coming back to the broader issue of well-being, as noble Lords will be aware, we established the National Citizen Service in 2011. Nearly half a million young people have participated since then. Virtues such as kindness, generosity, fairness, tolerance and integrity can be developed through activities which stretch and challenge. My right honourable friend the Education Secretary has called the following areas the five foundations for building character: sport, creativity, performing, volunteering and membership, and the world of work. An advice group will develop materials to help teachers identify opportunities that will help pupils build character, and it will produce recommendations by September this year.

Several noble Lords raised the issue of housing, which is of course a high priority for this Government. On affordable housing, which the noble Lords, Lord Storey, Lord Bassam and Lord Shipley, mentioned, we are investing some £9 billion in the affordable homes programme, with 407,000 affordable homes delivered since 2010. To encourage home ownership for the young, we have smashed stamp duty by 95% for first-time buyers who pay it. We have also committed an extra £17 billion to the Help to Buy fund since 2017 to help up to 470,000 households into home ownership. The noble Baroness, Lady Suttie, asked about the shared accommodation rate freeze. I will write to her on that, as I am running out of time. It is an important issue.

The noble Lord, Lord Dholakia, raised a number of issues relating to justice and crime. I will write to him on the Supreme Court judgments on criminal records, regulating gambling, mobile gambling, criminal responsibility and a mandatory tax to fund treatment for addiction.

The noble Baroness, Lady Suttie, asked about family mediation. The Government are committed to reducing conflict between parents, whether they are together or separated. That is why the DWP has introduced a new programme on reducing parental conflict, backed up by £39 million. It will encourage councils across England to integrate services and approaches which address parental conflict into their local services for families. This includes awards to both Mediation Now and Hall Smith Whittingham, which will help disadvantaged families at risk of involvement with the family justice system.

The noble Lord, Lord Dholakia, asked about the need to do more to combat racism. I am pleased to be able to reassure him that, since 2010, ethnic minority unemployment has fallen by around 140,000. The rate is at a record low. We have also published an updated hate crime action plan and launched a national hate crime public awareness campaign.

I am being told to stop, but a couple more Peers have asked questions that I would like to put on the record. The noble Baroness, Lady Prashar, asked about racial disparity. The black ethnic group has seen the greatest proportional increase in progression rates by the age of 19, from 44% in 2009 to 58.5% in 2016.

We are committed to the life chances of all children, including those in custody. The Government began a youth justice reform programme in 2017, investing in staff, education and psychology services.

To sum up, the Government are committed to providing all young people with the tools needed to reach their potential. There are few more important priorities for any Government than this.

Schools: Adopted Children

Lord Agnew of Oulton Excerpts

Tuesday 14th May 2019 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, I am pleased to answer this Question for Short Debate and thank the noble Lord for raising the important issue of the education of adopted children, including those adopted from care from abroad. We have long recognised that children in care need extra support to succeed in schools. The impact of their pre-care and care experience can often have a lifelong negative impact on their education, health and well-being. In March 2018, 61% of children in care were there because of abuse or neglect, and they were four times as likely to have a special educational need. Children in care have a far higher prevalence of social, emotional and mental health needs than other children with SEN.

The consequences of these experiences and of other risk factors such as foetal alcohol spectrum disorder can emerge over time, particularly at transition points such as adolescence or starting school. Indeed, recent research published by Adoption UK found that 69% of adoptive parents felt that their child’s learning was affected by problems with their emotional well-being at school. Adoption UK’s research also highlighted significant numbers of school changes, as well as high levels of both permanent and fixed-term exclusions. This was recognised by Edward Timpson in his review of exclusions, published last week.

In relation to points about Adoption UK, the noble Lord, Lord Triesman, asked for specific research on the educational outcomes of adopted children. I would certainly be happy to meet Adoption UK to see what viability there might be for that. The noble Lord, Lord Watson, also asked about the Adoption UK report. As he will know, we gave a commitment when accepting all the recommendations of the Timpson review of exclusions to publish new, clearer and more consistent guidance by the summer of next year. We will work with sector experts led by Tom Bennett, the department’s lead adviser on behaviour, and have been absolutely clear in our response that we will include guidance for the first time on the use of managed moves.

We published our latest statistics on adopted children’s education outcomes last week. As in previous years, they confirm that at both key stages 2 and 4, children adopted from care are less likely to reach expected levels of attainment than non-looked-after children, although the differences are less pronounced when factoring in the high prevalence of SEN in this cohort, and they do better than both looked-after children and children in need. But we know that this is not good enough.

We have already done a great deal to address these issues and improve the educational experience. Prior to 2012, despite the recognition and steps that had been taken to improve the education of children in care, little had been done to support those very same children who had left care through adoption. Acknowledging the ongoing vulnerability and level of need, we extended entitlements for looked-after children to previously looked-after children—those who had left care through adoption, special guardianship or a court order. Since 2012 we have: given adopted children the highest priority in school admissions; introduced the pupil premium plus for both looked-after and previously looked-after children, currently set at £2,300 per child; included them in the eligibility for free early learning for disadvantaged two year-olds; made them eligible for the early years pupil premium, currently set at £302 per child; and, since 2015, the Adoption Support Fund has provided more than 40,000 adopted children and their families with therapeutic support. This can prove key to allowing children to succeed in school.

The noble Lord, Lord Triesman, asks for guidance for parents. The DfE has funded PAC-UK, which has published guidance for schools on education of adopted children, and Adoption UK has published guidance. Both documents have been well received.

Concerns have continued about the level of support available for previously looked-after children. That is why in 2017 we introduced new statutory duties in the Children and Social Work Act to extend the roles of virtual school heads and designated teachers for looked-after children to require them to promote the education of previously looked-after children, too. The new duty came into force at the start of the school year, supported by the publication of revised statutory guidance and an additional £7 million per year of funding up to 2020 for virtual school heads. The revised guidance emphasises a whole-school approach to meeting the needs of both looked-after and previously looked-after children. It emphasises the need to work with adoptive parents to secure the best possible educational outcome for their child.

We will continue to work with the sector to understand the effectiveness of these changes. I am pleased to say that we are seeing some innovative practice, making the most of the expertise offered by virtual school heads and the new money, including forming partnerships with regional adoption agencies in both the north of England and on the south coast, and working with the voluntary sector to provide expert advice and information to adoptive families in the Home Counties.

The noble Lord, Lord Russell, asked what analysis the Government have made of how effectively the pupil premium has been used to support adopted children. We have not undertaken specific analysis on the use of the pupil premium. However, in addition to the points made in response to the question of the noble Lord, Lord Triesman, on pupil premium plus, I add that most schools are required to publish an online statement of the use and impact of the pupil premium.

Ofsted has just published its education inspection handbook for September 2019. This sets out how inspectors will gather evidence of the impact of use of the pupil premium and, in response to the question of the noble Lord, Lord Watson, about the role of managed moves and off-rolling, inspectors will consider the impact of the curriculum on previously looked-after children, including those adopted from care. So they will get more focus than is currently the case.

The noble Lord, Lord Triesman, asked how specific financial assistance does not get merged into the general pot of SEN. Our statutory guidance for designated teachers of looked-after children and previously looked-after children sets out how schools should use their pupil premium plus funding for previously looked-after children, including how they should work with adoptive parents to raise awareness of their eligibility for support and in deciding how pupil premium plus funding is used. The guidance sets a clear expectation that designated teachers should be members of the senior leadership team, who will provide challenge and advice to others and work with governors to hold schools to account.

Last week we published our response to the Timpson review of exclusions and have agreed to the recommendation for the department to collate and publish data on exclusions for adopted and other previously looked-after children. The noble Lord, Lord Russell, asked what further steps are being taken to ensure that we continue to improve the collection and scrutiny of data on adopted children’s outcomes. The statistics rely on the self-declaration by adoptive parents. That is why, due to the level of coverage, they, along with education outcomes data, are marked as experimental. We respect the rights of parents to choose whether or not to declare that their child was adopted. We have worked with the sector, including through social media, to encourage parents to declare, and our guidance to designated teachers encourages registration, with teachers required to raise awareness of their entitlements.

I recognise the concerns about support in education for children adopted from care from abroad. When we initially extended support for children in care to those who had left care, our intention was to ensure that children did not face a cliff edge of support when they were adopted. We were aiming to continue the support these children would already have received when in care. That approach meant that children adopted from abroad, who had not been in the care system in this country, did not therefore benefit from these changes. While they are a small proportion of total adoptions each year, these children can face unique challenges.

I will take up the suggestion from the noble Lord, Lord Storey, about issuing further, stronger guidance to local authorities for this vulnerable group. We have given a clear commitment to amend the admissions code to extend priority admissions to children adopted from care overseas. As several noble Lords mentioned, my right honourable friend the Minister for School Standards has written to every admissions authority in the country, asking them to amend their policies to give priority ahead of that formal change.

The noble Lord, Lord Triesman, asked for a champion to be appointed for these children to work alongside the more general champion, due to the distinctive but poorly recognised issues. Our changes in the Children and Social Work Act 2017 made virtual school heads and designated teachers the champions for all previously looked-after children. This is a new responsibility. The duties have been in place for only two school terms. We are working closely with the sector to understand the impact and effectiveness but it is too early to make a judgment. However, we are committed to learning from the experiences from this recent initiative. Introduction of a separate champion for those adopted from care abroad would risk confusion and duplication of roles when virtual schools and designated leaders are increasingly becoming recognised as experts in the field.

The noble Lord also asked us to consider more support for local authorities in this sensitive area. We have established Social Work England and are undertaking a comprehensive programme of social work reform to address these issues, among others. I assure noble Lords that officials are considering application of pupil premium plus to this group of children. In the meantime, it should not prevent schools providing support to children adopted from care abroad by, for example, making use of the extended virtual heads, designated teachers and the revised statutory guidance.

The noble Lords, Lord Triesman and Lord Watson, and the noble Earl, Lord Listowel, all raised similar questions around initial teacher training and continuing professional training, including training on child development and the impact of trauma and attachment orders. The noble Lord, Lord Watson, referred to the empathy gap. The framework of core content for ITT, which we published in 2016, sets out the need for trainees to understand the cognitive, social, emotional, physical and mental health factors that can affect child development. ITT providers are responsible for designing courses to meet the needs of trainees and pupils. Ofsted assesses the quality of ITT and how providers use the framework. In the most recent inspection, 99% of providers were judged good or outstanding.

The early-career framework, launched by the department as part of the teacher recruitment and retention strategy, announced a specific new entitlement for every new teacher to receive enhanced training in behaviour and classroom management in the first two years of their career. Our statutory guidance both for virtual school heads and for designated teachers places emphasis on whole-school awareness, the impact of trauma and attachment disorders and the expertise and training needed by designated teachers. However, we will consider the need for further training and support for attachment and trauma for the children in need review.

The noble Lord, Lord Russell, asked about support for adopters that could complement the work of virtual school heads. We agree that peer support can be invaluable to many adoptive families. The Adoption and Special Guardianship Leadership Board, which advises Ministers on adoption policy, is currently carrying out a review on adoption support. One of the things it is looking at is how we can encourage more local authorities to offer peer support.

The noble Lord also asked about my experience when running an academy chain. One of the things that I did was to insist that we identified all looked-after children in the trust. At the time I was there we had 26. I required a report on their progress to be made available to all our board meetings simply to raise the profile of these very vulnerable children. It was certainly my intent to go further than that but at least I ensured that they were very much the focus of the heads of individual schools.

The debate that we have had today has highlighted the importance of getting the right educational support for adopted children, including those adopted from abroad. The range of actions that I have set out today demonstrates just how seriously the Government take this issue. I very much appreciate the cross-party support that shows that this is not a political issue. We are absolutely determined that these children achieve the very best educational outcomes.

House adjourned at 6.25 pm.

Apprenticeships

Lord Agnew of Oulton Excerpts

Monday 13th May 2019 Lords Chamber

[Lord Fox]

To ask Her Majesty’s Government how many people are currently registered as undertaking (1) Intermediate, (2) Advanced, (3) Higher, and (4) Degree apprenticeships.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, in the first half of 2018-19, there have been 214,000 apprenticeship starts: 38% were at intermediate level, 44% were at advanced level, and 18% were at higher level. Included in the latter were 14,000 level 6-plus and degree apprenticeships, representing 7% of apprenticeship starts. Our apprenticeship reforms are raising the quality of training and assessment at all levels. They are providing the skills that employers need and creating life-changing opportunities for apprentices.

[Lord Fox (LD)]

I thank the Minister for his Answer. We should all congratulate the people participating in these apprenticeships, but there are still not enough of them. Today, two dozen significant bodies have written to the DfE asking for more time to spend the money generated by the levy. Only 9% of the money raised last year was actually spent on workplace programmes, and if that money is not spent it goes to the Treasury. I am sure that everyone, with the possible exception of the Treasury, wants the money that is set aside for training apprentices to be spent on training them. Will Her Majesty’s Government respond positively to the spirit in which these organisations have laid out their request to the DfE? Will the DfE provide them with the flexibility so that they can provide the training for future workers?

[Lord Agnew of Oulton]

As the noble Lord is aware, we have listened consistently to feedback from employers since the scheme began two years ago, which is why we extended the time employers could use their levy from 18 to 24 months. We have also increased the amount of money they can pass down their supply chain. We continue to engage regularly with all employer groups.

[Lord Baker of Dorking (Con)]

My Lords, I thank the Minister for his personal support of university technical colleges. Some 30% of students from these 48 colleges become apprentices each year. The one at Sellafield had 80% apprentices last year, which compares with an average of only 6% from ordinary comprehensives in England. All technical education is being squeezed out of pre-16 education, because it is being asked to follow EBacc. EBacc should be scrapped if you want more apprenticeships.

[Lord Agnew of Oulton]

I disagree with my noble friend on EBacc, but applaud all the work he has done on UTCs and their role in the apprenticeship programme.

[The Earl of Listowel (CB)]

Can the Minister say how many children in care and care leavers get on to and complete apprenticeships? He may prefer to write to me. Does he agree that it is a priority to ensure that such young people access apprenticeships and are supported to sustain them?

[Lord Agnew of Oulton]

I will write to the noble Earl with the exact figures, but there is good news; I have come reasonably prepared for this question. The percentage of BAME apprentices—black, Asian and minority ethnic —went up from 9.9% in 2011-12 to 11% last year. Importantly, the number of apprentices with learning disabilities has gone up from 7.7% to 11.9%.

[Lord Watson of Invergowrie (Lab)]

My Lords, one of the causes of the Government falling so far short of their laudable target of 3 million apprenticeship starts by next year is that not enough young people are directed towards apprenticeships in schools. A recent survey showed that only 9% of current apprentices found out about theirs through their teacher, and just 6% through a professional careers adviser. That is totally unacceptable. When will the Government start enforcing the requirement introduced last year for all schools to have a designated careers leader and—under the Baker clause of the Technical and Further Education Act—for head teachers to allow outside speakers to come in and inform young people of the rewarding alternatives to the academic route after they leave school?

[Lord Agnew of Oulton]

The noble Lord is right that schools are still not engaging enough to encourage apprenticeships. I accept that as fair criticism, but we are improving. We have just had the Youth Voice Census back for 2019, which shows that the percentage of children learning about apprenticeships has gone up. For example, specifically for engagement at FE level, “meaningful encounters” with sixth-form colleges have gone up from 52% to 60% and with FE colleges from 52% to 58%, and independent training provider engagement has risen from 29% to 34%. The work is ongoing.

[The Lord Bishop of Portsmouth]

Is the Minister aware—and, if not, I and perhaps other noble Lords are ready to give examples—of the bureaucratic burdens and delays being experienced? For universities, the added obligation to report to and share data with the Education and Skills Funding Agency, as well as the three usual reports, is exacerbated by an identical reporting requirement for levels 2 and 7, NVQ and postgraduate. The burden seems disproportionate. For large levy-payers, there are unexplained delays in approving new apprenticeship standards. Will the Minister urgently address these to improve take-up?

[Lord Agnew of Oulton]

On the right reverend Prelate’s first point about universities, I encourage him to write to me and I will pass that to the Universities Minister. We have put a tremendous impetus behind the universities sector to engage particularly with areas of lower attainment. It now spends £800 million a year trying to reach areas where university access has previously been low. We now have 440 standards approved and another 50 in the pipeline.

[Baroness Garden of Frognal (LD)]

What steps are being taken to incentivise schools to encourage young people into apprenticeships? The league tables currently encourage GCSE and A-level results. Could schools not be given formal recognition for their young people who go into apprenticeships?

[Lord Agnew of Oulton]

I refer the noble Baroness partly to my earlier answer where I spoke about the surveys that we are carrying out with schools. For example, the Compass data encourage seven meaningful encounters with employers. The apprenticeship programme is very much part of that.

[Baroness Bloomfield of Hinton Waldrist (Con)]

My Lords, we should focus on the quality as well as the quantity of apprenticeships. With this in mind, will my noble friend join me in congratulating the UK Atomic Energy Authority, which in partnership with the Science and Technology Facilities Council is building a new training centre at Culham that will provide up to 150 high-quality apprenticeships in engineering, science and technology?

[Lord Agnew of Oulton]

I agree. It is interesting to note that, for example, a level 2 apprenticeship can boost earnings by 11% and a level 3 apprenticeship by 16%, so these are career-changing opportunities.

School Exclusion: Timpson Review

Lord Agnew of Oulton Excerpts

Tuesday 7th May 2019 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, with the leave of the House I shall repeat a Statement made earlier today in the other place by my right honourable friend the Secretary of State for Education. The Statement is as follows:

“Mr Speaker, last March the Government commissioned Edward Timpson to explore how head teachers use exclusion and why some groups of pupils are more likely to be excluded than others. The review and the Government’s response are published today and I have placed copies in the House Libraries.

The Timpson review is thorough and extensive. I want to thank Edward and all those he worked with during the review, including schools, local authorities, parents, carers and children. Exclusion rates have risen over recent years but are lower than they were a decade ago, and permanent exclusion or expulsion remains a rare event. Some 85% of all mainstream schools did not expel a single child in the academic year 2016-17. Edward Timpson’s review found excellent practice across the school system but also variation across different schools, local authorities and groups of children. The Government agree with Edward Timpson’s conclusion that there is no “right” level of exclusion that we should aim for, but we do need to examine why there are differences in exclusion rates for pupils with different characteristics and in different parts of the country.

I want teachers to be free to teach and pupils to be free to learn in a safe and ordered environment, so I absolutely support head teachers when they conclude that they need to suspend a pupil in response to poor behaviour or to expel them as a last resort. But it is vital that we support schools to give pupils at risk of exclusion the best chance to succeed, and ensure that, for those children who are permanently excluded, this is also the start of something new and positive. I am clear that, where exclusion is the right decision to take and you are excluded from a school, you must not be excluded from high-quality education. This matters because excluded children include some of society’s most vulnerable and disadvantaged, with a third classed as “children in need”: that is, children who are known to social services. Overall, when children from ethnic minorities are compared with white British children, there is no substantial difference in exclusion rates. The review found that children from some groups, such as black Caribbean children, are more likely to be excluded than white British children, while children from other groups such as Indian children are less likely.

The Government’s response to Timpson is based on four core commitments. We will always support head teachers to maintain a safe and orderly environment for pupils and staff. We will support schools to give pupils at risk of exclusion the best chance to succeed. We will make it much clearer when and how it is appropriate for head teachers to remove children from their school; and, at the same time, we will make sure that there is sufficient oversight when they are. Finally, we will do more to support schools and alternative providers so that excluded pupils continue to receive a high-quality education.

To deliver this, the Government are today committing to the following actions. First, we will make schools accountable for the outcomes of permanently excluded children. We know that this is complex and needs to be done in a way that is fair to schools and pupils, so we will work with education leaders over the summer to design a consultation, to be launched in the autumn, on how to deliver this in practice. As part of the consultation, we will also look at the implications of any changes to the way that alternative provision is commissioned and funded, and how we can mitigate the potential unintended consequences that Edward Timpson identified, including how to tackle the practice of “off-rolling”. We will establish a practice programme to drive better partnership working between local authorities, schools, alternative provision and partners, building on the excellent practice that Timpson identified in his review.

We will work with sector experts, led by the department’s lead adviser on behaviour, Tom Bennett, to rewrite our guidance, including on exclusions, behaviour and discipline in schools, by the summer of next year. We will call on local authorities, governing bodies, academy trusts and local forums of schools to establish a shared understanding of the characteristics of children who leave school, by exclusion or otherwise. Our expectation is that this information will be used to inform improvements in practice and reduce disparities in the likelihood of exclusion between different groups of pupils.

We will work with Ofsted to both define—so there is greater clarity for school leaders—and tackle the practice of off-rolling, whereby children are removed from school rolls without formal exclusion in ways that are in the interests of the school rather than the pupil. We believe that this practice is relatively rare, but we are clear that it is unacceptable.

Finally, this autumn we will set out our plans for alternative provision, including more on how we will support alternative providers to attract and develop high-quality staff through a new alternative provision workforce programme, and how we will help commissioners and providers to identify and recognise good practice.

Before concluding, I want to address the issue of violent crime, particularly knife crime, which has tragically taken the lives of far too many young people. The issues surrounding serious violence, anti-social behaviour, and absence and exclusion from school are complex, which is why we are working with the education and care sectors, the Home Office and other departments as part of a comprehensive, multi-agency response. While exclusion is a marker for increased risk of being both a victim and a perpetrator of crime, we must be careful not to draw a simple causal link between exclusions and knife crime. There is no clear evidence to support that. I am clear, though, that engagement with and success in education is a protective factor for children. The measures outlined in our response to Timpson will play a key role in ensuring that every young person is safe and free to fulfil their potential away from violent crime.

I would like to thank all colleagues on all sides of the House who have taken a close interest in this area, and I mention in particular my right honourable friend the Member for Harlow for both his and his committee’s work on this important issue, in particular its inquiry into alternative provision, which has helped shape government thinking. Most of all, I would like to thank Edward Timpson and all those he worked with during the review. In taking forward our response, like him, we too will take a consultative and collaborative approach, to learn from those who carry out valuable and often challenging work teaching, supporting and caring for excluded children and those who are at risk of exclusion. I commend this Statement to the House”.

--- Later in debate ---

[Lord Storey (LD)]

My Lords, I too thank the Minister for the Statement that he has read, and I thank Edward Timpson for his report. It is not a surprising report, really —we all knew that this was going on—and I always wonder why we need to wait for a report before taking action. It is an absolute scandal that 40 pupils a day are permanently excluded from school and 2,200 pupils every day are put on a system of semi-exclusion. What happens? Well, two things happen. First, if they are lucky, they get put into alternative provision, and most of that alternative provision is unregistered. We have heard what the chief inspector has said about unregistered schools—that they are unsafe and that vulnerable young people are put in a very unhelpful situation. Many of them, if they are not put into a proper alternative provider, get involved in gang culture, and we know where that can lead. So why does the report not say absolutely clearly that unregistered schools for alternative provision should not be allowed and that we should take action against them? These vulnerable young people need to be in the most supportive environment with the best qualified and trained teachers.

Secondly, on the issue of knife crime, I welcome the idea of having a multiagency discussion to look at how we deal with this, but it is sad that there is no mention of the youth service. We should be investing in the youth service and, in particular, in detached youth workers.

Then we come to the issue of off-rolling, which has already been mentioned. Again, it is a scandal that schools can just off-roll pupils—often the most vulnerable pupils, including those with special educational needs. Nowhere does the report say why schools are allowed to off-roll. Why are schools off-rolling? We know that they off-roll because they want to do well in their school inspection and in their league table results, but, again, that should not be allowed. Also, when a pupil is off-rolled from a school, who is responsible for that pupil? Not the school or the local authority—the pupil is in limbo.

I hope the Minister might address those three issues. Finally, I am sure he would agree that it would be useful to have a proper debate on this issue in your Lordships’ House.

[Lord Agnew of Oulton]

I will respond to the noble Lords, Lord Bassam and Lord Storey. On permanent exclusions, last year 85% of schools had none at all, so it is important to put the issue in some perspective. But we are not complacent in any way—that is why we commissioned Timpson last year to undertake his review.

That flows into the issue of off-rolling, which greatly concerned both noble Lords. The term has crept into usage only in the past two or three years, and when we initially commissioned Edward Timpson to undertake his review it was not in common usage, but he has expanded the report to deal with it. It is important to reassure noble Lords that off-rolling is an unlawful practice, so it is not something that a school can do legitimately. We are focusing on this partly through the changes to the Ofsted inspection framework, for example, which will come in in September, which will ramp up the inspection process to ensure that such things are not going on. Ofsted will look at children who have left the school roll and interrogate the school as to why they have left and where they are.

[Lord Bassam of Brighton]

I am grateful that the Minister has said that off-rolling is illegal, but have the Government actually challenged any of the schools that have off-rolled? Is there any data on that?

[Lord Agnew of Oulton]

I am not aware of any specific data, but from this September, with the new Ofsted inspection framework, it will be very clear in any inspection that the issue will be under the spotlight in a way that is not the case at the moment. As we know, Ofsted has quite a lot of power to change behaviours in the system, so I am optimistic that we will see a change in behaviour. I also think that the public debate about off-rolling has changed behaviours already in those schools where it may or may not have been going on. One of the Timpson recommendations also asks us to look at the convoluted and complicated system of coding of attendance, which allows a lot of opacity—that will also help.

On funding, we are very aware that funding is tight in the system, but it is important to place on record that we have increased SEND funding from £5 billion in 2013 to £6.3 billion in the current year, and we have opened 42 AP free schools since the free school programme began.

[Lord Baker of Dorking (Con)]

My Lords, I warmly welcome the Timpson report and the reaction to it that we have heard from the Minister tonight. I hope that it will lead to a significant reduction in the number of pupils who are excluded—or off-rolled or home educated or sent to PRUs—which has grown far too much in the past few years.

It is very welcome to see that the consultation process that the Minister announced is so wide, and I am glad that he is in charge—he is the Minister in the department who is driving this policy, and we should be grateful for that. In the consultation process, I hope that he will ask the head teacher who excludes to meet with the local authority and the parents to determine a plan for the education of the student who is being excluded, and to review that plan, and for Ofsted to examine it in its inspections.

The Minister should also not exclude the possibility of some financial support for parents when they have to take on the responsibility of educating their children. One cost that should certainly be paid for by the school is for the examinations that the student takes. Those cost about £300 to £400 per set of examinations and, as those now have to be announced, that is the very least that should be provided for them.

In general, I warmly support the report. This is a major step forward in the education system.

[Lord Agnew of Oulton]

I thank my noble friend Lord Baker for his supportive comments, and I agree with everything that he said. There are 30 recommendations in the Timpson report, and we are broadly supportive of all of them. However, Timpson stresses that we need to be careful about how we implement any of his recommendations and that we should have careful consultation with key stakeholders, parents in particular, on how we take matters forward. For example, by making permanent exclusions more difficult, we do not want to push the problem into another bucket such as off-rolling or misuse of the different attendance codes. But we all share the objective that we want to reduce the problem in the system.

[Lord Touhig (Lab)]

My Lords, 70% of pupils excluded from school have special educational needs. In their response to the report, the Government have promised to review the Special Educational Needs and Disability Code of Practice by the end of next year. I am not clear from the Statement whether that review will be included in the work to be undertaken by Tom Bennett. Specifically, on the review of the SEND code of practice, can the Minister say what the terms of reference of the review will be, who will conduct it and who will be invited to give evidence?

[Lord Agnew of Oulton]

My Lords, I do not have a specific answer to those questions at the moment. I am happy to write to the noble Lord. The Tom Bennett behaviour initiative will be available to the whole school system. The idea is that we will have behaviour support networks available to all schools; that is why, again, it will not be rolled out until next year.

[The Earl of Listowel (CB)]

My Lords, I too warmly welcome this report and the Government’s support for its recommendations. Will the Minister look carefully at investment and continuing professional development for teachers? It is so important that teachers maintain empathy for their pupils. An opportunity for good professional development, allowing teachers to stand back and try to put themselves in the shoes of their students, can prevent them feeling demoralised and attacked by pupils; rather, they may feel sympathetic and want to work for them. I ask the Minister also to look again at the punitive role of Ofsted. When I have raised this with him in the past, he has said that it is part of our cultural identity in this country. The continentals have a much more supportive inspectorate. Reducing the pressure—and the culture of pressure—on schools will help ensure that fewer children are excluded in the way that we are seeing far too often. I look forward to the Minister’s response.

[Lord Agnew of Oulton]

My Lords, to answer the noble Earl’s question on teacher training, we are increasing awareness of the training available on such things as having mental health leads in schools. We have also committed to a programme of training 200 psychiatrists and psychotherapists to go into the school system. We are very aware that we need to increase the skillsets available to schools to deal with the wide range of issues confronting them. I understand the noble Earl’s concerns about Ofsted as an institution. We are trying to create a cultural change here, but I am optimistic that the new framework will move some way to addressing his concerns. We have done a lot. For example, when my right honourable friend became the Secretary of State for Education, he did a joint video with the Chief Inspector of Schools to try to get the message through on issues such as workload and looking at data. It is a piece of work that we will have to continue.

[Baroness Garden of Frognal (LD)]

My Lords, I welcome this report but might the matter of exclusions be a feature of the Government’s relentless concentration on the academic success of schools, which marginalises students with more technical and practical skills and, indeed, those who simply want to be good, rounded citizens? Can the Minister say what happened to the excellent work done by Charlie Taylor, the coalition Government’s expert on behaviour, some seven years ago? He had some great systems for enabling some of the worst offenders to change their ways. He talked about positive measures to improve attendance rather than the very negative message of stopping exclusions.

[Lord Agnew of Oulton]

My Lords, without sounding complacent, I think it is important to give some perspective to the current exclusion rate. It is about the same as it was 10 years ago; it improved but it has got worse in the last three years. I do not want to paint a picture of there being a crisis. I accept that we are concerned, and we are doing something about it, but it would be wrong to suggest that there is a crisis. Regarding attendance, we have made quite a lot of improvement. The persistent absence rates have dropped quite a lot. Looking again at a 10-year ranking, in 2006-07, 24.9% of secondary schools had persistent absence of more than 10%; that is now down to just under 14% of secondary schools, and that is while raising the bar to make it a harder judgment. So attendance is improving. I do not have the specific information on Charlie Taylor’s work; I am happy to write to the noble Baroness. The Tom Bennett review will be in a similar vein, showing schools best practice and how to manage children in these situations.

[Baroness Morris of Yardley (Lab)]

My Lords, I welcome the report. I think Edward Timpson is highly regarded across all sides of the House, and this is a thorough piece of work on which we should build. Having said that, I am disappointed in the Government’s response. It seems very woolly, with rather a lot of waffle. The recommendations tend to be about rewriting guidance and setting up a committee. Looking quickly through them, I honestly cannot see much that is new. There is not one big—or even small—idea that I would see as fresh thinking in response to a good report.

In particular—I ask the Minister to have a look—behaviour partnerships were abolished in 2010 by Michael Gove as part of his bonfire of the quangos. As the Minister is setting them up again, perhaps he could look at the good practice followed under the last years of the Labour Government. If my memory serves me right—it may not—I think the Labour Government also had a proposal whereby the examination performance of excluded children stayed for two years with the school from which they had been excluded. That must have been got rid of at some point by the Conservatives or the coalition. Can the Minister reassure us that he will learn from that and will not reinvent the wheel?

My main point is that I am not sure whether or not we are talking about fixed-term exclusions. When we talk about 85% of schools not excluding, that does not include the many schools who have fixed-term exclusions; these run at 500 times more than permanent exclusions at some 2,000 per day. Will the Minister tell us whether what he has said applies to fixed-term exclusions? I am interested in two figures. First, how many children who are eventually permanently excluded have already gone through a series of fixed-term exclusions? I bet it is almost every single one of them. Secondly, does he have the figures on exclusion by type of school—that is, maintained schools and academies?

[Lord Agnew of Oulton]

The noble Baroness, Lady Morris, asks about the difference between permanent and fixed-term exclusions. She is right; I have been quoting the figures for permanent exclusions, because that is the final sanction that exists for a school.

[Baroness Morris of Yardley]

I asked how many of the children given fixed-term exclusions were then permanently excluded.

[Lord Agnew of Oulton]

I accept that there is a ladder of escalation, which starts with sanctions that gradually move up in their impact. I disagree slightly with the noble Baroness on the strength of the recommendations in the Timpson report. For me, the stand-out recommendation is number 14:

“DfE should make schools responsible for the children they exclude and accountable for their educational outcomes”.


This has the potential to be a very powerful change, but Timpson has cautioned us to be careful in how we implement it, because of the adverse behaviours that it might create.

[Lord Addington (LD)]

My Lords, the report and the Government’s responses to the key recommendations keep talking about special educational needs and integration of the approach. Of course, I applaud this; I remind the House of my declared interests. However, unless you have some form of recognition and identification earlier on in the system, you will always be playing catch-up. We know that many of the groups we are talking about will have unidentified, or undealt with, special educational needs.

The report and the Government’s response talk about enhancing the role of SENCOs. SENCOs are one person in the system and they will not be experts in every condition they have to deal with. Will the Government make sure there is better access at a school or at academy-chain level to expertise in those commonly occurring conditions? We know that three children in every class will be dyslexic, one will be dyspraxic and several will have ADHD. Unless you have that expertise on hand, it will always be a problem and we will always be playing catch-up. If you go to the local authority, there will be terrible problems with co-ordination. How will the Government start to address this?

[Lord Agnew of Oulton]

Again, I would like to provide a certain amount of moderation. This is not to be complacent but, for example, about 10 years ago, children with a statement were three times more likely to be excluded compared to being 1.6 times more likely to be excluded in 2016-17. The picture is not quite as bleak as the noble Lord—

[Lord Addington]

My Lords, I said that the main problem is for those with unidentified special educational needs, or those whose needs are identified later on. Often it is those people who have marginal problems, which are magnified by their social condition.

[Lord Agnew of Oulton]

The noble Lord will be aware of the training programme we have rolled out over the last three years. We are very focused on this and the number of people trained to identify dyslexia, dyspraxia and so on in the school system has increased dramatically over the last three years.

[Lord Judd (Lab)]

My Lords, the encouraging news of this review is long overdue. For nine years, I was privileged to be president of YMCA England. What I discovered and learned in those years was the complexity of the problems facing young people who were vulnerable and in difficulty. When I talked with some of those in young offender institutions, their lives were such a nightmare that it was not surprising that they were in such institutions. It is wise that the Government intend to keep the terms of reference for this inquiry as wide as possible because one has to look at the complexities of the situation, including the social context of the community in which the school exists.

One also has to look at the whole issue of the systems we use to monitor education—league tables, and so on. There are too many examples of ill-informed heads putting children out because they might affect the place that the school secures in a league table. All these issues must be looked at if the review is to be of use. One of the most important things we need to look at, and I hope the review will do so, is the context of society as a whole. What are the values that young people see operating in society and how does this help them to re-establish themselves as positive members of society, who contribute to it?

[Lord Agnew of Oulton]

The noble Lord is right: this is an immensely complex area. Trying to unpick it and come up with a coherent way of dealing with all the issues that spring from it is very difficult. For example, Afro-Caribbean children have a substantially higher chance of being excluded than white working-class children, but we are not clear why. That is just one example.

On children understanding the values of our society, that is why we have worked so hard on the relationship and sex education legislation; we were able to bring that through with the support of this House very recently. That will help to reinforce the values that children should learn. Equally, we are trying to tackle that with the work we are now doing on the consultation on home education and children who are not in school. All these things conflate and our job is to try to bring together a package of initiatives that will improve the outcomes for these very vulnerable children.

[The Countess of Mar (CB)]

My Lords, did the Minister read the article in the Times a few weeks ago about children who come from dysfunctional homes? I have recently had dealings with a young man, a 13 year-old, who ticked every single box in that article. He had been suspended from school, put into isolation and blamed for his condition. He was behaving badly at school. Fortunately, he has a cousin who took him in hand during the Easter holidays and showed him he was loved. He was just seeking love and attention. His mother used him as a lackey and a boot-boy; she did not care whether he went to school, or what he wore there, or whether he was fed. He did not sleep properly and when he went to stay with the cousin at the weekend, all he did was sleep. It is very important for school staff—teachers in particular—to understand the handicaps that these children have to face before they punish them. It is not their fault.

[Lord Agnew of Oulton]

The noble Countess, Lady Mar, is absolutely right. Last week, I visited Christ’s Hospital School in Sussex. I do not know if noble Lords are familiar with it, but it is a boarding school where about 70% of the pupils are in receipt of some sort of means-tested bursary. They spoke about a girl there who I will call Anna, who is 16 years old. She came from a very broken home and does not want to see her parents again. She is a potential Oxbridge candidate. She has nowhere to go in the holidays and, because of the complexity of safeguarding rules, she cannot stay with one of the teachers in the school, so she has to stay in a YMCA hostel. I felt that was very dispiriting. It gives a snapshot of just how complex the areas we are dealing with are. We are doing all we can to try to help; that is my main reason for being in this job. It is the children who are most disadvantaged who need our help the most.

[Lord Lexden (Con)]

Will greater support and guidance be available to the parents of children excluded or in danger of being excluded under the initiatives that are to follow the Timpson review? Does my noble friend agree with the noble Lord, Lord Storey, that the decline of the youth service in certain areas has perhaps contributed to the problems that now exist?

[Lord Agnew of Oulton]

There will certainly be more guidance—for example, for parents considering home schooling. We very much need to uprate the guidance so that they understand the implications of that. As for the youth service, we are doing all we can to try to improve the advice available to young people. For example, a great deal of effort is going in through the Careers & Enterprise Company to try to show them the pathways into skills; the uprating of apprenticeships will give them a higher profile; and T-levels will also help. These are all aimed at children who are less sure of the path into a secure career.

[Lord Shipley (LD)]

My Lords, the Minister talked of the need for a careful consultation—I am sure that is right—but one of the conclusions of that consultation may well be that extra cash is needed. Is any bid being made by the department to the spending review? If there is not a request for additional funding, it could have to top-slice its own budgets, and obviously it is important that any such top-slicing be avoided.

[Lord Agnew of Oulton]

I assure the noble Lord that we are making a very bullish bid.

[Baroness Newlove (Con)]

My Lords, I welcome this report, but after listening to my colleagues in the House of Lords I think there is one area that would help parents: looking at health visitors. We hardly see any health visitors wherever we go. It is good to bring them in to help them to understand the education process.

[Lord Agnew of Oulton]

We have committed to the deployment of mental health leads in schools over the last two years, and they are being rolled out as we speak. Good mental health is an absolute priority. We recently issued the Green Paper on children and young people’s mental health. We are aiming to incentivise and support schools and colleges to identify and train a mental health lead. We are introducing new mental health support teams and are teaching about mental health in the new health education curriculum that will come into place in September next year.

Children’s Rights

Lord Agnew of Oulton Excerpts

Tuesday 30th April 2019 Lords Chamber

[Baroness Massey of Darwen]

To ask Her Majesty's Government what plans they have to develop a cross-departmental action plan to address the conclusions and recommendations of the United Nations Committee on the Rights of the Child's assessment of the United Kingdom in 2016, in order to ensure that all public bodies act to protect and promote children’s rights.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, we remain strongly committed to delivering a framework of actions across government and with key organisations. We aim to continue to embed the importance of children’s rights in policy-making across Whitehall. We have successfully delivered the majority of actions, including establishing a UNCRC action group and launching a children’s rights training package and impact assessment template across the Civil Service. We are on track to deliver outstanding actions, including extending the UNCRC to Guernsey.

[Baroness Massey of Darwen (Lab)]

I thank the Minister for that optimistic response. Does he agree that children’s rights to health, education, justice, security and so on are of supreme importance? Does he further agree that although these areas do not come under one department but go across departments, only the Department for Education has a team of people working on children’s rights? Would it not make sense if every department had a team of people working on children’s rights so that they could talk to each other and develop a coherent plan? We have been criticised by the UN for not having such a plan. Is it not time for action?

[Lord Agnew of Oulton]

My Lords, we do not agree with the substantial machinery of government changes recommended by the UNCRC but we work across government all the time. I have to draw on many government departments for most of the answers that I give to noble Lords in this House. We are well joined up and we continue to emphasise that through initiatives such as the Civil Service learning programme which we introduced last year.

[Baroness Chisholm of Owlpen (Con)]

Perhaps I may ask my noble friend for some specifics about the actions he mentioned in his first Answer. What exactly is happening and what concrete actions are being taken?

[Lord Agnew of Oulton]

My Lords, the civil servants’ guidance that we issued at the end of last year was specifically aimed at supporting civil servants to join up. We created a template for civil servants to enable them to understand the children’s rights impact. We have revised the statutory guidance for working together to safeguard children and we have co-chaired a new action group with the Children’s Rights Alliance for England, CRAE, which brings together all of these issues.

[Lord Storey (LD)]

My Lords, the Minister will know that the committee has called on the UK to urgently review the asylum policy as the UK is the only country in the EU not to permit unaccompanied refugee children to sponsor their immediate family. Given that the Government are searching for legislation to pad out the parliamentary term, will the Minister speak to his colleagues in the other place to see whether they can make time to give the Refugees (Family Reunion) Bill—which has already been passed in this House—its long-awaited Second Reading?

[Lord Agnew of Oulton]

I will certainly take the noble Lord’s suggestion back to the department for consideration. Let me reassure noble Lords that the numbers of children becoming looked after from unaccompanied asylum seekers has remained stable over the past three years. Under Section 20 of the Children Act 1989, local authorities have a statutory obligation to provide accommodation for unaccompanied asylum-seeking children.

[The Lord Bishop of St Albans]

My Lords, the UNCRC states that the best interests of the child must be paramount in all decision making and yet evidence that our Benches are collecting shows that the two-child limit policy is having a substantially negative impact on those families affected by it. In the light of the Government’s obligations under UNCRC, will the Minister undertake to commission independent research into the impact of the two-child limit policy on those families which are affected by it?

--- Later in debate ---

[Lord Agnew of Oulton]

I think the right reverend Prelate might be referring to the limits under the working tax credits. When that provision was brought through last year it was put in place simply to ensure that parents whose financial position had improved did not have a legacy benefit they no longer needed.

[Baroness Lister of Burtersett (Lab)]

My Lords, why have the Government refused to introduce a statutory obligation to conduct a child rights impact assessment for every law and policy relating to children, as recommended by the UN committee?

[Lord Agnew of Oulton]

My Lords, it is important to remember that we are making huge progress on child poverty generally in this country, and therefore that is where our focus is. We have seen some 650,000 children move out of poverty since 2010.

[Lord Hylton (CB)]

My Lords, if the number of asylum-seeking children in this country is stable, will the Minister explain why it has not been possible, so far, to take in the number provided for in the amendment moved by the noble Lord, Lord Dubs, three or four years ago?

[Lord Agnew of Oulton]

My Lords, I will have to seek advice from the Home Office and write to the noble Lord on that.

[Lord Watson of Invergowrie (Lab)]

My Lords, the 2017 Conservative manifesto said:

“Britain should be the best country in the world for children”.


Yet, as other noble Lords have said, today the UNHRC’s recommendation on the child’s rights action group or strategy still remains unfulfilled. The same manifesto also said that child poverty would be reduced but, despite what the Minister has just said, it is going in the opposite direction. Adding insult to injury, last year the role of Minister for Children and Families was diminished from Minister of State to Parliamentary Under-Secretary. In the circumstances, how can the Minister come to this House and tell us that the Government are committed to the interests of children?

[Lord Agnew of Oulton]

My Lords, I respectfully disagree with the noble Lord about child poverty. A child growing up in a home where all the adults are working is five times less likely to be in poverty than a child in a household where nobody works. In 2010, under the old Labour national minimum wage a person would have taken home £9,200 after tax and national insurance. Today, under the national living wage that person would take home £13,700. That is a dramatic increase for that family.

[Baroness Uddin (Non-Afl)]

I note with concern the Minister’s bipartisan dissent on the UNCRC report. Does he in principle agree with my noble friend Lady Massey of Darwen that the Government should take very seriously the ability to provide the very best for children and children’s rights when they co-ordinate across departments, particularly when dealing with special needs children?

--- Later in debate ---

[Lord Agnew of Oulton]

I agree with the noble Baroness. Indeed, as I mentioned, the framework of actions that we have been taking following the observations by the UN in 2016 have been along those lines. We are working with Guernsey to bring it into the convention, and that should happen in the next few months.

Religious Schools: Admission Policies

Lord Agnew of Oulton Excerpts

Monday 29th April 2019 Lords Chamber

[Baroness Bakewell]

To ask Her Majesty’s Government what assessment they have made of the impact of religious schools’ admission policies on those schools.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, many schools with faith-based admissions have diverse intakes. Faith schools do not have significantly different populations of ethnic groups compared to non-faith schools. Admission authorities must ensure that their arrangements are clear, fair and objective and will not disadvantage unfairly a child from a particular social or racial group. Anyone who believes that a school’s admission arrangements are unfair or unlawful may make an objection to the schools adjudicator.

[Baroness Bakewell (Lab)]

I thank the Minister for that Answer. Fifty-two per cent of British adults identify themselves as having no religion, and 53% of rural primary schools are faith schools. Almost three in 10 families in England live in areas where most or all of the closest primary schools are faith schools. What have the Government to say about children effectively being forced into faith schools against their parents’ wishes?

--- Later in debate ---

[Lord Agnew of Oulton]

To reassure the noble Baroness, the voluntary aided scheme is focused on providing the diverse range of places that parents want and is aimed at meeting demand for those places from within particular groups. Where parents are not offered a place at the schools they expressed a preference for, the local authority must offer them a place at another suitable school with places available. Just to reassure the House, in 2018 93% of parents got one of their first three choices of secondary school and 97% of parents for primary school.

[Lord Deben (Con)]

My Lords, I have used faith schools and my children do so. Is it not true that faith schools are extremely popular and are very often overcrowded because people want their children to go to them? Faith schools are the product of the people who first started education in this country and we ought to be very proud of the Catholic and Anglican schools which serve us.

[Lord Agnew of Oulton]

My noble friend is quite right: the largest voluntary-aided schools are Catholic schools. There are some 850,000 pupils in those schools, and 33% of those pupils are from other faiths or none. They get higher results, on average, than the state system and they started free education in this country before the Government.

[Lord Singh of Wimbledon (CB)]

My Lords, does the Minister agree that while it is important to look at the interaction between people of different faiths in choosing the intake of faith schools, it is equally important to ensure that a broad curriculum of religion is taught so that people are taught about other religions in a respectful way and about how to respect those different faiths? The teaching should focus on underlying ethical imperatives common to all faiths.

[Lord Agnew of Oulton]

The noble Lord is quite right. With the help of all Members of this House, we got the relationships and sex education regulations through last week. They underpin the whole concept of preparing children for our very diverse society. To reassure noble Lords on the recent voluntary aided application system, we were very clear in the criteria that anyone applying for it had to address the needs of all pupils in that community, of all faiths and none. They have to prepare children for life in modern Britain and create inclusive environments. Nothing is more important, beyond a good education, than an integrated system.

[Lord Storey (LD)]

My Lords, I am sure the Minister will agree that it is important that children and young people, whatever their faith and whether they have a faith or not, should have an opportunity to learn and socialise together rather than being separated because of their religion. My question is about admission arrangements. Maintained schools, academies and some faith schools have different admission criteria, and because of all these different arrangements it is often difficult for local authorities to find places for pupils, let alone for parents to navigate their way around. How can the Minister make it easier for parents to understand the admission arrangements within their area?

--- Later in debate ---

[Lord Agnew of Oulton]

My Lords, academies are required to put their admissions policy on their websites so that they are quite clear to parents who apply. As I mentioned in response to an earlier question, the vast majority of parents get a school in the top three of the ones they choose to apply to. I mentioned in my opening remarks that the schools adjudicator is there as the final resort for parents who are concerned about admission arrangements. It is very reassuring to know how few objections are raised. In 2015-16, there were 300; in 2016-17, 100; and in the last academic year, 129.

[Lord Lea of Crondall (Lab)]

My Lords, my father was the headmaster of a Church of England junior and infant school for some years. There is a danger of a caricature emerging. Over the last two centuries many village schools were, in practice, schools for everybody but they were Church of England maintained schools—I am sure that the right reverend Prelates will know how that works. On the one hand we have to make sure that there is no question of religion being stuffed down people’s throats, which I think is the implication of some of the questions, and, on the other hand, to recognise that we now have a very diverse society and ensure that the Church of England maintained schools, which are subject to local authority criteria, are not out of place in modern society.

[Lord Agnew of Oulton]

The noble Lord talks absolute sense.

[Lord Polak (Con)]

My Lords, although purporting to promote tolerance, the humanist campaign is in fact aimed at limiting access for people of faith to state-funded education. Does the Minister agree that, rather than give credence to those who want to limit parental choice, we should protect our British values, promote tolerance and respect the rights of parents?

[Lord Agnew of Oulton]

My noble friend is completely correct. One of the most powerful things in our education system is diversity, and faith schools exist simply because there is huge demand for them. As I mentioned earlier, they have a higher level of oversubscription than most other school systems. They are required to teach a broad and balanced curriculum, and they are inspected by Ofsted on that basis.

Relationships Education, Relationships and Sex Education and Health Education (England) Regulations 2019

Lord Agnew of Oulton Excerpts

Wednesday 24th April 2019 Lords Chamber

Moved by

[Lord Agnew of Oulton]

That the draft Regulations laid before the House on 25 February be approved.

Relevant documents: 22nd Report from the Secondary Legislation Scrutiny Committee (Sub-Committee B)

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, I thank the Secondary Legislation Scrutiny Committee for their in-depth consideration and report.

These regulations represent a significant step that will equip children and young people with the knowledge and support they need to lead safe, healthy and happy lives in modern Britain.

The world that children are growing up in is changing rapidly. They are encountering a more interconnected and interdependent world. This presents both opportunities and risks, as children have greater exposure to information, content and people that can and do cause harm. Evidence shows that many parents want schools to help with this. That is why during the passage of the Children and Social Work Act 2017, with strong cross-party support the Government brought forward measures requiring the introduction of compulsory relationships education for all primary school pupils and compulsory relationships and sex education for all secondary school pupils. Having listened to concerns raised about mental health, the impact of the online world and risks related to unhealthy lifestyles, we also took the decision to make health education compulsory in all state-funded schools.

It is important that at the earliest age children are taught the building blocks they need to develop healthy, positive, respectful and safe relationships of all kinds. All of this will be set in the context of, and include, teaching about personal development and virtues such as honesty, integrity, kindness, resilience and courtesy. This will give schools the opportunity to support pupils to develop an inner sense of what is right and wrong, as well as respect for others and for difference. The subjects will drive up the consistency and quality of pupils’ knowledge about physical and mental health. Physical health and mental well-being are interlinked. It is vital that pupils understand that good physical health contributes to good mental well-being.

In developing these subjects, we have received significant input from external organisations and education professionals, as well as the tens of thousands of individuals who contributed to our call for evidence and public consultation. In reviewing responses and determining the final content, we have retained a focus on the core principles for the new subjects. These principles are that the subjects should help keep children safe, help prepare them for the world in which they are growing up—including its laws—and help foster respect for others and for difference. The content included should be age appropriate and taught in a sensitive way, respecting the backgrounds and beliefs of pupils.

In developing the accompanying statutory guidance and required content for these subjects, we believe that we have struck the right balance between prescribing the core knowledge and allowing flexibility for schools to design a curriculum that is relevant to their pupils. Parents and carers are the prime teachers for children. Schools complement and reinforce this role by building on what pupils learn at home. That is why we have taken the decision to strengthen the requirement for schools to consult parents on their relationships and RSE policy by enshrining this in the regulations as well as the guidance. Schools must consult parents on their proposed policy and any subsequent reviews of it, enabling parents to have the time and opportunity to ask questions and share concerns. It is then for schools to decide a reasonable way forward. Ongoing dialogue is important. We recommend that this consultation be carried out annually and have set out in the draft statutory guidance good practice on parental involvement. We expect to share effective examples of parental consultation in our forthcoming supplementary guide.

--- Later in debate ---

[Lord Agnew of Oulton]

My Lords, I am grateful for the many comments on these emotive issues, and will attempt to address them all. I have been asked to be as brief as possible, so I will have a balancing act to do.

I acknowledge the support of the noble Baroness, Lady Massey. She raised the question about the teaching of this in academies and free schools, and I reassure her that these regulations, if passed, will apply to all state schools in England. That is the biggest impact of this statutory instrument. Until now, academies have been asked to teach a broad and balanced curriculum but not specifically to cover the issues raised in this statutory instrument.

The noble Lord, Lord Storey, made a strong point in asking why other issues such as financial education are not included. We tried to give autonomy to schools in the way they construct their curriculums. We need to keep that under review, to be honest with you, but at the moment, this is how the system is working. On the very important issue of unregistered religious schools, it is important to say that it is an offence to run an unregistered independent school, and that we are clamping down on that. We have provided additional funding to Ofsted for inspections of those institutions where we discover them. I am happy to write with some more details on that.

The noble Baroness, Lady Deech, talked about potential hostility to teachers. We discussed that at the Front-Bench meeting earlier today. It is also worth saying that sex education is being taught in many schools at the moment—this is not a sudden change being imposed across the whole school system—but I completely accept her concerns. It will be a matter for schools to ensure that their teachers are properly supported, and we will keep this under close review.

The noble Baroness, Lady Meyer, asked about compatibility with the convention rights. The advice we have is that when laying the regulations for debate, the Secretary of State is expected to certify that in his view they are compatible with the convention rights; he would not have been able to do that with the regulations on the absolute right of the parent to withdraw. I will cover that issue a little later, as it has been raised by several other noble Lords.

The noble Baroness also mentioned the out-of-date Stranger Danger, believing that Clever Never Goes is a better training, something we will certainly take on board. Part of this process will very much be to learn what the best toolkit is to make available to schools as we roll the programme out.

The noble Lord, Lord Cashman, asked about education in issues such as HIV and sexual health. I can confirm that it will be part of the RSE curriculum at the secondary stage, and that it will continue.

The noble Lord, Lord Russell, asked about the quality of training—a subject that came up quite a lot—and the amount of money, on which the noble Lord, Lord Watson, finished. The £6 million is a small sum of money and is only for this current year, so we will bid in the spending review for additional resources. Turning to one of the points raised by my noble friend Lord Farmer, it is also important to stress that this money is very much for good digital resources. That is where we will point some of this money. A number of organisations are already producing some of this information: for example, the Catholic Education Service, the PSHE Association, and the Royal Foundation of The Duke and Duchess of Cambridge and The Duke and Duchess of Sussex. The information is starting to come out and the role of the department is to quality assure it, and to signpost the schools to the resources that we believe are best.

One issue raised in the Cross-Bench meeting earlier was an example of some inappropriate material that was being publicised. I can certainly commit that our department will be rigorous in ensuring that if that sort of thing occurs, we will not recommend it and will use whatever powers we have to make sure that it is not part of the system.

The noble Baroness, Lady Tyler, made a strong point about the regulations being named so as to refer to “Relationships and Sex Education”. As I mentioned earlier, we have been teaching sex education but, until now, often probably quite poorly. The whole point of this instrument is to put relationships at the heart of what we teach children, rather than teaching sex as a slightly disembodied and taboo subject. The two need to come together because, as the noble Lord, Lord Scriven, said at the end, it is about understanding the power of these relationships early on. They can otherwise lead to a great sense of isolation.

The right reverend Prelate the Bishop of Durham raised a number of points. He asked about determining the age-appropriateness of teaching the sex element of relationships and sex education, and the ability to separate the two. I cannot offer him a magic wand for how those two things are separated, but we start with the principle that healthy relationships are born out of more than just the sexual element. Schools will be able to determine that, and we are asking schools to make those decisions themselves because these are nuanced subjects. As I said in my opening comments, we will keep this area under review. We have said that we will review the regulations in three years but if urgent elements become apparent much sooner than that, we will of course look at them more quickly.

The right reverend Prelate also asked about Ofsted, which was raised by several other noble Lords. It has recently consulted on a new arrangement for school inspections but, while it will not be making a discrete judgment on the delivery of RSE, there will be a strong emphasis within the new inspection arrangements on schools ensuring that pupils access a broad and balanced curriculum. That will include the new requirements around these subjects and there will be a new judgment on pupils’ personal development, which is of course very relevant to these areas.

[Lord Elton]

My Lords, my noble friend may be coming to this again later, but I think that we need to have a progress report to the House in a year or two, or three, on how this is all working. I hope that he will take note of that and at least think about it with his colleagues.

[Lord Agnew of Oulton]

My noble friend makes a good point. I will certainly encourage the department to do that. We are all aware that this is a big change. As the noble Lord, Lord Watson, said, it is the first change in two decades. We are dealing with a whole new set of phenomena out there, in the shape of social media and the internet, which we are now starting to tackle head-on. It would be absolutely appropriate for us to review that, so I will certainly take that back to the department.

The noble Lord, Lord Curry, raised a number of points. I will start on sex education with what is covered in relationships education at secondary level and how we know what a child can be withdrawn from. This is at the core of the right-to-withdraw issue. I know that there is some concern from noble Lords about that right to withdraw, but it is absolutely clear that a parent has the right to withdraw other than in exceptional circumstances. My noble friend Lord Farmer was worried that we have not defined those circumstances, but it is extremely difficult to do so, because we are not dealing in a commercial world here. We are dealing with human beings and their emotions, and with different reactions to similar situations. I can assure noble Lords who are worried about the right to withdraw that the guidance is statutory. It cannot be ignored by schools; they must have regard to it and have a very good reason to set aside anything that is in the statutory guidance. Again, we have tried to strike that difficult balance to address the rights of the child and the rights of the parent. We are clear that parents remain the primary educators of children and we absolutely want to stick to that line.

The noble Lord, Lord Curry, also asked about religious groups. We have engaged with the whole spectrum of religious schools. It is of course worth remembering that we have at least 6,000 state-funded religious schools in this country and they have been a very important part of the stakeholder engagement. We have had strong support from the Catholic Education Service, the Church of England and the Board of Deputies. It has been a long process, but I believe we have got to a point where those groups are broadly happy.

The noble Lord, Lord Curry, was also concerned, as some other noble Lords were, about teachers expressing their own views. The noble Baroness, Lady Massey, made an insightful comment in her speech at the beginning about teaching alongside a nun, who obviously had strong views about sexual relationships but she acknowledged that it was still her duty as a teacher to provide an objective and unbiased education on those subjects. That is a very important point: all of us are prejudiced in some form or another, but when teachers are teaching, they have to put aside those personal views and try to give as unbiased an opinion as possible.

My noble and learned friend Lord Mackay raised some important and technical issues, and I will certainly not try to take him on in matters of law. Just to take one or two issues, regarding faith freedoms, in all schools when teaching these subjects the religious background of pupils must be taken into account. Schools with a religious character can build on the core content by reflecting their beliefs in their teaching. In developing these subjects, we have worked with a number of faith bodies, as I have just mentioned, and schools can also consider drawing on their own expertise when delivering those subjects.

My noble friend Lord Farmer was also concerned about the “exceptional circumstances”. I have tried to address that and am very happy to continue dialogue with him on it as we learn more about it. It is perhaps worth restating that a number of schools will start to teach this on a voluntary basis in September of this year. We already have about 1,000 schools which have signed up to the pilot; we expect that to increase and we will learn from their experiences in the process.

--- Later in debate ---

[Lord Watson of Invergowrie]

I thank the Minister for that interesting description of the complaints procedure, but it was not the point that I raised. I was talking about the means available to parents of children who are in an academy as part of a multi-academy trust which has its own governing body. Often, the schools within that do not have their own board of governors or even a committee—call it what you like—to which individual parents can feed in. In the context of these regulations, if we are deciding what is taught in a particular school, that is important. If parents do not have that link—because it is perhaps a manager at the academy trust headquarters making the decision—it is a gap that needs to be filled.

[Lord Agnew of Oulton]

I am certainly happy to write to the noble Lord to clarify that, but I reassure him that each academy school will have a governing body. There may be some instances where a governing body operates over two or three schools if they are small schools, and they may be called academy councils rather than governing bodies, but there is a representative body beneath the academy board—there may be instances that I do not know about, but I would be very surprised. To link back to my opening comments, academies as well as local authority schools will be required to consult parents in their construction of these curricula.

The noble Lord raised the budget issue. I understand that £250 a school sounds somewhat derisory. We will be looking at training for newly qualified teachers and at how we can provide more training as part of that preparation for teaching. We will of course keep a weather eye on the quality of the online materials made available and will gain experience from the pathfinder schools that start teaching this from September this year.

I believe that we all share an ambition to ensure that our children and young people have the knowledge to help keep themselves safe, to be prepared for the world in which they are growing up and to respect others and difference. These regulations give us the opportunity to build a consistent foundation across all schools so that children and young people have the knowledge they need to manage their academic, personal and social lives in a positive way. For the reasons that I have set out, I commend the regulations to the House.

Motion agreed.