Schools: Climate Change Strike

Lord Agnew of Oulton Excerpts

Wednesday 13th February 2019 Lords Chamber

[Lord Greaves]

To ask Her Majesty’s Government what advice they are giving to schools whose students plan to take part in the pupils’ strike on climate change on 15 February.

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

My Lords, we understand the importance of the issue but missing school is not the solution. Absence causes disruption for other pupils and for teachers, as schools seek to ensure that absent pupils catch up with the work that has been missed. Ultimately, if a pupil is absent from school, it is for schools to decide whether to authorise the absence. Advice on recording absence is included in the school attendance guidance.

[Lord Greaves (LD)]

My Lords, is it not the case that today’s pupils and students will be the ones who, over the next 60 or 80 years or more, will suffer the most from the disastrous consequences of climate change unless those of us who are of a rather more advanced age today deal with the matter quickly? Will the Minister give a clear guarantee that the students who decide to take part in the action on Friday on the basis of a personal decision conscientiously made will not be punished or suffer any retribution as a result?

[Lord Agnew of Oulton]

My Lords, as I said in my Answer, it will be for the head teachers of the schools affected to consider whether the absences are authorised. On the other part of the noble Lord’s question, our efforts on climate change are a tremendous success story. According to PwC, we are the fastest G20 country to decarbonise since 2000 and, according to a Drax report, we have been independently assessed as leading the world in decarbonising electricity since 2008 and as being one of the fastest countries to phase out coal-powered generation. All those things will benefit the next generation.

[Baroness Lister of Burtersett (Lab)]

My Lords, could the Government be more creative in their thinking and interpret the strike as an encouraging example of young people’s active citizenship and civic engagement, the implications of which could usefully be explored in citizenship education classes?

[Lord Agnew of Oulton]

My Lords, I do not accept that taking time off school in the middle of term is useful for children. All the evidence suggests that time off school affects their education. We have made tremendous progress in attendance levels over the last 10 years, and in any way validating this sort of behaviour does not help children.

[Lord Hamilton of Epsom (Con)]

My Lords, further to my noble friend’s Answer, can he explain why it is right for children to go on strike during term time at a cost to the taxpayer and to their own education? Why can they not leave these protests until the holidays?

[Lord Agnew of Oulton]

My noble friend asks a very valid question, and it is one that I have asked. Children have 15 weeks of holidays and half-terms in which to demonstrate without incurring disruption and extra workloads for their teachers. An average primary school lesson costs £1,600 and a secondary school lesson about £1,900, so school is where they should be.

[Viscount Ridley (Con)]

My Lords, why do we not encourage children to strike every Friday—about terrorism next week, about overfishing of the oceans the week after and about social media the week after that? It would make the Government very popular if we gave children an extra day off school every week.

[Lord Agnew of Oulton]

As keen as I am to make our Government popular, that is not a route that I advocate.

[Baroness McIntosh of Hudnall (Lab)]

My Lords, I wonder whether the Minister is taking this Question entirely seriously. The question from my noble friend concerning active citizenship is not to be brushed lightly aside. Young people have few enough opportunities to demonstrate that they have understood the issues of the day for them and their generation. This might be one of them, and perhaps the Minister would like to look at it again in that light.

--- Later in debate ---

[Lord Agnew of Oulton]

I understand the noble Baroness’s passion for the subject. We are all concerned about the climate. As I mentioned in an earlier answer, we are ahead of the world in many of the things that we are doing on climate change. Indeed, the Guardian reports that last year the UK was the only country in the EU to reduce its electricity consumption, whereas all the other countries increased it. We are doing an enormous amount. If these children stayed in class, they could learn about some of the things that we are doing. We have science and geography curriculums, and we have citizenship education. Those are all opportunities to learn about these important matters.

[Lord Harries of Pentregarth (CB)]

My Lords, does the Minister agree that citizenship education in this country is unfortunately in a very parlous state at the moment? In many schools, it is simply not being done; in others, it is being done very badly. I will follow up on the question from the noble Baroness, Lady Lister. Without supporting strike action, perhaps we could encourage the headmasters of the schools where children go on strike to engage more fully in citizenship education, so that their pupils will know how to make a difference.

[Lord Agnew of Oulton]

To give the noble and right reverend Lord some reassurance, I say that we have recently issued new guidance for Ofsted inspections and all these points are being moved up the profile for children. Today’s first Question—it showed the House working at its best, with cross-party debate—was about the use of plastic, which is something children can be much more active in. How many young people do noble Lords see on the Tube drinking bottles of water which are then thrown away? Young people can actively participate in that, much more than on long-term climate change, which we are already dealing with.

[Lord Storey (LD)]

My Lords, first, can we applaud the fact that young people really care about this issue? We quite often moan that they do not bother about anything. Secondly, I remind the Minister that his former Secretary of State, Mr Gove, tried to remove climate change from the curriculum. It was thanks to Ed Davey in the environment department that we won that battle. Finally, given that this is such an important issue, why do we not have a national climate change day, when schools and communities could discuss this important topic?

[Lord Agnew of Oulton]

My Lords, it is up to schools to find the specific parts of their curriculum. We announced £10 million of investment to support schools to share best practice on behaviour management, and indeed on matters of this kind.

Teacher Recruitment and Retention Strategy

Lord Agnew of Oulton Excerpts

Tuesday 29th January 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 as a Statement the Answer given yesterday in the other place in response to an Urgent Question on the Government’s teacher recruitment and retention strategy. The Statement is as follows:

“Last year, we recruited over 34,500 trainee teachers into the profession—over 2,000 more than the year before—but the growing number of pupils means that we need even more teachers at a time when we have the most competitive labour market on record. Today, the Government have launched the teacher recruitment and retention strategy, outlining our priorities ahead of the spending review. First, we are creating the right climate for head teachers to establish the right cultures in their schools. Secondly, we are transforming the support for early-career teachers. Thirdly, we are building a career offer that remains attractive as teachers’ lives and careers progress. Fourthly, we are making it easier for great people to become teachers.

At the heart of the strategy is the early-career framework. Developed with teachers, head teachers, academics and experts, and endorsed by the Education Endowment Foundation, it underpins what all new teachers will be entitled to be trained in at the start of their career, in line with the best available evidence. The early-career framework will underpin a fully funded two-year package of structured support for all early-career teachers, including additional time off-timetable for teachers in their second year and fully funded mental health training.

By the time the new system is fully in place, we anticipate investing at least an additional £130 million every year to support the early-career framework delivery in full. This will be a substantial investment, befitting the most significant change to the teaching profession since it became a graduate-only profession. In addition, the recruitment and retention strategy outlines how the Government are going to create the right climate for head teachers to establish supportive cultures in their schools, where unnecessary workload is driven down. This includes consulting on replacing the floor and coasting standards, with Ofsted’s “requires improvement” as the sole trigger for an offer of support.

The recruitment and retention strategy, including the early-career framework, has been developed closely with the sector. Its publication marks a crucial milestone for the profession, as well as the start of a conversation between government and the profession about how best to deliver on the promise of this strategy”.

[Lord Watson of Invergowrie (Lab)]

My Lords, I thank the Minister for repeating the Statement, and welcome much of the strategy, as well as the fact that the teaching unions were fully involved in formulating it. It was certainly a long time in the making. The Government published their response to the Workload Challenge consultation four years ago next month, and the Secretary of State promised this strategy 10 months ago.

With official figures showing that teachers leave the profession at the same rate as they enter it—and with secondary school rolls due to rise by 15% in the next six years—we welcome the clarification from the Schools Minister yesterday that the £130 million annually pledged to support the strategy is indeed new money, but we shall watch closely to ensure that that commitment is delivered.

I have two questions for the Minister on issues with which I am sure he will be familiar, as they relate to academies. First, will the requirement in the early-career framework to give second-year newly qualified teachers time off-timetable be extended to every school, including academies? Secondly, the plans for a teaching school review are vague, but it seems the Government want to hand their responsibilities over to multi-academy trusts. Can the Minister say how schools that are not part of a MAT will be able to participate in these collaborative partnerships?

Finally, there is the elephant in the room in this whole debate: teachers’ mental health, which is in crisis, with studies showing that 40% of teachers are on medication. You cannot have a meaningful policy on retention and recruitment—I have advisedly reversed the order because in many ways retention is more important—without properly addressing mental health issues encountered by teachers. The Statement makes passing reference to fully funded mental health training, but what does that mean? Does it refer to teachers’ own mental health or that of their pupils? Even that brief reference relates only to early-career teachers. What do the Government have to say about support for those whose careers have developed further than that, and where is the issue of mental health in the strategy itself? I have been unable to locate it where it most sensibly should have been placed: in Chapter 3 or, failing that, Chapter 2—but no. It cannot be assumed that workload is the sole contributing factor. Making assumptions is always dangerous, and failure even to acknowledge mental health is more dangerous still, not just for the valued professionals who are our teachers but for the children to whom we entrust them.

I accept that the Minister may be unable to respond to all these issues, but we believe they are important and I ask that he writes to me to set out the Government’s position, if that is more convenient.

[Lord Agnew of Oulton]

I thank the noble Lord for his questions. Dealing with the ones that I can address straight away, I reassure him that academies will be included in the early-career framework. This is a strategy for the entire state-funded system.

Regarding the question on teaching schools, we are reviewing this at the moment and have not fully completed our thinking. One issue of concern to us is that there are too many teaching schools that between them are not receiving enough money to meaningfully engage with the surrounding areas that they are being asked to help. We are looking to rationalise that. We hope that good multi-academy trusts will play a role in that, but we are certainly not seeking to exclude good schools.

I agree with the noble Lord that retention is more important than recruitment, because there is no point pouring people into a bucket with a hole at the bottom of it. We have given a lot of consideration to how we improve retention. A big problem is the workload and how it is being imposed, particularly on young teachers. We are aware from the figures for those leaving the profession that the percentage of younger, newly qualified teachers leaving the profession is one of the highest categories. We are working on that. There are several areas of concern; for example, the pernicious expectation that young teachers should be responsible for planning their own lessons, when we want to encourage schools to provide much more support.

I shall write separately to the noble Lord to address his concerns on mental health.

[Lord Storey (LD)]

My Lords, I am grateful to the Minister for his Statement, in which he gave the context and rationale for the teacher recruitment and retention strategy that was published yesterday. I am delighted that the Government have worked with the co-signatories listed on the inside cover. The tone of the strategy is very positive.

I do not agree however, that it is a full national strategy, as there is more work to be done. How are middle leaders to be developed, and do those who manage MATs need knowledge and perhaps experience of how schools work? While the partnerships in the document reflect a new beginning for schools, what role do the Government see for local authorities, which, after all, are the largest employers of teachers? What a pity they were not involved in the formation of the strategy.

The strategy starts by stating that,

“there are no great schools without great teachers”.

Hear, hear.

[Lord Agnew of Oulton]

My Lords, the focus is on early-career teaching at this stage. We have outlined four key areas. One is funding, which will allow teachers in their second year to reduce their timetable by 5%. We are encouraging a reduction in teacher workload, which I covered a moment ago, and a more diverse range of options for career progression, which will help teachers further along in their career. We want to continue to make sure that teaching is considered a great career for those coming into it. We launched an initiative last year called Discover Teaching. Some 13,000 potential recruits have been through that system.

We need to see how the first phase of this programme evolves. We are rolling out some pilot areas in September next year: Bradford, the north-east and one other area which I shall find in my notes in a moment. We will learn from our experience of how those work before we implement the programme across the country.

[Lord Pickles (Con)]

I have always been quite surprised at the lack of support for new people entering the teaching profession, compared with other professions. My noble friend has spoken about some of the burdens. Can he talk a little about the positive help that the new strategy will give to newly qualified teachers in the first couple of years?

[Lord Agnew of Oulton]

Yes, as I mentioned a moment ago, newly qualified teachers in their second year will have 5% taken off their teaching timetable—that is in addition to the 10% taken off the timetable in the first year. High-quality, freely available curricular and training materials will be designed to complement the early-career framework. There will be funded early-career framework training programmes and support from a trained mentor, including funding to take into account the additional call on mentors’ time in the second year of induction.

[The Lord Bishop of Ely]

My Lords, I am grateful to the Minister for his Statement and for this way forward. First, he knows that the Church of England runs many small rural schools, and recruitment and retention is always a creative challenge. Have the Government considered how the strategy is to be rural-proofed for full application across the country? Secondly, Chapter 3 talks about further leadership development. Can the Minister tell us whether the Government are going to continue to encourage bodies such as the Church of England Foundation for Educational Leadership in developing professional qualifications for middle leaders and heads of MATs?

[Lord Agnew of Oulton]

I share the right reverend Prelate’s concerns about rural schools. We have particular funding pots within the overall formula—sparsity funding, for example—which give a typical small rural primary school an additional £135,000 a year and a small secondary school £175,000. We are committed to the various ongoing training programmes. Only this morning, I was addressing a group of some 80 people involved in professional development training and encouraging them in what they were doing. I absolutely support what the right reverend Prelate has said.

[Baroness Morris of Yardley (Lab)]

My Lords, I broadly welcome the announcement. There is a lot in it that offers hope for the future. The challenge will be in implementing it. I think it is overclaimed. I do not think it is the biggest change since teaching became an all-degree profession. Indeed, there are not many individual proposals that have not done the rounds before, so it is worth learning from them. The advanced skills teacher has been redesigned under a different title.

I have two questions. I very much welcome the protected time that will be offered for new teachers. I listened to what the Minister said about the amount of money that will be put into the system. Can he confirm that it will be ring-fenced when it gets to school level? Otherwise, in times of diminishing budgets, it will not get spent on the purpose for which it was intended. Secondly, how is he going to overcome the problem of making excellent schools that are not academies part of the school-led improvement system if he is going to give a lot more power to multi-academy trusts?

[Lord Agnew of Oulton]

I will have to write to the noble Baroness to confirm whether the money will be ring-fenced at school level. Certainly, our preference is to give autonomy to schools, but I will check on it and come back to her. Support is aimed beyond academies at all state schools. Only just over 50% of pupils are in academies today, so it is not our intention to see those still in the local authority system left behind.

Children: Special Educational Needs

Lord Agnew of Oulton Excerpts

Tuesday 22nd January 2019 Lords Chamber

[Lord Blunkett]

To ask Her Majesty’s Government what assessment they have made of whether the resources allocated in the October budget to support children’s services will provide sufficient additional funding to meet the needs of children with special educational needs who are not currently in receipt of support through Education, Health and Care Plans.

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

My Lords, the resources allocated in the autumn Budget for children’s services support were not intended to make specific provision for children with special educational needs. We provide funding for local authorities to support such children through the dedicated schools grant. Core schools funding will be more than £43.5 billion next year. The national funding formula uses a range of factors which estimate the number of children with additional needs to allocate this funding.

[Lord Blunkett (Lab)]

My Lords, I welcome the £350 million over the next two years, which the Minister decided not to mention—God bless him. But when we think back to the passage of the Children and Families Act under the coalition, there was all-party and no-party support for the idea that those who did not actually need to get a statement would be supported both in open education and in special schools. Now we have a position where people are desperately struggling, including a blind child going to court here in London this week who is struggling to get into open education. In Sheffield there is an effort to get 18 and 19 year-olds through the barrier that stops them carrying on receiving funding. Surely now it is time for all of us to require the Chancellor of the Exchequer in the forthcoming spending review to meet the £1.6 billion shortfall and ensure that children and parents do not have the fear and the struggle they have at the moment to get the support they need to be properly educated.

[Lord Agnew of Oulton]

My Lords, first I compliment the noble Lord on all he has achieved in his career, starting with a disability. It should be an inspiration to all the children in the system at the moment. I can confirm that the Government are completely committed to helping these vulnerable children. Spending plans beyond 2019-20 will be set at the next spending review, but we are committed to securing the right deal for education, including for those children and young people with special educational needs. More specifically, we are providing education, health and social care teams with legal training. SEND inspections are identifying good practice and where improvement is needed. Parent/carer forums are promoting the engagement of families and putting them at the heart of this issue.

[Lord Addington (LD)]

My Lords, does the Minister not agree that the vast majority of those with special educational needs should not be considered for education, health and care plans because they have moderate or lesser degrees of difficulty? These can be dealt with only by making sure that school staff, teachers and teaching assistants, are properly trained. That will save money all round and make the young people’s lives better. What are the Government doing about continual professional development for those people already in the system so that we can meet their needs without their having to go to court?

[Lord Agnew of Oulton]

My Lords, I completely agree that the first priority is to try to keep children with special educational needs in mainstream education unless they have very severe challenges. To give an example of what we are doing to improve that, we are funding the Autism Education Trust to deliver awareness training for education staff, and we have trained 195,000 people in this programme.

[Lord Low of Dalston (CB)]

My Lords, there appears to be particular difficulty in funding places for children with special needs at special schools—above all when they are residential and may be more expensive. Would the noble Lord not agree that it is vital that funding should be found so that children with special needs receive the most appropriate education?

[Lord Agnew of Oulton]

I agree with the noble Lord that residential special education is extremely expensive. One of our current problems is that local authorities tend to send a lot of children out of area to expensive residential solutions. We are trying to deal with this by increasing the number of specialist free schools around the country; we announced a £50 million capital funding pot in May of last year, bringing the total to £265 million, and in March we announced sponsors for 14 new special schools. In the announcement in December, to which the noble Lord, Lord Blunkett, referred, we also agreed to remove the cap on applications for new special and alternative provision free schools.

[Lord Storey (LD)]

My Lords, the Minister will perhaps know that up to 2,000 young people on education, health and care plans have received no provision at all. Increasingly, parents are taking legal action against local authorities. Are we not in danger of replicating what is happening in the National Health Service, where litigation costs have become astronomical?

[Lord Agnew of Oulton]

The noble Lord is right that we are concerned about tribunal costs—indeed, he has asked a Question on this subject that will be taken in a couple of weeks’ time, so we will be able to deal with it in more detail then. Last year, we introduced a new measure to see how many appeals were going to tribunals: it showed that, of all the decisions made in the year by local authorities, only 1.5% were appealed by parents, and a number of authorities are seeing zero or near zero appeals. So the challenge for us is to spread the good practice of those local authorities that have very low levels of appeal, to ensure that those which are less good are learning.

[Lord Watson of Invergowrie (Lab)]

My Lords, it is no surprise at all that the Minister did not refer in any of his replies to the fact that the Ofsted annual report, published last month and looking at SEND provision, painted a bleak picture. It said that children were being failed by the education system. Amanda Spielman, the Government’s own Chief Inspector of Schools, said:

“One child with SEND not receiving the help they need is disturbing enough, but thousands”—


which is the case—

“is a national scandal”.

And yet the Minister makes no response. At least she provoked the £350 million that my noble friend Lord Blunkett mentioned. But, as he also mentioned, the local authorities are in no way assuaged by that. They have estimated that that amount is less than a third of the deficit in special needs funding which they will be facing by 2021. At least this dysfunctional Government will be history by then. My question for the Minister is this: what would he say to the families of the 2,000 children to which the noble Lord, Lord Storey, referred, who have EHC plans but who are still not receiving any provision from them?

[Lord Agnew of Oulton]

The noble Lord is taking a figure rather out of context. It is simply wrong to suggest that they are not receiving education; this category is used for several situations, such as when pupils are already in one school but waiting for a place in another, or are over 16 and waiting for a place at a college or sixth form. Some of those deemed to be awaiting provision may also be older and have recently taken up employment, and a decision to end their EHC plan is in the process of being made.

Education: English Baccalaureate

Lord Agnew of Oulton Excerpts

Monday 21st January 2019 Lords Chamber

[Lord Black of Brentwood (Con)]

My Lords, I beg leave to ask the Question standing in my name on the Order Paper. In doing so, I declare an interest as chairman of the Royal College of Music.

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

My Lords, the Department for Education publishes school performance tables each year. Since the EBacc performance measure was first introduced in 2010, the proportion of pupils entering the EBacc has increased from 22% in that year to 38%. Research has shown that following an EBacc curriculum can increase the probability of pupils staying in full-time education and allows them to take facilitating subjects at A-level.

[Lord Black of Brentwood]

My Lords, I thank my noble friend for that Answer, but is not the truth that the EBacc is fundamentally flawed? The Government set a target of 75% of state-school pupils to sit it by 2022 but last year, as he said, only 38% did so. That figure has been completely static for five years and shows no sign of increasing to anywhere near the target. At the same time, the EBacc is destroying arts and creative subjects in state schools, with take-up of GCSEs in art, design and technology, drama, performing arts and, perhaps most worryingly, music—in other words, all the subjects needed to start a career in the creative economy—significantly down. That is a lose-lose scenario: all pain, no gain. Does my noble friend agree with Margot James, the Minister of State at the DCMS, that the impact on music and creative subjects is “very concerning” and that the EBacc bears some responsibility for that? If so, what will the Government do about it?

[Lord Agnew of Oulton]

I am afraid that I disagree with my noble friend. The EBacc has been transformational, particularly in helping disadvantaged pupils. In 2011, only 8.6% of disadvantaged pupils sat the EBacc, while in 2017 the figure had risen to 25.4%. As I said in my Answer, we know that this is of direct benefit to the number of disadvantaged pupils able to get into good universities. I reassure him that the hours spent teaching music have barely changed over the past seven years. Indeed, in 2010, 3.1% of teachers taught music while last year it was 3%. There were 2.4% of teaching hours given over to teaching music in 2010 and it was 2.3% last year. We have put great emphasis on the arts and do not feel that they are disadvantaged by the EBacc.

[The Lord Bishop of Worcester]

My Lords, one does not need to be an avid follower of the news to realise the huge impact that religion has for good and for ill geopolitically in our world. That is happening at the same time as we see a level of unprecedented and increasing religious illiteracy in our own society. Does the Minister regret the exclusion of RE from the baccalaureate, given the drop in numbers studying the subject at GCSE? Would its inclusion not assist in community cohesion as well as in an understanding of our world?

[Lord Agnew of Oulton]

I do not agree with the right reverend Prelate that we should include religious education in the EBacc. There is tremendous demand from various quarters to include a number of different subjects, but we are adamant that all schools should teach a broad and balanced curriculum. That is further emphasised by the changes to the Ofsted inspection framework that will come into force in September. It will put particular emphasis on academies, which have not had the same level of requirement placed on them previously. However, they will now be judged in inspections on the teaching of a broad and balanced curriculum, which will of course include religious studies.

[Lord Watson of Invergowrie (Lab)]

My Lords, following in the vein of the comments of the noble Lord, Lord Black, I offer the Minister a quote:

“Design and technology is an inspiring, rigorous and practical subject, Using creativity and imagination, pupils … draw on disciplines such as mathematics, science, engineering, computing and art … High-quality design and technology education makes an essential contribution to the creativity, culture, wealth and well-being of the nation”.


I found that earlier today on the Department for Education website yet, since the introduction of the EBacc, GCSE entries for design and technology have fallen off a cliff by more than 50%. That is largely the result of government ideology, which now dictates that studying geography is somehow of greater relevance. I wonder if the Minister can explain the logic of that and, more broadly, how adopting the curriculum of a 1950s grammar school is likely to serve the needs of a post-EU economy and of our ever-changing working life?

[Lord Agnew of Oulton]

My Lords, there has indeed been a decline in the proportion of pupils studying design and technology, but great changes have been made to the subject. As I mentioned in response to a Question last week, we have created a different and additional subject called food preparation and nutrition, which has attracted 46,000 entries. It was part of the old design and technology course. We have worked with the James Dyson Foundation, the Design and Technology Association and the Royal Academy of Engineering on the content of the design and technology curriculum. However, in the spirit of collaboration with the noble Lord, I shall quote an eminent left-wing academic on the sociology of education, Professor Michael Young of UCL, who says that social justice demands that children from low-income backgrounds have as much access to knowledge as their advantaged peers.

[Baroness Garden of Frognal (LD)]

My Lords, I will follow on from the question put by the noble Lord, Lord Black. Schools are currently rated and funded largely on academic criteria; that is, EBacc, GCSE, A-level and university entrance. However, the country is facing an acute shortage of people with creative and technical skills. What are the Government doing to incentivise schools to encourage not just their EBacc pupils but those who are technically and creatively skilled, to ensure that they fulfil their potential?

[Lord Agnew of Oulton]

My Lords, we have put great emphasis on the technical aspects of education through apprenticeships and T-levels. We have also carried out substantial reforms to technical education and the qualifications that go with it. In the past two years we have introduced technical award entries, which are designed to be more practical in their teaching, while in 2017-18 some 194,000 pupils entered for these vocational subjects. They include practical studies such as business, which had 29,000 applicants, while information communication technology had 51,000.

Education: Art and Design

Lord Agnew of Oulton Excerpts

Thursday 17th January 2019 Lords Chamber

[The Earl of Clancarty]

To ask Her Majesty’s Government what steps they are taking to encourage the teaching of art and design in schools.

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

My Lords, the Government want children to be taught a broad and balanced curriculum up to the age of 14. During this time, children should be exploring the widest possible range of subjects, including art and design. Ofsted is currently reviewing its inspection arrangements and launched a consultation yesterday on proposals for a new inspection framework. These proposals will place a strong emphasis on schools providing a broad and balanced curriculum for all their pupils.

[The Earl of Clancarty (CB)]

My Lords, from the decline in arts teaching in primary schools, as described in a new Fabian Society report, to the EBacc’s exclusion of the arts, students are increasingly not receiving the balanced education that they deserve and is necessary for the future of our creative industries. Art and design is under the additional pressure of not attracting ITE bursaries, unlike other subjects which exceed their trainee targets. Will the Government address that unfairness?

[Lord Agnew of Oulton]

My Lords, we clearly need to prioritise our bursaries budget so that we can incentivise applications in subjects where it is hardest to attract applicants. The vacancy rate, though, for art and design teachers as a percentage of teachers in post is lower than for music; indeed, over the last two years we have seen an increase in the number of applicants for both art and design and drama.

[Lord Baker of Dorking (Con)]

My Lords, is the Minister aware that GCSEs in design and technology have fallen by 30%, which is disastrous? I therefore welcome the support for university technical colleges because our 14,000 students do technical subjects at 16 to 18. Does he welcome the new Ofsted policy from Amanda Spielman, under which in the future Ofsted will concentrate less on exam results and more on a broad and balanced curriculum? This is good for art, music and design and technology.

--- Later in debate ---

[Lord Agnew of Oulton]

I agree with my noble friend and section 26 of the consultation document addresses inspections directly. It will accelerate inspections where concerns are identified about the breadth and balance of the curriculum. Paragraph 155 says that inspectors will consider the extent to which the school’s curriculum sets out the knowledge and skills that pupils will gain at each stage. Ofsted will also consider the way that the curriculum selected by the school is taught and assessed, to support pupils to build their knowledge and apply it as skills.

[The Lord Bishop of London]

My Lords, high-quality arts education as part of a broad curriculum has been shown not just to support our creative industries but to improve academic achievement and enable children to look at problems in different ways. In the light of Ofsted’s consultation on its new framework, which looks at quality, intent and impact in the curriculum, will the Minister say how this Government will ensure that there is no reduction in pupil funding in real terms? Good art education requires good teachers.

[Lord Agnew of Oulton]

The right reverend Prelate is quite right that a broad and balanced education, which includes the arts, is crucial to prepare children for their future lives. I am sure that all noble Lords will join me in congratulating Harris Westminster Sixth Form today, where 37 Oxbridge offers have been announced. That is the most incredible performance when we consider that 13 of these children were on the pupil premium, two have been in care and 14 were from ethnic minorities. A major reason in their being able to get there was that they had a broad and balanced education on the way through.

[Baroness McIntosh of Hudnall (Lab)]

My Lords, in his answer to the noble Earl, the Minister referred to vacancy rates in music and drama. Can he tell the House how many schools in the maintained sector no longer have a specialist music or drama teacher of their own? If he cannot tell me, perhaps he could write to me with that information.

[Lord Agnew of Oulton]

I am happy to write to the noble Baroness on that specific subject, but I reassure her that, in primary schools, broadly the same amount of time is spent teaching arts as is spent teaching history and geography. Indeed, the number of pupils taking GCSE art and design was broadly the same last year as in 2009-10: 26% then compared to 27% last year.

[Lord Addington (LD)]

My Lords, will the Minister consider that we are having to import people skilled in design and technology? Art and design is the gateway qualification, particularly at GCSE. Would it not be in the nation’s direct interest to make sure that we up the number of people taking examinations at this first step?

[Lord Agnew of Oulton]

My Lords, we have seen a decline in the number taking design and technology specifically, but there has been a major restructuring in the way that exam is taught. We have replaced it with a new food preparation and nutrition GCSE, examined for the first time in 2018. D&T food technology accounted for nearly 30,000 entries in 2017, and a greater number of pupils took food preparation and nutrition and design and technology combined than took design and technology in 2017. So the numbers are not as bad as they look. We offer a bursary for teachers of design and technology of £12,000 for those with a 2.2 or higher, which has been increased from £9,000.

[Lord Lexden (Con)]

Is my noble friend encouraged by the continuing growth of partnership schemes between independent and maintained schools? Has he noted that there are now over 1,200 partnership projects in drama and music? Does he agree that independent schools can do more to make their skills and facilities available to their colleagues in the maintained sector?

[Lord Agnew of Oulton]

I agree entirely with my noble friend. One of the things I have prioritised in my discussions with the independent sector is how it can improve and increase its support for the state education sector. Harris Westminster, which I referred to a moment ago, would acknowledge that it received a lot of help from Westminster School in the extraordinary outcomes it got—but there is always more to be done.

[Lord Watson of Invergowrie (Lab)]

My Lords, I am pleased to hear from the Minister that Ofsted is to look at this, because arts subjects are compulsory in the national curriculum only at key stages 1 to 3. As the noble Earl said, referring to the Fabian Society report, even there they are in decline. Arts subjects in state schools are being squeezed out by the English baccalaureate, yet the artistic, creative and technical sectors of the economy are worth around £500 billion a year and need just such skills in our young people. Will the Minister accept that the English baccalaureate is the problem here, not the issues he raised previously? Will he commit to fundamentally changing that so that—as the noble Lord, Lord Addington, said—the broader curriculum can be performed, allowing us to serve the future needs of our economy?

[Lord Agnew of Oulton]

My Lords, I am afraid I do not accept for one moment the claims made by the noble Lord. Indeed, in 2009 150,000 pupils took art and design, while 141,000 did so in 2018—that with a cohort of 50,000 fewer pupils in the system for that phase. The noble Lord always seems to avoid the number of subjects we stripped out of the curriculum we inherited from the Labour Government. We took out over 3,000 useless subjects that children were being taught, including fish husbandry, practical office skills and nail technology services. We have brought back rigour to the education that children are learning. In 2009 only 365,000 pupils took science. Last year it was 499,000—that is 130,000 children getting a much better education.

Free Schools: Educational Standards

Lord Agnew of Oulton Excerpts

Thursday 10th January 2019 Grand Committee

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

My Lords, I am grateful to my noble friend Lord Nash for calling this debate to provide the opportunity to speak about the successes of the free schools programme and the contribution that they have made to improving educational standards across our country. I thank my noble friend for his continued commitment to the free schools programme and the dedication he showed as Parliamentary Under-Secretary of State for the School System before me. I acknowledge his work with Future Academies, the trust responsible for establishing Pimlico Primary, a free school that has been rated outstanding.

The free schools programme was established in 2010, with the first ones opening in 2011. The Government invited proposers to take up the challenge of setting up a free school—groups which were passionate about ensuring that the next generation is best placed to face the challenges and opportunities that lie ahead. Now, eight years on, the benefits of their hard work can be seen across the country. As of 1 January this year, 444 free schools are open, which will provide 250,000 places when at full capacity. To reassure the noble Lord, Lord Watson, 121 of 152 local authorities now have at least one free school in their area, and we are currently working with groups to establish a further 265 free schools, currently at different stages of pre-opening.

I agree, obviously, with my noble friend Lord Popat that the free school story is a positive one. There is a growing body of evidence to show that free schools are improving educational standards. I will come to that in more detail later. I am pleased that my noble friend highlighted in particular two free schools in Harrow: Pinner High School and Avanti House. These schools are a credit to those involved in setting them up and the teachers who work there.

Ofsted’s latest information shows that, of those free schools that have been inspected, 85% are rated good or outstanding. This is a fantastic achievement, and I congratulate the proposers and teachers who have worked so hard to achieve this. The performance data of free schools speaks for itself. Free schools are among the highest- performing state-funded secondary schools, with pupils at the end of key stage 4 having made more progress on average than pupils in other types of state-funded schools in 2018.

In 2018, four of the top 10 provisional Progress 8 scores for state-funded schools in England were achieved by free schools: William Perkin Church of England in Ealing, Dixons Trinity in Bradford, Eden Girls’ School in Coventry and Tauheedul Islam Boys’ High School in Blackburn. The latter two were opened by Star Academies, which has grown, through the free schools programme, from running a single school in the north-west to running 24 across the country, made up of nine academies and 15 free schools, and it has approval to open two more free schools. Of the 10 free schools that have been inspected by Ofsted, every single one has been rated outstanding. In addition, Dixons Trinity Academy achieved extraordinary results in 2017 and last year with its first set of GCSEs, placing it among the top schools in England for progress achieved by its pupils. Strikingly, the progress score for disadvantaged pupils was higher than for the whole school, including their more affluent peers.

The noble Lord, Lord Winston, asked about some longitudinal analysis on the impact of free schools. I have offered data here and I can offer some more, but I will write to him to bring all these strands together. On a personal note, I happened to be at that lecture at Pimlico Academy six or seven years ago. I was as inspired as the hundreds of children listening to the noble Lord that day. I speak as someone who failed chemistry O-level, but the noble Lord brought that subject alive to me that night.

My noble friend Lord Kirkham and the noble Earl, Lord Listowel, asked about disadvantage. There are numerous examples of free schools helping to improve outcomes for these children. There is the Reach Academy Feltham, which opened in 2012, which is a small all-through free school set up by a group of teachers in an area of high deprivation. Ofsted rated it outstanding in 2014. It was one of the top-performing schools nationally for progress in 2017, with disadvantaged pupils making more progress than other pupils. In 2018, provisional results show that the school has a progress score well above the national average.

I join my noble friend Lord Hill in publicly thanking my noble friend Lord Harris for the achievements of his trust. In just one example, Harris Westminster, which opened in 2014 and with close ties to Westminster School, 40% of its pupils are from disadvantaged backgrounds and 18 pupils got into Oxbridge last year. These schools show that the socioeconomic background does not need to be a barrier to excellence. To reassure my noble friend Lord Kirkham and the noble Earl, Lord Listowel, the whole of the country is benefiting. Last year, 16 free schools achieved outstanding judgments from Ofsted. Eleven of those were outside London, including Birmingham, Lancashire, Slough, Leeds, Coventry and Stockton-on-Tees.

Free schools have challenged the status quo, injecting fresh approaches. We are drawing on the talents and expertise of groups from different backgrounds, giving local communities and parents more freedom and choice so that every child can go to a good school that suits their child’s needs, whether that be a mainstream school with a specialism or an alternative provision or special school. Indeed, I give public credit to my noble friend Lord Baker for his tireless work in creating the UTC programme. In 2016-17, 21% of UTC key stage 5 pupils went on to an apprenticeship, which is three times the national average.

My noble friend Lord O’Shaughnessy made the crucial point that this is all about creating more good school places. This is not the only route, but it is leading the way through social entrepreneurship. Many noble Lords in this debate have played a crucial role in the free school programme, but I can safely say that my noble friend Lord O’Shaughnessy has to be one of the godfathers.

My noble friend Lady Stroud also asked about disadvantage. It is important to stress that nearly half of all open free schools are in the 30% most deprived areas in the country. We are proud of that fact. Results also show that when disadvantaged pupils attend these free schools they perform well at key stage 4. However, we know that there is more to do to ensure that free schools reach out to pupils in these areas, and with the most recent free school wave, Wave 13, we targeted the third of local authorities with the lowest standards and lowest capacity to improve, putting free schools in places most in need of good schools. We are currently evaluating those bids.

The noble Lord, Lord Watson, is concerned about the cost of school buildings, but it is important to point out that we have reduced the building cost per square metre by over 30% from the framework that we inherited from the Labour Government. My predecessor, my noble friend Lord Nash, created LocatED as a specialist buying agency for property sites for free schools and it is already showing data that it is acquiring sites below the red book value, which is the benchmark for the cost of buildings.

I turn to special schools and AP schools. Our ambition includes children with special educational needs and disabilities, and children in alternative provision. We want them to be able to do their best in school, reach their potential and find careers leading to happy and fulfilling lives. To help achieve that ambition, as of 1 January this year we have opened 34 special and 41 alternative provision free schools. This includes the Pears Family School, which achieved an outstanding rating from Ofsted in 2017, with inspectors noting the high-quality therapeutic care and teaching alongside the strong progress made by its pupils.

My noble friend Lady Finn pointed out that we have now opened two maths schools in partnership with highly selective maths universities, King’s College London Maths School and Exeter Maths School. The aim of these schools is to prepare our most mathematically able students to succeed in maths disciplines at top universities and pursue mathematically intensive careers. We have two further maths free schools in pre-opening—one with St John’s College Cambridge and the University of Liverpool Maths College.

At the other end of the educational spectrum we have in pre-opening the London Screen Academy, supported by Working Title, which last year was the inaugural recipient of Screen International’s outstanding contribution to UK film award. This new school will provide film industry-focused vocational training for 16 to 19 year-olds alongside a broader curriculum. I give that as just one example to reassure the noble Baroness, Lady Morris, and my noble friend Lord O’Shaughnessy of the innovative groups still becoming involved. We are certainly encouraging free schools to be part of MATs to draw on the central support that they offer. This is simply part of the evolution of the programme and addresses the problem mentioned by my noble friend Lord Polak about school collaboration.

[Lord Watson of Invergowrie]

I take the point that the Minister is making, but will he address the point about parental involvement and the decreasing number of free schools being established at the behest of local parents?

[Lord Agnew of Oulton]

The noble Lord will be aware that any academy needs to have an academy council that must include two parental representatives.

[Lord Watson of Invergowrie]

That is not the same point.

[Lord Agnew of Oulton]

No, I accept that, but we review all bids and they are selected on merit. One of the lessons that we have learned from the programme is that free schools are better inside MATs. Being inside a MAT does not mean that it is one size fits all. I speak as someone who set up four free schools myself inside a MAT. There is a wide range of different practice inside those schools. To reassure the noble Lord, just because a free school is in a MAT does not mean that it is outside parental involvement or input.

[Lord Hill of Oareford]

I remember a time when members of the Labour Party were against free schools because they involved parental interest. They were opposed to free schools because they thought that parents would not be able to take on the running of free schools. Now they seem to be saying that they are not in favour of free schools because they do not involve parents enough. I do not know if there has been a change in the policy in the intervening years.

[Lord Agnew of Oulton]

I rather agree with my noble friend that the Opposition seem to have gone on a journey. When free schools were originally mooted under my noble friend’s tenure we were told that no one was capable of creating one other than the Government. We have put paid to that myth.

[Baroness Morris of Yardley]

How can the Minister say that when he inherited an academy programme introduced by the Labour Government, which had the noble Lord, Lord Harris, and other people sponsoring schools, not local authorities? It is an inaccurate description of what went on.

[Lord Agnew of Oulton]

There were 200 out of some 22,000 schools. My noble friend Lord Harris was not a parent. We certainly built on the early foundations that Labour created in the academies programme, but there was not a great deal of evidence in those early 200 of parental involvement in their creation. Specifically, the programme went on after very experienced, dedicated people such as my noble friends Lord Nash and Lord Harris, became involved. They were well beyond parental age at the point.

[Lord O'Shaughnessy]

This is a really important point. I pay absolute tribute to the Labour Party for the academies it set up, which were obviously based on the CTCs and on a principle of autonomy at school level, of competition of choice and variety and innovation. But it must be pointed out—it is a while since I opened a free school or applied to open one—that you physically had to go round to parents, even if you were not a parent group yourself, and get them to commit to send their child to your school. It was baked into the creation of schools in a way that has never been done in this country, regardless of the nomenclature of free schools, academies or anything else. That alone is one of the unique and extremely welcome features of the free school movement that must continue to play a critical role in whatever form. I agree with my noble friend that the security of being in a multi-academy trust can be helpful, but that parent-driven demand is critical to its success.

[Lord Agnew of Oulton]

The noble Lord, Lord Addington, mentioned off-rolling and picked out a single school, the Hewett school—which strikes a slightly raw nerve, as I was the chairman of the trust that took it over. That school was a wonderful example of what we were dealing with in the reforms that we brought to education. The school was built for nearly 2,000 pupils and run into the ground by a local authority. At one point it was the largest secondary school in England, but the local authority hung on to it, delivering appalling education until, finally, when my trust took it over, there were fewer than 500 pupils. It was in chaos. Sorting out such situations, where a trust inherits protracted and entrenched failure, is no small undertaking. That ex-local authority school is a classic example of why the nirvana of so-called local democracy is meaningless in many cases.

We want to go further, to make sure that no one is left behind, by extending the programme to areas of the country that have not previously benefited from it. To this end, we launched Wave 13 last year, targeting the areas of the country with the lowest standards and the lowest capacity to improve. These are the places where opening a free school can have the greatest impact on improving outcomes.

[Lord Addington]

Looking at free schools and academy trusts, off-rolling is coming in. Will we look at why that is happening? I was at the Hewett school many years ago; most of the teachers will now be dead. I do not dispute that it has changed. It was a case of it having happened there and it catching my eye because I had a personal connection. What happens when you off-roll a group of people who are seen not to be achieving and who will damage you in the league table? What structures do we have in place to make sure that that is not happening—and we are not simply dumping them?

[Lord Agnew of Oulton]

Off-rolling is dealt with in the report by Edward Timpson which will be released quite soon—I think in the next few weeks. I will make sure that the noble Lord gets a copy of it. It certainly addresses all the issues that the noble Lord raises. One point that it makes is that academies are no more aggressive in off-rolling than anybody else in the system. I acknowledge that it is a problem. When I was running my trust, for any permanent exclusion I always said to a head teacher that they had to telephone me personally and told them, “This is a professional failure on your part”. We need to be much more rigorous, but I can assure noble Lords that the practice is widespread also among local authority schools. It is a complicated issue, because there is whole range of categories that a school can use when it shunts a child out of the door. For example, category B is sending a child home to work, although it really wants to get rid of the child. It is a very complicated area, but I will send the noble Lord the report as soon as it is available.

The application window for Wave 13 closed on 5 November. We received 124 applications. A rich collection of potential schools is proposed by a range of groups with a variety of expertise, both new providers and experienced multi-academy trusts. We are assessing those proposals and will announce the results later in the spring.

To answer the concerns raised by my noble friends Lord O’Shaughnessy and Lord Hill, we are planning a further wave, Wave 14, which will continue to put free schools into the areas of most need. Innovation remains key. I can reassure the noble Lord, Lord Storey, that free schools are different because they start with a different ethos. They have the same legal basis as an academy, but having set up four myself—as I mentioned to the noble Lord, Lord Watson—I know that they are quite different.

A further 55 special and 14 AP free schools are in the pipeline. Last summer we launched a special and AP free schools wave. By the deadline in October we had received 65 bids from local authorities, setting out their case for why a special or AP free school would benefit their area. Early this year we will launch a competition to select trusts in the areas with the strongest case for a free school.

My noble friend Lord Polak asked about the religious designation of special schools. He is right that they cannot have a specific designation, but they can acknowledge the religious impetus behind their application by registering themselves as having a faith ethos.

Beyond this, the noble Earl, Lord Listowel, raised some important general points, in particular about recognising the importance of teachers. I echo the point made by the noble Lord, Lord Storey, and others, that that is the key to a good education. We have accepted in full the STRB’s recommendation of a 3.5% uplift in the minimum and maximum of the main pay range—one of the largest increases in 10 years. Last year we published a workload reduction toolkit, and we continue to work extensively with the unions and Ofsted to challenge and remove unhelpful practices that create this unnecessary workload. For me that is the most important issue: most teachers do not feel underpaid but do feel that they are put upon with a lot of unnecessary bureaucracy. That is one of my priorities.

We are also working with Ofsted to produce a new inspection framework. A consultation document will be issued in the next few weeks. The framework challenges the senior leadership teams, during inspections, on the workload that they are imposing on their teachers.

The noble Lord, Lord Storey, raised the issue of structures versus standards.

[The Earl of Listowel]

I welcome what the Minister says about workload, but my strong sense, gained from many people working in the field, is that the emphasis on Ofsted, and the threat that a head teacher may lose their job—and career—over a negative Ofsted report, is too harsh. We need to challenge people but also to get the balance right. I am, therefore, not completely reassured by what the Minister has just said about the framework.

[Lord Agnew of Oulton]

The noble Earl is right in saying that in this country Ofsted seems to command more influence in the sector than happens in other countries. This is a cultural issue, and one of the first things my Secretary of State did when he arrived last year was to produce a video that showed him and the Ofsted chief inspector on a panel trying to slaughter some of the myths about inspection outcomes and so on. It is a cultural issue that we will not be able to deal with overnight. However, I accept his concern.

I am conscious that I am running out of time. The noble Baroness, Lady Morris, is correct: we have cancelled some projects during the pre-opening process. In my view this demonstrates our rigour in ensuring that the quality bar is kept high. The point made by the noble Baroness about good governance is also correct. As the noble Lord, Lord Nash, said, however, 50% more free schools have achieved “outstanding” judgments than the average in the state school system—so something must be going right.

Of course, along the way not everything has gone right, as the noble Lord, Lord Winston, among other noble Lords, mentioned. We have closed some 13 free schools, seven UTCs and 21 studio schools, and where failures occur we take swift and decisive action. I agree with my noble friend Lord Popat that we cannot shy away from failure and that we should address it and learn lessons from it.

I finish by quoting the motto of the academy trust of my noble friend Lord Nash: “Libertas Per Cultum”—freedom through education. Education provides the stepping-stone to improving people’s lives. Free schools play an increasing role in that work.

[Lord Winston]

I thank the noble Lord for his comments. I do not want to extend the debate beyond the time allotted. Listening to it, however, is one of my PhD students who is a qualified teacher with a Cambridge degree. He is evaluating some of our work. It seems to me that we need to be evaluating not just entry to Oxford and Cambridge but the wider issue of the scientific and cultural capital of school leavers who may not go to Russell group universities such as the one where I teach. This is not a party-political thing for me—I do not go to schools as a member of the Labour Party but as someone who wants to help people have aspirations. I hope that we can persuade the Minister to say how we can look at the metrics on things that do not involve merely exam results, because education is so much more important than that. I hope that we can collaborate in that.

[Lord Agnew of Oulton]

I would be very happy to meet the noble Lord’s PhD student if that would be helpful in pushing the discussion on. All noble Lords present, particularly on this side, got into this for no other reason than to improve the quality of educational outcomes and the lives of the less advantaged people in our society. We all share that passion. We will have vigorous debates about how it works, but I am absolutely up for learning from the mistakes we have made. Some schools have closed. We backed some of the wrong promoters in the early stages and we have learned from that and moved on. Therefore, if the work that the noble Lord’s PhD student is doing can shed any more light on how we can improve going forward, I would be delighted to be part of that.

Religious Education

Lord Agnew of Oulton Excerpts

Monday 17th December 2018 Grand Committee

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

My Lords, I thank the noble Lord, Lord Alderdice, for securing this debate. I am grateful for this opportunity to set out the Government’s position on religious education and our response to the Commission on Religious Education’s report. During this debate, noble Lords have argued strongly for the importance of religious education and a commitment to its continuation and improvement. The Government share that commitment.

We have decided that now is not the time to implement the commission’s ambitious recommendations radically to reform religious education. However, the Government agree that good-quality religious education can develop children’s knowledge of the values and traditions of Britain and other countries. It can foster understanding among different faiths and cultures. It is an essential part of a school’s legal duty to promote young people’s spiritual, moral and cultural development. I agree with the noble Lord, Lord Alderdice, when he said that we have to help children to understand their way of being in the world.

Schools and colleges have a duty actively to promote fundamental British values as part of the duty to prevent people becoming drawn into terrorism. These shared values—democracy, the rule of law, individual liberty and respect and tolerance for those of other faiths and beliefs—unite us and underpin our society. The religious landscape of this country forms part of those principles, and the noble Lord, Lord Stone, referred to the value of unity and oneness. Understanding our British values is a vital part of that. I perhaps have more faith in the power of the teaching of British values than other noble Lords who have spoken in the debate, and it is of course still an evolving part of the responsibility of schools, having been introduced only recently.

According to the school workforce statistics, 3.3% of all teaching hours in state-funded secondary schools in 2017 were spent teaching religious education. This compares with a figure of 3.2% in 2010, so it has remained broadly stable over that period. The noble Lord, Lord Alderdice, worries that we do not have enough time in the curriculum for the teaching of religious education. However, we do not specify that equal time needs to be spent by each year group on the subject, only that it must be taught throughout a pupil’s school life. For example, there is no reason why schools could not dedicate more time at key stage 3 than at key stage 4, when pupils are generally not studying for GCSE. The key stage 3 national curriculum is designed as a three-year programme of study to prepare children to start GCSEs in year 10.

The noble Lords, Lord Addington and Lord Alderdice, worry that there is not enough time at key stage 4. Having said that, the EBacc was designed to be limited in size to allow pupils to continue to study additional subjects and reflect their individual interests and strengths. This allows not only for schools to teach RE, as we would expect, at key stage 4, but for religious studies to be a feasible GCSE option.

However, one of the commission’s most concerning statements was that it had found a number of maintained schools and academies either no longer teaching RE or no longer teaching it as a dedicated subject. On that point, I would like to be very clear: RE is not optional. Schools not teaching it are acting unlawfully or are in breach of their academy funding agreements. We will take action if this is found to be the case.

I assure the noble Lords, Lord Watson and Lord Alderdice, that where we are made aware of a school not meeting its duty to provide religious education, my department will investigate, as long as the school’s complaint procedures have been followed. In the last two years, the department has received only one formal complaint about a school not complying with its area’s agreed syllabus for religious education. Following the department’s intervention, the school has revised its curriculum to meet requirements.

One of the commission’s key recommendations is to change legislation so that all state-funded schools have to deliver the national entitlement on religion and world views. Reworded legislation would therefore be extended to encompass non-religious world views. Many teachers already cover aspects of world views in their RE lessons. Both GCSE and A-level content specifications include reference to non-religious views. But the potential scope of what could be considered a world view is very wide. Agreeing precisely what should be taught as part of a national entitlement would be fraught with difficulty.

The commission’s report suggests that existentialism and Confucianism are examples of suitable non-religious world views as they each make ontological and epistemological claims. This illustrates how defining world views and then deciding those worthy of study is complex. There is a risk that religious education is diluted in an attempt to embrace many other strands of thinking. The noble Lord, Lord Alton, raises the responses of the Catholic Education Service and the Board of Deputies of British Jews. Both have publicly expressed their concern about this. They are unlikely to be alone. This would make it difficult to agree a consensus.

An important focus of the commission report was the need to recruit, train and retain specialist teachers of religious education. This is key to maintaining the integrity of the subject and the quality of teaching. In recognition of this, we made two announcements in September. First, we increased bursaries so that RE trainees with a First, 2.1, 2.2, PhD or Master’s will now receive £9,000. Secondly, we allocated new funding for religious education subject knowledge enhancement courses of up to eight weeks. These offer graduates the chance to refresh their subject knowledge either before or during initial teacher training.

The right reverend Prelate the Bishop of Chichester raises the importance of Ofsted assessments of religious education, and I agree with him that this is an important part of an inspection of a school. I will take back his suggestion that to achieve an outstanding grade, schools should provide good-quality religious education.

The noble Lords, Lord Addington and Lord Watson, worry about the decline in teaching of religious education in schools. Actually, the picture is not quite as bleak as one might think. There was a 21% increase in the number of pupils entered for the full-course RE GCSE between 2010 and 2018, from 176,000 to 213,000 pupils. There has also been an increase in the percentage of the total key stage 4 cohort entered for this examination, from 28% in 2010 to 37% in 2018. This is important.

[Lord Watson of Invergowrie]

I thank the Minister for giving way. He talks about key stage 4, but as the noble Lord, Lord Alderdice, said and I repeated, a third of key stage 4 students do not get religious education, so cannot sit exams in it. If the Minister wants to increase the figures, as I think we all do, surely he should be getting those 33% of schools to make sure they do what they should be doing under the law and teach religious education at key stage 4.

[Lord Agnew of Oulton]

Referring to my earlier point, we will always investigate any serious allegation about the non-teaching of religious education, and this report certainly highlights examples of that. If they are referred to us, we will certainly investigate. To reassure the noble Lord, Lord Watson, we are committed to ensuring that religious education remains a key part of a child’s education.

The noble Lord, Lord Alton, mentioned Article 18—freedom of religion—and violations of it. The Government are concerned about the severity of violations of the freedom of religious belief in many parts of the world. Defending and promoting human rights is an essential aim of the foreign policy of global Britain, and derives from the International Covenant on Civil and Political Rights.

The report mentions that the right to withdraw from religious education has existed in our education system since 1870 and was reconfirmed in legislation in the 1944 and 1988 education Acts. The commission found that many schools are not clear on the scope of this right and how to handle applications for withdrawal. The report recommended that the DfE provide clearer guidance. Since then the National Association of Head Teachers and the National Association of Teachers of RE have produced guidance for schools on this issue. The Government are comfortable with this guidance; my department will help to raise awareness of it.

The noble Lord, Lord Alton, raised a concern about the locally agreed syllabus for RE. For many schools the current requirement is that they follow a locally agreed syllabus monitored by the standing advisory councils for religious education. The department’s guidance is clear: that at local level, representatives of religious and other interests can serve as formal or co-opted members on both SACREs and in groups of this conference to review the locally-agreed syllabus. These are important principles which should not be lost without more careful consideration.

I thank the Commission on Religious Education for its well-considered report. Although it offers radical options for reform which at the moment we cannot consider implementing, we welcome the debate that it generates. The Secretary of State for Education has been clear that reducing teacher workload is one of his top priorities, and as part of that he committed in March not to make further changes to the curriculum. In this context we must decline to take forward the commission’s vision for the future of RE in England.

Committee adjourned at 7.35 pm.

Young People

Lord Agnew of Oulton Excerpts

Thursday 13th December 2018 Lords Chamber

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

My Lords, I congratulate the noble Baroness, Lady Armstrong of Hill Top, on securing this important debate. Many questions have been raised by noble Lords and I shall endeavour to answer as many as I can. It always seems to fall to me to cover questions for 10 different government departments.

I can reassure the noble Baroness, Lady Armstrong, that we are adamant that all young people deserve and have the right to world-class education regardless of their background or where they live. We have shown that giving high-performance school leaders and teachers freedom and autonomy can deliver this through free schools and academies. Eighty-six per cent of schools inspected in England are rated good or outstanding and 1.9 million more children are now in those schools. This represents 84%, compared to 66% in 2010. Multi-academy trusts illustrate how good practice is no longer limited to individual schools. Regardless of geography or the level of diversity in their intake, many consistently achieve exceptional results. To answer the question asked by my noble friend Lady Bottomley, more than 500,000 children who were previously in failing local authority schools are now in good or outstanding schools.

To address the concerns of the noble Lord, Lord Addington, about careers guidance, our careers strategy commits investment of more than £70 million each year until 2020. It ensures that all schools and colleges will have a dedicated careers adviser to support and encourage young people to find the right path for them, be that into work, continuing academic study or a vocational qualification. I agree completely with him that this is an extremely important priority.

The noble Lord, Lord Haskel, asked about youth employment. We recognise that the academic path is not suitable for everyone. We will be investing more than £0.5 billion per year to deliver a world-leading technical education system. The new T-levels will have real labour market value, credibility with employers and help young people to achieve their potential. We have recently announced that T-levels will contribute to UCAS points to underline their value. The number of 16 and 17 year-olds in education or work-based learning is at the highest level since consistent records began, at 90.5%. For those aged 16 to 24, only 10.9% are not in education or employment, the lowest figure on record.

I take on board the comments of several noble Lords. Some of this work may not be initially of the highest quality, but my first job was a zero-hours contract at 20 pence an hour and I was laid off when it rained. However, it was a start.

[Lord Griffiths of Burry Port]

Does the noble Lord not still have the same job?

[Lord Agnew of Oulton]

That would need a longer answer.

Research has shown that children with higher levels of emotional, behavioural and social well-being have, on average, higher levels of academic achievement. We are prioritising resources in 12 opportunity areas. We are bringing together local and national partners to improve outcomes for the most disadvantaged. Through the work of this Government, 18 year-olds from disadvantaged backgrounds are over 50% more likely to enter full-time higher education in 2018 than they were in 2009.

I share the concern of the noble Lord, Lord Griffiths, about the opportunities for young black people. We have succeeded in narrowing the attainment gap by 10% through the pupil premium, spending more than £13 billion since 2011. It is now in the interests of good and outstanding schools actively to recruit pupils from disadvantaged backgrounds.

We also recognise the specific challenges for children with special educational needs and disabilities. We have transformed the support available for young people and their families. We have invested £390 million since 2014 to support local areas in implementing reforms and we continue to fund parent-carer forums.

The noble Lords, Lord Adonis and Lord Haskel, asked about apprenticeships. We have reformed the system in the most fundamental way since the war but we accept that it is still evolving. We are working closely with employers and have already made changes in response to feedback. I am not sure that the noble Lord, Lord Adonis, is listening to these specific points. He indicates that he is and I thank him. We will increase the amount of funds that levy-paying employers can transfer to other employers from 10% to 25% from April next year and will reduce the amount that smaller employers pay for training from 10% to 5% next year. By 2020, we will be investing nearly £2.5 billion in apprenticeships per year to increase the number of high-quality opportunities.

The noble Lords, Lord Adonis and Lord Storey, asked about exclusions. I share their concern about this issue. When I ran my own academy trust, I required any head teacher to ring me personally when a permanent exclusion was under consideration and I always told them that I regarded it as a professional failure on their part. We are working with Edward Timpson, and I am meeting him next week as a prelude, we hope, to his report going out early next year. Last week I met a director of children’s services in Leeds who told me about an innovative idea of providing funding to a mainstream school where a child is at risk of exclusion to enable that child to spend some time in specialist provision, while leaving accountability for that child’s educational outcome with the school at which he or she is registered. I believe that such innovations can better align the interests of the system, which does not happen sufficiently at the moment. We are delivering a manifesto commitment to review why children identified as in need of help and protection have such poor outcomes and make an assessment to improve them.

A child’s home learning environment is one of the biggest influences on their vocabulary, but socioeconomic factors can affect the quality of those environments. We are committed to supporting parents to improve the quality and quantity of adult-child interactions, unlocking the power of learning in the home. Some 92% of three year-olds and 95% of four year-olds now access 15 hours of free early education per week. The early years pupil premium provides more than £300 per eligible child to support better outcomes for disadvantaged three and four year-olds. The Secretary of State has set out his ambition to halve by 2028 the number of children finishing their reception year without the communication and reading skills they need.

One in four adults and one in 10 children will experience mental illness, which is why we are working with colleagues across government to improve mental health and well-being in young people. Our Green Paper, Transforming Children and Young People’s Mental Health Provision, sets out ambitious proposals and confirms our commitment to providing support to schools. That includes the implementation of a trained designated senior lead in all schools and funding for new mental health support teams. The noble Earl, Lord Listowel, mentioned looked-after children specifically. We recently revised our statutory guidance to place greater emphasis on children’s mental health needs. Virtual mental health leads were among a number of recommendations made by the DfE and DHSC working group on the mental health of children in care.

Every child’s experience at school should be a happy one. However, at times, young people face the challenges of bullying and harassment, which is never acceptable. My department remains committed to keeping all children safe, which is why we further strengthened the statutory guidance, Keeping Children Safe in Education. We have also produced guidance for schools and teachers on how to prevent bullying and support those who experience it. My noble friends Lady Bottomley and Lord Chadlington and the noble Lord, Lord Storey, are right about the huge changes and pressures faced by children in today’s society, particularly through electronic and social media.

Today, bullying can come in many forms, not just in a classroom or social atmosphere but from a much wider group of peers. We have seen a rise in young people reaching out for help with their mental health, but we must ask ourselves why we are seeing such a rise in those asking for help. I for one do not believe that it is down to just exam stress, a troubled home life or “regular” peer pressure. In many cases, the potential dangers of social media become realities. We need to encourage our young people to take time away from screens. The noble Baroness, Lady Armstrong, referred to happiness levels in children—an area that deserves much more focus.

The noble Lord, Lord Adonis, and my noble friend Lord Norton stressed the importance of citizenship. I agree entirely. Findings have shown that participation in extra-curricular activities promotes positive well-being among young people. For example, schools with cadet forces see improvements in attendance, behaviour and attainment. We are on track to achieve our target of 500 cadet units in schools by April 2020, developing qualities such as respect, self-confidence, teamwork and resilience in young people. Since the National Citizen Service was launched in 2011, nearly 500,000 young people have taken part in this life-changing opportunity. We continue to support the NCS and are investing £80 million through the Youth Investment Fund to increase opportunities for young people to develop skills and participate in their communities. My noble friend Lord Norton asked whether I agreed with his prognosis on the teaching of citizenship. I do not agree entirely. Of course an A-level in citizenship or history is helpful, but other qualifications could equally suffice.

A child’s early emotional and social development, educational attainment and, later, employability can all be put at risk by problems such as homelessness, referred to by the noble Baroness, Lady Armstrong, and the noble Lord, Lord Russell. In particular, the Homelessness Reduction Act is the most ambitious legislative reform in this area in decades. We have allocated £1.2 billion through to 2020 to reduce homelessness. I will have to write to the noble Lord on the progress of H-CLIC.

The right reverend Prelate the Bishop of London and the noble Baroness, Lady Armstrong, asked about child poverty and workless households. We repealed the income-based measures set out in the Child Poverty Act 2010 and replaced them with new statutory measures of parental worklessness and educational attainment—the two areas that we know can make the biggest difference. Children living in workless households are five times more likely to be in poverty than those where all adults work. Our welfare reforms are making good progress to prevent this happening. There are now 630,000 fewer children living in workless households than in 2010. There are also 300,000 fewer children living in absolute poverty on a before housing cost basis than in 2010.

Children in care deserve a stable home environment. Some 61% of children enter care as a result of abuse or neglect. That is why the Children and Social Work Act 2017 sets out corporate parenting principles. Local authorities need to take this into account as they take on the role of parent to looked-after children, extending to those leaving care. The Autumn Budget announced an additional £410 million in 2019-20 for local authorities to invest in adult and children’s social services. This is on top of the £200 billion going forward to 2020 made available in the 2015 spending review.

I share the concerns of the noble Lord, Lord Storey, and the noble Baroness, Lady Massey, over mental health. We recognise that mental health needs can have a significant impact on young people, in particular looked-after and previously looked-after children. This is why we have recently revised statutory guidance for designated teachers, placing greater emphasis on children’s mental health needs. The Government have made £1.4 billion available to transform and improve access to children and young people’s mental health services from 2015-16 to 2020-21. We have set an ambition for at least 70,000 additional children and young people each year to access high-quality NHS mental health care by 2021.

The noble Lord, Lord Ramsbotham, raised the issue of youth offenders. We know that children who offend are some of the most vulnerable in society and we are committed to preventing children entering the youth justice system. Education should be at the heart of youth custody. We are investing more than £2 million over the next two years to increase the range of educational, vocational and enrichment activities, including sports and physical activity. As part of the agreed funding of the youth justice reform programme, we are making £0.8 million available in 2018-19 and £1.8 million in 2019-20 to increase the range of educational and enrichment activities in the youth custody system.

The Government have also announced a £200 million youth endowment fund to build the evidence base for action. This fund will support young people most at risk of serious violence, underpinning our commitment to address the recent increase in knife and gun crime. We will be launching a consultation later this month on new school security guidance. This will include references to knife crime.

Some young people are at risk from extremism and radicalisation, be this through online channels or grooming by members of terrorist or extremist groups. We are working with schools to tackle extremism and radicalisation through our Prevent initiative and a strengthening of the Ofsted inspection framework. We want all young people to understand the shared values that underpin our society, and in particular the values of respect for and tolerance of those from different backgrounds.

The noble Lords, Lord Griffiths and Lord Brooke, raised obesity. We are making progress on this since the publication of our childhood obesity plan in 2016, including the reformulation of products that our children eat and drink, for example through the soft drinks levy. The next stage will include restricting promotion deals on fatty and sugary products and ending the sale of energy drinks to children.

The noble Lords, Lord Haskel and Lord Sawyer, asked about zero-hours contracts. There are 780,000 people on zero-hours contracts. This is down from 883,000 in the same period of 2017. This is a small proportion of the workforce—about 2.4%—because this is the kind of contract that suits that small proportion, giving them the flexibility they desire so that they can, for instance, study alongside working. Noble Lords will also be aware that we have very much tightened up on such things as unpaid internships, which are absolute exploitation.

The right reverend Prelate the Bishop of St Albans, the noble Lord, Lord Storey, and my noble friend Lord Chadlington raised the important issue of youth gambling. There are strict controls to prevent underage gambling in licensed premises or online. GambleAware is working to provide resources for teachers and to support parents to have conversations. The Government published a review of gambling machines and social responsibility in May of this year. Key measures included reducing the maximum stake on fixed odds betting terminals from £20 to £2, a major responsible gambling advertising campaign and a plan of action by the Gambling Commission to strengthen player protections online.

I am running out of time so I shall finish by saying that the Motion asks that we take note of the challenges facing young people. I firmly believe that a good education is vital to help them meet these challenges, and we are steadily improving the education system to ensure that this happens. Children represent the future of our country: few endeavours are more important.

Special Educational Needs and Funding

Lord Agnew of Oulton Excerpts

Thursday 6th December 2018 Lords Chamber

[Lord Addington (LD)]

My Lords, in asking the Question standing in my name on the Order Paper, I remind the House of my interests with the British Dyslexia Association.

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

My Lords, we are working to improve quality and services for children with special educational needs and disabilities. We are listening to parents and we have introduced new SEND inspections. We are investing to embed SEND in school improvement. We have commissioned an external review of exclusions. High-needs funding has risen by £1 billion since 2013, but we recognise the pressures on budgets and are monitoring the impact of the national funding formula on local authorities.

[Lord Addington]

I thank the Minister for his reply. Does he agree that, when those in the biggest group in this category have not received a plan and, Ofsted says, struggle to receive the appropriate help, there is something fundamentally wrong? Does he also agree with the next page of Ofsted’s report, which says that when you have a special school with structured lessons, you get good results? Is this not an example of how we should invest more in support in the mainstream classroom?

[Lord Agnew of Oulton]

My Lords, we have done an enormous amount for this category of vulnerable children over the last few years. One of the most important introductions was that of education and healthcare plans, supported by inspections of local authorities by Ofsted and by the Care Quality Commission. We now have increasing visibility of where good service provision is occurring and where it is not. We will continue to pursue that.

[Lord Blunkett (Lab)]

My Lords, I support the thrust of the Question and ask the Minister whether the department could be proactive in two ways: first, on the back of the local government settlement and the Chancellor’s Budget at the end of October, in relation to additional money for children’s services; and secondly, in trying to get the education and health services to join up, so that, in particular, young people transitioning from school to college and from college into adult life are able to access the funds they need and parents are not put through the nightmare, as many are, of battling day in, day out to get their rights.

[Lord Agnew of Oulton]

My Lords, I think there are two questions there. Perhaps I may address, first, the post-19 phase for young people migrating from education into the world of work. We are now providing supported internships. There were 1,200 in January last year, an increase of 700 on the year before. We have also legislated to promote the joint commissioning of services. This means that children’s services funded primarily by education funds should be able to work effectively with adult services to support young people as they transition. Secondly, on overall funding, we are very conscious of high-needs pressures. We made available £130 million of high-needs funding in 2017-18, and the high-needs block will rise by £142 million next year.

[Lord Lexden (Con)]

My Lords, what can be done to reduce the cost of going to appeals tribunals, which deters many parents from asserting their rights in the face of obstruction from local authorities, and what can be done to stop local authorities telling parents—quite wrongly, as some do—that a local independent school cannot be named in an education, health and care plan?

[Lord Agnew of Oulton]

My Lords, this is a new provision. We have radically changed the way that support is provided for vulnerable children. Although no one is happy to see money wasted on expensive tribunal proceedings, the percentage of tribunal cases is relatively consistent with the increasing number of education, health and care plans awarded. We will obviously challenge local authorities where too many tribunal cases occur but they are still learning about this.

[The Earl of Listowel (CB)]

My Lords, I welcome the investment that the Government are making, but is the Minister concerned about the rising number of children with SEND being excluded from school? Does he recognise that high-quality early-years education can moderate behaviours, which will then be improved in primary and secondary schools? Is he concerned that, despite the welcome investment from the Government, families who can benefit from such funding to access high-quality childcare for their children with SEND say that they need more money to be able to do so, pushing the figure towards £300? Will he look at the funding for childcare access for families with children with SEND?

--- Later in debate ---

[Lord Agnew of Oulton]

My Lords, we have certainly kept this matter under continual review. I mentioned some sums of money a moment ago and, as I said, the amount of overall funding for the high-needs block has increased by £1 billion in the last five years. However, we also accept that early interventions can have a very advantageous impact on young people with disabilities. For example, having a clear focus on literacy is helping children with dyslexia, and we are improving initial teacher training and continuing professional development to raise awareness.

[Baroness Garden of Frognal (LD)]

My Lords, how do the Government intend to address the training needs of staff in education and the capacity for improvement, as identified in the report, given that over half of teachers say that they have received no training on dyslexia?

[Lord Agnew of Oulton]

My Lords, we are introducing more training on SEND issues in the initial teacher training modules. For example, we are including the subject of mental health generally as a voluntary rollout from September next year and it will become compulsory the following year. We have also provided funding to the British Dyslexia Association to deliver training to teachers to support the early identification of learning difficulties.

[Lord Harris of Haringey (Lab)]

My Lords, in his question a moment ago, the noble Earl referred to the fact that a very high proportion of young children with special educational needs are excluded from school. More than a quarter of those with an SEN designation were excluded last year, and it is five times the rate when it comes to permanent exclusions. Can the Minister tell us why that is and whether the Government are happy with that situation, or are they content to allow schools to get rid of pupils whom they find slightly inconvenient to improve their overall results?

[Lord Agnew of Oulton]

My Lords, I can categorically assert that we are not happy with that, and it is one reason why we have commissioned a report by Edward Timpson to look at the whole issue of exclusion. The noble Lord is quite correct to say that the percentage of vulnerable children being excluded is too high, and it is worth saying that a school will not get a good or better rating from Ofsted until it can justify any level of exclusion beyond what might be the norm. We are also dealing with this by increasing the level of provision for special education and AP schooling. We have already opened 34 special free schools and a further 55 are due to be opened to help this vulnerable group.

Schools: Funding

Lord Agnew of Oulton Excerpts

Thursday 29th November 2018 Lords Chamber

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

My Lords, I congratulate the noble Baroness, Lady Morris, on securing this important debate on school funding. I acknowledge her great experience on this subject, particularly as a former Secretary of State for Education. It is a key priority for this Government to ensure that every child receives a world-class education to enable them to reach their full potential. We are determined to create an education system that offers opportunity to everyone, no matter what their circumstance or where they live. Raising educational standards is the key to everything we are doing, so ensuring that the financial resources are divided in the right way is vital to that.

However, I know enough about basic psychology to know that most noble Lords will approach this debate with their minds made up. None the less, as ever, I will do my best to show the House that the picture is far less bleak than commonly portrayed. We are making significant progress: more schools than ever are being rated good or outstanding. The noble Lord, Lord Watson, challenges that and says that the framework has changed. I suggest that it is actually tougher than it was seven or eight years ago. The attainment gap is closing—a significant priority for us—and, if we are here for social mobility, then that is one of the greatest pieces of evidence of what we have done. We have launched 12 opportunity areas to drive improvement in parts of the country that we know can do better. We are investing in our schools and have delivered on our promise to reform the unfair, opaque and outdated school funding system by introducing the national funding formula.

As my noble friend Lady Eaton said, we are investing an additional £1.3 billion in our schools across this year and next, as confirmed in our 2015 spending review. This significant additional investment means that core funding for schools and high needs will rise from almost £41 billion in 2017-18 to £42.4 billion in 2018-19 and £43.5 billion in 2019-20.

I take on board the comments from the noble Baroness, Lady Morris, and other noble Lords about statistics, but the independent Institute for Fiscal Studies 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 and some 70% higher than in 1990. We could put these figures in a different way, and I accept that these debates can become somewhat reductive, but this is another way to deal with it than the way the noble Lords, Lord Bassam and Lord Storey, did. Putting it in the context of an average classroom, funding for an average primary school class this year is £132,000—up from around £124,000 a decade ago and £84,000 in 2000. That is in today’s prices. Those same children will receive an average of £171,000 when they move to secondary school per class, up from around £161,000 a decade ago and £109,000 in 2000, again in today’s prices.

It is not just the quantum of funding available that matters; it is vital that it is distributed fairly and where it is most needed. Prior to our recent reform of the funding system, schools with similar pupil characteristics across the country had been receiving markedly different levels of funding for no good reason. For example, Coventry received £510 more per pupil than Plymouth, despite having equal proportions of pupils eligible for free school meals. Nottingham similarly attracted £555 per pupil more than Halton. That is why our commitment to reform the unfair school and high-needs funding systems and introduce the funding formula has been so important. I am pleased that it has been this Government who have been able to deliver on that. The introduction of the national funding formula means that this year, for the first time, funding was distributed to local areas based on the individual needs and characteristics of every school in the country. This historic reform is the biggest improvement to school funding for a decade and is directing resources where they are needed most.

On a lighter note, I have a cold—I apologise to noble Lords—and I asked my office to get me some Tunes for my speech. None of them had ever heard of Tunes, so they said that they would google them. They sent a note through the Box just before I came here that said, “We couldn’t find choons”. Maybe my education priorities should be refocused.

Schools are already benefiting from the gains delivered by the funding formula. It has allocated an increase for every child in every school this year, while allocating the biggest increase to those schools that have been most underfunded. This year, schools that have been historically underfunded have attracted increases of up to 3% per pupil. Next year those schools will attract up to 6% more per pupil, compared with 2017-18.

We are particularly focused on supporting children who face great barriers to success, be that because they come from a disadvantaged background, have low prior attainment, or speak English as an additional language. Evidence shows that pupils with these characteristics are more likely to need extra support to reach their full potential. It is vital that we help schools to provide the support these pupils need. The national funding formula has protected the £5.9 billion additional needs funding across the system.

Under the national funding formula, a secondary pupil who had low attainment in key stage 2 will attract some additional £1,550 per year while in secondary education. A secondary pupil who speaks English as an additional language will attract an additional £1,385. A secondary pupil eligible for free school meals and living in one of the most deprived postcodes will attract an additional £2,035. Funding through these factors is all in addition to the basic per pupil funding that the child attracts. These important priorities are often misunderstood or ignored by the commentariat. I accept that it is a complicated system, but it is very much aimed to deal with those children in most need.

[Baroness McIntosh of Hudnall]

My Lords, I do not know whether the noble Lord is about to leave the question of the funding formula, but before he does, could he comment on the observations from my noble friends Lady Morris and Lord Knight that, while there might be some merit in the formula in itself, trying to implement it when the overall quantum of funds available is not increasing sufficiently means there will inevitably be many losers as well as a few gainers?

[Lord Agnew of Oulton]

My Lords, I entirely accept that this is an extremely difficult subject that has been kicked down the road for a long time. Doing it at a time when there are not huge amounts of additional money makes it difficult, but the system puts a floor in the bottom so that no one loses out. Of course, the debate will always be about why we are not moving the bottom ones up quicker. I met a head from West Sussex only last week—

[Lord Bassam of Brighton]

The noble Lord is being extremely courteous and helpful to the House, but what he does not seem to be doing is explaining why it is that all these schools, in experiencing what he is saying are increases in budgets, are also experiencing reductions and losing the ability to provide the level of service that they have provided in the past. The Barnet study is a good case in point, because it is not just one isolated school; it is all the Barnet schools. While I am here, I recommend to the noble Lord that he uses Lockets next time, rather than worry about Tunes.

[Lord Agnew of Oulton]

I thank the noble Lord for that very important piece of advice. There is a very complicated answer to the noble Lord’s question. It goes right back to the 1990s, to a system of training called COSMOs that was given to head teachers then. That training has not been continued and has lapsed, but what it showed senior leaders in the 1990s was how to most effectively allocate resources in their schools. A lot of those skills have been lost. I will cover some of the individual questions that have been raised—I have some figures for the noble Lord, Lord Bassam, on Barnet, for example.

I now turn to high needs. We recognise the concerns of the noble Lord, Lord Addington, and my noble friend Lady Eaton about funding for children and young people with high needs. We are also concerned about provision for excluded pupils. We have produced a range of support for local authorities to help them best use the resources they have available, including a high needs benchmarking tool by which they can compare spending. We have increased overall funding allocations to local authorities for high needs by £130 million last year and £142 million this year. We will increase this further next year, by approximately £120 million. In fact, high-needs funding will be more than £6 billion next year and will have risen by £1 billion since 2013. Every local authority will see an increase to their high-needs funding per head of the population of two to 18 year-olds this year and next, with underfunded authorities receiving up to 6% more next year than in 2017-18.

The noble Lord, Lord Knight, and the noble Baroness, Lady Massey, asked about mental health care for young people. We are very concerned about that—one would be callous to say anything else—and are putting more resources in. Our Green Paper last year set out proposals to support schools to put in place senior leads for mental health, to introduce new mental health support teams working in or near schools and colleges, and a trial of a new four-week waiting time for NHS children and young people’s mental health services. As came up in a Question earlier this week, the NHS itself is committing £2 billion more to mental health, which will include, over the next several years, adding 8,000 mental health professionals to the system.

The noble Lord, Lord Addington, asked about improving teaching for, and increasing awareness of, the kind of challenges that he is so passionate about. We are increasing the level of resources available to help teachers support children with SEN. We have a special resource in the initial teacher training modules. We have online resources for teachers and the department has also contracted with the Whole School SEND Consortium to deliver a programme to equip schools to support children with SEND, which includes dyslexia.

The noble Lord, Lord Addington, was also concerned about education, health and care plans. We carried out a survey last year that showed that 66% of parents are satisfied with the process. This is, of course, a new process and one we aim to improve.

Turning to efficiency and the points raised by the noble Lord, Lord Watson, on high pay, I completely share his concern about high pay in academies. The very first thing I did when I took on this job just over a year ago was to tackle it. We went after about 213 trusts, I think it was—more than 200 trusts—and since then 56 have stopped making those sorts of payments, for various reasons. That is a campaign that I will continue. I completely support the noble Lord in calling out those who do that.

On school resource management more generally, we recognise that schools have faced cost pressures. I want to be clear to the House that we are not in denial about that. The idea that I operate in a citadel is a dream that I can aspire to, but the real world is rather different, and that is why we are providing extensive support to schools to help get the best value out of every pound. We recently launched a strategy setting out the support, current and planned, that we have designed to help schools reduce costs. It provides practical advice on how to identify potential savings from their non-staff spend that can be put back into teaching to get the best value. To put that in perspective, we have a non-staff spend of about £10 billion a year, and we believe that £1 billion of that could be pulled out of the system over the next three or four years.

We know that marketplaces can be complex, leading to schools facing higher costs than they need to. The initiatives in our schools buying strategy aim to reduce this complexity when procuring goods and services. For example, we recently launched an agency supply teacher deal to provide schools with greater transparency on costs. We now have 34 national deals to help schools save money on items they buy regularly.

The noble Lord, Lord Storey, referred to my comments at the Schools & Academies Show last week—he is obviously very thorough in his research. The reason I used a somewhat strong or controversial approach there is that, for a year now, I have been going round forums such as that show giving endless speeches pointing out that we have these deals available for schools. In the audience for the address he referred to were 200 head teachers and chief executives. I asked those who had used our deals to put up their hands. Out of the 200, five put up their hands. When I arrived in this job a year ago, I wrote to 1,300 chief executives of trusts and told them about the deals that were in place. I said, “If they are no good, please tell me”. How many responses did I get? I did not get one response. I understand the pressures in the system, but the system also has to respond to us. Since we are trying to help them improve efficiency, they need to tell us how we can help them more. That is why I made those comments the other day: it was not to be glib. I am a huge fan of spreading best practice and if there were schools in that audience that were doing interesting, innovative things, I want to let other schools know about that. It is important to put that into context because the trade magazines made fun of me, which of course is grist to the mill in this job.

We have created a benchmarking website for schools. This allows them to compare their spending with that of similar schools elsewhere in the country. We continue to improve this service and recently introduced a trust-to-trust comparison functionality. This will help school and trust leaders to identify if and where improvements can be made.

I am conscious of time. On teachers’ pay and pensions, we have recently responded to recommendations made by the School Teachers’ Review Body to confirm the 2018 pay award for main scale teachers. It is our aim that schools continue to attract high-quality recruits—I take on board the many comments about recruitment challenges—and this award will support them to do that. We will see a 3.5% uplift to the main pay range, 2% to the upper pay range and 1.5% to the leadership pay range. In the main pay range, it is important to stress for noble Lords, this is the biggest percentage increase since 2011.

[Lord Watson of Invergowrie]

The Minister has not mentioned the fact that schools are meant to meet the first 1% of the pay rise themselves, so that is not funded. Can he explain that? Can he also answer my earlier question as to whether he accepts the figures in the Institute for Fiscal Studies report?

[Lord Agnew of Oulton]

The noble Lord is correct that the first 1% of the pay rise is expected to be funded by schools. We believe that that is possible within the efficiencies that I have mentioned. As for the Institute for Fiscal Studies, I believe that it includes within its figures the 16 to 19 year-olds sector, which has seen a tougher regime than the mainstream system: I acknowledge that. We are fully funding the teachers’ pay award beyond the 1%. This will be worth £187 million in 2018-19 and £321 million in 2019-20.

On pensions, we propose to fully fund the increase in pension contributions recently announced for state-funded schools. We know that school budgets for the academic year have already been agreed and, in most cases, schools have allocated those budgets. That is why we have worked with the Treasury to get agreement to implement the changes from September 2019, rather than April 2019. We will consult on the best mechanism to distribute funding to individual schools and announce how it will be distributed in good time, before schools experience the pressures in September 2019.

As we distribute this funding, we will be at the same time more fairly in line with the best available evidence. For example, by using a range of indicators to measure deprivation we are able to ensure our funding reaches all those pupils who need it. It is not limited simply to those who qualify for free school meals. Alongside the additional needs funding in the formula, we continue to deliver the pupil premium, with more than £2.4 billion this year. This is above the funding that we provide through the national funding formula. We will have invested over £13 billion in the pupil premium since 2011 to improve the outcomes for less well-off pupils.

I will now try to address specific questions raised by noble Lords. The noble Lord, Lord Bassam, asked about Barnet but I think he has gone. No, he has not—apologies. Under the NFF for 2019-20, schools in Barnet will attract £4,999 per pupil. This is an addition of £68 per pupil, or 1.3% compared to the 2017-18 figure. The total cash funding will increase by 3.2% and an additional £7.7 million, once rises in pupil numbers are taken into account. Just to explain how important that is, the marginal additional cost of educating one more pupil in a school is not the average per pupil amount. Barnet’s local authority received £48.1 million for high needs, an increase of £1.2 million compared to 2017-18.

My noble friend Lady Eaton and the noble Lord, Lord Watson, referred to the EPI report and the rise in deficits. They are rising, which is a concern, and I am having to spend a great deal of time on that. We are offering advice to local authorities on how to deal with this, but to put things in perspective, 91% of maintained schools reported a cumulative surplus, or that they would be breaking even in 2016-17, with total surpluses of more than £4 billion against a total deficit figure of less than £300 million.

The noble Baroness, Lady Morris, mentioned the shortfall in academy accounts. This is a myth that I want to slaughter early before it gathers traction. The figure referred to is driven almost entirely by an increase in impairment charges, which are non-cash changes to the value of land and buildings. Academies do not have to spend money on impairment charges, and a more realistic figure is that of the net cumulative reserves of the academy sector, which has seen an increase from £2.1 billion to £2.3 billion.

I share the concerns that the right reverend Prelate the Bishop of Worcester and the noble Lord, Lord Storey, have about rural schools. That is why I attended the Lambeth Palace address earlier this week and met the right reverend Prelate the Bishop of Ely yesterday, when we specifically discussed rural schools. I again make a pitch for multi-academy trusts, which are a very good solution to the problem. It is complicated in rural areas because of distance and how small many schools can be but, as I said in my address at Lambeth Palace, we are committed to always having a presumption against the closure of a rural primary school. They are the glue of these rural communities. My own son went to one, which faced closure last year. Since it was in Norfolk, the noble Lord, Lord Watson, would have been upset if I had intervened, but I did not. However, I am pleased to say that it has now joined an academy trust—one which I can tell your Lordships I have nothing to do with. It is important that we have sparsity funding, which is allocated to rural schools. The NFF allocates £25 million and we also give every school a lump sum of £110,000. When that lump sum is coupled with the sparsity factor, it provides meaningful support.

The right reverend Prelate made particular reference to a school where he said that the head teacher was struggling because the school had been asked to double the number of pupils. We have allocated a tremendous amount of basic need funding, with £7 billion during the current spending review between 2015 and 2021. Over the course of the Parliaments since 2010, we have increased the number of pupils by some 825,000 and they have all been funded. I want to reassure him on that.

The noble Lord, Lord Knight, asked about teacher recruitment and supply teachers, among other issues. I mentioned that we have just created a teacher recruitment service, which is now being rolled out across the country. It is a much more cost-efficient service than that provided in the market generally. Likewise, with supply teachers we have created another portal which has got the main supply firms in the country together. It has made them cap their fees and stopped the pernicious practice of charging a recruitment fee if the supply teacher becomes a permanent employee after a number of weeks. These may be only small things, but they all add up.

The noble Baroness, Lady Morris, raised issues about capital. We have committed some £23 billion to capital between 2016 and 2021 but, significantly, I should stress that we have also reduced the build costs per square metre by some 30%. This rises to 35% per square metre when improvements in efficiency and design are included, so we are very committed to that.

The noble Lord, Lord Storey, gave an example of a friend who wrote about possible boiler problems in his or her school. I am not sure whether he said it was under a local authority or an academy but, if it was a local authority school, we make an allocation to local authorities every year of the school condition allowance. It is then for schools inside a local authority to bid in for that. If it was an academy and had more than 3,000 pupils, the academy trust is given an amount of capital which it can then choose to spend as it sees fit.

This leads me on to the BBC documentary “School”, which I have not seen all of, although I of course will do so. However, I saw the first part and felt it was a very disappointing piece of journalism, because it was clearly set up to show how bad everything was. There are a number of challenges in that trust, but just on repairs one line from the journalist said that there were terrible, draughty windows and that the classrooms were therefore cold. When I looked up the figures for the school condition allowance, this trust receives over £1 million from that a year. The school in question—I think it is called Marlwood—is the biggest and, although we do not publish individual amounts per school, because the academy trust is free to use it as it sees fit, I can assure the House that there was plenty of money to deal with those windows. If it had a better call on its money than windows that increase heating costs, this is the sort of thing I get frustrated about. It is not all as one-sided as people think.

I am running out of time—my goodness, I apologise—and I had better sum up. On efficiencies in schools, I heard the comment from the noble Lord, Lord Watson, about the Harris Federation. The fact is that the Harris Federation is so efficient that it is able to employ centrally 80 school improvement teachers, who go out into its weaker schools—or ones it has just taken on—and provide the extra resource. That is one of the secrets of it being such a high-performing trust. Outwood Grange, a trust in the north of England, does a similar thing: it has 65 centrally employed school improvement teachers doing exactly the same and raising standards. It already has more than 900 pupils registering year-on-year for the schools that it took over from WCAT—a trust that failed—because of the improvements being seen.

[Lord Watson of Invergowrie]

I apologise for interrupting the Minister. I just want to be clear for the record that I was not criticising the Harris Federation, for which I have a high regard, but I wish that the noble Lord, Lord Harris of Peckham, had the same regard for the Government’s new funding formula.

[Lord Agnew of Oulton]

I had dinner with my noble Friend, Lord Harris, two nights ago and he is always frank in his views. He is a passionate advocate for his schools and what he has achieved is fantastic. I would like that to go on the record.

I would also like to give an example of a relatively small trust, the Thinking Schools Academy Trust in Kent, which has taken the novel approach of paying £2,000 more to its newly qualified teachers when it recruits them. You may say, “There’s no money around, so how has it done that?”. It has done so because its retention rate on teachers is double the national average. It has only a 10% turnover of staff every year, as against a national turnover of 20%. Thinking in ways like that can make such a difference.

I have been told to stop. I am very grateful to the noble Baroness, Lady Morris—

[Lord Young of Norwood Green]

I am sorry to delay the end, but I asked when the Government were going to review the transition to the new funding formula.

[Lord Agnew of Oulton]

My apologies. We are on a soft programme at the moment that is being reviewed, and then it will be reviewed more formally with the spending review. So I cannot answer that question at the moment. As the noble Lord will know, we are experimenting with giving delegation to local authorities for the high-needs funding block. Some local authorities are using that and some are passing all the funding straight back to schools. That soft launch will last until the funding review, which will be next year.

I thank all noble Lords for their contributions to this important debate. Even more, I pay tribute to the hard work of teachers and schools who give their best to raise standards in our education system. I have worked very closely with these wonderful people and I support the noble Baroness, Lady McIntosh, in what she said about the morale of teachers in the workforce and the fact that they are making a vital contribution.

We are changing the way that funding works. It is not easy, but we are seeing it beginning to bear fruit. This will underpin a further improvement in standards to help create a world-class education system that finally allows every child to achieve their potential, no matter what their background.