Archived decisions

Contact:

Chris Holt; Education Officer (Primary); 01962 845673; [email protected]

Bob Eardley; Strategic Planning Manager; 01962 846275; [email protected]

1 Summary

1.1. This report is the first part of a report back on the outcome of consultations following the review of primary and special school provision in the east New Forest area. It was originally intended that the whole review would be the subject of a report to the 2 March 2004 meeting of this committee. However, in an attempt to lessen the period of uncertainty for schools, and in recognition of the complexity of the review, it was decided that the outcome of the consultations would be reported in stages.

1.2. This report covers one of the areas engaged in the review, which comprises the following schools:

· Calmore Infant, Calmore Junior (foundation).

A report on other schools engaged in the review will be made to the Education Policy Review Committee at its meeting on 2 March 2004.

1.3. The notes of the meetings held with parents, staff and governors of the two schools can be found in Appendix 1. Appendix 2 comprises the LEA commentary on school performance for each of the schools. A list of all correspondence and documentation received is set out in Appendix 3. All correspondence is on deposit for inspection in the Members' Room during the week prior to the Education Policy Review Committee meeting on 20 January 2004, and will be available for perusal in the Council Chamber from 12.30 pm on the day of the meeting. Appendix 4 is a map of the Totton area.

1.4. Members visited the Calmore schools on 11 December 2003; issues raised during the visits are set out in section 8.

1.5. In addition to the consultation with governors, staff and parents, the views of district, town and parish councils have been sought and discussions have taken place with the New Forest Local Strategic Partnership (section 7 refers).

1.6. Members are asked to advise the Executive Member for Education of their conclusions in order that a decision may be made about the future organisation of primary education in this area of the east New Forest.

1.7. The proposals support the County Council's corporate aims of maximising life opportunities and building strong and safe communities and improving services.

2 Strategic implications

2.1. The County Council has a statutory duty to plan the provision of school places and to secure an appropriate balance locally between supply and demand. Needs change in response to population movements and fertility trends. In many areas of the county, child populations are falling as populations stabilise. Although additional dwellings are being built, many of these are to house an increased number of households, many of which do not include children.

2.2. The 2003/04 - 2007/08 School Organisation Plan, approved by the School Organisation Committee on 16 December 2003 draws attention to the rising number of primary surplus places in Hampshire and the need to ensure that the increase is effectively managed. The overall level of surplus, which was 8% in January 2003, is forecast to rise to 13% by 2008, significantly above the 10% level considered a reasonable upper level by the Audit Commission. The forecast surplus is equivalent to 69 one form entry primary schools.

2.3. The effective management of surplus places offers valuable opportunities to improve the learning environment through the provision of specialist teaching spaces and also to enhance community provision, particularly through the development of early years facilities.

3 Background and consultation options

3.1. On 27 March 2003 the Executive Member for Education authorised local consultations with the Calmore schools' communities following a desktop analysis of primary school provision in the area of Totton. The analysis showed that at the Calmore schools there were significant numbers of surplus places which were forecast to rise. (Table 1 refers).

3.2. The analysis also showed that none of the mainstream primary schools in the east New Forest area have resourced provision for pupils with special educational needs, resulting in primary age children having to be transported long distances to access specialist provision for language impairment and emotional and behavioural difficulties.

3.3. Based on the January 2003 pupil census, Table 1, which follows, formed part of the consultation document.

Table 1

* Foundation School

3.4. Following the September 2003 pupil count the table above has been amended as follows. Table 2 shows the updated figures, which also make it possible to project to 2008/09. In response to questions, figures to show the total capacity have been added (see note (c)).

Table 2

Notes:

a) Infant school participation rates show the percentage of catchment area children attending the school.

b) Junior school participation rates reflect the percentage of children transferring from the paired infant school.

c) MOE (More Open Enrolment Capacity) figures for September 2000 have been added to Table 2. These show the capacities of the schools before the initial phase of the review of primary provision in this area. As part of the LEA's continuing dialogue with schools in managing the provision of places, this phase focused on identifying surplus places in schools which could be redesignated to specialist teaching facilities. These redesignations have provided accommodation which is needed to support the current curriculum and sought to match available space more closely to the number of pupils. As a result of this work, surplus places in the schools listed in Table 2 have been reduced as shown in Table 3 which follows:

Table 3

	Reduction in surplus places Sep 00 - Sep 03
Calmore Infant	150
Calmore Junior	30

3.5. The extent of the surplus places still remaining at Calmore Infant and Calmore Junior schools led to consultation taking place on the following options:

a) Amalgamation of the two schools to form a 420 place (two form entry) primary school on the junior school site.

b) Utilisation of the spare capacity at the infant and junior schools to enhance and develop early years provision and/or SEN resourced provision.

4 Early Years Provision

4.1. In agreeing that consultation should take place on the options in paragraph 3.5 above, the Executive Member for Education was keen to explore opportunities which may arise as a result of potential changes to the current pattern of primary school provision, to consolidate and enhance early years provision as appropriate.

4.2. Table 4 sets out the number of pre-school age children and the provision known to be available to them in the Totton North.

Table 4

Ward	No EYE Places	No. of 3 and 4 year olds
		2003	2004	2005
Totton North	100	180	168	161

* Source, 2003 Annual Audit of Early Education (EYE) and Childcare Places

4.3. An analysis of the data available from the County Council's Early Education and Childcare Unit has shown that there is a shortfall of early years provision in four of the five Totton wards. Bearing in mind that the County Council has a duty to secure good quality early education places from the age of three years for those parents who request them, there is a strong case at Calmore to strengthen and extend this provision.

4.4. Calmore Infant School houses Caterpillars Pre-School which offers 52 places on a sessional basis, and also provides accommodation for an opportunity playgroup which operates on two mornings per week.

5 Calmore Infant School: review of responses to consultation

5.1. The governing body and staff were quite clear in their belief that the infant school should remain separate. They stated that any change would be severely disruptive to children's education and would have an adverse effect on educational standards. They believed that good infant practitioners could leave as a result of the review and an amalgamation (if that were the outcome) and recruitment would be problematic.

5.2. There was considerable concern from parents, staff and governors about the impact amalgamation would have on the early years provision which presently exists at the infant school. Governors felt there was a strong case to expand such provision at the school, together with parent support facilities. Governors and staff were also willing to embrace the idea of developing SEN resourced provision for infant age language impaired children. It was pointed out that the school houses staff from the County Council's early education and childcare unit. Whilst these staff work across the Totton and Waterside area, their location has had a beneficial impact on children and staff at the school. This could be lost.

5.3. Staff and governors expressed the view that any change should result in better facilities for children, and it was felt that an amalgamated primary school would not offer the same scope of provision which the separate infant and junior schools presently enjoy e.g. separate ICT facilities/spaces for work with children with SEN. There was concern that children would end up in more cramped conditions with reference being made to the physical size of the junior school classrooms. Views were expressed that infant age children would find a 420 place school daunting. Reference was also made to the impact amalgamation would have on expressed parental preference for their child to attend an infant school.

5.4. Governors, parents and staff were sceptical about the number of pupils forecast to be at the Calmore schools. Reference was made to housing development in the area and the impact this would have on pupil numbers in the future. It was stated that New Forest District Council would be more likely to develop housing in Totton rather than other areas of the New Forest. Given this, it did not make sense to be reducing places in Totton schools.

5.5. Parents expressed concern at the prospect of four year old children mixing with eleven year olds and the adverse influence the older children could have, including bullying. They were also concerned that a 420 place primary school would result in larger classes.

5.6. Questions were asked about how and when the building work necessary to create a primary school from the junior school would take place. This would be a danger to children and would be disruptive to their education. They only get one chance. Parents were anxious that if the decision was to amalgamate the two schools then building work at the junior school should be completed before children are moved from the infant school. There should be no temporary buildings. It was pointed out that there was no kitchen in the junior school. Wouldn't it make more sense, if the schools were to be amalgamated, to use the infant buildings? Parents were concerned that the infant school was a `soft target' for closure, given its community status as opposed to the foundation status of the junior school. The closure of the infant school could be imposed, the closure of the junior school would need the governing body's agreement.

5.7. The 182 parents and members of the community present at the consultation meeting were unanimous in their support for separate infant and junior schools.

6 Calmore Junior School: review of responses to consultation

6.1. Staff and governors sought clarification on the substance of the consultation. If the schools were amalgamated, would this negate the opportunity to house SEN resourced provision at Calmore? There was concern about the type of resourced provision which could be placed at Calmore; governors believed that provision for language impaired children would be more acceptable to parents than provision for children with emotional and behavioural difficulties.

6.2. Parents were concerned about the impact which amalgamation would have on the quality of education currently offered by the junior school and the effect on standards. The point was made that parents had opted to send their children to separate infant and junior schools. A decision to build an amalgamated primary school would remove this option and would be disregarding earlier parental preference.

6.3. There were concerns about what would be provided in a primary school building, and there were doubts expressed that whatever may be provided would not match up to the present provision on offer in the separate infant and junior schools. Parents were concerned about the disruption which building work would have on children's education.

6.4. Staff, governors and parents questioned the validity of the forecast pupil numbers for the Calmore schools. It was pointed out that the forecast was predicated upon the infant school continuing to attract a number of children equating to 68% of those living within the school's catchment area. Parents commented that the infant school may receive more applications from catchment area children in the future. A two form entry school would not be big enough, resulting in catchment area children being refused a place.

6.5. Questions were asked about the financial rationale and funding strategy behind the review. If school funding is largely based on the number of pupils then why does the physical capacity of the school matter? Parents expressed concern that there was no cost analysis set against the option for change.

6.6. The governing body and staff were united in their belief that the retention of separate infant and junior schools is in the best interests of the local community, and were committed to working in partnership with the infant school `to provide high quality specialised education to Key Stage 1 and Key Stage 2 children'. In recognition of the spare capacity which exists at the school, governors were keen to explore the establishment of resourced provision for children with language impairment. The governing body has given written notification of its resolution to proceed with the publication of notices which establish such provision at the junior school.

6.7. In addition to the above, and in recognition of the surplus capacity at the junior school, the governing body has had preliminary talks with Hampshire County Council's School Library Service which is looking to relocate from its present base in Lymington in the near future. The governing body has stated that the School Library Service is keen to pursue this option which, if realised, would result in three classrooms being taken out of school use, a removal of 90 places from the net capacity assessment of the school.

7 Parish and Town Councils, and New Forest Local Strategic Partnership, review of responses to consultation

7.1. Totton and Eling Town Council supports the option to utilise surplus capacity at Calmore Infant and Calmore Junior schools for early years and/or SEN resourced provisions. The council is in opposition to an amalgamation of the two schools.

7.2. Ashurst and Colbury Parish Council, whilst not commenting on the specific options for schools, stated that it is against the disposal of any school sites, believing that to do so would be short sighted and not take into account the long term well being of a parish.

7.3. The New Forest Local Strategic Partnership discussed the issues at a meeting on 18 December 2003 and the outcomes are summarised as follows:

a) The Partnership recognises the difficult task the County Council has in attempting to balance cost effectiveness of service provision and best use of assets with the needs of the community;

b) Partnership is concerned at the potential impact school closures and mergers may have on local communities and that an assessment of this should be part of the review process;

c) The future use of any surplus school buildings should be considered as part of the review process;

d) The review process should include early involvement of Local Strategic Partnerships and the use of the Community Strategies for the District and the County;

e) In undertaking reviews of this nature the County Council should place significant weight on the longer term effects of school closure on the well being of children in the area.

8 Members visit on the 11 December 2003

8.1. Members visited the two Calmore schools on the 11^th December 2003. Issues raised are addressed in section 10 of the report.

8.2. Other issues raised were the percentages of children at each of the schools receiving free school meals, and the percentages of children identified through the special needs audit. Members were informed as follows:

Table 5

School	SEN Audit (%)	Free school meals (%)
Calmore Infant	30	9
Calmore Junior	12.5	12

8.3. Other issues raised were the need for liaison between the infant and junior schools, and the number of children each school would be expected to house in language impaired SEN resourced provision. Members were informed that the junior school headteacher was in her first term in post and that she and the infant school headteacher considered it a priority to build on and cement the present close links, with a view to achieving a seamless transition for children from the infant to the junior school. With regard to resourced provision for language impaired children, members were informed that the infant and junior schools would be expected to cater for up to six children in each establishment.

9 Views of the local County Councillors

9.1. Local County Councillors will be expressing their views at the Education Policy Review Committee meeting on 20 January 2004.

10 Issues raised during consultation

10.1. The following comments are given on the main issues arising from the consultations:

Forecast pupil numbers

10.2. Much discussion and correspondence centred upon future numbers of children in the area and schools they might attend. Forecast pupil numbers take into account all planned new housing, including type and tenure, and are based upon small area population forecasts which detail the number of 0 - 4 year-olds in an area. There is no significant new housing proposed in the areas served by the Calmore schools in the New Forest District Council's local plan, which covers the period up to 2011.

SEN resourced provision

10.3. As stated in paragraph 3.2 there is an identified need in the New Forest area for mainstream, school-based SEN resourced provision for primary age children with language impairment and for children with emotional and behavioural difficulties. During the consultations it was queried whether such provision might be imposed on a school as a result of surplus places which might exist there. The County Council does not have the power to impose such provision. The establishment of SEN resourced provision requires the publication of statutory notices setting out the County Council's proposals. Subject to any objections to the proposal, the School Organisation Committee would be the determining body. Quite apart from the legal process to be followed, the single most important factor in the success of any mainstream based SEN resourced provision is the willingness of the host school to include and embrace such provision. The County Council would not countenance locating SEN resourced provision at a school without the full commitment of that school.

Early years provision

10.4. The County Council's Early Education and Childcare Unit has identified the need for additional early years provision in the Calmore area for up to 68 children. Currently, within Calmore Infant School, there is a pre-school group and an opportunity group for children with special educational needs and disabilities. There is a need to provide inclusive early education places, in keeping with the Council's policy on inclusive education, as well as increasing the number of places to meet the Council's duty of an early education place for every three and four year old child. By providing inclusive and integrated provision, the number of early years places could be increased. This would represent an important step towards developing improving early years provision within the East New Forest. This would be an incremental process, with other partners and agencies joining over time to provide integrated services for 0 - 5 year old children and their families.

Infant, Junior and Primary

10.5. The County Council supports infant and junior as well as primary schools. Providing for the age groups in a single school or in separate infant and junior schools works, and there are many examples of successful schools of all types. Infants can flourish in infant and primary schools. That includes large primary schools where size is addressed by good leadership and organisation, and the evidence is that the older children take a particularly responsible attitude towards the youngest. Class sizes are not determined by the age range and funding per pupil is based on the same formula, whatever the type of school

10.6. If a primary school is formed from existing infant and junior schools, the process is managed carefully, in the light of the particular circumstances. It could entail the closure of both the existing infant and junior schools and the opening of a new primary school. A governing body for the new primary school would be constituted on a temporary basis prior to its opening and would appoint the headteacher who would then work with the governing body to appoint staff. Potentially displaced staff from the closing infant and junior schools would, with the agreement of the temporary governing body, be given first opportunity to apply for positions in the new primary school. Another way would entail the closure of one school and the change of character and enlargement of either the junior or the infant to a primary school. The governing body and staff of the non-closing school would become the governing body and staff of the primary school. Again, potentially displaced staff from the closing school would, with the agreement of the governing body, be given first opportunity to apply for vacant posts in the new primary school.

10.7. If building works are required to support reorganisation (or any other reason), the County Council uses its expertise and experience to ensure high standards of product and process. Disruption is kept to a minimum and the schools are fully involved in the development of the improvements.

11 The way forward

11.1. The County Council needs to take strategic decisions which are in the best long term interests of children, including those aged 3 - 11 in the Calmore community.

11.2. The combined number on roll at the infant and junior schools in September 2003 was 431 (179 infant, 252 junior). This is forecast to fall to 325 in January 2009 (144 infant, 181 junior). The percentage of surplus places in January 2009 (46.7 at the infant school and 49.7 at the junior school) is not sustainable, nor would be recognised as such either by the Department for Education and Skills or by the Audit Commission.

11.3. Members will have noted from the report of the consultation meetings that there was no support for the option of amalgamating the infant and junior schools to form a primary school on the junior school site. However, both schools recognised that, given the data in 11.2 above, the status quo is not an option. The infant school is keen to develop and expand early years provision in partnership with parents and the local community. The school is also willing to embrace the establishment and development of resourced provision for language impaired infant age children in the New Forest area.

11.4. As indicated in paragraph 10.4, the County Council's Early Education and Childcare Unit has identified the need for additional early years provision in the Calmore area By providing inclusive and integrated provision, the number of early years places could be increased. An increase in this type of provision is one of the targets in the Sure Start Strategic Plan for 2004-2006. At the same time there is an opportunity to address the issue of much needed, locally based, SEN resourced provision for language impaired infant age children. These two developments at the school would necessitate the re-designation of three classrooms, effectively removing 90 places from the net capacity assessment of the infant school, thereby reducing it to a 180 place, two form entry infant school with inclusive pre-school and language impairment provision.

11.5. Calmore Junior School is keen to establish SEN resourced provision for language impaired children, believing that the school's well validated SEN provision and expertise will enable success for the children who would be joining an inclusive community. Were the decision taken to propose the establishment of LI resourced provision at the junior school then, as a foundation school, it would fall upon the governing body to publish statutory notices setting out the proposals. The chairman of governors, on behalf of the governing body of Calmore Junior School, has written to inform the County Council that the governing body has resolved to publish notices as necessary.

11.6. In considering how surplus capacity at Calmore Junior School might be used in the interests of children's education the headteacher, with the support of the governing body, has been in discussion with the Head of Children's Use and School Library Services. The School Library Services are required to move from their present location at Lymington library. Having visited Calmore Junior School, the Head of Service is keen to relocate there, subject to the outcome of the east New Forest review as it affects the school. This development would necessitate the re-designation of three classrooms, which, together with the re-designation of a further classroom within the school to establish LI resourced provision, would remove 120 places from the net capacity assessment of the junior school. This would result in a 240 place, two form entry junior school with language impaired resourced provision and a base for the School Library Services.

12 Capital strategy

12.1. Funding for the capital works arising at the Calmore schools will need to be provided solely from the capital programme. References below to provision being made from 2004/05 capital programme resources are subject to decisions elsewhere on this agenda. The scope and cost of proposed works take account of the redesignation of surplus general teaching accommodation to provide specialist facilities which has already taken place, referred to in note (c) to Table 2.

12.2. The scale of work required in both schools is relatively small as existing spaces are being re-used. In the infant school internal modifications will be needed to one classroom to provide space for the language impaired resourced provision and existing early years provision will need to be extended; the existing ICT provision is relocated and extended. The Early Education and Childcare Unit will be relocated and a new SEN room formed within the existing school building. The cost of these works is estimated at £0.3 million. This would be funded from provision in the 2004/05 capital programme for capital works associated with surplus place removal and for the provision of early years accommodation.

12.3. In the junior school, small scale works would be required to equip one room for language impairment use and to adapt three teaching spaces for use by the School Library Service. The cost of these works is estimated at £0.11m and would be met from the 2004/05 provision for surplus place removal.

13 Revenue implications

13.1. The establishment of SEN resourced provision at Calmore Infant and Calmore Junior Schools for children with language impairment would result in revenue costs of £16,857 per annum. The costs would be met from within existing resources.

13.2. Resourced provision for children with significant language impairment requires the support of the local Primary Care Trust (PCT) in providing a higher level of speech and language therapy than is normally provided in mainstream schools. This is currently the subject of discussion with the PCT which may have to make budgetary provision to fund the additional therapy time.

14 Process and timescales

14.1. If the Executive Member for Education, in the case of the infant school and the governing body in the case of the foundation junior school, decide to publish notices proposing the establishment of SEN resourced provision for language impaired children at the schools, the notices would run for a period of six weeks. The proposals would then be considered by the School Organisation Committee. The timescale for the publication of notices will depend on the provision of speech and language therapy, as outlined in paragraph 13.2 above. The earliest date by which this process can be completed and the resourced provision in place is September 2005.

14.2. It is anticipated that the School Library Service could be located on the junior school site by January 2005.

15 Proposals for change

15.1 Taking account of the consideration that has been given to meeting the needs of the area, forecast numbers, the opportunities for SEN and community provision, and the views expressed during the consultation, the following are proposed:

a) That Calmore Infant School and Calmore Junior School remain as separate schools;

b) That surplus capacity at:

Calmore Infant School is used for additional early years provision and for the establishment of resourced provision for language impairment;

Calmore Junior School is used for accommodation for the School Library Service and for the establishment of resourced provision for language impairment.

15.2 Taking account of the initial phase of surplus place removals referred to in note (c) to Table 2, the outcome of these proposals would in summary be:

_ robust local primary provision through an infant and junior school, each with up to two forms of entry

_ expanded early years provision and development to respond to local demand

_ improved local provision for children with language impairment

_ a new base for the School Library Service

_ annual revenue investment to support the above

_ capital investment of £0.41 million

_ the removal of 390 surplus places, as summarised in Table 6:

Table 6

School	Capacity Sep 2000	Capacity Sep 2003	Capacity after implementation of measures proposed in this report	Reduction on September 2000 capacity
Calmore Infant	420	270	180	240
Calmore Junior	390	360	240	150
Totals	810	630	420	390

16 Recommendations

16.1 To advise the Executive Member for Education to proceed with the proposals in paragraphs 15.1.

Section D - Local Government Act 1972 - Background Documents

The following documents disclose facts or matters on which this report, or an important part of it, is based and has been relied upon to a material extend in the preparation of this report.

None

NB The list excludes:

1 Published works

2 Documents which disclose exempt or confidential information as defined the Act.