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 provides details of the outcomes of consultations held at Blackfield Infant, Blackfield Junior and Fawley Infant Schools.

1.2. The notes of the meetings held with parents, staff and governors of the schools can be found in Appendix 1. Appendix 2 comprises the LEA commentary on school performance for each of the schools. A record of all correspondence and documentation received is set out in Appendix 3. A map is provided in Appendix 4.

1.3. All correspondence is on deposit in the Members' Room during the week prior to the Education Policy Review Committee meeting on 2 March 2004, and will be available for perusal in the Council Chamber from 09.30 am on the day of the meeting.

2 Consultation options

2.1. Data on school places at the Blackfield Infant, Blackfield Junior and Fawley Infant schools are set out in Table 1.

Table 1

(F) - Foundation status

(60) - reflects numbers of places in temporary accommodation

2.2. The significant numbers of surplus places at these schools and the forecast of a further decline gave cause for concern. This led to consultations taking place on the options set out below:

a) Blackfield Infant, Blackfield Junior and Fawley Infant schools to be amalgamated on the Blackfield Junior School site to form a 3 form entry primary school, with the Blackfield Infant School and Fawley Infant School sites being used for other purposes, or sold for residential development;

b) Blackfield Infant School and Blackfield Junior School to be amalgamated on the Blackfield Junior School site to form a 2½ form entry primary school, with the Blackfield Infant School site being used for other purposes, or sold for residential development, and no action being taken at Fawley Infant School;

c) Blackfield Infant School and Fawley Infant School to be amalgamated on the Blackfield Infant School site to form a 3 form entry infant school, with Fawley Infant School being used for other purposes, or sold for residential development, and no action being taken at Blackfield Junior School.

3 Blackfield Infant School: review of responses to consultation

3.1. Staff, governors and parents expressed concerns about reception age children starting their formal education in a large, three form entry primary school. A primary school of this size was considered to be too big. Allied to this were concerns about the potential for bullying. A number of questions centred around the accommodation in the junior school and its suitability for use by infant age children. Clarification was sought as to whether the junior school site was large enough to accommodate the increased building and the necessary playing field provision. Parents sought reassurance that the pupils would be safe should any building work take place.

3.2. Staff questioned whether the age and condition of the infant school buildings would be a factor in the final decision making of the review. A governor queried whether the school site would revert to the original donor if the school closed. The issue of parental preference was raised, with concern being expressed that an amalgamated primary school would remove parents' choice for separate infant and junior education. Parents asked if alternative uses could be found for the surplus accommodation in the school, such as specialist teaching use, e.g. for music/drama. Questions were raised about educational standards in the schools and the impact any change would have on them.

3.3. A parish councillor stated that the government wanted residential development in the area and asked whether these developments were included in the projected numbers. The Dibden Bay expansion proposal was also mentioned in this context. Parents stated that any residential development would include social housing and asked for reassurance that there would be sufficient school places. Governors and parents expressed concern that the capital receipt from the sale of the school site would be the driving force behind the review and that the site redevelopment may be inappropriate. Governors stated that they wished to see any capital receipt invested in full in the Blackfield schools.

3.4. Staff felt that children with special educational needs would not be identified as easily or as early in a larger school. Parents also expressed concern about less confident children being over-awed and over-looked in larger class sizes.

3.5. Staff, governors and parents were of the view that if the infant school were to be embraced by the junior, as a foundation school, the staff at the junior school would be `safe' through employment rights. This would not necessarily be true for infant staff. Concerns were expressed at the impact the review would have on staff retention and recruitment.

3.6. Parents wished to be assured that the standard of education which their children presently received would not decline should change take place. Reassurances were sought with regard to mixed age groups and class sizes if there were an amalgamation.

3.7. Staff, governors and parents sought clarification as to whether a new primary school would be a foundation primary or community primary. Governors queried whether the infant school becoming a foundation school would remove the LEA's responsibility in terms of school provision for the area. Governors wished to know what travel arrangements would be put in place for pupils to travel to Blackfield should Fawley Infant School close.

3.8. The general consensus expressed at the parents' meeting was to maintain the status quo.

3.9. Following the consultation meeting a letter was received from a teacher governor giving details of a staff ballot as follows:

· amalgamation of all three school 0 votes

· amalgamation of the Blackfield schools 1 vote

· amalgamation of Blackfield and Fawley Infant Schools 29 votes

4 Blackfield Junior School: review of responses to consultation

4.1. The headteacher commented that, in the past, some schools under threat of reorganisation/closure had sought grant-maintained status and prospered. He expressed the opinion that the higher cost of educating pupils in smaller schools was the reason for the review and stated his belief that the status quo was not a viable option for the Blackfield and Fawley schools. A suggested way forward might be for Blackfield Infant and Fawley Infant schools to join the Blackfield foundation, with one possible spin-off being that the present uncertainty surrounding the future of the three schools would be reduced. The headteacher went on to say that in view of parents' stated dislike for large schools, there should be a differentiation of age ranges in separate buildings in any primary school. He pointed out that, if no action was taken, falling rolls would have a negative impact on the achievements of the junior school.

4.2. The chairman of governors of the infant school queried whether the school's seeking foundation status would provide protection against any reorganisation.

4.3. It was asked whether there would be any gain for the local community from the sale of land which would occur as a result of reorganisation. It was pointed out that no firm undertaking had been given on early years provision and what may be provided. The financial viability of the options was questioned, and it was queried whether any decision to sell surplus land would only be taken by the County Council, or in conjunction with the governing bodies. Clarification was sought regarding the revenue savings which may accrue as a result of any amalgamation.

4.4. A member of staff referred to the many changes which have been made to the junior school over the past 25 years. It was stated that, since becoming grant maintained the school had greatly improved and that the loss of foundation status would be a backward step. Concern was expressed that the County Council would be opposed to the views of the headteacher.

4.5. A question was asked about provision for children with special educational needs and whether such children were being catered for in mainstream schools to fill surplus places. A member of staff asked, should amalgamation take place, whether staff would need to apply for jobs in the amalgamated school. Clarification was sought regarding the employment rights which infant school staff would have if they joined the junior school foundation.

4.6. Concern was expressed about whether the LEA took into account planned housing developments and about the implications for an amalgamated school if pupil numbers were to rise. It was pointed out that whatever decision may be taken in the future regarding reorganisation, the importance of maintaining standards should not be lost.

5 Fawley Infant School: review of responses to consultation

5.1. Parents expressed the view that a school of 600+ is too big, and that a school of this size would seem daunting to young children. Parents stated that the walking route from Fawley to any new primary school on the Blackfield site was not safe, and that this would result in more traffic on the roads. It was suggested that this does not fit in with the County Council's policy of reducing traffic congestion. It was pointed out that Fawley parish is in an area of deprivation with the school being seen as the centre of the community, giving children in the area a good start to their education. Questions were asked about alternative uses for the Fawley site and how, if the site was not sold, work on the Blackfield buildings would be funded.

5.2. Staff and governors pointed out that the school building was relatively new and in good condition - why seek to close it and sell the site? A wish was expressed that part of the Fawley Infant building should be used for early years provision. Parents wished to be assured that, in the event of amalgamation, any work required on the Blackfield site would be completed before Fawley Infant School closed.

5.3. The staff, governors and parents referred to likely housing developments in the area, and sought clarification as to where the additional pupils would go. Potential developments at Dibden Bay, Calshot and on Ministry of Defence sites were also mentioned. It was stated that the area is a low-cost start-up area for young couples with small children.

5.4. The headteacher and governors queried the forecast pupil numbers, stating that they did not show the true picture, as the participation rate for the school had risen. Parents asked how the County Council could be sure of its forecast numbers stating that these had proved to be inaccurate in the past.

5.5. Concern was expressed by parents about the size of classes in the new primary school. Staff and governors questioned the effectiveness of a large three form entry school in the context of provision for children with special educational needs. Parents were concerned that parental preference for a small school would be removed; they believed that children get a better start at Fawley Infant School. It was pointed out that the school serves the area of Calshot, which is recognised to be an area of significant deprivation; a larger school would result in there being less time spent with children and their families within this area.

5.6. Staff asked if there was any evidence to show that pupils in a larger infant school obtain better results than those who start their education in small infant schools, and pointed out that the present high `value added' at Fawley Infant School may not be sustained in a larger establishment. It was stated that Fawley Infant School is popular due to its inclusive nature. Staff, parents and governors asked if there could be any guarantee that the standard of children's education would not suffer as a result of reorganisation.

5.7. Parents wished to know how many additional teachers would be required for the larger school. Clarification was sought about what would happen if present staff failed to secure a job in any proposed primary school. The issue of revenue savings as a result of amalgamation was raised, and it was queried whether the level of such `savings' was a factor in school closures.

5.8. Governors asked about the timing, constitution and composition of any temporary governing body set up as a result of reorganisation. Local traders expressed concern that they would lose passing trade were Fawley Infant School to close. They pointed out that children at the school are actively involved in the local community and the school's closure would have a devastating impact on community life.

5.9. The governors wished to be assured that a strong public opinion supporting Fawley Infant School would be taken into full account when decisions on the school's future were being made.

5.10. A vote taken at the end of the parents' consultation meeting resulted in unanimous support for the retention of Fawley Infant School. Were this not to be the outcome parents were split 50-50 regarding the amalgamation of Blackfield Infant and Blackfield Junior Schools to form a primary school or their retention as separate infant and junior schools.

6 Blackfield Infant and Blackfield Junior schools governing bodies: proposal to amalgamate to form a primary school (with foundation status)

6.1. Following LEA consultation meetings, Blackfield Infant School and Blackfield Junior School governing bodies have met separately and jointly to consider the consultation options, and have concluded that the interests of pupils, staff, parents and the local community would be best served by amalgamating schools to form a primary school on the junior school site. Prior to arriving at their joint conclusion the governing bodies sought the views of Fawley Infant School's governing body regarding the option for all three schools to amalgamate and form primary school. In response, Fawley Infant School governing body affirmed their view that the school should be retained as a separate infant school.

6.2. Blackfield Infant School is a community category school, Blackfield Junior is a foundation category school. Since the initial consultation meetings, Blackfield Infant School's governing body have decided to consult on a change of category to foundation status (the essential differences between these two categories of school are set out in section 9.2). As such, Blackfield Infant School's governing body are required to consult staff, parents and the LEA with regard to their proposal. LEA officers were invited to attend the governing body's consultation meeting with parents on 27 January 2004 where the governing body's reasons for pursuing amalgamation with the junior school to form a primary school, and its seeking foundation status, were set out. Parents were informed that foundation status for Blackfield Infant School would `allow the governing body to have more control over the amalgamation process, for example in providing a purpose-built Infant block'. Parents were also informed that the Blackfield Infant School staff supported the governing body's proposal to seek a change of category for the school from community to foundation status, and to pursue amalgamation with Blackfield Junior School to form a foundation primary school. (A letter from the headteacher of Blackfield Infant School dated 2 February 2004 detailed the results of the secret ballot of the 27 staff showing that 23 staff supported the proposed change of category and 22 supported amalgamation with the Junior School).

6 Members' visits

6.1. Members visited the three schools on 12 February 2004. Issues raised are covered in sections 8 and 9 below and in section 9 of the overview paper.

7 Early years provision

7.1. An analysis of the data available from the County Council's Early Education and Childcare Unit (paragraph 4.2 of the overview report refers) has shown that the Fawley, Blackfield and Langley ward, which serves the Blackfield and Fawley Schools, has a surplus of early education places.

8 Area specific issues raised during the consultations

Traffic/walking routes

8.1. Fawley parents stated that the walking route from Fawley to the Blackfield Schools site was not safe, and pointed out that this would result in more traffic on the roads as parents transported their infant aged children to Blackfield. The walking distance between Fawley Infant and Blackfield Infant schools is one mile, with walking routes all on paved paths or footways.

Status of schools

8.2. The essential differences between community and foundation status are that with a foundation school the governing body owns all the school's land and buildings, the governing body is the employer of all the staff (teaching and non-teaching), carries full responsibility for health and safety matters, and is the admissions authority for the school. Only the governing body can publish proposals to make a `prescribed alteration' to the school, such as a significant enlargement or change in age range. Any such statutory proposals must be approved by the School Organisation Committee, even if there are no objections.

8.3. The governing body of any community school can propose to change to foundation status. To achieve this it must first consult interested parties, including parents, staff and the LEA. If it then decides to proceed, the

governing body must publish Statutory Notices which give a period for representations, and seek approval from the School Organisation Committee. If the change is approved, staff and property transfer to the governing body.

Fawley Infant School

8.4. The parents, governors and staff of Fawley Infant School stated that the school was at the heart of a distinct village community. It is acknowledged that Fawley village's infrastructure and the demography of the immediate area is not dissimilar to rural communities in other parts of Hampshire whose village schools are supported.

9 The way forward

9.1. The County Council's responsibility is to take a strategic view of the most sustainable and appropriate pattern of school provision in the area for the long term.

9.2. The combined total number on roll at Blackfield Infant, Blackfield Junior and Fawley Infant schools in January 2003 was 684. In January 2004 there were 632 children attending the three schools. The combined forecast number on roll for the three schools in 2009 is 547. Since embarking on consultations with the schools' communities there has been a growing acceptance from the schools of the negative impact of falling rolls, and the need to address the unacceptable level of surplus school places in the area (Table 1 refers).

9.3. Fawley Infant School's community believe that the school provides a much needed resource for the populations of Fawley and Calshot. In January 2003 there were 68 children at the school, the January 2004 number on roll was 71. The forecast number on roll in 2009 is 68. Fawley Infant School was built as a first school with accommodation for 120 children (30 each in Reception, Year 1, Year 2 and Year 3) at a time when education in the area was provided through a three tier system of first, middle and upper schools. In recent years the capacity of the schools has been reduced by 30 places to 90, through the redesignation of general teaching areas to provide specialist teaching spaces. In planning new schools in urban areas the County Council would not consider establishing an infant school of this size. In small rural communities, where distances to alternative schools are significant, small village schools are supported and the extra costs commensurate with them are met.

9.4. At the consultation meetings, the Blackfield Infant School parents supported the retention of their school, as did staff, but the latter with a caveat that if there were to be a change to the present pattern of provision, staff believed this would best be effected through an amalgamation of Blackfield and Fawley Infant Schools. Consultation with Blackfield Infant School's governing body did not result in any formal conclusion being reached by governors. Since that time the governing body, with the support of school staff, have resolved to pursue a change in the school's category from Community to Foundation status (as set out in section 9), and to subsequently amalgamate with the junior school to form a primary school in extended junior school buildings.

9.5. From the outset of consultations, the headteacher of Blackfield Junior School made clear his view that the status quo of separate Fawley Infant, Blackfield Infant and Blackfield Junior Schools was not a viable option. The Junior School's governing body have been proactive in engaging the school's two feeder infant schools to discuss the situation. Having had reaffirmation from Fawley Infant School of its view that the school should remain a separate infant school, and confirmation from Blackfield Infant School governing body of its commitment to seek foundation status and for the two schools to amalgamate to form a primary school, the Junior School governing body commissioned a feasibility study based upon the joint governing body's brief for an amalgamated primary school (see section 11.6).

9.6. The impact of each of the three options on surplus primary school places in the area is set out in Table 2 below. Options (i) and (ii) each result in the removal of 210 surplus places; option (iii) removes 90 surplus places.

Table 2

BI - Blackfield Infant School

BJ - Blackfield Junior School

FI - Fawley Infant School

9.7. The amalgamation of Blackfield Infant and Blackfield Junior Schools to form a 540 place primary school (with a planned admission number of 60 and a second intake of up to 30 in Year 3), in extended and adapted buildings on the junior school site, would result in a robust primary school offering the option of all-through primary education for children in the area.

9.8. The primary school could be established in one of two ways, either:

The closure of both Blackfield Infant and Blackfield Junior schools and the opening of a new primary school,

or

The closure of one and the change of character and enlargement of the other on the junior school site.

9.9. As a 90 place infant school Fawley is outside the optimum size of between 180 and 450 places for an infant school, as set out in the County Council's School Organisation Plan, However, it is accepted that there will inevitably be schools outside this range for a variety of reasons, and that such schools can achieve excellent results. It is also recognised that schools which fall below the minimum optimum size are more vulnerable in their ability to sustain high quality education. The County Council considers Fawley Infant to be a highly effective school with the capacity for further self-improvement (Appendix 1 refers).

10 Capital strategy

10.1. Initial feasibility studies have been carried out on the adaptation of Blackfield Junior School to form a 540 place primary school, based on the primary school building brief. Blackfield Junior School has also commissioned a feasibility study from the Director of Property, Business and Regulatory Services for an amalgamated primary school to a specification determined by the governing body which exceeds the requirements of the primary school building brief and creates an additional 120 places.

Adaptation of Blackfield Junior School to a 540 place primary school

10.2. The Blackfield Junior building would require two additional classrooms, a small hall, three tutorial rooms and SEN room to bring it up to the brief standard. Work to improve access to the site would also be necessary. Provision is not proposed for early years and no refurbishment requirements have been identified. The table below summarises the estimated costs.

Table 3 - Estimated capital costs to create a 540 place primary school in the Blackfield Junior building

Project elements	£ million
Additional general and specialist teaching	1.114
Access and Infrastructure works	0.262

10.3. The total estimated cost of the project is £1.376m.

10.4. A number of the infant school buildings have an aluminium frame and are likely to generate the need for substantial investment for major repairs and improvements in future years.

10.5. The Blackfield Infant School site could be sold for residential development, subject to planning consent being obtained from the New Forest District Council. The Secretary of State's consent to sale of part of the site would also be required. The anticipated capital receipt would cover a substantial proportion of the estimated cost of the project. The remainder of these costs would need to be met from provision in the Education capital programme. As the building work would start in 2005/06, the funding strategy would be reviewed once the likely capital receipt can be more accurately assessed. This would allow the amount of funding required from the capital programme to be finalised.

Extension of Blackfield Junior School to become a primary school proposed by the Blackfield schools' governing bodies

10.6. As part of its consideration of a possible foundation primary school, the governing body of Blackfield Junior School, in consultation with the governing body of Blackfield Infant School, has commissioned a feasibility study for an extension of the junior school to provide the space the schools believe is necessary to accommodate the children from Blackfield Infant School. This includes an infant wing of six classrooms and ancillary facilities, together with access improvements similar to those in the LEA scheme, but slightly enhanced. The resulting project would produce a school with a capacity of 660 places compared to the 540 places proposed in the LEA scheme. Estimated costs are summarised in Table 4:

Table 4 - Estimated capital costs of Blackfield Junior School's proposal for extending the school to become a primary school

Project elements	£ million
Additional general and specialist teaching	2.121
Access and infrastructure works	0.310

10.7. The total estimated cost of the project is £2.431m. This would increase the amount of funding required by more than £ 1 million.

10.8. If a foundation primary school were to be established, the specification of building works would be determined by the governing body. Foundation status would not, however, give access to additional capital funding, although the school could use its own resources to increase the amount of funding available, an option which is available to all schools. Statutory notices to establish a foundation school would need to specify the intended capacity of the school and the proposal would be subject to the approval of the School Organisation Committee. It is understood that the governors consider their proposed scheme as an ideal which may need to be varied in the light of available capital funding.

11 Revenue implications

11.1. The creation of a primary school from separate infant and junior schools would result in revenue savings from the reduction in fixed allocations per school, chiefly the post of headteacher, as well as lower premises costs. This funding would remain within the Schools Block, supporting the County Council's scheme of local management for all schools

12 Process and timescales

12.1. Section 9.14 of the Overview report explains the two different ways that a primary school can be established from existing separate infant and junior schools. In the absence of any special circumstances, the County Council's normal process of amalgamating infant and junior schools to form a primary school would be to close both schools and establish a new primary school.

12.2. If the Executive Member for Education decides to publish notices proposing the closure of Blackfield Infant and Blackfield Junior schools, and the opening of an amalgamated primary school with community status on the junior school site, the notices would run for a period of six weeks. Any objections would be considered by the School Organisation Committee on 25 June 2004. The earliest date on which an amalgamated primary school could come into being would be Easter 2005 with buildings completed by September 2006.

12.3. If the decision were to establish a primary school with foundation status on the junior school site through a significant change of character of the junior school and the closure of the infant school then, having undertaken the necessary consultations, the governors of the junior school would be responsible for publishing notices proposing the school's change of character, and the County Council would publish notices proposing the closure of the infant school. In both cases, notices would run for a period of six weeks with any objections being considered by the School Organisation Committee on 25 June 2004. The earliest date on which a primary school could be established would be Easter 2005. Adapted and extended junior school buildings could be completed by September 2006.

12.4. If the Executive Member for Education decides to publish notices proposing a significant change of character for Blackfield Infant School to become a primary school with community status, and the closure of Blackfield Junior School, notices would run for a period of six weeks. Any objections would be considered by the School Organisation Committee on 25 June 2004. If the final decision is to proceed with the infant school's change of character and closure of the junior school, the Secretary of State for Education and Skills would need to determine the ownership of the site and buildings formerly in the ownership of the junior school's governing body. The Secretary of State's decision and the timing thereof would determine the feasibility and timescale of this option.

13 Advice on the way forward

13.1. The County Education Officer advises the Committee that the strategic responsibilities of the County Council for planning the provision of school places would be met by retaining Fawley Infant School and by the publication of statutory notices to :

· Establish a 540 place primary school, with a planned admission number of 60 and a second intake of up to 30 in Year 3, on the Blackfield Junior School site through the amalgamation of Blackfield Infant and Blackfield Junior schools, with effect from September 2006.

13.2. Taking account of the initial phase of surplus place removals, referred to in table 4 of the overview document, the outcome of the proposals in this report would in summary be :

· The creation of a robust 540 place primary school

· Annual revenue investment to sustain provision

· Capital investment of £1.376m

Overall

· The removal of 289 surplus places as summarised in Table 5:

Table 5

14 Recommendations

To endorse the advice in paragraph 14.1 and to advise the Executive Member for Education to establish a primary school on the Blackfield Junior School site, either through the closure of both Blackfield schools or the closure of one and the change of character and enlargement of the other.

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.

NB The list excludes:

1 Published works

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