Contacts: Ian Lawson, Strategic Planning Officer; telephone 01962 846350; e-mail: [email protected]

Ann Begley, Assistant County Education Officer; telephone 01962 846518; e-mail [email protected]

1 Summary

1.1 This report recommends that local consultations be undertaken on options for the future provision of primary school places to serve the Whiteley area.

1.2 This decision supports Aims 1 (Maximising life opportunities) and 5 (Improving Services) of the Corporate Strategy.

1.3 Local consultations will provide the opportunity to consider a strategy designed to:

· match school places to local demand

· promote cost-effective education by offering improved facilities in schools to support higher standards of achievement

1.4 The views of the local County Councillors will be sought as part of the consultation process.

2 Strategic implications

2.1 The County Council, as the Local Education Authority (LEA), has a duty to ensure a cost-effective balance between the supply and demand for school places for Hampshire children. The School Organisation Plan (SOP) - approved by the School Organisation Committee in December 2003 - sets out the policy framework which guides decision making on the provision of school places and takes into account factors such as geographical variations, size and location of schools, parental preference and local population trends.

2.2 The 2004 Revision of the SOP draws attention to the rising number of surplus places in Hampshire primary schools as a result of demographic changes. The consequences of this rising surplus need to be managed and opportunities taken to make the most cost-effective use of resources.

2.3 In 1997, there were 6.4% surplus places in Hampshire primary schools; by January 2004 this had risen to 9%. A rise to 14% by January 2009 is forecast, significantly above the 10% level considered reasonable by the Audit Commission and one of the County Council's corporate targets. The number of four year olds in the county has been declining over recent years and this trend will continue, with a forecast reduction of 10% over the 10 year period from 1999 to 2009, equivalent to 10,555 children or nearly 352 classes of 30 children. The trend is particularly pronounced in some urban areas where there was rapid development in the 1960s and 1970s but where the population has now aged and the number of children has significantly reduced.

2.4 At the same time, there are a few areas of the county where significant housing growth is increasing the demand for school places. In those cases, consideration needs to be given to how best the demand should be met, taking account of the costs of new buildings, availability of land, long-term need and the number of unfilled places in other local schools.

3 Background

3.1 Whiteley was one of the major development areas identified in the 1970s in the South Hampshire Structure Plan. As originally proposed, the development would have comprised a first phase of 2,600 houses, with a second phase bringing the total to 4,500 if required by subsequent reviews of the structure plan. In the event, the requirement for the second phase has not been satisfied and there are no proposals to bring this forward during the current structure plan period (up to 2011).

3.2 As a result of local planning decisions, however, the total number of dwellings to be built in the original first phase has increased to 2,738. Of these, the Housing Land Supply Monitoring Information 2003 (published in February 2004) indicated that 790 remained to be completed as at April 2003, of which 112 were completed by April 2004.

3.3 The first phase of development included a site for a three form entry primary school (630 places) and this has been built. An additional primary school site would have been allocated had the second phase been released.

4 Current position

4.1 A summary of current and forecast numbers at Whiteley Primary School, and schools in the immediately adjacent area, is given in Table 1. The table includes an assumption that the dwellings referred to in paragraph 3.2 will have been completed by January 2009. A map showing the location of these schools is appended.

Table 1

Primary school capacities and pupil numbers in Whiteley and the Western Wards

(Note - capacity in temporary buildings, included in total, is shown in brackets).

4.2 The latest overall forecast for these schools, which is currently being updated in the light of September 2004 numbers on roll, shows a total demand in September 2009 of 3,132, which gives a surplus of 428 places or 12%. Detailed forecasts will be available for the consultation. The current forecast numbers at Whiteley Primary School indicate that, by 2009, there will continue to be pressure on admissions to some year groups. For example, the number of applications for admission to the Reception Year in September 2003 exceeded the number of places available. In the event parents accepted the alternative places offered. For September 2004 there were 92 first preference applications from within the school's catchment area, two in excess of the admission number.

4.3 There are several reasons why the number of children living in Whiteley is greater than expected. This includes the increase in the numbers of houses to be built, referred to in paragraph 3.2. In addition, as most of the development was given planning permission before current requirements for a greater proportion of smaller houses came into force, there is a higher than average level of houses suitable for families with children. Experience with new developments elsewhere in the County suggests that the total number of children of primary school age will peak at about 120 per year group (four forms of entry) once the remaining dwellings are completed, and subsequently settle at a level around three forms of entry as the development matures.

5 Long term proposals for Whiteley and the surrounding area

5.1 As suggested above, the long term settled population within Whiteley may not significantly exceed the three forms of entry available at Whiteley Primary School. Whilst, at its maximum, this excess demand could be up to an additional form of entry (210 pupils), experience with other housing developments in Hampshire indicates that this level is not likely to be sustained in the long term, unless further development takes place beyond that allocated in the Fareham Borough and Winchester City Local Plans. Table 1 shows that, when account is taken of places and demand in the adjoining area (referred to as the Western Wards of Fareham) the overall level of demand is constant and can be met within the places currently available. In this context, there are several options which can be considered in order to meet long term demand in the area:

Option 1 - to build a new one form entry primary school

5.2 The County Council does not own any land within Whiteley that would be suitable for building a new school. This option would, therefore, require the acquisition of a new site within, or adjoining, the boundary of the Whiteley development. Extensive searches by County Council officers, in conjunction with Fareham Borough and Winchester City Councils, have identified only one site of sufficient size that is available and serviced. This is adjacent to the Whiteley District Centre and is partly allocated as the site for a new church.

5.3 Preliminary discussion with the Portsmouth Church of England Diocese indicated interest in the development of a voluntary aided primary school and church, with shared facilities. The landowner has stated that the site could be made available, provided that acceptable terms can be agreed. It has not yet been possible to negotiate detailed terms for acquisition, partly because the availability of this site would require the agreement of Winchester City Council to changes to land uses within the retail element of the District Centre. The land available would be sufficient only for the school and church buildings, school playgrounds and parking for staff and visitors, so it would be necessary for the school to use the immediately adjacent public playing fields. This would also require agreement with the City Council and would have management implications for the school.

5.4 Provision of a new voluntary aided primary school would be the responsibility of Portsmouth Church of England Diocese and is consistent with the aim, set out in the School Organisation Plan, to secure diversity of provision. However, the diocesan interest was related to a national Private Finance Initiative (PFI) programme (Partnership for Church Schools - PfCS). During the summer of 2004, the Department for Education and Skills (DfES) announced that the PfCS scheme would not be proceeding. In the light of this, the diocese has indicated that it is not able to proceed with a new school.

5.5 The alternative would be for the County Council to build a community primary school. However, as there is no site in County Council ownership and the church site is too small to allow separate a church and school to be built, this option would require the acquisition of 1.4 hectares at development value.

5.6 Whatever its status, building an additional primary school would be adding to the overall surplus capacity in the area and would require approval from the School Organisation Committee. Bearing all the above factors in mind, this option would be extremely difficult to achieve.

Option 2 - to build a new one form entry infant school

5.7 In the course of preliminary discussions with Members of Winchester City and Fareham Borough Councils, it was suggested that one solution might be to provide a one form entry infant school (90 places) at Whiteley, to avoid the need for the youngest children to travel to schools elsewhere. This option cannot be recommended on educational grounds as a 90 place infant school is below the minimum size set out in the approved School Organisation Plan. Small schools are vulnerable to changes in numbers on roll, because a small number of pupils represent a large proportion of the total. Changes in staff too have a significant impact because the quality of the whole school's teaching depends on the input from each person. For example, a single teacher in a four-teacher school can have a proportionately significant influence on overall standards.

5.8 Although it might be possible to fit an infant school and church on the site adjacent to the District Centre, this would involve some land acquisition cost. It would also be comparatively expensive to run and capital costs would exceed what is available; at the end of Key Stage 1 children would still have to find places at another school. There are, therefore, serious reservations about this option.

Option 3 - to extend the existing Whiteley Primary School

5.9 This would increase the size of the school from three form entry (630 places) to four forms of entry (840 places), which is larger than the maximum recommended size for a 4-11 primary school set out in the School Organisation Plan. The configuration of the present buildings would make it difficult to achieve a satisfactory extension, and there would not be space on the site without removing a significant number of trees. The views of the governing body of the school will also be a crucial factor. As with option 1, the extension of Whiteley Primary School would add to the number of surplus places in the wider area. Given the range of difficulties associated with this option, it could not be recommended for implementation.

Option 4 - to use existing capacity in schools in the Western Wards

5.10 Some parents who were not successful in gaining places for their children at Whiteley Primary School have accepted places at other schools in the area. For instance, Sarisbury Infant and Junior Schools have traditional links with Whiteley as they serve the adjacent areas of Burridge and Swanwick. In January 2004 there were 349 surplus places (10%) at primary schools in the Western Wards and Whiteley. This level of surplus is expected to remain constant over the next five years, after allowing for the housing development in Whiteley already referred to and all other known housing developments in the area. It would, therefore, be possible for existing schools to absorb any pupils from Whiteley who cannot be offered places in Whiteley Primary School, without the need for any additional accommodation.

5.11 The current pattern of admissions to the schools in the Western Wards shows significant cross-catchment movement due to parental preference. Table 2 gives details of the percentage of pupils who live in the catchment area of each school who attend different schools, and the percentage of pupils in each school who live in another school's catchment area. For example, of the pupils at Sarisbury Infant, nearly 40% live in another school's catchment area. The effect of adding pupils from Whiteley might mean that more pupils would need to attend their catchment area school.

Table 2

Data on movement between catchment areas - September 2003

(Note: these do not relate to the same sets of pupils, so do not add up to 100%)

5.12 There are three ways in which this option could be implemented:

a. by taking no specific action and allowing the normal admissions process to deal with applications in excess of the number that can be admitted to Whiteley Primary,

b. by making provision within the admission arrangements of the other schools, so that pupils living within Whiteley are given additional priority for admission,

c. by changing catchment areas so that parts of Whiteley are within the catchment area of another school.

These alternatives can be considered as part of the local consultation.

5.13 This option makes good use of existing capacity, although it would perpetuate the need for a significant number of children to travel out from the Whiteley area. As the distance by road from parts of Whiteley to alternative schools is more than two miles, there may be ongoing costs to the County Council for transporting some pupils. When the planned bus-only link between Yew Tree Drive and Botley Road is opened, there will be significant improvements in the journey time between Whiteley and other schools.

6 Financial implications

6.1 The capital cost of a new one form entry primary school is likely to be some £3.5 million, plus the cost of land at development value. The cost of a one form entry infant school would be in the region of £2.5 million, plus land. The only provision available within the education capital programme is a sum of £1.438m which was derived from a basic need allocation, in 2003/04, for additional primary places in Whiteley. Taking account of places in the surrounding area, forecast numbers do not suggest any further basic need beyond that allocation.

6.2 There would be no direct capital costs involved in using the spare capacity in existing schools. Instead, the capital programme allocation referred to above could be used to carry out improvements to the schools most directly involved.

6.3 In revenue budget terms, the establishment of a new primary or infant school would give rise to additional annual costs in the region of £120,000 in terms of the non pupil related factors in a primary school's budget calculation. On the other hand, a solution involving pupils attending schools outside Whiteley, is likely to involve long term transport commitments. The cost would depend on the numbers and distance from pupils' homes.

7 The way forward

7.1 This report concludes that the most practicable option for the long term provision of primary school places to serve Whiteley and the adjacent area is to use spare capacity in schools in the Western Wards of Fareham.

7.2 Informal discussion with the headteachers and chairs of governors of schools in the area took place in the summer and autumn terms 2004. It is now proposed that formal local consultations be undertaken with the Whiteley community, schools in the area, Portsmouth Church of England Diocese, Fareham Borough and Winchester City Councils, Whiteley Parish Council, local county councillors and other interested parties. The outcome would be reported to the Education Policy Review Committee and Executive Member in May 2005.

8 County Council Policy Requirements

8.1. Legal implications - The proposals comply with the statutory framework for planning school places..

8.2. Financial implications - These are set out in section 6 of this report.

8.3. Personnel implications - None directly arising from this report.

8.4 Community cohesion, inclusiveness and partnership working - these issues will be considered as part of the consultation.

8.5. Crime prevention issues - these issues will be considered as part of the consultation.

Recommendation

That local consultations be undertaken on options for the future provision of primary school places to serve the Whiteley area.