Archived decisions

Contact: Chris Holt, Education Officer (Primary)

01962 845673; [email protected]

Peter Colenutt, Assistant Education Officer (School Review)

01962 846157; [email protected]

1 Summary

1.1. This report provides details of the outcome of consultations following the request from Burnham Copse Infant and Burnham Copse Junior schools' governing bodies in June 2004 to consider amalgamating their schools. The governing bodies of both schools have been working jointly using the Collaboration Regulations for the past year, with a view to eventual amalgamation. The collaborative governing body fully supports the proposed amalgamation and has taken a proactive role supporting the County Council with the consultation process. The report puts forward the proposal to create a 210 place (one form entry - 1fe) school on the Burnham Copse schools' site.

1.2. The following appendices are included with the report:

· Appendix 1: notes of meetings held with the collaborative governing body parents and staff of Burnham Copse Infant and Junior schools.

· Appendix 2: LEA commentary on school performance for each of the schools.

· Appendix 3: a map of the area under consideration.

· Appendix 4: a plan of the Burnham Copse schools' site.

· Appendix 5: a list of correspondence received.

1.3. Members of the Children's Services Policy Review Committee (CSPRC) and the Cabinet visited the Burnham Copse schools on 28 November 2005 (section 8 refers).

1.4. In addition to the consultations with the schools' governing bodies, parents and staff, the views of Basingstoke and Deane Borough Council, the Local Strategic Partnership, Parish Councils and the Church of England and Roman Catholic Dioceses have also been sought (sections 5, 6 and 7 refer).

1.5. members of the CSPRC are asked to advise the Cabinet of their conclusions on the outcome of consultations, so that a decision may be made about the governing bodies' proposal to amalgamate the two schools.

1.6. The issues raised in this report reflect the following County Council corporate aims:

· Aim 1 - maximising life opportunities, by developing strategies for the most appropriate educational provision;

· Aim 4 - building strong and safe communities, by taking full account of community and neighbourhood issues when deciding upon how best to meet the demand for school places;

· Aim 5 - improving services, by considering solutions which will contribute to the raising of educational standards.

1.7. The five outcomes specified in the Children Act are set out below, with a summary of how the proposals in this report contribute to their achievement:

being healthy: (enjoying good physical and mental health and living a healthy lifestyle) - by considering options which will maximise opportunities for children to walk to school, thus increasing opportunities for exercise and reducing car dependence;

staying safe: (being protected from harm and neglect) - by having access to a secure learning environment;

enjoying and achieving: (getting the most out of life and developing the skills for adulthood) - by providing a high standard of education for children in suitable buildings, within their own community;

making a positive contribution: (being involved with the community and society and not engaging in anti-social or offending behaviour) - by safeguarding friendship and neighbourhood groups by providing primary education as close to pupils' homes as reasonably practicable;

economic well-being: (not being prevented by economic disadvantage from achieving their full potential in life) - by ensuring that proposals will be to the benefit of all children and give them a sound start to their schooling and future ability to provide both for themselves and their families.

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 birth rate variations. In many areas of the county the child population is declining, in other areas housing developments are giving rise to the need for additional school accommodation. The population changes mean that schools may go through periods when there is pressure on places and others where there is a surplus.

2.2 Hampshire County Council's School Organisation Plan draws attention to the rising number of primary surplus places in Hampshire and the need to ensure that this situation is effectively managed. The overall level of surplus, which was 9% in 2004, is forecast to rise to 14% in 2009. This is above the 10% level considered a reasonable upper level by the Audit Commission.

2.3 The proposals set out in this paper would serve to reduce the level of surplus primary places in the Burnham Copse schools from 51.2% in 2010 (see Table 1) to 4.8% and at the same time improve teaching and learning facilities. The proposals represent a significant investment designed to optimise capital resources in partnership with Basingstoke and Deane Borough Council.

2.4 Table 1 - Burnham Copse Infant and Junior schools' accommodation capacities and pupil numbers

3 Background and proposals

3.1 At his decision meeting on 13 July 2005, the Executive Member with Special Responsibility for Education considered the issue of pupil numbers at the Burnham Copse and neighbouring schools, and authorised consultations with the Burnham Copse schools' community on the governing bodies proposal that they amalgamate to form a 210 place primary school.

3.2 Parents, governors, staff and other interested parties have been consulted on the proposal to amalgamate the Burnham Copse Schools and create a 210 place primary school.

3.3 Detailed feasibility studies have been undertaken of both the infant and junior school buildings and sites to compare existing provision with the current benchmark primary school building brief. The brief is for the provision of a 210 place primary school with pre-school provision. The building and site should be such that the school capacity could be extended in the future if required.

4 Early Years

4.1 The Saplings pre-school is currently located within Burnham Copse Infant School and provides 26 pre-school places. It is the intention that integrated early years provision (early education and childcare) will be provided as part of the new primary school to ensure that the County Council continues to meet the needs of local parents as identified within the Early Years Strategic Plan.

5 Review of responses to consultation

5.1 There has been a clear and positive consensus in support of the proposal to amalgamate the schools. A number of issues were raised about the implementation which are summarised in the following paragraphs. Notes of the consultation meetings are attached at Appendix 1 and a list of correspondence received is attached at Appendix 5. The twenty responses will be on deposit in the Members' Room during the week prior to the CSPRC meeting on 13 December 2005.

Staffing

5.2 Staff asked how appointments to a new primary school would be made and expressed the view that if a primary school was initially expected to operate in separate buildings (pending the completion of building works) there would be implications for staffing structures.

5.3 Governors pointed out that, dependent upon the timing of the new primary school being established, pupil numbers could exceed 210 resulting in more staff being required initially and then having to reduce in line with a declining roll.

5.4 Staff and governors queried the positions of existing staff if they did not secure a job in an amalgamated primary school, particularly with regard to potential redundancies.

Funding

5.5 Governors queried what would happen to budget balances/deficits at the infant and junior school at the time of the schools ceasing to exist and the opening of a primary school. They also wished to know how the new headteacher salary would be funded, given that s/he would be appointed in advance of the primary school opening.

Buildings

5.6 Clarification was sought as to within which building the new primary school might be established. Issues surrounding each building were explored. Parents expressed the view that whichever building was ultimately used, it must be properly adapted to ensure the full range of need of primary age pupils was met. The point was made that there must be flexibility within the new school design to allow for future expansion should numbers rise. Staff also expressed the view that, whilst pupil numbers were forecast to drop to just below 1 fe at the proposed implementation date of January 2007, numbers could exceed this level requiring in excess of seven classes for a limited period.

5.7 A number of parents stated that they wished to see the swimming pool remain for the new primary school. Parents also sought clarification about what would happen should the planning permission for the housing be turned down on the site surplus to requirements. The question was also asked that if the land were sold would the school receive any financial benefit.

5.8 Staff, governors and parents also sought reassurance that the building project would be managed in such a way to minimise disruption and ensure the safety of all pupils.

Pupil numbers and planning of school places

5.9 Staff wished to know whether the forecast numbers produced for the school allowed for future housing developments and whether discussions take place with local employers about their long-term plans.

5.10 Parents made the point that the current uncertainty about the future of the school was contributing to a fall in pupil numbers and stated the situation needed to be resolved as soon as possible.

6 Basingstoke and Deane Borough Council: review of response to consultation

6.1 The Borough Council has no objection to the principle of amalgamating Burnham Copse Infant and Junior Schools to create an all through 210 place (1 fe) primary school with effect from 1 January 2007.

6.2 The Borough Council acknowledges the increasingly high level of surplus school places at the Burnham Copse schools, and notes that the two schools are currently governed by a single, collaborative governing body. Likewise, the council notes that the infant school headteacher was appointed as acting head of the junior school from September 2004, and that the current consultation stems from a proposal from the governors that the schools should amalgamate.

6.3 In particular, the Borough Council welcomes reference in the report of 13 July 2005 that, in conjunction with the removal of surplus places and the creation of a robust educational establishment on the present site, consideration will be given to the scope to enhance or create other provision for children, families and the wider community.

7 Diocesan View

7.1 This amalgamation will not have a direct impact on the Church of England and Roman Catholic dioceses and no comments have been received from these bodies.

8 Members' Visits

8.1 On 28 November, Members of CSPRC and the Cabinet were given the opportunity to visit the Burnham Copse Infant and Burnham Copse Junior Schools to familiarise themselves with the sites and buildings issues. Following a tour of the sites and buildings HCC architects presented plans demonstrating how a primary school could be created from either the infant or the junior schools' buildings (sections 10.5 - 10.9 refer). The pros and cons of each option were discussed. Members were informed that in cost terms each option was broadly similar with both resulting in a primary school, designed and fit for purpose in the 21^st century.

9 Local County Councillors

9.1 Councillor Tucker attended the consultation meeting with parents, staff and governors of the Burnham Copse schools and offers the following comment in support of the proposal:

"It is so good when a suggested amalgamation of two schools comes from the schools themselves. It is obvious that the governors feel it is the right time and the right thing to do. I have heard only good and constructive comments from local parents so far, and hope that the consultation continues to go well. It has my blessing."

10 Issues raised during consultation

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

Staffing

10.2 If a primary school is formed from the existing infant and junior schools a temporary governing body for the new school would be constituted prior to its opening. The temporary governing body would appoint the headteacher who would then work with the temporary 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. As a caring and responsible employer the County Council would work closely with the temporary governing body and would wish to engage with staff in an effort to ensure that, as far as possible, their professional needs and aspirations are met.

Funding

10.3 Upon the closures of an infant and junior school and the formation of an amalgamated primary school, any budget balances/deficits would transfer to the primary school. The primary school would receive a budget allocation determined by the County Council's Local Management of Schools (LMS) formula.

10.4 Funding for the necessary appointment of staff prior to a new primary school opening would be provided through the LMS formula and would not be a call upon the infant and junior schools' budgets.

Buildings

10.5 When undertaking building works the County Council uses its experience and expertise to ensure high standards of product and process. Disruption is kept to a minimum and the schools are fully involved in the developments. The consultation exercise focussed mainly on which building the new primary school would be established within.

The Junior School Option

10.6 The junior school is housed in a building of traditional construction originally built in the 1950's. The building and setting is not untypical of other schools built in Hampshire at this time. The school site has playing field provision for junior age use and an outdoor swimming pool. The feasibility work undertaken has confirmed that the site is of sufficient size and the works required for primary school use would include the following:

· significant refurbishment of existing accommodation and replacement of building services

· addition of a linking corridor for first floor teaching spaces and provision of a lift

· extension of the building and relocation of the school entrance to the front of the building

· improvements to car parking and external play areas and landscape

This option would allow for retention of the existing playing fields and the potential to retain the existing outdoor swimming pool.

The Infant School Option

10.7 The Infant School building was built in 1984 and was, and remains, a building of architectural merit. The overall design life of the building would be some 60 years, subject to regular maintenance. The building and site was specifically intended for infant age use and designed to provide a nurturing and attractive setting. However, in the existing building there would be insufficient area for primary use and its existing hall would be too small. The existing site does not currently have playing field provision and would not be large enough to allow for future expansion of primary age use without retention of part of the Junior School site. The feasibility work undertaken has confirmed the works required to bring the school into primary age use, these would include the following:

· provision of playing field requirement on part of the existing Junior School site

· addition of a building extension to provide a new 150 sqm school hall and other teaching and ancillary spaces to meet requirements of the current benchmark primary brief

· remodelling of the existing classrooms, toilets and other parts of the existing building

· creation of additional external play areas and landscape works.

This option would allow potential to retain the existing environmental study area but would include the demolition of the external swimming pool to provide easier access to the proposed playing fields.

Costs

10.8 Table 2 - an estimate of the cost of works required for the Infant and Junior School options

These estimates of costs include construction, fees and fixed items of furniture and are projected forward to the fourth quarter 2006, the soonest start date for construction works.

On both options there are also a number of landlord/maintenance liabilities not exceptional in comparison with other schools of this age and type which would need to considered depending on which option be taken forward and these would be subject to priority and availability of funding at that time.

10.9 In cost terms, on the basis of estimates, there is little between either scheme. In whole life cost terms the retention of the Infant School would be appropriate given its age and quality of design.

Pupil numbers and planning of school places

10.10 Discussion centred upon future numbers of children in the area. The forecast pupil numbers shown in Table 1 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 the area. There is no significant new housing proposed in the area served by the Burnham Copse schools in Basingstoke and Deane Borough Council's local plan, which covers the period up to 2011.

10.11 The proposed strategy represents a forecast net reduction in surplus places at the Burnham Copse Schools from 51.2% in 2010 to 4.8%.

11 Capital Strategy

11.1 Funding for the capital works proposed in this report will be available in the main from the sale of surplus land. Given there is little difference between the costs of remodelling either the junior or the infant school building to create a primary school, the issue is not about which building to retain but more about which site is identified for disposal.

11.2 Estimates of the capital receipt from the sale of surplus land on the Burnham Copse sites for residential development are subject to completion of feasibility studies, the granting of appropriate planning consents by Basingstoke and Deane Borough Council and the approval of the Secretary of State for Education and Skills to the disposal. To maximise this major investment in education provision in the area, Basingstoke and Deane Borough Council will be requested to relax its normal planning obligations and the associated financial contributions that would usually be imposed on residential development sites when considering planning approvals. Contributions from the devolved capital allocations from the Burnham Copse schools are also anticipated. Approval by the Executive Member, Policy and Resources will be needed to retain 100% of the capital receipts. It is likely that the funding anticipated through capital receipts will need to be provided through prudential borrowing in advance of the sales, which will require similar approval.

12 Revenue Implications

12.1 The proposed new primary school will be funded on the basis of the LM formula for a 1 fe primary school. By merging two schools into one, there will be a net ongoing saving of £75,000 per annum. This will be recycled within the overall schools' budget, i.e. it will not be available for other County Council priorities. The new school will receive a one-off allocation of £39,000 which will enable the appointment of its headteacher in advance of the of the school opening. Revenue balances from the closing schools will transfer to the new school.

13 Process and Timescales

13.1 If the County Council decides to publish notices proposing the establishment of a new primary school on the Burnham Copse site, the notices will run for a period of six weeks. Any objections would be considered by the School Organisation Committee. It is anticipated that the earliest date the new school could be established would be January 2007 with completion of the building works by Easter 2008. In the interest of health and safety, during the implementation of the building works, it is anticipated that the school would decant onto the other school site. At completion of the works the relevant site would be marketed for disposal.

14 The Way Forward

14.1 The County Council needs to take strategic decisions which are in the best long term interests of children aged 3 - 11 in the Burnham Copse community.

14.2 Members will have noted that the proposal to amalgamate the infant and junior schools was initiated by the governing bodies. The combined number on roll at the infant and junior schools in January 2004 was 301 (131 infant and 170 junior). In September 2005 the combined number on roll was 256 and this is forecast to fall further to 200 in 2010. The percentage of surplus places in January 2010 (49% at the infant and 53% at the junior) is not sustainable, nor would it be recognised as such either by the DfES or the Audit Commission.

14.3 The governing bodies of the schools recognise that the declining school rolls will impact on staffing levels, presenting considerable challenges in maintaining high quality curriculum delivery. Valuable resources are diverted from other schools to manage the consequences of declining pupil numbers and the associated diseconomies of scale, through the real term protection element of the LMS formula to support curriculum delivery and to help cover the cost of under-occupied school buildings.

14.4 The Burnham Copse schools' governing bodies have been working collaboratively for the past twelve months with a view to eventual amalgamation. The first move towards uniting the two schools was to appoint the infant school headteacher as acting headteacher of the junior school when the post became vacant. The schools are presently governed by a joint governing body which is confident that a 210 place primary school with pre-school provision will result in a robust educational setting able to offer :

· greater continuity and progression in children's learning through the smoother transition between the infant and junior phases of education which a primary school will provide;

· improved buildings to facilitate learning and teaching;

· a single team of staff more able to share their expertise;

· a single school for governors, parents and the wider community to focus on;

· positive aid to the recruitment and retention of high quality staff .

14.5 Governors and staff have carefully considered the issues relating to both the infant and junior school options for remodelled buildings to create a 210 place primary school. They have identified advantages and disadvantages associated with each option with no firm view as to a preference.

14.6 The Director of Property, Business and Regulatory Services advises that the development of a template for collocation of Children's Services might create further opportunities with the school buildings.

15 County Council Policy Requirements

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

15.2 Financial implications - sections 11 and 12 refer.

15.3 Personnel implications - the aim of the County Council will be to preserve the employment position of as many of the existing employees as possible. to this end the temporary governing body will be requested to formally agree a framework for handling personnel issues which will emerge from the closure of the Burnham Copse Infant and Junior Schools. This framework will

· Create safeguards for existing employees;

· Limit disruption;

· Minimise the anxiety of staff;

· Seek to take account of the wishes of individuals;

· Recognise the value of staff currently in post.

15.4 Impact assessment - a race and equality impact assessment has been considered in the development of this report and no adverse impact has been identified.

Recommendations

Members of CSPRC are invited to advise the Cabinet of their views on the following proposals:

1. That public notices be published in accordance with sections 28 and 29 of the School Standards and Framework Act 1998, to:

a) Discontinue Burnham Copse Infant School and Burnham Copse Junior School with effect from 31 December 2006, and

b) Establish a new one form entry community primary school, to cater for 210 pupils aged 4 - 11 plus pre-school provision, in remodelled buildings on the Burnham Copse Schools' site, with effect from 1 January 2007.

2. That the Director of Property Business and Regulatory Services undertake a feasibility study to consider possible alternative uses of the redundant school building and report in due course on the findings of the study and a capital strategy for funding the work to establish the primary school.

Section 100D - 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 extent in the preparation of this report.

NB The list excludes:

1 Published works

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

None