Archived decisions
Hampshire County Council's observations on the representations received in response to the public notice
1 Introduction
1.1 On 24 July 2006, Hampshire County Council's Cabinet approved a strategy for primary school provision in the north-east of Andover. The report approved by Cabinet puts forward proposals to improve primary school provision whilst ensuring the best use of resources by reducing surplus places in line with the authority's statutory responsibility for the management of school places. The strategy recognises that communities change over time, often requiring parallel changes to the existing school distribution.
1.2 In summary, the strategy:
a) Addresses the impact of demographic change;
b) Provides new primary schools within the planned East Anton major development area (MDA) as part of the local community infrastructure in line with County Council policy;
c) Gives the opportunity to support and raise standards;
d) Optimises the use of existing County Council resources by putting forward proposals for implementing the wider Children's Services agenda:
· Establishment of a full-core offer Children's Centre;
· Relocation of Education Centre.
2 Responses to the public notice
2.1 Twenty representations were received in response to the public notice of the proposal to close Shepherds Spring Infant and Shepherds Spring Junior Schools with effect from 31 August 2008. These have been analysed and the main issues raised by respondents are commented upon in the following paragraphs. Each representation (as listed in the covering letter) has been numbered and is cross- referenced within the text.
3 Issue 1: Shepherds Spring schools are effective:
3.1 Representations: 1, 2, 6, 7, 10
3.2 The performance in National Curriculum tests and assessments of children attending the review schools is below the national average. This is typical of schools serving communities of relative disadvantage such as this part of Andover. Social deprivation data is one element used in calculating the budget allocation for schools. The area served by the Knights Enham schools has the highest level of deprivation, followed by the areas served by Roman Way and then Shepherds Spring schools.
Shepherds Spring Infant School
3.3 The performance at the end of Key Stage 1 of children attending the school has been generally in line with, or below, that of children attending similar schools. Attainment in reading has been particularly weak when compared with similar schools. Based on county `value added' analyses in 2005, children made, on average, more rapid progress in science than is normal in the county's schools, typical progress in reading but not as good progress in mathematics as is typical of the county's children.
Shepherds Spring Junior School
3.4 The performance at the end of Key Stage 2 of children attending the school declined between 2002 and 2004 from being better than that of children attending similar schools to being worse. Results recovered from this low point in 2005 but the `floor targets' for English were missed by 8% and for mathematics by 11%. Based on county `value added' analyses in 2004, children made, on average, typical progress for Hampshire schools in mathematics but for English and science their progress was less than the county average. The national analysis for `value added' in 2005 suggests typical progress was made by children in mathematics but progress was not as good in English and science. The school has received substantial support through the Intensifying Support Strategy within the National Primary Strategy, a programme for schools that achieve less than the national floor targets (65%) in maths and English.
3.5 Comparable information is included below for the Knights Enham schools, because these were the schools with which comparisons were mostly made in representations. Performance information for Roman Way and Vigo Infant and Junior schools is contained within the Cabinet paper.
Knights Enham Infant School
3.6 The performance at the end of Key Stage 1 of children attending the school has been consistently in line with, or better than, that of children attending similar schools. Attainment in reading has been particularly strong when compared with similar schools. Based on county `value added' analyses in 2005, children made, on average, more rapid progress than is normal in the county's schools.
Knights Enham Junior School
3.7 The performance at the end of Key Stage 2 of children attending the school has improved from the start of the decade and by 2004 was in line with, and in some respects better than, that of children attending similar schools. This upward trend was maintained in mathematics in 2005 but not in English and science. In 2005, the `floor targets' for English were exceeded by 4% and for mathematics by 7%. Based on county `value added' analyses in 2004, children made, on average, typical progress for Hampshire schools in mathematics and science and better progress in the case of English. The national analysis for `value added' in 2005 suggests typical progress was made by children in English and mathematics but progress was not as good in science.
3.8 Educational standards at the Shepherd Spring Schools are not the reason why these schools are recommended for closure, but it is important to note the better performance of the Knights Enham schools, despite the higher level of deprivation in the communities they serve. Shepherds Spring Junior School is currently receiving substantial support from the County Council in an effort to raise standards.
4 Issue 2: Parental preference and alternative school places
4.1 Representations: 2, 3, 4, 5, 8, 9, 11
4.2 Table 2 of the Cabinet report dated 24 July 2006 (based on data in January 2006) shows that there were 1,089 pupils on roll in the seven schools in January 2006. 344 of these (31.6%) were attending a school outside their catchment but within the review area. A further 271 pupils from the catchment areas of the seven review schools were attending other schools in Andover. 76 pupils had moved into the review area from other Andover schools, constituting a net loss of 195 pupils.
4.3 65% of Shepherds Spring catchment area children were attending other schools in the area with the result that there were 34.7% surplus places at the Infant school and 64% at the junior.
4.4 When a school closes, parents do not necessarily seek places for their children in the designated transfer school or schools. An analysis has been carried out, based on January 2006 numbers on roll, to determine the numbers of pupils who would need to be transferred to other schools from September 2008. This shows that all Shepherds Spring children could, if parents so wished, be accommodated in the schools listed in Table 2 of the Cabinet paper.
5 Issue 3: Pupil numbers - Shepherds Spring Schools required for long term population
5.1 Representations: 3, 9
5.2 In accordance with established practice, pupil number projections are revised in January each year in line with the latest population forecasts and these are the figures used for strategic planning purposes by local authorities and the Department for Education and Skills (DfES). The projections based on January 2006 figures (Table 1 of the Cabinet paper) show an overall forecast surplus in 2011 of 12% (409 places) in the Andover town area The review area shows a forecast surplus of 29.7% (388 places) in 2011; this represents 95% of the overall surplus in the town's primary schools. Shepherds Spring Infant and Junior Schools are forecast to have surpluses of 34% and 64% respectively by 2011.
5.1 The Audit Commission's guidelines state that an overall area surplus of up to 10% represents good practice, but are clear that, within this overall figure, surpluses of more than 25% in individual schools must be addressed as a matter of urgency. In January 2006, the County Council received a letter from the District Auditor expressing concern at the number of primary schools in Hampshire's area with more than 25% surplus places. Action must therefore be taken to reduce this number.
6 Issue 4: Retain Shepherds Spring schools to serve East Anton Major Development Area
6.1 Representations: 4, 16, 12
6.2 The East Anton development (2,500 dwellings) will generate considerable population growth from which the County Council would expect around 600 - 800 primary aged children depending upon the eventual number and mix of dwellings. The policy of both the County Council and Test Valley Borough Council (TVBC) is to provide community facilities within MDAs, including new schools where the number of dwellings justifies it, as is the case in East Anton.
6.3 The latest advice from TVBC suggests it is unlikely that pupils will be generated before 2008 by the housing to be built at East Anton. In the meantime, on present trends, numbers in the area and at the Shepherds Spring schools in particular are likely to decline further. Development at East Anton is anticipated to start at the north of the site, closest to Roman Way Primary School.
6.4 A developer of new housing makes a school site available to the County Council, together with a substantial contribution to the cost of building the new school; this is the case for East Anton.
6.5 As indicated in the Cabinet report, consideration was given to the suggestion to relocate the Shepherds Spring Schools closer to the new development. However, the land to the east of Icknield Way which will form part of the East Anton development is not available for construction because of ground water conditions and is classified as open space within the major development area's master plan. The TVBC land is public open space and the council has indicated informally that it wishes to maintain this position. In practice, however, even if land were available, the costs of replacing the open space land at market value and building a new school would not be covered by the sale of the Shepherds Spring site and it is highly unlikely that any developer would contribute. The County Council would not have the capital resources to meet this cost.
6.6 It is important to note, that as the new development is yet to start, prospective residents of East Anton are unable to express a view. Bearing in mind its policy in relation to the provision of new schools to serve major development areas, the County Council must, therefore, ensure that potential residents' interests are safeguarded.
6.7 The building of a new 2 form entry (2fe) 420 place primary school at East Anton is, therefore, the most appropriate way forward. Initially, the school could be built as a 1fe (210 places) primary school and extended to 2fe as the progress of the development dictates.
7 Issue 5: Walking routes/distances
7.1 Representations: 4, 11
7.2 An analysis of movement between catchments shows that 160 children already move between the Knights Enham, Shepherds Spring and Roman Way catchments and can do so only by crossing the A343 either by a footbridge, walking across the carriageway, or by car. This figure (160 children) takes account of the small part of the Shepherds Spring catchment area which lies to the west of the A343.
7.3 The most direct walking route between the Shepherds Spring and Knights Enham schools is via the footbridge. The distance gate to gate between the two schools via this bridge is 0.53 miles (as shown on the attached plan). This is well within the recommended two mile maximum walking distance for infant age pupils. The distance to Knights Enham from the furthest point of the Shepherds Spring catchment area is approximately 1.25 miles.
7.4 Discussions are taking place between the County Council, TVBC and the developer of the East Anton site in respect of road traffic and pedestrian improvements at the junction of Smannell Road and the A343, with a view to creating an alternative crossing.
8 Issue 6: Disruption to children's education
8.1 Representations: 5, 8, 9, 13, 15, 16, 17, 18
8.2 When undertaking a review of this nature some disruption is inevitable, however, every effort will be made to minimise this for the parents and children concerned. Each parent will be given the opportunity to express a preference for a new school place. The County Council will aim to meet this preference wherever possible, working closely with all of the schools involved to make the transition as smooth as possible.
8.3 It has been the experience of the County Council that headteachers and governors of schools admitting new pupils from closing schools are very sensitive to their needs. They recognise the emotional impact such a change may have on children. The County Council will work with the schools involved to ensure that the welfare and education of the children continues to be the highest priority. Local schools, especially those admitting former Shepherds Spring children, will be encouraged to consider the appointment of any staff displaced from the Shepherds Spring Schools.
9 Issue 7: Community investment
9.1 Representation: 5
9.2 The review of primary school provision in Andover has also focused on the longer term needs of the area and the opportunities for reinvestment offered by the fall in pupil numbers. It represents a strategy designed to improve primary school provision and, as part of the wider Children's Services agenda, recommends the establishment of a full-core offer Children's Centre to serve the Alamein Ward and the relocation of the Andover Education Centre from its very restricted accommodation at Cricklade College.
9.3 If the Shepherds Spring Schools were to close, a Children's Centre could be established in the infant school building and an Education Centre in the junior building. The provision of both these facilities has been identified as a much needed resource for the area. This strategy would also allow the opportunity to generate a capital receipt, subject to planning consent, which would contribute towards the overall cost of the new facilities.
10 Issue 8: Creation of a 1 form entry primary school on Shepherds Spring site including Children's Centre.
10.1 Representations: 6, 11, 17
10.2 Arising from the consultations, careful consideration has been given to the possibility of amalgamating the Shepherds Spring schools in the infant school building as a 1 form entry primary school. Projected numbers on roll, based on the information in tables 2 and 3 of the Cabinet report, show that pupil numbers at any amalgamated school would be within the 135 -170 range, below the County Council's optimum minimum size for a 4 - 11 primary school of 210 places.
10.3 It is acknowledged that there was strong support for the primary school option during the consultation period by some local parents. However, the new primary school option at Shepherds Spring could not be justified given pupil numbers.
10.4 Implementing the primary school proposal would leave an overall surplus within the area of 21.3% by 2011. Using a number on roll of 152 (mid-way between 135 and 170), the amalgamated school would have a surplus of 27.6% by 2011, which exceeds the 25% surplus place level for an individual school which the County Council is required to address.
10.5 The retention of primary school provision on the Shepherds Spring site would negate the opportunity to generate a capital receipt making this option significantly more expensive than the recommended proposal. There is no provision in the Children's Services capital programme to meet the additional costs of this primary school option. Resources would have to be transferred from other areas of the capital programme if this option were to proceed, resulting in other projects needing to be deferred or cancelled.
11 Issue 9: Nurture group at Shepherds Spring Infant School
11.1 Representations: 6, 11, 12, 13, 11, 14
11.2 A Nurture Group is a class in an infant or primary school where a teacher and learning support assistant work with a small group of children who find it difficult to work in a normal class setting. The children typically have withdrawn or disruptive behaviour. The Shepherds Spring Infant school nurture group staff form part of the Hampshire-wide support network.
11.3 The County Council will provide support to governors and headteachers to ensure that nurture group pupils are identified and suitable provision is made for them.
12 Issue 11: Behavioural issues
12.1 Representation: 17
12.2 Support will be given by the County Council to assist with the integration of any pupils with behaviour difficulties.
12.3 The Knights Enham schools are well regarded within the community and it is clear from parents' comments that the Rights, Respect and Responsibilities (RRR) programme which is in place at the schools has had a marked positive influence on their ethos and on behaviour.
13 Issue 12: Children Act / Wellbeing
13.1 Representations: 4, 7
13.2 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 ensuring that the proposals promote every opportunity for pupils to take physical exercise and ensuring that recreational facilities are safeguarded;
· staying safe: (being protected from harm and neglect) - by having access to a secure learning environment and ensuring that school provision is within a reasonable distance;
· 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 long term benefit of all children and give them a sound start to their schooling and future ability to provide both for themselves and their families.
14 Summary
14.1 A substantial amount of evidence was gathered during the consultation period indicating that school closures are necessary if significant reductions are to be made in the number of primary school surplus places in the north-east of Andover. These proposals are being put forward for the longer term benefit of the people in the area recognising that communities' needs change over time. Support will be given to other local schools to minimise any disruption and make the transfer of pupils as smooth as possible.
14.2 The closure of the Shepherds Spring schools will open up opportunities for capital investment to meet the changing needs of the community. By establishing a full-core offer Children's Centre a wider range of early education provision will be available. The relocation of the Education Centre will ensure that the young people attending such a facility have access to education in a high quality and appropriately designed building. Both these proposed developments are in keeping with the wider Children's Services agenda, which aims to ensure that every child matters.
14.3 If the proposals set out in the Cabinet paper are not approved by the School Organisation Committee, a further review of school places in Andover will need to be undertaken to address the surplus place issue and concerns of the District Auditor.