Agenda item

To submit a report by the Director of Education, Skills and Young People in relation to the following schools:-

•  Ysgol Talwrn and Ysgol y Graig

The report of the Director of Education, Skills and Young People with regard to the schools’ modernisation programme in relation to the Llangefni area was presented for the Committee’s consideration. The report set out the responses to the statutory consultation held in February/March 2020 on Ysgol Talwrn and Ysgol Y Graig and sought the Executive’s approval for the preferred option which is to increase the capacity of Ysgol Y Graig to take pupils from Ysgol Talwrn, close Ysgol Talwrn and review the catchment areas of Ysgol Y Graig and Ysgol Talwrn.

The Portfolio Member for Education, Libraries, Culture and Youth introduced the report by saying that it deals with the Schools’ Modernisation Programme as the programme applies to Ysgol Talwrn and Ysgol Y Graig and involves weighing and assessing the future of the two schools and the consequent impact on all the stakeholders, and in particular the children at both schools. He emphasised that their interests should be the predominant consideration in this matter. In acknowledging that modernising schools can be a contentious issue and that it is among the most challenging aspects of the Council’s work, he said that he understood and appreciated parents’ and others’ concerns on this matter. The schools’ modernisation programme sets the groundwork for the future of schools over the next 50 years at a time when they are under pressure from budgetary cuts, burdensome maintenance costs, meeting the requirements of the New Curriculum and several other factors as well as the impact of Covid. The Council has to seriously consider how the school system can be made more effective in the sense of creating the conditions under which teachers and pupils can succeed and also how it can be made more efficient in terms of making the best use of resources and ensuring that all schools receive their fair share of the budget. The Authority’s other strategies to which the Schools’ Modernisation Programme is linked include the 2019/20 Delivery Document, the Schools’ Modernisation Strategy as revised and approved by the Executive in 2018 (with the current proposal forming part of Band B of the Strategy); the Corporate Asset Management Plan 2015-20; the Energy Strategy; the Joint Local Development Plan; the Welsh Language Strategy and the Medium Term Financial Plan.

Between 6 February and 20 March, 2020 Council officials undertook a statutory consultation on the future of the two schools in question. Officials were authorised to carry out the consultation after the Corporate Scrutiny Committee and the Executive considered the proposal paper in January, 2020.The consultation closed on the last day of school before the first lockdown period as a result of the global pandemic that transformed education provision for a time. The Portfolio Member said that it is important to note that the Council has received a letter from the School Organisation and Admissions Branch of Welsh Government confirming that Welsh Government Ministers were giving the Council an extension until March, 2021 to publish any proposal. The Council has operated in accordance with the School Organisation Code 2018 throughout the pandemic period.

The Portfolio Member referred to the key drivers for change contained within the Schools’ Modernisation Strategy 2018 which include improving educational standards; improving leadership and management; ensuring that school buildings are fit for purpose; reducing the number of surplus places; reducing the overall cost of education and the variation in cost per pupil; maintaining and improving Welsh-medium provision and increasing the community use of school buildings.

In concluding his introduction to the report, the Portfolio Member for Education said that he wished to take this opportunity to thank all those who had taken part in the consultation process

The Director of Education, Skills and Young People highlighted the main points of the report and said that a statutory consultation process was held between 6 February and 20 March, 2020 on the proposal to increase the capacity of Ysgol Y Graig to accommodate pupils from Ysgol Talwrn, close Ysgol Talwrn and review the catchment areas of Ysgol Talwrn and Ysgol Y Graig (namely the original proposal). He confirmed that in light of all the consultation responses and impact assessments this proposal is considered the most appropriate way forward and is the option that is being recommended to the Executive. He explained that as part of the consultation process a number of other alternative options were considered an analysis of which is provided at section 6 of the report. The Council received 57 online responses and 10 responses in the form of letters and e-mails with both individuals and community organisations responding to the consultation (summary provided at section 5 of the written report). As part of the process other educational models were received (section 6.4 of the report refers) and these were assessed by officers against the criteria and drivers of the current Schools’ Modernisation Strategy. After considering all the alternatives and following a comprehensive analysis of their strengths and weaknesses against the drivers of the Schools’ Modernisation Strategy, the original proposal is considered the most appropriate way forward because it meets both the key challenges faced by Ysgol Talwrn and Ysgol Y Graig and satisfies the key drivers for change set out in the Strategy in the following way –

•           Standards across all schools must be at least good or excellent and would be expected to be in the green category needing the lowest level of support. The new expanded school would be in a position to maintain the Estyn grade and retain the green categorisation in the medium to long-term.

•           Leadership and management must be good or better in all schools. Head teachers need sufficient non-contact time to balance leadership and management challenges with teaching commitments. At the new expanded Ysgol Y Graig it is envisaged that the Head teacher would have no teaching commitment. It would be possible to build and further develop a senior management team, which could improve leadership and management.

•           The school building needs to provide an inspiring learning environment that will encourage all pupils to achieve their potential across all areas of learning and must comply with the Equality Act 2010 in term of accessibility. A new 21st century low maintenance building will be designed to BREEM specifications and will be fully compliant with the Equality Act, 2010. The current and projected maintenance costs of both schools of £408,500 would be written off.

•           Sufficient school places need to be available in the area to meet current demand, future forecast numbers as well as reduce surplus places. Pupil movement from within and outside the catchment area needs to be reduced. The proposal addresses the need to provide sufficient places at Ysgol y Graig as well as enabling pupils from Ysgol Talwrn to be taught in classes where the age range is smaller. Fewer pupils will move between catchment areas.

•           Any revised school provision in the area needs to be cost efficient and needs also to reduce the variation in cost per pupil across individual schools. The projected cost per pupil at the new expanded school at £3,436 (based on the 2019/20 budget) would eliminate the variation in cost per pupil between Ysgol Talwrn (£4,553) and Ysgol Y Graig (£3,429) and is lower than the average for Anglesey primary schools (£3,988). The proposal incurs an additional revenue cost of approximately £33k per annum, (details provided in section 7) but eliminates current and projected maintenance costs of £408,500 which it would cost the Council £32,000 per annum to fund through an unsupported loan over a 20 year period. It can therefore be concluded that the proposal is close to cost neutral.

•           At the very least, the existing good Welsh medium provision would be maintained.

•           The wider community would continue to benefit from the use of the newly expanded school building.

The Officer reported further that impact assessments in relation to the Equality Act, Language, Community and the Well-being of Future Generations (Wales) Act 2015 were conducted and are appended to the consultation report.  The number of responses to the impact assessment question provides 95% certainty that the response is correct and matches the feelings of the rest of the consultation respondents. A 95% confidence level means that if the survey was conducted 100 times, the same results would be provided 95% of the time. The Impact Assessment remains a live document and has been updated to include stakeholder comments received during the statutory consultation period; it will continue to be regularly updated throughout the development period so that should another risk/issue arise, the Council in partnership with the local community can put in place mitigation measures to overcome the risk or issue that arises. This arrangement will operate throughout the development phase and will be accountable to the Corporate Programme Board for Services Transformation.

The cost of building the proposed new provision is estimated at approximately £6m.Subject to approval, it will be funded by a Welsh Government contribution of 65% through the 21st Century School Band B programme and a contribution of 35% by the Isle of Anglesey County Council.

The Director of Education, Skills and Young People said that in conclusion therefore it is recommended that the capacity of Ysgol Y Graig be increased to take pupils from Ysgol Talwrn, that Ysgol Talwrn be closed  and that the catchment areas of Ysgol Talwrn and Ysgol Y Graig be reviewed.

Upon the Chair’s invitation, Councillor Aled Morris Jones, Chair of the Corporate Scrutiny Committee reported from the Committee’s 10 December, 2020 meeting which considered the consultation report and recommended proposal. Councillor Jones said that the Committee had heard from Mr Robat Idris Davies who had made representations on behalf of Ysgol Talwrn and the community to keep the school open on the basis that it is a happy and contented school that is doing well educationally and is highly valued by its community. The Portfolio Member for Education and the Director of Education, Skills and Young People had made the case for change citing the number of pupils at Ysgol Talwrn, the time limitations on Welsh Government 21st Century Schools grant funding and the enhanced educational opportunities and provision that would be available to pupils from Ysgol Talwrn at the new extended Ysgol Y Graig among the reasons for the preferred option. Concerns were raised about the future of the Cylch Meithrin provision and the local Eisteddfod should Ysgol Talwrn close. The Committee debated the matter at length and two proposals were put forward, the one to federalise Ysgol Talwrn with Ysgol Y Graig or Ysgol Corn Hir and the other to support the recommended proposal i.e. to extend Ysgol Y Graig to accommodate pupils from Ysgol Talwrn, close Ysgol Talwrn and review the catchment areas of both schools; the latter was carried by a majority vote and a recommendation to that effect was made to the Executive. Although a query was raised about the process going forward with a further lockdown confirmed for the New Year the Committee was assured that the process would not be affected.

The Programme, Business Planning and Performance Manager clarified that at the time of the first lockdown in March 2020 when schools were closed, Welsh Government issued additional guidance for local authorities going through the school organisation process which introduced minor changes in the expectations in relation to consultation. The guidance was effective up until 25 July since when schools have re-opened and no further changes have been made. According to the guidance received, the School Organisation Code 2018 continues to be effective and is the guidance the Authority has been observing. It is important to note that should the recommended

proposal be approved, the next stage of the process involves issuing a statutory notice in the New Year after which a 28 day period for the receipt of objections will ensue; this does not involve consultation and is not a consultation period. In response to a request by Councillor Alun Mummery, the Officer further clarified that the process requires the Authority to publish a statutory notice both on the Council’s website and at the school and to ensure that partners and statutory bodies are aware of its publication. The 28 day period provides an opportunity to submit objections to the proposal after which the Authority is expected to prepare an objection report (if any have been received) for submission to the Executive.

In the ensuing discussion, members of the Executive responded as follows –

Councillor Robin Williams requested that in the interests of clarification and having received a number of queries from stakeholders at Ysgol Talwrn on the matter, the Officers provide an overview of the position at Ysgol Talwrn in terms of pupil numbers and capacity. The Programme, Business Planning and Performance Manager advised that for the purpose of consultation, pupil numbers are considered based on a period of years looking back to 2015 and projecting  forwards to 2024 so as to establish trends and patterns of movement. It has become apparent that during the period 2015 to 2020 the number of pupils at Ysgol Talwrn has decreased from 44 in 2015 to 40 in 2020 against a total school capacity of 49 pupils. This decline in numbers is forecast to continue in 2022 and 2023 to a projected 27 pupils in 2023. Based on data provided by the Learning Service’s SIMS information management system, there are currently 36 pupils at Ysgol Talwrn which means that the level of empty places at the school is around 27%.

Councillor R.G.Parry, OBE, FRAgS, who was also a Local Member said that he had been surprised by the statistics especially with regard to the number of children from Talwrn attending schools elsewhere and that he was also concerned by the lack of green space at the school. He acknowledged that although closing a school is a matter of sadness the best interests of all children have to be considered. Having seen the three new schools which the Schools’ Modernisation Programme has created on the Island thus far and the advantages they are able to offer he was very supportive of the programme.

Councillor Ieuan Williams, Vice-Chair echoed those sentiments believing that the Authority’s education system needs schools that are fit for purpose and are inspiring in terms of teaching and learning. The learning environment provided by the three new schools on the Island differs greatly to that found in the some of the older schools which form part of the Authority’s schools estate. Additionally, the impact assessment in relation to the Welsh language is positive indicating that the language will be in a better place in moving forward with the recommended plans.

Councillor Richard Dew highlighted that the Schools’ Modernisation Programme has now been in effect for a number of years and that the new schools built under its auspices have been welcomed by parents many of whom were originally opposed to their creation. The programme means that some of the Authority’s smaller schools have had to close which naturally has been met with some opposition just as decisions have been supported.  Although today’s decision is a difficult one to make it is important that the programme is taken forwards.

Councillor Alun Mummery referred to the e-mail messages that he had received noting that they raised no new matters. Councillor R. Meirion Jones, Portfolio Member for Education said that he had forwarded the messages that had been sent to him to the Director of Education, Skills, and Young People who confirmed that they did not raise any issues that had not been considered already.

Councillor Dafydd Rhys Thomas referred to the new Ysgol Cybi which is now the subject of praise whereas originally there had been local objections to the school.

Councillor Carwyn Jones in referring to the debate at the Corporate Scrutiny Committee which had raised the possibility of federalisation, asked the Director of Education, Skills and Young People to clarify why this option is not supported for the two schools in question. The Director of Education, Skills and Young People advised that each and every case to change the organisational arrangement of schools has to be considered individually; every situation is different and the unique factors that pertain to each have to be taken into account. Although federalisation as an option has been implemented in Anglesey it was done so in different circumstances to those in this case. Professionally he did not consider federalisation to be the most effective way forward in the current situation – the recommended proposal as well as making more sense, offers more effective provision for the children and young people. Federalisation brings with it a number of additional challenges including for the Head Teacher and, taking all the considerations together, the recommended option is more feasible in terms of meeting the requirements and ensuring a prosperous future for the children and young people concerned.

In concluding remarks the Portfolio Member for Education, Libraries, Skills and Young People spoke of the many factors involved in reconfiguring schools as part of the modernisation programme and acknowledged that a proposal of closure is a very difficult proposition. The pupil numbers at Ysgol Talwrn reflect a situation whereby a number of pupils from the village attend schools elsewhere whilst a number of pupils at the school come from outside the catchment area. Whilst the Learning Service can contribute to the community, ensuring its ongoing viability is not the Service’s responsibility. This matter has been long in the consideration and has been the subject of in-depth scrutiny; with this in mind he proposed the recommendation of the report. The Executive having considered the information presented as well as the feedback and recommendation from Scrutiny, supported the proposal.

It was resolved –

•           To approve the proposal to increase the capacity of Ysgol Y Graig to take pupils from Ysgol Talwrn, close Ysgol Talwrn and review the catchment areas of Ysgol Y Graig and Ysgol Talwrn.

•           To authorise Officers to move to the next part of the process set out in the School Organisation Code 2018 and issue a statutory notice for a period of 28 days early in the New Year.

•           To authorise Officers to undertake responses to the statutory notice producing an objection report (if any) for the purpose of further consideration by the Executive in the New Year.

•           To authorise Officers to re-publish the Impact Assessment on the proposal as part of the ongoing impact assessment of the proposal on equality, the Welsh language and the community.