Agenda item

To present a draft of the amended policy.

DECISION

1.    To note the draft policy and note the observations.

2.    To welcome the fact that the draft policy was proceeding to consultation.

3.    That the Committee makes a request to the Scrutiny Forum to prioritise resources for the formation of a task and finish group, with the brief to examine the wording of the Draft Education Language Policy to consider whether suggestions need to be made to the Cabinet Member / Education Department, and report back to the committee at the 19 June 2025 meeting.

4.    Should the application to the Scrutiny Forum be successful, the Scrutiny Adviser to send an email to Committee members giving them the opportunity to put their names forward to be members of the Task and Finish Group.

 

The report was submitted by the Cabinet Member for Education, emphasising that this document was a draft policy and this stated the start of its development journey. It was noted that the current policy had been in place since 1984, and the reason that it had survived for such a long period of time was because of the evidence of its success. It was explained that the new document represented the evolution of the current policy, building on the successes of the past to create a policy that was suitable for Gwynedd's needs today. It was noted that it was now time to review the policy and offer changes, with the intention of further strengthening the Welsh language.

Views were expressed that the new model would strengthen the Welsh language and make it more prominent within our schools. It was noted that that also placed a challenge for the schools but the education department was ready to support the schools to fulfil this ambition. It was explained that there was no intention to depreciate the importance of English, but to ensure that the pupils had robust skills in both languages instead, and that they left school completely bilingual. Attention was drawn to the fact that this was what was needed for the future: individuals who could live and work through the medium of Welsh and English.

During the discussion, the following observations were made:- 

The view that the draft language policy was the most important document for the future of the Welsh language in Gwynedd was expressed, describing the impact that this policy could have as an unprecedented one for the children of the county and the wider community. The policy was praised for its clarity and for being concise, stating that the previous version was too long and open for misinterpretation. However, concerns were expressed about a number of elements:

1.    The lack of measurable ambition in the policy, without specific targets for percentage increase in the Welsh language provision over time.

2.    Excessive dependency on the Welsh Government Category 3, noting that most Gwynedd schools had already provided over 70% of its education provision through the medium of Welsh, and therefore they should aim higher.

3.    Lack of clarity in the wording of the policy, with terms such as "Every pupil is taught and assessed through the medium of Welsh until the end of Year 2" and "Welsh will be the pupils' main educational medium" being too open for interpretation. Stronger wording was suggested, such as "Welsh will be the pupils' medium of education, assessment and extra-curricular activities until the end of Year 2" and "Welsh will be the pupils' educational medium".

It was emphasised that there was a need to explain how English was taught cross-curricular and who decided on that, expressing concern that this could undermine the consistent use of the Welsh language. It was expressed that the policy should explain specifically who was deciding on the content of that provision. It was also noted that the policy did not clearly state how learning time was split between Welsh and English.

Disappointment was expressed that the policy did not aim towards the Welsh Government Category 3P, as several schools in the county already met the requirements of this category. It was asked whether the fact that the policy only aimed towards Category 3 conveyed a message regarding schools which reached Category 3P, such as suggesting that they were unprecedented because of their wider use of the Welsh language. In response, the following was noted:

·       To accept the observations regarding the need to strengthen the wording slightly to ensure that there was no misinterpretation.

·       This policy established a baseline, and the schools were expected to increase the Welsh-medium provision over a period of time.

·       Every school would have a specific improvement plan for the Welsh language, and these plans would be monitored over time with clear targets.

·       Percentages were not part of category 3 as such, and the policy was not based on percentages of 60% or 40%.

·       Exemptions were acknowledged within the policy, such as additional learning needs and latecomers, with suitable provision being planned for them.

·       The policy did not refer to specific subjects such as cross-curricular work; instead, the policy stated that every area of learning and experience must be taught through the medium of Welsh as the main language.

·       The reference to cross-curricular work was that pupils had opportunities within the areas of learning and experience to develop their English language competency, meaning that the percentage of the cross-curricular learning would be presented through the medium of English.

·       It was not possible to exempt one subject specifically to be taught through the medium of English.

·       English as a subject would count towards approximately 14-15% of learning time, with the additional use of English being included across every area of learning as part of cross-curricular experiences.

·       Category 3P no longer existed under the new Language Measure which went through the Senedd, and the categories in the future would only include Categories 1, 2 and 3.

·       70% was the minimum Welsh-language provision determined in the policy, not the maximum.

·       The policy specifically referred to 70% curricular, with an expectation for the extra-curricular work and the experience through the Secondary Language Charter, which was part of this measure and statutory, to increase the use of the Welsh language additionally.

Concern was expressed that the policy continued to specifically refer to the Welsh Government guidelines by including a link to the current categories. In response, it was acknowledged that the draft policy included a link to the Welsh Language framework and the current categories, reflecting the current situation. It was elaborated that category 3 had been noted as it was a blanket policy on behalf of the authority, and only three categories would exist, therefore category 3 was the most suitable category.

It was asked for clarity regarding how the cross-curricular learning would be implemented, emphasising the danger, if pupils chose which elements would be taught through the medium of English, that would undermine the use of the Welsh language in lessons. In response, it was confirmed that it was not intended for pupils to individually choose which subjects would be taught through the medium of English. It was elaborated that Headteachers had been part of the engagement for them to take ownership of the policy, to ensure that it was implemented more effectively. It was confirmed that every school would plan in detail, and the use of the Welsh language and English would be incorporated systematically based on the Areas of Learning and Experience.

It was repeated that it was a draft document, and the purpose of presenting to the committee was to receive observations before going on to a full public consultation over the summer. It was emphasised that the consultation process would be very thorough. It was noted that officers and the Cabinet Member for Education had been proactive in ensuring that the public was aware of the process.

It was emphasised that the current policy, established in 1984, was still in force today, and therefore there was a need to implement a new robust policy which would influence over the next few decades. It was noted that this policy was not a step back, but a way to open new doors for the children of Gwynedd by providing more linguistic and professional opportunities for them.

A member welcomed the draft policy and thanked the officers and the Cabinet Member for Education for presenting the policy to the committee. The continuous work and the collaboration between the Education Department, the officers and Cabinet members to bring the document into the current stage was praised.

Reference was made to the strengths of the policy as it was presented, but also to some observations considered less constructive by some politicians, noting that this outlined the lack of understanding of the true value of bilingualism and bilingual education.
It was emphasised that bilingualism and the ability to be multi-lingual was an integral part of the modern world and offered unique benefits to the children of Gwynedd, not only in terms of work opportunities but also in terms of culture, media and social life.

A personal story was shared about the significant change that resulted from having access to education through the medium of Welsh, and how that experience was now being transferred to the member's children through their upbringing and their education. Concern was expressed that not every child in the county currently had equal access to that gift of bilingualism. Reference was made to the experiences of learners who regretted losing the opportunity to learn Welsh younger. It was emphasised that the Council had a duty to ensure equal opportunities for every child in the county, and the gift of bilingualism had to be offered fully to everyone.

The ambition expressed for the three transitional schools was welcomed, but attention was drawn to the fact that not one ambition had been clearly outlined for those schools already categorised as part of Category 3. It was noted that many of those schools already implemented beyond the baseline of the category, and a robust framework had to be included within the policy to ensure measurable progress over a specific period of time.

The fact that the language of education was becoming more important in trying to maintain the Welsh language as a community level was emphasised. The Council was called to continue to innovate and provide a clear and robust path for every school to increase the use of the Welsh language by Gwynedd children today and in the future.

Some elements of the draft policy were welcomed, especially the intention to move schools forward along the continuum, although a more certain timetable was possibly required. It was accepted that the policy had been presented in a clearer and simpler way, and some aspects of the wording needed further consideration.

Disappointment was expressed that there was no intention to include schools in category 3P, alleging that there was no clear basis for the decision in the documentation. Reference was made to the strong history of Welsh-medium education in the county since the 1980s, noting that this had weakened over time. Concern was expressed that some schools in Welsh areas now offered less Welsh-language provision, which was contrary to the Welsh Government's policy which demanded maintaining or increasing Welsh-language provision.

Attention was drawn to the expectation of the Welsh Government for category 3 schools to reflect the linguistic context of its area and work towards increasing Welsh-language provision over time, and views were expressed that the draft policy did not achieve this, especially in schools such as Ysgol Dyffryn Nantlle and Ysgol Brynrefail. The lack of ambition in the secondary sector was judged, noting the concern for potential deterioration. Cyngor Gwynedd was called to protect the current provision and show more ambition, referring to the Catalonia model. Concerns were also raised about the lack of consistent monitoring of the policy. In response, it was noted:

·       Every school would be categorised as a category 3 school in accordance with the national system; category 3P would no longer exist.

·       The threshold of 70% was not its highest limit, but a minimum.

·       No school would receive less Welsh-language provision than what was in the past, there was no danger of deterioration.

·       Schools would be expected to increase the provision continuously over time, with a clear ambition to improve from the 70% minimum where possible.

·       The authority worked closely with the schools to support this process.

·       New officers had been appointed to the Education Department to strengthen monitoring arrangements.

·       These officers would be responsible for monitoring the implementation of the policy and the development plans.

·       The monitoring arrangements would include tight collaboration between schools and the authority, as well as the responsibility to report progress to the Welsh Government.

·       The policy included measures to ensure linguistic continuation between Key Stage 2 and the secondary, with transition children being noted and followed to ensure that they kept to their appropriate linguistic path.

The certainty that monitoring arrangements were now underway was welcomed. However, disappointment was expressed that there was no consideration to restore or define category 3P. ⁠Restoring 100% Welsh-language provision in schools where appropriate was called, as it used to be in the 1980s and the 1990s.

A member expressed support for the draft policy. A view was expressed that a category 3P definition was not required as the schools in question had already moved on significantly, and complied with the Welsh Government's expectations in terms of language provision. It was asked what training would be available for staff members to help them reach the required Welsh-language level to teach every area within the curriculum. It was further asked, what funding would be available to strengthen the immersion units, especially for pupils who arrived late, such as year 8 or 9, as there was a need to enable these pupils to be able to follow qualifications through the medium of Welsh. In response, it was noted:

·       The Welsh Government had established Canolfan Dysgu Cymraeg Cenedlaethol and Gwynedd already worked with this centre.

·       The centre offered courses tailored for individual teachers in specific schools, including access and higher-level courses.

·       The courses were tailored to teachers' timetables and could be face-to-face, partially virtual or self-study.

·       Tutors were assigned to clusters of schools, and courses were available which were subject-specific, e.g. mathematics or physics.

·       Sabbatical courses were available with a teacher from a transitional school already registered.

·       In terms of funding, the immersion scheme was under increasing pressure. A grant was received by the Welsh Government with the Authority adding to it with corresponding funding.

·       A national immersion network had been established and grants were provided over a three-year cycle. The current year started a new cycle.

·       The schemes and the need for additional funding had been shared with the Welsh Government, and they were aware of the arrangements and the pressure.

It was asked whether the training would be available internally, or whether individuals would have to arrange and pay for them themselves, considering workload. Concerns were also raised about the need for specific provision for teachers in schools which moved from the 3T category. In response, it was noted:

·       There was a very vast variety of courses available.

·       All the courses were free.

·       The government did not fund non-contact time, but despite this, they worked with schools to tailor the courses around teachers' timetables.

·       Schools received professional development grants which could be used to release staff to attend the courses.

It was asked whether there was an intention to consult with the Diocese regarding the change in the category of Ysgol Ein Harglwyddes. Concern was expressed about the varied nature of pupils in that school and it was asked for assurance that an equality impact assessment would be undertaken.

In response, it was explained that a period of engagement and consultation would be undertaken as part of the process of developing the draft policy. It was noted that this work would include stakeholders from Ysgol Ein Harglwyddes and meetings would be arranged. It was also confirmed that an equality impact assessment would be undertaken to ensure that the needs of every pupil would be met.

There were concerns regarding the clarity of the draft policy, noting that it was difficult for schools to understand what exactly was expected. Views were expressed that the policy was too easy to misinterpret. It was called for a strengthened version, making it more concise, clear and robust, emphasising that regular monitoring from governors and the Education Department was essential for its success. In response, it was noted:

·       The draft policy set an initial direction.

·       The aim was clear, namely, to increase the language standards in the education system, and every school would be expected to develop a specific plan for its individual circumstances to increase the use of the Welsh language as an education language.

·       Clear examples of cross-curricular learning would be expected and progress would be monitored by school support officers.

 

It was asked about the contribution and specific recommendations of Meirion Prys Jones, as a national language expert, when creating the draft policy. In response, Meirion Prys Jones noted:

 

·       He was the document's co-author, as well as education officers and with the agreement of secondary school Headteachers, and vast discussions had been held over a two-day period.

·       The document was innovative and he had no doubt about that.

·       The document presented a challenge, especially for secondary school Headteachers, and detailed discussions had been held with them on two occasions, including the previous week.

·       The policy tried to move schools from bilingual education (whatever that meant) to Welsh-medium learning, with the aim of ensuring that a high percentage of pupils followed subjects through the medium of Welsh up to 16 years old.

·       This aim was in accordance with the Welsh Government's policy on category 3 schools, considering that not many pupils currently sat their exams or studied subjects through the medium of Welsh at 14 years old.

·       External stakeholders had also been part of the process and they stated that the document was clear enough.

·       Further discussion was welcomed, emphasising that there was a need for the policy to be clear, robust and concise, and this had been a priority in creating it.

A member emphasised the importance of ensuring that every child was able to remain in the area and in their community by having the necessary linguistic skills, especially when applying for local jobs asking for the Welsh language. It was called for a policy which would ensure that the Welsh language was a live language in the community and that pupils left school completely bilingual. The need for positive steps was emphasised, strongly objecting to any political attempt to undermine the Welsh language.

The Cabinet Member for Education emphasised his wish to provide equal opportunities for children and to maintain the good linguistic work being done in the primary sector as they moved into the secondary sector. Concern was expressed regarding the way that the Welsh language was being discussed in some political circles. Disappointment was expressed about hearing observations from Darren Millar MS, and it was expressed that the belief that the Welsh language, as the national language of Wales, was now something that everyone should strongly support.

Disappointment was expressed in terms of lack of vision in the draft policy. Reference was made to the reduction in the percentage of children who spoke Welsh according to the latest census, and the fact that 14% of Gwynedd's children were unable to speak Welsh despite years of the policy. It was suggested that there was a need for a much more robust and ambitious strategy.

It was asked for clarity regarding pre-school education, emphasising that there was a need to use words such as "only through the medium of Welsh" when referring to pre-school provision to set robust foundations. It was asked what "Welsh is the main education medium" in the primary truly meant. Concerns were expressed regarding the use of English across the curriculum without a clear definition. It was suggested that English should be taught as a second-language subject instead of a cross-curricular learning medium.

Reference was made to the definition of a category 3 school, which was that every subject except for English was taught through the medium of Welsh. It was asked whether this was being achieved at every school, and it was suggested that the 70% figure was insufficient given the standard Welsh education given to children in the primary period. It was asked for increasing targets and regular monitoring to ensure continuous progress.

The need to take decisive action for the Welsh language in a county with the highest percentage of Welsh speakers in the country was emphasised. It was noted that there was a need to draft a stronger and more ambitious policy, one which normalised the Welsh language as the everyday communication language in the life of the school, in the community and at home. It was asked to re-consult and redraft the policy to protect the language nationally and locally, respecting the need to also learn English in detail and standard.

A member expressed concern that the discussion did not reflect a positive attitude towards the policy. Views were expressed that the policy was ambitious, positive and innovative. The risk that negative messages would contribute to the deterioration of the language was underlined. Everyone who contributed to creating the policy was thanked, and hope was expressed that the consultation process would include everyone, including those with more positive perspectives.

A member noted that the policy needed to reflect the significant demographic changes that had happened in the county over the last half a century. It was wished to see links being removed from the policy and to clearly note what was the expected provision for Gwynedd schools to present. It was also wished for further clarity in the policy regarding introducing English in a cross-curricular manner. It was emphasised that the basic question was the continuation of a Welsh community, and there was a need to discuss the policy in that spirit.

A member highlighted the reality of the situation within the current education profession, noting the crisis of recruiting and retaining teachers across Wales. There was a concern regarding the low number of applicants registering on PGCE (Post Graduate Certificate in Education) courses and a significant number of teachers left the profession. Views were expressed that any teacher would welcome the opportunity to learn Welsh fluently, but the county must enable this through appropriate provision. It was called for patience and understanding that the aim was high-standard education, and the change would take time. In response to several previous points, the Cabinet Member for Education noted:

·       The general difficulty of recruiting teachers existed, emphasising that the process was long-term which asked for commitment and resources.

·       This policy was not a quick attempt to create an impression, but a serious enterprise which required time and resources to appropriately implement it.

·       Some schools would be able to reach the 70% minimum easier than others, and that is why we needed to take time to appropriately invest.

·       The 70% noted in the policy was a minimum, not a maximum.

·       There was a need for further clarity in some parts of the wording, and that was something that the officers would be willing to consider when refining the draft.

The Cabinet Member for Education noted regarding the cross-curricular element:

·       Welsh, English, numeracy and digital competency were all being taught in a cross-curricular manner across every area of learning and experience and not as individual subjects only.

·       Formal English lessons, including grammar, started in Year 3, with an opportunity afterwards to use that language in a cross-curricular manner.

To conclude, the Cabinet Member noted that the draft policy was ambitious, but he accepted that there was a need to make necessary changes. He emphasised that this was the purpose of the meeting, namely, to create an open forum for discussion. It was explained that vast consultation with Gwynedd residents was essential, and that was the reason for the vast engagement work that had already been done with schools across the county.

It was noted that external experts had been included in the process to strengthen the document and ensure that the Welsh language continued to be a live language in Gwynedd, contributing directly to the national aim of reaching a million speakers by 2050 and onwards. He emphasised the importance of nurturing children and young people who, after leaving the education system, would be able to work bilingually. Reference was made to the discussion held about attracting teachers who are able to speak Welsh. It was noted, in order to reach this aim, there was a need to increase the use of the Welsh language in the field of education.

It was highlighted that support had been received from UCAC (Undeb Cenedlaethol Athrawon Cymru), confirming that the policy would not have a detrimental impact on the workforce. Furthermore, support was received from Cymdeithas yr Iaith, noting that this was a step in the right direction, and that they welcomed it, and wished to see other counties following Gwynedd's example.

In response to a question raised about whether Gwynedd continued to be at the forefront, it was expressed that Gwynedd continued to lead the way. The officers were thanked for their hard work and Councillor Beca Brown for her contribution from the start.

RESOLVED

1.    To note the draft policy and note the observations.

2.    Welcome the fact that the draft policy was proceeding to consultation.

3.    That the Committee makes a request to the Scrutiny Forum to prioritise resources for the formation of a task and finish group, with the brief to examine the wording of the Draft Education Language Policy to consider whether suggestions need to be made to the Cabinet Member / Education Department, and report back to the committee at the 19 June 2025 meeting.

4.    Should the application to the Scrutiny Forum be successful, the Scrutiny Advisor to send an e-mail to Committee members giving them the opportunity to put their name forward to be a member of the Task and Finish Group.