Agenda item

For Committee Members to scrutinise performance matters within the Department.

1.         To accept the report and note the observations.

2.         To ask the Head of Education to share national comparative data on de-registration with members of the Committee together with the Youth Service Annual Report.

3.         That there was a need to look at including information and data in relation to pupils' attainment in the future performance report.

4.         That the Committee scrutinised the situation in relation to de-registration and Elective Home Education as part of its work programme when timely.

The Cabinet Member for Education presented the report, stating that the arrangement was relatively new but it was a useful way for the Members to see and understand the Education Department's range of work. It was noted that the report gave the Committee an opportunity to scrutinise the department's performance.

During the discussion, the following observations were made:-

General concern was expressed regarding the size of the reports pack submitted to the Committee, which included approximately 350 pages. It was noted that it was unrealistic to expect members to read all the material in detail, which could mean that some relevant questions would not be raised. In response, an apology was given about the length of the report, and it was explained that changes to the Education Department's performance challenge arrangements were underway. It was noted that the department was large and contained many different services, and identifying the most important matters amongst all the information had been a challenge. It was confirmed that every manager would continue to report on performance, but moving forward, the Assistant Heads of Department would provide summaries of approximately three or four pages, highlighting the successes and the fields that required attention.

Attention was drawn to the significant reduction in the number of applications for headteacher posts and to the increasing challenge of attracting individuals to leadership posts in schools. The development of the Future Leaders programme was welcomed, which provided practical support to individuals who wished to move to leadership posts. It was noted that 17 individuals from the primary sector and seven from the secondary sector followed the programme. It was asked how many had followed the programme in the previous year and whether the feedback had been positive.

Reference was made to the support programme for new headteachers and acting headteachers, with 26 individuals following the programme. It was noted that the response to the programme had been positive, and that new headteachers had provided good feedback regarding the support received from the Council. Attention was drawn to the fact that 13% of schools did not have a permanent headteacher, and members asked for the equivalent figures for the previous years to put the situation in context. In response, it was noted:-

·       That recruiting headteachers was a significant challenge and the problem was not unique to Gwynedd, as schools across Wales and beyond faced the same difficulty.

·       There had been a significant turnover amongst headteachers in Gwynedd over the last two or three years due to the age profile of the workforce. It was estimated that between 30% and 33% of schools had changed headteachers during that period.

·       Some headteachers had reached retirement age, whilst others had decided to leave the profession because they did not wish to remain in the role.

·       Primary headteacher posts had attracted three or four applicants in the past and secondary headteacher posts had attracted two or three, but posts were now being advertised without receiving any applications in some cases.

·       The situation had been included on the department's risk register, as it was a significant risk that could have an impact on the quality and standards of schools.

·       A team of school support officers was in place, and they intended to strengthen the support for governing bodies in the coming year to ensure that headteachers and schools received support from several directions.

·       There was a need for national changes, including increasing the number of spaces on the National Professional Qualification for Headship. It was emphasised that teachers who showed a desire to lead a school should be supported to gain the relevant qualification.

It was reported that 15 individuals had followed the Future Leaders programme during the previous year, and the majority had moved on to acting headteacher posts or permanent posts. It was explained that the programme had worked towards developing talent within Gwynedd schools and ensuring that a pool of individuals was available to respond to urgent situations in the primary and secondary sectors. It was confirmed that the programme had been successful and had contributed to an annual increase in the number of successful applicants for the headship qualification.

It was reported that a new programme had been established this January for headteachers who had been in their posts for less than three years, as well as acting headteachers. It was noted that 22 headteachers were following the programme, which was being led by two support officers who had previously been headteachers. It was explained that the programme gave headteachers an opportunity to network, receive mentor support and identify familiar faces and departments within the authority. It was noted that the programme provided support with matters such as funding, improvement plans and human resources. It was acknowledged that the role of a new headteacher could be lonely and this support could be of significant benefit.

It was asked whether one main reason stood out in the decisions of headteachers and teachers to leave the profession. In response, it was explained it was not one specific reason, but a number of factors had contributed to the situation since the period of the pandemic. It was noted that some children arrived at school without being able to complete basic tasks such as using the toilet, eating independently or wearing a coat. It was explained that secondary schools had seen a deterioration in the reading skills of some pupils as they started in Year 7 compared with the pre-covid period.

Reference was made to the challenging behaviour of children, parents' behaviour and the burden of dealing with an increasing number of complaints. It was noted that complaints had become more complicated, especially as artificial intelligence was used to create them, and that responding to them could be difficult for headteachers. Reference was made to changes in the curriculum, with some headteachers deciding to retire instead of implementing more changes over the coming years. It was noted that there were more children with additional learning needs in schools, and that frustration regarding a lack of sufficient provision to fulfil their needs had contributed to the pressure on headteachers.

It was emphasised that no headteacher could cope with all these changes on their own. It was noted that there was a need to change the way the authority, schools, governors and the scrutiny committees worked together, and reduce the sense of "us and them" within the system. It was explained that success would be assured by working for the benefit of all Gwynedd children, instead of only focusing on one classroom.

It was suggested that these challenges should be raised at a national level with the Welsh Government. It was noted that the new Minister for Education had previously led headteacher unions and would therefore be aware of the pressures facing the profession.

A member noted, in terms of education unions, that the three main concerns consistently being raised by teachers were workload, behaviour and salary. It was noted that workload and behaviour often swapped places as the primary concern, with salaries normally in third place. It was suggested that these factors made teachers think carefully before applying for leadership posts. Reference was made to data from the Education Workforce Council regarding the cohort of newly qualified teachers in 2015, stating that 40% of that cohort had left education by 2025.

Reference was made to a number of capital projects that had slipped in terms of time or cost, or both in some cases. It was asked whether more delay was expected in relation to the projects that were underway, or whether there was confidence that they would be completed within the timeframe and the budget. In response, it was acknowledged that it could not be assured that there would not be further delay as capital projects were complicated and unexpected problems could arise.

Reference was made to the Ysgol Ein Harglwyddes project, where it had been planned for children to move to the new building, but the work had not been completed to a sufficient standard. It was noted that a difficult decision had been made to postpone the opening until 1 September 2026. It was emphasised that it was better to postpone than move children to a building where the work had not been completed properly, noting that there had been a tendency in the past to move children in and then resolve the problem.

It was explained that the Ysgol Tryfan project had been underway for several years and had faced capital challenges. It was noted that it was difficult to anticipate the cost of construction work, especially when work was taking place on the site whilst the school continued to operate on the site. The hope was expressed that it would be possible to keep to the timeframe and the budget, but it was acknowledged that there would be a need to continuously fight to achieve this. It was noted that no large capital projects had been completely free from problems, and further problems could arise although specific ones had not been identified.

Reference was made to a plan to reduce the cost of attending school, and the fact that a specific plan was in place was welcomed. It was asked how the success of the plan would be measured. In response, it was explained that the success would be based on the commitment of schools to implement the plan's principles. It was noted that no headteacher wished to make attending school more difficult or more costly, but schools were required to consider the financial implications of their decisions. Reference was made to the second-hand school uniform shop schemes and the need to consider whether a specific logo on sports uniforms was necessary. In response, it was noted that members who served on governing bodies could raise these matters directly and the response of governing bodies would be important in developing the work.

Reference was made to the immersion system, and it was noted that the department wished to make many improvements, but they were not affordable at this time. A member asked for more information regarding those improvements. In response, it was noted that a review of the immersion system had been conducted, a positive Estyn inspection had been received and a report from Bangor University had been considered. It was noted that there were significant implications in terms of resources, and that more centres and more staff would enable more children to have access to immersion provision.

It was explained that the existing budget was insufficient to fully fund the current immersion centres, and more resources would enable the department to provide more spaces. However, it was acknowledged that this would raise questions regarding the length of time that learners would spend in the centres and the associated transport costs. It was noted that the system performed well with the resources available, and the best possible use was made of local and national resources to increase the use of Welsh in schools.

It was acknowledged that there was increasing pressure on the immersion system and that pressure would continue over the coming years as schools implemented the Language Policy. It was emphasised that the cost of the system was higher than the level of grants received. They expressed their appreciation of the Welsh Government's contribution, but it was noted that the contribution should reflect the real cost of the provision. It was suggested that schools would have to spend more on Welsh-medium education in the future.

Concern was expressed regarding the increase in the number of pupils who had de-registered from schools.  It was asked what Gwynedd's strategy was to respond to the increase and reduce it. It was noted that the report referred to a national pattern, but it was asked to include figures for the whole of Wales to put Gwynedd's position into context. In response, it was noted:-

·       The number of children being educated at home had increased nationally, and it was agreed to share the national figures with the Committee.

·       There was significant concern about the increase in Gwynedd. It was noted that the number had increased to over 300 school-aged children, compared with approximately 250 at the same time the previous year.

·       The figure had changed during the year as Year 11 pupils left the system, and therefore it could appear that the number had reduced in September even though the basic trend had not changed.

·       There was a particular trend for older pupils to be de-registered.

·       There was a difference between parents choosing to educate their children at home from the start, parents who had decided to give up working to provide high-quality home education, and parents who took their child from school because the school could not fulfil the child's needs or due to attendance or behaviour problems.

·       Many parents provided excellent home education. However, particular concern was expressed about children who were taken from school due to difficulties, as they could reach post-16 age without qualifications and then have to follow foundation courses before moving on to their choice of studies.

·       The Gwynedd and Anglesey Additional Learning Needs and Inclusion Service was in the process of being split, and they planned to have two staff members to support families who chose to educate their children at home.

·       Home visits were already being conducted to assess what support was required and whether the parents could provide an appropriate education.

·       There was a need to prevent families from feeling under pressure to pull their children out of school. It was noted that this required joint working between the inclusion teams, additional learning needs and schools.

·       Plans were in the pipeline to respond to the matter, and it was suggested that a more comprehensive report be submitted to the Committee in the future, including more information about the impact of the interventions.

It was emphasised by the Cabinet Member that it was a matter of priority for him. It was noted that additional learning needs, social issues, poverty and changes in society contributed to the increase. It was acknowledged that family situations had intensified in some cases over recent years, but it was emphasised that identifying the causes of the problem was not sufficient in itself. It was explained that the Council needed to adapt and develop its way of working to meet the needs of those children and families.

Reference was made to the work that had been undertaken over the previous 18 months to review services. It was noted that the Additional Learning Needs and Inclusion Service with Anglesey would come to an end by September and a separate service would be established for Gwynedd only. It was explained that the demand had significantly increased, that the service was growing and was difficult to manage, and the geographical areas were very broad. It was hoped that a service solely for Gwynedd would give better control and respond more effectively to local needs, continuing to work with Anglesey when appropriate.

Reference was made to other changes, including establishing a new inclusion service and a new Camu i'r Copa centre in Llanwnda, as well as the changes deriving from the conclusion of GwE (School Effectiveness Service). It was noted that the new arrangements had an important role in terms of supporting schools, children and families. Reference was made to the culture of schools and the priorities that steered their work, including whether more emphasis should be placed on the standard provision instead of more expensive activities. It was acknowledged that there were no quick answers, but it was repeated that the area was a priority and the service was moving in the right direction.

It was added that a legislative change was underway regarding home education, which would change the power of local authorities in terms of access to children and making decisions about children and families who chose this path. It was noted that the department would try to work in partnership with families, in the spirit of the new legislation. It was noted that the Youth Service provided support to reduce the number of young people who were not in education, employment or training, and the service intervened earlier in schools to prevent this from happening.

The commitment to present more information to the Committee was welcomed. It was asked for the data to include the age of pupils who were being de-registered and their geographic location, to identify any patterns.

Concern was expressed that some teachers and acting headteachers who wished to follow the qualification for headship continued to be refused. It was acknowledged that the course was run by the Welsh Government, not Cyngor Gwynedd, but it was noted that the situation caused concern given the shortage of headteachers. In response, it was agreed that individuals who had shown an interest in becoming headteachers should have the opportunity to follow the qualification. It was explained that the Welsh Government had set a cap on the number of spaces, and that this was not the local authority's decision.

It was noted that acting headteachers and other individuals who wished to apply were being encouraged to contact the department, and that the local leadership programmes helped to identify gaps in their experience and strengthen their applications. It was reported that one individual had been successful in 2024, had gained the qualification and received a permanent headteacher post, contributing to reducing the number of acting headteachers. It was noted that three individuals had received the qualification since September, and that four others had been accepted for September 2026.

It was confirmed that the concerns had been raised with the Welsh Government. It was reported that the number of spaces had increased from 46 to 96 for September 2026, suggesting that the Government had listened to the concerns. It was noted that the department worked closely with Learning, which was responsible for leading the qualification and developing a career path for middle and higher leadership.

It was asked whether satellite sites were being developed in Meirionnydd as discussed when the pupil referral provision was established, and whether feedback had been received regarding the proposal. Reference was made to a recent television programme regarding Brynffynnon, and it was noted that there was some similarity between that provision and Camu i'r Copa, although the age groups were different. It was emphasised that high priority must be placed on safeguarding, because vulnerable pupils were at greater risk of being abused. In response, it was noted:-

·       A decision had been made from the start to establish an appropriate and high-quality provision.

·       A significant capital investment had been made at the old school to create a safe and inclusive facility.

·       All the necessary resources had been provided to ensure that the children were fully involved and felt safe.

·       Working in a behaviour support unit was challenging because children's behaviour was becoming increasingly challenging.

·       The team had some outreach capacity to schools, although there were mixed opinions regarding the effectiveness of that method. It was explained that the success of behaviour work often depended on building a relationship with the child, and this was difficult when an officer only visited for a short period.

·       There was a wish to develop more provision and more centres, but it was emphasised that they should be full and suitable provisions.

·       Discussions had been held with headteachers in Meirionnydd who were eager to see a provision in the area, particularly for the secondary sector.

Concern was expressed regarding safeguarding children who were being educated at home, noting that child abuse often happened by parents, brothers, sisters or close family members. It was asked how problems could be identified should the child be educated at home and there was no regular contact with a school. In response, it was noted that safeguarding every child was important. It was emphasised that it should not be assumed that safeguarding problems were associated with every family who chose to home educate, because many parents were doing excellent work for the right reasons. It was acknowledged that there had been national cases where safeguarding issues were raised, and it was suggested that this was one of the factors that influenced the Government's decisions when creating the new legislation.

Concern was expressed regarding the decision to separate the Anglesey and Gwynedd Additional Learning Needs services, noting that the Welsh Government often encouraged collaboration between local authorities. It was asked for a separate discussion to explain the reasons for the decision. In response, it was explained that this was a practical decision. It was noted that the service included approximately 130 to 140 staff members, that it was a growing area and faced intensifying needs, and that it was difficult to manage as one service across such a vast area. It was acknowledged that many of the aspects from the partnership with Anglesey had worked well, but it was noted that a more dynamic service was required which could respond more effectively to the needs of the people of Gwynedd.

Concern was expressed that children with additional learning needs who would have been provided a space in a special school five years ago were now being refused, leaving mainstream schools to respond to their needs with limited resources. Reference was made to a significant increase in the number of pupils in special schools, stating that Ysgol Hafod Lon had been built for 100 children, but it would have 135 registered pupils in September 2026. It was noted therefore that the school had to use satellite sites because of the lack of space.

In response, it was noted that the increase in the number of children with additional learning needs who might require a space in a special school caused significant concern. However, it was emphasised that there was a need to consider the basic question regarding inclusion and the way schools and communities were organised. It was explained that it was not desirable to create a system where children with additional learning needs were being educated completely separate to other children. Reference was made to an example of full inclusion between two nearby schools during break times, and a desire was expressed to see children with additional learning needs and other children being educated together where possible.

It was noted that the Council had invested more in integration during the year, but it was acknowledged that more funding was required. It was confirmed, should additional resources be available, that they would be given to schools to employ more staff and increase their ability to be inclusive. It was acknowledged that inclusion made the work of mainstream schools more challenging. It was noted that any increase in the capacity of special schools or constructing a new school would lead to transport implications and additional costs, and there was a need to consider these matters collectively. It was emphasised that it would be better to invest in education and children's experiences instead of spending more on transporting them to provisions that were further away.

Clarity was requested regarding the reference in the report to changes to the plan at Ysgol Bontnewydd. In response, it was explained that the project was challenging because the plan was to build a net zero school. It was noted that this created specific challenges that had not emerged in normal school projects, including insurance matters. It was confirmed that a more comprehensive response would be provided in due course.

It was asked whether schools lost funding when a child was de-registered, because funding was allocated per pupil. Concern was expressed that losing this funding could contribute to redundancies and a reduction in the number of staff. In response, it was explained that it was not possible to provide a simple answer because the impact depended on the time of year that the child was de-registered. It was noted that some schools were able to benefit temporarily should the child leave after the funding had been allocated based on the pupil census. However, should the child be out of school for a whole year, the loss would appear in the subsequent funding.

It was asked how many children benefited from the Camu i'r Copa provision, and whether those children differed from the ten pupils who had been permanently excluded from secondary schools. It was asked, on average, how long a child who had been permanently excluded remained without education before receiving an alternative provision, and who was responsible for safeguarding the child if they were not open to the well-being team. In response, it was reported that approximately 25 children had benefited from the Camu i'r Copa provision during the first year. It was noted that their paths before reaching the provision varied, with some facing exclusions and others not. It was explained that the long-term aim was to ensure that children were able to access the centre before reaching the point of exclusion.

It was asked about the impact of the 230 applications to transfer schools this year, noting that this could place significant pressure on nearby schools, particularly should many children move at the same time. It was asked whether the funding moved with the child when a transfer happened during the academic year. In response, it was explained that not every transfer came from behaviour or inclusion issues, as some could be due to moving house or families moving into or out of the area. However, it was acknowledged that schools were concerned regarding accepting children with challenging behaviour or inclusion needs without additional funding.

It was noted that an agreement existed in the past for the funding to follow the child, but there was not an existing agreement between the headteachers. It was confirmed that the arrangement could be reconsidered, but it was a matter for the schools to agree upon. It was noted that a discussion would take place at every governing body in September, with a decision being made about the way forward.

The Camu i'r Copa staff were thanked for their work, noting that they worked under significant pressure and showed a huge commitment to the children at the centre.

Concern was expressed that the report was fairly superficial in some places and that insufficient figures had been included. Reference was made to statements that the Youth Service work had a positive impact on the well-being, personal development and confidence of young people, but it was noted that there was no specific data to support these statements. In response, it was confirmed that there was more information regarding the Youth Service in other reports and the Youth Service's annual report. It was proposed to share the annual report with the Committee. It was acknowledged that the brief observations in the performance report did not do justice to the amount of work happening.

Reference was made to a recent change from the SIMS information system to a Bromcom system in secondary schools. Concern was expressed that the transfer process placed significant pressure on the well-being of school office staff, and that staff had worked additional hours to address the change. It was asked whether the authority provided sufficient resources and support to schools when introducing the new system. In response, it was noted:-

·       The authority had paid for a SIMS system for many years, but schools had been part of the process of choosing Bromcom as the new provider.

·       Moving from a system that had been in place for almost a quarter of a century to a new system had been difficult.

·       The relevant headteacher had discussed the problems with the department officers and the support team.

·       The school should not have been left alone, and the authority should not allow that.

·       Many of the problems derived from matters that were beyond the authority's control, including the difference between what was promised by Bromcom and what the company could provide.

·       There was disappointment regarding the fact that the change had impacted office staff, as the intention was to improve the school's business processes.

·       The authority had committed to the new system and there would be a need to resolve the problems.

·       The school in question had been the first to adopt the system and therefore faced the challenges before other schools.

·       ⁠There was a recommendation in the Child Practice Review to have one consistent system across the county to record safeguarding matters. It was noted that Bromcom was able to provide that function, and that had been one of the main reasons for the change.

·       There was a need to ensure that education systems, data and information about children reached the best possible standard, because the previous situation was unacceptable.

The open nature of the discussion between Committee members, the Cabinet Member and officers was welcomed. It was noted that the report reflected the increasingly difficult social circumstances in which schools operated, including children's readiness for school and their ability to carry out basic tasks.

It was suggested that it would be beneficial to include more information about traditional educational results in the report, such as attainment in literacy, numeracy and GCSEs across Gwynedd. It was explained that comparative data could show Gwynedd's situation compared with Wales and the United Kingdom, without the need to scrutinise individual schools in a public session. In response, the suggestion was welcomed and it was noted that work was underway to bring the information together. Reference was made to previous national decisions not to use or publish performance data in public forums, but it was noted that secondary headteachers now showed a desire to be more open when using data to plan improvements.

The Cabinet Member for Education noted that the door had not shut on further developments in the provision of special schools. It was confirmed, should more spaces be required, they would have to respond to that need. It was suggested that satellite sites in mainstream secondary schools could provide support to some pupils with specific needs.

It was reported that more funding had been given to special schools and mainstream schools during the year, and the intention was to try to provide more in the following year. It was noted that an audit of school funding arrangements was underway, which could create opportunities to re-distribute the budget in a different way.

Reference was made to the Youth Service's annual report, and it was noted that it included more information about the number of children who had benefited from well-being support. It was explained that the questionnaires within the report submitted measured the experience of children whom the service already worked with, and that it was not easy to collect consistent data about children who did not receive support.

Concern was expressed regarding restructuring the Youth Service which had happened some years before. It was noted that five new community provisions had been established since the previous year, and the possibility that the service was gradually moving back towards the previous provision was welcomed. It was reported that the Youth Service was developing a five-year plan and had conducted a consultation. Members were encouraged to take part in the consultation and submit their views.

In terms of the schools' performance data, it was suggested that they should go further than only submitting the Gwynedd average, because one school could increase the average and another could reduce it. It was proposed that data should be submitted per school, without naming the school. It was emphasised that the purpose of this would be to identify schools that performed well and those that required support, to steer improvements instead of placing blame. It was noted that headteachers’ agreement was required and a consideration of the Welsh Government's perspective before implementing the arrangement. It was confirmed that the matter would be raised with headteachers before September, with the aim to submit information to the Committee in the autumn.

RESOLVED

 

1.     To accept the report and note the observations.

2.     To ask the Head of Education to share national comparative data on de-registration with members of the Committee together with the Youth Service Annual Report.

3.     There is a need to look at including information and data in relation to pupils' attainment in the future performance report.

4.     That the Committee scrutinises the situation in relation to de-registration and Elective Home Education as part of its work programme when timely.