Response from the Catholic Education Service for England and Wales (CES)

Proposals for a Learning and Skills (Wales) Measure 2008

Introduction

This submission to the Learning and Skills (Wales) Measure Committee is written from the premise that Catholic schools and the availability of a Catholic education by those who seek it has served Wales well over many generations and continues to do so. The strong wish of the Catholic community to have access to such educational provision is the basis for this response.

Whilst we understand and appreciate the need for development in the education of 16-19 year old students, it must serve all students and their communities well. Development should not be at the expense of access to a continued Catholic education, albeit one whose provision is organised differently according to location and demographics.

It is timely to remember that rights of access to an education of a religious nature, and in accordance with parental choice are upheld in the United Nations Universal Declaration of Human Rights, the Declaration of the Rights of the Child and the Human Rights Act 1998.

The Learning and Skills (Wales) Measure Committee

Questions posed by the Committee

1.0. Is there a need for legislation to re-organise 14-19 provision?  

1.0. In our opinion, significant re-organisation on the scale of that proposed  requires legislation to reflect the gravity and impact of that which is proposed and to provide due safeguards. We would expect this to include provision for continued access to education of a Catholic character for those who seek it, in continuance of that offered by the Catholic school at which the pupil was enrolled at 11 years (or any other age).

2.0. Does the proposed Measure achieve the policy objective or could changes be made without legislating?

2.0. The Measure will obviously go some way to meeting the policy objective within the legislative framework.  However, we believe it will not achieve it fully unless many of the issues outlined below are addressed.

3.0. What are the views of stakeholders who will have to work with the new arrangements?

3.0. The responses set out below take into account the views of Catholic education stakeholders in Wales (diocesan officers and  head teachers as expressed at a conference held in Cardiff in February 2008), and as contributors to our written consultation response Proposals for a Learning and Skills (Wales) Measure 2008 (Consultation document No: 046/2008).  Additional responses were sought from stakeholder groups to further inform the content of this document.

4.0. What might be the barriers to delivering the policy agenda and does the proposed Measure take account of them?

4.0. We note that some amendments have been given further consideration since the original consultation. The aim of increasing learner choice contained in the Measure has some merit. However, the means adopted to achieve such wider choice and the re-organisation as a whole, must command the support of the parents, pupils, dioceses and the institutions participating and not undermine the ability to continue to access education in the Catholic tradition. We would highlight, in particular, the wish to continue to have access to pastoral care and religious education in the Catholic tradition. In particular, cooperation needs to respect the individual, and the distinctive character of Catholic schools and the role of dioceses as statutory partners in the provision of education. Currently the Measure does not take account of a number of barriers to blocking the delivery the required policy agenda or adequately address their removal.

5.0. The proposed Measure does not pay due regard to the following expectations of the Catholic community in Wales:

Religious, spiritual and moral education

5.1. That the central place of religious education in the curriculum of pupils in/of a Catholic institution should be acknowledged and prided for. Traditionally within Catholic maintained schools in Wales religious education accounts for 10% of the curriculum at Key Stage 4 and 5% post-16. Giving adequate time and resourcing to enable its continuation in Catholic schools and colleges is vital.

The document ‘Religious Education in Catholic Schools and Colleges 14-19 – Curriculum Guidance’ rehearses the scope and nature of religious education within the Catholic tradition. This guidance document identifies how religious education contributes to fostering students’ identities, inter-religious dialogue and community cohesion. We would be happy to discuss this with you.

5.2 That the right to organise and participate in daily acts of collective worship, in line with the religious character of the Catholic school, should be maintained.

5.3 That continued provision should be made for pupils’ spiritual, moral, social and cultural development and these needs to be protected in legislation. Particular assurances are needed in regulations to ensure that this will not be compromised by pupils moving between institutions in partnership arrangements.

5.4 Similar provision will need to be made for the delivery of pastoral care. Again particular assurances are needed in regulations to ensure that this will not be compromised by pupils moving between institutions in partnership arrangements.

5.5 That young people should continue to have programmed access to pastoral care and guidance in the tradition of their Catholic school. For example, this will enable them to continue to develop supported by the ethos and values of their Catholic school and the practice of these by the young person. We believe that it should be possible to provide for this in regulations that encompass the circumstances where a young person from a Catholic school may be studying for much of the time in an FE college

5.6 In all these, and other matters, the Catholic educational community expects to be consulted both locally and when appropriate, nationally i.e. at the policy consultation level before decisions are taken. As stated below, consultation should include diocesan officers and begin before proposals are published so that diocesan colleagues may contribute constructively from an early stage. As there are likely to be Catholics pupils in a local authority even where there is not   a Catholic school such inclusive discussion should be expected in every authority.  

Consultation

6.0 Adequate protection is required within legislation in relation to the requiring consultation on all proposals accompanied by robust systems and monitoring to ensure fair and transparent processes which are non-discriminatory.

6.1 The Catholic community fears lack of provision for dialogue between the Welsh Assembly Government (WAG), LEAs and Church education providers. It is reported to the CES by Welsh diocesan colleagues that a minority of local authorities are behaving in an antagonistic manner towards Catholic education. More commonly, LEAs take action unilaterally and with unintended negative consequences for Catholic schools. For example, if funds are shifted away from existing funding channels to fund 14 -19 partnerships and a proportion is not allocated to Voluntary Aided (VA) schools, then funding to Catholic schools is reduced and de facto discrimination occurs and our schools are unable to make due provision for pupils. Other examples could be provided if WAG seeks more information. For us the imperative is that WAG consults with the CES, dioceses and Catholic schools and takes account of their views.

Due to this lack of consultation in some areas, there is considerable frustration amongst Catholics in Wales that their voice is neither heard nor given due regard as a statutory partner in education and as community members.

6.2 The Catholic Church provides a significant number of school places across Wales (76 Primary schools, 15 Secondary schools, 3 Independent schools and 1 Sixth Form College). LEAs must be required to consult widely and effectively, just as schools are required to assist the LEAs.  This consultation may require authorities to work beyond their geographical boundaries to establish constructive partnerships and effective place planning with elements of choice.  There should be clear mechanisms for reviewing and evaluating the extent to which LEAS are fulfilling this requirement. There should also be sanctions if there are infractions.

6.3 It should be emphasised that consulting with Catholic schools and colleges alone is insufficient; The Catholic dioceses play an important role as trustee and provider body, analogous to that of the LEA. In some LEAs their interpretation of consultation is to inform dioceses of plans - this is clearly unsatisfactory and we would look to WAG to ensure due safeguards in legislation.

Curriculum and partnerships

7.0 We understand that LEAs will play a major role in determining the local 16-19 and 14-19 curricula. For this reason it is again important that ministers and LEAs are required to consult widely, including with dioceses, and to take account of the consultation when planning provision. Issues relating to resources required to fund bilingual requirements at secondary level is but one practical example of the need for such consultation at planning stages. We presume that WAG would have no intention of making bilingual provision possible but ignoring distinctive faith based educational needs?

7.1 Dioceses and others should have access to a statutory review process if they feel they are not being engaged and listened to as formal partners in the provision of local education. Again protection for denominational provision is needed. It is possible that LEA plans for delivering the curriculum may have an impact upon the denominational provision in an area. This must not be harmful or threaten access to denominational provision.

7.2 Simply placing a duty on LEAs, governing bodies and FE institutions to consider cooperation is not sufficient. It is vital that all parties are required to cooperate and to demonstrate the mechanisms being put in place to achieve this. LEAs should be required to take into account the potential effect of their proposals upon denominational provision and ensure that the proportion of denominational provision and choice within this, is, retained where this is the wish of the Catholic community. This does not preclude the LEA and Catholic community working together to reshape the pattern of   and making new, mutually acceptable arrangements for the benefit of all.

7.3 The values and ethos of schools with a religious character need to be taken into account in any proposed local co-operations. The WAG and LEAs also need to take account of resource issues for governors and dioceses and others co-operating; this might increase expenses for some Schools and dioceses, but be of great benefit overall.  These expenses should be factored into the funding and disbursement regimes.

7.4 We support learner choice and the need for partnership working but hard/soft federations should not be imposed on unwilling participants. Setting a minimum number of courses to be delivered by a provider is unrealistic and could be divisive e.g. seen as a way of closing small scale provision even where there is expertise and identified need. It is better that energy and resources be deployed to foster good collaborative working albeit with the hope of leading to more formal federations.

We also oppose the notion that big is always better- one institute able to deliver all courses does not make the outcome inherently worthy and the provision superior.

7.5 There is urgent need to assuage parental concerns about the future availability of the character of provision that they have chosen for their son or daughter’s secondary education. Many feel that provision is being imposed upon them. These anxieties of parents and young people’s should be taken into account to ensure full and effective participation in education, especially from 14-16 and 16-19 years.  

Geography and logistics  

7.6 Account must be taken of the implications of large catchment areas for Catholic schools, sometimes not co-terminous with LEAs In some LEAs there may not be any Catholic provision, leading to students travelling some distances to receive  denominational education.

7.7 The geographical implications of transportation for curriculum partnerships between institutions must be fully realised in terms of time, costs and affordability and impact of increased carbon emissions. Therefore, the need to travel between institutions should be kept to a minimum but must not over-ride access to a denominational education.

Advice and Guidance for educational choice

8.0 The provisions to improve advice and guidance for young people have substantial strengths. They are necessary to ensure that students and parents have access to the full range of choices. The role and place of parents, as first educators, needs to be respected in response to such guidance, particularly for 14-16 year old pupils.

8.1 In order to work most effectively in Catholic contexts, it will be important for Catholic schools and dioceses to be fully involved in the development of the service and of the learning coaches. It should be possible to target recruitment of Catholic coaches for Catholic schools by encouraging Catholics to put themselves forward as coaches. It should also be possible to ensure that Catholic schools are able to induct learning coaches who are not Catholic. It is essential that all learning coaches have a full understanding of the educational provision available in all types of schools, including schools of a religious character.  

8.2 Similar caution will need to be exercised where students receive on-line web-based guidance to ensure that bias is not present in terms of a limited number of providers. We accept that this is important in both directions with Catholic pupils knowing what is on offer elsewhere and vice versa – that other students may come to provision in Catholic schools must not be ignored It will be important that guidance makes clear what is available in denominational institutions, and the welcome that this provision will give to students studying in other schools or in Further Education environments.

8.3 It is important that learning coaches have access to adequate funding for training.  Without effective learning coaches choice may be ill-informed and wrong for the progress and attainment of the young. We seek more clarity and input into how such coaches will function across an LEA or diocese. It would appear there is some need to be peripatetic to overcome geographical barriers.  The role of coaches should be monitored to avoid bias.

8.4 Provision should be made for the funded development of training materials that induct learning coaches into their role including an understanding of the different educational provision available including schools of a religious character.  This would enable learning coaches to bring these schools to the attention of students and parents along with information about FE and other school providers.