Mr Alastair Keddie |
HM Inspectorate of Education Our ref: QSE/4/19/md |
Dear Mr Keddie
The report on the education functions of The Moray Council was published in February 2004. HM Inspectors made an interim visit to the Council in February 2005 to evaluate progress made in responding to the main points for action in this report.
Over the last year the Senior Management Team had provided committed leadership with a strong focus on raising attainment. In responding to the HMIE report of February 2004, effective use had been made of working groups to address the main points of action. This had enhanced consultation with a wide range of stakeholders and fostered a shared commitment to continuous improvement. Overall, in the year since the original inspection, the authority had established a range of initiatives which were beginning to have a positive impact on educational provision.
A number of positive steps had been taken to support and challenge schools. These included better analysis and use of data, targeted intervention by officers and a much improved programme for the professional development for staff. Initial results showed positive signs of impact on pupil performance in the primary sector and the early years of secondary. In the coming year the challenge for the authority and schools will be to raise attainment in S5/S6.
In planning for the period 2005-2008 good account had been taken of the views of a wider range of stakeholders, and arrangements were in place to cost plans and identify clear measures of success. The Council now needed to ensure that the implementation of the Service Improvement Plan was closely monitored to ensure that it delivered positive outcomes for all learners. It also needed to integrate the educational improvement plan with the children’s services plan.
The production of an estate management plan provided elected members and the public with a useful basis for discussion of future educational provision. However, there remained considerable scope for elected members to further improve the targeted use of resources.
Around one year from the publication of this report, HM Inspectors will re-visit the authority to assess further progress in meeting the main points for action.
I attach an evaluation and brief account of the response made by the education authority to the main points for action in the report.
I am sending a copy of this to the recipients of the original inspection report.
Yours sincerely
Margery Browning
Acting HM Chief Inspector
Directorate 5
Main points for action
1. The Directorate Team should provide clearer strategic direction, improve the policy framework and increase their involvement in school improvement activities.
The Director and Heads of Service had made a determined effort to provide clearer strategic direction to Educational Services. The appointment of a new Head of Educational Development Services had added to the leadership capacity of the Service. All had worked tirelessly to address the main points for action identified in the February 2004 report by HMIE and each had made a significant contribution to the progress to date.
Following the inspection, Educational Services established a number of working groups to address the key recommendations. Each group, led by a Head of Service, comprised a wide range of stakeholders including elected members, teaching and support staff, trade union representatives, parents and officers. This approach had encouraged a shared ownership and collective commitment to and responsibility for improving the service and outcomes for pupils. The Chief Executive’s commitment was evident in his participation in two key groups:
A good start had been made to improving the coherence of the policy framework. Mechanisms had been put in place to ensure the timely review of existing policies. Considerable progress had been made in strengthening established policies and implementing new policies on quality improvement, and consultation and communication. A major revision of the policy on learning and teaching was underway. However, there remained gaps in advice to establishments on aspects of the curriculum.
The Director and Head of Educational Support Services had worked hard to promote and establish shared expectations of integrated working with other agencies. The production of a new inclusion file with a focus on integrated working provided helpful practical guidance and sources of support for schools. Views on the effectiveness of the Local Community Network (LCN) structure still varied. However, there was no doubt about the commitment to integrated working at a local level and a recognition of the benefits it could generate for individual young people, groups and communities. Some examples of good integrated working achieved through LCN involvement were in evidence. These included:
High quality materials had been produced to support schools in implementing the Moray Race Equality Policy. Educational Services should share current good work with elected members to show how their establishments were responding positively to the increasingly diverse multi-cultural nature of communities in Moray.
The Director had consistently delivered a strong message on the need to raise attainment. He and the Head of Educational Development Services were directly involved in discussing with schools attainment issues and establishing the next steps required to bring about improvement. Both had visited every secondary school to address performance issues and a further round of visits was planned following the preliminary examinations for the Scottish Qualification examinations to ensure that all possible steps were taken to help young people achieve success in forthcoming examinations. Measures to bring about improvement were at the forefront of the Senior Management Team’s (SMT) agenda.
By encouraging wide ranging involvement and dialogue, in which everyone’s views were valued, the SMT had been successful in changing the culture of the Service to one which challenged low expectations and focused on improving outcomes for young people. The Directorate team recognised that they still had some way to go to achieve the aims of the Service but significant progress had been made.
2. More focused steps should be taken to raise attainment, particularly in primary schools, and at S1/S2 and S5/S6 in secondary schools.
Educational Services had implemented a number of worthwhile initiatives which had had a positive impact on attainment and had the potential to raise it further.
Primary schools, with support from Quality Improvement Officers (QIOs), were making effective use of baseline data to identify possible underachievement among pupils. Thereafter, staff intervened at pupil, stage or school level to take prompt action to address difficulties. The role of support for learning staff in supporting underachieving pupils was now becoming accepted practice in most primary schools. The support for learning (SfL) coordinator provided colleagues with strong leadership, supporting them in the introduction of alternative approaches to better meet the needs of underachieving pupils and those experiencing learning difficulties. Following analysis undertaken by QIOs, the highly regarded learning and teaching officer (LTO) literacy/numeracy now provided targeted support for specific schools. Many staff commented favourably on the quality and impact of this officer. Commendably, she was beginning to extend her work into the secondary sector.
Support from the LTO secondary had helped provide greater structure and direction to meetings of groups of leaders of subjects in secondary schools. These groups were now more focused on attainment issues. Increasingly, they provided a forum for sharing good practice and influenced the quality of in-service training. Subject groups were beginning to capitalise on the strengths of staff in departments in schools and empower principal teachers to promote and share good practice. They had considerable potential to bring about significant improvements for pupils.
The programme to support the continuing professional development (CPD) of teaching staff, which had been weak, had undergone radical change and now had many strengths. The range of provision included very well attended conferences and seminars, in-school training, twilight and weekend courses. These events shared best practice, made good use of internal knowledge and drew on external expertise, as appropriate. Many staff highlighted the potential of CPD with its focus on effective learning and teaching to impact on attainment in the longer term. While provision for senior managers and teachers had improved, the authority recognised that arrangements for the induction of staff and training for support staff were still insufficiently developed.
All this work had had positive outcomes for pupils. In primary schools, the declining attainment trend had been reversed. The percentage of pupils achieving appropriate levels in reading, writing and mathematics had shown considerable improvement and, in 2004, was above the national and comparator authority averages. In all three subjects the rate of change, from a low baseline, was above the national average rate.
In secondary schools, attainment at S2 in reading, writing and mathematics showed signs of improvement and in all three subjects the gap with national standards had narrowed. In reading and writing, the percentage attaining appropriate levels was above the national average but below the comparator authority figure. In mathematics, the percentage was still below both averages. Despite the efforts of officers and schools, attainment at S5/S6 was generally static, and required more time for their approaches to have an impact.
Educational Services and schools faced a number of challenges to progress this main point for action. The service had correctly identified the need to:
3. Arrangements for quality assurance should be improved to ensure better targeted support and challenge to schools and departments.
Following a review of arrangements, a new quality improvement policy had been adopted. In a short period of time, significant progress had been made towards implementing a more focused approach to quality assurance which ensured targeted support and challenge to schools and departments.
The quality assurance framework was supported by a reorganisation of remits and increased numbers of staff designated as QIOs. These officers now had a clear, purposeful role in supporting and challenging schools. Officers, who were well briefed by the Research and Information Officer on individual pupil, department and school performance, visited schools regularly. Officers engaged in robust discussion on attainment levels at all stages. They demonstrated confidence in the use of data to predict school performance and inform target setting initiatives. Other activities such as development planning, budget monitoring, and standards and quality reporting were being embedded into the process. At the end of school visits action to be taken by the establishment or the authority to address any issues identified were clearly specified. Headteachers recognised that the change in approach had resulted in increased accountability and challenge. Commendably, the Director and the Head of Educational Development Service had increased the profile of the Directorate team by visiting all secondary schools with QIOs to discuss results in external examinations. Schools were now in no doubt about the expectations of them.
Educational Services had drawn on experience in other local authorities to introduce a quality audit programme which included observation of classroom practice. Three pilot audits, undertaken by members of the SMT, QIOs and peer evaluators from other schools, had taken place. The initial results appeared useful in validating schools’ self-evaluation and identifying areas for further development. Overall, a positive climate has been established for this rigorous quality assurance activity.
The authority had developed a good knowledge of schools through visits, the effective use of statistics from screening programmes and external evaluations. Quality audits had the potential to increase this knowledge in the future. Awareness of the strengths and weaknesses of schools had enabled the authority to develop a proportionate approach to intervention in order to address underachievement and support staff while improving performance. This approach had been well received in the primary sector. The Head of Educational Development had made a start to targeting the involvement of officers in secondary schools or departments in most need of additional support and challenge. This approach had been complemented by positive efforts to identify and widely disseminate best practice.
Regular meetings with the Head of Educational Development and opportunities for pertinent training had enhanced the sense of teamwork and direction among this capable group of QIOs. Morale was much improved. Overall, the Directorate team was better able to provide targeted support and challenge to schools and departments and was working hard to develop consistency of approach as the model of quality audits was rolled out across establishments.
4. Audit arrangements should be improved and clearly quantifiable improvement objectives identified in service planning.
The approach to service planning had been reviewed and revised principally by one of the working groups consisting of elected members, officers and headteachers. An interim service plan was developed for 2004-2005 which was structured around the aims of the service and reflected national and local priorities. Useful steps had been taken to produce a strategic plan for 2005-2008 by March 2005.
There was evidence of wide consultation with stakeholders prior to drawing up the plan for 2005-2008. In addition to meetings with focus groups, an extensive stakeholder survey provided valuable information to inform the planning process. Overall, the revised cycle for improvement planning ensured all stakeholders had an early opportunity to influence priorities, comment on the quality of the service and consequently evaluate progress. The stakeholder involvement resulted in a commitment to ensure that plans are disseminated widely and in a form which is easily accessible to all groups.
There were links in the Service Improvement Plan to the commitments in the corporate plan and the points for action in the original HMIE report on the authority had been taken seriously. The Corporate plan contained measurable targets for Educational Services. There was scope to ensure that the National Priorities were more fundamental to the process and plans were in place to address this. Also, the Council had not yet integrated the educational improvement plan with the children’s services plan. The Director had a clear understanding of the developments that needed to be put in place to support the implementation of the 2005-2008 plan for education. Arrangements were in place to develop action plans for both his senior management colleagues and other officers. The authority intended to cost action plans and indicate how they contribute to implementing the authority’s priorities and meeting any statements of intent.
There had been some progress in establishing clear quantifiable improvement objectives and measurable targets and the intention was to develop these further in the next planning cycle. The SMT was now in a better position to monitor the impact associated with each priority. The recent attention given to the use of attainment information within the authority and the emergence of a performance management framework had growing potential to identify clear outcomes for learners and other stakeholders. The indicators of impact in the plan were carefully considered. The Service Improvement Plan as envisaged will be well placed to be communicated effectively to schools, parents and pupils and to inform the planning process of the authority’s schools.
5. The management of resources should target areas of need and improvement more effectively.
Some progress had been made towards meeting this main point for action in line with agreed timescales but much remained to be done. A working group had reviewed the scheme for Devolved School Management (DSM) which had been submitted for consideration in line with the Council’s revised policy in this area. Members of the working group benchmarked their scheme against those from other authorities and recommended, in light of their findings, that the scheme required minor modification only. As part of the process, however, elected members should consider whether to continue with the practice of allocating the staffing budget on the basis of non-promoted posts being calculated at maximum basic scale. This current policy creates inequalities of funding across schools in relation to this element of the staffing budget and does not target these funds effectively.
The SMT had recognised CPD as an area which required improvement. The transfer of funds to a central budget had enabled Educational Services to increase its capacity to organise authority-wide events. Significant improvements had been made to the programme and a range of provision made which had targeted previously identified areas of need. Evaluations from participants at a number of events were very positive and staff had responded very well to the opportunities provided.
Elected members had also taken the decision to increase the number of QIOs. These officers were already having a positive effect on some schools’ performance. During their routine visits to schools officers will be involved in considering how well schools’ budgets are used. This will include examination of the use made of the over and underspend facility within the DSM scheme. The Head of the Educational Resource Service, with the assistance of staff from the finance department, will also identify schools where possible overspend of their budget in excess of allowable levels had been noted. Thereafter, appropriate action will be taken to address the situation.
The Council had made a good beginning to considering issues related to growing over-capacity in its schools. An estate management plan had been prepared with the intention of ensuring that schools were fit for educational provision in the 21st century. A ‘Planning for the Future’ document provided a detailed analysis of actual pupil numbers and forecast rolls up to 2011. Information had also been provided on the current state of accommodation and various cost implications to bring about improvement. An informative leaflet had been prepared to share this information with all Moray constituents. This will provide a helpful starting point for discussion with elected members and senior officers at a range of public consultation meetings. Following this initial series of meetings, the views expressed through the consultation process will be considered by the Council and further consultation will take place on the resulting proposals. In taking forward this necessary initiative elected members had a very good opportunity to take decisions which could transform the school estate and improve the working environment of pupils and staff.
While a number of positive steps had been taken to manage resources more effectively the Council had not developed a sufficiently well-considered rationale for the levels and distribution of funding for Educational Services. The Council had yet to measure itself against other authorities in terms of funding provision. Such steps would allow the Council to specify a better foundation for the allocation of funds and ensure that resources were committed appropriately to areas of need.
No plans were in place for major Best Value reviews in the near future. The lack of Best Value approaches has had a negative impact on Educational Services’ ability to improve the efficiency and effectiveness of resource management to ensure that key service priorities are met and resources targeted to where they would have greatest impact. The Council’s corporate but limited approach to Best Value had not provided the necessary impetus and challenge to Educational Services to evaluate and improve the deployment and management of resources.
6. Further steps should be taken to develop consultation with a wider range of stakeholders.
Educational Services had taken a number of positive and significant steps to improve the system of consultation. Overall, this had resulted in better procedures which made clear the responsibilities of a range of stakeholders. A working group was established which was led by a member of the SMT and comprised representatives of headteachers, teaching staff, support staff, parents, elected members and trade unions. This representation in itself was a good example of how the department intended to shape policies in the future. The group revised the previous policy on consultation and communication and consulted a wide range of stakeholders in September 2004. Responses were received from headteachers, teachers, other school based staff, School Boards, parent/teacher associations (PTAs), centrally based staff, partner organisations, and both teacher and support staff trades unions. The revised policy, including a summary of responses, was presented to the Educational Services Committee in December 2004. The policy specifically clarified the roles and responsibilities of elected members, the Directorate team, heads of establishment and senior managers, all staff, and children and young people. Almost 90% of those who responded were in complete or broad agreement with the proposed policy which was subsequently agreed by the Council.
While the working group examining consultation and communication had made clear progress, eight other working groups and a Strategy group with similar representation were also meeting to determine actions which would improve provision across the service. This widespread representation ensured that considerable numbers of stakeholders were involved and had an input into the improvement process.
To avoid overload on the system an annual programme of consultation has been agreed which requires consultation on service planning, policy development, the budget and stakeholder surveys. Consultations have taken place on the Service Improvement Plan and proposals made were considered by the SMT. Several focus groups were consulted and evaluations showed that, of those who were involved, almost all found the process valuable. At the same time a number of critical points were made which were examined by Educational Services in order to improve the process further. The SMT now needed to ensure that timeous feedback is provided to those consulted. The Council also used an external agency to develop a range of surveys which formed part of the audit section of the improvement planning cycle. In implementing such a programme of consultation greater opportunities exist for meaningful involvement of members of the wider community in improving provision.
As part of the new procedures, guidelines had been issued to all headteachers on arrangements for consultation and communication with staff within schools. While expectations were clear, headteachers must ensure that they are implemented to guarantee that all staff are involved. Particular attention should be given to enable members of the support staff to be included fully in any consultations. All schools had established pupils’ councils or similar bodies and a Dialogue Youth Coordinator had developed a number of activities in each secondary school. Guidance had also been developed for consulting primary school councils specifically in relation to the Statement of Purpose, Aims and Values. The Council now required to build on this good beginning and ensure that its new policy is implemented fully in order to involve children and young people more in the consultation process.
The Educational Services Committee received regular reports on school performance and results of consultations. Information was also provided for the Audit and Performance Review Committee. This Committee, however, should play a greater role in overall performance management, including overseeing the development of new performance measures in areas such as integrated working and service planning.
Consultation had taken place with School Boards as part of the new procedures. In addition, regular briefings had been provided on various subjects including attainment and devolved school management. Members of the SMT and other key officials had met with Boards to discuss a range of issues and this has been valued by Board representatives. These had also been useful in celebrating success and sharing good practice within the Council’s area. The opportunity should now be taken to involve Board members in helping set the agenda for such meetings. As part of their procedures, in visiting schools quality improvement officers examined minutes of Board meetings and identified any areas of concern. Steps had been taken to widen the involvement of the community in planning for the future by establishing focus groups, citizens’ panels and neighbourhood forums.
Conclusion
Over the last year the Senior Management Team had provided committed leadership with a strong focus on raising attainment. In responding to the HMIE report of February 2004, effective use had been made of working groups to address the main points of action. This had enhanced consultation with a wide range of stakeholders and fostered a shared commitment to continuous improvement. Overall, in the year since the original inspection, the authority had established a range of initiatives which were beginning to have a positive impact on educational provision.
A number of positive steps had been taken to support and challenge schools. These included better analysis and use of data, targeted intervention by officers and a much improved programme for the professional development for staff. Initial results showed positive signs of impact on pupil performance in the primary sector and the early years of secondary. In the coming year the challenge for the authority and schools will be to raise attainment in S5/S6.
In planning for the period 2005-2008 good account had been taken of the views of a wider range of stakeholders, and arrangements were in place to cost plans and identify clear measures of success. The Council now needed to ensure that the implementation of the Service Improvement Plan was closely monitored to ensure that it delivered positive outcomes for all learners. It also needed to integrate the educational improvement plan with the children’s services plan.
The production of an estate management plan provided elected members and the public with a useful basis for discussion of future educational provision. However, there remained considerable scope for elected members to further improve the targeted use of resources.
Around one year from the publication of this report, HM Inspectors will re-visit the authority to assess further progress in meeting the main points for action.