Transformation of Primary Education Provision in Shirecliffe
Transformation of Primary Education Provision in Shirecliffe
1. Purpose
1.1 The purpose of this paper is to:
- Describe a proposal to reorganise and transform primary school provision in the Shirecliffe area;
- seek approval to carry out a consultation exercise with schools and parents in Shirecliffe, and
- to set these proposals within the context of the overall vision for delivering Children’s Services in an integrated way which is responsive to the needs of local communities.
2. Background and Strategic Context
Education and Area Regeneration
2.1 Shirecliffe is an inter-war housing estate in the north of Sheffield. Characterised by high levels of deprivation, Shirecliffe is ranked in the top 2% most deprived wards nationally. The 2001 Census revealed that 41.4% of residents were economically inactive compared with 18.5% nationally and 43.4% have no qualifications compared with 29% nationally.
The underlying issues behind the conception of this project have been educational and in particular, the appropriateness of the pattern of primary school provision. However, if regeneration is about enhancing the life chances of local people, education is a key factor. It has been recognised by community and statutory organisations that the education provision around Shirecliffe is an integral part of regenerating the area.
The Vision for Children’s Services
2.2 The vision for Children’s Services across the City is to provide integrated services for children, young people and their families across the City. In this way they will be able to receive timely and responsive services, close to where they live. In this way we can deliver the five outcomes for all children and young people of:
Education and Area Regeneration
2.1 Shirecliffe is an inter-war housing estate in the north of Sheffield. Characterised by high levels of deprivation, Shirecliffe is ranked in the top 2% most deprived wards nationally. The 2001 Census revealed that 41.4% of residents were economically inactive compared with 18.5% nationally and 43.4% have no qualifications compared with 29% nationally.
The underlying issues behind the conception of this project have been educational and in particular, the appropriateness of the pattern of primary school provision. However, if regeneration is about enhancing the life chances of local people, education is a key factor. It has been recognised by community and statutory organisations that the education provision around Shirecliffe is an integral part of regenerating the area.
The Vision for Children’s Services
2.2 The vision for Children’s Services across the City is to provide integrated services for children, young people and their families across the City. In this way they will be able to receive timely and responsive services, close to where they live. In this way we can deliver the five outcomes for all children and young people of:
· Being healthy
· Staying safe
· Enjoying and achieving
· Making a positive contribution
· Economic well-being
2.3 At the heart of this vision are the proposals for transformation of primary education in Shirecliffe to:
· encourage individual responsibility for learning
· Pursue high standards
· Support innovation and diversity of provision
· Create excellent partnerships
· Focus on the long-term regeneration of our communities and of the city
2.4 An essential element of building a successful neighbourhood is to retain the confidence of parents in their local schools. However, detailed analysis of the latest private sector housing developments within the area show that only 33% of the primary school children living in the new developments at Shirecliffe attend a Shirecliffe school and only 21% of secondary school children attend the local secondary school Parkwood. This is extremely significant in relation to mixed tenure neighbourhoods, which are known to “help to reverse the decline on estates caused by excessive social polarisation.” (Joseph Rowntree Foundation, April 2003) However, It could be argued that where the children from lower income families attend the local school and the more affluent families opt to have their children educated outside the area, that there is a potential for increased social polarisation and exclusion.
Successful Neighbourhoods: Closing the Gap
2.5 The Council’s headline policy for tackling social exclusion is called “Closing the Gap” – an approach that aims to focus resources on the poorest parts of the city in order to help close the gap between these areas and the most affluent parts of the city.
2.6 Education are working closely with a number of key partners such as Southey and Owlerton Area Regeneration (SOAR) and Neighbourhoods to ensure that the proposed project forms an integral part of the regeneration of the area and meets the objectives of the Successful Neighbourhoods programme.
Southey Owlerton Neighbourhood Strategies – Regeneration Framework
2.7 Shirecliffe lies within the Southey Owlerton area of north Sheffield, which comprises of around 44,000 people in a number of neighbourhoods focussed, primarily, around areas of Council housing. It benefits from £20.53m of SRB5 funding, awarded in 1999 and currently 6 years into a 7-year programme, in addition to £4m of Objective One – Priority Four funding.
2.8 To aid the delivery of the programme, the Southey and Owlerton Area Regeneration Board (SOAR) prepared its own Neighbourhood Strategies in partnership with Owlerton and Southey Area Panels, local people and key officers working in the neighbourhood. This work, phases 1 and 2 of which are now complete, was in parallel to a more detailed demand/supply analysis and consultation at neighbourhood level by the Council’s Housing Department. The basic elements of the Neighbourhood Strategies are:
2.5 The Council’s headline policy for tackling social exclusion is called “Closing the Gap” – an approach that aims to focus resources on the poorest parts of the city in order to help close the gap between these areas and the most affluent parts of the city.
2.6 Education are working closely with a number of key partners such as Southey and Owlerton Area Regeneration (SOAR) and Neighbourhoods to ensure that the proposed project forms an integral part of the regeneration of the area and meets the objectives of the Successful Neighbourhoods programme.
Southey Owlerton Neighbourhood Strategies – Regeneration Framework
2.7 Shirecliffe lies within the Southey Owlerton area of north Sheffield, which comprises of around 44,000 people in a number of neighbourhoods focussed, primarily, around areas of Council housing. It benefits from £20.53m of SRB5 funding, awarded in 1999 and currently 6 years into a 7-year programme, in addition to £4m of Objective One – Priority Four funding.
2.8 To aid the delivery of the programme, the Southey and Owlerton Area Regeneration Board (SOAR) prepared its own Neighbourhood Strategies in partnership with Owlerton and Southey Area Panels, local people and key officers working in the neighbourhood. This work, phases 1 and 2 of which are now complete, was in parallel to a more detailed demand/supply analysis and consultation at neighbourhood level by the Council’s Housing Department. The basic elements of the Neighbourhood Strategies are:
- New housing developments on a range of sites, the majority being on existing clearance sites;
- A network of eight community ‘hubs’ throughout the area, focussed on existing shopping or community facilities, with new developments to provide local facilities and services for local people.
- A comprehensive programme of environmental improvements focussed on improving green spaces, enhancing movement routes, raising the profile and image of the area, and ensuring a sense of place through new development.
Housing Renewal
2.9 In Shirecliffe alone, £4m has already been spent. There were 194 properties included in the demolition programme from the Busk Meadow catchment area of which only 2 households remain to be rehoused (at January 05). Investment into social housing over the next two years is expected to be in the region of £14 million. This is broken down into the following:
· Investment into Council stock£9.5m (Shirecliffe) over the next 3 years (subject to local board approval)
2.10 Housing Association investment
2.10 Housing Association investment
£3.1m Busk Meadow Extra Care Housing Scheme
£1m approx. Bungalows
£186,000 remodelling existing stock
2.11 Housing Market Renewal (Transform South Yorkshire)
£372,000 remodelling existing stock
£929,078 approx enhanced Neighbourhood and Housing Management
Redevelopment Sites
2.12 The Neighbourhood Strategies identified a number of development sites for new housing arising from clearance sites and other opportunities, alongside the housing renewal initiatives. In September 2003 consultations carried out by the Southey and Owlerton Area Regeneration team (SOAR) neighbourhood workers and the Housing Service were drawn together, the result of which, was the appointment of Hall and Partners as Financial/ Technical Housing Consultants to put forward financial proposals to determine the viability of the redevelopment proposal. In the same period Roger Evans Associates Consultants were appointed to carry out the masterplanning for the area. Master plans were completed and approved by Council’s Cabinet in January 2005. The aim is for the recruitment of a Developer panel to take place in Spring 2005 with proposals developed over the summer of 2005.
The Community Hubs
2.13 There are eight hub projects in Southey Owlerton, and whilst they are grouped under the same banner, they are actually different in terms of their status, themes and costs. The Hubs are intended to act as a focus to assist in stimulating social, environmental and economic regeneration. The Hubs will provide a physical focal point and the first point of access for local people to a range of services delivered from the centre. SOAR has allocated £2.2 million to four Hub projects across the SOAR area. As part of the SRB allocation, SOAR has ringfenced £1million for Shirecliffe to spend on its neighbourhood Hub.
2.14 The Shirecliffe Community Project (SCP), who manage the hub development process, currently supports around 300 members of the Shirecliffe community from the ages of 6 months to 91 years through a range of activities from parent and toddler groups to social clubs aimed at the 50+ community. The Hub will build on the current provision which provides meeting space for community groups and local adult education providers.
2.15 The SCP is working in partnership with Southey and Shirecliffe Sure Start, National Children Homes (NCH) and Early Years Education and Childcare to develop a co-located community Hub and Children’s Centre.
Early Years Education and Children’s Centres
2.16 The Sheffield Early Years Education Strategy contains a number of elements, including a review of early years and proposals to identify 13 Children’s Centres in deprived areas in accordance with requirements set by the Government as part of their strategy for developing Children’s Centres, which brought together related activities such as local Sure Start, Neighbourhood Nurseries Initiative and Early Excellence. The Children's Centre concept is based around integrated services which are responsive to community need. The services that need to be provided are:
· Extended day and year service
· Breakfast Club
· Homework Club
· Holiday playcare for older children
· Family support and Parental Outreach
Shirecliffe has been identified as a location for one of the 13 Children’s Centres.
2.17 The Children’s Centre Project will see a further £1.6 million further investment into the Shirecliffe community. The capital finance has been secured through a combination of Surestart and Children Centre funding.
Primary Provision
2.18 Three primary schools serve the Shirecliffe area: Busk Meadow Nursery Infant School, Watermead Nursery Infant School and Shirecliffe Junior School. Although Busk Meadow has its own catchment area, in practice both nursery infant schools feed to the junior school.
Primary Provision
2.18 Three primary schools serve the Shirecliffe area: Busk Meadow Nursery Infant School, Watermead Nursery Infant School and Shirecliffe Junior School. Although Busk Meadow has its own catchment area, in practice both nursery infant schools feed to the junior school.
· Busk Meadow Nursery Infant School is located in a popular area of Shirecliffe, close to the main retail centre and across the road from Busk Meadow Park, a public park that is benefiting from around £900,000 of regeneration funding.
· Watermead Nursery Infant School is located on the opposite side of Herries Road, which is the main artery through the area.
· Shirecliffe Junior School is located on the site adjoined to Parkwood Secondary School on Penrith Road.
2.19 Individually, these schools have a number of significant issues around surplus places, attainment and poor condition and suitability of school buildings. As can be seen, the pattern of primary school provision in this relatively small geographic area is fragmented. This has a number of major impacts including the effect of pupils transferring between schools during their primary education and the spread of resources across several small institutions. These issues are explored in detail in Section 3 below.
2.20 In addition, the poor quality Shirecliffe Junior School building is co-located on the Parkwood High School site, a particularly constrained site for a secondary school of its size.
2.20 In addition, the poor quality Shirecliffe Junior School building is co-located on the Parkwood High School site, a particularly constrained site for a secondary school of its size.
See Appendix 1 for Location Map of schools
Secondary Provision
Secondary Provision
2.21 Parkwood High School is the local secondary school for this catchment and has had nearly £6 million already invested in the buildings over the recent past. The development of more formal links with the primary and post-16 education provision will be explored further, as a second phase of transforming education provision within the Shirecliffe area of Sheffield.
16-19 Provision
2.22 Longley Park Sixth Form College, championed by the City Council and funded by the Learning and Skills Council (LSC), represents a £13.5 million investment in state of the art learning facilities with a 1,000 learner capacity. It received its first intake of students in September 2004 and demonstrated immediately the contribution to regeneration and inclusion that high quality, reconfigured learning provision can make in a neighbourhood. The sixth form college exceeded its first year’s 450 recruitment target by 200 students and its intake represented closely the profile of its community with 40% of students drawn from Black and minority ethnic groups and 60% of students being eligible for the Education Maintenance Allowance. Moreover, in a part of the city where post-16 participation had been persistently low, the new institution had a significant impact on the number of young people from its family of feeder schools who were encouraged to stay on into post-compulsory, full-time education. This averaged a 14% increase across local secondary schools and 20% from Parkwood High and was dubbed the ‘Longley Park Effect’.
Extended Schools
2.23 Increased parental involvement, both in supporting the education of their children, and possibly in their own learning is a key strand in the government’s vision of community school education and would be a high priority for the schools in Shirecliffe supported directly through the ongoing work of the Education Action Zone of which all three schools are part. The potential to extend the range of community activities and services offered through the schools is currently limited by resource capacity and by existing accommodation.
16-19 Provision
2.22 Longley Park Sixth Form College, championed by the City Council and funded by the Learning and Skills Council (LSC), represents a £13.5 million investment in state of the art learning facilities with a 1,000 learner capacity. It received its first intake of students in September 2004 and demonstrated immediately the contribution to regeneration and inclusion that high quality, reconfigured learning provision can make in a neighbourhood. The sixth form college exceeded its first year’s 450 recruitment target by 200 students and its intake represented closely the profile of its community with 40% of students drawn from Black and minority ethnic groups and 60% of students being eligible for the Education Maintenance Allowance. Moreover, in a part of the city where post-16 participation had been persistently low, the new institution had a significant impact on the number of young people from its family of feeder schools who were encouraged to stay on into post-compulsory, full-time education. This averaged a 14% increase across local secondary schools and 20% from Parkwood High and was dubbed the ‘Longley Park Effect’.
Extended Schools
2.23 Increased parental involvement, both in supporting the education of their children, and possibly in their own learning is a key strand in the government’s vision of community school education and would be a high priority for the schools in Shirecliffe supported directly through the ongoing work of the Education Action Zone of which all three schools are part. The potential to extend the range of community activities and services offered through the schools is currently limited by resource capacity and by existing accommodation.
3. Key Issues For Primary School Provision
Pupils and Places
3.1 It is recognised that some surplus places are inevitable in some schools to allow for variations in supply and demand for school places. The Audit Commission recommends an overall maximum of 10% of surplus places at any time and the LEA is obliged to inform the DfES of schools which have 25% or more surplus places and the action it is taking to reduce this. The range of surplus places in the Shirecliffe schools is summarised below:
Pupils and Places
3.1 It is recognised that some surplus places are inevitable in some schools to allow for variations in supply and demand for school places. The Audit Commission recommends an overall maximum of 10% of surplus places at any time and the LEA is obliged to inform the DfES of schools which have 25% or more surplus places and the action it is taking to reduce this. The range of surplus places in the Shirecliffe schools is summarised below:
Surplus Places | 11% - 24% | 25% or more |
Schools | Busk Meadow NI (22.7%) Shirecliffe J (23.3%) | Watermead NI (38.4%) |
As can be seen from the data above, all three of the schools are very close to or exceed the government’s 25% threshold.
3.2 Excessive surplus places inevitably mean wasted resources and, therefore, it is highly desirable that the figure is kept as far below 10%. In the three project schools nearly a third of places are empty, with 614 places and 447 pupils (January 2005), which is a surplus capacity of 167 places (27%).
Quality and Attainment
3.3 Whilst recognising the clear improvement in standards achieved by staff in these schools, there is a need to remove underlying impediments to further progress.
3.4 Shirecliffe J school moved from the OFSTED Special Category “Serious Weaknesses” to the category of “Special Measures” 3 years ago. It is expected by HMI to have improved the situation in July 05 with a firm strategy for improvement in place by October 05.
3.5 The authority has a policy to amalgamate separate phase Infant and Junior schools, whenever practicable to do so. It has been recognised that the pupils in these schools experience difficulties caused by the transition from two separate Nursery Infant schools to a separate phase Junior school.
3.6 The authority’s Primary School Size Policy outlines the difficulties schools can experience when their numbers contract below a certain level. In order to reduce costs, schools have to make difficult decisions about reducing resources. These reductions may impact on the capacity of the school to maintain a high standard of education (e.g. loss of non-contact time, fewer support staff, mixed-age classes, coverage of subject areas) and may ultimately lead to a very stretched organisation that is unable to cope with challenge or to improve.
3.7 The number of pupils in Reception at Busk Meadow NI is 32 (January 05). Equally the number of pupils in Reception at Watermead NI is 32 (January 05). The School Effectiveness Service (SES) is working hard to support the schools through this difficult period. However, it is also acknowledged that the situation is likely to become more urgent as rolls continue to fall.
3.8 The challenging circumstances faced by the schools are highlighted by the fact that one third of children attending these schools have been identified as having Special Educational Needs (SEN). The details are shown in the table below along with the schools’ attainment compared to the city and the national average:
Quality and Attainment
3.3 Whilst recognising the clear improvement in standards achieved by staff in these schools, there is a need to remove underlying impediments to further progress.
3.4 Shirecliffe J school moved from the OFSTED Special Category “Serious Weaknesses” to the category of “Special Measures” 3 years ago. It is expected by HMI to have improved the situation in July 05 with a firm strategy for improvement in place by October 05.
3.5 The authority has a policy to amalgamate separate phase Infant and Junior schools, whenever practicable to do so. It has been recognised that the pupils in these schools experience difficulties caused by the transition from two separate Nursery Infant schools to a separate phase Junior school.
3.6 The authority’s Primary School Size Policy outlines the difficulties schools can experience when their numbers contract below a certain level. In order to reduce costs, schools have to make difficult decisions about reducing resources. These reductions may impact on the capacity of the school to maintain a high standard of education (e.g. loss of non-contact time, fewer support staff, mixed-age classes, coverage of subject areas) and may ultimately lead to a very stretched organisation that is unable to cope with challenge or to improve.
3.7 The number of pupils in Reception at Busk Meadow NI is 32 (January 05). Equally the number of pupils in Reception at Watermead NI is 32 (January 05). The School Effectiveness Service (SES) is working hard to support the schools through this difficult period. However, it is also acknowledged that the situation is likely to become more urgent as rolls continue to fall.
3.8 The challenging circumstances faced by the schools are highlighted by the fact that one third of children attending these schools have been identified as having Special Educational Needs (SEN). The details are shown in the table below along with the schools’ attainment compared to the city and the national average:
Table 1:School Statistics for 2004/05
% Pupils with Special Educational Needs (SEN) With and without statements | % Pupils eligible for Free School Meals | National Test Results for 11 year olds % achieving Level 4 or above | |||
Schools | English | Maths | Science | ||
Shirecliffe J | 41 | 33 | 47 | 46 | 67 |
Sheffield Average | 72 | 68 | 82 | ||
National Average | 78 | 74 | 86 | ||
Table 2: School Statistics for 2004/05 (Schools with infant aged children only)
% Pupils with Special Educational Needs (SEN) With and without statements | % Of pupils eligible for Free School Meals | National Test Results for 7 year olds % achieving Level 2 or above | |||
School | Reading | Writing | Maths | ||
Busk Meadow NI | 22 | 32 | 77 | 77 | 83 |
Watermead NI | 32 | 34 | 64 | 79 | 93 |
Sheffield Average | 81 | 79 | 88 | ||
National Average | 85 | 83 | 90 | ||
Recruitment and Retention
3.9 There are issues relating to teacher recruitment across the country, including headteacher and deputy headteacher posts. In Sheffield strategies have been developed and implemented by Education Human Resources to address these issues.
3.10 It is important that proper consideration continues to be given to the recruitment and retention issues specific to this LEA in order to maintain progress in raising standards of attainment. It is acknowledged that schools in challenging areas do have specific recruitment and retention issues. These are being addressed as part of Education Human Resources’ strategy.
3.11 The costs associated with recruiting nationally are very expensive for schools where resources are already stretched. This issue is being addressed to ensure the recruitment and retention of the best staff for these schools.
Condition and Suitability of Buildings
3.12 The condition and suitability of all three existing school buildings is an issue. Shirecliffe Junior School, in particular, requires major investment just to bring the building up to a minimal standard. Ofsted had repeatedly highlighted the poor accommodation at Shirecliffe, as an impediment on the school’s ability to provide a good quality of education. Busk Meadow NI and Watermead NI are in reasonable state of repair, however the internal layout of the building does not support an accessible and creative learning environment. The following table provides a guideline for how much investment will be required in total over the next three years just to maintain the buildings to a decent standard. The figures do not include the capital investment required to remodel the interiors to improve suitability.
Condition and Suitability of Buildings
3.12 The condition and suitability of all three existing school buildings is an issue. Shirecliffe Junior School, in particular, requires major investment just to bring the building up to a minimal standard. Ofsted had repeatedly highlighted the poor accommodation at Shirecliffe, as an impediment on the school’s ability to provide a good quality of education. Busk Meadow NI and Watermead NI are in reasonable state of repair, however the internal layout of the building does not support an accessible and creative learning environment. The following table provides a guideline for how much investment will be required in total over the next three years just to maintain the buildings to a decent standard. The figures do not include the capital investment required to remodel the interiors to improve suitability.
School | Total 3 yr investment required |
Busk Meadow NI | £220,350 |
Shirecliffe J | £635,000 |
Watermead NI | £302,430 |
TOTAL | £1,157,780 |
All three of the schools have significant condition and/or suitability issues, which impact on the ability of the schools to deliver and maintain high quality educational provision in a number of ways:
Condition
Condition
· Dilapidated buildings and a poor environment can lead to a loss of pupils as parents choose more attractive schools
· Lack of maintenance and poor site security can pose Health and Safety risks
· Headteachers have to spend significant time dealing with maintenance of premises issues rather than their core functions relating to quality of teaching and learning
· Loss of teaching time
· Spending directed away from teaching and learning resources when lack of maintenance leads to expensive repair work
Suitability
· There is a loss of teaching time and greater pupil management difficulties when moving children around buildings with long and complicated routes, stairways and congested corridors
· Playgrounds with hidden corners make it more difficult to monitor behaviour and bullying
· There are restrictions on the delivery of the PE curriculum in some schools by inadequate halls and lack of secure, well-maintained grassed areas
· Open plan bases and classrooms with connecting archways allow noise distraction between different groups/classes
4. Developing the Proposal
4.1 A review group consisting of representatives of each school, the school’s link advisor, local members and officers met during the early part of 2004 to consider the pattern of school provision in the area and identify options for change.
4.2 The group agreed that action was needed to address the issues outlined in Section 2 and this action should be based on bringing together the three primary schools to form a single ‘through’ primary school. This would be an innovative combination of provision that would be able to transform educational opportunity and support other area initiatives. It was considered highly desirable that a Children’s Centre should be included. Consideration was also given to creating a 3-16 school by linking the primary and the secondary schools as part of an “all-age” provision concept. The group’s recommended outcome was:
· A ‘through’ primary school for ages 3 to 11
4.1 A review group consisting of representatives of each school, the school’s link advisor, local members and officers met during the early part of 2004 to consider the pattern of school provision in the area and identify options for change.
4.2 The group agreed that action was needed to address the issues outlined in Section 2 and this action should be based on bringing together the three primary schools to form a single ‘through’ primary school. This would be an innovative combination of provision that would be able to transform educational opportunity and support other area initiatives. It was considered highly desirable that a Children’s Centre should be included. Consideration was also given to creating a 3-16 school by linking the primary and the secondary schools as part of an “all-age” provision concept. The group’s recommended outcome was:
· A ‘through’ primary school for ages 3 to 11
· A Co-located Children’s Centre.
· A Co-located Shirecliffe Community Hub
· Links to the secondary and post-16 provision to be established as part of a second phase.
Size of the Proposed New School
Size of the Proposed New School
4.3 In order to determine the size of a new school for Shirecliffe, consideration has to be given to the schools in the surrounding area and the potential impact of building a new school.
4.4 The historical data and forecast birth rates indicate that Shirecliffe could sustain a 3FE school, providing there were no further losses to Longley NIJ. However, if the new school was to attract pupils away from Longley NIJ, a school where pupil numbers are already falling, the ‘knock-on effect of building a 3FE school could be to create an unviable school. The impact on Southey NI & Js is forecast to be less detrimental, as the school is a large school at 3FE and could reduce in size to a 2FE and remain viable.
4.5 Taking into account all the information gathered as part of the area analysis, a preferred option emerged as being:
4.4 The historical data and forecast birth rates indicate that Shirecliffe could sustain a 3FE school, providing there were no further losses to Longley NIJ. However, if the new school was to attract pupils away from Longley NIJ, a school where pupil numbers are already falling, the ‘knock-on effect of building a 3FE school could be to create an unviable school. The impact on Southey NI & Js is forecast to be less detrimental, as the school is a large school at 3FE and could reduce in size to a 2FE and remain viable.
4.5 Taking into account all the information gathered as part of the area analysis, a preferred option emerged as being:
· Build the new school at 2FE maximising sustainability as pupil numbers decline, in addition to supporting the future sustainability of Longley NIJ.
· In keeping with the concept of an all-age provision, the development of links to Parkwood High School are to be explored as a second phase in the transformational programme. The all-age concept could be developed in the form of a 3-16 school or through other innovative arrangements to help improve the vital Y6 – Y7 transition. The second phase would also be explored within the context of a ‘full-service’ district, a concept of co-ordinated provision beyond the traditional school-based services. This would include the area-based planning of 14-19 provision in line with the recent white paper and the DfES’s Five Year Strategy that would allow students from the age of 14 from Parkwood High and other secondary schools in north east of the city to choose from a wide menu of specialised learning opportunities that suited their interests and aptitudes and which might involve learning in another school, at Longley Park, with another training provider or on an employers’ premises.
Feasibility
4.6 Work has been undertaken to assess the feasibility of each of the existing school sites ability to accommodate a new 2 FE school. Extensive consideration was given to a number of factors including:
· Size and layout of site
· Accessibility
· Location of community facilities
· Location of proposed surestart facilities
4.7 Sheffield Design and Property Services have carried out this work, in close collaboration with the Community Hub project, Shirecliffe Children’s Centre and the North Sheffield Regeneration Team of the Neighbourhoods Directorate.
4.8 The feasibility work considered a range of options, including refurbishment and expansion of existing schools. This was ruled out early in the process due to the condition and suitability of the buildings, which would mean that such options would prove uneconomical and therefore, not the best use of council resources.
4.9 Next, a process of elimination took place with each of the existing schools sites. The constrained access to the Watermead NI site, was considered not in a suitably prominent position for a Children’s Centre for Shirecliffe and equally too far away from the Shirecliffe Community Hub. Similarly, with the Shirecliffe J site, but with the added issue about how any expansion would take the school onto Parkwood Springs, a public open space and closer to the Shirecliffe Waste Recycling Centre, where the local community already have concerns about the effects the disposal of waste is having on the health of local people.
4.10 As the feasibility work continued, a preferred option emerged. This option is to build a new school for 420 pupils (2FE) on the Busk Meadow site. The school would be co-located with the Shirecliffe Community Hub and Children’s Centre.
4.11 The feasibility study has identified that a 2FE school on the Busk Meadow site, alongside a Community Hub and Children’s Centre development is achievable with an extension of the existing site. The design of the school building would be based on an innovative 2-story building located in the centre of the (enlarged) site. This option would enable the existing Busk Meadow School to remain operational during the building programme.
4.12 The community owned Shirecliffe Hub would be also be developed on the adjoining Community Centre site through a combination of refurbishment and new build around the existing building.
4.13 The Shirecliffe J/ Parkwood High site would continue to accommodate the 12-16 secondary phase but with the junior school building removed, thus providing much needed space to a constrained secondary school site.
4.14 Further discussions would need to take place about the future of the Watermead NI school site.
Further Feasibility
4.15 As highlighted in paragraph 5.10, an extension of the existing Busk Meadow site is necessary to accommodate all the proposed provision. Early draft site plans included land currently occupied by four properties which were not vacant and had not been part of the approved demolition programme. Discussions with Cabinet Members for both Education and Neighbourhoods s, teered the brief for the site layout to extend the existing Busk Meadow School site using housing land, only where demolition had been approved. This will take the proposed new school site beyond Boynton Road.
4.16 Further discussions have taken place with officers from Neighbourhoods, Planning, Property Services and SOAR to raise their awareness of the land requirements for the new school.
4.17 Detailed discussions have also taken place with Neighbourhoods to discuss possible mechanisms to acquire the land required at Busk Meadow.
4.8 The feasibility work considered a range of options, including refurbishment and expansion of existing schools. This was ruled out early in the process due to the condition and suitability of the buildings, which would mean that such options would prove uneconomical and therefore, not the best use of council resources.
4.9 Next, a process of elimination took place with each of the existing schools sites. The constrained access to the Watermead NI site, was considered not in a suitably prominent position for a Children’s Centre for Shirecliffe and equally too far away from the Shirecliffe Community Hub. Similarly, with the Shirecliffe J site, but with the added issue about how any expansion would take the school onto Parkwood Springs, a public open space and closer to the Shirecliffe Waste Recycling Centre, where the local community already have concerns about the effects the disposal of waste is having on the health of local people.
4.10 As the feasibility work continued, a preferred option emerged. This option is to build a new school for 420 pupils (2FE) on the Busk Meadow site. The school would be co-located with the Shirecliffe Community Hub and Children’s Centre.
4.11 The feasibility study has identified that a 2FE school on the Busk Meadow site, alongside a Community Hub and Children’s Centre development is achievable with an extension of the existing site. The design of the school building would be based on an innovative 2-story building located in the centre of the (enlarged) site. This option would enable the existing Busk Meadow School to remain operational during the building programme.
4.12 The community owned Shirecliffe Hub would be also be developed on the adjoining Community Centre site through a combination of refurbishment and new build around the existing building.
4.13 The Shirecliffe J/ Parkwood High site would continue to accommodate the 12-16 secondary phase but with the junior school building removed, thus providing much needed space to a constrained secondary school site.
4.14 Further discussions would need to take place about the future of the Watermead NI school site.
Further Feasibility
4.15 As highlighted in paragraph 5.10, an extension of the existing Busk Meadow site is necessary to accommodate all the proposed provision. Early draft site plans included land currently occupied by four properties which were not vacant and had not been part of the approved demolition programme. Discussions with Cabinet Members for both Education and Neighbourhoods s, teered the brief for the site layout to extend the existing Busk Meadow School site using housing land, only where demolition had been approved. This will take the proposed new school site beyond Boynton Road.
4.16 Further discussions have taken place with officers from Neighbourhoods, Planning, Property Services and SOAR to raise their awareness of the land requirements for the new school.
4.17 Detailed discussions have also taken place with Neighbourhoods to discuss possible mechanisms to acquire the land required at Busk Meadow.
Children’s Centre and Community Hub
4.18 The development of the Shirecliffe Community Hub and Phase I of the Children’s Centre are subject to a range of funding programmes where the deadlines have been such, that it has been necessary for them to go ahead in advance of the school project. The feasibility for the school project has taken account this development within the estimates of space required for the school. Phase II of the Children’s Centre will see extended childcare for 3-5 years incorporated into the new school.
4.19 It is anticipated that contractors working on the Community Hub and Phase I of the Children’s Centre will be on site in July 2005.
5. The Proposal
5.1 With this backdrop of detailed pre-consultation discussions with school representatives and local stakeholders, the Executive Director is confident of a proposal to reorganise primary school provision in the Shirecliffe area that will serve to transform education provision for future generations of pupils. The proposal is as follows:
Create an innovative, lifelong learning campus in Shirecliffe. This would be achieved by taking the following action: Close the three Shirecliffe schools Busk Meadow NI, Watermead NI and Shirecliffe J and amalgamate the whole of the primary phase (3-11) in a newly constructed building for 420 pupils and a 52-place nursery unit. The primary phase, the Children’s Centre and the Community Hub would be co-located on the Busk Meadow site. This would complement the recently refurbished secondary phase, and increase the space available to it on the Parkwood site with the removal of Shirecliffe J. |
The Key Benefits
5.2 The above proposal will provide an educational transformation for the area of Shirecliffe. There will be numerous educational and socio-economical benefits for both the area and the city. This proposal for a new school for Shirecliffe will provide a real opportunity for the children of Shirecliffe to achieve the 5 outcomes identified for all the children of Sheffield, as part of The Every Child Matters agenda:
· Being healthy
· Staying safe
· Enjoying and achieving
· Making a positive contribution
· Achieving economic wellbeing
Matching pupils and places in the context of declining numbers in the Primary sector
5.3 The proposals presented by the project will aim to bring the overall surplus places in this area to below the Audit Commission’s recommended maximum of 10%.
Maximise Attainment
5.4 The provision of a new building alone, does not guarantee that standards of attainment will be raised. However, through the amalgamation of the separate phase schools and the positive impact the new school will have on recruitment and retention, it is anticipated that attainment will be maximised.
Amalgamating Separate Infant and Junior Schools
5.5 The proposed new school will bring together three separate phase schools into one primary school, in accordance with Sheffield LEA’s Amalgamation Policy. The reason for the City Council’s policy on amalgamation is the widely held view that a through school is the best structure for primary education and that amalgamation can achieve the following positive education outcomes:
5.3 The proposals presented by the project will aim to bring the overall surplus places in this area to below the Audit Commission’s recommended maximum of 10%.
Maximise Attainment
5.4 The provision of a new building alone, does not guarantee that standards of attainment will be raised. However, through the amalgamation of the separate phase schools and the positive impact the new school will have on recruitment and retention, it is anticipated that attainment will be maximised.
Amalgamating Separate Infant and Junior Schools
5.5 The proposed new school will bring together three separate phase schools into one primary school, in accordance with Sheffield LEA’s Amalgamation Policy. The reason for the City Council’s policy on amalgamation is the widely held view that a through school is the best structure for primary education and that amalgamation can achieve the following positive education outcomes:
· In a through school, a single headteacher and staff team can plan the curriculum across all three primary key stages (Foundation Stage, Key Stage 1 and key Stage 2) and monitor the attainment of children as they progress through each year group.
· The structure of a through school avoids the process of transfer between separate Infant and Junior schools which can disrupt a child’s education.
· An amalgamated school would have a single ethos and set of policies, and will enable parents and children to build a relationship with the school over a longer period of time.
· A larger through school would have access to a greater range of staff expertise and would have a more robust budget giving it more flexibility in its management of resources.
Human Resource Implications
5.6 Clearly, teachers and support staff have a critical role to play in maximising attainment. There are ongoing issues relating to teacher recruitment and retention (including supply staff) in schools citywide, but particularly in those facing challenging circumstances, including the project schools. The extra pressure placed upon school staff facing closure/amalgamation will need to be handled sensitively and positively. The proposals will contribute to the retention and recruitment of appropriate staff through:
· An amalgamated school would have a single ethos and set of policies, and will enable parents and children to build a relationship with the school over a longer period of time.
· A larger through school would have access to a greater range of staff expertise and would have a more robust budget giving it more flexibility in its management of resources.
Human Resource Implications
5.6 Clearly, teachers and support staff have a critical role to play in maximising attainment. There are ongoing issues relating to teacher recruitment and retention (including supply staff) in schools citywide, but particularly in those facing challenging circumstances, including the project schools. The extra pressure placed upon school staff facing closure/amalgamation will need to be handled sensitively and positively. The proposals will contribute to the retention and recruitment of appropriate staff through:
· The enhancement of the staff working environment through improved buildings and facilities;
· Lessening the greater burden of curriculum and other management responsibilities on individual staff in small schools. In larger schools there is a wider pool of expertise, which benefits all, including pupils;
· Creating financially robust schools, which are less prone to enforced staffing reductions arising when variations in pupil numbers force budget cuts. This is more common in smaller schools. Overall, this should also reduce the incidence of temporary contracts introduced as a management tool for dealing with budget uncertainties.
Building Condition and Suitability
5.7 The option of building new primary schools should now be seen as a priority to complement the Building Schools for the Future programme in the secondary sector, and efforts should be directed at ways of obtaining the funding to achieve this. These ‘Schools of the Future’ should incorporate innovative design features to provide state of the art school and community facilities and raise the self-esteem of the community.
Contribute towards the socio-economic regeneration of the area
5.8 Schools are being asked to assist with a wide variety of social and economic problems being experienced by the families of pupils attending schools in areas of deprivation, such as Shirecliffe. This may in some cases be due to the difficulty of accessing other public support services in the local areas, or may be simply the consequence of the school being the most obvious City Council service available in the area. Whatever the reason, it is often creating a major distraction to the staff in school and is adversely affecting their ability to address their central mission of raising the attainment levels of pupils.
5.9 The new school in Shirecliffe will fully embrace the ‘Extended School’ concept and in addition to providing state of the art educational facilities to prepare pupils for life in the 21st century, will at the same time would be linked to a number of other important public services co-located on the same site. These services might include Social Services, Health Services, Adult Education, Youth Service, employment initiatives and social facilities.
5.10 The ‘Extended School’ concept is ideally suited to areas of disadvantage where children face significant risk of social exclusion and formidable barriers to learning in their everyday environments. Integration of services is essential and the school is an excellent setting for this to become a reality.
6. Communication and Consultation Programme
Objectives
6.1 To consult on proposals for the future provision in Shirecliffe in a way which ensures:
· Clear communication to all groups affected by the proposals and the reasoning behind them;
Contribute towards the socio-economic regeneration of the area
5.8 Schools are being asked to assist with a wide variety of social and economic problems being experienced by the families of pupils attending schools in areas of deprivation, such as Shirecliffe. This may in some cases be due to the difficulty of accessing other public support services in the local areas, or may be simply the consequence of the school being the most obvious City Council service available in the area. Whatever the reason, it is often creating a major distraction to the staff in school and is adversely affecting their ability to address their central mission of raising the attainment levels of pupils.
5.9 The new school in Shirecliffe will fully embrace the ‘Extended School’ concept and in addition to providing state of the art educational facilities to prepare pupils for life in the 21st century, will at the same time would be linked to a number of other important public services co-located on the same site. These services might include Social Services, Health Services, Adult Education, Youth Service, employment initiatives and social facilities.
5.10 The ‘Extended School’ concept is ideally suited to areas of disadvantage where children face significant risk of social exclusion and formidable barriers to learning in their everyday environments. Integration of services is essential and the school is an excellent setting for this to become a reality.
6. Communication and Consultation Programme
Objectives
6.1 To consult on proposals for the future provision in Shirecliffe in a way which ensures:
· Clear communication to all groups affected by the proposals and the reasoning behind them;
· Sufficient opportunities for questions to be answered and views to be expressed;
· Provision of feedback to consultees during and after the consultation process via newsletters
· Views are recorded and reported to Cabinet to inform its decisions.
Consultation Process
6.2 The closure of three schools and the opening of one new school are statutory changes that are subject to a formal legal process. The first part of that process is to consult widely in order that all parties affected by the proposal can express their views. The consultation will run from 6th June 2005 through to 22nd July 2005. There will be meetings for parents, governors and staff.
6.3 At the end of the period the Executive Director (designate) of Children’s Services will make a report to Cabinet on the outcome of the consultation, clarifying any questions that have been raised during the process.
6.4 If Cabinet decides to go ahead with the proposed changes, legal notices will be published in a local paper and displayed at the schools including details of how individuals can make a representation about the proposal. Following a six-week period, the LEA has a further month to collate any representations and send them to the School Organisation Committee for a final decision. If the Committee cannot decide unanimously, the decision will be taken by the Regional Adjudicator.
6.5 The School Organisation Committee (SOC) is an independent committee, and has representatives of the Council, the Roman Catholic and Church of England Dioceses, School Governors, the Sheffield Racial Equality Council and the Learning and Skills Council. The School Organisation Committee must reach a unanimous decision. If not it will be sent on to a Regional Adjudicator.
6.6 Summary of the process
6.3 At the end of the period the Executive Director (designate) of Children’s Services will make a report to Cabinet on the outcome of the consultation, clarifying any questions that have been raised during the process.
6.4 If Cabinet decides to go ahead with the proposed changes, legal notices will be published in a local paper and displayed at the schools including details of how individuals can make a representation about the proposal. Following a six-week period, the LEA has a further month to collate any representations and send them to the School Organisation Committee for a final decision. If the Committee cannot decide unanimously, the decision will be taken by the Regional Adjudicator.
6.5 The School Organisation Committee (SOC) is an independent committee, and has representatives of the Council, the Roman Catholic and Church of England Dioceses, School Governors, the Sheffield Racial Equality Council and the Learning and Skills Council. The School Organisation Committee must reach a unanimous decision. If not it will be sent on to a Regional Adjudicator.
6.6 Summary of the process
· Formal consultation
· Report back to Cabinet
· Publish Statutory Notices (6 week period for representation)
· Pass any representation together with the LEA’s comments to School Organisation Committee for a decision.
7. Timetable
The following table provides an overview of key dates for the project.
Cabinet | May 05 |
Start consultation on school reorganisation Start design process | June 05 |
Report back to Cabinet on outcome of consultation Community Hub / Phase 1 Children's Centre on site | Sept 05 |
Publish Notices | September 05 |
SOC Decision | November 05 |
Community Hub / Phase 1 Children's Centre complete | October 06 |
School construction begins | July 06 |
School construction complete | July 07 |
8. Financial Implications
8.1 The feasibility study has estimated the capital costs of building the new school at £6 million. The Authority intends to bid for the necessary funding to the DfES’s Target Capital Fund (TCF). The TCF, previously an annual bid, is now a biennial bid that allows Authorities to bid for schemes of up to £6 million. The main criteria for TCF are ‘standards-led reorganisation’ and ‘surplus place removal’ and as such, the Shirecliffe proposal would form a strong bid. Authorities are required to identify 20% match funding and the Education Directorate has identified £1.2 million from capital receipts to support a bid for £4.8 million. A detailed capital receipts strategy paper has been submitted to Asset Management Group illustrating how the £1.2 million would be sourced.
8.2 The TCF bid will be submitted on 27 May and the DfES will announce the outcome during the summer. The bidding timetable therefore fits well with the process timetable outlined above.
8.3 The creation of a single school on the Busk Meadow NI site would result in the release of two primary school sites. Shirecliffe Junior currently occupies a proportion of the Parkwood Secondary site. The area of the secondary school site is very constrained and the release of the Shirecliffe Junior site would provide extra playing field area much needed by the school. The Watermead NI site would be surplus to requirements and may therefore be available for sale and may gain a modest capital receipt.
8.4 As described in paragraph 5.11, the Busk Meadow NI site is under the required size for a school for 420 pupils. To supplement the space, it has been agreed with Neighbourhood’s Directorate to annex some additional areas of land where housing has been demolished.
8.1 The feasibility study has estimated the capital costs of building the new school at £6 million. The Authority intends to bid for the necessary funding to the DfES’s Target Capital Fund (TCF). The TCF, previously an annual bid, is now a biennial bid that allows Authorities to bid for schemes of up to £6 million. The main criteria for TCF are ‘standards-led reorganisation’ and ‘surplus place removal’ and as such, the Shirecliffe proposal would form a strong bid. Authorities are required to identify 20% match funding and the Education Directorate has identified £1.2 million from capital receipts to support a bid for £4.8 million. A detailed capital receipts strategy paper has been submitted to Asset Management Group illustrating how the £1.2 million would be sourced.
8.2 The TCF bid will be submitted on 27 May and the DfES will announce the outcome during the summer. The bidding timetable therefore fits well with the process timetable outlined above.
8.3 The creation of a single school on the Busk Meadow NI site would result in the release of two primary school sites. Shirecliffe Junior currently occupies a proportion of the Parkwood Secondary site. The area of the secondary school site is very constrained and the release of the Shirecliffe Junior site would provide extra playing field area much needed by the school. The Watermead NI site would be surplus to requirements and may therefore be available for sale and may gain a modest capital receipt.
8.4 As described in paragraph 5.11, the Busk Meadow NI site is under the required size for a school for 420 pupils. To supplement the space, it has been agreed with Neighbourhood’s Directorate to annex some additional areas of land where housing has been demolished.
8.5 It is estimated that the reorganisation of the three schools to create a single primary school will create annual revenue savings of approximately £200,000. Under the Government’s funding arrangements and the passporting of Education Standard Spending Assessments to schools, any savings will be retained within the overall schools budget and therefore be of wider benefit in raising standards across Sheffield’s schools. There will also be significant savings associated with ongoing capital costs of maintaining the three buildings and sites that would be available for re-investment at schools in line with the Authority’s Asset Management priorities.
8.6 To assist schools in the process of amalgamation, including the release of staff for curriculum development, the Sheffield Scheme allows school budgets to be determined during the year of amalgamation as if they remained separate schools. In the year following amalgamation, the amalgamated school would receive, in addition to its formula derived budget, half of any positive variance of the new school and the combined budgets of contributory schools had they not been amalgamated. In the following year the new school would receive only its formula derived budget. This additional funding is known as transitional funding.
8.7 There are not expected to be major implications for additional staffing costs resulting from the amalgamation of the three schools. The new school would guarantee places for existing pupils and would require a similar number of staff. The main areas of duplication are around leadership, management and administrative posts where some reductions in personnel are expected. Experience of previous amalgamations has been of minimum disruption in establishing a staffing structure for the new school and recruiting staff to it. In the event that members of staff were to be displaced in the process, redeployment options would be pursued.
9. Recommendation
Cabinet Members are asked to:
8.6 To assist schools in the process of amalgamation, including the release of staff for curriculum development, the Sheffield Scheme allows school budgets to be determined during the year of amalgamation as if they remained separate schools. In the year following amalgamation, the amalgamated school would receive, in addition to its formula derived budget, half of any positive variance of the new school and the combined budgets of contributory schools had they not been amalgamated. In the following year the new school would receive only its formula derived budget. This additional funding is known as transitional funding.
8.7 There are not expected to be major implications for additional staffing costs resulting from the amalgamation of the three schools. The new school would guarantee places for existing pupils and would require a similar number of staff. The main areas of duplication are around leadership, management and administrative posts where some reductions in personnel are expected. Experience of previous amalgamations has been of minimum disruption in establishing a staffing structure for the new school and recruiting staff to it. In the event that members of staff were to be displaced in the process, redeployment options would be pursued.
9. Recommendation
Cabinet Members are asked to:
· Authorise the Executive Director, Education to proceed with further detailed consultation with interested parties in respect of proposals to reorganise and transform primary school provision and delivery of integrated Children's Services to include proposals for the provision of a new primary school following the closure of Busk Meadow Nursery and Infant School, Watermead Nursery and Infant School and Shirecliffe Junior School
· Note that a further report will be submitted to Cabinet in due course describing the outcome of the consultation process."
Education Planning and Development
May 2005
Downloads
This is a word document containing Appendix 1 to the Shirecliffe report and it is 1,406KB. (1.37 MB)
This is a word document containing Appendix 2 to the Shirecliffe report and it is 2,560KB. (2.5 MB)