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WHAT IS BEING DONE
36. Clearly much remains to be done and the final section of this paper outlines a number of proposals for further action. But a great deal of assessment and development work is already under way; some of the projects are described in the paragraphs that follow. These two sections must be read against the background of the problems presented by the current and continuing shortage of resources for education: desirable developments are being hampered or prevented because money for them cannot be found; and the proposals for further action could be totally frustrated by further cuts in resources for education particularly those that are under the direct influence of local authorities: in-service training which in many ways should play a central part in reform, is likely to be one of the first casualties.
The Work of HM Inspectorate
37. HM Inspectorate is without doubt the most powerful single agency to influence what goes on in schools, both in kind and standard. The Inspectorate antedates the Department and remains professionally independent of it; like the Department it is answerable to the Secretary of State. It is the oldest instrument for monitoring the education system and, from this primary function, it derives a second major role, that of improving the performance of the system. No exercise of power is involved in this search for improvement; the Inspectorate, by tradition and by choice, exerts influence by the presentation of evidence and by advice.
38. The basis of all HM Inspectorate's work is inspection in its various forms from routine visiting to formal exercises on an institutional, regional or national base. All inspection involves assessment and the communication of that assessment to those responsible. Formal exercises on institutions and the various sorts of survey give rise to reports issued to those who have the responsibility for provision and action. In terms of influence on the system, HMI's contribution depends less on inspection and routine liaison with LEAs, and increasingly on:-
i. specialist consultation with Chief Education Officers and LEA administrators;
ii. publications for teachers and others in the education service;
iii. short courses for teachers and others in the education service:
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a. DES short programme;
b. participation in courses organised by HMI together with universities involved in teacher education;
c. contributions to local courses;
iv. assessorships with professional associations, educational bodies, working parties, Schools Council, etc;
v. consultation and cooperation with the advisory and inspectorial staffs of local authorities;
vi. involvement in the initial training process, at the institutional or regional level, but more importantly by series of conferences with sections of the relevant teacher association (formerly the Association of Teachers in Colleges and Departments of Education, now the National Association of Teachers in Further and Higher Education).
39. HM Inspectorate number something over 400 of whom 300 are mainly concerned with schools and teacher training. Major policy lines both for inspection and for action in the various categories above are established at least a year to 18 months ahead by the Chief Inspectors, who take into account their knowledge of the system, departmental and ministerial policy needs and the work of other agencies in the field. Provision is always made for a limited amount of routine monitoring and slack is provided for the unforeseen urgent enquiry.
40. In the 3 or 4 years preceding the primary and secondary surveys, (see paras 44 and 46) the formal inspection programme paid particular attention to most of the matters of concern to the Prime Minister, ie reading and language development in the primary school, curricula for older children in secondary schools and the 16-19 problem in its various forms. These appear again as major items in the short-course programme and in the courses organised by HMI and universities involved in teacher education. Mathematics in the primary school was the subject of continuous concentrated action both in the short-course programme and in conferences for teacher trainers.
41. Despite initial reluctance on the part of much of the education system, an increasing number of courses on assessment and evaluation have been put on and in
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the autumn of 1975 an invitation course for senior administrators and advisers examined the available styles of evaluation and their functions within the education system. Conference of HMI and LEA advisers are regularly called to consider national priorities and related roles in in-service training, particularly with regard to primary education and language development.
42. Neither courses nor inspections are teacher-proof. To be effective HMI's effort has be part of the whole system and not an outside intervention. Much depends of local advisory support and even more on the proper exercise of their functions by heads and heads of department. Some 30 national and 75 local courses have been mounted by the COSMOS (Committee for the Organisation, Staffing and Management of Schools) group of HMI. These courses, for administrators, advisers and key teachers, have increasingly concerned themselves with primary and middle schools as well as secondary. They give clear guidance on the roles of personnel within the system, particularly within the school.
43. The immediate past has been a lean period for publications, largely as a result of over-reaction to the emergence of the Schools Council (of paragraph 48). This policy is now reversed and a list of projected publications is to be found together with a short selection of titles in print (in Appendix 3). Such publications stand or fall solely on their merits, which is one of the reasons why the Inspectorate has retained its acceptability through the era of assertive "teacher power".
Primary Schools
44. It will be clear from what has been said that our judgment of the situation depends a good deal upon qualitative assessments because many of the relevant factors cannot be quantified. But more systematic information on some aspects could be obtained. With this object the Inspectorate has during the past year begun a major survey of primary schools which will be completed in the academic year 1977/78. It covers 500 schools in England and Wales and comprises a field survey by the Inspectorate in parallel with a quantitative measurement of educational attainment in these schools conducted by the National Foundation for Educational Research (NFER). Details of the survey are given in Appendix 3. No comparable survey has been attempted by HM Inspectors since 1944; when completed it should constitute the most thorough account of primary schools in this country.
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45. As part of its activities in following up the Bullock Report (dealt with at greater length in Appendix 4) the Inspectorate carried out a small scale monitoring exercise based on visits to primary schools in the areas of 80 LEAs in the autumn of 1975. The results showed a conscious effort by the staffs of the schools to put into effect the recommendations of the Report which concerned them. Many of the teachers in the schools visited had participated in in-service training courses of one sort or another related to the Bullock recommendations. The Inspectorate has continued and will continue its monitoring of Bullock by enquiries through district inspectors about overall progress and by specialist sampling. The language component of the primary and secondary surveys also relates closely to the implementation of the Bullock Report.
Secondary Schools
46. The primary survey is being matched by an analogous survey of the secondary schools, and the Bullock follow-up programme, already referred to, includes secondary as well as primary schools. The secondary school examination system is also under consideration, as discussed in paragraphs 29-33 above.
47. Considerable attention has been devoted by the Inspectorate to the organisation of secondary schools. This includes both the advantages and disadvantages of different patterns of comprehensive organisation, and the implications of different types of internal organisation. Courses and conferences have been organised to help head teachers and others with special responsibilities to cope with the novel problems of organisation in comprehensive schools. Within the Inspectorate studies have been made both of the state of education in different geographical areas, and of different subjects within the curriculum. Surveys of different aspects of the work of the schools (which extend to their social as well as educational roles) have been written and published (concerning eg the needs immigrants, pupils with learning difficulties, and career education).
Schools Council
48. In the early sixties it became apparent to the Department that a positive initiative was required to promote innovation in the school curriculum. This led to the setting up within the Department of a curriculum study group (CSG) with the objectives described in its Annual Report for 1962. (See Appendix 5)
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49. However despite the care which the Group took to emphasise its respect for the responsibilities of teachers and local education authorities, opposition to it led the then Minister to decide that the work of CSG as well as that of the Secondary School Examinations Council (a body with a relatively long history) should be absorbed into an independent body to be called the Schools Council, which was set up in October 1964, with the following terms of reference -
"The object of the Schools Council shall be the promotion of education by carrying out research into and keeping under review the curricula, teaching methods and examinations in schools, including the organisation of schools so far as it affects their curricula".
50. The Schools Council has performed moderately in commissioning development work in particular curricula areas; it has had little success in tackling examination problems, despite the availability of resources which its predecessor (the Secondary Schools Examination Council) never had; and it has scarcely begun to tackle the problems of the curriculum as a whole. Despite some good quality staff work, the overall performance of the Schools Council has in fact, both on curriculum and on examinations, been generally mediocre. Because of this and because the influence of the teachers' unions has led to an increasingly political flavour - in the worst sense of the word - in its deliberations, the general reputation of the Schools Council has suffered a considerable decline over the last few years. In the light of this recent experience it is open to question whether the constitution of the Schools Council strikes the right balance of responsibility for the matters with which it deals. These issues could come to a head later this year in the context of the Council's recommendations to the Secretary of State about examinations.
51. Nevertheless, the Schools Council has carried out and published a considerable volume of work in the field of the curriculum and examinations, and some of the development projects which it has commissioned have made a valuable contribution to the development of the school curriculum. Appendix 5 also contains further information about the Schools Council and illustrates the range of its published work.
Assessment of Performance Unit
52. The Assessment of Performance Unit (APU) was set up as recently as August 1974 (see Cmnd 5720). Its start was slow, partly because of suspicion in some quarters of the teaching profession (the National Union of Teachers in particular) and partly
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because of delay in finding a Chairman for its consultative committee. This committee, which is widely representative of educational interests, has now met under Professor Barry Supple of Sussex University. Otherwise the Unit itself is a small group within DES under the leadership of a Staff Inspector, with a share of the Department's research budget at its disposal. It will work largely by commissioning outside projects and is supported by a coordinating group and several specialist sub-groups drawn partly from the Department and Inspectorate and partly from outside.
53. The terms of reference of the Unit, as set out in the White Paper, are as follows:
"To promote the development of methods of assessing and monitoring the achievement of children at school, and to seek to identify the incidence of underachievement."
Its tasks are listed as being:
"1. To identify and appraise existing instruments and methods of assessment which may be relevant for these purposes.
2. To sponsor the creation of new instruments and techniques for assessment, having due regard to statistical and sampling methods.
3. To promote the conduct of assessments in cooperation with local education authorities and teachers.
4. To identify significant differences of achievement related to the circumstances in which children learn, including the incidence of under-achievement, and to make the findings available to those concerned with resource allocation within the Department, local education authorities and schools."
54. The Unit is now engaged in the first of these tasks. In terms of the curriculum the priorities are to follow up the recommendations of the Bullock Report about the testing of reading and the use of language, to evaluate and pursue the reports on testing mathematical aptitude (TAMS) previously commissioned by the Department through its research budget and to make a start in considering the assessment of science. Thereafter it will turn its attention to other areas of the curriculum.
Taylor Committee
The Taylor Committee was set up in May 1975 under the chairmanship of
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Councillor Tom Taylor of Blackburn. Its terms of reference are -
"To review the arrangements for the management and government of maintained primary and secondary schools in England and Wales, including the composition and functions of bodies of managers and governors, and their relationship with local education authorities, with head teachers and staffs of schools, with parents of pupils and with the local community at large; and to make recommendations."
56. The membership of the Committee includes teachers, members of local authorities, representatives of the Churches, and independent persons. The constitution of bodies of governors or managers (the terminology serves only to distinguish secondary and primary schools and has no other significance) is in broad terms laid down in the 1944 Education Act and some guidance on the relevant principles had been given by the Department in 1944. But no fundamental review of either the principles or the detailed arrangements had been undertaken since 1944 (in contrast to what had been done for institutions of further education) and there was a widespread feeling that the matter was overdue for review. Some local education authorities either had adopted or wished to adopt arrangements at variance with the ideas set out by the Department in 1944 and strong pressure had developed from the teachers associations for a bigger say in the running of the schools to be given to the teachers in them. Since the Committee was set up the publicity given to the troubles at the William Tyndale School in London has given added point to the work of the Committee and the publication of the report of the Tyndale public enquiry this month will enhance the interest with which the report of the Taylor Committee will be awaited.
57. Although, when the Committee was set up, the Chairman professed himself as very anxious to report early, it is still by no means certain what will emerge from its deliberations. Clearly it will be expected to express views on the balance of power which should obtain in the running of the schools between various interests (local education authorities, teachers, parents). But the Committee is rightly looking at more fundamental questions about the proper functions of governing bodies and their place in the overall system of control. Since responsibility for the broad outline of what is taught is one of the most important functions in question, the report of the Committee could be relevant to the issues considered in this paper. It is as yet too early to judge whether it will make a significant contribution to the debate.
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FURTHER ACTION
58. The following specific lines of action are suggested:
a. Since much of the necessary action will directly involve LEAs, the Inspectorate may need to strengthen its lines of communication and use a more direct style, particularly on specialist matters.
b. The Inspectorate should be encouraged to continue and extend the kind of specific investigation which has already been described in this Note. Three important points follow from this policy; first, if the Inspectorate is to maintain the respect and confidence it has built up it may have to say things in its reports which will not be wholly palatable to the Government of the day; second, it will have to be staffed to perform its functions in an efficient and adequate manner; and finally we must find ways to make the general public (ie. parents) as well as teachers aware of its attitudes and findings.
c. The Department, in collaboration with all concerned, should explore the case and scope for the introduction of a common core curriculum in all schools.
d. HMI is already working, with the help of schools throughout the country, on models for core curricula and this work should continue. The basic problem, however, is how to secure acceptance of these ideas by local authorities and in schools. It is already planned to publish discussion papers and to run a national in-service course for teachers later this year. These means should be further extended and exploited.
e. We need also to explore and promote further experiment with courses of a higher level of vocational relevance likely to appeal to a significant number of fourteen and fifteen year olds. Existing programmes of linked courses should be further developed in extent and quickly. In addition the possibilities for various types of imaginative links with further education should be pursued.
f. There is also scope for extending links between the schools and the world of work. The Department and the Inspectorate are actively engaged in promoting these developments and in reviewing the direction of future progress.
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g. Specific areas of the curriculum need attention each in its own terms. New appraisals produced by the Inspectorate (within a regular annual cycle of activity) covering the main subject areas will be available in September. On the basis of these appraisals the Department will consider what more should be done to advance learning in particular areas, especially in mathematics, science and modern languages. For example, HM Inspectorate can step up their efforts through publications, courses and assessorships. The possibility of outside enquiries into these areas of the curriculum, or aspects of them, will be considered at the same time.
h. Strengthened involvement by HM Inspectorate in initial teacher training is needed. The courses followed by intending teachers need development so that they meet better their 3-fold objective: of equipping the student with a qualification which has a general currency as a higher education qualification: of matching as far as possible the academic and curricular needs of the schools: and of providing a secure and well-founded initiation into professional teaching skills. This probably implies further course re-structuring so that the different objectives are pursued consecutively. Such re-structuring would permit the easier identification and selection of entrants to teacher training with academic qualifications and qualities of mind most fitted to the needs of the schools. It should also greatly enhance the chances of effective professional training.
j. The provision of adequate in-service training is a key element in getting new ideas on curriculum, teaching methods and assessment into circulation; in many ways this is even more important than the standards set during initial teacher training. Here again the Inspectorate has a central role to play; but the main problem is persuading local education authorities to release teachers and, contrary to what may be desirable, it is likely that, in the face of continuing financial stringency, local authorities will diminish their efforts in this respect rather than increase them.
This is an area where the ability of the Department to finance promising developments by means of specific grants could be crucial to the promotion of its ideas. This is already under discussion in some of the groups considering the Layfield Report within Whitehall.
k. There is a need to continue and intensify our efforts to ensure the availability of sufficient teachers of adequate quality in subjects in which there is a teacher shortage, especially in mathematics and science. There
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is no quick and easy solution to this problem. In so far as initial training is concerned, although the Secretary of State has some powers to direct institutions as to the numbers and category of students to be admitted, these powers cannot compensate for a shortage of qualified applicants. Schools need to encourage more pupils to study mathematics, science and technology (see para 15) and to seek careers in teaching. Despite teacher unemployment it would almost certainly remain necessary to attract into teaching well qualified mathematicians, scientists and technologists who have started their careers in industry and commerce. The development of links with the further education system (see sub paragraph e above) will in small measure help to alleviate the teacher shortage.
l. The problems of the 16-19 age group both within and outside the schools should continue to enjoy priority. It is important to seek, and to apply, the right solutions to their problems taking account of the contribution that can be made both by the education service and by other agencies. At present there is some risk of distortion because the existing statutory and administrative provisions make it much easier for MSC and TSA than for DES to channel resources quickly and selectively where they are needed.
m. As noted in paragraphs 29-33 above, the fundamental issues of policy on external school examinations still remain to be tackled. Whatever response is given to the Schools Council's proposals received this year, the Department must develop its own thinking on the different functions of examinations and their inter-actions.
n. The work of the Assessment of Performance Unit should be increased and its programme accelerated, so far as the intrinsic disciplines of its work, and the availability of competent research and development workers permit. Here the major problem is to persuade the teaching profession that this is all to their advantage; we shall need also to staff the Unit appropriately.
o. The generality of teachers must be encouraged to establish reasonable standards of expectation for pupils at different stages. While we wait for the full impact of the APU, subject associations should be encouraged to step up their efforts. It may be that some would try to look to the Department for financial support.
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p. As noted in paragraph 50 above, the performance of the Schools Council has been disappointing. There will have to be a review of its functions and constitution. The timing, however, needs careful attention (although a move may be precipitated by the examination issue).
q. It will also be good to get on record from Ministers and in particular the Prime Minister, an authoritative pronouncement on the division of responsibility for what goes on in school suggesting that the Department should give a firmer lead. Such a pronouncement would have to respect legitimate claims made by the teachers as to the exercise of their professional judgment, but should firmly refute any argument - and this is what they have sought to establish - that no one except teachers has any right to any say in what goes on in schools. The climate for a declaration on these lines may in fact now be relatively favourable. Nor need there be any inhibition for fear that the Department could not make use of enhanced opportunity to exercise influence over curriculum and teaching methods: the Inspectorate would have a leading role to play in bringing forward ideas in these areas and is ready to fulfil that responsibility. The speech could also endorse the general understanding and acceptance of the multiple objectives of the schools. The list of objectives quoted in paragraph 17 above aroused no vocal dissent when it was recently promulgated outside the Department.
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APPENDIX 1
TABLES AND CHARTS
Chart | Page |
A Number of pupils in maintained nursery, primary and secondary schools in England and Wales | 28 |
B Number of full-time teachers in maintained nursery, primary and secondary schools in England and Wales | 29 |
C Numbers of teachers by qualification in maintained nursery, primary and secondary schools; England and Wales | 30 |
D Pupil/teacher ratios in maintained primary and secondary schools in England and Wales | 31 |
E Percentage of passes in maintained primary and secondary schools with over 30 and over 40 pupils; England and Wales | 32 |
F Staying on rates at age 17 | 33 |
G Examination results for school leavers from grant aided and certain independent schools; England and Wales | 34-5 |
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APPENDIX 2
UNIFIED VOCATIONAL PREPARATION: A PILOT APPROACH
Foreword
This statement is concerned with young people who have left school and are entering work and especially with those very large numbers who go into jobs where they receive no further education and little or no systematic training. We believe that properly conceived vocational preparation at this crucial stage would not only raise the economic contribution of these young people but would enhance their chances for development in a personal as well as a vocational sense.
We believe that a new approach is needed; but we recognise that it will take time to get established. Quite apart from the present economic restraints, there is a need for experiment to establish what forms of vocational preparation will attract young people and win the support of their employers. There will need to be a careful blend of training and further education.
In this statement the Government proposes a programme of experimental schemes of vocational preparation to begin this autumn. The Manpower Services Commission will be fully associated with the development of this proposal. The programme will be a joint venture requiring collaboration between the training and education services in close association with the other interests. This statement is therefore being widely circulated in the hope that it will be considered and discussed, and will help all those concerned with the development of vocational preparation schemes.