Modernising Education Strategy

Modernising Education Programme Review

In 2010 County Council resolved MEP be reviewed every two years or otherwise as required to ensure consistency with the timeframe of the national 21st Century Schools Programme (Renamed Sustainable Communities for Learning Programme (SCfLP)).

Since its inception regular review is a central feature of the MEP in order that it is able to retain flexibility at its core to ensure that the programme is current and responsive to changes in the education policy framework and is able to meet the needs of a constantly developing society. This is even more important in the current climate/post pandemic period.

Long-established criteria, developed and adopted locally through consultation with representative school leaders, have been agreed and adopted as appropriate indicators of viability and investment need. These were formally adopted in 2008 and have directed the structure of the MEP since that time. The criteria have been reviewed in line with strategy and policy changes, in addition to changes to external factors such as: financial pressures/budgets, school footprint, class sizes, recruitment, deteriorating building conditions and demographic changes to ensure they align with current and future aspirations.

Each time the MEP is reviewed, every school in Carmarthenshire is evaluated against a set of evidence-based criteria, which allow an assessment of the school’s operational viability to be made, and decisions taken on the relative investment need of all schools.

This allows the Authority to objectively determine a programme for the strategic review of the schools’ network and investment in the modernisation of the schools’ estate in a manner that is transparent and demonstrably fair.

As a result, each school is placed in a category within a viability continuum, to confirm the prognosis for that school. The summary of the viability assessment forms the basis for the identification of modernisation projects and rationalisation proposals within the overall programme.

It should be noted that the viability assessment and conclusion for each school is based around mainstream provision and other forms of provision such as early years, additional learning needs, behaviour and Post 16 will be driven by separate strategies. The details of the viability criteria and viability continuum can be found in the table.

 

Viability Criteria

Quality and Standards in Education: considering key measures and performance as assessed through Estyn inspections. A school being placed under special measures will trigger a review.

Leadership: having sustainable leadership with suitably qualified leaders who are free to lead and manage the school with no headteacher having a full-time teaching commitment.

Pupil Numbers: the number of pupils attending the school, with low pupil numbers being a key indicator for review. Pupil numbers are the main factor in school funding and low pupil numbers can significantly influence sustainable provision and staffing structures.

Pupil Trends: the pattern of pupil numbers at the school over previous years, with a declining roll being a key indicator for review.

Pupil Projections: an assessment of estimated pupil numbers expected to attend the school from within the designated catchment area and age range over the coming five years, with a forecast decline or increase being a key indicator for review.

Surplus Places: the number of spare places at the school, with more than 10% surplus places in an area overall being an indicator for review to improve the effectiveness and efficiency of provision as defined by Welsh Government in the School Organisation Code (2018)

Financial Viability: the present and predicted financial position of the school under the School Funding Wales Regulations 2010, with a budget deficit being a key indicator for review.

School Building Condition: the condition of the school’s physical assets and the cost of improving their condition to an acceptable standard, assessed as the cost of refurbishment as a factor of the asset value and relative to the number of pupil places (according to the school’s official capacity).

School Building Suitability: the appropriateness of the school’s buildings and site to support the effective delivery of the modern curriculum/new Curriculum for Wales and making the asset available for community use and the estimated cost of undertaking any adaptation or extension works to ensure the sufficiency of the premises.

Collaborative Regeneration/Funding Opportunities: should opportunities arise for funding and/or collaborative working through Regeneration initiatives including with other agencies e.g., Diocesan Authorities.

Viability Assessment Each school is assessed based on the viability criteria and subsequently grouped into one of the 2 categories within the viability continuum.
Viability Continuum

Retain the school             

Undertake a strategic review of the school or area

Following conclusion of the viability assessments, all projects are ranked based on the following prioritisation criteria to provide an overall, long-term programme for investment.

 

Need In locations where the provision of additional space or the refurbishment of existing space is essential in order to accommodate pupils generated by the rationalisation of other schools or where demand for places is increasing naturally through demographic change, provided in the latter case that schools are complying with the Council’s Admissions Policy.
Pupil Numbers In locations that have increasing or stable pupil numbers or those schools that are deemed by the Authority to be necessary for the effective long-term delivery of education services.
Surplus Places In locations where, in tandem with rationalisation proposals, it will facilitate the greatest reduction in the number of surplus school places.
School Building Condition In locations where it will be possible to achieve the greatest progress towards securing objectives for high quality premises for the most significant numbers of pupils.
WESP In projects that promote the expansion of Welsh medium education or the development of bilingual education in support of the objectives set out in the County Council’s Welsh in Education Strategic Plan. To provide the right number of places for the delivery of Welsh medium and bilingual education.
Additional Learning Needs (ALN) In locations to achieve a model of inclusive and equitable education for all through the medium of Welsh and English.
Childcare Early Years In locations to provide the right type and quantity of high-quality accessible childcare to meet the needs of parents/carers.
Net Zero Carbon (NZC) & Sustainability In locations to work towards Net Zero Carbon and improving buildings that are resource inefficient and have a high environmental impact.
Accessibility In locations that currently do not meet the needs buildings of all users and promote inclusion.
Community Facilities In locations that are currently not equipped to promote safe community use outside of traditional school hours.

The viability and prioritisation criteria ensure that the Educational Principles and Objectives are maintained throughout the programme of development.

The MEP is guided by a number of National and Local parameters that influence the interventions available to develop and implement the programme.

Parameters

Any transformational change to the schools’ estate is dependent upon the following:

  • School Organisation Code – statutory guidance that set out the Local Authority’s responsibilities in relation to school-reorganisation and regulated alterations to make significant changes.
  • Federation Process of maintained schools in Wales – statutory guidance for establishing school Federations.
  • Welsh Government Sustainable Communities for Learning Programme – WG Capital investment programme provides collaborative funding opportunities to LA's through its Business Case approval process.
  • Capital Programme – Outlines the LA's Capital funding availability for the Education Department over a five-year period.
  • Democratic Decision Making Process – Process approved by County Council for determining school organisation proposals. County Council is the ultimate determining body.

Interventions (Options for Change)

Interventions are used to facilitate change to the schools’ network and can be split into two types, Statutory & Policy and Infrastructure Investment.
Statutory & Policy Interventions are used to develop a strategically and operationally effective network of schools that meet current and future need for education. Proposals are identified via the MEP Review and are reactive to the needs of areas at certain points in time and include:

Carmarthenshire County Council is the Admissions Authority for all its maintained nursery, primary and secondary schools with the exception of voluntary aided schools where the school’s Governing Body is the Admissions Authority.

From September 2025, pupils will normally be admitted on a full-time basis to a primary school at the beginning of the term following their 4th birthday.

Some schools also offer part-time nursery provision and pupils are usually admitted at the beginning of the term following their 3rd birthday.

By law, parents must arrange for their children to receive full-time education at the beginning of the term following their 5th birthday.

Primary school pupils are required to start at a secondary school in the September following their 11th birthday.

All children are admitted to school in line with Carmarthenshire County Council’s School Admissions Policy.

A catchment area refers to the geographical area from which pupils are normally expected to attend a specific school.

School catchment areas are used:

  • to give parents an indication of their local school.
  • to help schools identify with the communities they serve.
  • to prioritise admissions to schools when there are more applications than places available. Residence within catchment area is one of the admission criteria in Carmarthenshire, ensuring that schools are available to serve local children first.
  • as a planning tool to enable the Authority to fulfil its duty to forecast demand for education in an area and to plan to meet that demand.
  • as an element of transport policy in order to facilitate the organisation of school transport and control costs.

Every school in Carmarthenshire has a designated catchment area which it serves.

The term ‘federation’ describes a formal and legal agreement where more than one school, and no more than six, share governance arrangements and have a single Governing Body.

As noted in the Federation process of maintained schools in Wales, schools have been able to federate since 2010 using the process set out in The Federation of Maintained Schools and Miscellaneous Amendment (Wales) Regulations 2010. The Federation process of maintained schools in Wales replaced the 2010 Federation Regulations on 22nd May 2014, and in addition, provided Local Authority’s with the power to federate schools. The current guidance sets out how Local Authority’s, in addition to governing bodies can federate schools and how federations may be proposed, established and constituted.

The process a LA would use to federate schools is almost identical to the one Governing Bodies would follow. If a LA is considering federating a voluntary aided, voluntary controlled or foundation school it should first of all contact the Charities Commission to discuss proposals. It must also obtain the consent of the relevant diocesan authority, trustees or persons who are responsible for appointing the foundation governors.

A successful federation requires a commitment of time and resources from all schools involved. Clear leadership and management structures together with a shared vision and a common purpose will allow pupils access to a broader curriculum to enrich their experiences and provide a high-quality education to help raise their attainment.

The power given to Local Authority’s to federate will provide an additional valuable tool to the MEP in the consideration of future provision for areas throughout Carmarthenshire.

Informal Federation has been used as an intervention to secure leadership in some of our schools where recruiting sustainable leaders is a challenge due to budget pressures/pupil numbers/rurality.

Formal Federation has been used by schools as well as the Local Authority to:

  • Secure sustainable leadership
  • Improve schools’ future sustainability.
  • Improve pupils’ experiences.
  • Improve budget position.
  • Formalise collaborative working arrangements.

However, most recently, Federation as an intervention is being challenged. Finding sustainable Leadership for formal Federations is becoming increasingly difficult due to the responsibility associated with managing more than 1 school. The additional workload pressures associated with managing a Federation can impact negatively on Headteacher wellbeing. In addition, due to the rise in fuel costs, some Headteachers are questioning the viability of the Executive Headteacher role due to the additional travelling.

Prior to 2020, the Local Authority did not have an approved process in place for determining federation proposals, in contrast to the decision-making process that was in place for determining school reorganisation proposals. However, in February 2020, the Executive Board approved a decision-making process for Local Authority led federation proposals, whereby the decision on whether or not to implement a federation proposal would be made by the Cabinet Member for Education.

As noted in the School Organisation Code 2018, a Local Authority may make proposals to:

  • establish, discontinue or make a regulated alteration (see 3.3 of Code) to community or maintained nursery schools;
  • discontinue a voluntary or foundation school;
  • increase or decrease the capacity of a foundation or voluntary school without a religious character.

Governing bodies of foundation or voluntary schools may make proposals to:

  • discontinue their school;
  • make a regulated alteration to their school.

Any person may make proposals to establish a new voluntary school. However, local authorities should work with the relevant religious body when the proposal is to establish a voluntary school with a religious character.

No new foundation school or foundation special school may be established in Wales.

Local authorities may also make proposals to add or remove school sixth forms at voluntary and foundation secondary schools, but only if they have first gained the consent of the Welsh Ministers to do so. Consent must be sought by means of a written application that clearly sets out the Local Authority’s rationale for the proposal.

In addition, the 2013 Act provides the Welsh Ministers with the power to make proposals to:

  1. remedy excessive or insufficient provision of school places (where they have already issued a direction to a local authority or governing body to that effect) (section 59);
  2. secure regional provision for special educational needs (where they have already issued a direction to a Local Authority/Local Authorities/governing bodies to that effect) (section 68); and
  3. add or remove school sixth forms (section 71).


The Local Authority’s process for all statutory proposals other than rural school review proposals is illustrated at appendix 1.

The Welsh Government introduced the presumption against the closure of rural schools on January 1, 2018, as part of its revised School Organisation Code. This policy aims to safeguard the future of rural schools, recognizing their importance to local communities, not only as educational institutions but also as vital community hubs.

The presumption requires local authorities to provide compelling evidence that all other options have been thoroughly considered before proposing a closure. The introduction of this presumption reflects the Welsh Government’s commitment to maintaining educational provision in rural areas and supporting the sustainability of these communities.

Carmarthenshire County Council’s Cabinet remains fully supportive of doing all that it can to support and build the future resilience and sustainability of its rural schools and will work to Welsh Government’s set of procedures and requirements within the School Organisation Code which works on a presumption against closure as noted in appendix 2.

The Local Authority’s process for rural school review proposals is illustrated in appendix 3.

Projects are delivered through Infrastructure Investment Interventions (Options for Development) such as:

Extensions- refers to the process of expanding an existing building or structure to create additional space or rooms. It involves constructing new parts that are integrated with the original building, thereby increasing its overall size and functionality. Extensions can be added to various parts of a building, such as adding extra rooms, enlarging a kitchen, creating a new wing, or extending the upper floors. The purpose of an extension is to meet the changing needs of the occupants, accommodate growth, or improve the property's value and functionality.

New builds, also known as a new construction or ground-up construction, refers to the process of creating an entirely new building or structure from scratch. In this type of construction, there is no existing structure, and the project typically involves clearing the site, laying the foundation, and constructing all elements of the building, including walls, floors, roofs, and utilities. New builds are common for greenfield sites (undeveloped land) or when an existing structure is beyond repair or not suitable for renovation.

Remodelling involves making significant changes or improvements to an existing building's structure, layout, or design. Unlike an extension, which adds new space, remodelling focuses on renovating and altering the existing space to better suit the occupants' needs or to update the building's appearance and functionality. Remodelling projects can include renovating bathrooms, kitchens, or other rooms, changing the internal layout, upgrading electrical or plumbing systems, or adding new interior features.

Refurbishment refers to the process of renovating, repairing, or updating an existing building or structure, with the goal of restoring its condition and functionality to a better state. Unlike remodelling, refurbishment usually involves less extensive changes and focuses on improving the building's aesthetics, functionality, and overall condition. This can include repairing damaged or worn-out elements, repainting, replacing fixtures and fittings, and upgrading systems to bring the building up to modern standards.

Modular or mobile construction refers to a method of building structures in which the components or modules are constructed off-site in a factory or controlled environment and then transported to the final location for assembly. These modules are prefabricated, meaning they are manufactured in standard sizes and designs, allowing for easy transport and quick on-site assembly.

The investment interventions are governed Corporately as well as via the Modernising Education & Communities Programme and Project Boards (see appendix 4).

 

Investment Intervention Options Description
No Capital Investment Required No investment required
Additional Accommodation Extension/Modular Investment would involve extending a school to provide additional accommodation/provision
Refurbishment/Reconfiguration Investment would involve refurbishing/ reconfiguring a school on its current site
New Area 3-11 Investment would involve constructing one new 3-11 school to replace more than one school in an area
Replacement 3-11 school Investment would involve constructing a new 3-11 school to replace an existing school on its current site or a new site
New 3-11 Investment would involve constructing a new 3-11 school
Replacement 11-16 Investment would involve constructing a new 11-16 school to replace an existing school on its current site or a new site
New 11-16 Investment would involve constructing a new 11-16
Replacement 11-19 school Investment would involve constructing a new 11-19 school to replace an existing school on its current site or a new site
New 11-19 Investment would involve constructing a new 11-19 school
Establishing 3-16 Investment would involve establishing a 3-16 school to replace existing primary/secondary provision
Establishing 3-19 Investment would involve establishing a 3-19 school to replace existing primary/secondary provision
Replacement Special School Investment would involve constructing a new special school to replace an existing special school on its current site or a new site
New ALN provision Investment would involve constructing new ALN provision
ALN Unit Investment would involve establishing integrated ALN provision on school sites
New behaviour provision Investment would involve constructing new behaviour provision
Behaviour Unit Investment would involve establishing integrated behaviour provision on school sites.

Minimum Investment Principles

  • Any new school that includes primary provision will need to contribute to achieving Carmarthenshire’s Welsh in Education Strategic Plan ambitions.
  • All schools will be constructed to accommodate space to provide 3-year-old Early Years Education.
  • All schools will be constructed having considered the need for wrap around childcare provision from 2 years old (based on a gap analysis).
  • All schools will be constructed having considered the need for spaces for community use.
  • All schools will be constructed having considered the need for Additional Learning Needs provision.
  • All schools will be constructed having considered the leisure/sporting requirements in the area.

The delivery of the MEP to date has been made possible by the establishment of an innovative funding strategy for capital investment which has drawn upon and integrated a variety of funding sources:

  • Welsh Government Grants – Sustainable Communities for Learning Grant (previously known as 21st Century Schools Grant), School Building Improvement Grant, Fire Sprinkler Grant, Flying Start Capital Grant, etc.
  • Capital Receipts – generated though the disposal of operationally redundant school assets (if not utilised for community use etc.). Following a previous decision by County Council, all receipts generated through the sale of former school premises are ring-fenced for reinvestment in the school modernisation programme.
  • Prudential Borrowing – serviced by contributions from revenue generated though efficiency gains arising from the rationalisation of the schools’ network and through an adjustment in the delegated school budget.
  • General Capital – contributions from the Council’s general capital allocation. (Ring Fenced) S106 Agreements – contributions from developers of residential properties.
  • School Contributions – contributions from school revenue budgets.
  • Additional Grants - e.g. Additional Learning Needs, Community Focused Schools

Sustainable Communities for Learning rolling programme | GOV.WALES

A rolling programme of investment is being implemented to improve efficiency and delivery for both partners (local authorities, colleges etc.) and the Welsh Government. The rolling programme will strengthen one of the key attributes of the Programme, that of projects being taken forward at the pace of and to the priorities of delivery partners, removing the environment of ‘over-optimism’ or the need for delivery partners to put forward overly ambitious proposals during what is typically a narrow bidding window.

9-Year Capital Rolling Programme

Years Expectation
1,2 and 3 Projects expected to reach full business case within the 3 years
4,5 and 6 Projects being developed and going through statutory consultation
7,8 and 9 Pipeline Projects

A nine-year capital programme, including an indicative funding forecast for the 9 years, is required to be submitted to the Welsh Government for consideration towards providing a commitment and support for the first 3 years along with in principle support for years 4, 5 and 6. Years 7 to 9 will reflect a longer-term project pipeline. If appropriate, Band B projects can be included at the beginning of the nine-year capital programme.

At the latest, delivery partners must review and resubmit their Programme by March 2024.